North Kitsap-Poulsbo Efficiency Study

Opportunities for Collaborative Efforts Feasibility Study
August 2011
Emergency Services Consulting International

25200 SW Parkway Ave. Suite 3 Wilsonville, Oregon 97070 www.ESCI.us 800-757-3724
North Kitsap Fire & Rescue and Kitsap County Fire District #18, WA
Opportunities for Collaborative Efforts Feasibility Study
Prepared By: Jack Snook, President & Chief Operating Officer Martin Goughnour, Senior Vice President Lane Wintermute, Senior Associate Don Stewart, Associate Steve Trunck, Associate Don Bivins, Associate Rob Strong, Associate
North Kitsap Fire & Rescue Kitsap County Fire District #18, WA Feasibility Study
Table of Contents
Letter of Transmittal .................................................................................................................... v Acknowledgements ................................................................................................................... vii Executive Summary .................................................................................................................... 1 Purpose and Methodology ...................................................................................................... 10 Strengths, Weaknesses, Opportunities, and Challenges (SWOC) .......................................... 10 Organizational Strengths ...................................................................................................... 10 Organizational Weaknesses ................................................................................................. 11 Opportunities ........................................................................................................................ 12 Challenges ........................................................................................................................... 13 Evaluation of Current Conditions ............................................................................................... 17 Survey Table 1: Organization Overview .................................................................................. 17 Survey Table 2: Management Components ............................................................................ 27 Survey Table 3: Staffing and Personnel Management ............................................................ 44 Survey Table 4: Service Delivery and Performance ................................................................ 55 Survey Table 5: Support Programs Emergency Services Training ....................................... 58 Survey Table 6: Support Programs Life Safety Service Fire Prevention ............................... 63 Survey Table 7: Support Programs Emergency Communications ........................................ 68 Survey Table 8: Emergency Medical Services Support and System Oversight ....................... 74 Survey Table 9: Haz-Mat Services Support and Response Capability .................................... 77 Survey Table 10: Capital Assets, Capital Improvement, and Replacement Programs ............. 79 Analysis of Emergency Service Delivery and Performance ..................................................... 96 Service Distribution, Demand, and Concentration ................................................................ 96 Comparable........................................................................................................................ 125 Fiscal Analysis ...................................................................................................................... 131 Economic Indicators ........................................................................................................... 131 Historical Financial Review of Kitsap County Fire District #18 ............................................ 136 Forecast Financial Future of Kitsap County Fire District #18 .............................................. 138 Historical Financial Review of North Kitsap Fire & Rescue ................................................. 140 Forecast Financial Future of North Kitsap Fire & Rescue ................................................... 143 Processes for Collaboration .................................................................................................... 147 General Partnering Strategies .............................................................................................. 147 Status Quo ......................................................................................................................... 147 Administrative Consolidation .............................................................................................. 148 Functional Consolidation .................................................................................................... 148 Operational Consolidation .................................................................................................. 149 Full Merger ......................................................................................................................... 150 Regional Fire Authority ....................................................................................................... 151 Strategies for Efficiency ........................................................................................................ 155 Overarching Strategy 1 Administrative Consolidation ...................................................... 165 Overarching Strategy 2 Functional Consolidation ............................................................ 172 Overarching Strategy 3 Operational Consolidation .......................................................... 180 Overarching Strategy 4 Full Merger ................................................................................. 186
Overarching Strategy 5 Regional Fire Authority ............................................................... 196 Strategy A Develop a Joint Support and Logistics Services Division ............................... 207 Strategy B Develop Uniform Pre-Incident Plans .............................................................. 213 Strategy C Provide for Joint Staffing of Fire Stations and Apparatus ............................... 217 Strategy D Provide Regional Incident Command and Operations Supervision ................ 221 Strategy E Purchase and Implement an Electronic Staffing Program .............................. 224 Strategy F Develop Standard Operating Guidelines ........................................................ 227 Strategy G Shared Specialty Teams ................................................................................ 229 Strategy H Provide Joint Standards for Service Delivery ................................................. 231 Strategy I Implement the Use of Peak Activity Units (PAUs) ............................................ 236 Strategy J Develop Deployment Standards ..................................................................... 239 Strategy K Shared Public Education/Public Information................................................... 241 Strategy L Shared or Common Records Management System ........................................ 242 Strategy M Shared Intern Program .................................................................................. 244 Strategy N Combine Volunteer Services.......................................................................... 246 Strategy O Combine Administrative Services .................................................................. 248 Strategy P Implement North Kitsap Benefit Package ....................................................... 250 Strategy Q Align Operational Staffing Schedules ............................................................. 252 Strategy R Adopt Dropped Border Response .................................................................. 255 Strategy S Adopt Criteria-Based Dispatch ....................................................................... 256 Strategy T Implement a Computerized Training Records Management System .............. 258 Strategy U Develop Mutual Training Strategies ............................................................... 261 Strategy V Develop an Annual Shared Training Plan....................................................... 264 Strategy W Consolidate Training into a Single Training Division ...................................... 267 Strategy X Develop and Adopt Training Standards .......................................................... 270 Strategy Y Create a Shared Training Manual .................................................................. 272 Strategy Z Develop a Shared Fire and EMS Training Facility .......................................... 275 Strategy AA Implement and Cooperatively Use a Video Conferencing System ............... 278 Strategy BB Develop a Single Apparatus Refurbishment/Replacement Plan ................... 281 Strategy CC Continue with the County AVL and MDC or MDT Project ............................ 284 Strategy DD Develop a Regional Fire Safety Education Coalition.................................... 289 Strategy EE Develop a Regional Juvenile Fire Setter Intervention Network ..................... 291 Strategy FF Create a Unified Occupational Medicine Program ........................................ 293 Strategy GG Create a Unified Wellness and Fitness Program ......................................... 296 Strategy HH Develop Uniform Fees for Service ............................................................... 299 Strategy II Develop a Model Labor Agreement for Both Departments .............................. 302 Strategy JJ Provide for Shared EMS Supervision ............................................................ 306 Strategy KK Provide Joint EMS Supply Purchasing and Logistics Services ..................... 309 Strategy LL Provide for Medic Unit Surge Capacity During Major Incidents ..................... 312 Strategy MM Establish System-Wide Guidelines for EMS Response .............................. 314 Strategy NN Establish System-Wide Deployment of Paramedics .................................... 316 Strategy OO Implement Centralize EMS Billing Practices................................................ 318 Strategy PP Relocate Fire Station No. 73 ........................................................................ 320 Strategy QQ Future Joint Staffed Fire Station Location ................................................... 323 Findings and Recommendations ............................................................................................. 327 Findings ................................................................................................................................ 327 Strategic Recommendations ................................................................................................. 330 Moving Forward.................................................................................................................. 331 Overarching Recommendation ........................................................................................... 331 Functional Cooperation Recommendations ........................................................................ 335
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Appendices ............................................................................................................................. 339 Appendix A: Table of Figures ................................................................................................ 339 Appendix B: Summary Table of Organizational Kudos .......................................................... 343 Appendix C: Summary of Recommended Actions (Current Conditions) ................................ 344 Appendix D: Cost Allocation ................................................................................................. 347 Cost Allocation Options ...................................................................................................... 347 Appendix E: Summary Table of Stakeholder Interviews ........................................................ 357
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Letter of Transmittal
August 29, 2011 Commissioner Steve Neupert Board Chair North Kitsap Fire & Rescue 26642 Miller Bay Road Kingston, WA 98346 Dear Commissioners: Enclosed please find the final report in response to your request to conduct an Opportunities for Collaboration Feasibility Study for Kitsap County Fire District #18 and North Kitsap Fire & Rescue. The associates of ESCI have appreciated the opportunity to work with the communities, the employees and staff of both districts in preparing this study. We have presented this report in five major sections: current conditions, deployment and performance of each agency, comparison with similar agencies and best practices, external customers expectations, and processes for collaboration with fiscal analysis. Contained within the processes for collaboration section are 43 individual strategies to consider. A number of appendices are also attached that will provide helpful information for the two agencies. Two are particularly noteworthy. Appendix B: Summary Table of Organizational Kudos summarizes the many positive attributes of the districts. Appendix C: Summary of Recommended Actions provides items to consider as part of evaluating collaboration opportunities with and between the agencies. It is our intent to meet and exceed your expectations and to be available to you after the project is complete. Should you have questions do not hesitate to contact me at our headquarters office in Wilsonville, Oregon, at (503) 570-7778. It has been our pleasure to work with the professional and highly dedicated staffs of Kitsap County Fire District #18 and North Kitsap Fire & Rescue. Sincerely, Commissioner James A. Ingalls Board Chair Kitsap County Fire District #18 911 Liberty Road Poulsbo, WA 98370-8573
Jack W. Snook President, COO
Acknowledgements
Emergency Services Consulting International (ESCI) would like to acknowledge that without the assistance and support of the administrative staff and personnel of Kitsap County Fire District #18 and North Kitsap Fire & Rescue this project could not have been completed. Board of Fire Commissioners For North Kitsap Fire & Rescue: Steve Neupert, Board Chair Will Stewart, Commissioner Gillian Gregory, Commissioner Fernando Espinosa, Commissioner Patrick Pearson, Commissioner For Kitsap County Fire District #18: James A. Ingalls, Board Chair C. Conrad Green, Commissioner Martin D. Sullivan, Commissioner David Ellingson, Commissioner Darryl Milton, Commissioner Fire Chiefs Dan Olson, Kitsap County Fire District #18 Dan Smith, North Kitsap Fire & Rescue Steering Committee C. Conrad Green, KCFD #18 Gillian Gregory, NKFR Martin D. Sullivan, KCFD #18 Steve Neupert, NKFR Dan Olson, KCFD #18 Dan Smith, NKFR Fire Department Command Staff Assistant Fire Chief Wayne Kier, NKFR Administrative Services Manager Lise Alkire, KCFD #18 Professional Fire Fighters of Kitsap County, Local 2819 Scott Trueblood, NKFR Unit Vice-President Craig Becker, Poulsbo Unit Vice-President
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Executive Summary
Emergency Services Consulting International (ESCI) was engaged by Kitsap County Fire District #18 (KCFD #18) and North Kitsap Fire & Rescue (NKFR) to evaluate the feasibility of more efficient cooperation between the two agencies, up to and including strategies of consolidation. This report is the culmination of that evaluation. ESCI thanks the staff of both KCFD #18 and NKFR for their outstanding cooperation in the preparation of this report. All involved were candid in their comments and provided an
enormous amount of information. The study took into account the critical issues facing the two fire districts and how such matters affect the effort to construct a model for efficient service. Those issues identified were analyzed and specific recommendations can be found in the section titled, Appendix C: Summary of Recommended Actions. Evaluation of Current Conditions An analysis of current conditions of the two fire districts is catalogued in ten survey tables presented in a side-by-side table for simplicity of comparison. Each of the tables provides the reader with general information about that element as well as specific observations and an analysis of any significant issues or conditions that are pertinent to the topic discussed. Observations are supported by data collected during the information gathering process, through analysis of the collected data, and from the collective emergency services experience of the ESCI project team. Current conditions also encompassed emergency service delivery and This snapshot in time was the basis for developing the
performance and fiscal analysis.
collaborative strategies for the two Districts. Current conditions are presented in survey tables. Tables include an evaluation of each
organizations management, governance, staffing and personnel management, service delivery and performance, training programs, fire prevention programs, communications, Emergency Medical Services (EMS), hazardous materials, capital facilities and apparatus, and fiscal health and practices. Criterion used to evaluate the Districts has been developed over many years. These gauges include relevant guidelines from national accreditation criteria, the National Fire Protection
Association (NFPA) standards, federal and state mandates for fire and EMS systems, recommendations by various organizations such as the Center for Public Safety Excellence (CPSE), and generally accepted best practices within the Fire and EMS industry. Leadership Both fire districts have a customer service ethic that stands out in the eyes of the consulting team. This ethos pervades the culture of both districts; although the two agencies approach service delivery differently, they do so with a sharp focus on doing the right thing for their respective constituents. The leaders of the two districts, the fire chiefs, are resolute in their desire to serve the community with distinction and have leveraged their resources to the greatest benefit of the community. The administrative teams of both districts are stretched thin, with KCFD #18 holding administrative vacancies open to act as a fiscal buffer for current and forecast projected economic challenges. While these efforts at fiscal prudence are a laudable effort for legitimate reasons, it is not sustainable long term. Agency Comparisons In general, ESCIs review found that the districts are performing comparably to other fire departments of similar size, population served, and character. In some cases, KCFD #18 and NKFR exceed what one would expect for the area served and tax levy rate. The number of calls for service experienced by KCFD #18 and NKFR is nearly identical to the average (132 incidents per 1,000 population) of the eight fire districts in Washington that ESCI used as comparable. The population served by KCFD #18 is 96 percent of the eight-district average of 24,511. Both districts are near the average of fire stations (0.269) and pumpers (0.197) per 1,000 population. KCFD #18 and NKFR have a greater number of career firefighters per 1,000 residents than the eight comparator districts. This is expected given that KCFD #18 and NKFR provide advanced life support (ALS) and EMS transport services. Service Delivery KCFD #18 has established response time standards for the various emergency services it provides. In 2010, all emergency response time standards were met for suburban areas with the exception of turnout time. Turnout time is the interval, measured in minutes and seconds, between alarm notification and actual response of the appropriate response unit(s). Rural
response time standards were met with the exceptions of turnout time, arrival of the first response unit to a Priority 1 or 2 event, and response time to a medical incident with the appropriate medically certified personnel (advanced life support paramedics).
NKFR has informal performance objectives that its personnel measure themselves against; however, the District is in the process of developing a formalized standards of cover (SOC) at the time of this report. Results will be published and reported to the board and the community annually, pursuant to Revised Code of Washington (RCW) 52.33. The population distribution of the area served by the agencies is predominantly rural (less than 500 persons per square mile over 65 percent of the combined service area), with pockets of suburban (between 500 and 1,000 persons per square mile), and few urban pockets (over 1,000 persons per square mile). Urban pockets are located in the City of Poulsbo (Fire Station No. 71), with smaller clusters in Kingston (Fire Station No. 82) and Suquamish (Fire Station No. 84). Sizeable suburban clusters exist in the Indianola area (between Fire Station Nos. 84 and 85) and in Fire Station No. 77s area. Predictably, call volumes tend to follow population density, so the urban and suburban areas have a higher frequency of emergency service demand. Fire stations are well located to provide reasonable response time intervals. GIS analysis
indicates that 85 percent of KCFD #18 incidents and 75 percent of NKFR incidents are within six minutes travel time of an existing fire station. There is a noticeable donut hole on the
northeastern edge of KCFD #18 where it butts up against the southwestern boundary of NKFR. This gap is typical, since a facility investment by either agency would have significant overlap in service area to the other agency. Additionally, there is the recognized need to adjust the
location of Fire Station No. 73 (Keyport). Originally built in 1944, it is poorly located to serve the District, has a significant coverage overlap with the Naval Installation fire station, is non-ADA compliant, and has very limited space. KCFD #18 is aware of the need and has planned for its relocation in 2017 or when financially feasible. Emergency apparatus were found to be modern and well maintained. The Districts have
apparatus replacement plans but lack adequate reserve funds to replace apparatus according to the schedule but have identified potential funding mechanisms. Between the two agencies, they maintain three reserve ambulances for eight front line ambulances and three reserve engines for a fleet of eight front line engines. This is more than is required by the Washington Survey and Ratings Bureau (WSRB). WSRB requires a 5:1 ratio of reserve to front line to receive full credit. Efficiency can be recognized by a shared fleet of reserve apparatus. Staffing levels and distribution of resources in the districts is very similar. Each uses two-person companies, with some fire stations cross-staffing an engine and a medic unit. Both rely on
volunteers to supplant career personnel. KCFD #18 and NKFR use volunteers in a variety of configurations, traditionally responding to the station, resident volunteers who live at some stations, and interns who pull shifts alongside career firefighters. Expansion of the intern
concept is an excellent opportunity to augment existing staffing levels without appreciably increasing costs. KCFD #18 and NKFR respond to EMS calls for service differently in one significant way. KCFD #18 sends a medic unit with paramedic staffing to all EMS call types while NKFR sends either an ALS or a BLS unit based on Criteria-Based Dispatch protocols. While there can be no argument that sending an ALS unit to all EMS calls is the safest response configuration, it is not viewed as the most effective given a finite number of resources. Using Criteria-Based Dispatch protocols, there is a better fit between demand and resource. ESCI recommends that CriteriaBased Dispatch protocols be adopted and used by KCFD #18. Financial Status Given that the Districts receive the majority of their revenue through property taxes (both regular property taxes and the voter-approved EMS Levy), there is a direct correlation between their financial health and the growth or decline of the TAV (taxable assessed value). As the taxable assessed value of property goes down, the tax rate per $1,000 goes up in an effort to maintain the revenue at historic levels, subject to the 1 percent growth cap (Initiative 747) and the $1.50 per $1,000 junior taxing district maximum cap (not including any proration). Both Districts have seen their taxable assessed value plateau in 2009, drop in 2010, and drop again in 2011. The tax rate adjusts upward until it hits the $1.50 cap, which it did for KCFD #18 this year and will likely for NKFR next year. The Districts have prudently curtailed expenditures to the extent possible and are maintaining a fund balance in anticipation of leaner economic times. The fund balances will dwindle if current spending rates are continued as they are used to bridge the gap between property tax revenue and expenditures. This strategy is not sustainable long term. KCFD #18 is projected to have a 64.5 percent reduction of its ending fund balance by 2016. NKFR is projected to have a
negative ending fund balance of approximately $500,000 in 2016.
Opportunities for Collaboration This section of the report evaluated the resources, services, proximity, demand, and opportunities for KCFD #18 and NKFR to reduce costs, increase efficiency, or enhance service delivery through collaboration. This report cites 43 separate strategies through increased collaboration to generally build an improved system by more closely aligning the Districts. Some of the strategies require strategic investments to implement. There is an assumption that the Districts are able to fund the
investments that later pay-back economically, through service improvement or efficiencies gained in internal operations. For KCFD #18 and NKFR it is not a safe assumption that monies will be available to finance or invest in any new activities. In fact, both agencies face significant fiscal challenges in the near term with no return to normal expected over the next several years, if ever. Thus, the first order of business has to be to establish a fiscal equilibrium before considering many of the strategic investment opportunities. Individual Strategies not requiring an investment beyond soft costs and yielding economic or operational efficiencies can and should be considered for implementation. Those strategies include: Strategy B Develop Uniform Pre-Incident Plans Strategy D Provide Regional Incident Command and Operations Supervision Strategy F Develop Standard Operating Guidelines Strategy K Shared Public Education/Public Information Strategy N Combine Volunteer Services Strategy O Combine Administrative Services Strategy P Implement North Kitsap Benefit Package Strategy Q Align Operational Staffing Schedules* Strategy R Adopt Dropped Border Response Strategy S Adopt Criteria-Based Dispatch Strategy U Develop Mutual Training Strategies Strategy V Develop an Annual Shared Training Plan Strategy X Develop and Adopt Training Standards Strategy Y Create a Shared Training Manual Strategy BB Develop a Single Apparatus Refurbishment/Replacement Plan Strategy HH Develop Uniform Fees for Service
Strategy II Develop a Model Labor Agreement for Both Departments* Strategy LL Provide for Medic Unit Surge Capacity During Major Incidents** Strategy MM Establish System-Wide Guidelines for EMS Response Strategy NN Establish System-Wide Deployment of Paramedics* Strategy OO Implement Centralize EMS Billing Practices Strategy PP Relocate Fire Station No. 73
*Impact bargaining is required, thus the fiscal effect is subject to the results of negotiations **Some elements of this recommendation are implementable without cost, but the strategy would have to be modified to make it cost neutral.
In addition to the above strategies, there are five overarching strategies that address organizational structure and governance: Administrative Consolidation Functional Consolidation Operational Consolidation Full Merger Regional Fire Authority
An administrative consolidation has a net first year cost avoidance of $20,000, and a functional consolidation shows a net cost avoidance of $15,000 in the baseline year. As proposed, an operational consolidation would have an increased annual cost of $70,000. The full merger strategy reduces the revenue shortfall of both agencies by a combined $500,000 by 2016 when compared with their separate fiscal trajectories. This is reduction in their individual shortfalls from $6.4 million to $5.9 million. A regional fire authority strategy essentially has the same economic effect as a merger. The exception with an RFA (Regional Fire Authority) is the authoritys ability to establish a benefit charge as its funding mechanism. With a benefit charge, the effective revenue can go as high a $1.60 per $1,000 of taxable assessed value. This would generate $9,676,216 from fire levies and benefit charges for the combined agencies. Coupled with the current EMS levies (which would also have to be part of the RFA formation), an RFA generates a combined $12,700,033 in EMS levies and benefit charges, or approximately $1 million more in revenue than the two agencies take in currently from fire and EMS levies.
Formation of an RFA with a benefit charge may be a difficult obstacle in the current economic environment. This funding mechanism would increase costs to some taxpayers of both Districts (based on a complicated formula of risk versus benefit for each property in the service area). A supermajority of 60 percent voter approval is required for passage of a benefit charge initiative. This voter threshold would exist anyway because an EMS levy would have to be part of the economic equation, which also requires a supermajority voter approval of 60 percent. Recommendations and Conclusions Options for the Districts are somewhat limited given the forecast financial future under the current funding model. As stated earlier, many of the strategies presented in this report require a strategic investment to implement with a return on investment longer than the Districts likely can afford. This does not mean that there arent opportunities. The opportunities require
difficult and even painful choices. However, for the long-term viability of the Districts, ESCI provides the following recommendations. Reduction in Force (RIF) ESCI recommends an RIF to stop the downward fiscal trajectory of the Districts. Reductions of the Districts combined work force, includes: Three shift battalion chief positions One fleet maintenance supervisor One public information officer One administrative services manager/director One receptionist
These combined cuts result in a cost avoidance is approximately $725,500 in the first year. Administratively Merge and Reorganize ESCI recommends that KCFD #18 and NKFR enter into an Interlocal Cooperation Agreement that combines the two administrations. Upon implementation of the Interlocal Agreement, an RIF must be implemented. Recommended reduction and changes include: Reassign one of the two incumbent fire chiefs to the position of assistant chief of administration and support. Reassign the incumbent assistant chief to operations with responsibility for duties of training chief.
Reassign the current training battalion chief to a position as the administrative battalion chief (40-hour workweek). It is envisioned that this position would supervise administrative duties presently handled by the shift battalion chiefs. A single public information officer would become responsible for the community outreach and marketing for both Districts. A single fleet manager would supervise the fleet maintenance mechanics at NKFR. Maintenance and repair of KCFD #18s fleet is incorporated into their responsibilities and absorption of the associated work. A single administrative services manager/director would have responsibility for human resources, outsourced IT services, and supervision of clerical support staff. A single receptionist would provide services at the headquarters station.
A sample organizational chart can be found in the Findings and Recommendations section of this report. Suquamish Tribal Partnership ESCI recommends that the Districts partner with the Suquamish Tribe. While the Suquamish Tribe does not own fire suppression assets, it has access to financial opportunities not available to either fire district. Exploration of the formation of a fire authority that includes the tribe is considered a viable alternative to the current system. Additionally, the formation of a port
district by the tribe could provide revenue that could be beneficial for the entire region. Further, the tribe is anxious to play a larger role in regional services and is approachable on the subject of partnering. State statutes allow tribal governments to join regional fire authorities as a full partner, and intergovernmental agreements could also be negotiated between the parties. Form an RFA (Regional Fire Authority) ESCI recommends that KCFD #18, NKFR, and the Suquamish Tribe pursue the formation of an RFA with an EMS levy and benefit charge as the funding mechanism. Establish an exploratory committee made up of internal and external stakeholders who determine the plausibility of such an endeavor by determining the level of community support. If the committee reports back favorably on the RFA concept, the two boards and tribe formally establish a planning committee to set service level standards, funding mechanisms, governance, and the remaining obligations as listed in RCW 52.26. Formation of an RFA will be an extended process, likely taking up to two years to complete. The preceding actions will provide temporary financial relief until this long-term solution is implemented.
The option of a merger also has the option of a benefit charge; however, since neither District has a benefit charge in place, a merger would need to occur before the charge can be implemented. If the benefit charge is rejected by voters subsequent to a merger vote, the Districts would need to grapple with a lower tax base than is necessary to support the current operations.
Purpose and Methodology Strengths, Weaknesses, Opportunities, and Challenges (SWOC)

The study takes into account the many shared critical issues that face the two fire departments and how such matters affect the effort to construct a model for efficient service. These issues were identified and analysis and specific recommendations are offered in the section titled, Appendix C: Summary of Recommended Actions. Organizational Strengths It is important for any organization to identify its strengths in order to assure it is capable of providing the services requested by customers and to ensure that strengths are consistent with the issues facing the organization. Often, identification of organizational strengths leads to the channeling of efforts toward primary community needs that match those strengths. Programs that do not match organizational strengths or the primary function of the business should be seriously reviewed to evaluate the rate of return on precious staff time. In the course of ESCIs stakeholder interviews, the strengths of the Kitsap County Fire District #18 (KCFD #18) and North Kitsap Fire & Rescue (NKFR) were identified. They are listed below, as stated by those interviewed.
Organizational Strengths Kitsap County Fire District #18 Good facilities Chief is well respected Thinks about what is best for the community Pride in facilities and equipment Good communications, but room for improvement Recent training improvements Strong, capable administrative support Same EMS (emergency medical service) protocols as neighbors Strong EMS program Good incident review practices Strong board with good relationships, stays focused at the policy level Good numbers of well trained personnel Strong medic program Excellent training officer Diverse and experienced workforce North Kitsap FR Good community outreach Strong chief, respected Positive relationships with neighbors Honesty and integrity of the fire chief Culture and mindset toward doing the best for the public Effective fire station locations Positive labor/management relationships Resident program is valuable Labor and administration work well together Strong, respected resident/volunteer program Family oriented organization High morale, positive attitudes Positive leadership Professionalism Service above self ethic
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North Kitsap Fire & Rescue Kitsap County Fire District #18, WA Feasibility Study Organizational Strengths Kitsap County Fire District #18 Not resident/volunteer dependent Chief is focused on administrative needs Were a family, though less so recently North Kitsap FR Good medic program Good relations between paid and volunteers People are flexible, accommodating to needs Strong volunteer program Management commitment to the citizens and service Visibility, school programs Resident program = hiring pool Good training program
Organizational Weaknesses Performance or lack of performance within an organization depends greatly on the identification of weaknesses and how they are confronted. While it is not unusual for these issues to be at the heart of the organizations overall problems, it is unusual for organizations to be able to identify and deal with these issues effectively on their own. For any organization to either begin or to continue to move progressively forward, it must not only be able to identify its strengths but also those areas where it does not function well. These areas of needed enhancements are not the same as challenges, but rather those day-to-day issues and concerns that may slow or inhibit progress. As with the strengths (listed previously), ESCI asked stakeholders to list organizational weaknesses in their respective organizations. They are listed below, as reported by the interviewees.
Organizational Weaknesses Kitsap County Fire District #18 Too few personnel in administration No impact fees charged by KCFD #18 KCFD #18 equipment maintenance is lacking Loss of fire marshal resulting in piece meal approach to prevention Not enough boots on the street Union is demanding Most hiring has been lateral in recent years, a need to bring in outside people Running out of money, bargaining unit is holding to maintenance/increases Low staffing levels on engines Weak volunteer program North Kitsap FR Internal communications could improve Not adequately staffed Lacking administrative staffing, support High ratio of officers to line personnel Lower population densities Lack of commercial property (development) Need more career personnel Succession planning future replacement for fire chief and assistant chief will be difficult Financial vulnerability Lack of focus on long range planning
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North Kitsap Fire & Rescue Kitsap County Fire District #18, WA Feasibility Study Organizational Weaknesses Kitsap County Fire District #18 Loss of positions, concern about job loss Disconnect with elected officials recently Declining finances Declining morale Union has to protect jobs We tend not to finish a project Training was poor, improving some Sense of family and purpose declining People are out for themselves Minimum staffing levels Attitudes Officer assignments North Kitsap FR Spread thin due to vow to not close a station Treating service like a business is difficult Minimum operational staffing adjustment Enforcement of policies, procedures is casual Lack of support for outside training Reduced manpower due to EMS transport Need to plan better, be more proactive
Opportunities The opportunities for an organization depend on the identification of strengths and how they are built upon and in what way weaknesses are diminished. The focus of opportunities is not solely on existing service but on expanding and developing new possibilities both inside and beyond the traditional boundaries of business as usual. Because the questions posed to stakeholders by ESCI were presented in the context of a cooperative efforts feasibility study, most responses were provided in that frame of reference. Because of the collaborative focus of answers, the opportunities identified are applicable to both Districts.
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North Kitsap Fire & Rescue Kitsap County Fire District #18, WA Feasibility Study Opportunities Opportunity to work together between the two agencies Finding ways to work more closely together will serving the community better To share the mature resident firefighter program To share training programs To continue and enhance EMS program management To strengthen volunteer and resident programs To work more closely, cooperatively with Central Kitsap F&R To reopen fire station on the south end To share facilities and vehicle maintenance To share training To contract some non-emergency KCFD #18 services out to NKFR To share resources between neighboring agencies To reduce dependence on residents that is perceived to be too high To address low minimum staffing To accommodate regional training delivery
Challenges To draw the strong suit and gain full benefit of any opportunity, the challenges to the organization, with their new risks and threats, must also be identified. By recognizing potential challenges, an organization can greatly reduce the potential for future setbacks. As with opportunities and the context in which the questions were posed to the interviewees, responses tended to be in effect applicable to both organizations. In some instances the challenges may affect the outcome of collaborative efforts between KCFD #18 and NKFR.
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North Kitsap Fire & Rescue Kitsap County Fire District #18, WA Feasibility Study Challenges May be fewer commissioners and senior staff/administrative positions if consolidated Large differences in Collective Bargaining Agreements (CBA) between the two agencies Differences in staffing methodologies between the two agencies Acceptance of NKFR resident personnel by KCFD #18 personnel Labor issues between very different bargaining units It will be difficult to replace Chief Smiths financial skills and AC Kiers training abilities when they retire Keeping up with increasing call volumes Maintaining financial stability, sustainability Maintaining high morale in the future Fire-based transport is a significant manpower drain Apparatus is aging and replacement funds are not available Union differences Cultures differ greatly Meeting service demands with dwindling financial resources Addressing the impending retirement of the operations chief
After discussing core services, organizational strengths and weaknesses, and the opportunities and challenges posed by the current environs, ESCI asked stakeholders to identify the critical issues they perceive each Fire District is facing. The following reflect the critical issues that the respondents felt pose the greatest risk today, as well as on the success of cooperative service delivery initiatives.
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North Kitsap Fire & Rescue Kitsap County Fire District #18, WA Feasibility Study Critical Issues First Critical Issue: Financial Needs Financial needs and declining fiscal resources were the most frequently listed issue, mentioned 14 times by stakeholder interviewees. Many respondents expressed concerns about declining taxable assessed value, declining revenue, and increasing expenditures. The second most frequently identified issue (in nine instances), was the significant cultural and functional differences between the two collective bargaining units. In the context of future cooperative efforts, this was viewed to be a major obstacle. Seven of those interviewed discussed CBAs (labor agreements), labor/management relations, and pay and benefit issues as critical. Concern was articulated that in some cases, labor is not on the same page as policy makers and administration. Uneasiness was expressed regarding combining two very different CBAs under a consolidation. The following were listed by one or more stakeholders: KCFD #18 needs to fully utilize volunteers, value residents There are too many officers Staffing shortages Keeping stations open Additional issues raised by interviewees Communications with management Maintaining the value of the volunteers Balancing politics and egos internally Staffing levels Labor/management differences Differing management styles Loss of identity
Second Critical Issue: Cultural Differences
Third Critical Issue: Collective Bargaining Issues
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Evaluation of Current Conditions

Survey Table 1: Organization Overview
The feasibility study involves North Kitsap Fire & Rescue (NKFR) and Kitsap County Fire District #18 (KCFD #18). The service area of KCFD #18 includes the incorporated city of Poulsbo, Washington. Data provided by the participating fire agencies was combined with information collected in the course of ESCIs field work and used to develop an overview of the subject organizations. The purpose of the following organizational overview is two-fold; first, it verifies the accuracy of the baseline information and ESCIs understanding of each agencys compositionthe foundation from which the feasibility analysis is developed. Secondly, the overview serves as a reference for the reader who may not be familiar with the details of each agencys operations.
Organization Overview Observations Kitsap County Fire District #18 1. Responsibilities and Lines of Authority Five-member board of fire commissioners serve a six-year term. Board member positions are elected in staggered order in odd years Commissioner Jim Ingalls, Chair Lise Alkire (Board Secretary) Five-member board of fire commissioners serve a six-year term. Board member positions are elected in staggered order in odd years Commissioner Steve Neupert, Chair Cindy Moran (Board Secretary) North Kitsap Fire & Rescue Recommended Action
Survey Component
A. Governance
i) head of governing body ii) key employee of governing body
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North Kitsap Fire & Rescue Kitsap County Fire District #18, WA Feasibility Study Organization Overview Observations Kitsap County Fire District #18 2nd & 4th Wednesdays of each month plus special meetings with North Kitsap Fire & Rescue and Bainbridge Island FD quarterly RCW 52.14 Chief Dan Olson Yes Continuous, at will contract Annual by board (oral conducted in executive session) Yes, policy and job description Yes, governance policies are in place for board North Kitsap Fire & Rescue 2nd & 4th Mondays of each month plus special board meetings with KCFD #18 and Bainbridge Island FD boards on a quarterly basis RCW 52.14 Chief Dan Smith Yes Three year contract, termination for cause only, wages and benefits are negotiable Annual by board Yes, in job description Yes, governance policies are in place for board KCFD #18: Reduce fire chief performance evaluations to 2 written form Recommended Action Both Agencies: Consider setting regular meeting dates on the same cycle to facilitate joint meetings without calling 1 for a special meeting
Survey Component
iii) meetings
B. Elected official authority defined C. Fire chief position i) hired by contract ii) term of contract iii) periodic performance evaluation D. Fire chief/authority defined E. Policy and administrative roles defined 2. Attributes of Successful Organizations A. Rules and regulations maintained
Code of conduct and table of offenses only
Yes, ERS (Emergency Reporting System) on-line fire and EMS RMS (records management system) Schedule identified in policies Yes, Brian Snure & Joe Quinn
KCFD #18: Establish rules & regulations KCFD #18: Develop schedule for review and revision to ensure conformity with legal/organizational changes
i) process for revision provided B. Legal counsel maintained

1
No Yes, Brian Snure
With regular board meetings of both agencies coinciding with each other, joint meetings are facilitated more easily without incurring the expense or cost with calling for a special meeting or additional meeting. These simultaneous but separate meetings can then be easily converted to joint meetings as the need arises to allow for better dialogue at the policy level as the two agencies continue to explore efficiencies by working more closely together. 2 By creating a written performance evaluation, complete with explicit goals, the board and the fire chief are clear on expectations, areas of excellence or needing improvement, and future oriented expectations of the board. This provides continuity as changes occur within the board or with the fire chief.
18
North Kitsap Fire & Rescue Kitsap County Fire District #18, WA Feasibility Study Organization Overview Observations Kitsap County Fire District #18 Yes Summit Law Group, Rod Yonkers & Kristin Anger Yes The District uses the Countys financial system (JD Edwards). The District has the authorization to enter data and run reports. No on-line review for department. County generates payroll and AP checks. County doesnt charge for services Financial review monthly with board at a summarized level. Detail reviews are completed by the chief and the individual responsible for the specific line item. Commissioner Green is the board financial representative. In this capacity he reviews/approves all payment vouchers. Audits are conducted by the State auditors every two years on the odd years. The last audit was for 2007 and 2008. The report generated was issued on November 4, 2009. No material weaknesses were identified in the audit. The audit of 2009 and 2010 is scheduled for 2011. Every two years on odd years North Kitsap Fire & Rescue Yes John Silk Yes The District uses the Countys financial system (JD Edwards). The District has the authorization to enter data and run reports. On-line review for financial reporting (finance only). County generates payroll and AP checks. County doesnt charge for services Financial review to the board of commissioners is during the first meeting of the month. Report shows cash and investment, revenue and summary expenses. District staff receives a detailed monthly report. Commissioner Patrick Pearson is the board financial representative. In this capacity he reviews and pre-approves all payment vouchers. Audits are conducted by the State auditors every two years on the odd years. The last audit was for 2007 and 2008. The report generated was issued on December14, 2009. No material weaknesses were identified in the audit. The audit of 2009 and 2010 is scheduled for 2011. Every two years on odd years Recommended Action
Survey Component i) consultation available ii) labor counsel C. Financial controls
i) financial control system
KCFD #18: Review the merit of having on-line access to financial reporting
ii) financial review
iii) auditor
iv) frequency of review
19
North Kitsap Fire & Rescue Kitsap County Fire District #18, WA Feasibility Study Organization Overview Observations Kitsap County Fire District #18 D. Governing body minutes maintained i) availability of minutes 3. Organizational Structure A. Structure type Very flat hierarchical Very flat hierarchical with significant empowerment to positions Both Agencies: Consider a joint committee to review/ update job descriptions together, aligning functions where possible, and 4 facilitating future integration Yes Yes, electronic and on District website North Kitsap Fire & Rescue Yes NKFR: Consider posting board minutes on website for better transparency to 3 constituency Recommended Action
Survey Component
Yes, electronic and in a binder
B. Descriptions of all jobs maintained
Yes, in 2005 (need to be updated)
Yes, non-uniform might need review
i) job descriptions updated C. Employment agreements 4. Chain of Command A. Unity of command B. Span of control C. Hiring/Firing authority 5. Formation and History A. Organization formed B. History maintained i) individual or group responsible
In 2012 operational plan Non-represented contracts Represented have CBAs Yes 5:1 administrative 2:1 for operations Appropriate for staffing and EMS transport Fire chief 1936 Yes, preparing for 75th anniversary celebration Appointed committee, Chair Commissioner Sullivan
Yes, recently reviewed Yes, non-uniformed CBA; uniformed CBA; Administrative Contract (7) Yes 5:1 administrative 1:1 for operations Appropriate given two person staffing and EMS transport services Fire chief 1948 Yes Michele Laboda
3 4
Uploading board meeting minutes, once approved, provides for greater transparency for interested citizens. By working together to align job descriptions as much as possible, especially when the need for review and revision are recognized and imminent, opportunities for efficiency can be discovered.
20
North Kitsap Fire & Rescue Kitsap County Fire District #18, WA Feasibility Study Organization Overview Observations Kitsap County Fire District #18 6. Fire Department Overview A. Agency type B. Area, square miles Fire District 54 square miles 911 Liberty Rd NE Poulsbo, WA 98370 Station 71 Four, two manned and one flexibly manned and one unmanned at Keyport Training facility connected to Fire Station No. 77 4 1 0 4 North Kitsap Fire & Rescue Fire District 45 square miles (District) plus two square miles by contract with Port Gamble SKlallam (renegotiated every six years) Paul T. Nichol Headquarters: 26642 Miller Bay Rd NE Station 81 Four manned and one unmanned 33787 NE Eglon Rd (storage) 4 2 0 4 Both Agencies: Consider pooling reserve ambulances between the agencies, potentially reducing the need for one reserve (maintenance record verification of 5 reliability) NKFR: Evaluate need for four motor pool vehicles, verify reliability through 6 maintenance records Recommended Action
Survey Component
C. Headquarters
D. Fire stations E. Other facilities F. Emergency vehicles i) engine ii) engine, reserve iii) ladder truck iv) ambulance
v) ambulance, reserve
vi) command vii) boat
1 (4 staff & support vehicles) 1 (17 foot SafeBoat)
1 (2 staff vehicles 3 fleet maintenance, 1 facilities maintenance, 4 motor pool) 1 (29 foot LifeTimer)
5 6
Maintenance records may reveal an opportunity for a pooled fleet of reserve ambulances to reduce the need for three units, thus reducing costs. Evaluate the cost effectiveness of a motor pool versus reimbursement for required travel by district personnel performing non-emergency services work.
21
North Kitsap Fire & Rescue Kitsap County Fire District #18, WA Feasibility Study Organization Overview Observations Kitsap County Fire District #18 2 (3,000 gal.) 0 4 in the city of Poulsbo, 5 in the District, (7 for unhydranted areas) 1991 5,000 n/a n/a 2,236 43.33 (Includes 0.33 FTE facilities maintenance position. NKFR is the employer of the position shared equally with KCFD #18 and BFD) 7 1/3 fulltime filled positions, 5 approved positions are vacant. Facility maintenance position is split 1/3 each for KCFD #18, NKFR and Bainbridge Island. 36 North Kitsap Fire & Rescue 3, 1@3500 gal., 1@3000, 1@1000 1 Recommended Action
Survey Component viii) tenders ix) brush
G. WSRB rating
5 (6 for unhydranted areas)
Both Agencies: Consider conducting an informal re-rate analysis to determine whether a Class 4 is possible for both 7 agencies
i) date of most recent rating ii) maximum fire department deficiency points possible iii) relative classification iv) divergent reduction v) total deficiency points H. Total fire department personnel, uniformed and civilian
1991 5,000 n/a n/a 2,068 45.00 (Includes 1.0 FTE facilities maintenance position. NKFR is the employer of the position shared equally with KCFD #18 and BFD)
i) administrative and support personnel, full-time
12
ii) operational personnel, fulltime iii) operational personnel, volunteer

7
33 18 14 to 16 interns and 2 tender operators
KCFD #18: Consider expanding the administrative and support volunteer program
25
Training and Large Fire Operation are the two areas of greatest deficiency within the fire department, according to the Washington Surveying & Rating Bureau in 1991. While this evaluation is 20 years old for both departments, they are also areas where the fire districts have significant control. An informal evaluation of the circumstances today might reveal an opportunity to drop a rate classification for both agencies. Water distribution is the single greatest number of total deficiency. Active involvement with the local water departments and developers in improving main distribution, hydrant placement, pumps, and looped systems provide significant benefit to the fire districts from a rate classification perspective.
22
North Kitsap Fire & Rescue Kitsap County Fire District #18, WA Feasibility Study Organization Overview Observations Kitsap County Fire District #18 7. Finance Overview A. Designated fiscal year B. Assessed property value, FY 2011 C. Revised 2011 general operating fund budget, fire department D. General fund property tax, District levy FY 2011 Calendar year January 1 through st December 31 Fire $3,303,787,872 EMS $3,308,285,482 The 2011 budget is $6,983,674. This includes EMS costs. Fire $4,955,681 EMS $1,654,142 Fire 2010 1.457369 2009 1.336784 2008 1.304888 2007 0.886593 EMS 2010 0.500000 2009 0.500000 2008 0.302267 2007 0.321288 Property taxes collected in 2010 were $6,806,626. This amount represents 100.003% of the budgeted amount. Annual $189,407.50 $2,040,000 @ average interest rate of 4.572373% EMS $0.50/1,000 of the assessed value (AV) 23,500 (client provided) Not requested 35%
st
Survey Component
North Kitsap Fire & Rescue Calendar year January 1 through st December 31 Fire $2,743,847,365 EMS $2,745,732,697 The 2011 budget is $6,042,161. This includes EMS costs. Fire $3,923,070 EMS $1,372,866 Fire 2010 1.309430 2009 1.186419 2008 1.158863 2007 1.285388 EMS 2010 0.500000 2009 0.500000 2008 0.500000 2007 0.338834 Property taxes collected in 2010 were $5,334,795. This amount represents 99.91% of the budgeted amount. Annual $490,000 Bond levy rate $0.248095 EMS $0.50/1,000 of the assessed value (AV) 18,418 plus 682 by contract (client provided) Not requested Not provided
st
Recommended Action
i) levy rate (FY 2007 through 2010)
ii) general fund levy collection rate FY 2010 E. Bonds, fire department i) levy rate F. Other tax levy, public safety i) levy rate 8. Demographics A. Population, 2010 i) population history (2000 2010) ii) percent urban/suburban
23
North Kitsap Fire & Rescue Kitsap County Fire District #18, WA Feasibility Study Organization Overview Observations Kitsap County Fire District #18 65% Not provided Not provided 60 North Kitsap Fire & Rescue Not provided 8,000 400 54 Both Agencies: Consider obtaining property value from county assessor on line, add contents estimate for total value of property exposed to fire Both Agencies: Consider amending NFIRS report with insurance information once claim is settled Recommended Action
Survey Component iii) percent rural B. Total residential units, 2010 C. Businesses, 2010 9. Alarms, Calendar Year A. Fire
i) value of property exposed to fire, 2010
Not tracked
Not tracked
ii) value of property lost to fire, 2010 B. Rupture or explosion C. EMS/rescue D. Number of EMS transports E. Hazardous condition F. Service call G. Good intent call H. False call I. Severe weather J. Other K. Total Comments:
$538,992 n/a 2,052 1,567 (740 BLS, 827 ALS) 85 410 372 169 n/a 30 3,178
Not tracked 7 1,586 1,015 (536 BLS, 479 ALS) 164 115 342 163 5 44 2,480
43 percent of the mutual aid responses KCFD #18 receives are from NKFR (43 percent NKFR, 32 percent NRNW, 21 percent CKFR, 3 percent BIFD, and 1 percent JCFR#3). With approximately 17 percent of all calls for service being classified as good intent or false calls, KCFD #18 and NKFR should consider the causes and implementing a public education campaign aimed at reducing the number of these incidents. As a second proactive idea to reduce the frequency of nuance calls, the Districts should adopt and enforce the Kitsap County false alarm ordinance that gives fire service agencies an enforcement tool (Kitsap County Code Chapter 6.10 Emergency Communications Systems).
24
North Kitsap Fire & Rescue Kitsap County Fire District #18, WA Feasibility Study Figure 1: NKFR Organizational Chart
Citizens
Board of Commissioners
Fire Chief
Operations Section
Administration Section
Planning Section
Emergency Services
Finance
Strategic Planning
Support Services
Administrative Support
Labor Management
Training & Safety
Human Resources
Budget & Finance
Community Services
Healthcare
Fleet Services
25
North Kitsap Fire & Rescue Kitsap County Fire District #18, WA Feasibility Study Figure 2: KCFD #18 Organizational Chart
C itize ns o f K itsa p Co u n ty Fire D istrict 18
B o a rd of Fire Co m m issio n e rs
Fire C h ief
D e p uty C hie f Ad m in
D e p u ty C h ief O p era tio ns/E MS
A d m in stra tive S e rvice s M gr
Fire M a rsh al
BC A
O ffice M gt
Tra inin g /Sa fe ty
BC B
IS
Fle e t/Fa cilities
BC C
HR
P u b E d/P IO
V o lun te er BC
Fin an ce
26
Survey Table 2: Management Components

Fire department management coupled with organizational growth is a common challenge for fire service leaders. NKFR and KCFD #18 are not immune to having adequate management to meet current conditions. The modern fire department must address management complexities in areas that include the consistency and adequacy of response, maintenance of competencies, and recruitment of a qualified and diverse workforce. A forecast of continued population growth and response activity workload will necessitate changes in staffing to meet anticipated service demand. A correlated increase in organizational infrastructure is required to support operational personnel. This section examines each departments efforts to manage the organization and measures that are being taken for the future.
Survey Component 1. Mission, Vision, Strategic Planning, Goals and Objectives A. Mission statement adopted i) displayed ii) periodic review B. Vision established and communicated C. Values of staff established i) organizational focal points D. Strategic or master plan i) adopted by elected officials ii) published and available iii) periodic review
8
Management Components Observations Kitsap County Fire District #18 North Kitsap Fire & Rescue
Recommended Action
Yes (needs to be updated) Not currently, when updated, it will be displayed Due in 2012 Due in 2012 Due in 2012 Due in 2012 Due in 2012 n/a n/a n/a
Yes On website and in annual report No set schedule (Strategic goals adopted by the Board) No No No n/a n/a n/a Both Agencies: Establish a synchronous five-year strategic planning cycle for both agencies Both Agencies: Adopt organizational guiding principles 8 or values for all personnel
Personnel who exercise independent decision making naturally make better decisions when they understand the principles and values of the organization. Decisions are then made with the leaders intent clearly understood.
27
North Kitsap Fire & Rescue Kitsap County Fire District #18, WA Feasibility Study Management Components Observations Kitsap County Fire District #18 North Kitsap Fire & Rescue Operational goals and objectives are drawn from strategic goals Yes directed annually by the commission. First developed in 2009, annual 2008 review and adjustment Annually Annually Yes Yes Yes Yes, in policy manual Yes Yes Yes Yes, in policy manual
Survey Component E. Agency goals and objectives established i) date developed ii) periodic review iii) tied to division/personnel performance statements/plans iv) objectives linked to programs v) performance objectives established F. Code of ethics established 2. Availability of SOPs, Rules and Regulations, Policies A. Copies of rules provided i) last date reviewed B. Copies of SOGs or guidelines available i) regular update
Recommended Action
On server, hard copy in office n/a Outdated, being revised
In ERS library Schedule on ERS library Yes As needed, changed by WAC (Washington Administrative Code), L&I rulings, county-wide standardizations See above, process under development Yes Yes KCFD #18: Establish an SOG during the revision that establishes a review/revise 9 interval
n/a Prioritized risks, program manager and training chief develops draft, presents to leadership team, chief adopts Yes Yes
ii) process for development of new SOGs iii) SOGs used in training evolutions C. Policy manual available
Current Standard Operating Guidelines are important for continuity of action by crews in the field. As the SOGs are revised, establishing a new SOG that sets the review/revision frequency of the entire set of SOGs helps the organization police itself in terms of changing practices or new technologies/processes.
28
North Kitsap Fire & Rescue Kitsap County Fire District #18, WA Feasibility Study Management Components Observations Kitsap County Fire District #18 North Kitsap Fire & Rescue Yes enhanced procedure under Yes, annually development Sent for legal review When reviewed for revision needs Yes Yes Not formally identified n/a n/a n/a Not formally identified n/a n/a n/a Yes, identified in annual report See annual report See annual report See annual report Yes, identified in annual report See annual report See annual report See annual report
Survey Component i) reviewed for consistency ii) reviewed for legal mandates iii) training on policies provided 3. Critical Issues A. Critical issues are identified i) first critical issue ii) second critical issue iii) third critical issue 4. Challenges of the Future A. Challenges are identified i) first challenge ii) second challenge iii) second challenge 5. Internal and External Communications
Recommended Action
A. Internal communications
Face to face, quarterly with crews, meeting with an individual monthly, weekly updates via e-mail
E-mail, weekly flash (electronic newsletter), Twitter, Facebook
KCFD #18: Consider adding a regular electronic internal department newsletter distributed to all personnel. NKFR: Consider face-to-face crew meetings
i) regularly scheduled staff meetings (fire department) ii) written staff meeting minutes iii) memos iv) member newsletter v) member forums vi) open door policy vii) bulletin board
Yes, leadership team meetings twice a month Not lately (personnel reductions have minimized staff availability. Directives and administrative memorandums Yes Yes Yes Yes, not used regularly
Yes, monthly B/C, quarterly all uniformed officers. Admin. Staff as needed Yes, of B/C and uniformed officer meetings As needed Yes, weekly flash Yes, electronically and anonymously Yes Yes, electronically and anonymously
29
North Kitsap Fire & Rescue Kitsap County Fire District #18, WA Feasibility Study Management Components Observations Kitsap County Fire District #18 North Kitsap Fire & Rescue No Yes Yes Anyone with an extension has a voicemail Yes, stakeholders pulled together to address problem Yes, annually, exploring a quarterly column written by fire chief, seeking neighborhood associations Yes Yes, budget and flex staffing for Fire Station No. 72 No, outdated policy on complaints Facebook and e-mail follow up from community meetings No Yes, city of Poulsbo Community Budget Review Committee (CBRC) Yes Yes Yes Anyone with an extension has a voicemail As needed if appropriate, not in writing Yes, monthly articles in community newsletters Yes As needed Yes, in policies Facebook updates and/or e-mail as needed As needed Yes, county citizen advisory committees in Kingston, Hansville, and Suquamish communities As needed Both Agencies: Consider joint citizen advisory committee in 10 this feasibility effort KCFD #18: Establish a written citizen complaint process
Survey Component viii) vertical communication path clearly identified ix) e-mail x) employee mail boxes xi) voice mail xii) issues taskforce B. External communications i) community newsletter ii) website iii) advisory committee(s) iv) complaint process vi) email vii) community survey viii) local community planning organizations ix) focus groups
Recommended Action KCFD #18: Consider clarifying communication path via chain of command
10
The policy makers of KCFD #18 and NKFR have taken a huge step toward discovering efficiencies with a closer working relationship. The next logical step is to include community leaders (external stakeholders) to listen to concepts and provide guidance and feedback for the policy makers to consider.
30
North Kitsap Fire & Rescue Kitsap County Fire District #18, WA Feasibility Study Management Components Observations Kitsap County Fire District #18 North Kitsap Fire & Rescue Decisions made at the lowest appropriate level (if they are prepared and equipped to). Seek divergence of opinion, and then make a decision. Decisions made at the lowest appropriate level (if they are prepared and equipped to). If they arent, training provided. See above
Survey Component 6. Decision Making Process A. Preferred management methodology of the fire chief
Recommended Action
Seek input, empower as appropriate
B. Management process identified C. Decision making process established 7. Document Control A. Process for public records access established B. Hard copy files protected C. Computer files backed up 8. Security A. Building security B. Office security C. Computer security D. Vehicle security E. Capital inventory maintained i) asset security system used ii) inventory interval F. Monetary controls used i) cash access controls
Decisions at the lowest appropriate level See above
Yes Yes Yes Yes Yes Yes Yes Yes Yes Yes, annually Yes No petty cash
Yes Yes Yes Yes Yes Yes Yes Yes Yes Yes, annual for small and attractive assets Yes No petty cash; however, the department does maintain a small balance checking account for emergency payments
31
North Kitsap Fire & Rescue Kitsap County Fire District #18, WA Feasibility Study Management Components Observations Kitsap County Fire District #18 North Kitsap Fire & Rescue NKFR has issued many credit Fire chief and office manager with cards to various individuals. credit limits. Three generic cards Control on these transactions is are available to be signed out to through the use of approved POS personnel if needed. Assigned card (point of sale) and the review by holders must sign an agreement to Commissioner Pearson, the fire be responsible for unauthorized chief and the administrative charges. services manager. Department procedure #2003 Audited by Cindy and Kathy current date is 12/28/2010 Yes IBM Microsoft Windows Yes IBM Microsoft compatible Windows; if data base it is on Sequel with ERS managing incident reports
Survey Component
Recommended Action
ii) credit card controls
iii) purchasing controls 9. Reporting and Records A. Records kept by computer i) type of platform ii) operating system B. Periodic report to elected officials i) financial report ii) management report iii) operational report iv) distributed to others C. Annual report produced i) distributed to others ii) analysis of data provided D. Required records maintained i) incident reports ii) patient care reports iii) exposure records iv) SCBA testing v) hose vi) ladder vii) pump viii) breathing air
Yes, monthly Yes, chiefs report Yes, contained in chiefs report No Yes, most recent is 2009 Yes, on website Yes Yes Yes Yes, separated medical records in personnel file Yes Yes Yes Yes Yes
Yes, monthly Yes, verbal and written as needed Yes, contained in chiefs report No Yes, most recent is 2009 Yes, on website, in stations and in local public libraries Yes Yes Yes Yes, separated medical records in medical file Yes, internally performed Yes, internally performed Yes, contracted Yes, contracted Yes, contracted
32
North Kitsap Fire & Rescue Kitsap County Fire District #18, WA Feasibility Study Management Components Observations Kitsap County Fire District #18 North Kitsap Fire & Rescue Yes, (also provide contract Yes maintenance for other agencies, 37% of 86 vehicles are NKFRs) Yes Yes Calendar year Annual Administrative services manager oversees the budgets in conjunction with fire chief in the review process Budget process is established in department procedure #4004 issued 9/23/2009 Process starts in early June with Line Item Managers submitting requests. Requests collated by midJuly. Leadership Team reviews all requests and prioritizes draft approvals. In September, first Commissioner review with adjustments. October-Community Budget Review Committee reviews and provides strategic direction. Budget finalized and adopted by BOFC in November. Administrative services prepare worksheets for review. Staff and administrative service manager Only responsible line item holders Calendar year Annual Director of administrative services oversees the budget in conjunction with the fire chief in the review process No written budget procedure has been established. NKFR: Establish a written budget process
Survey Component ix) vehicles x) gas monitors 10. Budgetary Controls A. Designated fiscal year i) budget cycle B. Budget officer
Recommended Action
C. Budget development process
i) governance
NKFR budget committee consists of the fire chief assistant chief and two commissioners. The budget committee reviews the budget requests submitted from information collective and summarized by staff. Reports are submitted to the entire board for review and approval.
ii) administration iii) management iv) staff
Administrative services prepare worksheets for review. Staff, budget committee and administrative service director Only responsible line item holders
33
North Kitsap Fire & Rescue Kitsap County Fire District #18, WA Feasibility Study Management Components Observations Kitsap County Fire District #18 North Kitsap Fire & Rescue Public hearing first board meeting in Public hearing first board meeting in November. In 2010, community November. budget review committee was No community involvement other established to provide than at board meeting to recommendations for the budget discuss/approve budget process. Open hearing for revenue sources Public hearing is the first as soon as information is received commission meeting in November. from KC Assessor and documents Budget is adopted at the second are prepared (no later than second meeting in November. meeting in November) No later than last meeting in Last meeting in November November Last meeting in November Last meeting in November Administrative Services Manager Administrative Services Director Reporting is provided by hard copy Reporting is provided by hard copy to the fire commissioners monthly to the fire commissioners monthly for review at a high level for review at a high level The financial review/control is The financial review/control is monitored by the fire chief, monitored by the fire chief, administrative service manager and administrative service director and Fire Commissioner Green Fire Commissioner Pearson Cash basis Cash basis NKFR follows the RCW (Revised Department procedure #2003 Code of Washington) and District current date is 12/28/2010. SOP 601 Yes Yes Chief and office manager with credit NKFR has issued many credit cards limits. Three generic cards are to various individuals. Control on available to be signed out to these transactions is through the personal if needed. Assigned card use of approved POS (point of sale) holders must sign an agreement to and the review by Commissioner be responsible for unauthorized Pearson, the fire chief and the charges. administrative services manager.
Survey Component
Recommended Action
v) community
D. Budget adoption process
i) budget approval ii) funding approval E. Financial control officer i) financial report
ii) financial review F. Basis of accounting G. Purchasing i) purchasing policy
ii) credit cards
34
North Kitsap Fire & Rescue Kitsap County Fire District #18, WA Feasibility Study Management Components Observations Kitsap County Fire District #18 North Kitsap Fire & Rescue All items except overhead items Used for non-credit card purchases (electricity, water, natural gas etc.) must have a PO (purchase order) Yes, office supplies, vehicles Gasoline (on vehicles), Costco No petty cash Checking petty cash account Yes, supplies are purchased and maintain at headquarters. Stations must come to headquarters to pick up from general supply. State co-op for state contracts. Kitsap County vendor list Currently none open now. Advertise for bid over $10K. Three bids. Copier for headquarters and Fire Station No. 77 No n/a n/a n/a n/a Yes, for apparatus and facilities Fleet through 2022, facilities through 2024 Annually 0 Yes, supplies are purchased and maintain at HQ. Stations requisition supplies from HQ. State co-op for state contracts. Kitsap County vendor list Currently none open now Follow state guidelines. Four copier leases No n/a n/a n/a n/a Yes, for apparatus Fleet through 2024 Annually 0
Survey Component iii) purchase orders iv) open accounts v) petty cash accounts
Recommended Action
vi) central supplies/logistics
Both Agencies: Consider establishing a centralized warehouse, staffed by an inventory control specialist who orders, receives and delivers 11 supplies for both agencies
vii) joint agreements/ventures viii) JPAs ix) bidding x) leases 11. Planning A. Strategic/Master planning i) plan period ii) periodic review iii) goals iv) funding B. CIP Capital improvement plan i) plan period ii) periodic review iii) projects
11
Inventory management can be an expensive, time-consuming, and tedious responsibility; and both agencies are managing the function independently. The Washington State Auditors Office routinely checks for such controls in its annual or bi-annual audits. Establishing a central warehouse for small equipment, uniforms, and supplies makes inventory control a focused task, frees up expensive space being utilized for that purpose in fire stations, and lends itself to just-in-time delivery of supplies and equipment. A requisition process allows for easy tracking of usage and replenishment of inventory. These tracking systems facilitate easy identification of over-use situations, where remedial action may be taken. Expense of this program can be partially offset by the savings that may be realized in inventory usage and storage.
35
North Kitsap Fire & Rescue Kitsap County Fire District #18, WA Feasibility Study Management Components Observations Kitsap County Fire District #18 North Kitsap Fire & Rescue Community budget review committee recommends multiple Capital fund ($1 million), may strategies, external funding sought borrow if interest rate for improvements above $300,000. advantageous. Not funded in 2011. Budget only NKFR has decided to finance the when needed. Example budget repurchase of all vehicles. chassis of medic unit in 2011 budget. The Board of Commissioners of North Kitsap Fire & Rescue have not adopted by resolution a Standard of Cover document. This project is scheduled to come before the Board of Commissioners for adoption late second quarter of 2011. The District currently uses criteria to measure the response performance of all priority 1 and 2 alarms. $6,042,161 Budget is organized by function and account within functions Expenses are charged to accounts and individual function/operation
Survey Component
Recommended Action
iv) funding
12. Budget
A. Service level defined
Yes, Policy #1004
NKFR: Establish performance measures and service level objectives compliant with RCW 52.33
B. Operating budgetary funds i) organized by program or category ii) sub accounts
C. Reserve funds
$6,979,885 Budget is organized by function and account within functions Expenses are charged to accounts and individual function/operation Contingency fund (2% of expenditure budget) is for any overages in budget expenses for the years. If not used, it is carried over to next year. Interim financing is to fund first four months of the next years expenses (taxes th). received April 30
Capital projects funds are proceeds from sale of station. It is considered an emergency fund for either large capital projects or revenue shortfall.
36
North Kitsap Fire & Rescue Kitsap County Fire District #18, WA Feasibility Study Management Components Observations Kitsap County Fire District #18 North Kitsap Fire & Rescue Recommended Action KCFPD #18 had a 2011 beginning cash balance of $3,859,319. Of this amount $1,780,000 is projected for NKFR had a 2011 beginning cash interim financing for the budget balance of $3,377,607. leaving an undesignated cash balance of $2,079,318. None None Budget $7,461,728 Budget $5,789,563 2010 actual $7,768,823 2010 actual $5,986,004 Budget $750,000 Budget $300,000 2010 actual $762,324 2010 actual $395,518 None None Budget $6,983,674 Budget $5,818,398 2010 actual $6,496,646 2010 actual $5,683,241 2011 budget includes costs for a fire marshal and deputy chief. The 2011 budget dollars for manpower fire marshal function was are $3,803,368 and includes wages transferred to the City of Poulsbo in for Career personnel: 3,392,475 KCFD #18: Consider vacancies Jan 2011 and the position will be Commissioners: 30,000 as opportunities to buffer removed from all future budget Resident reimbursement: 98,542 against lay-offs or strategic projections. The deputy chief left Volunteer reimbursement: 8,793 investment opportunities in the department in April 2010. Holiday pay: 81,791 12 Position is not slated to be filled due partnership with NKFR All Overtime pay: 147,098 to budget/revenue constraints. Extra help: 18,208 Future budgets will exclude this Out of class: 26,461 position. 2011 budget dollars for manpower are $3,927,816 The 2011 budget doesnt include $70,318 included in the 2011 any dollar amount for capital budget
Survey Component
D. Revenue funds
E. Enterprise funds F. Adopted budget FD income accounts, 2010 actual amounts i) EMS transport revenue iii) Plan review & permits G. Revised budget FD expense accounts, 2010 General Fund
i) personnel
ii) capital outlay
12
Vacancies in KCFD #18 may provide opportunity to forestall lay-offs, should economic conditions require that action. The vacancies may also provide opportunity to reclassify/reevaluate positions in the context of a combined agency or an agency that has a substantial strategic partnership. While subsidization can become a concern, in-kind services can be provided to maintain balance where funds are difficult to come by.
37
North Kitsap Fire & Rescue Kitsap County Fire District #18, WA Feasibility Study Management Components Observations Kitsap County Fire District #18 North Kitsap Fire & Rescue NKFR regulates beginning fund balance of the general fund to fund four-month operational expense. Fund balance in excess of the fiscal year requirements are designated as Operational Reserve. Funds designated as Operational Reserve are outside of the annual budget and require board approval to expend. None $80,349 included in 2011 budget (Charges appear artificially high due to cost of contact services that are offset with revenue) $55,170 included in 2011 budget $62,541 included in 2011 budget
Survey Component H. District overhead
Recommended Action
i) reserve fund contributions
KCFD #18 maintains a contingency reserve for funding the first four months of the following years expenses.
ii) fleet rental charges iii) fleet maintenance charges iv) motor fuel charges v) property/casualty insurance
None $10,526 included in 2011 budget $60,000 included in 2011 budget $47,000 included in 2011 budget
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North Kitsap Fire & Rescue Kitsap County Fire District #18, WA Feasibility Study Management Components Observations Kitsap County Fire District #18 North Kitsap Fire & Rescue Recommended Action Traditional plan replaced in 2005 with a benefit allocation and cafeteria plan. This move gives employees more control over their benefits packages and the District gets more budget predictability. Each employee receives a benefit allotment of 15.5% of top-step firefighter annual wage plus an KCFD #18: Evaluate the NKFR additional 1% for every year of model for cost efficiencies. longevity up to 20 years or a Also, consider self-insurance for Total benefit and tax cost to KCFD maximum of 35.5%. This allotment all District needs, including #18 is 37.0% is used to pay for employee health benefits medical/dental/vision premiums, 13 through a third party program deferred compensation (Section 457) contributions, longevity, flexible spending account (medical expense reimbursement), dependent care and/or mass transit reimbursement. Employees, pay health insurance premiums for themselves and their dependents out of this allotment. KCFD #18 is included in the state NKFR is included in the state workers compensation pool. workers compensation pool. Charged a flat rate Charged a flat rate 2010: 0.7565 1.2432 2011: 0.8355 KCFD #18 is included in the state NKFR is included in the state pension pool. pension pool.
Survey Component
vi) medical and dental insurance
vii) workers compensation viii) workers compensation mod rate ix) employee pension plan
13
This innovative approach to employee benefits provides predictability for the district and a customizable plan design for individual employees. The employee benefits from a higher salary from a pension standpoint and can control their costs based on the level of exposure the employee is willing to accept. Many employees are covered by a spouses plan, and can purchase supplemental insurance to provide for a richer benefit package, if desired.
39
North Kitsap Fire & Rescue Kitsap County Fire District #18, WA Feasibility Study Management Components Observations Kitsap County Fire District #18 North Kitsap Fire & Rescue $2,040,000 ($1,345,065 balance paid off June, 2017) 15 year General Obligation bond issued in 2002 for $2,040,000. The bond was for the construction of station 77. As of 12/31/2010, $1,120,000 is the remaining principle balance. None $4,007,000 ($2,757,132.50 balance paid off December, 2018) Four outstanding general obligation bonds are included in the budget. (1 voted UTGO; 3 non-voted LTGO) Total unpaid principle and interest is $4,685,437. None The District does not fund accrued vacation and sick leave expenses. Currently the District must pay for sick leave (at termination of the employee) 25% of accrued sick leave up to 1,456 hours (600 maximum payout) at the employees current rate of pay. Vacation liability is an all unused vacation time. Maximum payout is (364 times current rate of pay or 728 times 0.5 rate of pay). NKFR does have one open law suit for a hostile work environment. The case is being handled by lawyers for the insurance company. No potential damage amount has been established. NKFRs pension plans are with the State. Any unfunded liability in the State fund is passed on to the District by increasing the annual premium.
Survey Component 13. Debt
Recommended Action
A. Bonded debt
B. Capital lease
C. Unfunded liability
KCFD #18 does not fund accrued vacation and sick leave expenses. Currently the District must pay for sick leave (at termination of the employee) 50% of accrued sick leave up to 1,200 hours (600 hours maximum payout) at the employees current rate of pay. Vacation liability is a maximum of 260 hours at the employees current rate of pay.
i) pension fund
KCFD #18s pension plans are with the State. Any unfunded liability in the State fund is passed on to the District by increasing the annual premium.
40
North Kitsap Fire & Rescue Kitsap County Fire District #18, WA Feasibility Study Management Components Observations Kitsap County Fire District #18 North Kitsap Fire & Rescue KCFD #18s workers compensation NKFRs workers compensation insurance is with the State. Any insurance is with the State. Any unfunded liability in the State fund is unfunded liability in the State fund is passed on to the District by passed on to the District by increasing the annual premium. increasing the annual premium.
Survey Component
Recommended Action
ii) workers compensation claims 14. Revenue A. Tax levy
i) limitations
I-747 limitations Fire $1.50 per $1,000 EMS $0.50 per $1,000 1% increases on property tax revenue from previous year unless the above cost per $1,000 has been reached. None
B. Service contracts C. Grants i) recent awards ii) county grants
I-747 limitations Fire $1.50 per $1,000 EMS $0.50 per $1,000 1% increases on property tax revenue from previous year unless the above cost per $1,000 has been reached. SKlallam Tribe, school district, East Jefferson Fire and Rescue, Jefferson County FPD Nos. 2 and 5, Washington State Ferry System None None SAFER grant for volunteer recruiting and retention (SAFER grant partnered with KCFD #18). AFG grant pending for PPE decontamination equipment.
ii) outstanding applications
None None SAFER grant for volunteer recruiting and retention (SAFER grant partnered with NKFR). Fire prevention AFG grant AED/CPR dummies for training.
41
North Kitsap Fire & Rescue Kitsap County Fire District #18, WA Feasibility Study Management Components Observations Kitsap County Fire District #18 North Kitsap Fire & Rescue Not for the District. The employeefinanced Partnership Fund provides transportation vouchers, emergency A fundraiser is held to provide assistance and safety devices. transportation vouchers to residents Funds are held outside of District that cant afford to pay for transit accounts and not included in the cost. The funds are held outside of District financial control District accounts and not included in structure/audit process. This fund the District financial control also sponsors annual fundraisers structure/audit process. for outside charities such as the Red Cross, Humane Society, local cooperative preschools, etc. No No Yes, Poulsbo Firefighters None, the volunteer association Association was dissolved several years ago ALS 1 base $600 ALS 2 base $650 BLS base $450 Mileage at $11.00/per mile EMS rate shown above were effective January 1, 2007. No plans are in process to increase the rates. Ambulance billing and collection has been outsourced to Systems Design. None None None None $1.00 per student enrolled in public schools in the District service area. None Outsourced to System Design
Survey Component
Recommended Action
D. Fundraising
i) foundation ii) volunteer association E. Fees for service
i) ambulance transport fee structure
ALS $550 BLS $ 350 Mileage at $10.00/per mile EMS rate shown above were effective February 2005. Ambulance billing and collection has been outsourced to Advanced Billing Services. None None None None $1.00 per student enrolled in public schools in District service area. None Outsourced to Advanced Billing Services
Both Agencies: Review EMS billing rate annually and make adjustments as necessary. Seek to equalize billing rate schedules
ii) billing for fire response iii) inspection fee iv) hazardous materials v) cost recovery -- external vi) impact fee(s) vii) school/student fee vii) event stand-by charges F. Ambulance service collection(s)
42
North Kitsap Fire & Rescue Kitsap County Fire District #18, WA Feasibility Study Management Components Observations Kitsap County Fire District #18 North Kitsap Fire & Rescue Four categories of cost types need Four categories of cost types need to be reviewed for this category. to be reviewed for this category. The data below is a summary of The data below is a summary of data from March 2010 through data from February 2010 through August 2010. This period is July 2010. This period is selected selected to allow for a complete to allow for a complete invoicing invoicing process, as well as, process, as well as, dealing with dealing with insurance companies insurance companies payment payment process. process. Collected = 63.421% Collected = 54.007% Disallowed = 25.204% Disallowed = 18.013% Un-collected = 8.225% Un-collected = 4.494% Pending payment = 3.151% Pending payment = 23.487% System Design is paid $22 per Advanced Billing Services is paid transport call. If a re-bill is required $20.50 per transport call. If a re-bill for non-payment, no additional fee is required for non-payment, no is paid. additional fee is paid.
Survey Component
Recommended Action
i) percentage collected (year 2010)
ii) collection fee(s)
Comments: KCFD #18 Unions have agreed to have a zero COLA increase in 2011. o The 2012 union negotiations are in-process. o NKFR 2012 negotiations havent started. KCFD #18 does not maintain a property listing for financial purposes. However they have provided a property list for insurance purposes. Acquisition value of property is: Building Value Building Contents Vehicles Total $ 7,806,000 $ 820,600 $ 3,208,900 $11,835,500
NKFR does not maintain a property listing for financial purposes. However, they have provided a property list for insurance purposes. Acquisition value of property is: Building Value $ 6,435,407 Building Contents $ 616,938 Vehicles $ 2,618,953 Total $ 9,671,298
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Staffing and Personnel Management Fire and EMS (emergency medical service) organizations must provide adequate staffing in three key areas: emergency services, administration, and support. ESCI surveyed each of the fire departments to assure that a reasonable balance between the three areas is maintained, given the realities of available local resources.
Several standards address staffing issues, specifically, the OSHA Respiratory Protection Standard 29 CFR 1910.134; NFPA 1710 Standard for the Organization and Deployment of Fire Suppression Operations, Emergency Medical Operations, to the Public by Career Fire Departments; and NFPA 1720 Standard for the Organization and Deployment of Fire Suppression Operations, Emergency Medical Operations, and Special Operations to the Public by Volunteer Fire Departments are frequently cited as authoritative documents. In addition, the Center for Public Safety Excellence (CPSE) publishes benchmarks for the number of personnel required on the emergency scene for various levels of risk.14
Survey Table 3: Staffing and Personnel Management

Survey Component 1. Policies, Rules, Regulations, and Operational Guidelines Lise Alkire, Administrative Services Manager, including human resource responsibilities. Collective bargaining agreement negotiated and administered by the fire chief and fire commissioners. Cindy Moran, Administrative Assistant handles administrative matters. Fire chief and assistant chief manage disciplinary actions. Collective bargaining agreement negotiated and administered by the fire chief and fire commissioners with assistant chief input. Staffing and Personnel Management Observations Kitsap County Fire District #18 North Kitsap Fire & Rescue Recommended Action
A. Human resource manager
14
CPSE: formerly the Commission on Fire Accreditation International (CFAI).
44
North Kitsap Fire & Rescue Kitsap County Fire District #18, WA Feasibility Study Staffing and Personnel Management Observations Kitsap County Fire District #18 District personnel policy manual currently under revision. District policy manual (includes personnel policies) is combination of Poulsbo (old city) and District manuals partially blended, in need of review Distributed upon hire. Via electronic access North Kitsap Fire & Rescue Recommended Action KCFD #18: During revision, consider aligning District policies and personnel policies with NKFR where appropriate
Survey Component
B. Personnel policy manual maintained
Personnel policies and procedures are included in the SOP/SOG Library in ERS, available on the network
i) manual provided at initial hiring
Baseline policies are provided during initial training. Employees are directed to view the balance of policies on-line. Required sign-off by employees Probationary manual and checklists detail policies and procedures. Reviewed every other year and as needed an enhanced procedure is under development Included in policy manual SOGs and SOPs Are in the policy manual Yes for all positions. All in the District policy manual No KCFD #18: Incorporate personnel policy manual familiarization into new hire training
ii) training provided
Directed to read and sign-off. Would like to establish new hire orientation and training practice Yes, currently ongoing Incorporated into policy manual Included in policy manual Yes for all positions Policy manual only Longevity pay system as outlined in CBAs and nonrepresented employee benefits policy
iii) periodic review & update C. Rules and regulations provided D. Operational guidelines provided E. Position Descriptions current/accurate E. Desk manuals F. Retention program established 2. Compensation, Point System, and Benefits A. Uniformed employee compensation, FT annual i) fire chief ii) assistant fire chief iii) deputy fire chief
$124,079 n/a n/a
$110,488 $106,782 n/a
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North Kitsap Fire & Rescue Kitsap County Fire District #18, WA Feasibility Study Staffing and Personnel Management Observations Kitsap County Fire District #18 $100,754 n/a n/a 68,980 n/a n/a $73,691 $49,424 $56,837 $36,896 $42,430 n/a n/a $77,441 n/a n/a $35,318 $47,029 Shared position with NKFR n/a $94,917 $97,774 $94,013 $90,253 $87,996 $82,732 n/a North Kitsap Fire & Rescue n/a $87,616 n/a $66,496 $89,806 $70,201 n/a n/a n/a $50,891 $50,891 n/a $77,981 $67,810 n/a 1 FTE position, shared position with KCFD #18 $54,154 $92,727 $94,917 n/a n/a n/a $83,965 $87,616 n/a Recommended Action
Survey Component iv) battalion chief v) captain, training vi) fire marshal vii) PIO/educator/inspector viii) captain EMS/MSO ix) director of administrative services x) administrative services manager xi) finance assistant xii) office assistant xiii) secretary xiv) staff assistant xv) fleet manager xvi) lead mechanic EVT xvii) mechanic EVT xviii) mechanic xix) facility maintenance xx) facilities technician xxi) battalion chief, operations xxii) captain paramedic, operations xxiii) captain, operations xxiv) lieutenant paramedic, operations xxv) lieutenant, operations xxvi) engineer, operations
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North Kitsap Fire & Rescue Kitsap County Fire District #18, WA Feasibility Study Staffing and Personnel Management Observations Kitsap County Fire District #18 FF Paramedic Probation 0-12 months $60,168 FF III Paramedic 13-24 months $67,690 FF II Paramedic 25-36 months $75,211 FF I Paramedic 37+ months $82,732 FF Probation 0-12 months $52,647 FF III 13-24 months $60,168 FF II 25-36 months $67,690 FF I 37+ months $75,211 No, minimum qualification 10% above top step firefighter No, uniforms provided After 5 years, 1% per 5 year, increment up to 5% max Acting in Capacity, 7% Uniform opted out (pays Medicare), non-uniform pay social security District provided, State L&I (Labor & Industry) North Kitsap Fire & Rescue Step 1 60% - 0-12 months 48,188.84 Step 2 70% - 13-24 months 56,220.31 Step 3 80% - 25-36 months 64,251.78 Step 4 90% - 37-48 months 72,283.26 Top Step $80,315 Step 1 60% - 0-12 months 43,803.03 Step 2 70% - 13-24 months 51,109.37 Step 3 80% - 25-36 months 58,410.71 Step 4 90% - 37-48 months 65,712.05 Top Step $73,013 EMT, in base salary Paramedic, 10% above top step firefighter (all premium pays based on top step firefighter pay scale) Fire chief and assistant fire chief only (never utilized) Part of benefit allocation First step of compensation for position assigned Recommended Action
Survey Component
xxvii) firefighter/paramedic, operations
xxviii) firefighter/EMT, operations
B. Additional compensation i) EMT premium pay ii) paramedic pay iii) clothing allowance iv) longevity pay v) other specialty pay C. Career employee benefits i) social security ii) workers compensation
Opted out District provided, State L&I (Labor & Industry)
47
North Kitsap Fire & Rescue Kitsap County Fire District #18, WA Feasibility Study Staffing and Personnel Management Observations Kitsap County Fire District #18 LEOFF 2 (Law Enforcement Officers and Firefighters) (PERS II non uniform) Yes, 2% match District pays full premium of PPO A (preferred provider organization). Three coverage plans offered to employee. Fully paid HMO (health maintenance organization), employee pays $10/dependent on two PPO plans Fully paid dental plan Available via state program, employee paid Yes, District life and AD&D (accidental death and dismemberment) Included in medical plans Life insurance and DRS (Department of Retirement System) Term life available at employee expense Point system, $3/point North Kitsap Fire & Rescue LEOFF 2 (Law Enforcement Officers and Firefighters), PERS 1, PERS 2, and PERS 3 Yes, employee contributions are funded through the individual's benefit allocation. Recommended Action
Survey Component
iii) pension
iv) deferred compensation
v) medical insurance
Yes, cafeteria plan (lump sum, employee selects coverage) (must prove other coverage). Employee pays 100% of all premiums, FSA contributions with benefit allocation. Yes, cafeteria plan called benefit allocation plan provides elected benefits. Employee pays 100% all premiums with benefit allocation Cafeteria Employee pays 100% all premiums with benefit allocation Yes, fire chief, assistant chief, director of administrative services and maintenance personnel Yes, cafeteria plan employee pays 100% all premiums with benefit allocation Life insurance and DRS (Department of Retirement System) Term life available at employee expense Point system, $7.50 per event
vi) dental insurance vii) short and long term disability insurance viii) life insurance
ix) vision insurance
x) survivor income benefit xi) additional life insurance E. Volunteer compensation
48
North Kitsap Fire & Rescue Kitsap County Fire District #18, WA Feasibility Study Staffing and Personnel Management Observations Kitsap County Fire District #18 North Kitsap Fire & Rescue State BVFF (Board of Volunteer Fire Fighters and Reserve Officers) full pension fee paid after two years service. Service awards at retirement, life insurance, AD& D and disability insurance coverage $60 for a 24 hour shift (called interns, take shift, no response from home except for tender drivers) (broken down at $20/ 8 hours), also credit per call from stipend pool. Volunteers are classified as interns. Provide a pool of candidates for career positions. Training at Olympic College and others Yes, all employees in administrative assistant office, secured Yes Yes Yes, annual and as needed Yes, medical file Yes, in medical file Recommended Action
Survey Component
i) Length of Service Award Program (LOSAP)
District paid Board of Volunteer Fire Fighters (state program)
NKFR: Consider participation in a LOSAP
i) other benefits/incentives
n/a
3. Reports and Records A. Personnel records maintained i) application retained ii) historical records retained iii) performance evaluations retained iv) injury and accident records retained v) health and exposure records maintained 4. Disciplinary Process Yes Yes Yes Yes, annual for career, under development for volunteers Yes, retained by health and safety officer Yes, retained by health and safety officer Yes, grievance in CBA and table of offenses in District personnel Policy and procedure manual. Policy manual has table, but also conflicting procedure (4.02) Yes, included in the personnel and policy manual which is provided to employees.
A. Disciplinary policy established
Yes, 200 section of SOP-SOG Library
B. Disciplinary process communicated
Yes, SOP-SOG library and in CBA
49
North Kitsap Fire & Rescue Kitsap County Fire District #18, WA Feasibility Study Staffing and Personnel Management Observations Kitsap County Fire District #18 Grievance procedure defined in CBA None No Yes, most incidents of significance Contracted EAP (Employee Assistance Program) EAP North Kitsap Fire & Rescue Yes, in SOP-SOG and CBA and administrative employment contracts None One pending arbitration, one pending arbitration Yes, major incidents or as needed Contracted EAP (Employee Assistance Program) EAP Recommended Action
Survey Component C. Appeal process provided i) recent litigation ii) pending litigation 5. Counseling Services A. Critical incident stress debriefing B. Employee assistance program C. Intervention program 6. The Application and Recruitment Process A. Recruitment program B. Application process i) qualification check ii) reference check iii) background check iv) physical standards established v) knowledge testing vi) interview
Limited recruitment efforts due to lack of recent hiring. Various approaches, no structured process Yes Yes Yes, career and volunteer CPAT (Candidate Physical Ability Test) for career Yes Yes Yes, for career personnel, NFPA compliant. Lesser standard for volunteers
Through college programs and advertisement as needed in local paper. Little need with good word of mouth. Yes Yes Yes Yes, CPAT (Candidate Physical Ability Test) administered through the Kitsap County Training Officers Association Yes Yes, all levels including battalion chief and captains Yes, Board of Volunteers only, not NFPA compliant. Career is LEOFF 2 compliant Both Agencies: Seek to provide medical examinations for all personnel that are compliant with NFPA 15 Standard 1582
vii) medical exam required
15
NFPA 1582: Standard on Comprehensive Occupational Medical Program for Fire Departments, (National Fire Protection Association 2007)
50
North Kitsap Fire & Rescue Kitsap County Fire District #18, WA Feasibility Study Staffing and Personnel Management Observations Kitsap County Fire District #18 Yes North Kitsap Fire & Rescue No Recommended Action
Survey Component viii) psychological exam required 7. Testing, Measuring and Promotion Process A. Periodic competence testing
No
Yes, competency based skills assessments on a quarterly basis No annual physical testing because included in ongoing competency based system Annual Assessment center conducted inhouse. Once promoted, required to complete task book (firefighter, company office and battalion chief task books) LEOFF 2 standards only
B. Periodic physical competence testing C. Periodic performance review
No Annual on career only As vacancies occur. Written, assessment center and interview process.
KCFD #18: Establish a program of periodic competency testing of firefighting skills KCFD #18: Establish a program of annual physical competency testing
D. Promotional testing
8. Health and Safety A. Medical standards established Medical examination required on new hire, post injury or illness Yes Training and safety officer, 1 non-uniform BU (bargaining unit) representative, 1 uniform BU representative, and mechanic Quarterly Yes, minutes kept and posted
i) periodic medical exam
No. Entry level only (health and wellness program, voluntary only), post injury or illness Yes Safety officer, one representative shift, command staff, and firefighters (also in CBA) Monthly Yes, minutes kept and posted
Both Agencies: Seek to provide annual medical examinations for all personnel that are compliant with NFPA 16 Standard 1582
B. Safety committee established i) membership
ii) meetings iii) meeting minutes
Both Agencies: Conduct safety committee meetings on a monthly basis
16
Ibid.
51
North Kitsap Fire & Rescue Kitsap County Fire District #18, WA Feasibility Study Staffing and Personnel Management Observations Kitsap County Fire District #18 9. Administration and Other Support Staff A. Fire chief B. Assistant fire chief C. Deputy fire chief D. Battalion chief E. Captain, training F. Fire marshal G. PIO/Educator/Inspector H. Captain EMS/MSO/Medic I. Director of administrative services J. Administrative services manager K. Finance assistant K. Office assistant L. Secretary M. Staff assistant N. Fleet manager O. Lead mechanic EVT P. Mechanic EVT Q. Mechanic North Kitsap Fire & Rescue Recommended Action
Survey Component
1 0 0 (a reduction from 2) 1 0 0 (a reduction from 1) 1 0 0 1 1 2 0 0 1 0 0 0 (a reduction from 1)
1 1 0 0 1 0 (county responsibility) 1 1 1 0 0 0 1 1 1 0 2 0 1 (1.0 FTE facilities maintenance position. NKFR is the employer of the position shared equally with KCFD #18 and BFD) 12.00 26.67% (excluding fleet services 21.43%) 3 0
R. Facility maintenance
0.33
S. Total administrative & support staff T. Percent administrative & support to total personnel 10. Emergency Service Staff A. Battalion chief B. Captain paramedic
8.33 18.79% 3 1
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North Kitsap Fire & Rescue Kitsap County Fire District #18, WA Feasibility Study Staffing and Personnel Management Observations Kitsap County Fire District #18 2 1 5 0 8 16 36.00 44.33 33.33% North Kitsap Fire & Rescue 0 0 8 (authorized for 9) 0 6 16 (authorized for 15) 33.00 45.00 33.33% Recommended Action
Survey Component C. Captain D. Lieutenant paramedic E. Lieutenant F. Engineer G. Firefighter/paramedic H. Firefighter/EMT I. Total operational staff J. Fire department total K. Percent of operational officers to operational personnel 11. Use of Career and Volunteer Personnel A. Career schedule i) length of normal duty period ii) FLSA period iii) duty hours per week iv) normal shift begins v) callback requirements vi) residency requirements vii) standby duty requirements B. Operational career services i) fire suppression ii) EMS/rescue, first response iii) EMS, advanced life support iv) specialized rescue v) fire prevention inspections vi) emergency management vii) public education
24 on 48 hours off 21 day 48 hours 7:30 AM Yes, non-emergency. If cannot make minimum, emergency call back mandatory No No Yes Yes Yes, EMS transport Participation in regional team, three members on team Limited with removal of Fire Prevention Services Contract No Yes
48 hours on and 96 hours off 24 days, no Kelly days 56 hours 8:00 AM Yes No No Yes Yes Yes, EMS transport Two technical rescue personnel A shift, C shift, one B shift on the regional team Limited low risk No Yes
53
North Kitsap Fire & Rescue Kitsap County Fire District #18, WA Feasibility Study Staffing and Personnel Management Observations Kitsap County Fire District #18 Yes, at the awareness and operations level 1 1 3 10 10 15 6 0 North Kitsap Fire & Rescue Yes, at the awareness and operations level 0 0 0 3 (tender operators) 14 to 16 interns 1 5 + 1 layperson 2 (car seat technician) Recommended Action
Survey Component viii) hazardous materials response (level) D. Volunteer services i) battalion chief ii) captain iii) lieutenant iv) apparatus operator v) firefighter vi) EMS vii) chaplain viii) civilian administrative volunteer 12. Responsibilities and Activity Levels of Personnel A. Assignment of routine duties: i) by position ii) by areas of personal interest B. Special duties assigned by: i) bid ii) duty assignment iii) areas of personal interest C. Committees and work groups i) EMS quality management ii) chaplain iii) training iv) safety v) building development vi) standards
Yes Yes (combination) No Yes, dependent on interest and skills SAA Yes, Quality Assurance system is in place in cooperation with Kitsap County EMS Yes, three in group rotate No Yes No Active LM (labor management) committee. Committee makes advisory recommendations regarding policy and procedures
Yes Yes, both depend on circumstance n/a Yes, dependent on interest and skills SAA Yes, QA (quality assurance) group in place, working with Kitsap County EMS Five in group rotate duty No Yes No No, but LM (labor management) committee reviews and approves changes to policy and procedures
54
Survey Table 4: Service Delivery and Performance

The delivery of fire suppression, rescue, and emergency medical services is no more effective than the sum of its parts. It requires a timely response from well-located facilities, in appropriate apparatus, with sufficient personnel to mitigate the emergency. The Revised Code of Washington (RCW) requires that cities, towns, or districts which provide fire protection establish and report service delivery objectives.17 The service delivery and performance analysis provides a methodology to develop a Standard of Cover (SOC) document that meets the RCW mandate and provides a tool for measuring fire department service delivery performance.
Survey Component 1. Demand A. Risk analysis i) target hazards identified ii) geographical call distribution by type/severity iii) fire flows identified iv) call distribution by time of day/day of week 2. Distribution A. Facilities i) effective reach identified ii) geographical barriers/gaps identified iii) inefficient overlap of response areas B. Apparatus i) vehicles appropriate to risk ii) pumping capacity effective for initial attack iii) ladders appropriate for rescue/elevated operations
17
Service Delivery and Performance Observations Kitsap County Fire District #18 North Kitsap Fire & Rescue Recommended Action
Yes Tracked and reported, 1756 report Yes Documented in 1756 report
Yes Documented in annual report Yes Documented in annual report
Station response areas identified in CAD (computer aided dispatch) Not provided Identify in study Yes Yes Ladder truck by mutual aid
Station response areas identified in CAD (computer aided dispatch) Not provided Identify in study Yes Yes Ladder truck by mutual aid
Chapter 35.103 and 52.33 RCW: Fire Departments-Performance Measures.
55
North Kitsap Fire & Rescue Kitsap County Fire District #18, WA Feasibility Study Service Delivery and Performance Observations Kitsap County Fire District #18 North Kitsap Fire & Rescue Recommended Action Yes Not provided Yes Not provided Both Agencies: Establish tracking of volunteer turnout time
Survey Component C. Staffing i) adequate for initial attack of predominant risk ii) volunteer staffing turnout time 3. Concentration A. Effective response force i) defined by call type
SOC (standards of cover) adopted by commissioners KCFD #18s adopted response time goal for the arrival of first full alarm assignment is greater than 10 minutes. KCFD #18 does meet the response time goal adopted in the SOC document.
Proposed SOC (standards of cover) to be evaluated and adopted in 2011 NKFRs response time goal for the arrival of first full alarm assignment is greater than 10 minutes. NKFR meets their response time goal for responses within the Urban Growth Area, but not in rural areas.
NKFR: Complete and adopt standards of cover or comply with RCW 52.33 at a minimum
ii) achieved by 10 minutes
4. Reliability A. Workload Analysis i) unit hour utilization ii) failure rate by unit identified iii) concurrent calls/demand shifting quantified iv) percent of total impact on timely assembly of effective response force 5. Performance A. Cascade of events i) alarm time ii) notification time iii) call processing time iv) turnout time v) en route time vi) travel time vii) arrival time 6. Mutual/Auto Aid
Reported in annual report To be determined To be determined To be determined
Reported in annual report To be determined To be determined To be determined
Tracked at CENCOM Tracked at CENCOM Tracked at CENCOM Reported in the 1756 report Reported in the 1756 report Reported in the 1756 report Reported in the 1756 report
Tracked at CENCOM Tracked at CENCOM Tracked at CENCOM Reported in the 1756 report Reported in the 1756 report Reported in the 1756 report Reported in the 1756 report
56
North Kitsap Fire & Rescue Kitsap County Fire District #18, WA Feasibility Study Service Delivery and Performance Observations Kitsap County Fire District #18 North Kitsap Fire & Rescue Recommended Action 358 Given/353 Received 242 Given/211 Received
Survey Component A. Given/received balance
57
Survey Table 5: Support Programs Emergency Services Training

Firefighters operate in a complex, dangerous, and dynamic environment, as demonstrated by over 100 fatalities and 3,000 serious injuries annually. Firefighter training is the single most important factor that prepares them to meet the challenges of the situations and environments in which they work. The delivery of safe and effective fire and emergency medical services is, therefore, clearly dependent on a well-trained response force.
The International Fire Service Training Association (IFSTA) states: regardless of the particular system used, an effective training program will include: (1) the continuous training of all levels of personnel in the organization; (2) a master outline or plan; (3) a system for evaluating the scope, depth, and effectiveness of the program: and (4) revising the program, as required, to include changing state and federal mandates, advances in equipment, products, and operational techniques. Without a comprehensive training program, emergency outcomes are compromised, response personnel are at risk, and the city may be exposed to liability for the actions of its employees. Training and education of personnel are critical functions for both Kitsap County Fire District #18 and North Kitsap Fire Rescue. Anthony Granito, author of Fire Service Instructors Guide, makes the following statement: A good training program is undoubtedly the single most important factor producing and maintaining a high proficiency in any fire department. It not only produces high efficiency initially, but also affects future efficiency when we consider that the rawest recruit now being trained may be chief of the department or at least a senior officer in 20 or 30 years. The function of a training program is not merely imparting personal knowledge and technical skills to an individual, it is developing the self-confidence to perform correctly under stressful if not hostile conditions. A training program must be systematic and must provide positive feedback to the trainee, firefighter, or officer. The goals of training should always focus on performance, never merely on acquiring a certain number of training hours. Todays industry standards outline certain areas that are considered integral to effective training programs. The program should include the following: General training competencies
58
Training administration and scheduling Training facilities and resources Training procedures, manuals, and protocols Record keeping (records management system) Organizational priority to training Training program clerical support services
Emergency Services Training Observations Kitsap County Fire District #18 1. General Training Competency A. Incident command system certification levels defined? B. Accountability procedures C. Policy and procedures D. Safety procedures E. Recruit academy F. Special rescue (high angle, confined space, etc.) G. Hazardous materials H. Wildland firefighting I. Vehicle extrication J. Defensive driving K. Use and care of small tools L. Radio communications & dispatch protocol? Yes, ITAC (Incident Command, Tactical Accountability) county wide system Yes, passport system Yes Yes Yes Yes, part of county wide team, three members Awareness for volunteers, operations level for career NWCG (National Wildland Coordinating Group) FF I Yes Yes, EVAP (Emergency Vehicle Accident Prevention) and driving simulator Yes Yes Yes, ITAC (Incident Command, Tactical Accountability) county wide system Yes, passport system Yes Yes Yes Yes, part of county wide team, five members Awareness for volunteers, operations level for career NWCG (National Wildland Coordinating Group) FF II Yes Yes, EVAP (Emergency Vehicle Accident Prevention) Yes Yes Both Agencies: Develop a multiyear plan for training North Kitsap Fire & Rescue Recommended Action
Survey Component
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North Kitsap Fire & Rescue Kitsap County Fire District #18, WA Feasibility Study Emergency Services Training Observations Kitsap County Fire District #18 Yes, OTEP (Ongoing Training and Evaluation Program) ongoing county protocols, tied to King County system B/C Gillard 15 years experience/degree North Kitsap Fire & Rescue Yes, OTEP (Ongoing Training and Evaluation Program) ongoing county protocols, tied to King County system A/C Kier 34 years experience/accredited FO I & II, certificate FCA, live fire certified Yes Yes Yes Recommended Action
Survey Component
M. EMS skills and protocol? 2. Training Administration A. Director of training program B. Education or background
C. Goals and objectives identified Yes D. Governing body support and Yes concurrence E. Personnel knowledge and Yes understanding Kudos: Management of both agencies make firefighter training and safety a high priority. 3. Training Facilities and Resources A. Training facilities (tower, props, pits) Yes i) live fire prop ii) fire and driving grounds B. Classroom facilities C. VCR, projectors, computer simulations D. Books, magazines, instructional materials 4. Training Procedures Manual A. Manual developed and used B. IFSTA, Jones and Bartlett, Delmar manuals used 5. Methodology Used for Training A. Manipulative B. Task performances/frequency Yes, use Navy facilities Yes Yes Yes Yes Yes Yes Yes Yes
Yes NKFR: If the Navy facilities are comparable to North Bend, consider using Naval facilities for its close proximity
Yes, Washington State Fire Training Center, North Bend, Washington Yes Yes Yes Yes Yes Yes Yes Yes
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North Kitsap Fire & Rescue Kitsap County Fire District #18, WA Feasibility Study Emergency Services Training Observations Kitsap County Fire District #18 C. Annual training hours D. Use of lesson plans E. Night drills F. Multi-agency drills G. Inter-station drills H. Physical standards or requirements I. Annual performance evaluation conducted 6. Operations and Performance A. Disaster drills conducted B. Attention to safety C. Post incident analysis D. Priority by management toward training 7. Recordkeeping A. Individual training files maintained B. Records and files computerized C. Daily training records Yes, overall hours not captured accurately Yes Yes, with volunteers. Inconsistent, will be on quarterly basis Yes Yes Entry level only 1582 standard. Mandatory PT (physical therapy) and on return to work Yes North Kitsap Fire & Rescue Average of 125 fire, 40 EMS, 8 HazMat, 8 wildland, 300 hours available Yes Occasionally with volunteers Yes, quarterly Yes, routinely Entry level only and on return to work Yes, annually, probationary-quarterly or as needed Yes Yes Yes Yes Yes Yes, critical training: respiratory and driving training is also hard copies with ink from the trainer and trainee Yes KCFD #18: Develop a comprehensive training records management system (RMS) by company to pinpoint companies needing improvement NKFR: Consider 360-degree feedback for annual performance evaluation for all personnel Both Agencies: Consider regularly scheduled night drills for consistency Recommended Action KCFD #18: Establish a procedure to accurately record training hours. Consider using NKFR tracking system for training records
Survey Component
Yes Yes Yes Yes Yes Yes Yes
D. Company training records
No
Yes
E. Training equipment inventoried F. Lesson plans used
Yes Yes
Yes Yes
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North Kitsap Fire & Rescue Kitsap County Fire District #18, WA Feasibility Study Emergency Services Training Observations Kitsap County Fire District #18 Yes Yes Yes Informal, dollars paid to staff for education on semester basis, approximately $550 Yes Yes, challenge of budget Yes Yes Part of annual report Yes Yes North Kitsap Fire & Rescue Yes Yes, training captain approves Yes Uniformed personnel are required to complete a task book for career development track: Firefighter I&II, company officer and battalion chief educational incentives paid for as described in provision of CBA Yes Yes, challenge of budget Yes Yes Yes Yes Yes Recommended Action
Survey Component G. Pre-fire planning included in training H. Check-out system on training materials 8. Personnel Trained A. Training objective (who, level, etc.)
B. Employee development program used
Both Agencies: Offer a comprehensive officer development program to develop future leadership
C. Goals and objectives identified 9. Administrative Priority A. Budget allocated to training B. Education and training of training officer C. Using certified instructors D. Annual training report produced E. Adequate training space/facilities/equipment F. Maintenance of training facilities 10. Training Program Clerical Support A. Support staff support B. Records computerized software used C. Adequate office space, equipment, and supplies
Minimal
Yes
Some Yes
Yes Yes
Both Agencies: Consider shared staff support for overarching tasks common to both agencies KCFD #18: Consider a fully integrated data base (RMS) for all training records
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Survey Table 6: Support Programs Life Safety Service Fire Prevention

An aggressive municipal risk management program, through active fire and life safety services, is a fire departments best opportunity to minimize the losses and human trauma associated with fires and other community risks. The National Fire Protection Association recommends a multifaceted, coordinated risk reduction process at the community level to address local risks. This requires engaging all segments of the community, identifying the highest priority risks, and then developing and implementing strategies designed to mitigate the risks.18 A fire department should actively promote fire resistive construction, built-in warning and fire suppression systems, and an educated public trained to minimize their exposure to fire and health issues and to respond effectively when faced with an emergency.
Survey Component 1. Code Enforcement A. Fire codes adopted i) code used year/version
Life Safety Service Fire Prevention Observations Kitsap County Fire District #18 Yes/No 2009 IFC adopted in Poulsbo, District has not adopted any code North Kitsap Fire & Rescue Yes 2009 IFC adopted by state and local AHJ (Kitsap County) with amendments Kitsap County amendments include addressing, fire flow, sprinklers and false alarms as well as a retroactive ordinance for certain existing multifamily dwellings. Yes. Kitsap County amendments align with the IBC and IFC requirements, including detailed sprinkler requirements for various occupancy types and conditions. Recommended Action
B. Local codes or ordinances adopted, amendments
No
C. Sprinkler ordinance in place
Stand-alone sprinkler ordinance all buildings over 10,000 sq. ft. sprinklered, all over 4,000 require alarm systems.
2. New Construction Inspections and Involvement
18
Kirtley, Edward, Fire Protection Handbook, 20 Edition, 2008, NFPA, Quincy, MA.
th
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North Kitsap Fire & Rescue Kitsap County Fire District #18, WA Feasibility Study Life Safety Service Fire Prevention Observations Kitsap County Fire District #18 Yes, Poulsbo. Kitsap County Fire Marshals Office (KCFM0) (county fire marshal conducts new construction inspections in District Yes, SAA (same as above) North Kitsap Fire & Rescue Kitsap County Fire Marshals Office (KCFMO) consults with the District on new construction. KCFMO except NKFR does new construction plans review for the tribes on an invitation basis with informal assistance of KCFMO For the tribes only, and by invitation AHJ levies and collects permit fees Yes KCFMO KCFMO Yes, Knox Yes No (but hoping to build as inspection program matures) Both Agencies: Establish a selfinspection program for low risk occupancies KCFD #18: Provide annual inspections of all existing occupancies Recommended Action
Survey Component
A. Consulted in proposed new construction
B. Perform fire and life safety plan review C. Sign-off on new construction D. Charges for inspections or reviews E. Perform existing occupancy inspections F. Special risk inspections G. Storage tank inspections H. Key-box entry program in place I. Hydrant flow records maintained 3. General Inspection Program A. Self-inspection program in place
Yes In building permit District, no longer conducts fire and life safety inspections inside Poulsbo, city has a fire marshal is in place Undefined in city KCFMO Yes, Knox Yes in Poulsbo
No Currently annual and up to date at this time. However, it is unclear when or who will inspect from this point forward with the loss of the fire marshal position. In District, KCFMO now has responsibility, with District conducting an annual inspection in lieu of fire investigation services provided within the city. Inspections completed from light duty assignments.
B. Frequency of inspections
Program is only three years old, and building slowly after years of neglect by the fire marshals office. Annual is the goal but actual pace is currently about once every four years
Both Agencies: Assure that all commercial occupancies receive annual inspections either by agency staff or KCFMO inspectors
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North Kitsap Fire & Rescue Kitsap County Fire District #18, WA Feasibility Study Life Safety Service Fire Prevention Observations Kitsap County Fire District #18 North Kitsap Fire & Rescue Supplements KCFMO with inspection program combined with preplanning (about 80 per year). Estimate 400 commercial occupancies. KCFMO does not inspect commercial occupancies except when a problem occurs. Inspects new construction and fire code permits. No company inspection program except some limited re-inspections, have inspected all A and E occupancies at least once. No, except through AHJ n/a Yes in ERS using own form No 1 = approx. 1/3 time for inspections (also doing pre-incident plans) No Yes. Community Services Specialist (PIO) who also does inspections and pre-incident plans Informal only In addition to a wide range of other programs, NKFR is founding member of Kitsap Safe Kids Coalition Yes Annual home escape plan contest through school district Yes, apparatus carry smoke alarms and batteries Recommended Action
Survey Component
C. Inspection program
SAA
D. Citation process in place and formally documented/adopted i) court cited to E. Inspections computerized F. Community feedback system in place G. Number of personnel devoted to program H. Fees for specialty inspections 4. Fire Safety and Public Education A. Public education/information officer in place B. Feedback instrument used C. Public education in the following areas: i) calling 9-1-1 ii) EDITH (exit drills in the home)
Police department has authority Municipal Yes No light duty No Yes, Community Relations Specialist (PIO) Informal Safe Kids program including drowning prevention, car seats, hospital is lead Yes Yes, county wide home fire escape plan contest in schools Previous grant funded program. District installs smoke alarms on as needed basis. Grant is expired.
iii) smoke alarm program
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North Kitsap Fire & Rescue Kitsap County Fire District #18, WA Feasibility Study Life Safety Service Fire Prevention Observations Kitsap County Fire District #18 iv) fire safety (heating equipment, chimney, electrical equipment, kitchen/cooking, etc.) v) injury prevention (falls, burns/scalding, bike helmets, drowning, etc.) vi) fire extinguisher use vii) fire brigade training viii) elderly care and safety ix) curriculum used in schools x) baby-sitting classes offered xi) CPR courses, blood pressure checks offered D. Publications available to public E. Bilingual information available F. Annual report distributed to community G. Juvenile fire setter program offered Included in Risk Watch North Kitsap Fire & Rescue Yes Yes, Risk Watch, 100% saturation in rd all Kindergarten and 3 grade and by special request to other groups Yes, on request n/a Yes Risk Watch Not formally Yes Yes Yes, Spanish Included in District annual report Recommended Action
Survey Component
Risk Watch and special requests On request n/a Yes Risk Watch Limited Classes offered every other st month plus full day CPR and 1 aid class one Saturday a month Yes No Included in District annual report. Also an annual newsletter with safety message. Use county-wide program, no certified intervention but resources available locally
Yes
H. Wildland interface education No Limited offered Kudos: Both agencies have made an effective commitment to public education activities. 5. Fire Investigation Duty officer does initial cause and Kitsap County Fire Marshals origin calls assistant chief if Office (KCFMO) conducts all fire A. Fire origin and cause determination necessary assistant chief is NFA cause determination via trained. Referred to KCFMO after cooperative agreement initial investigation. B. Arson investigation and prosecution Yes. Assistant Chief trained in initial i) arson investigation training Yes. Initial cause and origin only cause and origin, wildland, vehicle provided and interviewing and interrogation.
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North Kitsap Fire & Rescue Kitsap County Fire District #18, WA Feasibility Study Life Safety Service Fire Prevention Observations Kitsap County Fire District #18 C. Person responsible for investigations D. Local FIT membership (fire investigation team) E. Process for handling juvenile suspects F. Liaison with law enforcement G. Scene control practices in place H. Photographer available I. Adequate and appropriate equipment issued/supplied J. Evidence collection process in place K. Release required for entry L. Reports and records of all incidents made M. File, record, and evidence security 6. Statistical Collection and Analysis A. Records kept by computer i) type of operating platform ii) software used B. Information collected in the following areas: i) fire incidents ii) time of day and day of week iii) method of alarm (how received) iv) dispatch times v) response times C. Information analyzed & used for planning D. Reports made & distributed E. FTEs used in data collection & analysis KCFMO None Referred to Kitsap County Juvenile Department Fire Chief Yes No Via KCFMO Via KCFMO Via KCFMO Yes Via KCFMO North Kitsap Fire & Rescue KCFMO None Referred to Kitsap County Juvenile Department Fire Chief Yes No Via KCFMO Via KCFMO Via KCFMO Yes In ERS, secure Recommended Action
Survey Component
Yes Microsoft Windows Microsoft Excel spreadsheet
Yes Microsoft Windows ERS
Yes Yes Yes Yes Yes Limited In annual report None
Yes Yes Yes Yes Yes Yes, aggressively Significant portion of annual report None KCFD #18: Make use of fire occurrence data in prevention planning efforts
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Survey Table 7: Support Programs Emergency Communications

Communication center operations are essential, directly affecting fire/EMS response times, service levels, overall service delivery, and customer satisfaction. Dispatch operations are integral to a successful emergency operation, starting with the initial alarm and continuing until units are available for redeployment. ESCI reviewed current emergency communications and dispatch functions and analyzed the impact of various service delivery options including: Communications overview Management and Staffing Facilities Training Performance Benchmarks
The following matrix outlines the assessment of the CENCOM (Kitsap County Central Communications). Interviews with managers and observations of the day to day communication center operations provided information for this section.
Survey Component 1. Communications Provider A. Emergency Dispatch Agency i) population served ii) 9-1-1 PSAP (public safety answering point) iii) surrounding bordering PSAPs
Emergency Communications Observations Kitsap County Fire District #18 CENCOM 9-1-1 Approx. 250,000 Yes Mason and Pierce Counties North Kitsap Fire & Rescue CENCOM 9-1-1 Approx. 250,000 Yes Mason, Jefferson and Pierce Counties (Island County receives n. end of District cell phone 911 calls) Recommended Action
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North Kitsap Fire & Rescue Kitsap County Fire District #18, WA Feasibility Study Emergency Communications Observations Kitsap County Fire District #18 Bainbridge Island FD, Jefferson County, Central and South Kitsap, Federal F.D., Navy. All fire departments in Kitsap County participate in an automatic aid system. North Kitsap Fire & Rescue Bainbridge Island FD, Jefferson County, Central and South Kitsap, Federal F.D., Navy. All fire departments in Kitsap County participate in an automatic aid system. Recommended Action
Survey Component
iv) surrounding and mutual aid fire departments
B. Organizational structure i) mission statement, goals, and Yes Yes objectives Kudos: CENCOM has developed a long-range plan that is routinely updated by the communications centers strategic advisory board. C. Authorized communications 71 employees, 71 employees, staffing 57 dispatchers/call takers 57 dispatchers/call takers Dispatchers work10 hour shifts Dispatchers work10 hour shifts i) work schedule (overlapping). Shift staffing changes (overlapping). Shift staffing changes every two hours. every two hours. Minimum staffing is five dispatchers, Minimum staffing is five dispatchers, two call takers. two call takers. ii) minimum staffing policy Maximum staffing is nine dispatchers Maximum staffing is nine dispatchers and three call takers. and three call takers. iii) state requirements for public Yes Yes safety dispatchers iv) union representation Yes Yes 2. Communications Facility & Equipment A. Facility Building is located in Bremerton Building is located in Bremerton The building is secure and has The building is secure and has i) security multiple access controls multiple access controls B. Computer aided dispatch Yes Yes (CAD) i) geo data base Yes, Integraph Yes, Integraph Yes, UPS and diesel powered Yes, UPS and diesel powered C. Emergency power generator generator D. Telephone equipment ZETRON ZETRON Kudos: CENCOM has installed equipment necessary to handle upgrades of the telephone system. E. Radio system ZETRON ZETRON
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North Kitsap Fire & Rescue Kitsap County Fire District #18, WA Feasibility Study Emergency Communications Observations Recommended Action
Survey Component
Kitsap County Fire District #18 North Kitsap Fire & Rescue F. Radio control ZETRON ZETRON G. Recording equipment NICE NICE H. Workstations XYBIX XYBIX Kudos: CENCOM plans include the capacity and capability for expansion of its functions and operations. I. Mobile communications devices Yes- ACCURA, software is Integraph Yes- ACCURA, software is Integraph J. Fire/EMS notification system Tone paging with ZETRON Tone paging with ZETRON K. Alarm monitoring/fire systems Yes Yes K. Back-up plan/center operations Yes Yes L. Emergency notifications Yes Yes M. Other duties No No 3. Communications/Dispatch Operations A. Availability of performance Yes, NFPA 1221 Yes, NFPA 1221 standards and/or benchmarks Yes, ten seconds with an average of Yes, ten seconds with an average of i) 9-1-1 time standards eight seconds response time eight seconds response time ii) call processing/dispatch time Yes, NFPA standard, 1221 Yes, NFPA standard, 1221 standards adopted B. Evaluation of dispatch activities i) by time/day/month Yes Yes ii) by incident type Yes Yes C. Standard operating procedures Yes Yes D. Quality assurance program Yes Yes E. Training program Yes Yes F. Emergency medical dispatch Yes Yes (EMD) G. Position descriptions Yes Yes H. Evaluations Yes Yes I. Workload activity Approx. 159,937 calls;13,448 10Approx. 159,937 calls;13,448 10i) 9-1-1 calls digit digit 242,393 calls Total;69,008 242,393 calls Total;69,008 ii) 7 digit incoming calls nonemergency nonemergency
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North Kitsap Fire & Rescue Kitsap County Fire District #18, WA Feasibility Study Emergency Communications Observations Kitsap County Fire District #18 Standard ten seconds or less met 95.85% with an average of eight seconds Standard 60 seconds or less met 67% of the time Yes 31,483 calls Area protected is approximately 54 square miles Same KCFD #18 has four fire stations. KCFD #18 has two full-time staffed fire stations KCFD #18 has one part-time staffed fire station KCFD #18 has one volunteer staffed station 13.5 square miles Yes Yes Yes Yes Yes Yes Yes Yes North Kitsap Fire & Rescue Standard ten seconds or less met 95.85% with an average of eight seconds Standard 60 seconds or less met 67% of the time Yes 31,483 calls Area protected is approximately 50 square miles Same NKFR has five fire stations. NKFR has four full-time staffed fire stations NKFR has no part-time staffed fire stations NKFR has one volunteer station 10.0 square miles Yes Yes, eight minutes Yes, eight minutes Yes Yes Yes Yes Yes Recommended Action
Survey Component
iii) average speed of answer iv) average telephone processing times v) law enforcement activities vi) fire/EMS calls initiated 4. Fire Stations A. Total area protected i) total area protected for EMS transport B. Total number of fire stations i) number of stations staffed fulltime ii) number of stations staffed part-time iii) number of unstaffed stations C. Average area protected by each fire station D. Response time goals adopted i) for fire emergencies ii) for EMS emergencies iii) actual response times documented E. Standard response protocols adopted i) by alarm type (apparatus per alarm) ii) by apparatus type (persons per app) F. Call back system 5. Emergency Apparatus
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North Kitsap Fire & Rescue Kitsap County Fire District #18, WA Feasibility Study Emergency Communications Observations Kitsap County Fire District #18 All fire departments in Kitsap County participate in an automatic aid system 2 to 3 engines No ladder trucks, mutual/ automatic request only 4 Aid,2 Medic 1 command vehicle Engine w/operation level 1 boat, B 71 North Kitsap Fire & Rescue All fire departments in Kitsap County participate in an automatic aid system 4 engines No ladder trucks, mutual/ automatic request only 4 ambulances 1 command vehicle Engine w/operation level 1 boat, Marine 81 Recommended Action
Survey Component
A. Availability for dispatch i) engine ii) ladder truck iii) ambulance iv) command v) hazardous materials vi) boat B. Availability of reserves (response ready) i) engine ii) ladder truck iii) ambulance 6. Risk (Hazard) Analysis A. History of fire loss documented B. Major hazards identified and mapped? C. Fire inspections conducted D. Pre-incident plans used E. Disaster plans in existence F. Maps in all vehicles G. Mutual aid agreements in effect H. Duty officer system in place i) scene accountability maintained I. Compliant with SARA Title III? (EPCRA) J. Liaison with water district(s)
1 Engine None 1 to 2 ambulances Yes Yes Fire marshal works for Poulsbo Yes Yes Yes, both MCTs (mobile computer terminal) and hard copy Yes, also automatic aid system Yes Yes, Passport System Yes Three districts, City of Poulsbo, Kitsap County, and Silverdale, B/C Russell is liaison
1Engine,1Tender/Engine None 1 ambulance Yes Yes Yes Yes Yes Yes, both MCTs (mobile computer terminal) and hard copy Yes, also automatic aid system Yes Yes, Passport System Yes Kitsap County, B/C Moran is liaison Both Agencies: Evaluate methods to strengthen and improve water system program
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North Kitsap Fire & Rescue Kitsap County Fire District #18, WA Feasibility Study Emergency Communications Observations Kitsap County Fire District #18 i) hydrant location/placement Currently not part of process but will be in future North Kitsap Fire & Rescue Notified only of new hydrants Recommended Action Both Agencies: Consider active involvement in hydrant placement due to impact on WSRB Class Rating Both Agencies: Consider active involvement in hydrant placement due to impact on WSRB Class Rating KCFD #18: Consider active involvement in fire flow calculations for target response patterns Both Agencies: Consider Adopt-aHydrant campaign where nearby residents purchase reflective markers and epoxy for installation by road crews
Survey Component
ii) main installation
Currently not part of process but will be in future
Notified only
iii) fire flows calculated
Currently not readily available
Yes by County County provides the markers and paint with hydrant ratings but increasingly difficult to maintain system yes
iv) fire hydrants marked
No
v) water sources identified
In process
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Survey Table 8: Emergency Medical Services Support and System Oversight

The provision of Emergency Medical Services (EMS) by the fire service has come to be the predominant service offered by many fire departments to their community. It is common to find that 70 percent to 80 percent of emergency responses are to medical emergencies, as is the case in Kitsap County Fire District #18 and North Kitsap Fire & Rescue. Essential to the effective delivery of EMS services is effective system management, support and oversight, including the key components of logistical support, medical control and oversight, quality assurance and appropriate credentialing of personnel.
Survey Component 1. Logistical Support A. Staff i) administrative/management ii) field supervisor iii) clerical support iii) billing/collections/AP support iv) inventory management 2. Medical Control A. Written protocols adopted
Emergency Medical Services Support and System Oversight Observations Kitsap County Fire District #18 North Kitsap Fire & Rescue Recommended Action
Chris Morrison, BC 0 0 0 0 County wide EMS protocols used by all agencies Yes, all calls reviewed and sent to Kitsap County EMS, Medical Program Director (MPD). EMS staff at area FDs review other departments reports. Red flags referred to EMS officer to screen and review. All reviewed reports with questions are reviewed at QA/QI committee. Referred back to District to discuss with medic (same for BLS and ALS).
1 MSO (medical safety officer) 0 0 0 0 County wide EMS protocols used by all agencies
B. MPD case reviews conducted regularly
Yes, all calls reviewed and sent to Kitsap County EMS, Medical Program Director (MPD). EMS staff at area FDs review other departments reports. Red flags referred to EMS officer to screen and review.
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North Kitsap Fire & Rescue Kitsap County Fire District #18, WA Feasibility Study Emergency Medical Services Support and System Oversight Observations Kitsap County Fire District #18 MPD and part time training staff. Base Station training monthly on st 1 Thursday, by MPD, EMS Office training person or outside. One person reviews ALS, another reviews BLS reports for other agencies in area and vice versa Shared via EMS Office process Yes As required for problems noted, an area wide system Three year recertification period per state. Must attend four live plus review minimum of eight recorded training CDs, four practical skill stations: 12 Lead, pediatric lab, Airway practical and trauma practical lab required in three year recertification period, PALS (pediatric advanced life support) and ACLS (advance cardiac life support). North Kitsap Fire & Rescue Yes, through EMS office Recommended Action
Survey Component
C. MPD conducts in service training 3. Q.A./Q.I. A. Internal committee B. Lessons learned are shared? C. MPD participates? D. Charts spot evaluated for accuracy? 4. Certification/Recertification
One person reviews ALS, another reviews BLS reports for other agencies in area and vice versa Shared via EMS Office process Yes Yes, by MSO. Plus sent to Kitsap County QA/QI peer review committee
A. OTEP system in place?
Yes OTEP for BLS, ALS OTEP program. Base station training program minimum four annual ALS skills testing, 50 additional hours for annual recertification.
B. Skills Assessment performed Yes Yes, topic is state approved by qualified evaluators? C. Recertification examinations (if Yes, based on state continuing required) administered by Yes, state requirements education requirements qualified testing center? D. Trauma Verified agency? Yes Yes (RCW 70.168.080) Kudos: Both agencies have established an effective system of EMS program management and oversight. Comments: MSO monitor, track hours and recertification requirements.
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North Kitsap Fire & Rescue Kitsap County Fire District #18, WA Feasibility Study o o o o o Shared responsibility with EMT or paramedic. Facilitates extra training to get the additional 50 hours needed. BLS All records tracked via EMS Online Is also District safety officer safety committee meeting oversight. Responds to incidents when on duty, (40 hour) serves as Safety Officer
Kitsap County EMS Office, MPD, QA/QI person part time, assistant to MPD, part time training medic and one additional part time employee. o All departments pay into EMS Office
KCFD #18: minimum two ambulances with medic and one EMT County wide protocol, working on regional, coming out soon.
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Survey Table 9: Haz-Mat Services Support and Response Capability

Like EMS, response to incidents involving hazardous substances has become an important component of the fire department service delivery menu. Due to the safety risks that Hazardous Materials (Haz-Mat) events pose to both the public and firefighters, it is imperative that response procedures and training standards be effectively managed.
KCFD #18 and NKFR are fortunate to have ready access to the services of a Haz-Mat response team maintained by the Navy Region Northwest. Because of the presence of this resource, the fire departments are able to limit their training, equipment and response procedures to baseline levels, calling upon the Navy team for advanced level procedures.
Survey Component 1. Physical Resources A. Apparatus B. Equipment for Level B C. Equipment for Level A D. Equipment for decontamination E. Equipment for plume modeling/spot weather analysis F. Equipment for plugging/diking/spill containment G. Gas monitoring for concurrent red zone and perimeter analysis 2. Staff Resources A. Awareness certified personnel B. Operations certified personnel C. Technician certified personnel D. WMD certified personnel
Haz-Mat Services Support and Response Capability Observations Kitsap County Fire District #18 None. All Haz-Mat response is provided by Navy Region Northwest SAA SAA SAA SAA SAA SAA North Kitsap Fire & Rescue Recommended Action
None. All Haz-Mat response is provided by Navy Region Northwest SAA SAA SAA SAA SAA SAA All including interns (not tender operators) All personnel None None
All personnel All personnel None None
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North Kitsap Fire & Rescue Kitsap County Fire District #18, WA Feasibility Study Haz-Mat Services Support and Response Capability Observations Kitsap County Fire District #18 North Kitsap Fire & Rescue Recommended Action Both Agencies: Consider certifying battalion chiefs as Haz-Mat incident commanders (IC). Technicians manage entry, evaluation, ICs manage scene
Survey Component
E. Haz-Mat IC certified personnel
None
Assistant chief
F. Haz-Mat Safety Officer certified personnel 3. Miscellaneous A. Mutual aid partners B. Team assembly time for offensive Level A entry C. Team certified to which level?
None Naval Region Northwest Fire Department Level A team 45 min to 1 Hr. A
MSO is certified Naval Region Northwest Fire Department Level A team. 45 min to 1 Hr. A
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Survey Table 10: Capital Assets, Capital Improvement, and Replacement Programs
Three basic resources are required to successfully carry out the emergency mission of a fire department trained personnel, firefighting equipment, and fire stations. Because firefighting is an extremely physical task, the training and capacity of personnel resources is a vital concern. However, no matter how competent or numerous the firefighters, the department will fail to execute its mission if it lacks sufficient fire equipment deployed in an efficient and effective manner. Fire Stations Fire stations play an integral role in the delivery of emergency services for a number of reasons. A stations location will dictate, to a large degree, response times to emergencies. A poorly located station can mean the difference between confining a fire to a single room and losing the structure. The location of a station can even make the difference between saving and losing a life. Fire stations need to be designed to adequately house equipment and apparatus, as well as meet the needs of the organization, its workers, and/or its members. It is essential to research need based on call volume, response time, types of emergencies, and projected growth prior to making a station placement commitment. Locating fire stations is also a matter of the greater community (region) need. Consideration should be given to a fire stations ability to support the departments mission as it exists today and in the future. The activities that take place within the fire station should be closely examined to ensure the structure is adequate in both size and function. Examples of these functions may include: The housing and cleaning of apparatus and equipment Residential living space for on-duty crew members (male and female) Administrative or management office(s) Training, classroom, and library areas Firefighter fitness area
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While this list may seem elementary, the lack of dedicated space compromises the ability of the facility to support all of these functions and can detract from its primary purpose. KCFD #18 delivers emergency services out of four fire stations (two manned, and one flexibly manned, and one unmanned at Keyport), strategically located throughout the service area of the City and District. The Districts administrative offices are located at 911 NE Liberty Road in a campus setting with fleet maintenance and Fire Station No. 71. NKFR delivers emergency services out of four manned and one unmanned volunteer fire stations strategically located throughout the service area of the District. The Districts administrative offices are located at 26642 Miller Bay Rd NE in a campus setting with fleet maintenance, a training facility, and Fire Station No. 81. Apparatus Other than the firefighters assigned to stations, response vehicles are probably the next most important resource of the emergency response system. If emergency personnel cannot arrive quickly due to unreliable transport, or if the equipment does not function properly, then the delivery of emergency service is likely compromised. Fire apparatus are unique and expensive pieces of equipment, customized to operate efficiently for a narrowly defined mission. An engine may be designed such that the compartments fit specific equipment and tools, with virtually every space on the vehicle designed for function. This same vehicle, with its specialized design, cannot be expected to operate in a completely different capacity, such as a hazardous materials unit or a rescue squad. For this reason, fire apparatus are very expensive and offer little flexibility in use and reassignment. As a result, communities across the country have sought to achieve the longest life span possible for these vehicles. Unfortunately, no piece of mechanical equipment can be expected to last forever. As a vehicle ages, repairs tend to become more frequent, parts are more difficult to obtain, and downtime for repair increases. Given the emergency mission that is so critical to the community, downtime is one of the most frequently identified reasons for apparatus replacement.
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Because of the expense of fire apparatus, most communities develop replacement plans. To enable such planning, communities often turn to the accepted practice of establishing a life cycle for the apparatus that results in an anticipated replacement date for each vehicle. The reality is that it may be best to establish a life cycle for use in the development of replacement funding for various types of apparatus; yet, apply a different method (such as a maintenance and performance review) for actually determining the replacement date in real life, thereby achieving greater cost efficiency when possible. Fleet managers of the Districts have a concern of the aging of the fleet and the current replacement schedule. As the frontline units are aging, fleet will experience higher costs and more down time associated with necessary repairs and routine maintenance.
Capital Assets, Capital Improvement, and Replacement Programs Observations Kitsap County Fire District #18 North Kitsap Fire & Rescue Recommended Action Both Agencies: Develop a comprehensive CIP (Capital Improvement Plan) including policies and procedures. Complete development of the AMP (Asset Management Plan)
Survey Component 1. Fire Stations/Structures
A. Plan maintained
Yes, recently established
Unknown/Not provided
i) period of plan (from to) ii) funding mechanism B. Construction or improvement plans i) 2011 ii) 2012 iii) 2013 iv) 2014
2012 to 2022 Not identified, funding options under review 12.3 Yes, see Tab 12.1
Some money from sale of fire station has been placed in reserve Unknown/Not provided Both agencies: Complete development of the AMP (Asset Management Plan)
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North Kitsap Fire & Rescue Kitsap County Fire District #18, WA Feasibility Study Survey Component Capital Assets, Capital Improvement, and Replacement Programs Observations Kitsap County Fire District #18 North Kitsap Fire & Rescue Recommended Action Fire Station No. 71: upgrade emergency generator; replace bay doors/operators; remodel kitchen/dayroom; vehicle exhaust equipment; drainage and parking lot repair; roof project. Fire Station No. 72: emergency generator; vehicle exhaust equipment. Fire Station No. 77: vehicle exhaust equipment. Fire Station No. 73: relocate station
v) 2015
vi) 2016 vii) 2017 viii) 2018 ix) 2019 x) 2020 xi) 2021 xii) 2022 2. Apparatus
Fire Station No. 71: dry sprinkler system
A. Plan maintained
Yes
Yes, very detailed
Both Agencies: Develop a CIP (Capital Improvement Plan) including policies and procedures. Complete development of the AMP (Asset Management Plan)
i) period of plan (from to) ii) funding mechanism
2011 2022
2011 2021
Funding options-under evaluation State of Washington- Limited Tax Tab 12.3 General Obligation Bonds Yes, replacement schedule is in Yes, replacement schedule in place B. Purchase or refurbishment place. Replacement costs not including projected replacement and schedule identified. refurbishment costs Kudos: The maintenance, upkeep, cleanliness, and organization of fire apparatus is a positive reflection of the organizational culture of both fire departments. Kudos: KCFD #18s fleet maintenance facility operations have been recognized and received awards for begin totally green. Kudos: NKFRs fleet maintenance program has developed a unique model in providing mobile maintenance service. This serves both the District and some surrounding contracts agencies with an economical method of remote delivery of vehicle service.
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North Kitsap Fire & Rescue Kitsap County Fire District #18, WA Feasibility Study Survey Component 3. Support Equipment Both Agencies: Develop a CIP (Capital Improvement Plan) including policies and procedures. Complete development of the AMP (Asset Management Plan) Capital Assets, Capital Improvement, and Replacement Programs Observations Kitsap County Fire District #18 North Kitsap Fire & Rescue Recommended Action
A. Plan maintained
i) period of plan (from to) ii) funding mechanism
n/a Not identified
n/a Not identified Both Agencies: Complete development of the AMP (Asset Management Plan). Aggregate like item purchases with a total value of an established capital value threshold and include in an asset management plan
B. Purchase interval planned for by type:
n/a
n/a
4. Methods of Financing A. General revenue B. Reserve fund(s) C. Revenue fund(s) D. General obligation bond E. Lease-Purchase F. Grants or gifting $53,000 included in 2011 budget for buildings and structures None None State of Washington LTGO (Limited Tax General Obligation) None None $70,318 included in 2011 budget for buildings and structures Approximately $800,000 reserved for future major capital projects None State of Washington LTGO (Limited Tax General Obligation) and 1999 voted UTGO (Unlimited Tax General Obligation) None None
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North Kitsap Fire & Rescue Kitsap County Fire District #18, WA Feasibility Study Figure 3: Fire Station No. 81 (NKFR Headquarters) Address: 26642 Miller Bay Rd NE
Survey Components 1. Structure A. Construction type B. Date C. Seismic protection/energy audits D. Auxiliary power E. Condition F. Special considerations (ADA, mixed gender appropriate, storage, etc.) 2. Square Footage 3. Facilities Available A. Exercise/workout B. Kitchen/dormitory C. Lockers/showers D. Training/meetings E. Washer/dryer 4. Protection Systems A. Sprinkler system B. Smoke detection C. Security D. Apparatus exhaust system
Standard frame construction on a concrete pad Built in 2001 Unknown Diesel auxiliary generator Condition is good and building is well maintained Building is ADA compliant. Storage is somewhat limited. There is adequate office space for administrative staff. 12,500 sq. ft. Exercise area in the engine bays and living area Kitchen is well equipped and adequate for current staffing Mixed gender appropriate showers, lockers, and sleeping areas Large training/meeting room, also available for public meetings Washer and dryer available Building is protected with automatic sprinklers Smoke detection throughout with a central alarm system Access controlled with key code door locks Apparatus bays have a positive air exhaust removal system to remove engine fumes
Comments: Fire Station No. 81 serves as the headquarters station for North Kitsap Fire & Rescue (NKFR). The station sits on an approximately a four acre campus that also contains the training tower and apparatus maintenance facility. The building has three single engine bays and houses an engine company, an ALS medic unit, and the battalion chief. The station is well located to serve the commercial areas along Highway 104 and the community of Kingston. Engine 81 (2) Medic 81 (2) Tender 81 (vol.) Aid 81 A (Reserve) DC 81 Reserve BC Pickup/ Fuel Truck 8101 8102
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North Kitsap Fire & Rescue Kitsap County Fire District #18, WA Feasibility Study Figure 4: Fire Station No. 84 (NKFR) Address: 18533 Augusta Ave (Suquamish)
Unreinforced block construction Originally built in the 1960s and remodeled in 1996 None Propane auxiliary generator The building is dated but in fair condition Building is ADA (Americans with Disability Act) compliant. Storage is limited. 3,000 sq. ft. Exercise room is available and adequate Kitchen is adequate for current staffing Mixed gender appropriate showers, lockers, and sleeping areas Day room is used for training and meetings Washer and dryer available Building is not sprinklered Smoke detection throughout with a central alarm system Access controlled with key code door locks Apparatus bays have a positive air exhaust removal system to remove engine fumes
Comments: This station serves the community of Suquamish and the surrounding area in the southern part of NKFR. Originally not designed for 24 hour crews, the station was remodeled in 1996. A commercial extraction washer located at this station is used for cleaning and decontamination of all NKFR PPE (personal protective equipment). A single ALS company operates out of this facility. The station faces onto the main route through Suquamish. There is in adequate apron space for safe apparatus maneuvering in front of the station. Engine 84 (2) Aid 84 (2) Tender 84 (volunteer)
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North Kitsap Fire & Rescue Kitsap County Fire District #18, WA Feasibility Study Figure 5: Fire Station No. 85 (NKFR) Address: 23260 South Kingston Rd
Standard frame construction on a concrete slab Built in 2001 Unknown Diesel auxiliary generator Condition is good and building is well maintained Building is ADA compliant. Storage is adequate. Living quarters and work areas serve the needs of the current staffing. 6,135 sq. ft. Exercise equipment and workout space is available Kitchen is well equipped and adequate for current staffing Mixed gender appropriate showers, lockers, and sleeping areas Day room is used for training and meetings Washer and dryer available Building is protected with automatic sprinklers Smoke detection throughout with a central alarm system Access controlled with key code door locks Apparatus bays have a positive air exhaust removal system to remove engine fumes
Comments: Fire Station No. 85 provides first due service to the communities of South Kingston, Indianola, and Jefferson Beach. The facility is well located to serve the southwest portion of NKFR. The station is manned with a BLS crew that cross staffs an engine and a BLS aid unit. Engine 85 (2) Aid 85 (2) Brush 85 Oil Spill Trailer
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North Kitsap Fire & Rescue Kitsap County Fire District #18, WA Feasibility Study Figure 6: Fire Station No. 87 (NKFR) Address: 35100 Little Boston Rd.
Survey Components 1. Structure A. Construction type B. Date C. Seismic protection/energy audits D. Auxiliary power E. Condition F. Special considerations (ADA, mixed gender appropriate, storage, etc.) 2. Square Footage 3. Facilities Available A. Exercise/workout B. Kitchen/dormitory C. Lockers/showers D. Training/meetings E. Washer/dryer 4. Protection Systems A. Sprinkler system B. Smoke detection C. Security D. Apparatus exhaust system Pole Barn building with metal siding and a metal roof. Building is on a concrete slab. Built in 2007 None None Poor No living quarters or storage in this building. 1,500 sq. ft. None None None None None None None Number code key lock None
Comments: Fire Station No. 87 is not owned by NKFR. The building is leased from a private individual and used to house a water tender that is staffed by volunteers, who respond to the station when specifically requested. The station is located on the main north south route between Fire Station Nos. 81 and 89. Tender 87 (volunteer)
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North Kitsap Fire & Rescue Kitsap County Fire District #18, WA Feasibility Study Figure 7: Fire Station No. 88 Storage Facility (NKFR) Address: 33787 NE Eglon Rd
Standard frame construction on a concrete slab Approximately early 1970s No No Fair Not ADA compliant, life and fire safety codes met at time of construction Approx. 1,750 sq. ft. None None None None None None None Number code key lock None
Comments: Fire Station No. 88 station is currently owned by NKFR. The building is not staffed and no apparatus is housed in the station. This area is served by a tender/engine from Fire Station No. 87.
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North Kitsap Fire & Rescue Kitsap County Fire District #18, WA Feasibility Study Figure 8: Fire Station No. 89 (NKFR) Address: 4911 NE Twin Spits Rd (Hansville)
Standard frame construction on a concrete slab Built in 2001 Unknown Diesel auxiliary generator Condition is good and building is well maintained Building is ADA compliant. Storage is adequate. Living quarters and work areas serve the needs of the current staffing. 6,135 sq. ft. Exercise equipment and workout space is available Kitchen is well equipped and adequate for current staffing Mixed gender appropriate showers, lockers, and sleeping areas Day room is used for training and meetings Washer and dryer available Building is protected with automatic sprinklers Smoke detection throughout with a central alarm system Access controlled with key code door locks Apparatus bays have a positive air exhaust removal system to remove engine fumes
Comments: Fire Station No. 89 is located in the northern most portion of the NKFR service area. The station protects the communities of Hansville, Driftwood Keys, Shorewoods, and Cliffside. Fire Station Nos. 89 and 85 utilize the same floor plan. The station is staffed with BLS personnel that cross staff an engine or aid unit. A reserve engine is also housed at the station.
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North Kitsap Fire & Rescue Kitsap County Fire District #18, WA Feasibility Study Figure 9: Fire Station No. 71 (KCFD #18 Headquarters) Address: 911 NE Liberty Rd
Survey Components 1. Structure A. Construction type B. Date C. Seismic protection/energy audits D. Auxiliary power E. Condition F. Special considerations (ADA, mixed gender appropriate, storage, etc.) 2. Square Footage 3. Facilities Available A. Exercise/workout B. Kitchen/dormitory C. Lockers/showers D. Training/meetings E. Washer/dryer 4. Protection Systems A. Sprinkler system B. Smoke detection C. Security D. Apparatus exhaust system Type 3 frame, steel, concrete, w/composite roof. Metal and brick veneer siding. Built in 1990 Met standards in place at time of construction. In process of an energy audit. Yes, there is diesel auxiliary generator but located in basement Good condition, needs some maintenance i.e. painting, carpeting, roof repair Life safety codes met at time of construction, building is ADA compliant, SCBA fill station Total: 28,409 sq. ft. Building 1 Admin/crew quarters 12,774 sq. ft. Building 2 Apparatus Bay/Maintenance Shop 10,528 sq. ft. Exercise equipment and workout space is available Kitchen is adequate for current staffing. Mixed gender appropriate showers, lockers, and sleeping areas Large training/meeting room-also available for public meetings Yes, both residential and commercial extraction Building is protected with automatic sprinklers Smoke detection throughout with a central alarm system Access controlled with key code door locks, emergency lighting Only a mechanical air exchange system
Comments: The Headquarters Fire Station, co-located with Fire Station No. 71. Facilities include meeting rooms, offices of the fire chief, staff officers and support staff. Fire Station No. 71 has the following emergency apparatus: Engine E-71 Boat B-71 Engine E-71A Utility Vehicle U-71 Aid Car A-71 Bat 71 Shift Commander
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North Kitsap Fire & Rescue Kitsap County Fire District #18, WA Feasibility Study Medic M-71 Tender T-71 Brush Unit BR-71 Safety Officer Mechanic Office Apparatus maintenance area
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North Kitsap Fire & Rescue Kitsap County Fire District #18, WA Feasibility Study Figure 10: Fire Station No. 72 (KCFD #18) Address: 28882 Falkner Rd
Survey Components 1. Structure A. Construction type B. Date C. Seismic protection/energy audits D. Auxiliary power E. Condition F. Special considerations (ADA, mixed gender appropriate, storage, etc.) 2. Square Footage 3. Facilities Available A. Exercise/workout B. Kitchen/dormitory C. Lockers/showers D. Training/meetings E. Washer/dryer 4. Protection Systems A. Sprinkler system B. Smoke detection C. Security D. Apparatus exhaust system Building is a masonry exterior bearing wall structure with a metal roof Originally built in 1971/72, remodeled 1993 No Yes, portable generator, manual start and switch Fair/Good Not ADA compliant, life and fire safety codes met at time of construction 4,560 sq. ft. Exercise equipment and workout space is available Kitchen is adequate for current staffing Mixed gender appropriate showers, lockers, and sleeping areas Limited Space Yes, residential washer/dryer Not sprinkled Smoke detection throughout with a central alarm system Access controlled with key code door locks., emergency lighting No, only a mechanical air exchange system
Comments: The fire station is well located to serve the North end of the Fire District. Staffing is parttime with two career personnel and volunteer firefighters. The battalion chief staffs and responds from this station when neither career/volunteer personnel are available. Fire Station No. 72 has the following emergency apparatus: Engine E-72 Aid Car A-72
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North Kitsap Fire & Rescue Kitsap County Fire District #18, WA Feasibility Study Figure 11: Fire Station No. 73 (KCFD #18) Address: 1863 Pacific Ave. (Keyport)
Survey Components 1. Structure A. Construction type B. Date C. Seismic protection/energy audits D. Auxiliary power E. Condition F. Special considerations (ADA, mixed gender appropriate, storage, etc.) 2. Square Footage 3. Facilities Available A. Exercise/workout B. Kitchen/dormitory C. Lockers/showers D. Training/meetings E. Washer/dryer 4. Protection Systems A. Sprinkler system B. Smoke detection C. Security D. Apparatus exhaust system Masonry bearing exterior wall structure (cinder block) with composite roof-replaced within last 3 years Originally built in 1944, remodeled several times with a major remodel adding a second floor in the 1980s No Yes, portable generator, manual start and switch Fair Not ADA compliant, life and fire safety codes met at time of construction Approximately 4,000 sq. ft. No Yes (currently being remodeled), no sleeping quarters No Very limited space No Building not sprinkled Smoke detection throughout with a central alarm system Access controlled with key code door locks, emergency lighting No
Comments: Fire station is staffed by volunteers who respond when specifically requested. It is located within blocks of a Federal Fire Station (Naval Base) which provides automatic aid on high priority calls. Fire Station No. 73 has the following emergency apparatus: Engine E-73 Aid Car A-73 Brush Unit BR-73
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North Kitsap Fire & Rescue Kitsap County Fire District #18, WA Feasibility Study Figure 12: Fire Station No. 77 and Drill Tower (KCFD #18) Address: 1305 NW Pioneer Hill Rd
Type 3, stone veneer and metal siding, composite roof Built in 2003 Yes Yes, diesel auxiliary generator Very good, building well maintained Building is ADA compliant, met all life safety codes at time of construction 6,200 sq. ft. Exercise equipment and workout space is available Kitchen is adequate for current staffing Mixed gender appropriate showers, lockers, and sleeping areas Yes Residential washer and dryer available Building is protected with automatic sprinklers Smoke detection throughout with a central alarm system. and monitored Emergency lighting, electromechanical door Apparatus bays have positive air exhaust removal system to remove apparatus fumes
Comments: Station is manned with a crew that cross staffs an engine and medic unit. The station site is approximately 2.5 acres and includes the training tower. Fire Station No. 77 has the following emergency apparatus: Engine E-77 Medic/Aid Car M/A-77 Aid Car A-77a Tender T-77
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Analysis of Emergency Service Delivery and Performance

In this section, an analysis of current conditions as they relate to Kitsap County Fire District #18 (KCFD #18) and North Kitsap Fire & Rescue (NKFR) facility resources, service demand, and performance is presented. Service Distribution, Demand, and Concentration Figure 13 displays the service areas of KCFD #18 and NKFR. The service area square miles is calculated with GIS (Geographic Information System) software, using data provided by the Kitsap County GIS Department. The population estimate is derived from the Washington Office of Financial Managements April 2010 population estimate for cities and fire districts.
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North Kitsap Fire & Rescue Kitsap County Fire District #18, WA Feasibility Study Figure 13: KCFD #18/NKFR Study Area
19
19
A variation in population numbers were found between figures supplied by the districts and census block data. District supplied population was used for calculations in this report.
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Using 2010 U.S. Census Bureau data, ESCI calculated the population density for the study area.
Figure 14: Census Data Study Area Population Density
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Figure 15 displays the geographic first due station response areas utilized to assign first due apparatus by the regional 9-1-1 center (CENCOM). NKFR Stations 82 and 87 are not assigned first due station areas. Both of these stations house specialized equipment (Marine 81
illustrated as Station 82 moored at the Port of Kingston and a water tender at Station 87) that are special called and do not have a first due service area. Later in the study, ESCI will analyze station response areas using GIS software to measure travel time over the existing road network.
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North Kitsap Fire & Rescue Kitsap County Fire District #18, WA Feasibility Study Figure 15: First Due by Fire Station Areas
Service Demand Data for the calls per fire station area was extracted from 2010 data collected by both KCFD #18 and NKFR.
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North Kitsap Fire & Rescue Kitsap County Fire District #18, WA Feasibility Study Figure 16: Fire Station Area Call Volume
In Figure 17, ESCI used GIS software to display the call density of all calls for service within the study area. The majority of these incidents are EMS or non-fire incidents.
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North Kitsap Fire & Rescue Kitsap County Fire District #18, WA Feasibility Study Figure 17: 2010 Call Density, All Calls
Figure 18 displays the geocoded locations of all fire incidents on top of the overall call density analysis. When compared to the density map for all incident types, it is apparent that fire incidents have a similar distribution pattern.
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North Kitsap Fire & Rescue Kitsap County Fire District #18, WA Feasibility Study Figure 18: 2010 Call Density, Fire Calls
The next map (Figure 19) displays the response time capabilities throughout the study area from the current station locations. Areas within six minutes travel time over the actual road
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network are shown for both KCFD #18 and NKFR. Fire Station Nos. 82 and 87 have not been assigned six-minute response areas.
Figure 19: Study Area, Six-Minute Travel Time
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Figure 44 shows the same six-minute service areas with the geocoded 2010 incident locations also displayed. GIS analysis indicates that 85 percent of KCFD #18 incidents and 75 percent of NKFR incidents are within six minutes travel time of a study area fire station.
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North Kitsap Fire & Rescue Kitsap County Fire District #18, WA Feasibility Study Figure 20: Six-Minute Travel Time, 2010 All Calls
The Washington Surveying and Rating Bureau (WSRB) assigns an insurance class rating of 10 or unprotected, to property that is more than five miles from a fire station. This can result in
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increased cost or difficulty in obtaining fire insurance. Figure 21 demonstrates that there are no developed areas in either KCFD #18 or NKFR that are more than five miles from a fire station.
Figure 21: WSRB Five-Mile Travel Distance
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Figure 22 shows the total calls for Kitsap County Fire District #18 and North Kitsap Fire & Rescue from 2006 through 2010. departments calls for service.
Figure 22: Total Calls by Incident Type, 2006 2010 20,000 16,000 12,000 8,000 4,000 0 NKFR KCFD #18
EMS calls represented the largest portion of both
Fire 432 481
Other 4,457 6,237
EMS 8,263 11,328
Total 13,152 18,046
In the chart below (Figure 23), the calls for the same period are displayed as a percentage of the total. Even though Kitsap County Fire District #18s call volume is higher than that of North Kitsap Fire & Rescue, however the demand by incident type is remarkably similar.
Figure 23: Percentage of Calls by Incident Type, 2006 2010 70.0% 60.0% 50.0% 40.0% 30.0% 20.0% 10.0% 0.0% NKFR KCFD #18 Fire 3.3% 2.7% Other 33.9% 34.6% EMS 62.8% 62.8%
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Kitsap County Fire District #18 and North Kitsap Fire & Rescue have experienced decreasing service demand since 2007. Total service demand has decreased by approximately 14 percent for the departments (Figure 24).
Figure 24: Annual Service Demand, 2006 2010 8,000
6,000
4,000
2,000
0 NKFR KCFD #18 Annual Total
2006 2,863 3,779 6,642
2007 2,853 3,882 6,735
2008 2,454 3,678 6,132
2009 2,502 3,380 5,882
2010 2,480 3,344 5,824
In 2010, calls for service fluctuated by month of year within a range of approximately six to ten percent of total calls in the study area (The median is 8.2 percent). The spike in the number of incidents in March for North Kitsap Fire & Rescue and in November for Kitsap County Fire District #18 is attributed to severe weather events.
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North Kitsap Fire & Rescue Kitsap County Fire District #18, WA Feasibility Study Figure 25: Calls by Month, 2010 12.0% 10.0% 8.0% 6.0% 4.0% 2.0% 0.0% NKFR KCFD #18
Figure 26 breaks down the 2010 calls for service by the day of week for the two departments
Figure 26: Calls by Day of Week, 2010 18.0% 15.0% 12.0% 9.0% 6.0% 3.0% 0.0%
NKFR
KCFD #18
The median for service demand by day of the week is 14.3 percent. Sunday has the least service demand (North Kitsap Fire & Rescue 13.0 percent and Kitsap County Fire District #18
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12.0 percent) with Friday demonstrating the highest service demand (15.2 percent and 15.5 percent respectively). Figure 27 demonstrates the effect that population activity has on emergency service demand. In 2010, 4,106 (70.5 percent) of the 5,824 total calls for service in the study area occurred between 8:00 AM and 8:00 PM.
Figure 27: Calls by Hour of Day, 2010 8.0%
7.0%
6.0% 5.0% 4.0% 3.0% 2.0% 1.0% 0.0% 12 1 2 3 4 5 6 7 8 9 10 11 12 1 2 3 4 5 6 7 8 9 10 11 AM AM AM AM AM AM AM AM AM AM AM AM PM PM PM PM PM PM PM PM PM PM PM PM NKFR KCFD #18
The marked increase in call volume during the day can adversely affect response times and response reliability. Alternative staffing models are possible solutions to increased service
demand caused by population activity. Unit Hour Utilization (UHU) is the measure of the amount of type an emergency vehicle and crew is actually committed to incidents. In general, UHU rates above 20 percent are considered cause for closer examination and possibly the addition of another unit to reduce workload and improve response reliability. As shown in Figure 28 (below), Medic 81 is the only North Kitsap Fire & Rescue unit that is approaching 20 percent UHU.
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North Kitsap Fire & Rescue Kitsap County Fire District #18, WA Feasibility Study Figure 28: NKFR Unit Hour Utilization, 2010 14.0% 12.0% 10.0% 8.0% 6.0% 4.0% 2.0% DC MAR T89 T85 T81 A84 A85 A89 81 84 Percentage 3.1% 1.7% 3.3% 0.8% 13.7% 0.6% 2.4% 0.3% 0.1% 0.4% 0.3% 8.0% 4.5% 4.4% E81 E84 E85 E89 M81 M84 0.0%
UHU for the Kitsap County Fire District #18 also shows that the transporting medical units have higher rates of use than other apparatus. Engine 71s UHU rate is significantly higher when compared to the remaining engine companies. Engine 71 handles many alarms outside of its primary first due area. This increases the UHU for Engine 71 and may result reduced reliability in its first due response area and extended response times.
Figure 29: KCFD #18 Unit Hour Utilization, 2010 14.0% 12.0% 10.0% 8.0% 6.0% 4.0% 2.0% 0.0% Percentage A71 1.4% A72 3.2% A77 DC71 1.3% 2.4% E71 9.7% E72 E73 0.03% 0.5% E77 0.1% M71 8.5% M77 11.6%
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The number of simultaneously occurring calls is another factor that can affect resource availability and response time performance. Figure 30 displays the call concurrency rate for NKFR in 2010.
Figure 30: NKFR Concurrent Calls, 2010 2,000 1,800 1,600 1,400 1,200 1,000 800
600
400 200 0 Count 1 2,037 2 362 3 38 4 2 5 1
Figure 31: NKFR Percentage of Concurrent Calls, 2010 Concurrent Calls Percentage Single Incident 82.14% 2 Incidents 14.60% 3 Incidents 1.53% 4 Incidents 0.08% 5 Incidents 0.04%
Within NKFRs jurisdiction, 82.14 percent of incidents occur singly. Nearly 15 percent (14.605) of the time there two incidents occur at the same time. There was one instance when five calls occurred simultaneously. ESCI noted and removed from the data set, a single day (March 16, 2010) when NKFR had as many as 20 simultaneous calls due to a severe wind storm. This data was removed to prevent skewing the overall annual results.
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Figure 31 displays the call concurrency rate for KCFD #18 in 2010.
Figure 32: KCFD #18 Concurrent Calls, 2010 2,000
1,500
1,000
500
0 Count
1 2,159
2 872
3 243
4 47
5 6
Figure 33: KCFD Percentage of Concurrent Calls, 2010 Concurrent Calls Percentage Single Incident 64.89% 2 Incidents 26.21% 3 Incidents 7.30% 4 Incidents 1.41% 5 Incidents 0.18%
The concurrent call rate for KCFD #18 is significantly higher than in NKFR. The number of times that two incidents occurred simultaneously is more than twice that of NKFR (872 compared to 362). The high call concurrency rates, combined with the high unit utilization rate of Medic 71 are factors that require routine monitoring as a matter of course. High unit hour utilization and concurrent call rates can negatively impact fire station reliability. A reliability rate less than 90 percent is a cause for concern since it can lead to worsening response times. Figure 34 compares fire station reliability for KCFD #18 and NKFR for 2010.
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North Kitsap Fire & Rescue Kitsap County Fire District #18, WA Feasibility Study Figure 34: KCFD #18/NKFR Fire Station Reliability, 2010 100% 90% 80% 70% 60% 50% 40% 30% 20% 10%
0% Station Number NKFR KCFD #18
#81 #71 93% 80%
#84 #72 98% 26%
#85 #73 94% 0%
#89 #77 98% 53%
The low station reliability percentage for KCFD #18 stations; when compared to the NKFR station reliability percentage, can be partially attributed to the higher unit hour utilization and call concurrency rate for KCFD #18. The lack of twenty-four hour staffing at Fire Station Nos. 72 and 73 contributes to the extremely low station reliability percentages for these two stations. All of the NKFR fire stations have reliability rates above 90 percent. Twenty-four hour staffing at
these four stations, lower unit hour utilization, and a lower concurrent call rate are all factors that may contribute to the higher station reliability rate in NKFR. The Revised Code of Washington (RCW) requires that cities, towns, or districts which provide fire protection establish and report service delivery objectives.20 Both KCFD #18 and NKFR
have developed service delivery objectives and a methodology for measuring and reporting performance that meets the requirements of Chapter 35.103 and 52.33 RCW. The following figures present additional information and measures of system response performance.
20
Chapter 35.103 and 52.33 RCW: Fire Departments-Performance Measures
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Figure 35 illustrates the overall response time frequency from time of dispatch to arrival on scene for NKFR.
Figure 35: NKFR Response Time Frequency, 2010 350 300 250 200 150 100 20% 50 0 0% Average 06:32 90th Percentile 10:56 80% 60% 40% 100%
Frequency
Accumaltive %
Non-emergent calls and out of district responses are removed from the data set. The most frequently recorded response time is within the six-minute range. The average response time is 6 minutes 32 seconds. Ninety percent of all calls were answered in 10 minutes 56 seconds or less. The figure below displays the same data for KCFD #18.
Figure 36: KCFD #18 Response Time Frequency, 2010 300 250 200 150 40% 100 50 0 20% 0% Average 06:18 100% 80% 60%
90th Percentile at 10:19
Frequency
Accumlative %
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The most frequent response time is in the four-minute range and the average is 6 minutes 18 seconds. Ninety percent of all emergency requests for service within KCFD #18 were answered in 10 minutes 19 seconds or less. Turnout time is the interval from when the call information is transmitted to a fire station or apparatus from the communications center until an apparatus begins its response to the incident. Turnout time plus travel time constitute response time. Both NKFR and KCFD #18 record and report turnout time as part of their service level objectives reports. In Figure 37 (below), ESCI has calculated the 90th percentile turnout time performance for the three major categories of incidents.
Figure 37: KCFD #18/NKFR 90th Percentile Turnout Time by Incident Type, 2010 03:00 02:30 02:00 01:30 01:00 00:30 00:00 Fire EMS KCFD #18 NKFR Other
Neither NKFR nor KCFD #18 meet their stated performance standard for turnout time; however their 90th percentile turnout time performance is comparable to similar agencies across the region. Figure 38 compares the 90th percentile response times of NKFR and KCFD #18 by incident type, fires, EMS, and other (hazmat incidents, service calls, alarm system malfunctions, etc.).
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North Kitsap Fire & Rescue Kitsap County Fire District #18, WA Feasibility Study Figure 38: KCFD #18/NKFR 90th Percentile Response Time by Incident Type, 2010 14:00 12:00 10:00 08:00 06:00 04:00 02:00
00:00
KCFD NKFR
Fire 12:56 12:43
EMS 10:09 10:43
Other 11:27 11:18
The two agencies have similar response time performance in the general incident categories (displayed in Figure 38, above). The following figure (Figure 39) displays 90th percentile
response times categorized by hour of day.

Figure 39: KCFD #18/NKFR 90th Percentile Response Time by Hour of Day, 2010 13:30 12:00 10:30 09:00 07:30 06:00 04:30 03:00 01:30 00:00 Midnite 1:00 AM 2:00 AM 3:00 AM 4:00 AM 5:00 AM 6:00 AM 7:00 AM 8:00 AM 9:00 AM 10:00 AM 11:00 AM 12:00 PM 1:00 PM 2:00 PM 3:00 PM 4:00 PM 5:00 PM 6:00 PM 7:00 PM 8:00 PM 9:00 PM 10:00 PM 11:00 PM NKFR KCFD 118
Factors including extended turnout time during early morning hours, increased service population activity, traffic during the day, or lack of resources during high demand periods of the day; can all contribute to fluctuating response performance by time of day. Figure 40 displays eight-minute travel time coverage over the existing road network within NKFR. Fire Station Nos. 82 and 87 have not been assigned service areas, since these stations do not have primary response assignments.
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North Kitsap Fire & Rescue Kitsap County Fire District #18, WA Feasibility Study Figure 40: NKFR Eight-Minute Travel Time-Overlapping Coverage
As identified in the legend (Figure 40), the darker blue areas show areas of overlapping coverage from two or more NKFR stations. GIS analysis shows that there are approximately
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181 miles of road network within NKFRs jurisdiction. Of those 181 miles of road, 59 miles or 36 percent are within an eight-minute travel time of more than one NKFR station. Figure 41 demonstrates the eight-minute travel time service areas from each KCFD #18 fire station.
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North Kitsap Fire & Rescue Kitsap County Fire District #18, WA Feasibility Study Figure 41: KCFD #18 Eight-Minute Travel Time-Overlapping Coverage
KCFD #18 covers approximately 187 miles of road network; 81 miles or 43 percent of that road network is within an eight-minute travel time of two or more KCFD #18 fire stations.
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Figure 42 shows the overlapping coverage areas between KCFD #18 and NKFR.
Figure 42: KCFD #18/NKFR Overlapping Coverage Area
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Areas highlighted in yellow in Figure 42 (above) are served by at least one KCFD #18 and one NKFR station within an eight-minute travel time. GIS analysis reveals that the dual coverage area includes 70 miles of the 368 miles within the KCFD #18 and NKFR jurisdictions. When combined with the overlapping coverage areas displayed earlier, fifty seven percent of the combined area is served by two or more fire stations within an eight-minute travel time. KCFD #18 and NKFR have developed deployment standards to insure an adequate number of resources and personnel arrive at any given emergency incident. These standards are based on national standards,2122 fire service industry best practices, and the capabilities of the individual departments. The NKFR initial full alarm assignment for a structure fire consists of one battalion chief vehicle, four engines, and one medical unit (three water tenders if nonhydranted area). Twelve personnel are specified as the number of manpower required. The initial full assignment for a residential structure fire in KCFD #18 specifies three engines, one medic unit, and two duty chiefs (three water tenders for non-hydranted areas). KCFD #18 also specifies 12 personnel as a full first alarm assignment. The previous maps highlight the limited areas in the study area where resources from multiple stations can be delivered in a timely manner. NKFR and KCFD #18 rely on automatic/mutual aid, volunteer manpower, and firefighter interns to augment full-time personnel at incidents that require large full alarm assignments. Adding staffing and apparatus to fire stations or adding staffing during peak demand hours are possible methods to improve system response time performance and deal with increased service demand.
21
NFPA 1710, Standard for the Organization and Deployment of Fire Suppression Operations, Emergency Medical Operations, and Special Operations to the Public by Career Fire Departments. (National Fire Protection Association 2010). 22 NFPA 1720, Standard for the Organization and Deployment of Fire Suppression Operations, Emergency Medical Operations, and Special Operations to the Public by Volunteer Fire Departments. (National Fire Protection Association 2010).
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Comparable Kitsap County Fire District #18 and North Kitsap FR to National and Regional Benchmarks
Figure 43: Capital Resources per 1,000 Residents KCFD #18 0.300 0.250 0.200 0.150 NKFR National Median
Figures are derived from national median resource rates per
0.100
0.050 0.000 Stations Pumpers Aerials
On a national scale, most fire departments serving a similar population (between 10,000 and 24,499) maintain slightly fewer fire stations, equal number of frontline pumpers, and have one ladder truck compared to KCFD #18 and NKFR. Most fire departments support an (one) aerial equipment (ladder truck). Neither KCFD #18 nor NKFR have an aerial device but have chosen to rely on mutual and automatic aid.
Figure 44: Emergencies per 1,000 Residents 200 160 120 80 40 0
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The number of calls experienced by KCFD #18 and NKFR is in the mid-range of that experienced by all urban departments and above the high range of expectation for rural service. Both districts exceed the regional median (ten western states) of emergencies for departments serving a similar population base. This may be due in large part to the transportation routes that bisect the area.
Figure 45: Fires per 1,000 Residents 16.0 12.0 8.0 4.0 0.0
KCFD #18 experiences fire emergencies at less than half (48.17 percent) of the high of all urban departments, and below the low range of expectation for rural service. Similarly low, NKFR is at 53.34 percent of the urban high range is well below the rural low range of fire departments serving a similar population base. Additionally, KCFD #18 and NKFR are below the regional median.
Figure 46: Career Firefighters per 1,000 Residents 2.00 1.50 1.00 0.50 0.00 Regional Median National Median KCFD #18 NKFR
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KCFD #18 and NKFR have a slightly greater number of firefighters per 1,000 residents as the national median of other national fire departments serving a similar population base (10,000 to 24,999). The districts are also above the median of firefighters per 1,000 of regional (ten western states). Because the districts provide EMS transport services in addition to fire suppression, it is expected that the number of firefighters per 1,000 would be higher.
Figure 47: Volunteer/Intern Firefighters per 1,000 Residents 2.00
1.50
1.00
0.50
0.00
KCFD #18 and NKFR attract fewer volunteer/intern firefighters per 1,000 residents as the median of regional (ten western states) or national fire departments serving a similar population base (10,000 to 24,999).
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Comparing Kitsap County Fire District #18 and North Kitsap FR to Similar Agencies
Figure 48: Comparable Capital Resources per 1,000 Residents KCFD #18 Clallam #3 Pierce #16 Whatcom #7 NKFR Cowlitz #2 Snohomish #4
0.350 0.300 0.250 0.200 0.150 0.100 0.050 0.000
Stations
Pumpers
KCFD #18 and NKFR are near the average for number of fire station of the comparators (0.269) fire stations and pumpers (0.197) per 1,000 population served.
Figure 49: Comparable Career Firefighters per 1,000 Residents 1.80 1.60 1.40 1.20 1.00 0.80 0.60 0.40 0.20 -
KCFD #18 and NKFR have a greater number of career firefighters per 1,000 residents. This is directly related to both districts providing EMS transport.
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North Kitsap Fire & Rescue Kitsap County Fire District #18, WA Feasibility Study Figure 50: Comparable Agencies by Population 40,000 Average 30,000
20,000
10,000
The population served by KCFD #18 is 96 percent of the eight fire department average of 24,511. All of the comparable agencies serve populations greater than the population of NKFR.
Figure 51: Comparable Agencies by Service Area in Square Miles 180 150 120 90 60 30 0 Average
The service area of each comparable fire department is shown in Figure 51. At 45 and 54 square miles respectively, NKFR and KCFD #18 service areas are 47 and 56 percent of average of the eight departments.
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North Kitsap Fire & Rescue Kitsap County Fire District #18, WA Feasibility Study Figure 52: Comparable Emergencies per 1,000 Residents 200 160
120
80 40 0
The number of calls experienced by KCFD #18 and NKFR is nearly identical to the average (132 incidents per 1,000 population) of the eight comparators
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Fiscal Analysis
In the Fiscal Analysis section, historical financial data has been reviewed to identify potential trends or necessary adjustments to the entities current budgets that may impact future financial projections. This historical review examined taxable assessed value of property, revenue, and expenditures for each organization. Any identified unique revenue or expenditure line items that could impact the future projections are modified and footnoted in the financial statements for future years (projections). In developing future financial projections three primary variables were utilized. The first are the projections of Taxable Assessed Valuation (TAV) of property for each District. This calculation includes a projection of the annual taxable value of appraised property and the addition of newly constructed properties.23 Variable two is to project the impact inflation will have on revenue and expenditures of the Districts. Inflation is calculated using the ten-year average CPI index (2001 2010). The third variable is the calculation of the growth of salaries and benefits by using the historical rates for each agency. The development of these variables is shown in the figures and tables below. Economic Indicators Taxable Assessed Value Growth Rate The figure below identifies the projected impact on assessed property value and the estimated amount of new construction. The percentage values shown by year are the projected change in assessed value based on previous years total assessed value.
Figure 53: Forecast TAV Impact, 2011 2016 Year 2011 Budget 2012 2013 2014 2015 2016 Existing Property Assumptions 0.00% -5.00% 0.00% 0.25% 0.50% 1.00% New Construction Rate 0.00% 0.10% 0.15% 0.15% 0.20% 0.30%
23
The increase in assessed value and new construction was discussed and agreed to with each organizations administrative services group.
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Supporting the conservative forecast of assessed property value is the history of residential property sales in the area. The following figure shows number of home sales and the median value by quarter from January 2005 through December 2010 for Poulsbo.
Figure 54: Median Value and Home Sales in Poulsbo, 2005 2010
24
Sales have decreased considerably as has the median price of homes in Poulsbo during the five-year period. Figure 55 shows the number of home sales and the median value by quarter from January 2005 through December 2010 for Kingston.
24
www.city-data.com/zips/98370.html
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North Kitsap Fire & Rescue Kitsap County Fire District #18, WA Feasibility Study Figure 55: Median Value and Home Sales in Kingston, 2005 2010
25
Home sales and the decline of the median price in Kingston for the five-year period follow a similar pattern as has occurred in Poulsbo. Annual Inflation Rate Inflation is also an important consideration when forecasting cost. For the purpose of this
analysis, we use the average Consumer Price Index for all urban consumers (CPI-U) reported for the 2001 through 2010 period for the Seattle-Tacoma-Bremerton, WA Statistical Area as compiled by the U.S. Department of Labor.26 The information is displayed in both table and graphical format (below).
25 26
www.city-data.com/zips/98346.html. U.S. Department of Labor, Bureau of Labor Statistics, Consumer Price IndexAll Urban Consumers, Series Id: CUURA423SA0 Not Seasonally Adjusted, Area: Seattle-Tacoma-Bremerton, WA.
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North Kitsap Fire & Rescue Kitsap County Fire District #18, WA Feasibility Study Figure 56: Historical and Average CPI-U Table, 2001 2010 Year CPI-U AVG 2001 3.60% 2.380% 2002 1.90% 2.380% 2003 1.60% 2.380% 2004 1.20% 2.380% 2005 2.80% 2.380% 2006 3.70% 2.380% 2007 3.90% 2.380% 2008 4.20% 2.380% 2009 0.60% 2.380% 2010 0.30% 2.380%
Figure 57: Historical and Average CPI-U Graphic, 2001 2010 5.00% CPI-U 4.00% AVG
3.00%
2.00%
1.00%
0.00% 2001 2002 2003 2004 2005 2006 2007 2008 2009 2010
The historical ten-year average Consumer Price Index Urban (CPI-U) is 2.38 percent per year. This rate is used for analytical purposes during this review and that the actual CPI-U for a given year could be higher or lower. Historical information was used to develop an inflation index for the years 2011 through 2021 (Figure 58). The information is displayed in both table and graphical format (below). The CPI-U average increase will be applied to other revenue and expense categories of the 2011 budget to develop the forecast impact on the organization future financial stability.
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North Kitsap Fire & Rescue Kitsap County Fire District #18, WA Feasibility Study Figure 58: CPI-U Forecast Budget Impact Graphic, 2011 2021 1.30 1.25 1.20 1.15 1.10 1.05 1.00 2011 2012 2013 2014 2015 2016 2017 2018 2019 2020 2021
Figure 59: CPI-U Forecast Budget Impact Table, 2011 2021 Cumulative Year Forecast CPI-U Impact on 2011 Budget 2011 0.000% 1.000 2012 2.380% 1.024 2013 2.380% 1.048 2014 2.380% 1.073 2015 2.380% 1.099 2016 2.380% 1.125 2017 2.380% 1.152 2018 2.380% 1.179 2019 2.380% 1.207 2020 2.380% 1.236 2021 2.380% 1.265
Wage and Benefits Averaging actual wage and benefit data provided by the clients for 2007 through 2010, KCFD #18s annual average increase was 3.6 percent and 6.0 percent for NKFR. In fact during the four-year period of time, NKFR increased staffing and KCFD #18 had a net reduction in personnel.
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Historical Financial Review of Kitsap County Fire District #18 KCFD #18 Historical Taxable Assessed Value (TAV) Figure 60 below shows the historical TAV for KCFD #18 for 2007 through 2011. It includes the change is assessed value by year and the applicable tax rate.
Figure 60: KCFD #18 Historical TAV and Tax Rate, 2007 2011 Description Actual 2007 Actual 2008 Actual 2009 Actual 2010 Fire 3,314,972,190 3,706,207,193 3,717,537,856 3,483,740,868 EMS 3,320,241,214 3,711,413,927 3,722,519,437 3,488,502,178 % of Change Fire 11.80% 0.31% -6.29% % of Change EMS 11.78% 0.30% -6.29% Tax Rate Fire 0.889593 1.304888 1.336784 1.457369 EMS 0.321288 0.302267 0.500000 0.500000
Budget 2011 3,303,787,872 3,308,285,482 -5.17% -5.17% 1.500000 0.500000
In 2010 and 2011, KCFD #18s taxable assessed property value decreased an average of 5.73 percent. A direct result of decreasing property value is an increase in the tax rate. In 2011, both the fire and EMS tax rates are at their maximum level as restricted by State property tax limitation Initiative 747. KCFD #18 Historical Revenue Figure 61 (table) provides a detailed review of revenue for KCFD #18 from 2007 through 2011.
Figure 61: KCFD #18 Historical Revenue, 2007 2011 Actual Actual Actual Actual Description 2007 2008 2009 2010 Property Taxes 3,911,678 5,880,119 6,691,080 6,806,626 EMS Levy New Construction Leasehold Excise Tax 3,689 6,560 6,736 5,942 Timber Tax General Fire Protection Other Gov't Contracts 89,881 116,581 52,905 39,512 Ambulance & Emergency 863,397 847,784 749,120 762,324 Aid Interest Income 103,128 47,946 34,453 38,846 Facility Lease 790 960 535 1,905 Contributions Other Revenue 190,772 121,696 60,755 113,668 Total 5,163,335 7,021,646 7,595,584 7,768,823
Budget 2011 4,958,610 1,655,118 45,000 4,000 1,000 5,000 750,000 36,000 1,000 1,000 5,000 7,461,728
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Total revenue in the 2011 budget is forecast to decline 3.95 percent from 2010. This can be attributed to the decreasing value of assessed property value and reaching the maximum tax rate allowed by law. KCFD #18 Historical Expenditures Kitsap County Fire District #18 expenditures from 2007 to 2011 have increased by 15.2 percent or $0.9 million. The major contributing line items are increased wage and benefits of $0.5 million, increased capital of $0.2 million and the establishment of a contingency fund for potential budget over runs, $0.1 million. The following table depicts the historical spending for KCFD #18 from 2007 through 2011.
Figure 62: KCFD #18 Historical Expenditures, 2007 2011 Description Actual 2007 Actual 2008 Actual 2009 Actual 2010 Salaries & Wages 3,818,767 4,059,307 4,180,661 4,026,389 Personnel Benefits 1,084,755 1,302,534 1,340,858 1,395,437 Supplies 307,921 434,808 278,779 298,313 Other Services and Charges 539,421 683,133 428,993 466,191 Intergovernmental Services 126,627 149,153 96,311 91,007 Capital Requests 210,834 34,161 Debt 184,810 185,343 156,501 185,148 Contingency Fund Total Expenditures 6,062,302 6,814,278 6,692,937 6,496,646
Budget 2011 3,927,816 1,456,696 362,373 521,746 190,700 198,000 189,408 136,935 6,983,674
KCFD #18 Historical Summary of KCFD #18 Fund Balance The table (Figure 63) below summarizes the historical fund activity and balance of KCFD #18 from 2007 through 2011.
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North Kitsap Fire & Rescue Kitsap County Fire District #18, WA Feasibility Study Figure 63: KCFD #18 Historical Fund Balance, 2007 2011 Actual Actual Actual Actual Description 2007 2008 2009 2010 Beginning Fund Balance 2,543,245 1,644,279 1,851,647 2,754,294 Revenue 5,163,335 7,021,646 7,595,584 7,768,823 Expenditures Salaries & Wages 3,818,767 4,059,307 4,180,661 4,026,389 Personnel Benefits 1,084,755 1,302,534 1,340,858 1,395,437 Supplies 307,921 434,808 278,779 298,313 Other Services and Charges 539,421 683,133 428,993 466,191 Intergovernmental Services 126,627 149,153 96,311 91,007 Capital Requests 210,834 34,161 Debt 184,810 185,343 156,501 185,148 Contingency Fund Total Expenditures 6,062,302 6,814,278 6,692,937 6,496,646 Ending Fund Balance 1,644,279 1,851,647 2,754,294 4,026,471
Budget 2011 4,026,471 7,461,728 3,927,816 1,456,696 362,373 521,746 190,700 198,000 189,408 136,935 6,983,674 4,504,525
KCFD #18 has maintained an average five year positive fund balance of $2,956,243. This average is the growth of financial reserves in 2010 and budgeted amount for 2011. Forecast Financial Future of Kitsap County Fire District #18 This section of the report uses the assumptions (outlined earlier) to project the direction of KCFD #18s financial stability. Forecasts are based 2011 budget data and assume no changes in operating structure. KCFD #18 Forecast Taxable Assessed Value (TAV) The table (Figure 64 and Figure 65) forecast the changes in the fire and EMS TAVs for KCFD #18 from 2011 through 2016.
Figure 64: KCFD #18 Fire TAV Forecast, 2011 2016 Existing New TAV Existing TAV New Property Construction Property Construction Assumptions Rate 0.00% -5.00% 0.00% 0.25% 0.50% 1.00% 0.00% 0.10% 0.15% 0.15% 0.20% 0.30% 3,303,787,872 3,138,598,478 3,141,902,266 3,154,481,657 3,174,997,588 3,213,129,151 0 3,303,788 4,712,853 4,719,923 6,318,403 9,543,948
Year 2011 Budget 2012 2013 2014 2015 2016
Total TAV 3,303,787,872 3,141,902,266 3,146,615,120 3,159,201,580 3,181,315,991 3,222,673,099
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North Kitsap Fire & Rescue Kitsap County Fire District #18, WA Feasibility Study Figure 65: KCFD #18 EMS TAV Forecast, 2011 2016 Existing New TAV Existing TAV New Property Construction Property Construction Assumptions Rate 0.00% -5.00% 0.00% 0.25% 0.50% 1.00% 0.00% 0.10% 0.15% 0.15% 0.20% 0.30% 3,308,285,482 3,142,871,208 3,146,179,493 3,158,776,010 3,179,319,869 3,217,503,343 0 3,308,285 4,719,269 4,726,348 6,327,005 9,556,941
Year 2011 Budget 2012 2013 2014 2015 2016
Total TAV 3,308,285,482 3,146,179,493 3,150,898,763 3,163,502,358 3,185,646,874 3,227,060,284
KCFD #18 Forecast Revenue Property tax revenue is calculated at the maximum rate allowed of $1.50 per thousand for fire and $0.50 per thousand for EMS.
Figure 66: KCFD #18 Revenue Forecast, 2011 2016 Description Budget 2011 2012 2013 2014 2015 Property Taxes 4,958,610 4,712,853 4,719,923 4,738,802 4,771,974 EMS Levy 1,655,118 1,573,090 1,575,449 1,581,751 1,592,823 New Construction 45,000 Leasehold Excise Tax 4,000 4,095 4,193 4,292 4,395 Timber Tax 1,000 1,024 1,048 1,073 1,099 General Fire Protection Other Gov't Contracts 5,000 5,119 5,241 5,366 5,493 Ambulance & 750,000 767,850 786,125 804,835 823,990 Emergency Aid Interest Income 36,000 35,001 32,200 27,542 21,181 Facility Lease 1,000 1,024 1,048 1,073 1,099 Contributions 1,000 1,024 1,048 1,073 1,099 Other Revenue 5,000 5,119 5,241 5,366 5,493 Total Revenue 7,461,728 7,106,199 7,131,516 7,171,173 7,228,645
2016 4,834,010 1,613,530 4,499 1,125 5,624 843,601 13,310 1,125 1,125 5,624 7,323,572
With the assumptions used, total revenue for KCFD #18 will be lower than the 2011 budget in each subsequent year. KCFD #18 Forecast Expenditures Salary and wages expense categories were increased by 4.00 percent; all other expense categories were inflated at the 10 year average CPI of 2.38 percent except for debt. Debt payment was forecast using the current amortizations/payment schedule.
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North Kitsap Fire & Rescue Kitsap County Fire District #18, WA Feasibility Study Figure 67: KCFD #18 Expenditure Forecast, 2011 2016 Description Budget 2011 2012 2013 2014 2015 Salaries & Wages 3,927,816 4,084,929 4,248,326 4,418,259 4,594,990 Personnel Benefits 1,456,696 1,514,964 1,575,562 1,638,585 1,704,128 Supplies 362,373 370,998 379,827 388,867 398,122 Other Services and 521,746 534,163 546,876 559,892 573,217 Charges Intergovernmental 190,700 195,239 199,885 204,643 209,513 Services Capital Requests 198,000 202,712 207,537 212,476 217,533 Debt 189,408 188,208 186,643 189,628 186,904 Contingency Fund 136,935 141,824 146,893 152,247 157,688 Total Expenditures 6,983,674 7,233,037 7,491,550 7,764,597 8,042,096
2016 4,778,789 1,772,293 407,598 586,860 214,500 222,711 188,489 163,425 8,334,664
KCFD #18 Forecast Summary of Fund Balance Figure 68 combines the forecast revenues, expenditures, historical ending fund balances, and the results of the analysis.
Figure 68: KCFD #18 Forecast Fund Balance, 2011 2016 Description Budget 2011 2012 2013 2014 2015 Beginning Fund Balance 4,026,471 4,504,525 4,377,687 4,017,653 3,424,229 Revenue 7,461,728 7,106,199 7,131,516 7,171,173 7,228,645 Expenditures Salaries & Wages 3,927,816 4,084,929 4,248,326 4,418,259 4,594,990 Personnel Benefits 1,456,696 1,514,964 1,575,562 1,638,585 1,704,128 Supplies 362,373 370,998 379,827 388,867 398,122 Other Services and Charges 521,746 534,163 546,876 559,892 573,217 Intergovernmental Services 190,700 195,239 199,885 204,643 209,513 Capital Requests 198,000 202,712 207,537 212,476 217,533 Debt 189,408 188,208 186,643 189,628 186,904 Contingency Fund 136,935 141,824 146,893 152,247 157,688 Total Expenditures 6,983,674 7,233,037 7,491,550 7,764,597 8,042,096 Ending Fund Balance 4,504,525 4,377,687 4,017,653 3,424,229 2,610,778
2016 2,610,778 7,323,572 4,778,789 1,772,293 407,598 586,860 214,500 222,711 188,489 163,425 8,334,664 1,599,687
The financial fund summary of KCFD #18 shows a deteriorating ending fund balance through 2016 with a total decline of 64.5 percent. This deterioration is caused by a soft housing market, slow growth, and inflation in operating costs. KCFD #18 will need to manage expenditures closely in the next several years to not experience a reduction of service. Historical Financial Review of North Kitsap Fire & Rescue NKFR Historical Taxable Assessed Value (TAV) Figure 69 below shows the historical fire and EMS TAV for NKFR for 2007 through 2011. It includes the change is assessed value by year and the applicable tax rate.
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North Kitsap Fire & Rescue Kitsap County Fire District #18, WA Feasibility Study Figure 69: NKFR Historical TAV and Tax Rate, 2007 2011 Actual 2007 Actual 2008 Actual 2009 Actual 2010 2,781,640,906 3,199,982,745 3,202,948,772 2,952,962,712 2,784,860,046 3,202,563,425 3,205,111,362 2,954,975,539 15.04% 0.09% -7.80% 15.00% 0.08% -7.80% 1.285388 0.336834 1.158883 0.500000 1.186419 0.500000 1.309430 0.500000
Description Fire EMS % Change Fire % Change EMS Tax Rate Fire EMS
Budget 2011 2,743,847,365 2,745,732,897 -7.08% -7.08% 1.430553 0.500000
In 2010 and 2011, NKFRs taxable assessed property value decreased an average of 7.44 percent. A direct result of decreasing property value is an increase in the tax rate. In 2008, the EMS tax rate was at the maximum level as restricted by State property tax limitation Initiative 747. While not at the maximum in 2011, the fire tax rate is projected to hit the maximum in 2012. NKFR Historical Revenue Figure 70 (table) provides a detailed review of revenue for NKFR from 2007 through 2011.
Figure 70: NKFR Historical Revenue, 2007 2011 Description Actual 2007 Actual 2008 Actual 2009 Actual 2010 Property Taxes - Fire 4,529,211 5,221,036 5,335,940 5,334,795 Property Taxes - EMS Emergency Preparedness 93,204 10,264 Repair Charges 47,301 64,759 58,440 93,938 Leasehold Excise Tax 9,059 9,481 9,394 9,788 EMS Pre-hospital Grant 1,439 1,644 1,726 2,186 State Shared Revenue 5,015 5,205 865 3,202 Other Gov't Contracts 134,118 97,569 143,016 95,036 Ambulance & Emergency 541,003 484,554 432,881 395,518 Aid Interest Income 78,058 68,098 49,419 40,696 Facility Lease 925 225 17,333 184 Contributions 210 90 300 100 Capital Lease 148,917 517,214 68,885 Operating Transfer In 7,000 413,000 8,827 Other Revenue 3,941 2,815 10,891 10,561 Total Revenue 5,506,197 6,978,894 6,148,183 5,986,004
Budget 2011 3,925,218 1,372,866 84,683 3,500 1,439 700 71,250 421,373 27,318 150 200 1,000 5,909,697
Total revenue for NKFR declined 2.60 percent in 2010 and 2.00 percent in the 2011 budget. This can be attributed to the decreasing value of taxable assessed property value and reaching the maximum EMS tax rate ascribed by law.
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NKFR Historical Expenditures District (NKFR) expenditures from 2007 to 2011 have increased by 16.4 percent or $0.851 million. The major contributing line items are increased wage and benefits of $1.1 million, which is off-set by a decrease in capital of $0.2 million. The following table (Figure 71) depicts the historical spending for NKFR from 2007 through 2011.
Figure 71: NKFR Historical Expenditures, 2007 2011 Actual Actual Actual Actual 27 2007 2009 2010 2008 3,679,212 3,904,139 4,140,105 4,356,531 301,336 339,562 368,706 383,377 187,421 342,246 255,393 276,327 553,025 88,593 263,484 117,200 5,190,271 448,864 80,138 615,243 412,731 117,200 6,260,124 372,798 86,966 83,581 181,548 5,489,097 376,819 73,288 36,665 180,234 5,683,241 Budget 2011 4,640,466 408,320 276,147 415,009 86,156 70,318 145,745 6,042,161
Description
Salaries & Wages Personnel Benefits Supplies Other Services and Charges Intergovernmental Services Capital Requests Transfer In Debt Total Expenditures
Between fiscal year 2007 and 2011 salary and wage increases included the hiring of 12 personnel, promotion of nine, and five retirements. NKFR Historical Summary of NKFR Fund Balance The table (Figure 72) below summarizes the historical fund activity and balance of NKFR from 2007 through 2011.
27
Fiscal year 2008 includes the capital expenditure for one (1) Type 1 engine.
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North Kitsap Fire & Rescue Kitsap County Fire District #18, WA Feasibility Study Figure 72: NKFR Historical Fund Balance, 2007 2011 Description Actual 2007 Actual 2008 Actual 2009 Actual 2010 Beginning Fund Balance 1,380,939 1,696,970 2,415,758 3,074,844 Revenue 5,506,197 6,978,894 6,148,183 5,986,004 Expenditures Salaries & Wages 3,679,212 3,904,139 4,140,105 4,356,531 Personnel Benefits 301,336 339,562 368,706 383,377 Supplies 187,421 342,246 255,393 276,327 Other Services and Charges 553,025 448,864 372,798 376,819 Intergovernmental Services 88,593 80,138 86,966 73,288 Capital Requests 263,484 615,243 83,581 36,665 Debt 117,200 117,200 181,548 180,234 Total Expenditures 5,190,271 6,260,124 5,489,097 5,683,241 Ending Fund Balance 1,696,970 2,415,758 3,074,844 3,377,607
Budget 2011 3,377,607 5,909,697 4,640,466 408,320 276,147 415,009 86,156 70,318 145,745 6,042,161 3,245,143
NKFR has maintained an average five year positive fund balance of $2,761,945. The fund balance has increased every year through 2010. In 2011 the fund balance is projected to decrease. Forecast Financial Future of North Kitsap Fire & Rescue This section of the report uses the assumptions (outlined earlier) to project the direction of NKFRs financial stability. Forecasts are based 2011 budget data and assume no changes in operating structure. NKFR Forecast Taxable Assessed Value (TAV) The table (Figure 73 and Figure 74) forecast the changes in the fire and EMS TAVs for NKFR from 2011 through 2016.
Figure 73: NKFR Fire TAV Forecast, 2011 2016 Existing New TAV Existing TAV New Property Construction Property Construction Assumptions Rate 0.00% -5.00% 0.00% 0.25% 0.50% 1.00% 0.00% 0.10% 0.15% 0.15% 0.20% 0.30% 2,743,847,365 2,606,654,997 2,609,398,844 2,619,846,225 2,636,885,025 2,668,553,883 0 2,743,847 3,914,098 3,919,969 5,247,532 7,926,398
Year 2011 Budget 2012 2013 2014 2015 2016
Total TAV 2,743,847,365 2,609,398,844 2,613,312,942 2,623,766,194 2,642,132,558 2,676,480,281
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North Kitsap Fire & Rescue Kitsap County Fire District #18, WA Feasibility Study Figure 74: NKFR EMS TAV Forecast, 2011 2016 Existing New TAV Existing TAV New Property Construction Property Construction Assumptions Rate 0.00% -5.00% 0.00% 0.25% 0.50% 1.00% 0.00% 0.10% 0.15% 0.15% 0.20% 0.30% 2,745,732,897 2,608,446,252 2,611,191,985 2,621,636,753 2,638,667,600 2,670,305,395 0 2,745,733 3,916,788 3,922,663 5,251,119 7,931,756
Year 2011 Budget 2012 2013 2014 2015 2016
Total TAV 2,745,732,897 2,611,191,985 2,615,108,773 2,625,559,416 2,643,918,719 2,678,237,151
NKFR Forecast Revenue Property tax revenue is calculated at the maximum rate allowed of $1.50 per thousand for fire and $0.50 per thousand for EMS.
Figure 75: NKFR Revenue Forecast, 2011 2016 Budget 2012 2013 2014 2011 3,925,218 3,914,098 3,919,969 3,935,649 1,372,866 1,305,596 1,307,554 1,312,780 84,683 3,500 1,439 700 71,250 421,373 27,318 150 200 1,000 5,909,697 86,698 3,583 1,473 717 72,946 431,402 22,903 154 205 1,024 5,840,798 88,762 3,669 1,508 734 74,682 441,669 18,543 157 210 1,048 5,858,505 90,874 3,756 1,544 751 76,459 452,181 12,556 161 215 1,073 5,887,999
Description Property Taxes - Fire Property Taxes - EMS Emergency Preparedness Repair Charges Leasehold Excise Tax EMS Pre-hospital Grant State Shared Revenue Other Gov't Contracts Ambulance & Emergency Aid Interest Income Facility Lease Contributions Capital Lease Operating Transfer In Other Revenue Total Revenue
2015 3,963,199 1,321,959 93,037 3,845 1,581 769 78,279 462,943 4,998 165 220 1,099 5,932,093
2016 4,014,720 1,339,118 95,252 3,937 1,619 787 80,142 473,961 169 225 1,125 6,011,054
With the assumptions used, total revenue for NKFR will be lower in 2012 than the 2011 budgeted amount and relatively stagnant in each subsequent year.
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NKFR Forecast Expenditures Salary and wages expense categories were increased by 4.00 percent; all other expense categories were inflated at the 10 year average CPI of 2.38 percent except for debt. Debt payment was forecast using the current amortizations/payment schedule.
Figure 76: NKFR Expenditure Forecast, 2011 2016 Budget 2012 2013 2014 2011 4,640,466 4,826,085 5,019,128 5,219,893 408,320 424,653 441,639 459,304 276,147 282,719 289,448 296,337 415,009 86,156 70,318 145,745 6,042,161 424,886 88,207 71,992 64,345 6,182,886 434,999 90,306 73,705 64,345 6,413,570 445,351 92,455 75,459 64,345 6,653,146
28
Description Salaries & Wages Personnel Benefits Supplies Other Services and Charges Intergovernmental Services Capital Requests Transfer in Debt Total Expenditures
2015 5,428,689 477,677 303,390 455,951 94,656 77,255 64,345 6,901,962
2016 5,645,836 496,784 310,610 466,802 96,908 79,094 64,345 7,160,380
NKFR Forecast Summary of Fund Balance Figure 77 combines the forecast revenues, expenditures, historical ending fund balances, and the results of the analysis.
Figure 77: NKFR Forecast Fund Balance, 2011 2016 Budget 2011 2012 2013 2014 2015 3,377,484 5,864,479 4,640,466 408,320 276,147 415,009 86,156 70,318 145,745 6,042,161 3,245,020 3,245,020 5,840,798 4,826,085 424,653 282,719 424,886 88,207 71,992 64,345 6,182,886 2,902,932 2,902,932 5,858,505 5,019,128 441,639 289,448 434,999 90,306 73,705 64,345 6,413,570 2,347,868 2,347,868 5,887,999 5,219,893 459,304 296,337 445,351 92,455 75,459 64,345 6,653,146 1,582,722 1,582,722 5,932,093 5,428,689 477,677 303,390 455,951 94,656 77,255 64,345 6,901,962 612,853
Description Beginning Fund Balance Revenue Expenditures Salaries & Wages Personnel Benefits Supplies Other Services and Charges Intergovernmental Services Capital Requests Debt Total Expenditures Ending Fund Balance
2016 612,853 6,011,054 5,645,836 496,784 310,610 466,802 96,908 79,094 64,345 7,160,380 (536,473)
28
Between fiscal year 2007 and 2011 salary and wage increases included the hiring of 12 personnel, promotion of nine, and five retirements.
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The financial fund summary of NKFR shows a deteriorating ending fund balance with 2016 operating at a negative cash position. This deterioration is caused by a soft housing market, slow growth, and inflation in operating costs. NKFR will need to manage expenditures closely in the next several years to not experience a reduction of service.
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Processes for Collaboration

The possible efficiencies this study identified can be categorized using an escalating level of cooperation between Kitsap County Fire District #18 and North Kitsap Fire & Rescue. Those general partnering strategies fall in a range from remaining autonomous to the creation of a new organization encompassing both agencies. These general strategies are further broken down into short-, mid- and long term implementation horizons.
General Partnering Strategies

A number of policy options exist for integrating the fire and emergency services of Kitsap County Fire District #18 and North Kitsap Fire & Rescue. The various partnering strategies are described, beginning with a do-nothing approach and ending with complete consolidation of the agencies into a new emergency service provider. The following alternatives will be evaluated and discussed: Maintain status quo Administrative consolidation Functional consolidation Operational consolidation Full merger Regional Fire Authority (RFA)
Status Quo This is a do-nothing strategy. While typically viewed negatively, in some cases the best action is no action. In this case, maintaining status quo means that essentially nothing changes. Kitsap County Fire District #18 and North Kitsap Fire & Rescue are neighboring agencies who occasionally call upon each other for assistance, but remain completely independent. The advantages of this approach are that its the easiest strategy to implement, creates the least amount of work or stress on the two organizations, and does not necessitate any reorganizing. One additional consideration is that it maintains local control. That is, the
currently elected boards continue to oversee their individual agencies as their electorate desires, without the complication of considering the views of a different constituency.
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The disadvantages of this approach are that the current fiscal difficulty facing both agencies is not changed, the opportunities for efficiency (either financial or service level) through greater collaboration are not realized, and some duplication and overlap continue. In todays
environment, taxpayers typically hold their elected officials accountable for delivering a quality level of service at an affordable rate, and expect creative thinking to solve problems or achieve those ends. While maintaining the status quo is easy and involves the least amount of impact to the two agencies, it may well be one of the riskier decisions to make politically. Administrative Consolidation An administrative consolidation occurs when two or more agencies maintain their separate legal status and separate operational elements, but combine some or all of their administrative functions. Examples include combining the administration under one fire chief, and combining clerical, HR, IT and/or Financial functions while maintaining separate operational activities. An Administrative Consolidation is accomplished legally through an Interlocal Cooperation Agreement between the two agencies.29 The advantages of such a model include reduced overhead costs by eliminating administrative duplication; a gradual alignment of otherwise separate operations under a single administrative head; less resistance to change by the rank and file in the operational elements than other consolidation options; and singularity of purpose, focus, and direction at the top of the two organizations. This strategy lends itself well to a gradual move toward a single, consolidated agency where differences in attitude, culture and/or operation are otherwise too great to overcome in a single move to combine. The disadvantages include potential conflicts in policy direction from the two boards; potentially untenable working conditions for the fire chief (one man, two bosses); and increased potential for personnel conflict as separate employee groups vie for dominance/supremacy. Functional Consolidation Functional consolidation is when the two agencies continue to exist separately, but they combine certain functions into a common resource, such as combining training divisions into one division for both agencies. This strategy requires alignment of standard operating
guidelines, policies, procedures and certain operational aspects to make the consolidated function perform properly. A structure of shared decision-making is typically created as they
29
RCW 39.34.030
148
relate to the consolidated function(s). This requires policy-makers and administrators to voluntarily forfeit their authority to unilaterally change actions, activities or direction in the consolidated function area in favor of a collaborative approach. A Functional Consolidation is accomplished legally through an Interlocal Cooperation Agreement between the two agencies.30 The advantages of this strategy are greater opportunities for efficiency; an opportunity to reinvest redundant resources into those areas lacking in resources (e.g., transferring a duplicate training officer back to a line (operations) function, increasing line strength); and a closer working relationship between members of the two agencies in the consolidated function(s) that can spill over to other unrelated activities in the two agencies. This type of consolidation may be a segue to greater levels of cooperation. Barriers can be broken down as members of one agency realize that the members of the other agency arent so bad after all. The disadvantages being that functional consolidations require a much greater collaboration between the two agencies than the previously discussed partnering strategies; numerous details must be worked out in advance of such a consolidation, including but not limited to, work rules, employee assignments, compensation, office location, logos, asset allocation, authority and even the name of the consolidated function; and independence and autonomy are lost in the areas of consolidation, even bleeding over into other seemingly unaffected areas. Operational Consolidation This partnering strategy takes the next step in the continuum of closer collaboration. In this case, all operations are consolidated under a single organizational that serves both agencies. The two Districts remain independent organizations from a legal/political/taxing standpoint, but from a service level standpoint, the organization operates as one agency. An Operational
Consolidation is accomplished legally through an Interlocal Cooperation Agreement between the two agencies.31 This strategy requires a significant commitment toward a full consolidation and is usually done as a segue toward full consolidation and the administrations and policymaking bodies work out the last details. The level of trust required to implement operational consolidation is very high, since independence and autonomy have been willingly relinquished in favor of the preferred future state of a full consolidation.
30 31
RCW 39.34.030 RCW 39.34.030
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The advantages of this form of consolidation are that the greatest opportunity for efficiency is typically in the operational element where the expense is greatest; and the level of trust and cooperation required to make this strategy successful implies a near-readiness to take the next step to full consolidation. The disadvantage is that administrators and policy-makers must share power and gain consensus where they once had unilateral authority to control and implement. Full Merger A merger is a complete combining of the two agencies into one agency. The other agency is absorbed into and becomes part of the other agency. For two fire districts to merge, one district ceases to exist (merging agency) and the other becomes the surviving entity (merger agency). The employees of the merging agency are transferred to the merger agency, and the elected officials are either eliminated with the merging district or brought into the merger district through a resolution expanding the board of fire commissioners from three to five. In this case, both boards are already at the five board member limit. There is no room for board members to be absorbed into the merger district. A merger between North Kitsap Fire & Rescue and Kitsap County Fire District #18 would require a decision on which agency will be the surviving agency (merger district) and which agency will dissolve (merging district) into the surviving agency. The merger is subject to review by the Boundary Review Board if jurisdiction is invoked by an affected governmental agency, if a petition is submitted by 5 percent of the affected population requesting review, or if three members of the Boundary Review Board requests review. 32 Once a decision to merge is made by the merging district board, a merging district must submit a petition to merge to the merger district requesting the merger. If the merger district accepts the petition and terms of the proposed merger, it adopts a resolution accordingly and sends the resolution, along with the original petition, back to the merging district board. The merging district board then adopts a resolution requesting the county auditor to call a special election in the merging district. A simple majority determines the outcome of the election. If the majority voted yes, the respective district boards adopt concurrent resolutions declaring the districts merged under the name of the merger district.
32
RCW 36.93.100
150
The board of fire commissioners of the merged district shall consist of all of the fire commissioners of the merging district. The combined board will then be reduced by one
whenever a fire commissioner resigns from office or a vacancy otherwise occurs on the board, until the board reaches five members. The election for merger may also establish
commissioner districts if unanimously approved by both boards prior to the merger vote and is included in the ballot language for merger. In this case, the same process of board member reductions occurs as if no commissioner districts were formed until the merged board is reduced to the five members. At that point, the commissioner districts shall be drawn and used for the election of the successor fire commissioners. Regional Fire Authority An alternative to a merger is the formation of a Regional Fire Authority (RFA). An RFA is a new entity whereby both districts fall under this new structure with a new tax base, a new operational plan and a new legal framework. Should the decision be made to move forward with RFA formation, the first step is the formation of a Planning Committee, considered to be the most important component of the process. The Planning Committee is charged with establishing the RFA Plan, which specifies how the Authority will be funded, operated and governed. While the formation of a Planning Committee is the first procedural step, this step will likely follow many informal meetings and discussions by the participating jurisdictions. Most successful RFAs have established formal steering
committees composed of a wide variety of stakeholders to determine the feasibility of creating a RFA far in advance of forming the actual Planning Committee. The Planning Committee is comprised of three elected officials appointed from each of the participating agencies, assuring an equal voice in the decision making process for everyone involved. Moving forward with the formation of an RFA also requires approval by all of the affected governing bodies prior to the initiative being put before the voters. The Planning
Committee composition, responsibilities and procedures are discussed in further detail in the legal considerations discussion, below. Funding Mechanisms A key consideration of the RFA formation decision is that of funding. The RFA Plan will identify funding sources that may include some or all of the following: Fire levies
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EMS levies Excess levies Benefit charges Bonds for capital purchases
Facilities and Equipment The ownership or transfer of ownership of capital assets is not prescribed by law and will be determined by the Planning Committee. Although ownership of facilities and equipment will most likely be transferred to the newly formed RFA, the responsibility for bonded indebtedness for capital assets will remain that of the originating agency until the debt is satisfied. Staffing and Personnel Under a Regional Fire Authority configuration, employees and members of the agencies joining forces in the RFA become employees and members of the new organization, including career and volunteer personnel. Unless otherwise declared in the process of forming the new
Authority, employees will retain the rights, benefits and privileges that they had under their preexisting collective bargaining agreements. Roles and responsibilities assigned to agency personnel may change in a newly formed RFA when modifications are necessary in the interest of service delivery requirements. For this reason, involvement of labor and volunteer organization representatives from the onset of the process is essential. Governance and Administration A Regional Fire Authority is governed by a single governance board. The number of board members and the length of their service terms is determined by the Planning Committee. The statute authorizing the formation of an RFA does not place limitations on the number of members serving on the board, leaving that decision to the Planning Committee and, ultimately, the voters. ESCI is familiar with one RFA where there are 12 board members. Administration of the new Authority, once established, becomes the responsibility of the newly established governing board. The Planning Committee, however, will include in its body of work identification of the composition of the RFAs administrative staff. The fire chief and his/her
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command staff, as agreed to by the Planning Committee with subsequently report to the governing board. Legal Considerations A number of important legal considerations must be taken into account in the formation of a Regional Fire Authority. They are summarized below: Fire Protection Jurisdiction Only fire protection jurisdictions may participate in the formation of an RFA. RCW 52.26.020 defines fire protection jurisdictions as fire district, city, town, port district or Indian Tribe. It is important to recognize that the Suquamish Tribe could form their own fire service and elect to participate in the RFA as full participants in this study or elect to allow North Kitsap Fire & Rescue to represent their interests as their current provider of fire services. Regional Fire Protection Service Authority Plan Planning Committees are tasked with forming the RFA Plan. The RFA Plan outlines the plan for governance, financing, operations, boundary changes and other considerations and is the Plan that the voters are asked to approve when voting on the formation of the RFA. The RFA plan is a critical document in the formation of the RFA and serves a role similar to a charter or constitution for the ongoing operation of the RFA. Formation Procedures Like any other type of significant consolidation, the formation of RFA requires careful planning. Because the RFA creates a new entity, there is an added layer of complexity to the planning. The new entity will need to register with the Internal Revenue Service (IRS), establish new accounts with the County and vendors, contracts will need to be assigned and negotiated, labor agreements need to be negotiated, payroll systems may need to be established, etc. In other words the formation of a new entity can be incredibly time intensive and an attention to detail is critical. The formation of an RFA is not subject to review by a Boundary Review Board or a County legislative authority. The formation of an RFA is, however, likely subject to compliance with the State Environmental Policy Act SEPA. The advantages of this strategy are that it allows both agencies to retain the strengths of each agency, minimize the weaknesses of each agency, and establish new best practices not currently provided by either agency; it facilitates a contemporary look at services, resources, and costs, finding the right balance for the community; it retains (or has the potential to retain) all of the policy-makers of the two Districts in a governing board, thus utilizing the vision and
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commitment that initiated the strategy; creates an opportunity to right-size the revenue with the cost of operation; and provides an active role for the citizens being served in setting their service level and costs. The disadvantages of pursuing this strategy are the loss of autonomy; the loss of a familiar structure (although RFAs operate almost identically to a fire district); the investment of time and effort to develop an RFA plan can be rendered moot by the voters; and funding options are not significantly better for RFAs than they are for fire districts. There are numerous configuration options with an RFA. In addition to the Suquamish Tribe, Bainbridge Island Fire Department, Central Kitsap Fire & Rescue, and/or Jefferson #3 (Port Ludlow) could join the RFA study effort. There are no limitations regarding crossing county lines.
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Strategies for Efficiency

The Strategies for Efficiency are listed in the next section of this report. They each fall into one of the general partnering strategies listed above, and represent various steps along the continuum of partnering. Some are dependent upon others and some can be implemented independent of other actions. They are categorized into the following major headings: Level of cooperation, i.e. Functional Consolidation, Operational Consolidation, Merger Timeline for completion Affected section, i.e. Administration, Operations, Support Services Affected stakeholders Objective(s) Summary of strategy Discussion of strategy Guidance Fiscal considerations
Timelines are described as short-, middle, or long-term. Short-term is considered to occur within one year to 18 months; middle term is from three to five-years; and long-term is generally thought of as anything beyond five-years. The timelines are flexible because most partnering strategies are interdependent, which necessitates cross-strategy integration of planning and implementation. It is important to point out that KCFD #18 and NKFR are already working to implement select concepts. Regardless of the existing level of implementation, we provide detailed information on all strategies to provide the reader with a complete picture of the cooperative potential. For instance, NKFR provides contract vehicle maintenance for other agencies; however, we include a discussion of the strategy (Overarching Strategy 1 Administrative Consolidation) as an element of the report. Not including this discussion within the framework of the report yields an incomplete depiction. The discussion of each cooperative strategy includes a listing of the affected agencies. In most instances, programs are limited to just KCFD #18 and NKFR but may influence the programs of others. Consequently, the summary description may indicate bearing on more agencies than would seem intuitive.
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A summary table listing each of the strategies with the objective, level of cooperation, timeline, organization section, and affected agencies precedes the detailed discussion.
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North Kitsap Fire & Rescue Kitsap County Fire District #18, WA Feasibility Study Figure 78: Summary Table of Overarching Strategies Overarching Strategy (See page for detail) Overarching Strategy 1 Administrative Consolidation See page 165 Overarching Strategy 2 Functional Consolidation See page 172 Overarching Strategy 3 Operational Consolidation See page 180 Overarching Strategy 4 Full Merger See page 186 Overarching Strategy 5 Regional Fire Authority See page 196 Objective(s) Combine the administrative elements of both agencies into one Administrative Services Division, which promotes improved efficiencies by eliminating duplication in both agencies. Combine specific operational and support elements of both agencies into singular functions, to promote improved efficiencies by eliminating some duplication. Combine all operational elements of both agencies into a singular function to promote improved efficiencies by eliminating some duplication. Combine the two organizations into one to improve efficiency by eliminating some duplication. Combine all functions and all services under a new organization with shared governance and a new taxing structure, to promote improved efficiencies by eliminating duplication. Level of Cooperation Timeline Short, Mid, Long Section Affected Agencies
Administrative
Long Term
Administration
Both Agencies
Functional
Long Term
Support Services and Emergency Operations Emergency Operations All Sections, all Divisions
Both Agencies
Operational
Long Term
Both Agencies
Organizational
Long Term
Both Agencies
Organizational
Long Term
All Sections, all Divisions
Both Agencies
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North Kitsap Fire & Rescue Kitsap County Fire District #18, WA Feasibility Study Figure 79: Summary Table of Partnering Strategies Partnering Strategy (See page for detail) Objective(s) Provide guidelines for operation during emergencies, emergent and non-emergent incidents. Provide a system of shared operational plans for use during emergencies and nonemergent incidents. Provide for distribution of facilities and deployment of personnel consistent with a regional standard of cover (see Deployment Standards recommendation later in this report). Provide consistent fire and emergency services within areas efficiently before, during, and after development Provide special response units in areas of high incident activity and for replacement of units attending training sessions or called to cover special events. Provide a uniform electronic system that combines telephone callback, personnel scheduling, and includes payroll and administrative features. Provide guidelines for operation during emergencies and non-emergency incidents and activities. Provide specialty teams or specialty functions by allocating and distributing resources to achieve minimum cost and maximum operational benefit. EMS, Emergency Operations, and Training Administration and Emergency Operations Emergency Operations Emergency Operations Level of Cooperation Timeline Short, Mid, Long Short Term Section Affected Agencies
Strategy A Develop a Joint Support and Logistics Services Division

See page 207 Strategy B Develop Uniform Pre-Incident Plans See page 213
Functional
Emergency Operations Emergency Operations
Both agencies
Functional
Short Term
Both Agencies
Strategy C Provide for Joint Staffing of Fire Stations and Apparatus See page 217
Functional
Long Term
Emergency Operations
Both Agencies
Strategy D Provide Regional Incident Command and Operations Supervision See page 221 Strategy E Purchase and Implement an Electronic Staffing Program See page 224 Strategy F Develop Standard Operating Guidelines See page 227 Strategy G Shared Specialty Teams See page 229
Functional
Mid Term
Both Agencies
Functional
Short Term
Both Agencies
Functional
Short Term
Both Agencies
Functional
Mid Term
Both Agencies
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North Kitsap Fire & Rescue Kitsap County Fire District #18, WA Feasibility Study Partnering Strategy (See page for detail) Level of Cooperation Timeline Short, Mid, Long Affected Agencies
Objective(s) Comply with RCW 52.33 Fire Departments Performance Measures (North Kitsap Fire & Rescue is currently non-compliant)
Section
Strategy H Provide Joint Standards for Service Delivery See page 231
Establish a joint Standards for Service Delivery Policy, defining services, service levels, and response times to the 90th percentile so that adequate system planning can take place. Develop a system-wide reporting structure to standardize the collection and reporting of relative compliance with the Standards for Service Delivery Policy
Functional
Short to Mid Term
EMS and Emergency Operations
Both Agencies
Strategy I Implement the Use of Peak Activity Units (PAUs) See page 236 Strategy J Develop Deployment Standards See page 239 Strategy K Shared Public Education/Public Information See page 241 Strategy L Shared or Common Records Management System See page 242 Strategy M Shared Intern Program See page 244
Provide special response units in areas of high incident activity and for replacement of units attending training sessions or called to cover special events. Develop deployment standards that establish the distribution and concentration of emergency resources, both fixed and mobile. Provide Public Education and Public Information services for the combined service area Establish a shared or common electronic Records Management System, including NFIRS, NEMSIS and WEMSIS compliant software for both agencies To augment staffing levels in the Kitsap County Fire District #18 service area To develop a recruit training program for future hires
Functional
Mid Term
Functional
Short Term
Functional
Mid Term
Functional
Mid Term
EMS, Emergency Operations, and Training EMS and Emergency Operations Administration and Fire Prevention Administration and Emergency Operations Administration, Training and Emergency Operations
Both Agencies
Both Agencies
Both Agencies
Both Agencies
Functional
Mid Term
Kitsap County Fire District #18
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North Kitsap Fire & Rescue Kitsap County Fire District #18, WA Feasibility Study Partnering Strategy (See page for detail) Strategy N Combine Volunteer Services See page 246 Strategy O Combine Administrative Services See page 248 Strategy P Implement North Kitsap Benefit Package See page 250 Strategy Q Align Operational Staffing Schedules See page 252 Strategy R Adopt Dropped Border Response See page 255 Strategy S Adopt CriteriaBased Dispatch See page 256 Strategy T Implement a Computerized Training Records Management System See page 258 Level of Cooperation Functional Timeline Short, Mid, Long Mid Term Affected Agencies Both Agencies
Objective(s) Combine existing volunteer cadre into a resource pool for both agencies to utilize
Section Emergency Operations and Training Administration
Functional Manage escalating health care insurance premiums by adopting the NKFR Employee Benefit Policy contained in their 2009-2010 Collective Bargaining Agreement. Adopt the 56 hour work week and reduce consecutive hours of work to 24 (either a 2448 or a modified Detroit 56) Improve service delivery to both agencies by sending the closest unit to an emergency call for service without regard to jurisdiction. Send the most appropriate unit to an emergency based on medical criteria established by experts in the field. Provide a fully integrated comprehensive training records management system (RMS).
Mid Term
Both Agencies
Functional
Mid Term
All Sections
Functional
Mid Term
Emergency Operations Emergency Operations Emergency Operations
Both Agencies
Functional
Short Term
Both Agencies Kitsap County Fire District #18
Functional
Short Term
Functional
Mid Term
Training
Both Agencies
160
Objective(s) Provide purpose and direction for training program management and delivery. Combine strengths and resources to: o Overcome current training obstacles and deficiencies. Provide a comprehensive and integrated training structure. Develop a mutually beneficial training program. Train and certify a cadre of knowledgeable and skilled emergency responders.
Section
Strategy U Develop Mutual Training Strategies See page 261
o o o
Functional
Short to Mid Term
Training
Both Agencies
Provide standardized and consistent training. Strategy V Develop an Annual Shared Training Plan See page 264 Provide a well-trained emergency workforce. Provide long-term vision and direction for training delivery. Strategy W Consolidate Training into a Single Training Division See page 267 Strategy X Develop and Adopt Training Standards See page 270 Strategy Y Create a Shared Training Manual See page 272 Eliminate duplication in training emergency responders. Create a single unified training division. Adopt uniform training guidelines. Adopt uniform certification standards. Provide consistent, standardized training procedures. Functional Short Term Training Both Agencies Functional Short Term Training Both Agencies
Functional
Mid-Term
Training
Both Agencies
Functional
Short Term
Training
Both Agencies
161
Objective(s) Provide training facilities readily available to Kitsap County Fire District #18 and North Kitsap Fire & Rescue. To develop and maintain the knowledge and skills of emergency services personnel. Provide standardized, consistent, and high-quality classroom training. Reduce training staff hours required for curriculum delivery. Increase in-service time of emergency response apparatus.
Section
Strategy Z Develop a Shared Fire and EMS Training Facility See page 275
Functional
Mid Term
Training
Both Agencies
Strategy AA Implement and Cooperatively Use a Video Conferencing System See page 278 Strategy BB Develop a Single Apparatus Refurbishment/Replacement Plan See page 281
Functional
Short Term
Training
Both Agencies
Create a single set of emergency apparatus specifications Provide AVL (Automatic Vehicle Locator) information transmitted to dispatch for use during emergency and nonemergency incidents. Provide standardized MDC/MDT (Mobile Data Computer or Mobile Data Terminal) in emergency apparatus. Provide for the cost effective, regional dissemination of public fire safety education.
Functional
Long Term
Both Agencies
Strategy CC Continue with the County AVL and MDC or MDT Project See page 284
Functional
Mid Term
Both Agencies
Strategy DD Develop a Regional Fire Safety Education Coalition See page 289 Strategy EE Develop a Regional Juvenile Fire Setter Intervention Network See page 291
Functional
Mid Term
Fire Prevention
Both Agencies
Provide an effective means for intervening in juvenile-set/caused fires.
Functional
Short Term
Fire Prevention
Both Agencies
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North Kitsap Fire & Rescue Kitsap County Fire District #18, WA Feasibility Study Partnering Strategy (See page for detail) Strategy FF Create a Unified Occupational Medicine Program See page 293 Level of Cooperation Timeline Short, Mid, Long Mid Term Affected Agencies
Objective(s)
Section
Provide a fire-service related occupational and health program. Provide a wellness and fitness program that promotes the improved health and well-being of personnel at all ranks.
Functional
Administration
Both Agencies
Strategy GG Create a Unified Wellness and Fitness Program See page 296
Increase fitness levels and decrease injuries. Reduce frequency and number of sick/sick injury incidents. Reduce the number of days used for sick/sick injury leave.
Functional
Mid Term
Administration
Both Agencies
Strategy HH Develop Uniform Fees for Service See page 299
Provide participating fire departments with a uniform schedule of fees for service. Demonstrate continued partnership between labor and management groups by providing a model regional labor agreement.
Functional
Mid Term
Administration
Both Agencies
Strategy II Develop a Model Labor Agreement for Both Departments See page 302
Align the effective dates and provisions of labor agreements to create a smooth path for unification between participating agencies at a future date, if this option is chosen. Eliminate duplicated effort in developing labor agreements.
Functional
Long Term
Administration
Both Agencies
Strategy JJ Provide for Shared EMS Supervision See page 306
Provide a single point for training and recertification of all EMS personnel in both organizations.
Functional
Short Term
EMS
Both Agencies
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North Kitsap Fire & Rescue Kitsap County Fire District #18, WA Feasibility Study Partnering Strategy (See page for detail) Strategy KK Provide Joint EMS Supply Purchasing and Logistics Services See page 309 Strategy LL Provide for Medic Unit Surge Capacity During Major Incidents See page 312 Strategy MM Establish System-Wide Guidelines for EMS Response See page 314 Strategy NN Establish System-Wide Deployment of Paramedics See page 316 Strategy OO Implement Centralize EMS Billing Practices See page 318 Strategy PP Relocate Fire Station No. 73 See page 320 Level of Cooperation Timeline Short, Mid, Long Short Term Affected Agencies
Objective(s) Standardize supply purchases through group purchasing and standardize supply distribution. To prepare to accommodate medic unit service demands that exceed normal operating conditions in the event of a large scale EMS incident or local disaster Standardize EMS response and deployment protocols in both agencies. Reduce scheduling challenges and overtime costs by using paramedic trained personnel on a shared basis between the two fire departments. Increase EMS service delivery cost recovery through a single billing process Improve response time in the District Reduce time for a second unit to respond to the core of the District (City of Poulsbo) on multiple unit responses and during times of simultaneous calls. Improve response time in both Districts
Section
Functional
EMS
Both Agencies
Functional
Short Term
EMS
Both Agencies
Functional
Short Term
EMS
Both Agencies
Functional
Short Term
EMS
Both Agencies
Functional
Short Term
Administration
Both Agencies
Functional
Mid Term
Strategy QQ Future Joint Staffed Fire Station Location See page 323
Reduce response times for additional apparatus and personnel to respond to incidents requiring multiple units Improve service demand coverage
Functional
Long Term
Both Agencies
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Overarching Strategy 1 Administrative Consolidation Level of Cooperation Administrative Timeline for Completion Long Term Section Administration Affected Stakeholders Both Agencies Objective Combine the administrative elements of both agencies into one Administrative Services Division, which promotes improved efficiencies by eliminating duplication in both agencies. Summary An administrative consolidation occurs when two or more agencies maintain their separate legal status and separate operational elements, but combine some or all of their administrative functions. An administrative consolidation is accomplished legally through an Interlocal This model is often effective at reducing Cooperation Agreement between the agencies.33
overhead costs for participating agencies since the work required of each management team is nearly identical. While an administrative consolidation doesnt necessarily eliminate duplicated positions, it does provide an opportunity to realign and reassign personnel to job functions that may overlap or are currently unfilled. temporarily require additional resources. Discussion Two similarly sized organizations with similar administrative responsibilities and challenges bordering each other demands consideration of consolidation of some or all administrative functions. Combining the administration under single fire chief, and consolidating the clerical, HR, IT, and financial management functions, duplication of efforts may be eliminated with a subsequent gain in flexibility. Human resources can be immediately shifted from low demand activities to high demand activities either permanently or temporarily to create a surge capacity. It also facilitates surge capacity where a job may
33
Ibid.
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A single fire chief with a combined administrative services division leaves the bulk of the two agencies unchanged. The majority of the cultural, labor and operational issues remain relatively unaffected. However, bringing the two agencies under one leader begins the process of
administratively aligning the two agencies with singularity of purpose, focus, and direction at the top. From there, gradual operational alignment is much easier and is often viewed as a natural evolution of an organization rather than a hostile take-over. The management team is free to consider the best management practices of both agencies or jettison both practices for a new alternative. This strategy lends itself well to a gradual move toward a single, consolidated agency where differences in attitude, culture and/or operation are otherwise too great to overcome in a single action. Challenges can include potential conflicts in policy direction from two boards; potentially untenable working conditions for the fire chief serving two masters and the potential for increased personnel conflict with separate employee groups vying for dominance or supremacy. The two groups of policy-makers must have frank discussions about their closely held values to ensure alignment before undertaking an administrative consolidation. If there is compatibility of values and vision by the two boards, this consolidation can net significant efficiencies for both agencies. Critical Issues Policy level o A close review of the vision and values of the two agencies must be performed by the board, verifying commonality of purpose, focus and intent in advance of a decision to consolidate. If the vision and values of the two boards sufficiently align or are not in substantial conflict with each other, the alignment of policies between the two agencies is then necessary. Care must be taken to limit the number of policy differences between the two agencies to avoid adding unnecessary complication to the process or confusion for the staff. A close analysis of current administrative workload for each agency by function will identify position reassignment opportunities. It is possible to reduce the number of administrative staff for greater efficiency, but caution must be exercised to avoid overloading the remaining staff with a weightier workload. Eliminating staff positions may also jeopardize any surge capacity gained in the administrative consolidation. Engaging existing staff who will be directly affected by this consolidation is critical. They possess knowledge about the work they do beyond what is typically recognized by their supervisors. Ensuring that all of the job nuances are identified is an important step in a successful consolidation. The staff should not, however, be burdened with
Staff Level o
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structuring the new consolidated administration themselves. Recommendations can be solicited, but these decisions must be made by the fire chiefs in consultation with the boards. Financial Considerations Alignment of salaries and benefits for similar jobs can be an issue. New jobs and new job descriptions will be a likely result of the workload analysis. Use the job restructuring as an opportunity to establish a standardized compensation package for new or redesigned jobs. Red-circling positions that are significantly above those of their peers can slowly realign positions and compensation over time. Specific position impacts could flow as follows: o o o o o o HR specialist (former administrative manager) Administration/office manager (former administration manager) Administrative Assistant (former staff/office assistant/secretary) Finance and budget (former finance) Receptionist (former staff/office assistant/secretary) Clerical support person assigned to assistant chiefs (former staff/office assistant/secretary), one eliminated (or reassigned to provide one for each assistant chief) By configuring the administrative staff in this manner, coupled with the reduction of one fire chief to assistant chief, the combined savings could total $50,000 annually. The current work produced by the two agencies would not change in this configuration, and in some cases, would improve depth and focus of work product. This is especially true in the human resource assignment, which is currently part of other duties but would be the sole focus of a dedicated position. Physically relocating the administrative function is mostly an exercise in logistics; namely, which facility provides the office space to implement the administrative consolidation with the least expense. Some administrative functions can be decentralized, but care must be taken to avoid reintegrating the separate management teams. Guidance Conduct joint board meetings for the purpose of reviewing the policies of each agency while simultaneously conducting an administrative workload analysis to identify potential realignments. This should also include a compensation analysis to measure any gap that exists within job classifications. Engage the staff in a discussion about the purpose of the analysis and structure a process whereby the staff can talk with each other, formulate questions, and propose their suggestions. Conduct frank, closed door conversations with the two fire chiefs and the two boards to determine which chief will remain fire chief (an executive session to discuss personnel matters is legal and appropriate in this situation). The other fire chief should be placed in an immediately subordinate position of assistant chief and included in the new administrative organizational chart. See suggested organizational chart below (Figure 80).
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North Kitsap Fire & Rescue Kitsap County Fire District #18, WA Feasibility Study Figure 80: Administrative Consolidation Organizational Structure Conceptual
Kitsap County Fire District #18/North Kitsap Fire & Rescue Administrative Consolidation Organization Chart
Admin. Assistant
Fire Chief
Assistant Chief Support Clerical Support
Assistant Chief Operations
Fire Prevention & Public Education
A shift B/Cs
Community Outreach
B shift B/Cs
Logistics
C shift B/Cs
Administration/ Office Mgmt.
EMS Coordinator
Information Technology (outsourced?)
Finance & Budget
Training
HR position impacted by Administrative Consolidation
Fiscal Considerations An Administrative consolidation of the two agencies will create a financial benefit and many operational challenges to setup the new structure. Administrative Structure FTEs In the table below, the administrative consolidation is depicted with adjustments to position titles and headcount:
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North Kitsap Fire & Rescue Kitsap County Fire District #18, WA Feasibility Study Figure 81: Administrative and Support Staffing, Conceptual Total Description KCFD #18 NKFR Change FTEs Fire Chief 1 1 2 (1) Assistant Fire Chief 0 1 1 1 Administrative Service Manager 1 1 2 (2) Administrative Office Manager 0 0 0 1 Human Resource Specialist 0 0 0 1 Finance Analyst (Finance and Budget) 1 0 1 0 Office Assistant 2 2 4 (2) Receptionist 0 0 0 1 Total Administration FTEs 5 5 10 (1)
Net FTEs 1 2 0 1 1 1 2 1 9
The above outlined structure doesnt make any attempt to identify individuals to fill specific positions but provides the structure to handle the tasks currently being performed by each organization.
Figure 82: Administrative and Support Staffing Cost Reductions, Conceptual
Description Fire Chief Assistant Fire Chief Administrative Service Manager Administrative Office Manager Human Resource Specialist Finance Analyst (Finance and Budget) Office Assistant Receptionist Total Administration FTEs KCFD #18 Salaries 122,850 0 73,342 0 0 56,837 42,430 0 KCFD #18 Extended Salaries 122,850 0 73,342 0 0 56,837 84,860 0 337,889 NKFR Salaries 110,488 106,782 70,201 0 0 0 50,891 0 NKFR Extended Salaries 110,488 106,782 70,201 0 0 0 101,782 0 389,253 Total Salaries 233,338 106,782 143,543 0 0 56,837 186,642 0 727,142 Change (110,488) 110,488 (143,543) 73,342 70,201 0 (84,860) 42,430 (42,430) Net Salaries 122,850 217,270 0 73,342 70,201 56,837 101,782 42,430 684,712
The above tables identify the net reduction of one (FTE) clerical support position. Total impact on salaries is a reduction of $42,430. An additional cost reduction will come from fringe benefits (primarily health insurance) of $15,800 giving a potential annual cost avoidance of $58,230. With the consolidation of the administrative employees into one organization, the following payroll and benefit related items will need to be addressed: Establish a standardized wage and salary structure Standardize health benefit packages including medical, dental and vision insurance Standardize life and disability insurance packages Standardize Pension and retirement benefits Standardize longevity pay structure and other incentive payments
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Operational Challenges In the current unconsolidated environment, each organization has a general ledger package, bank accounts, account payable checks, unique charts of accounts, reporting structures, purchasing controls, expense approval levels, human resource policies/procedures and many more unique processing and control mechanisms. Each of these items will need to be reviewed and rewritten into a common internal control framework. In the new environment, many of these functions can be eliminated or streamlined creating the potential for reduced operating costs. One potential format for these systems is: Maintain one general ledger system with a common chart of accounts o o o o The ledger would have three functional organizations Administration KCFD #18 operations NKFR operations
The administration organization would need to have an allocation mechanism developed to charge each operation unit with the cost of Administration. The operation units will be the basis for collecting and reporting tax revenue. One accounts payable check writing system will need to be developed One set of bank accounts The list above is just a starting point for discussion on what needs to reviewed and eventually merged into the new organizational structure. The key item in setting up the new structure is to maximize internal and financial control systems. In looking at the new structure, many operation cost reductions can be potentially realized. Cost reduction for accounts payable processing. Vendor invoices will now be sent to a common location which could potentially reduce the number of invoices processed and the number checks written. Audit fees could be reduced as only one set of internal control process and financial books is being reviewed. Potential reduction in subscriptions and dues could be identified and duplications are eliminated. Bank fees will be reduced by having only one set of bank accounts.
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The above cost reduction potential of an administrative consolidation could total approximately $20,000. Actual cost avoidance will be realized when the entire organizational structure is developed.
171
Overarching Strategy 2 Functional Consolidation Level of Cooperation Functional Timeline for Completion Long Term Section Support Services and Emergency Operations Affected Stakeholders Both Agencies Objective Combine specific operational and support elements of both agencies into singular functions, to promote improved efficiencies by eliminating some duplication. Summary Functional consolidation is when two of more agencies continue to exist separately, but they combine certain functions into a common resource, such as combining training divisions into a single shared division. A functional consolidation is accomplished legally through an Interlocal Cooperation Agreement between the agencies.34 This strategy requires alignment of standard operating guidelines, policies, procedures and certain operational aspects to make the consolidated function perform properly. A structure of shared decision-making is typically This requires policy-makers and
created as they relate to consolidated function(s).
administrators to suspend their authority to unilaterally change actions, activities or direction in the consolidated function area(s) in favor of a collaborative approach. This strategy tends to increase efficiency, but moreover it usually creates a bigger impact on improved service or depth of service to both agencies. Discussion KCFD #18 and NKFR are very similar in size, scope and service delivery philosophies. Many of the support functions for each agency are interchangeable, except for the fact that they are accomplished using different employees following different work rules and policies. The functions that lend themselves well to a functional consolidation are the training division, support services and public education/public information. A training division consolidation would involve unifying training policies, standards, plans, manuals, RMS software, and training facilities (see Strategy T, Strategy U, Strategy V, Strategy W, Strategy X, Strategy Y, and Strategy Z). Support services consolidation would specifically include central purchasing; coordinated apparatus, equipment and PPE
34
RCW 39.34.030.
172
specifications and acquisition; and combined apparatus, equipment and facilities maintenance functions (see Strategy A Develop a Joint Support and Logistics Services Division and Strategy KK). Public information/public education functions are self-evident, and include community outreach; agency marketing; communication strategies; fire prevention; injury prevention; and emergency preparedness education (see Strategy K and Strategy CC). Implementation of this strategy provides greater opportunities for efficiency, increased depth of service, and a closer working relationship between members of the two agencies. Improved relationships in consolidated function(s) can spill over to other unrelated activities in the two agencies which may segue to greater levels of cooperation. Barriers can be broken down as members train together, use identical apparatus and equipment, and deliver the same or similar messages to the community. When members of the two Districts interact with each other on a daily basis, not just during emergencies, or at the policy level, the differences appear smaller and stronger relationships begin forming. The challenges of a functional consolidation is that it requires much greater collaboration between the two agencies than other discussed partnering strategies; numerous organizational details must be worked out in advance and are, addressed in greater detail in the next section. Critical Issues Policy level o Work rules, employee assignments, compensation, office/warehouse location, logos, asset allocation, authority and even the name of the consolidated function must be adjusted to a standardized, comprehensive package for both agencies prior to implementation. A close review of the policies of the two agencies related to training, support services (logistics) and public information/public education must be performed by the board, in close consultation with the two fire chiefs, to address policy issues. There will likely be new policies required for this type of consolidation.
Staff level o Analysis of current staff assigned to these functions to determine best fit and greatest advantages from an efficiency standpoint. Those employees not selected present the opportunity for redeployment to greater advantage to the organizations, such as adding to the operations workforce. A balance must be found in gaining efficiency where possible without overloading or forsaking other important functions. Engaging existing staff who will be directly affected by this consolidation from the start is critical. They possess knowledge about the work they do beyond what is typically recognized, even by their supervisors. Ensuring that job nuances are identified is an
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important step in a successful consolidation. Staff should not, however, be burdened with structuring the new consolidated functions themselves. Recommendations can be solicited, but these decisions must be made by the fire chiefs in consultation with their boards. Often staff members cannot separate self-interest from the decisions they would make. o Where new positions are created, such as a purchasing, receiving and distribution warehouse manager for a support services division, seek private sector comparability for wages and benefits. Another option is to consider outsourcing this function to the private sector or another emergency service organization already in the business, such as an EMS supplier or law enforcement agency.
Financial Considerations Alignment of salaries and benefits for similar jobs can be an issue. New jobs and new job descriptions will likely result from a workload analysis. Use the job restructuring as an opportunity to establish a standardized compensation package for new or redesigned jobs. Red-circling positions that are significantly above those of their peers can slowly realign positions and compensation over time. Specific position impacts for the training division consolidation could flow as follows: o o Battalion chief/training to be the training chief of the combined function (current KCFD #18 training chief) Training captain would provide day to day curriculum development, training delivery and competency evaluation of all line personnel from both agencies (current NKFR captain) MSO (medical safety officer) captain would provide EMS training through OTEP, QA/QI review and competency evaluation of all medically certified personnel from both agencies (current NKFR MSO captain) NKFRs battalion chief with training and safety assignments would focus exclusively on safety activities, or may be freed up to perform other management duties No salary savings are gained in this configuration, as both agencies are presently too lean in training to obtain any cost avoidance. However, this structure does provide significant depth in training beyond what is currently being accomplished separately. Relocating the training function short term is mostly an exercise in logistics; namely, which facility provides the office space, classroom space and field training grounds with props to implement a consolidation with the least expense and greatest effectiveness. The training team must, however, be co-located to develop cohesiveness.
o o
Specific position impacts for the support services consolidation could flow as follows: o o Facilities maintenance continues as is (currently a full time position shared between NKFR, KCFD #18, and Bainbridge Island Fire Department) The fleet manager at KCFD #18 is added to the NKFR maintenance staff and housed out of the NKFR maintenance facility. One mechanic becomes a mobile maintenance unit. Elevate either the fleet manager or the lead mechanic to the shop foreman, who manages the business side of the shop.
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A purchasing, receiving and distribution manager position is created to manage inventory, such as supplies, uniforms, PPE and minor tools and appliances. (Alternatively, this could be outsourced or subcontracted with a partner agency). Fire Station Nos. 88 or 73 could be repurposed to house the warehouse function with minor modifications, which includes seismically hardening the truck bay portion, placement of high piled rack storage, framing in one truck bay door and leaving one as a roll-up for receipt and distribution.
Specific position impacts for the public education/public information in a support services consolidation could flow as follows: o One Public Information Officer/Public Education Officer (PIO/PEO) provides these services for both agencies, eliminating one PIO/PEO and saving approximately $70,000 per year plus benefits, alternatively, One of the current PIO/PEOs provides primary messaging for emergency incidents for combined agencies. The other PIO/PEOs provide primary Public Education emphasis for combined agencies. Both back-fills each other, both support each other when workload peaks, and both provide consolidated messaging to the community on marketing and community outreach efforts for both agencies. No salary cost avoidance is gained in this alternative. However, this structure does provide significant depth in communications with the media and the community beyond what is currently being done separately.
Guidance Conduct regular joint fire chief meetings for the purpose of establishing the parameters of the training consolidation. This includes workload analysis to ensure greatest effectiveness while maintaining proper balance. The two fire chiefs convene an ad hoc training steering committee with a purpose of developing proposed joint training policies, standards, plan, and training manual. The training division adopts and implements joint training records software, and advocates for an adequate joint training facility. Combine the two apparatus maintenance functions, utilizing the NKFR maintenance shop. Convert one FTE into a field mechanic to provide mobile service to units in the field. This is seen conducting routine apparatus maintenance and not requiring transfer to the shop for more specific repairs. Arrange for a vehicle adequate to the task. Consider rotating this position between the mechanics for exposure, career advancement, a change of pace for personnel in equivalent positions. Reconfigure Fire Station No. 73 (once relocated to the new location) to a central receiving and distribution center. Standardize supplies and equipment between the two agencies (see: Overarching Strategy 3 Operational Consolidation and Strategy KK Provide Joint EMS Supply Purchasing and Logistics Services), following state purchasing guidelines and make supplies and equipment available to all of the member agencies. Market this service to other neighboring agencies, such as Bainbridge Island, Central
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Kitsap, and East Jefferson Fire & Rescue, using time and distance as a consideration of viable partners. Evaluate workload for public information, public education, and community outreach functions of the combined agencies. Determine whether all of the tasks required can be adequately performed by one of the two incumbents. If so, make an appointment from among the two, reassigning the other position to functions not adequately met currently (as long as the skill set matches the proposed function) or eliminate the position. If the tasks cannot be adequately performed by one person, assign the two incumbents to specialist positions, one to PIO and one to PEO. The team will come together to perform the broader functions needed, such as organizational outreach strategy and marketing. The organizational structure concept in Figure 83 is if the two independent Fire Districts agree to a functional consolidation without first implementing an administrative consolidation.
Figure 83: Independent Functional Consolidation Organizational Structure, Conceptual
NKFR Fire Chief KCFD #18 Fire Chief
Fleet Maintenance
Admin Section Facilities Maintenance Planning Section Training Captain Central Warehouse Operations Section
Admin Services
Operations
Training B/C
Community Outreach
MSO Shift B/C
Position impacted by Functional Consolidation
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The next conceptual organization structure is if the Districts elect to follow sequential steps from administrative and functional consolidation (see organizational chart concept in Figure 84 below).
Figure 84: Functional Consolidation Organizational Structure, Conceptual
Kitsap County Fire District #18/North Kitsap Fire & Rescue Functional Consolidation Organization Chart
Admin. Assistant
Fire Chief
Fire Prevention
A shift B/Cs
Facilities Maintenance
Community Outreach (1 or 2)
B shift B/Cs
Fleet Maintenance
Logistics
C shift B/Cs
Central Warehouse
EMS Coordinator Training Captain and MSO Captain
Finance & Budget
Training Chief
HR position impacted by Functional Consolidation
Fiscal Considerations A Functional consolidation of the two agencies will result in minimal financial benefit and there are certain one-time implementation costs. In the table below (Figure 85), the functional consolidation is depicted with adjustments to position titles and headcount. The adjustments made were: o o o o add a purchasing manager upgraded one mechanic to shop foreman elimination of one shop services coordinator (moved position to shop foreman) elimination of one PIO/community service position
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North Kitsap Fire & Rescue Kitsap County Fire District #18, WA Feasibility Study Figure 85: Functional Consolidation Staffing, Conceptual Total Description KCFD #18 NKFR Change FTEs Assistant Fire Chief Training 0 1 1 0 Purchasing, Receiving/Distribution Manager 0 0 1 Mechanic 0 2 2 0 Shop Foreman/lead Mechanic 0 0 1 Fleet Services Coordinator 1 1 2 (1) EMS Coordinator 0 1 1 0 Battalion Chief Training 1 0 1 0 Training 0 1 1 0 Community Services/PIO 1 1 2 (1) Facility Maintenance 0 1 1 0 Total Administration FTEs 3 8 11 0
Net FTEs 1 1 2 1 1 1 1 1 1 1 11
The above outlined structure doesnt make any attempt to identify individuals to fill specific positions but provides the structure to handle the tasks currently being performed by each organization.
Figure 86: Functional Consolidation Staffing Cost Reductions, Conceptual
Description Assistant Fire Chief Training Purchasing, Receiving Distribution Manager Mechanic Shop Foreman/lead Mechanic Fleet Services Coordinator EMS Coordinator Battalion Chief Training Training Community Services/PIO Facility Maintenance Total Administration Cost Avoidance KCFD #18 Salaries 122,850 0 73,342 0 0 56,837 42,430 0 122,850 0 KCFD #18 Extended Salaries 122,850 0 73,342 0 0 56,837 84,860 0 337,889 122,850 0 NKFR Salaries 110,488 106,782 70,201 0 0 0 50,891 0 110,488 106,782 NKFR Extended Salaries 110,488 106,782 70,201 0 0 0 101,782 0 389,253 110,488 106,782 Total Salaries 233,338 106,782 143,543 0 0 56,837 186,642 0 727,142 233,338 106,782 Change (110,488) 110,488 (143,543) 73,342 70,201 0 (84,860) 42,430 (42,430) (110,488) 110,488 Net Salaries 122,850 217,270 0 73,342 70,201 56,837 101,782 42,430 684,712 122,850 217,270
Total impact on salaries is a net reduction of $13,878. Additional cost reduction will come from fringe benefits (primarily health insurance) of $1,400 giving a potential annual cost avoidance of $15,278. With the functional consolidation of into one organization, the following payroll and benefit related items will need to be addressed: Establish and commonize wage and salary structure Standardize health benefit packages including medical, dental, and vision insurance Standardize life and disability insurance packages
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Standardize pension and retirement benefits Standardize longevity pay structure and other incentive payments
Operational Challenges: The proposed consolidation functions will provide minimal or limited on-going financial savings. However, one-time cost could be required to establish the new structure. Training Function Relocation Minimal one-time cost will be associated with relocating personnel to a central location for team cohesiveness. The one-time cost could include: Relocation of office furniture and equipment Printing new stationary and business cards Establishing and publishing common training manuals Support Services The creation of this function will create some one-time costs as well as a cost increase for providing a mobile service vehicle which should be offset by not having to transport apparatus to the maintenance facility. The one-time cost could include: Relocation of shop equipment and maintenance logs from KCFD #18 to the NKFR maintenance facility Equipping a vehicle for mobile maintenance capabilities which could include shelving and equipment Capital costs to re-purpose Fire Station Nos. 73 or 88 to a warehouse function Seismically hardening truck bay Rack storage Operating cost of a mobile maintenance vehicle, such as, fuel and routine maintenance will increase. However, these costs should be offset by not having to bring apparatus to the maintenance facility for routine maintenance. Community Service/PIO Minimal, if any, cost will be incurred. Potential one-time cost could include: Printing new stationary and business cards Establishing and publishing common training manuals
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Overarching Strategy 3 Operational Consolidation Level of Cooperation Operational Timeline for Completion Long Term Section Emergency Operations Affected Stakeholders Both Agencies Objective Combine all operational elements of both agencies into a singular function to promote improved efficiencies by eliminating some duplication. Summary Operational consolidation is the combining of two of more agencies at the operational level while the agencies themselves continue to exist separately. In this case, emergency services are provided by the collective emergency resources of the two agencies. An operational
consolidation is accomplished legally through an Interlocal Cooperation Agreement between the agencies.35 This strategy requires alignment of virtually all emergency operational elements, including training, incident standard operating procedures, staffing levels, and apparatus deployment. In effect, the combined emergency resources (staffing, equipment, and facilities) of the two agencies are configured as if there is no boundary between the two agencies. This consolidation type is the most advanced step in the continuum of steps toward a full merger of the two agencies. A structure of shared decision-making is typically created as they relate to consolidated function(s). If the previous consolidations have already been implemented, this strategy tends to provide the greatest potential increase in efficiency in service delivery. Discussion As neighboring agencies, KCFD #18 and NKFR respond to the same incidents many times a year. Thus, there is a high degree of familiarity between the operational crews on the street. They belong to the same IAFF Local, although in different bargaining units. While there may be some differences in approach to incidents between the field crews, they are each proud, competent, and professional service providers who put customer service first.
35
RCW 39.34.030.
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Partly due to the intense pride in the service they provide and the culture that follows, changing the way service is delivered at the operational (line) level poses the greatest challenge. However, a close examination of possible redeployment models does provide for an improvement in efficient service to both communities. Many of the function strategies are rolled into this overarching strategy. They include: Strategy B Develop Uniform Pre-Incident Plans Strategy C Provide for Joint Staffing of Fire Stations and Apparatus Strategy D Provide Regional Incident Command and Operations Supervision Strategy F Develop Standard Operating Guidelines Strategy G Shared Specialty Teams Strategy H Provide Joint Standards for Service Delivery Strategy I Implement the Use of Peak Activity Units (PAUs) Strategy J Develop Deployment Standards Strategy M Shared Intern Program Strategy N Combine Volunteer Services Strategy Q Align Operational Staffing Schedules Strategy R Adopt Dropped Border Response Strategy S Adopt Criteria-Based Dispatch Strategy JJ Provide for Shared EMS Supervision Strategy LL Provide for Medic Unit Surge Capacity During Major Incidents Strategy MM Establish System-Wide Guidelines for EMS Response Strategy NN Establish System-Wide Deployment of Paramedics Critical Issues Policy level o Work rules, employee assignments, compensation, service level standards, and operational practices must be consistent between the jurisdictions. Any policy differences which impact the delivery of service to the public must be invisible to the line personnel. This includes hours of work, supervisory ratios, scope of job descriptions, rules of conduct, and discipline. A close review of all aspects of service delivery must be performed by the two fire chiefs, and unified decisions announced. There will likely be new practices required for this type of consolidation.
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Staff level o Crews can ill-afford to contemplate differences in organizational practices while responding to emergencies. Thus, a new set of rules, regulations, and procedures related to emergency operations must be published and the line personnel trained and oriented to them. Engaging all line personnel who will be directly affected by this consolidation from the start is critical. They possess knowledge about the work environment beyond what is typically recognized, even by most supervisors. Ensuring that job nuances are identified is an important step in a successful consolidation. Rumors can become rampant, and a communication strategy that keeps people informed every step of the way is necessary to maintain calm. Opportunities to debunk rumors should be taken advantage of, and an outlet created to capture and respond to rumors quickly. Redistribute three (3) FTEs operations/shift battalion chiefs, one from each of the three shifts. This leaves one battalion chief for each of the three 24-hour shifts to cover the combined service area. Financial Considerations o Alignment of salaries and benefits for similar jobs can be an issue. Negotiations will need to be conducted to level compensation packages for bargaining unit members. Red-circling positions that are significantly above those of their peers can align positions and compensation over time.
Specific changes in an operational consolidation structure could flow as follows: o Reassign one (1) FTE battalion chief to an administrative battalion chief position. Duties of this 40-hour work week position could include, administrative duties, special assignments as directed by the fire chief, and responding to emergency incidents during peak activity times. The remaining two (2) FTE battalion chief positions could be downgraded to one officer and one firefighter position (through attrition or via normal reductions language in the collective bargaining agreements) to create staffing for a Peak Activity Unit (see: Strategy I Implement the Use of Peak Activity Units (PAUs). A PAU unit can be assigned to cover scheduled training, statistically high call volume areas, or otherwise move to fill needs of the combined service area. The crew can also be temporarily distributed to cover holes on regular companies to reduce overtime exposure. o o Conduct regular joint board and fire chief meetings for the purpose of establishing the policy changes as outlined above. This includes a detailed fiscal analysis. Conduct regular command staff meetings for the purpose of establishing rules, regulations, and procedures. This includes a staffing analysis, workload analysis, and deployment analysis. Engage operational employee groups in regular discussions, and field questions regularly. Reassure employees to the extent possible, but always be honest. Dont speculate, but express your collective intentions. There is no such thing as overcommunicating when job security is at stake.
Guidance
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Consider establishing a focus group of external stakeholders to use as a sounding board on the concept of an operational consolidation. Select people of influence and keep them engaged. Listen carefully to their advice and concerns. As with employees, be honest and dont speculate, but express your collective intentions. Develop a communication strategy to keep the citizens of the combined service area informed if implementation appears a possible outcome of discussions. An operational consolidation impacts the line level, from the battalion chiefs down.
o o
Figure 87 is one concept of an organizational structure for an independent operational consolidation.

Figure 87: Independent Implementation of Operational Consolidation Organizational Structure (Conceptual)
NKFR Fire Chief Administrative B/C KCFD #18 Fire Chief
Admin Section
Admin Services
Planning Section
Operations
Operations Section
Shift B/C
Training B/C
Shift Battalion Chief 1 per shift
PAU (2) deployed at B/C discretion
Eng. 81, Medic 81 2+2
Eng. 84, Medic 84 2 cross staff
Eng. 85, Aid 85 2 cross staff
Eng. 71, Medic 71 2+2
Eng. 72, Aid 72 2 cross staff or 2 vol. cross staff
Eng./Tender 87 Vol. staff
Eng. 73, Aid 73 Vol. staff
Position impacted by Operational Consolidation
If this strategy is implemented sequentially, following administrative and functional consolidation are in place, the organizational chart may appear as follows (Figure 88):
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North Kitsap Fire & Rescue Kitsap County Fire District #18, WA Feasibility Study Figure 88: Sequential Implementation of Operational Consolidation Organizational Structure (Conceptual)
Admin. Assistant
Fire Chief
Administrative B/C Special Projects
Fire Prevention
A shift B/C 1
B shift B/C 1
Fleet Maintenance
Logistics
C shift B/C 1
Central Warehouse
Finance & Budget
Training Chief
HR
Shift Battalion Chief
Eng. 81, Medic 81 2+2
Eng. 71, Medic 71 2+2
-Eng./Tender 87 Vol. staff Eng. 73, Aid 73 Vol. staff
Positions impacted by Operational Consolidation
Fiscal Considerations Implementation of this strategy independent of the previous overarching strategies, the staffing and procedural changes are more complicated. The changes include the reduction of three fulltime (FTE) battalion chiefs; two positions are riffed to provide an officer and firefighter to staff a peak activity unit. The remaining riffed battalion chief is assigned to an administrative battalion chief position reporting directly to the two fire chiefs. If this strategy is implemented
sequentially, after an administrative and functional consolidation occurs, the reporting relationships, staffing and procedural changes are much easier to implement. In this case, the same adjustments are made to reduce the shift battalion chiefs to three, two are riffed to create
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staffing for a peak activity unit and one is assigned as an administrative battalion chief reporting directly to the singular fire chief. Figure 89 provides a comparison of current operational positions, adjusted for the reduction of two battalion chiefs, the reallocation of a battalion chief to an administrative assignment, and the addition of an officer and firefighter to a peak activity unit.
Figure 89: Operational Consolidation Operations Personnel (Conceptual) Total Net Position KCFD #18 NKFR Change FTEs FTEs Shift Battalion Chief 3 3 6 (3) 3 Day Battalion Chief 1 0 1 1 2 Captain 2 0 2 1 3 Captain Probation 0 0 0 0 0 Captain Paramedic 1 0 1 0 1 Lieutenant 5 8 13 0 13 Lieutenant Paramedic 1 0 1 0 1 Firefighter (FF) 16 16 32 1 33 Firefighter/Paramedic 8 6 14 0 14 Total Operations FTEs 37 33 70 0 70
With operations personnel working together closely, the Districts may elect to pay equalization between the two agencies. The pay scales for KCFD #18 personnel are higher than those of NKFR. Operational consolidation with equalized pay will generate a labor cost savings of Error! $13,526 plus approximately $5,000 in benefit reductions for a total of $18,526.
eference source not found. depicts this scenario with the increases by pay category offset by operational personal reallocation. Primarily, cost avoidance is from the transfer of one The apparent saving generated in operations The accrual cost increase for this
operational battalion chief to administration.
arena in negated in the administration wage increase. strategy is $77,809.
The other potential cost avoidance is a reduction in overtime. With the utilization of the peak activity unit, shift personnel working overtime has the potential to be reduced.
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Overarching Strategy 4 Full Merger Level of Cooperation Organizational Timeline for Completion Long Term Section All Sections, all Divisions Affected Stakeholders Both Agencies Objective Combine the two organizations into one to improve efficiency by eliminating some duplication. Summary A full merger would have one district absorb the other, eliminating it as a legal entity. All resources, assets and liabilities would transfer to the surviving district. The terms of a merger would be worked out in advance of the issue being presented to the voters of the agency being merged. The process by which a merger is conducted is described previously in this report. However, the terms of a merger can be the result of negotiation between the two agencies in advance. An organizational structure would be agreed upon, the status of all employees being transferred would be addressed (including rank, assignments, and seniority) and the status of the board of fire commissioners of the merging district addressed if there is any room on the merged board. In this case, both boards have five members, thus creating room for displaced board members from the merging district is not an option. The merging board joins the merger board, but one position is dropped every election cycle or if a vacancy occurs mid-term, until the board has been reduced to the statutory maximum of five. The previous strategies related to consolidation are somewhat complicated and require careful planning and analysis by and between the two agencies prior to implementation, then a shared interest in managing the resulting consolidation after implementation. In this case, a full merger is simpler, since a merger eliminates one of the agencies and there requires no further negotiation or adjustment beyond that required to put the issue to a vote.
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This strategy can increase efficiency by eliminating any duplication that exists between the two agencies, but it will, at the very least, eliminate five fire commissioners and a fire district as a legal entity. Discussion With the consolidation strategies listed previously, coordination, consultation, negotiating and shared decision-making are all processes required to implement and sustain the consolidation. In a full merger, those processes are required to implement the merger, but are not required to sustain it. Once the merger occurs, it is a majority-rule board, albeit temporarily larger than prior to the merger. In the other consolidation strategies, there is a natural tension between the two equal boards as they discuss and make decisions about the consolidated service component. They are bound together by a contract that can be broken, and care is taken to find acceptable compromises and find creative solutions. Some of this tension is positive and adds to the process. That tension is significantly diminished when its a single board making majority rule decisions about a single agency. The merging district negotiates what it can before the fact and when approved by the voters, turns everything over to the merger district. The merger districts policies, procedures, practices, name, manner of business and culture becomes the prevailing environment. To say that the merging district doesnt cause changes to the merger district however, is an overstatement. Combining two agencies of similar size together naturally A new culture will emerge from the
creates impacts to the culture of the surviving entity. merger.
The resource pool is larger as a result of a merger, but so too is the demand for service. Restructuring the organization to maximize efficient delivery of service and management of the agency will create need for new positions and eliminate redundant positions. Critical Issues Policy level o The policies, procedures, and legal constructs of the merger (surviving) agency prevail. Some will undoubtedly need to change as a result of the merger, but most are unforeseen until circumstances illuminate the need. It is critical that these events are anticipated and action taken as appropriate. It is prudent to review the merging districts policies and practices, even though they are vacated in the merger, to capture best practices and incorporate them into the merger district as a matter of good business practice.
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Staff level o A full merger will afford the combined agency a unique opportunity to evaluate the entire structure of the district and make necessary adjustments. Performing critical task analyses of all positions and functions is a key first step to the new structure. Maintaining an appropriate span of control for each supervisor, preferably no more than 5:1, with 7:1 being the extreme maximum effective ratio. As in the other consolidation strategies, those employees extraneous to the position they traditionally filled represent the opportunity for redeployment to positions of greater advantage to the organizations, such as adding to the operations workforce. A balance must be found in gaining efficiency where possible without overloading or forsaking other important functions. Engaging the staff of both agencies from the start is critical. Rumors will become rampant, and a communication strategy that keeps people informed every step of the way is necessary to maintain calm. Opportunities to debunk rumors should be taken advantage of, and outlets created to capture and respond to those rumors quickly.
Financial Considerations Alignment of salaries and benefits is required for those employees transferring into the merger district. Employees who are represented by a union have an advocacy structure. Those who are non-represented or at-will employees will need to be treated fairly and appropriately, based on the needs of the service. The tax rate of the surviving entity becomes the tax rate of the new, merged district. Care must be taken to determine whether the revenue coming into the combined agency at least meets the debt and annual expense obligations. Guidance Conduct regular joint board and fire chief meetings for the purpose of conducting merger discussions. This includes a detailed fiscal analysis, staffing and deployment analysis, and a work plan for implementation should the merger be successful at the ballot box. Engage all employee groups in regular discussions, fielding questions frequently and answers repeatedly. Reassure employees to the extent possible, but always be honest. Dont speculate, but express your collective intentions. There is no such thing as overcommunicating when job security is at stake. Engage a blue ribbon committee of external stakeholders to use as a sounding board on the concept of a merger. Select people of influence and keep them engaged. Listen carefully to their advice and concerns. As with employees, be honest and dont speculate, but express your collective intentions. Consider publishing a newsletter at a point in time that it becomes clear a merger of some type is likely to occur. It should be informative and informational, with an opportunity for citizens to sound off on the issue. Conduct community public forums in key areas of the community to solicit feedback.
The following figure is one concept of an administrative and support organizational structure of a merged district (Figure 90).
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North Kitsap Fire & Rescue Kitsap County Fire District #18, WA Feasibility Study Figure 90: Full Merger Administrative Organizational Structure (Conceptual)
Admin. Assistant
Fire Chief
Fire Prevention
A shift B/C 1
B shift B/C 1
Fleet Maintenance
Logistics
C shift B/C 1
Central Warehouse
Finance & Budget
Training Chief
HR
Eng. 81, Medic 81 2+2
Eng. 71, Medic 71 2+2
Staffing of fire stations and fire and EMS apparatus is largely unchanged with the example (above). Fiscal Analysis Fiscal year 2011 budget data provided by KCFD #18 and NKFR was used to merge the Districts into a single combined agency and is detailed in the following discussion. Consolidated Taxable Assessed Value Projected increases for new construction and appraised value of existing property use the same assumptions contained in the current conditions section of this report. Figure 91 reviews the assumptions used to develop future TAV amounts.
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North Kitsap Fire & Rescue Kitsap County Fire District #18, WA Feasibility Study Figure 91: Forecast Full Merger Impact on TAV, 2011 2016 Existing New Year Property Construction Assumptions Rate 2011 Budget 0.00% 0.00% 2012 -5.00% 0.10% 2013 0.00% 0.15% 2014 0.25% 0.15% 2015 0.50% 0.20% 2016 1.00% 0.30%
Figure 92 provides a view of the consolidated fire TAV for the merged District.
Figure 92: Forecast Full Merger Consolidated Fire TAV, 2011 2016 Year 2011 Budget 2012 2013 2014 2015 2016 KCFD #18 3,303,787,872 3,141,902,266 3,146,615,120 3,159,201,580 3,181,315,991 3,222,673,099 NKFR 2,743,847,365 2,609,398,844 2,613,312,942 2,623,766,194 2,642,132,558 2,676,480,281 Total 6,047,635,237 5,751,301,110 5,759,928,062 5,782,967,774 5,823,448,549 5,899,153,380
KCFD #18 and NKFR both operate with a fire and EMS tax levy. In the following table (Figure 92), a view of the consolidated EMS TAV is forecast for the merged District.
Figure 93: Forecast Full Merger Consolidated EMS TAV, 2011 2016 Year 2011 Budget 2012 2013 2014 2015 2016 KCFD #18 3,308,285,482 3,146,179,493 3,150,898,763 3,163,502,358 3,185,646,874 3,227,060,284 NKFR 2,745,732,897 2,611,191,985 2,615,108,773 2,625,559,416 2,643,918,719 2,678,237,151 Total 6,054,018,379 5,757,371,478 5,766,007,536 5,789,061,774 5,829,565,593 5,905,297,434
Revenue Initial development of fire operations revenue was established to combine the 2011 budget data into a consolidated statement. This consolidation is detailed in Figure 94.
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North Kitsap Fire & Rescue Kitsap County Fire District #18, WA Feasibility Study Figure 94: Full Merger Fire Budgeted Consolidated Revenue, 2011 KCFD #18 NKFR 2011 Eliminations/ Consolidated Description Budget 2011 Budget Adjustments Budget 2011 Property Taxes 4,958,610 3,925,218 0 8,883,828 EMS Levy 1,655,118 1,372,866 0 3,027,984 New Construction 45,000 0 0 45,000 Leasehold Excise Tax 4,000 3,500 0 7,500 Timber Tax 1,000 0 0 1,000 EMS Pre-hospital Grant 0 1,439 0 1,439 State Shared Revenue 0 700 0 700 Repair Charges 0 84,683 0 84,683 Other Gov't Contracts 5,000 71,250 0 76,250 Ambulance & Emergency Aid 750,000 421,373 57,972 1,229,345 Interest Income 36,000 27,318 0 63,318 Facility Lease 1,000 150 0 1,150 Contributions 1,000 200 0 1,200 Other Revenue 5,000 1,000 0 6,000 Total 7,461,728 5,909,697 57,972 13,429,397
A merger of the Districts results in a combined tax rate of $1.4617 per $1,000 of TAV in the baseline fiscal year 2011. Under general rules the tax levy for the merged districts is essentially based on a 101 percent increase over the combined levies of the pre-existing Districts. This represents an increase for NKFR and a slight reduction for KCFD #18. No modification of the EMS rate would apply. Expense Expenditures for a merged budget using fiscal year 2011 budget data was used to create a consolidated expense statement. For comparison purposes only, the modification of personnel and the cost increases associated with these modifications will increase wage levels and require an increase in benefit costs. One major issue in a full merger of the two organizations is the handling of medical insurance. KCFD #18 provides medical insurance in the traditional method by paying the insurance premium to the insurance carrier on behalf of the employee. NKFR has adopted another approach to providing medical insurance. NKFR has a cafeteria plan called a
benefit allocation plan. Employee pays 100 percent of all premiums with benefit allocation allowing the
employee to select and pay for their own insurance. NKFR increased the wages/salary to equalize the cost to the employee. Included in the information below is the re-classification of medical insurance costs to equalize the handling between the two organizations. ESCI, in this analysis, doesnt recommend either benefit package for the merged Districts. The new District will have to determine and bargaining units on the method that is best for the organization and employees.
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An expense budget for a full merger in fiscal year 2011 is depicted in Figure 95 below.
Figure 95: Full Merger Budgeted Consolidated Expense, 2011 KCFD #18 Medical Eliminations NKFR 2011 Description 2011 Insurance and Budget Budget Reclass Adjustments Salaries & Wages 3,927,816 4,640,466 (971,808) (42,872) Personnel Benefits 1,456,696 408,320 971,808 (16,008) Supplies 362,373 276,147 0 0 Other Services and 521,746 415,009 0 0 Charges Intergovernmental Services 190,700 86,156 0 0 Capital Requests 198,000 70,318 0 0 Debt 189,408 145,745 0 0 Contingency Fund 136,935 0 0 0 Total Expenditures 6,983,674 6,042,161 (58,880) 0
Consolidated 2011 Budget 7,553,602 2,820,816 638,520 936,755 276,856 268,318 335,153 136,935 12,966,955
A net total cost decrease for wages and benefits totals $58,880. Forecast Revenue Figure 96 details the calculation of consolidated revenue for the new merged organization, projected to 2016. Under general rules the tax levy for the merged districts is essentially based on a 101 percent increase over the combined levies of the pre-existing Districts. All other line items have been increased by the ten-year average CPI of 2.4 percent.
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North Kitsap Fire & Rescue Kitsap County Fire District #18, WA Feasibility Study Figure 96: Full Merger Consolidated Revenue, 2011 2016 Consolidated 2012 2013 2014 2015 Budget 2011 8,883,828 8,626,952 8,639,892 8,674,452 8,735,173 3,027,984 2,878,534 2,882,852 2,894,384 2,914,652 45,000 7,500 1,000 1,439 700 84,683 76,250 1,229,345 63,318 1,150 1,200 6,000 13,429,397 1.4690 0.5000 0 7,679 1,024 1,473 717 86,698 78,065 1,258,603 58,950 1,177 1,229 6,143 13,007,243 1.5000 0.5000 0 7,861 1,048 1,508 734 88,762 79,923 1,288,558 52,313 1,205 1,258 6,289 13,052,203 1.5000 0.5000 0 8,048 1,073 1,544 751 90,874 81,825 1,319,225 42,241 1,234 1,288 6,439 13,123,378 1.5000 0.5000 0 8,240 1,099 1,581 769 93,037 83,772 1,350,623 28,666 1,263 1,318 6,592 13,226,785 1.5000 0.5000
Description Property Taxes EMS Levy New Construction Leasehold Excise Tax Timber Tax EMS Pre-hospital Grant State Shared Revenue Repair Charges Other Gov't Contracts Ambulance & Emergency Aid Interest Income Facility Lease Contributions Other Revenue Total Fire Tax Rate EMS Tax Rate
2016 8,848,730 2,952,571 0 8,436 1,125 1,619 787 95,252 85,766 1,382,768 12,448 1,294 1,350 6,749 13,398,89 1.5000 0.5000
The tax value was left at 1.50 per thousand for this figure because the TAV is projected to decline in 2012. If the 1.01 multiple is applied to the merged organization, the effective tax rate would be 1.55, or 0.05 above the cap. Forecast Expenditures Figure 97 depicts the estimated consolidated fire expenses for the new organization. Personnel and fringe benefits are increased by 4.0 percent per year; all other line items have been increased by the annual ten-year average CPI of 2.4 percent.
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North Kitsap Fire & Rescue Kitsap County Fire District #18, WA Feasibility Study Figure 97: Full Merger Consolidated Expense, 2011 2016 Consolidated 2012 2013 2014 2015 2011 Budget 7,553,602 8,911,014 9,267,454 9,638,152 10,023,678 2,820,816 1,939,616 2,017,201 2,097,889 2,181,805 638,520 653,717 669,275 685,204 701,512 936,755 276,856 268,318 335,153 136,935 12,966,955 959,050 283,445 274,704 252,553 132,741 13,406,840 981,875 290,191 281,242 250,988 137,582 13,895,809 1,005,244 297,098 287,935 253,973 142,655 14,408,150 1,029,168 304,169 294,788 251,249 147,864 14,934,233
Description
2016 10,424,626 2,269,077 718,208 1,053,663 311,408 301,804 252,834 153,316 15,484,935
Salaries & Wages Personnel Benefits Supplies Other Services and Charges Intergovernmental Services Capital Requests Debt Contingency Fund Total Expenditures
Summary of Operations Summarized in Figure 98 is the revenue and expenditure forecast for 2011 through 2016.
Figure 98: Full Merger Operations Consolidated, 2011 2016 Budget 2012 2013 2014 2015 2011 7,404,078 13,429,397 7,553,602 2,820,816 638,520 936,755 276,856 268,318 335,153 136,935 12,966,955 7,866,520 7,866,520 13,007,243 8,911,014 1,939,616 653,717 959,050 283,445 274,704 252,553 132,741 13,406,840 7,466,923 7,466,923 13,052,203 9,267,454 2,017,201 669,275 981,875 290,191 281,242 250,988 137,582 13,895,809 6,623,318 6,623,318 13,123,378 9,638,152 2,097,889 685,204 1,005,244 297,098 287,935 253,973 142,655 14,408,150 5,338,546 5,338,546 13,226,785 10,023,678 2,181,805 701,512 1,029,168 304,169 294,788 251,249 147,864 14,934,233 3,631,098
Description
2016 3,631,098 13,398,893 10,424,626 2,269,077 718,208 1,053,663 311,408 301,804 252,834 153,316 15,484,935 1,545,056
Beginning Fund Balance Revenue Expenditures Salaries & Wages Personnel Benefits Supplies Other Services and Charges Intergovernmental Services Capital Requests Debt Contingency Fund Total Expenditures Ending Fund Balance
The summary for full merger operational budget shows that a revenue shortfall is generated in each fiscal year. The same service at a reduced cost is always desirable. Increased cost accompanied by a higher level of service is frequently acceptable, but sometimes increased cost becomes a political lightning rod if accompanying benefits are perceived as few. Whether that happens or not in this case depends on how the citizens of the area view the change and how politics drive
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the issue. Certainly, a frequently mentioned concern during the stakeholder interviews for this study was that of growing cost. The increase in cost on a per-residence basis in each District is shown in Figure 99, calculated based on a mean detached home price of $369,610.36
Figure 99: Full Merger Cost per Residence 2011 Budgeted KCFD #18 NKFR Individual Tax Rates Fire Tax Rate 1.5000 1.4306 EMS 0.5000 0.5000 2011 Sample cost per Resident based on Budgeted Tax Rate Fire $554.42 $528.76 EMS $184.81 $184.81 Total Tax $739.22 $713.57 2012 Sample cost per Resident based on New RFA Tax Rate Fire $554.42 $554.42 EMS $184.81 $184.81 Total Tax $739.22 $739.22 Increased Cost per $0.00 $25.65 Residence
Conclusion ESCI is unable to develop a full merger configuration in a way that will provide financial security for the next few years. The creation of a merged District with the above identified manpower reductions, inflation increases, TAV projected increases/decreases, and limitations placed on tax levy rates will reach the tax levy cap in 2012 but will still result in a net cash shortfall. Any action moving toward a merger would require voter approval of both the merger and the new combined tax rate. In the current conditions section of this report, it is explained that both Districts Fire/EMS operations are in a deteriorating financial condition. KCFD #18 is operating with a forecast negative cash flow of $2.4 million through 2016 and over the same period NKFR will operate with a negative cash flow $4.0 million. The merger of the two Districts will reduce the shortage from $6.4 million as standalone agencies to $5.9 million.
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http://www.city-data.com/county/Kitsap_County-WA.html
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Overarching Strategy 5 Regional Fire Authority Level of Cooperation Organizational Timeline for Completion Long Term Section All Sections, All Divisions Affected Stakeholders Both Agencies Objective Combine all functions and all services under a new organization with shared governance and a new taxing structure, to promote improved efficiencies by eliminating duplication. Summary A Regional Fire Authority (RFA) effectively combines two or more agencies under one new umbrella agency, providing for shared governance by the previously existing boards of fire commissioners and city council members if a city is involved. In this case, the City of Poulsbo has been annexed by Kitsap County Fire District #18, who would presumably continue to represent the citys interests related to fire protection and emergency services in an RFA process. An RFA offers North Kitsap Fire & Rescue and Kitsap County Fire District #18 an opportunity to develop a regional plan for fire service delivery and the administration of the new agency with a funding mechanism sufficient to sustain that service. The previous strategies move both
organizations incrementally toward greater cooperation and efficiency. An RFA brings the two agencies (and possibly others see the description of RFAs earlier in this report) together under a plan analyzed by all the stakeholders, presented to the electorate of the participating agencies, and approved by those being served. Planning for the RFA is the key element in implementing a successful RFA. In addition to describing the services to be provided and the standards by which the RFA will hold itself accountable, the plan also requires the funding mechanism consistent with RCW 52.26.050 to be identified,. This requires the two Districts to set a tax rate that is consistent across the service area and allows the funding mechanism to address the implementation of the service plan.
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Discussion The RFA strategy is similar to the full merger strategy with a few notable exceptions. Depending upon the structure of the board (as determined in the RFA plan), the two Districts would continue to exist as a legal entity to furnish fire commissioners who would make up the governing board of the RFA. All assets, liabilities, employees, equipment and facilities become part of the RFA. The tax rate for the RFA is established in the fire authority plan (see the funding options described earlier in this report) and thus can be set as a regular property tax levy of up to $1.50/$1,000 of assessed valuation, establish a benefit charge to create an equivalent of $1.60/$1,000 of assessed valuation, implement an EMS levy of up to $.50/$1,000 of assessed valuation, impose a bond issue for capital or other funding options permitted by statute. In setting the tax rate, the combined agencies will not only equalize the tax rate, but will have the opportunity to establish a funding stream adequate to meet current and forecast needs of the new agency (within the limits of the aforementioned RCW). The RFA governing board make-up can include all of the elected officials from the participating agencies, ensuring representation for all parties involved in the authority. Recent changes to the governing statue now allow for RFA commissioners to be elected at large, eliminating the need to keep both Districts, or creating a combination of RFA commissioners and district commissioners sitting on the governing board. Operationally, RFAs operate as a standard fire district and are mostly governed by the same statutes (RCW Title 52). There are now several RFAs in Washington State since the enabling legislation was enacted in 2004. The majority of the fire authorities in Washington are made up of fire districts, with a hand-full combining cities and districts, and with an all-city make up. Strategies A through QQ are implementable in this overarching RFA strategy Critical Issues Policy level o Establish a planning committee, consisting of three fire commissioners/elected officials from each agency (required by law it can be more, but the intent is to maintain balanced representation on the committee). Establish sub-committees who report to the planning committee. The following sub-committees should be included as a minimum: administration, labor, operations, support, finance, and policy. Other subcommittees may also be formed as the planning committee deems appropriate, and the sub-committees can further broken down into task forces. All status reports and
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recommendations must be made to the planning committee in an open public forum. These meetings need to adhere to the Open Public Meetings Act. The planning committee is required to encourage and solicit feedback from the community during the process. o Consider appointing a few key external stakeholders as ex officio advisors to the planning committee. This keeps the community informed and builds in a knowledgeable advocacy base that isnt viewed as self-serving.
Staff level o Assign as many staff from internal groups to the sub-committees as possible without losing balance on any of them. This helps develop buy-in to the outcome, maintains a contemporary understanding of the process and issues of employee groups, and provides valuable information to the process. Engage staff who are not involved on sub-committees at the beginning and maintain regular information flow. Unless otherwise declared in the process of forming the new RFA (the RFA plan), employees will retain the rights, benefits, and privileges that they had under their preexisting collective bargaining agreements. This is an important distinction, as it represents an opportunity for both management and labor to establish a new standard collective bargaining agreement for all represented employees across the RFA.
o o
Financial Considerations Determine the net equivalent rate per $1,000 of assessed value for all services in the current agencies. Fix what the new tax rate should be (including a combination of revenue options such as property tax and EMS levy); recognizing that any perception of a tax increase will be difficult to sell. Seek to find ways to minimize the tax difference between the two agencies to avoid an appearance of subsidization by one district of another. The organizational chart could flow as follows: o o Battalion chief/training to be the training chief of the combined function (current KCFD #18 training chief) Training captain would provide day to day curriculum development, training delivery and competency evaluation of all line personnel from both agencies (current NKFR captain) MSO (medical safety officer) captain could provide EMS training through OTEP, QA/QI review and competency evaluation of all medically certified personnel from both agencies (current NKFR MSO captain) NKFRs battalion chief with training and safety assignments could focus exclusively on safety activities, or may be freed up to perform other management duties No salary savings are gained in this configuration, as both agencies are presently too lean in training to obtain any cost avoidance. However, this structure does provide significant depth in training beyond what is currently being accomplished independently.
o o
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Guidance Set ground rules for the planning committee meetings and take minutes of those meetings. Pace the planning committee meetings. This is a long process and the future rests upon the strength of the planboth whats in it and what isnt. Take on smaller issues first to develop momentum. Identify the tough issues and start on them, but dont bring them forward for final decisions until there has been momentum established on the smaller issues and a sense of commitment to the outcome has been established. Remember the adage, If you want it badly, sometimes you get it badly. Use external stakeholders (ad hoc advisers to the planning committee) to help keep the process and the participants honest. Self-interest is not easily hidden when those with a selfish agenda must lobby for it in front of the citizens who pay for it and receive the service. Seek the advice and counsel of others who have gone through the process before you. Identify the traps and the rough roads before starting the journey. In that way, you can plan the smoothest, most direct route to your destination. Develop a communication plan to keep the community and media informed. Identify a spokesman for the planning committee and ground rules for the release of information. Bring in legal counsel at the beginning to frame the process, and toward the end of the process. Dont have legal counsel review each decision as it is made. Structuring an organization solely through a legal lens can often stifle creativity. Minor adjustments can be made to plans that are later found to be slightly off base from a legal process point of view.
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Figure 100 is one concept of an organizational structure for an RFA.

Figure 100: RFA Organizational Structure (Conceptual)
Admin. Assistant
Fire Chief
Fire Prevention
A shift B/C 1
B shift B/C 1
Fleet Maintenance
Logistics
C shift B/C 1
Central Warehouse
Finance & Budget
Training Chief
HR
Eng. 81, Medic 81 2+2
Eng. 71, Medic 71 2+2
Fiscal Analysis Fiscal year 2011 budget data provided by KCFD #18 and NKFR was used to create an analysis of finances for a RFA detailed in the following discussion. Consolidated Taxable Assessed Value Projected increases for new construction and appraised value of existing property use the same assumptions contained in the current conditions section of this report. Figure 101 reviews the assumptions used to develop future TAV amounts.
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North Kitsap Fire & Rescue Kitsap County Fire District #18, WA Feasibility Study Figure 101: Forecast RFA Impact on TAV, 2011 2016 Existing New Year Property Construction Assumptions Rate 2011 Budget 0.00% 0.00% 2012 -5.00% 0.10% 2013 0.00% 0.15% 2014 0.25% 0.15% 2015 0.50% 0.20% 2016 1.00% 0.30%
Figure 102 provides a view of the consolidated fire TAV for an RFA.
Figure 102: Forecast RFA Fire TAV, 2011 2016 Year 2011 Budget 2012 2013 2014 2015 2016 KCFD #18 3,303,787,872 3,141,902,266 3,146,615,120 3,159,201,580 3,181,315,991 3,222,673,099 NKFR 2,743,847,365 2,609,398,844 2,613,312,942 2,623,766,194 2,642,132,558 2,676,480,281 Total 6,047,635,237 5,751,301,110 5,759,928,062 5,782,967,774 5,823,448,549 5,899,153,380
KCFD #18 and NKFR both operate with a fire and EMS tax levy. In the following table (Figure 103), a view of the consolidated EMS TAV is forecast for the RFA.
Figure 103: Forecast RFA EMS TAV, 2011 2016 Year 2011 Budget 2012 2013 2014 2015 2016 KCFD #18 3,308,285,482 3,146,179,493 3,150,898,763 3,163,502,358 3,185,646,874 3,227,060,284 NKFR 2,745,732,897 2,611,191,985 2,615,108,773 2,625,559,416 2,643,918,719 2,678,237,151 Total 6,054,018,379 5,757,371,478 5,766,007,536 5,789,061,774 5,829,565,593 5,905,297,434
Revenue Initial development of fire operations revenue was established to combine the 2011 budget data into a consolidated statement. This consolidation is detailed in Figure 104.
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North Kitsap Fire & Rescue Kitsap County Fire District #18, WA Feasibility Study Figure 104: RFA Fire Budgeted Consolidated Revenue, 2011 KCFD #18 NKFR 2011 Eliminations/ Consolidated Description Budget 2011 Budget Adjustments Budget 2011 Property Taxes 4,958,610 3,925,218 0 8,883,828 EMS Levy 1,655,118 1,372,866 0 3,027,984 New Construction 45,000 0 0 45,000 Leasehold Excise Tax 4,000 3,500 0 7,500 Timber Tax 1,000 0 0 1,000 EMS Pre-hospital Grant 0 1,439 0 1,439 State Shared Revenue 0 700 0 700 Repair Charges 0 84,683 0 84,683 Other Gov't Contracts 5,000 71,250 0 76,250 Ambulance & Emergency Aid 750,000 421,373 57,972 1,229,345 Interest Income 36,000 27,318 0 63,318 Facility Lease 1,000 150 0 1,150 Contributions 1,000 200 0 1,200 Other Revenue 5,000 1,000 0 6,000 Total 7,461,728 5,909,697 57,972 13,429,397 Fire Tax Rate 1.5000 1.4306 1.4690 EMS Tax Rate 0.5000 0.5000 0.5000
An RFA formation results in a combined tax rate of $1.4617 per $1,000 of TAV in the baseline fiscal year 2011. Under general rules the tax levy for the merged districts is essentially based on a 101 percent increase over the combined levies of the pre-existing Districts. This represents an increase for NKFR and no change for KCFD #18. No modification of the EMS rate would apply. Expense Estimated expenditures for an RFA were calculated using fiscal year 2011 budget data to create a consolidated expense statement. For comparison purposes only, the modification of
personnel and the cost increases associated with these modifications will increase wage levels and require an increase in benefit costs. One major issue in an RFA of the two organizations is the handling of medical insurance. KCFD #18 provides medical insurance in the traditional method by paying the insurance premium to the insurance carrier on behalf of the employee. NKFR has adopted another approach to providing medical insurance. NKFR has a cafeteria plan
called a benefit allocation plan. Employee pays 100 percent of all premiums with benefit allocation
allowing the employee to select and pay for their own insurance.
NKFR increased the
wages/salary to equalize the cost to the employee. Included in the information below is the reclassification of medical insurance costs to equalize the handling between the two organizations. ESCI, in this analysis, doesnt recommend either benefit package under an RFA.
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The planning committee will have to determine and work with the bargaining units on the method that is best for the organization and employees. An expense budget for an RFA in fiscal year 2011 is depicted in Figure 105 below.
Figure 105: RFA Budgeted Consolidated Expense, 2011 KCFD #18 Medical Eliminations NKFR 2011 Description 2011 Insurance and Budget Budget Reclass Adjustments Salaries & Wages 3,927,816 4,640,466 (971,808) (42,872) Personnel Benefits 1,456,696 408,320 971,808 (16,008) Supplies 362,373 276,147 0 0 Other Services and 521,746 415,009 0 0 Charges Intergovernmental Services 190,700 86,156 0 0 Capital Requests 198,000 70,318 0 0 Debt 189,408 145,745 0 0 Contingency Fund 136,935 0 0 0 Total Expenditures 6,983,674 6,042,161 (58,880) 0
Consolidated 2011 Budget 7,553,602 2,820,816 638,520 936,755 276,856 268,318 335,153 136,935 12,966,955
A net total cost decrease for wages and benefits totals $58,880. Forecast Revenue Figure 106 details the calculation of consolidated revenue for an RFA, projected to 2016. Included in the property revenue is the assumption that the new entitys tax rate will be established at the maximum rate allowed for a fire district by RCW 52.26.140 at $1.50 per $1,000 of taxable assessed value. All other line items have been increased by the ten-year average CPI of 2.4 percent.
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North Kitsap Fire & Rescue Kitsap County Fire District #18, WA Feasibility Study Figure 106: RFA Consolidated Revenue, 2011 2016 Consolidated 2012 2013 2014 Budget 2011 8,883,828 8,626,952 8,639,892 8,674,452 3,027,984 2,878,534 2,882,852 2,894,384 45,000 7,500 1,000 1,439 700 84,683 76,250 1,229,345 63,318 1,150 1,200 6,000 13,429,397 1.4690 0.5000 0 7,679 1,024 1,473 717 86,698 78,065 1,258,603 58,950 1,177 1,229 6,143 13,007,243 1.5000 0.5000 0 7,861 1,048 1,508 734 88,762 79,923 1,288,558 52,313 1,205 1,258 6,289 13,052,203 1.5000 0.5000 0 8,048 1,073 1,544 751 90,874 81,825 1,319,225 42,241 1,234 1,288 6,439 13,123,378 1.5000 0.5000
Description Property Taxes EMS Levy New Construction Leasehold Excise Tax Timber Tax EMS Pre-hospital Grant State Shared Revenue Repair Charges Other Gov't Contracts Ambulance & Emergency Aid Interest Income Facility Lease Contributions Other Revenue Total Fire Tax Rate EMS Tax Rate
2015 8,735,173 2,914,652 0 8,240 1,099 1,581 769 93,037 83,772 1,350,623 28,666 1,263 1,318 6,592 13,226,785 1.5000 0.5000
2016 8,848,730 2,952,571 0 8,436 1,125 1,619 787 95,252 85,766 1,382,768 12,448 1,294 1,350 6,749 13,398,89 1.5000 0.5000
The tax value was left at 1.50 per thousand for this figure because the TAV is projected to decline in 2012. If the 1.01 multiple is applied to the RFA, the effective tax rate would be 1.55, or 0.05 above the cap. The exception with an RFA is the authoritys ability to establish a benefit charge as its funding mechanism. With a benefit charge, the effective revenue can go as high a $1.60 per $1,000 of taxable assessed value. This would generate $9,676,216 from fire levies and benefit charges for the combined agencies. Coupled with the current EMS levies (which would also have to be part of the RFA formation), generates a combined $12,700,033 EMS levies and benefit charges, or approximately $1 million more in revenue than the two agencies take in currently from fire and EMS levies. Formation of an RFA with a benefit charge may be a difficult obstacle in the current economic environment. This funding mechanism would increase costs to some taxpayers of both Districts (based on a complicated formula of risk versus benefit for each property in the service area). A supermajority of 60 percent voter approval is required for passage of a benefit charge initiative.
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This voter threshold would exist anyway, because an EMS levy would have to be part of the economic equation, which also requires a supermajority voter approval of 60 percent. Forecast Expenditures Figure 107 depicts the estimated consolidated fire expenses for an RFA. Personnel and fringe benefits are increased by 4.0 percent per year; all other line items have been increased by the annual ten-year average CPI of 2.4 percent.
Figure 107: RFA Consolidated Expense, 2011 2016 Consolidated 2012 2013 2014 2015 2011 Budget 7,553,602 8,911,014 9,267,454 9,638,152 10,023,678 2,820,816 1,939,616 2,017,201 2,097,889 2,181,805 638,520 653,717 669,275 685,204 701,512 936,755 276,856 268,318 335,153 136,935 12,966,955 959,050 283,445 274,704 252,553 132,741 13,406,840 981,875 290,191 281,242 250,988 137,582 13,895,809 1,005,244 297,098 287,935 253,973 142,655 14,408,150 1,029,168 304,169 294,788 251,249 147,864 14,934,233
Description Salaries & Wages Personnel Benefits Supplies Other Services and Charges Intergovernmental Services Capital Requests Debt Contingency Fund Total Expenditures
2016 10,424,626 2,269,077 718,208 1,053,663 311,408 301,804 252,834 153,316 15,484,935
Summary of Operations Summarized in Figure 98 is the RFA revenue and expenditure forecast for 2011 through 2016.
Figure 108: RFA Operations Consolidated, 2011 2016 Budget 2012 2013 2014 2015 2011 7,404,078 13,429,397 7,553,602 2,820,816 638,520 936,755 276,856 268,318 335,153 136,935 12,966,955 7,866,520 7,866,520 13,007,243 8,911,014 1,939,616 653,717 959,050 283,445 274,704 252,553 132,741 13,406,840 7,466,923 7,466,923 13,052,203 9,267,454 2,017,201 669,275 981,875 290,191 281,242 250,988 137,582 13,895,809 6,623,318 6,623,318 13,123,378 9,638,152 2,097,889 685,204 1,005,244 297,098 287,935 253,973 142,655 14,408,150 5,338,546 5,338,546 13,226,785 10,023,678 2,181,805 701,512 1,029,168 304,169 294,788 251,249 147,864 14,934,233 3,631,098
Description Beginning Fund Balance Revenue Expenditures Salaries & Wages Personnel Benefits Supplies Other Services and Charges Intergovernmental Services Capital Requests Debt Contingency Fund Total Expenditures Ending Fund Balance
2016 3,631,098 13,398,893 10,424,626 2,269,077 718,208 1,053,663 311,408 301,804 252,834 153,316 15,484,935 1,545,056
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The summary of an RFA operational budget shows that a revenue shortfall is generated in each fiscal year. The same service at a reduced cost is always desirable. Increased cost accompanied by a higher level of service is frequently acceptable, but sometimes increased cost becomes a political lightning rod if accompanying benefits are perceived as few. Whether that happens or not in this case depends on how the citizens of the area view the change and how politics drive the issue. Certainly, a frequently mentioned concern during the stakeholder interviews for this study was that of growing cost. The increase in cost on a per-residence basis in each District is shown in Figure 99, calculated based on a mean detached home price of $369,610.37
Figure 109: Full Merger Cost per Residence 2011 Budgeted KCFD #18 NKFR Individual Tax Rates Fire Tax Rate 1.5000 1.4306 EMS 0.5000 0.5000 2011 Sample cost per Resident based on Budgeted Tax Rate Fire $554.42 $528.76 EMS $184.81 $184.81 Total Tax $739.22 $713.57 2012 Sample cost per Resident based on New RFA Tax Rate Fire $554.42 $554.42 EMS $184.81 $184.81 Total Tax $739.22 $739.22 Increased Cost per $0.00 $25.65 Residence
Conclusion ESCI is able to develop an RFA configuration in a way that will provide some financial stability. It requires voter approval of a benefit charge and an EMS levy. With these, the creation of an RFA with the above identified manpower reductions, inflation increases, TAV projected increases/decreases, and limitations placed on tax levy rates will reach the tax levy cap in 2012 but will still result in a net cash shortfall. An RFA would require voter approval of the RFA, a benefit charge, and an EMS levy.
37
Ibid.
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Strategy A Develop a Joint Support and Logistics Services Division Level of Cooperation Functional Timeline for Completion Long Term Section Support Services Affected Stakeholders Both Agencies Objective Develop a joint Support Services Division that promotes improved operational readiness and achieves procurement efficiencies by eliminating duplication in the acquisition and distribution of supplies. Create a uniform set of standards for apparatus, small equipment, PPE (personal protective equipment), emergency supplies, and IS/IT services. Develop a joint preventative maintenance and repair service program for physical assets, apparatus, small equipment, and IS/IT systems. Summary Throughout nearly every public or private emergency preparedness institution, the state of readiness and effectiveness is highly dependent upon support services. Support services
assure the materials necessary to keep an agency operational and functioning are available. Both departments participating in this study provide some form of support services within its organization. Support services offered under a joint support and logistics division can be
modular and may include: Standardization of apparatus, equipment, and PPE. Standardization of fire/EMS/rescue supplies. Centralized purchasing and distribution. Centralized fleet and equipment maintenance. Mobile maintenance services. A preventative and safety maintenance program for facilities, apparatus, equipment, and other physical assets.
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The purchasing program can create joint bids for supplies and equipment and can achieve additional benefits such as integrated inventory of supplies that can accommodate lag times in deliveries from manufacturers and suppliers. Discussion Support Services Division At the heart of any fire department are the activities and functions that support the delivery of emergency services. Support Services keeps agency assets in operational readiness and ensure that enough supplies, tools, and equipment are available for emergency workers to mitigate the emergency. Both agencies in this study dedicate a certain level of daily effort in maintaining emergency apparatus and equipment. Although emergency services providers, Kitsap County Fire District #18 and North Kitsap Fire & Rescue are also businesses that spend tens of thousands of dollars each year to ensure emergency mission readiness. Like all businesses, fire departments need to be receptive to new practices to maximize the effectiveness of budget dollars. Such practices may take the form of economies of scale, administrative efficiencies, paperwork reduction, technological advances, and innovative cost saving concepts. Acquiring and maintaining physical assets (facilities and grounds), IS/IT systems, vehicles, and equipment is a labor intensive process requiring good policies and attention to detail. The procurement and distribution of routine supplies is also an important behind-the-scenes process that needs hands-on work and meticulous record keeping. These support services are currently provided by a variety of support and/or suppression employees. Filling the demand for support services is a constant necessity in any organization and vital to ensure the operational readiness of the agency. Key elements of a joint support and logistics services division are: Assessment of current assets. Assessment of current levels of support service activities. Standardization of apparatus, equipment, and supplies. Standardization of preventative maintenance programs and recordkeeping. Centralization of apparatus and equipment repair and maintenance. Provisions for mobile repair and maintenance services during emergency incidents. Centralization of supply and equipment acquisition and distribution.
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Development of a combined facilities and grounds maintenance program. Standardization of IS/IT services.
As listed above, a key to realizing the benefits of shared support services is standardization of apparatus, equipment, and supplies. In this exercise alone, standardization assures greater financial and operational efficiency and effectiveness. Fundamentally, this is the most important aspect of forming a joint support division. Standardizing specifications for the purchase, repair, and maintenance of apparatus, SCBA (self-contained breathing apparatus), communication devices, and miscellaneous equipment often equates to less out-of-service time. Support personnel will need to be certified for Fewer parts need to be
repairing and maintaining fewer apparatus and equipment types.
stocked for repair and maintenance. Such practices are described as economies of scale. NFPA 1911 points out that repairs by qualified technicians may provide longer apparatus life, safer operations, and the early detection of maintenance and repair problems..38 The result is often a short and long-term saving on rolling stock and small equipment. A centralized repair and maintenance facility cooperatively organized as a support services division ensures that routine maintenance and repairs of physical assets are completed in a timely manner. Maintaining public assets in this way is a demonstration of stewardship. The standardization of apparatus, equipment, and supplies plays strongly into the overall effectiveness and efficiency of daily emergency operations. Standardized support functions are a key part of unified emergency operations and response. Logistics Services A multi-agency purchasing program could improve management of the two agencies supply chains, and lends itself well to expansion to other agencies in the region for even greater efficiency. In theory, the agencies would collectively create or contract for a
logistics center to manage procurement and distribution. The logistics center would work with each of the agencies to standardize supplies and equipment. The program would follow state and organizational purchasing guidelines and make supplies and equipment available to all of the member agencies.
38
National Fire Protection Association, Standard 1911: Standard for the Inspection, Maintenance, Testing, and Retirement of In-Service Automotive Fire Apparatus, 2007 Edition.
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Distribution can be managed internally or through agreements with suppliers to gain the advantages of collective purchasing and supply: 1) a larger, collective bid process for supplies can achieve lower prices and attract additional competitors; 2) the logistics center can negotiate terms of the conditions of the sale that might not be available to smaller purchasing centers; and 3) it can conduct collective bidding processes that are applicable to all of the agencies. Coordination is important to the success of a joint purchasing program. Both agencies currently conduct purchasing of virtually all supplies and equipment independently. As such, a joint effort will reduce the work required by any single agency to provide purchase and provide supplies. Critical Issues Coordination issues A cross-functional committee of system purchasing agents and EMS system participants can work together to design standardized purchasing rules for each participating agency. The committee can provide a standardized equipment list for the agencies. The agencies can share bidding processes so that the bidding procedure used by the purchasing agent can be used by all agencies. Agencies must work closely with the cross-functional committee to ensure that the goods are received and distributed to the appropriate location. Fire agencies should have agreements in place to specify inventory and purchasing plans. Receiving and distribution considerations o Fire agency partners should design distribution plans to deliver goods directly to the appropriate location. Using a joint purchasing system, the agencies will no longer have to receive goods at the agency; instead, they can receive goods at the central warehouse for storage. At the point of utilization, the appropriate amount of on hand supplies can be delivered to the appropriate station or ambulance location, thus reducing storage space requirements at these facilities. The agencies can jointly determine the proper level of inventory to maintain within the system. The use of system-wide inventory planning ensures that the most costeffective inventory management can be established for the system participants. This is referred to as Just-In-Time Inventory. To a great degree, a just-in-time inventory process relies on the efficient monitoring of the usage of materials and ordering replacement goods that arrive shortly before they are needed. This simple strategy helps to prevent incurring the costs associated with carrying large inventories of raw materials at any given point in time.
Financial and fiscal considerations o Marginal costs of creating system-wide purchasing infrastructure should be compared against the reduced level of effort of individual agencies.
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Cost savings can be achieved through reducing inventory carrying costs, reducing transaction costs, and achieving economies of scale through larger volume purchasing. The participating agencies should agree on contributions to account for more difficult to discern costs such as freight charges and unit costs for warehousing space.
o Guidance
Develop a system-wide, cross-functional committee to explore a joint purchasing process. Work with elected officials to adopt purchasing requirements that help the agencies meet purchasing goals and guidelines. Establish standards for fire and EMS system equipment and supplies. Establish inventory standards and methods for distributing equipment and supplies. Develop specific standards for apparatus, equipment, PPE, SCBA, communication equipment, and supplies. Inventory and evaluate current operational/facility supplies. physical assets, apparatus, equipment, and
Contract for or reconfigure the two agencies (and potentially other partner agencies in the region) to provide logistics and supply services. Determine support components necessary to add regional partners, ensuring that incremental costs are borne by joining agencies and economic benefit is quantified for each participant over the long term.. Evaluate current levels of support functions and identify successful elements to incorporate into the joint program. Create PLLs (prescribed load list) for apparatus (sometimes referred to Standardized Inventory List, or SIL). Ensure that all aspects of a joint support division are based upon recognized local, state, and national standards as well as manufacturers recommendations for repair and maintenance. Determine the most efficient and effective location for support functions. Develop a mobile maintenance/repair program for emergency field repairs, diagnostic & minor repairs that dont warrant moving a vehicle from its primary response area to a maintenance facility. Evaluate the value of outsourcing support services. Fiscal Considerations Financial support may be necessary, as the two agencies will be required to meet the costs of creating or modifying existing Logistics systems.
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The soft costs generated by cross-functional committee meetings necessary to accomplish objectives of the program. New, additional, or reassignment of FTEs to operate support service functions. Incremental costs of transitioning to standard apparatus, PPE (Personal Protective Equipment), SCBA (Self-Contained Breathing Apparatus), and small equipment. Conversion of existing facility or acquisition of real property for a logistics, support services, and maintenance center. Expected cost savings and operational benefits will result from: o o o o o o Elimination of duplication of services, administration, supplies, parts, and equipment. Standardization of equipment, parts and operational/facility supplies. Effective acquisition, accountability, and distribution of supplies and equipment. Bulk purchasing. Preventive maintenance of physical assets, apparatus, and equipment for optimum safety and readiness. The elimination or reduction of outside costs for repair, maintenance, and servicing of physical assets and equipment.
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Strategy B Develop Uniform Pre-Incident Plans Level of Cooperation Functional Timeline for Completion Short Term Section Emergency Operations Affected Stakeholders Both Agencies Objective Provide a system of shared operational plans for use during emergencies and nonemergent incidents. Summary Pre-incident plans are an important part of the emergency response system to provide essential information on specific structures and processes. Through timely planning, strategy and tactics can be developed before an emergency occurs. Pre-incident planning involves evaluating
protection systems, building construction, contents, and operating procedures that may impact emergency operations. Pre-incident plans should be kept up to date. The plans should be used in company training, and should be distributed to all mutual/automatic aid partners. The standards set forth in NFPA 1620, Standard for Pre-Incident Planning, should be followed to guide in the development of a regional pre-incident planning system. Discussion A firefighter typically works in an alien environment of heat, darkness, confusion, and extreme danger. Often, a firefighters first visit to a building is when he or she is summoned to an emergency at the facility; the very time that the internal environment of the structure may be at its worst. Contrary to Hollywoods portrayal of the inside of a building on fire, visibility is likely to be nearly zero due to smoke. A lack of familiarity with the layout of a structure can easily cause a firefighter to become disoriented and subsequently suffer injury. It is important that firefighters and command staff have accurate information readily at hand to identify hazards, direct tactical operations, and understand the proper use of built-in fire resistive
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features of some structures. This can be accomplished by touring structures, developing preincident plans, and conducting tactical exercises either on-site or tabletop. An ideal pre-incident planning system uses standardized forms and protocols. Data is collected in a consistent format. Information is presented in a manner that permits commanders and emergency workers to retrieve it quickly and easily. All require the use of consistent methods for collection, verification, storage, presentation, and update of emergency plans. The most successful programs use pre-incident planning software to assemble the data, create plan documents and quick data forms, and store the information for easy retrieval. Above all, no program is successful without thorough incorporation of the pre-incident plans in frequent classroom and on-site training exercises. Operational, management, and IS/IT staff should assist in making software and formatting decisions. Goals for the identification and development of target hazard pre-incident plans should be established. The uniform pre-incident planning program should be reviewed at least annually to assure the accomplishment of goals, the improvement of the program, and the appropriate entry of new target hazards. Properties that should have pre-incident plans include those having: A potential for large occupant load Occupants that are incapable of self-rescue Structure size larger than 12,000 feet Facilities that process or store hazardous materials and/or equipment Buildings with built-in fire protection systems Buildings that pose unique hazards to firefighters during an incident Wildland hazards Pre-incident plans should be a quick and easy reference tool for company officers and command staff. The plans should be formatted for easy adaptation to electronic media. At a minimum, a pre-incident plan should include information on but not be limited to: Building construction type Occupant load Fire protection systems Water supply
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Exposure hazards Firefighter hazards Utility location and shutoffs Emergency contact information Completely revised and upgraded from a recommended practice to a standard, the 2010 edition of NFPA 1620: Standard for Pre-Incident Planning provides criteria for developing pre-incident plans for use by personnel responding to emergencies. Pre-planning is a key component of first responder effectiveness, and NFPA 1620 spells out the process and provides excellent information on the development and use of pre-incident plans and should be used as a reference. NFPA 1620 addresses the protection, construction, and operational features of
specific occupancies to develop pre-incident plans. The 2010 edition also contains pre-incident planning case histories and information addressing special or unique characteristics of specific occupancy classifications, as well as sample forms for pre-incident planning. Personnel should receive regular familiarization training using the completed pre-incident plans. The plans must be made available on all emergency apparatus of both agencies. Routine use of pre-incident plans by all responders will assure that the plans are correctly used at major emergencies. Guidance Inventory current pre-incident plan hardware, software, format, and level of development in each agency. Evaluate commonality between current systems of pre-incident planning. Consider the establishment of a steering committee to develop building criteria and data for inclusion in pre-incident plans. Develop a timeline for the implementation, completion, and review of pre-incident plans. Fiscal Considerations The cost to each fire department for developing uniform pre-incident plans will be predicated on: Current hardware and software assets Cost to upgrade or purchase hardware and software Number of facilities/buildings with existing pre-incident plans versus those to develop The pace of new development requiring pre-incident plans
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Personnel costs to gather and assemble plans Personnel soft costs of on-duty staff assigned pre-incident planning tasks Unquantifiable potential for prevention of injury or death to emergency responders and the public The cost of diagramming software programs designed specifically for drawing pre-fire plans starts around $400. More advance versions with 3-D capability increases the initial software cost to $700. Versions that integrate with a pocket PC would add an additional $300. This and other diagramming software programs are made to be added onto existing fire
prevention/inspection programs.
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Strategy C Provide for Joint Staffing of Fire Stations and Apparatus Level of Cooperation Functional Timeline for Completion Long Term Section Emergency Operations Affected Stakeholders Both Agencies Objectives Provide for distribution of facilities and deployment of personnel consistent with a regional standard of cover (see Deployment Standards recommendation later in this report). Provide consistent fire and emergency services within areas efficiently before, during, and after development. Summary Practicality and external influences seldom allow fire station placement to match perfectly with a fire departments deployment strategy. Reasons include the availability of property, land use laws, roadway infrastructure, construction cost, traffic patterns, geography, and projected station workload. Given that the area protected by a fire department may change through annexation, merger, and interlocal agreement, a perfect fire station location today may be a poor location in the future. Because of these and other factors, it is virtually impossible to place fire stations in an ideal location and not overlap the response areas of other fire stations or departments. Jointly staffed stations and/or response units create more alternatives for fire departments studying the deployment of emergency resources. Fire departments often know how many firefighters are needed for the best possible protection; however, departments are infrequently able to afford to staff at such levels. Sharing personnel from different agencies can help to bring staffing levels closer to the optimum. If Kitsap County Fire District #18 and North Kitsap Fire & Rescue create a single training division, some provision is needed to offer response area coverage while other emergency units travel to a training center. Jointly staffing a PAU (Peak Activity Unit) with multi-agency Jointly staffing fire
personnel could protect vacant response areas during those times.
apparatus can also be a very practical option for providing resources from a fire station located
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in an area able to serve more than one jurisdiction. Last, cooperatively providing specialty apparatus used for infrequent (but often high-risk) emergencies is an effective means to distribute the cost of such apparatus over a wider financing base. Discussion The NFPA published an updated state-by-state study of the needs of the U.S. fire service. The Washington version of the January 2007 report Washington: Four Year Later A Second Needs Assessment of the Fire Service states that while statistics specific to Washington have not been developed: Based on these observations and calculations, the national report concluded that, in every population interval roughly two-thirds to three-fourths of fire departments nationally have too few fire stations to provide the indicated coverage. Specifically, if 1.5 miles is used for communities of 10,000 or more and 2.5 miles is used for smaller communities, with optimal location used for both, then the national study found that 65-76% of departments have too few stations, except for communities of 500,000 to 999,999 population, where the percentage was 82%. The Districts now rely on each other for resources during routine and non-routine emergencies. Without question, if facilities are distributed and personnel deployed regardless of jurisdictional boundaries (and consistent with a regional standard of cover) the likelihood of those resources being located where needed most increases. The crucial question is how to pay for shared resources in a manner that assures equity for all taxpayers. The funding of jointly staffed fire stations and apparatus should be based on local law, authority, and policy. There are many examples of innovative cooperative agreements between For instance, the cities of
jurisdictions that maximize the value of emergency resources.
Portland and Gresham, Oregon, jointly staff a fire station that is located to respond efficiently to emergencies in both cities. For the first five months of each year, a three-person ALS fire company is housed and supported in the station by the city of Gresham. During the remaining seven months of the year, a Portland Fire and Rescue four-person ALS engine responds from the station. As change occurs in the protected area, the two cities can easily adjust liability by altering the time each operates the fire station. The agreement assures timely and effective emergency response while a financial balance is maintained that benefits the taxpayers of both cities. Examples of methods used to jointly staff fire stations and apparatus include: Combined personnel from different fire departments staff a fire station.
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One fire department supplies a firefighter for each shift and another fire department contributes an apparatus operator/engineer and an officer. The workforce is made up each day of personnel from both fire departments.
Personnel from different fire departments staff a fire station on a set schedule. o One fire department staffs the fire station on two of three shifts. department staffs the fire station on the third shift. The other
Fire departments apportion responsibility for staffing and support of a fire station for a given number of months. o One fire department staffs and supports the fire station for a given number of months each year. During the remaining months, the other fire department provides staff and support.
Two fire departments jointly staff a fire station with personnel from both fire departments, and operate more than one piece of emergency apparatus. o One fire department staffs a fire engine and the other department staffs a medic unit in the same fire station.
One fire department staffs a fire station but extends first alarm response from that station to another jurisdiction. The second fire department compensates the first based on an agreed cost/benefit formula. Two fire departments exchange in-kind first alarm response. o Guidance Training issues o The personnel used for joint staffing of fire stations and apparatus should be trained to provide a service level (including EMS) for seamless integration into emergency operations of both cooperating fire departments. One fire department provides first alarm response into another fire departments area in exchange for like service from that agency.
Deployment considerations o o o Deployment standards for the two agencies should be developed and adopted. The fire departments should execute deployment plans collaboratively prior to entering into joint staffing agreements. Several of the joint staffing examples involve personnel from different fire departments staffing fire stations and apparatus together. Developing a single labor agreement will help to alleviate real or perceived issues of equity between personnel. Provide a regional IC (Incident Command) for supervision of emergency operations and for oversight of on-duty personnel.
Financial considerations o Marginal costs of deploying personnel in joint staffing ventures will be determined based on the agency, and on personnel costs.
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Startup costs may include additional training as well as the supplies and equipment needed to support the stations and fire response units. A portion of the cost for additional training and equipment could be immaterial, if as part of the cooperative initiatives the two departments also adopt deployment standards, training standards, and a joint purchasing program.
Fiscal Considerations Joint staffing of fire stations and apparatus is a logical step towards a unified regional fire department. Joint staffing provides fire departments with a way to meet deployment standards when: o o It is not economically feasible for either fire department to staff a fire station or fire apparatus independently. Fire departments have common borders and underserved territories.
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Strategy D Provide Regional Incident Command and Operations Supervision Level of Cooperation Functional Timeline for Completion Short Term Section Emergency Operations Affected Stakeholders Both Agencies Objective Provide for IC (Incident Command) supervision of emergency operations. Provide for supervision of on-duty personnel during routine operations. Summary A dedicated Officer in Charge (OIC) routinely has authority and responsibility for all aspects of day-to-day operations and personnel management of each of the study fire departments. OICs assume command of emergency incidents and may also be assigned for the management of various fire department programs. Discussion OICs typically provide administrative oversight, supervision, and leadership to the operations personnel of the fire department. The work of the OIC is performed under the direction of the fire chief, assistant fire chief, or division chief; but considerable latitude is usually granted to OICs to initiate action and exercise independent judgment. OICs assigned to shift work are usually responsible for management of emergencies, personnel, fire stations, apparatus, equipment, training functions, and related activities. Other programs commonly administered by OICs include oversight of training, fire prevention, or administrative divisions. Most fire departments maintain a span of control of five or six fire stations per OIC. Occasionally, OICs may oversee as many as eight fire stations. The total number of units, personnel, and emergency responses usually determines the reasonableness of the span of control. As the number of fire stations, units, and personnel under the OICs supervision
increases, their ability to conduct activities outside of incident command usually reduces, which may negatively impact response times to emergencies. A point is reached where proper deputy
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chief supervision cannot be accomplished with large spans of control. In that case, some tasks will be overlooked or work will not be completed. An OIC usually responds as incident commander to emergencies requiring multiple fire department units, hazardous materials incidents, or emergencies involving special
circumstances. The incident commander is responsible for all aspects of the response including the development of incident objectives and management of all incident operations. The three command staff positions reporting directly to the incident commander are the safety officer, information officer, and liaison officer, if assigned. The role of the safety officer is to develop and recommend actions to assure the health and safety of emergency workers. The role of the information officer is to develop and release incident information to the media, incident personnel, and appropriate agencies and organizations. The role of the liaison officer is to serve as the point of contact for assisting and cooperating agencies that may be involved in an incident. The general staff under the incident commander includes operations, planning, logistics, and finance/administration. These responsibilities (as with those of the command staff) remain with the incident commander until such time that they may be assigned to another qualified individual. Benchmarks Assembling an effective response force on the scene of an emergency incident in a timely manner will often lead to a successful outcome. To assemble enough personnel to complete the tasks of extinguishing a moderate-risk structural fire may require 15 fire suppression personnel. The specific number will be identified in a critical task analysis, performed as part of a Standard of Cover plan (discussed as a recommendation in this document). One of those tasks is command. An OIC in the command role is the officer assigned to remain outside of the structure to coordinate the attack, evaluate results and redirect the attack, arrange for more resources, and monitor conditions that might jeopardize crew safety. In lieu of complete unification between Kitsap County Fire District #18 and North Kitsap Fire & Rescue, an agreement to share incident command staff across the combined service area could result in efficiencies not possible individually.
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Guidance Use standards of coverage and deployment documents to determine an appropriate level and number of incident commanders for the combined area. Create a formula for allocating the cost of a regional incident command program. Examples of factors for costing include; population, incidents, valuation, and coverage desired. Fiscal Considerations No significant financial considerations.
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Strategy E Purchase and Implement an Electronic Staffing Program Level of Cooperation Functional Timeline for Completion Short Term Section Administration and Emergency Operations Affected Stakeholders Both Agencies Objective Provide a uniform electronic system that combines telephone callback, personnel scheduling, and includes payroll and administrative features. Summary Both Kitsap County Fire District #18 and North Kitsap contact personnel for regular staffing and initiating callbacks in a variety of ways. The task of notification and filling vacancies has
traditionally been done via telephone, with someone having to make personal contact to fill each opening. Many departments across the country have purchased software programs for
handling this function. A key feature of these systems is that through the use of a touch-tone phone or computer, employees can access the system using a secure ID and password. Supervisors have the advantage of an automated system for personnel management. Discussion In 1998, the Long Beach (California) Fire Department made the decision to purchase an electronic staffing program with automated telephone callback system that combines scheduling at the fire station level, payroll, and administrative functions.39 Evidence of the benefits
described by Long Beach and other fire departments provide testimony to the rapid recovery of the initial cost of acquiring this type of software. Some of those benefits of a staffing program include: Automatically identify and contact replacement personnel. Notify personnel of an emergency recall.
39
JEMS, Innovation in Action, Workforce Wonder, December 1999, Vol.24, No.12.
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Automatically notify personnel of training, meetings, or organizational events. An accurate system for compiling and tracking a daily roster. Ensure equality in overtime distribution following labor rules and FLSA guidelines. Eliminate dependency on a single person(s) for staffing. Individual is personally responsible for own calendar. Automatically populates data fields in other RMS programs. Selecting a single electronic staffing program is one aspect in efficient coordination of the staffing resources of the two departments. The scheduling of training, personnel notification, unit staffing, and administrative assignments, along with the development of many other initiatives in this report, will benefit from the use of one electronic staffing program. One staffing software program was designed to be accessible with or without a computer network, and will accept requests and make contact with staff members by telephone. 40 The program is capable of placing outbound phone calls or delivering messages by pager, fax, or email. The software can make multiple phone calls simultaneously and is considered a solution for emergency and other staffing recalls. Guidance Involve human resources personnel, payroll, training, and labor in the development of specifications and the purchase of an electronic staffing program. Train key personnel in the use and maintenance of the software program. Network with other fire departments that have been successful in deploying an electronic staffing program. Create a staffing policy to accommodate management, labor, and legal requirements. Provide personnel with initial instruction and on-going support. Make available pocket size how-to-use cards for personnel. Work to implement the entire staffing program at the same time. Experience has shown that fire departments implementing the system all at once realize the full potential of the system more quickly and experience fewer administrative problems overall. Explore options for integrating the electronic staffing program with other software programs, including fire and EMS RMS, payroll, electronic logbook, and CAD.
40
TeleStaff, PDSI, (Principal Decision Systems International).
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Fiscal Considerations The cost of the system depends on the type of hardware requirements and software purchased. Annual maintenance agreement cost. Personnel costs for deployment of software and training. Reduction in management time spent on staffing. Potential savings in overtime costs from staffing errors. Accurate payroll records.
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Strategy F Develop Standard Operating Guidelines Level of Cooperation Functional Timeline for Completion Short Term Section Emergency Operations Affected Stakeholders Both Agencies Objective Provide guidelines for operation during emergencies and non-emergency incidents and activities. Summary Standard operating guidelines (SOGs) are used at the operations level of the fire department. They are analogous to a playbook, providing direction yet allowing for individualized company officer adjustments to situations. Currently, Kitsap County Fire District #18 has a bottom up process of developing SOGs based on prioritized risk that is in need of updating, and North Kitsap has a process under development to establish updated SOGs. This is a very opportune time to collaborate and combine SOGs for ease of incident and daily operational synchronicity.
Discussion Standard operating guidelines will improve on-scene safety, efficiency, and effectiveness of personnel. With personnel from both agencies trained in using the same procedures, they can approach an incident with an understanding that everyone will proceed in a similar fashion. This will greatly reduce or eliminate the confusion that can lead to delays in the delivery of service.
Guidance Keep the guidelines in electronic format for ease of updating. Give initial and recurring education to personnel in their use. Provide for continual use of the standard operating guidelines during routine incidents and at each training session.
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Provide for a periodic appraisal of the guidelines to maintain currency with changes in tactics, strategy, and equipment. Consciously keep guidelines non-specific to allow for adaptation to particular incidents by the supervisor. Fiscal Considerations The elimination of duplicated staff effort in the creation and updating of standard operating guidelines will reduce soft costs. Instructional time optimized during multi-agency training sessions by excluding time devoted to adapting to differing procedures.
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Strategy G Shared Specialty Teams Level of Cooperation Functional Timeline for Completion Mid Term Section Emergency Operations Affected Stakeholders Both Agencies Objective Provide specialty teams or specialty functions by allocating and distributing resources to achieve minimum cost and maximum operational benefit. Summary Specialty teams are group(s) made up of individuals having areas of expertise in roles outside the level of training considered as normal for fire suppression personnel. Public expectation has increasingly focused on fire departments as the logical source to staff, equip, train, certify, and maintain specialty teams. A specialty team may concentrate on one or more disciplines.
Examples of specialty teams for Kitsap County Fire District #18 and North Kitsap Fire & Rescue include: Hazardous materials (specifically, certification of B/Cs to IC level) Technical rescue (currently, both agencies are part of a regional team) Confined space/trench rescue (currently, both agencies are part of a regional team) Water rescue (North Kitsap has an active water rescue function) ICS overhead Rehabilitation Ladder company41 Honor guard Chaplaincy
41
The deployment of ladder companies is considered an essential component of a suppression response; in this instance we consider the acquisition and sharing of this resource to be a fiscally prudent use of resources.
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Discussion The ability of every fire department to be fully equipped for every conceivable incident, with all personnel trained and certified to the highest level is impractical; but the reality is that any fire department will occasionally encounter unique incidents that require specialized equipment and personnel. Specialty teams based only in one fire department commonly respond to fewer requests for service, which results in greater cost per incident. While the cost effectiveness of shared specialty teams is important, keeping skill and interest levels of personnel high is essential. Personnel who train less and who use skills infrequently are arguably at greater risk when working under dangerous conditions. Shared specialty teams are more effectively able to maintain high skill, knowledge, and ability because such teams typically train and respond to emergencies more frequently. Guidance Determine the need for specialized teams for the combined service area. Consider including other neighboring agencies, such as Bainbridge Island. Establish a single set of standard operating guidelines. It is very important that all departments operate by the same procedures when using shared resources. Fiscal Considerations The elimination of duplicated effort in equipping, training, and staffing may reduce overall program costs.
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Strategy H Provide Joint Standards for Service Delivery Level of Cooperation Functional Timeline for Completion Short to Mid Term Section EMS and Emergency Operations Affected Stakeholders Both Agencies Objective Comply with RCW 52.33 Fire Departments Performance Measures (North Kitsap Fire & Rescue is currently non-compliant) Establish a joint Standards for Service Delivery Policy, defining services, service levels, and response times to the 90th percentile so that adequate system planning can take place. Develop a system-wide reporting structure to standardize the collection and reporting of relative compliance with the Standards for Service Delivery Policy. Summary Response times are one of the most frequently used methods of measuring system performance. Fire agencies and policymakers require a gauge by which to measure the
effectiveness of the system and a method by which to make decisions. Because the economic cost of providing emergency services is highly sensitive to response times, a small change in response time requirements may cause a significant change in cost. Policymakers must
therefore carefully consider the balance between the economic cost and community risk. Discussion In conducting research for the Commission on Fire Accreditation International, Inc. (now under the larger heading of Center for Public Safety Excellence), members of the initial task force spent considerable effort toward examining the factors that make up the time required to be notified of and respond to a fire emergency. A thorough understanding of the relationship of time and the progression of an emergency was fundamental to defining optimum service levels.
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In the process of this work, the task force noted that many fire departments are collecting data on emergency response but are not necessarily using that data to measure performance.42 Commonly, a problem occurs when fire departments use different timeframes in collecting and reporting response time statistics. For example, if a department does not include alarm processing or turnout time in its definition of response, the departments response statistics may be unfairly weighted because only travel time to the emergency is measured and reported. On the other hand, a department that does include alarm time and processing time in its collection of data may be compared unfavorably to a department that does not. Kitsap County Fire District #18 has established a RCW 52.33 compliant Policy (1004) and annual reporting mechanism on its performance objectives. North Kitsap has response time goals for certain call types, but does not have an RCW 52.33 compliant policy. It is, however, in their work plan for 2011. The two agencies can position themselves for greater efficiency in a
number of areas by aligning their services and service standards to the degree practical, addressing the salient points of RCW 52.33 as follows:
1. Every fire protection district and regional fire protection service authority shall maintain a written statement or policy that establishes the following: a. The existence of a fire department; b. Services that the fire department is required to provide; c. The basic organizational structure of the fire department; d. The expected number of fire department employees; and e. Functions that fire department employees are expected to perform. 2. Every fire protection district and regional fire protection service authority shall include service delivery objectives in the written statement or policy required under subsection (1) of this section. These objectives shall include specific response time objectives for the following major service components, if appropriate: a. Fire suppression; b. Emergency medical services; c. Special operations; d. Aircraft rescue and firefighting;
42
Creating & Evaluating Standards of Response Cover for Fire Departments, Fourth edition, Chapter 2, page 1, Commission on Fire Accreditation International, Inc, 2003, Chantilly, VA.
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e. Marine rescue and firefighting; and f. Wild land firefighting.
3. Every fire protection district and regional fire protection service authority, in order to measure the ability to arrive and begin mitigation operations before the critical events of brain death or flash-over, shall establish time objectives for the following measurements: a. Turnout time; b. Response time for the arrival of the first arriving engine company at a fire suppression incident and response time for the deployment of a full first alarm assignment at a fire suppression incident; c. Response time for the arrival of a unit with first responder or higher level capability at an emergency medical incident; and d. Response time for the arrival of an advanced life support unit at an emergency medical incident, where this service is provided by the fire department. 4. Every fire protection district and regional fire protection service authority shall also establish a performance objective of not less than ninety percent for the achievement of each response time objective established under subsection (3) of this section. The International Association of Fire Chiefs (IAFC) makes recommendations for response times and has established a Cascade of Events to assist responders in understanding response intervals for emergency operations. Irrespective of the standard used, system regulators
establish an appropriate response time reporting method for their local communities. While call processing and dispatch functions are external for both agencies, those dispatch functions should also be measured and monitored by the system and standards for dispatch should be established.
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North Kitsap Fire & Rescue Kitsap County Fire District #18, WA Feasibility Study Figure 110: Emergency Operations Cascade of Events
Critical Issues Data issues o o The fire departments should collaborate with the dispatch agencies to ensure that the data points can be captured by the center. The dispatch center should develop methods to report on the response performance using industry standard fractal reporting methods.
Performance considerations o o Both agencies should establish differential standards for response performance for urban, suburban, and rural deployment areas. Both agencies should determine valid and reliable performance reporting methods for response performance.
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Both agencies must report out to the community annually via an open public meeting on the actual performance as measured against the performance objectives. Contained in this report are: the geographic areas and circumstances in which the requirements are not being met the predictable consequences of any deficiencies the steps that are necessary to achieve compliance
Financial and fiscal considerations o o Marginal costs of providing committee work. Reporting will require additional resources from both agencies and from dispatch.
Fiscal Considerations Minor financial impact outside of soft costs.
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Strategy I Implement the Use of Peak Activity Units (PAUs) Level of Cooperation Functional Timeline for Completion Mid Term Section EMS, Emergency Operations, and Training Affected Stakeholders Both Agencies Objective Provide special response units in areas of high incident activity and for replacement of units attending training sessions or called to cover special events. Summary As part of collaborative efforts, Kitsap County Fire District #18 and North Kitsap Fire & Rescue may enter into agreements such as training, occupational medicine, public education, and standards of response for deploying resources. Maintaining adequate emergency capability during these and other activities may require the use of non-traditional staffing strategies. One such method is to staff additional emergency response units as needed. These units are sometimes referred to as Peak Activity Units (PAUs). A PAU (i.e., fire engine, medic,
ambulance, squad, or aerial device) can be staffed for a scheduled event, for periods of peak demand, or to cover a response zone while other fire personnel attend training. Adding PAUs as an adjunct to current staffing patterns adds flexibility to fire department emergency operations. Discussion A traditional fire company is staffed and continuously available 24-hours per day to respond to emergencies. Move-ups (the repositioning of a fire company to cover understaffed response zones due to emergencies or training) have been a long-standing practice for many fire departments. Only recently as a result of more powerful analytical tools have some fire departments become more aggressive with move-ups, spawning such terms as dynamic redeployment, system status management, and PAUs.
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For the purpose of this discussion, we assume that a PAU would be operated by three personnel and would be made available for response 12 hours per day, six days per week. A PAU can be activated for a scheduled event, for periods of peak demand, or to cover a response zone while other fire personnel attend training. Adding PAUs as an adjunct to staffing patterns adds flexibility to fire department emergency operations. It should be noted that a PAU would have staff assigned that may work a different schedule than the hours worked by typical firefighters. An example of this type of staffing schedule is shown in the figure below. A total of four suppression personnel, two officers and two
firefighters, work a 48-hour work week. Each person is assigned two 12-hour shifts and one 24hour shift. Under this arrangement when working a 24-hour shift, it is possible that a person could be assigned to fill a vacancy of another company during the second 12 hours. Note: Any discussion of alternative working schedules is only hypothetical and is used here as a way of illustrating this partnering strategy. Any and all proposed changes to work schedules and working conditions must be conducted through a collective bargaining process with representatives of the respective firefighter associations.
Figure 111: Sample Schedule for Staffing a PAU Engine Monday Officer 24 hours Firefighter 12 hours Off Off Tuesday Officer 12 hours Firefighter 12 hours Off Off Sample Schedule for Staffing a PAU Engine Wednesday Thursday Friday Officer Off Off 12 hours Firefighter Off Off 24 hours Officer Officer Off 24 hours 12 hours Firefighter Firefighter Off 12 hours 12 hours Saturday Off Off Officer 12 hours Firefighter 24 hours Sunday Off Off Off Off
Other possible configurations for staffing PAUs include but are not limited to: Staff a PAU with overtime/callback personnel to meet individual situations. A PAU may be deployed for training sessions, fire prevention activities, special community events, and anticipated peak activity periods. Staff an engine available 12 hours per day, four days each week. The staffed hours would be adapted to cover the time when the greatest number of calls for service typically occurs. Staff an ambulance with two personnel available 12 hours per day, seven days each week. The staffed hours would be adapted to cover the time when the greatest number of calls for service typically occurs. Staff a PAU with personnel eight hours per day, five days each week.
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Critical Issues Discussions involving any changes to work schedules and or working conditions must be conducted in bargaining with the respective firefighter unions. Training issues o o The personnel used to provide PAUs will need to be included in on-going training activities. The personnel on PAUs must be cross-trained to understand the management structures and oversight capabilities of each host agency.
Roles and responsibilities o The two agencies must clearly define roles and responsibilities of the personnel on PAUs. The roles and responsibilities should be clearly communicated to all personnel and not limited to those assigned to a PAU. The two agencies should have integrated electronic reporting mechanisms for incident reports. Personnel that staff PAUs should not have to learn multiple reporting methods based on where they happen to be temporarily assigned. Lines of supervision for PAUs must be clearly defined.
Financial and fiscal considerations o o Agencies will need to determine how the cost of PAUs will be allocated if personnel staffing PAUs are shared. If a PAU has EMS responsibilities, it may be necessary for some agencies to purchase integrated patient care reporting systems so that personnel can provide patient care reports irrespective of where they are assigned.
Guidance Do not limit potential options for non-traditional staffing. Develop guidelines for uniform incident reporting. Establish standards for deploying personnel between agencies. Align agencies to provide appropriate oversight irrespective of where the personnel are assigned. Ensure agency support for standardized personnel services. Fiscal Considerations Financial support will be necessary and a process for allocating costs between agencies will be required. The agencies must determine whether and what type of hardware and software will be needed for incident reports.
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Strategy J Develop Deployment Standards Level of Cooperation Functional Timeline for Completion Short Term Section EMS and Emergency Operations Affected Stakeholders Both Agencies Objective Develop deployment standards that establish the distribution and concentration of emergency resources, both fixed and mobile. Summary All agencies have policies for deploying resources, albeit at times informal and undocumented. Developing standards for response and coverage will formally define the distribution and concentration of the fixed and mobile assets of an emergency organization. The process of standards development includes reviewing community expectations, setting response goals, and establishing a system of measuring performance. The resulting plan includes all aspects of the community and organization that are required to create response standards and to determine the ideal use of resources. Deployment Standards are closely tied to Standards for Service Delivery, discussed earlier in this report. Discussion The deployment of resources should adhere to the following analysis: Demand o Analysis and geographic display of current service demand by incident type and temporal variation
Distribution o Overview of the current facility and apparatus deployment strategy, analyzed through Geographical Information Systems software, with identification of service gaps and redundancies
Concentration o o Analysis of response time to achieve full effective response force Analysis of company and staff distribution as related to effective response force assembly
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Reliability o o o Analysis of current workload, including unit hour utilization of individual companies (to the extent data is complete) Review of actual or estimated failure rates of individual companies (to the extent data is complete) Analysis of call concurrency and impact on effective response force assembly
Performance o o o Analysis of actual system reflex time performance, analyzed by individual components (to the extent data is available) Benchmark services levels against comparable agencies and industry standards Identify various deployment and service delivery options based on the analysis performed.
Critical Issues Exercise caution when developing deployment standards. Even minor changes when setting service level objectives can have broad impact. Guidance Review existing Kitsap County Fire District #18 and North Kitsap Fire & Rescue deployment standards (whether formal or informal) and response time standards. Prior to developing or modifying deployment standards, elected officials, administration, and staff should be educated on and have a clear understanding of the process. Kitsap County Fire District #18 and North Kitsap Fire & Rescue should develop deployment standards collectively and have agreements in place to specify deployment plans. Differentiate between urban, suburban and rural areas of the combined communities and set deployment accordingly. Developing a deployment standard is a loop process. For example, if after establishing service level expectations the resultant response plan is found to be too expensive, the organizations might need to re-challenge the communitys elected leaders to lower service expectations, or to find additional funding. Fiscal Considerations Change, however minor, in current service level goals may result in dramatic change to the deployment and distribution. A change in service level goals may require: o o o New facilities or modifications to existing ones New or redeployed apparatus Additional or redeployed personnel
Marginal cost of staff time to develop a standard of cover.
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Strategy K Shared Public Education/Public Information Level of Cooperation Functional Timeline for Completion Mid Term Section Administration and Fire Prevention Affected Stakeholders Both Agencies Objective Provide Public Education and Public Information services for the combined service area Summary Both Kitsap County Fire District #18 and North Kitsap Fire & Rescue have Public Educators who also perform ancillary duties, from inspections and pre-incident plans to community relations and public information. Public Education is an important component of fire prevention and cost effectiveness. The incident response is an expensive endeavor, thus, an incident avoided is a significant expense avoided. Discussion Combining the two existing positions into a team that serves both agencies allows for the strengths of each individual to be aligned best with the broader organizational needs. Surge capacity is also gained when one area or the other is suffering from a workload spike. Guidance Evaluate the needs of the combined service area and develop a list of skills required to meet those needs. Realign the individuals currently performing their tasks for the separate organizations into the tasks that best match their skill sets, consistent with the organizations need, while balancing the workload. Fiscal Considerations No significant financial considerations.
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Strategy L Shared or Common Records Management System Level of Cooperation Functional Timeline for Completion Mid Term Section Administration and Emergency Operations Affected Stakeholders Both Agencies Objective Establish a shared or common electronic Records Management System, including NFIRS, NEMSIS and WEMSIS compliant software for both agencies Summary A common Incident Reporting database is key to several other opportunities for efficiency outlined in this report. For example, if jointly staffed units or Peak Activity Units were to be implemented, the crews from both agencies must be familiar with the incident reporting program, without regard to the employer they report to or the jurisdiction they respond to. By establishing a common or shared Incident Reporting software system, that additional level of complexity is eliminated. Discussion Both Kitsap County Fire District #18 and North Kitsap Fire & Rescue have different records management systems and different but compliant Incident Reporting programs. By sharing the backbone of the stronger of the two agencies system, expense may be reduced and common data collection can be established. The Emergency Reporting System (ERS) software is an impressive, full featured program currently utilized by North Kitsap Fire & Rescue. By
expanding on this system, a proven product can be leveraged to the benefit of Kitsap County Fire District #18, and a common data base established. This virtually eliminates any confusion about records retention or different data being gathered, potentially leading to conflicting policy decisions between the two agencies. Guidance Ensure the two agencies policies and procedures are aligned or at least are not in conflict with each other as it relates to incident report writing.
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Fiscal Considerations Expansion of the existing ERS program currently used by North Kitsap Fire & Rescue will undoubtedly increase costs. A comparison between the cost of expanding the North Kitsap ERS program to include Kitsap County Fire District #18 and the cost of duplicating ERS in Kitsap County Fire District #18 as a stand-alone system, must be performed.
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Strategy M Shared Intern Program Level of Cooperation Functional Timeline for Completion Mid Term Section Administration, Training and Emergency Operations Affected Stakeholders Kitsap County Fire District #18 Objective To augment staffing levels in the Kitsap County Fire District #18 service area To develop a recruit training program for future hires Summary The North Kitsap Fire & Rescue intern program provides much needed staffing augmentation where hiring additional career firefighters is currently unaffordable. Coupled with the history of NKFRs placement of most of these interns into career firefighter positions (either within NKFR or in other career departments, including Kitsap County Fire District #18) makes this program beneficial to the community, to the career firefighters through increased staffing levels, and to the interns themselves. Kitsap County Fire District #18 would benefit from implementation of such a program. Discussion North Kitsap Fire & Rescues intern program is unique in the fire service. It currently augments the career staffing by an average of 42.4 percent across all three shift. While these programs are not without cost (Personal Protective Equipment or PPE, training, hire screening processes, etc.), it is far more affordable than hiring a career firefighter. While ESCI does not advocate the replacement of career personnel with volunteers where hiring is possible, the circumstances facing Kitsap County Fire District #18 financially make hiring personnel a possibility at this time. With an intern program in place similar to North Kitsap Fire & Rescues program, Kitsap County Fire District #18 can invest in potential future career firefighters by recruiting from within the intern ranks at the point in time that hiring becomes possible again.
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Guidance Implementation of this program likely requires bargaining prior to implementation. This program can be altered to fit the Washington State Council of Firefighters endorsed Apprenticeship Program. Fiscal Considerations PPE and uniforms for interns can cost $2,000 per intern Hire pre-screening, such as medical physical, psychological, background investigation costs can be significant
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Strategy N Combine Volunteer Services Level of Cooperation Functional Timeline for Completion Mid Term Section Emergency Operations and Training Affected Stakeholders Both Agencies Objective Combine existing volunteer cadre into a resource pool for both agencies to utilize Summary Both agencies have very small, specialized groups of volunteers. These groups can be combined and expanded to provide greater benefit to both agencies, while reducing the administrative and training workload currently expended maintaining separate groups.
Discussion North Kitsap Fire & Rescue has two sleeper volunteers (volunteer personnel who are certified FFI, hazmat operations, EMT-B and are qualified to drive aid cars and engines), and one EMT volunteer (volunteer personnel who are qualified EMT-B, haz-mat awareness, and qualified to operate aid cars).
Kitsap County Fire District #18 has 46 volunteers who have various assignments, capabilities and limitations. However, Kitsap County Fire District #18 is about to embark on a new volunteer program that should be the model for this combined pool of volunteers, led by a volunteer coordinator selected from the ranks of existing volunteers of both agencies.
The volunteer pool can be drawn from by both agencies to provide firefighter/technician response, firefighter/operations support, administrative support, or any of the various permutations provided for in the program. Separate engine companies or BLS ambulance
companies can be made up of volunteer crews to staff currently unstaffed stations, providing the
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community with service enhancement beyond the current capabilities of either agency as they operate currently.
Guidance The volunteer coordinator should be a combined recruiter, cheerleader, enforcer, problem solver and administrator. This position is critical to the success of such an endeavor. Fiscal Considerations No significant financial considerations.
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Strategy O Combine Administrative Services Level of Cooperation Functional Timeline for Completion Mid Term Section Administration Affected Stakeholders Both Agencies Objective
Summary Kitsap County Fire District #18 has a Business Management function with an Administrative Services Manager. The Business Management Unit includes Human Resources, Information Technology, Finance and Budget Management, and Administrative Support.
North Kitsap Fire & Rescue has an Administration Division under the direction of the fire chief, who is responsible for human resource services, financial accounting, budgeting, and reporting services; treasury and investment management, risk management, and strategic forecasting services. The division also manages debt issuance and legal services, technical services, maintenance and management of District records, and provides administrative support to the Board of Commissioners.
The two functions are virtually identical, which means they are highly duplicative. The activities of the administrative support/business management functions are critical to legal/risk management/fiscal health of the agencies. While there may not be positions that could be eliminated, there are certainly areas of concentration/specialization that could be developed by realigning existing FTEs into those areas of specialization/concentration. Discussion Significant expertise can be developed by investing in dedicated training for an incumbent to become an HR specialist for both agencies. The same can be said for an incumbent to be
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developed as a Budget/Investment Analyst for both agencies. The same opportunity exists for an incumbent to be developed as an IT specialist for both agencies.
Clearly, some functions reside best with the fire chiefs of the respective agencies, but having well developed technical specialists managing those critical support functions in the Administrative Services Division provides the chiefs with expertise beyond what they currently receive simply by reconfiguring assignments and investing in concentrated training. Guidance Identify the skills required for the tasks at hand first, then evaluate the capacity of the incumbents to shift into those specialty or job functions. Where a gap exists between skill sets of incumbents and a specialty or job function, seek a well-qualified candidate rather than accept less than is needed for the organization to spare an incumbents job. Both the incumbent and the organization will be unhappy in the end. Fiscal Considerations Training costs will increase initially. Once a baseline skill set is established, efficient and effective decisions will follow, creating unknowable savings in such things as avoided legal action or revenue and budget forecasting that maximizes available tax dollars.
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Strategy P Implement North Kitsap Benefit Package Level of Cooperation Functional Timeline for Completion Mid Term Section All Sections Affected Stakeholders Kitsap County Fire District #18 Objective Manage escalating health care insurance premiums by adopting the NKFR Employee Benefit Policy contained in their 2009-2010 Collective Bargaining Agreement. Summary Health care costs are escalating on an annual basis by double digits in some cases. The employer has no control over these costs through traditional health care benefit packages. Typical health care costs for the employer run approximately 35 percent of the employees annual salary. NKFR labor and management have implemented a program that partially
mitigates these escalating costs while providing customizable benefits for the employees. Further, the employees are able to benefit from increasing their pension benefit, depending on the option the employee chooses. Discussion North Kitsap Fire & Rescue (labor and management) have agreed on a plan that pays health benefit dollars to each full time employee 15 percent of their base salary plus 1 percent per year of service, not to exceed 35 percent of top step firefighter. The payments are made in equal monthly payments either to the employee in cash or on the employees behalf to one of several benefit plans (Pre-tax benefits, TASC Cafeteria Plan, AFLAC Cafeteria Plan, 457 Deferred Compensation Plan, MERP Post-Retirement Medical, Taxable benefits such as disability and long term medical care insurance). The District provides access to the Washington Fire Commissioners Association Health Care Plan (or equivalent) for Medical, Dental, and Vision for employee and dependents. The
employee makes the payments (through allocation of the benefit dollars as directed by the employee) and covers all deductibles and provider balances.
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The union and District agree on the providers of the medical/dental/vision insurance offered by the District. In addition, the union selects an approved and insured Post-Retirement Healthcare Plan as authorized by the appropriate regulatory agency. Guidance Consulting with health care experts would be a prudent course to take to prevent unintended consequences from occurring for employees or the employer. As a mandatory subject of bargaining, implementation of this program requires a duty to bargain with the union. Fiscal Considerations Capping the rate of increases to an index on top step firefighter makes the cost escalation more controllable by the employer.
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Strategy Q Align Operational Staffing Schedules Level of Cooperation Functional Timeline for Completion Mid Term Section Emergency Operations Affected Stakeholders Both Agencies Objective Adopt the 56 hour work week and reduce consecutive hours of work to 24 (either a 24-48 or a modified Detroit 56) Summary Kitsap County Fire District #18 firefighters work a 24 hour shift and a 48 hour work week. North Kitsap Fire & Rescue firefighters work a 48 hour shift and a 56 hour work week. In order for many of the efficiencies recommended in this report to work smoothly, both organizations need to have their work schedules aligned. Discussion Each agency approaches the work schedule with benefits and drawbacks from an employer standpoint. Kitsap County Fire District #18s 24-hour shift is a more traditional approach and in ESCIs opinion better suited and defensible for the safety and well-being of employees, the public, and employer. In a study conducted on sleep deprivation here in the Northwest, the effects on emergency service providers performance and the health consequences of sleep deprivation were examined. The study titled The Effects of Sleep Deprivation on Fire Fighters and EMS
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Responders concludes that Humans dont perform at peak levels without adequate sleep. One example from the study of the consequences of sleep deprivation from the study is shown below.
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The Effects of Sleep Deprivation on Fire Fighters and EMS Responders, Final Report, June 2007, Diane L. Elliot, MD, FACP, FACSM, Kerry S. Kuehl, MD, DrPH, Division of Health Promotion & Sports Medicine, Oregon Health & Science University, Portland, Oregon.
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Maggies Law was named after Maggie McDonnell, a 20-year-old college student from New Jersey who was killed by a drowsy driver on July 20, 1997 at 11:30 AM when the car she was driving was hit head-on by a van that had crossed three lanes of traffic. The driver of the van told police that he had not slept in 30 hours. Since the jury was not allowed to consider driver fatigue as a factor, he was only convicted of careless driving and fined $200. The events led to the a signed New Jersey statute (http://www.njleg.state.nj.us/2002/Bills/A1500/1347_R2.HTM). Under the law, a sleep deprived driver who causes a crash after being awake for more than 24 hours can be convicted of vehicular homicide. The law also raised the specter of corporate liability in cases of drowsy employees who work long hours, high amounts of overtime, double-shifts, or even 24-hour on-call periods at their employers request. For extended hours employers in New Jersey and surrounding states, Maggies Law increases the risk of corporate liability should an employee cause a fatal drowsy driving accident, said Dr. Martin Moore-Ede, chairman and CEO of Circadian Technologies, Inc. We are seeing a steep increase in driver fatigue accident litigation. In fact, the US Department of Transportation identifies fatigue as the number one safety problem in transportation operations, with a cost in excess of $12 billion a year. Any mention of sleep adequacy will quickly evolve in a discussion of work schedules and are certain to illicit a visceral response. The reality is there is correlation between the amount of sleep one gets and their overall level of performance. The 56 hour work week used by North Kitsap provides a more cost effective level of service than the 48 hour work week used by Kitsap County Fire District #18. Taking the best of both approaches and creating a 56-hour work week with 24 hour shifts provides a cost effective strategy in delivering service and a safer work environment for the employees with the potential for sleep deprivation. Fair Labor Standards Act requires that employees using the 7k exemption (employees who work for a fire service agency and who are trained and expected to perform firefighting functions) receive overtime for hours exceeding 53 hours per work week. Employees who use sick leave or vacation during the work cycle and drop their actual hours of work below the maximum are not eligible for overtime unless otherwise required in the collective bargaining agreement. By adopting a 56 hour work week and 24 hour shift work, the combined agencies employees will, in most cases, incur overtime of 3 hours per work week. However, more duty hours of coverage is provided to the community.
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As an alternative, a 53-hour work week can be adopted, reducing the overtime exposure, but reducing the cost effectiveness of service delivery somewhat. Guidance As a mandatory subject of bargaining, implementation of this program requires a duty to bargain with the union. Fiscal Considerations Calculating the hours of work and overtime exposure requires careful analysis to maximize the cost effectiveness of this proposal
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Strategy R Adopt Dropped Border Response Level of Cooperation Functional Timeline for Completion Short Term Section Emergency Operations Affected Stakeholders Both Agencies Objective Improve service delivery to both agencies by sending the closest unit to an emergency call for service without regard to jurisdiction. Summary As neighboring agencies sharing a long, common boundary and in many cases the same constituents (residents of one agency may commute to work in the other agency and vice versa), there is a need to erase the boundary between the agencies mentally when providing emergency service to the public. Discussion The process of sending the closest unit to an emergency without regard to jurisdiction is an expectation by most citizens of their government. It is commonly said that when an emergency strikes, people dont care what it says on the door of the apparatus, what color it is or what the patch says on the shoulders of the uniforms, just get there quickly! This is perhaps the easiest efficiency to implement and is a simple expansion of automatic aid. Coordination must take place between agencies to ensure that move-ups are used appropriately so as not to create a significant subsidy situation by either agency. Neither agency is sufficiently large enough to handle multiple incidents of magnitude. beneficial. Guidance Training, Standard Operating Procedures, PAUs, Joint Staffing of Units are all strategies that benefit from a boundary drop approach to service delivery. Fiscal Considerations No significant financial considerations. Thus, sharing each others resources is mutually
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Strategy S Adopt Criteria-Based Dispatch Level of Cooperation Functional Timeline for Completion Short Term Section Emergency Operations Affected Stakeholders Kitsap County Fire District #18 Objective Send the most appropriate unit to an emergency based on medical criteria established by experts in the field. Summary Criteria-Based Dispatch is a process whereby callers to 9-1-1 are taken through an algorithm that guides the dispatcher to send the most appropriate medical unit to a patient. The criteria is established by medical experts who default to reasonably low risk decision making, erring on the side of higher medical care for gray area symptoms. Discussion Most fire service agencies in the state of Washington utilize some form of Emergency Medical Dispatch, whether the Criteria-Based Dispatch designed in King County, the Clawson Protocols, or other commercially available systems. Studies have been conducted to evaluate the safety and efficacy of Criteria-Based Dispatch in its various forms. One such study had 11,174 patients enrolled. The use of Emergency Medical Dispatch was associated with a significant decrease in the proportion of calls designated as ALS (>11 percent drop), as well as a significant decrease in the number of ALS responses cancelled by BLS (>14 percent drop). The conclusion was that implementation of an Emergency Medical Dispatch system significantly decreased inappropriate ALS dispatching, as defined by decreased rate of ALS cancellations and BLS releases.44
44
THE USE OF EMERGENCY MEDICAL DISPATCH PROTOCOLS TO REDUCE THE NUMBER OF INAPPROPRIATE SCENE RESPONSES MADE BY ADVANCED LIFE SUPPORT PERSONNEL, 2000, Vol. 4, No. 2 , Pages 186-189 (doi:10.1080/10903120090941489), E. David Bailey1, Robert O'Connor1
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Guidance Coordination with the Kitsap County Medical Program Director and CENCOM is essential prior to implementation. Fiscal Considerations Since North Kitsap Fire & Rescue are currently using Criteria-Based Dispatch, it is assumed that the protocols are already in place at CENCOM. Therefore no additional cost is anticipated.
and Robert W. Ross1, 1Department of Emergency Medicine, Christiana Care Health System (EDB, REO), Newark, Delaware; and Delaware Office of EMS (RWR), Dover, Delaware.
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Strategy T Implement a Computerized Training Records Management System Level of Cooperation Functional Timeline for Completion Mid Term Section Training Affected Stakeholders Both Agencies Objective Provide a fully integrated comprehensive training records management system (RMS). Summary Computerized RMS provides for ease of data entry, retention, and accessibility. RMS is designed to provide comprehensive information regarding an individual, company, station, shift, and department training status. All RMS are designed to query records and generate a variety of user-defined reports. Both fire departments individually selected RMS for their departments, resulting in a diversity of products. Both departments attempt to make good use of their systems, although not all of the capabilities are fully utilized. NFPA 1401, Recommended Practice for Fire Service Training Reports and Records, provides standards for record keeping systems. NFPA 1401 presents a systematic approach to providing essential information for managing the training function of the fire department. It includes the types of records, reports, and forms that can serve as basic information tools for effective training administration. It also provides recommended practices related to computerization of records and reports and the legal aspects of record keeping. Discussion In many organizations, an assortment of factors, including a lack of staff support, the time to become proficient with the software, and software limitations, frustrate and prevent users from fully using RMS. The use of a standardized RMS would enhance utilization of the data provided by the system. With a standardized RMS, one administrative staff person could provide instruction and help troubleshoot the system. The ability to use the system to its maximum potential and to retain
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and generate meaningful reports is improved. An environment is created for system users to share knowledge, experience, and assist one another in problem resolution. Vacations, overtime work, rotating shift schedules, and normal absenteeism make training schedules very difficult to manage. The ability to track and assess training information would foster the development of a unified training manual and an annual training plan. Future
enterprises may benefit from a single RMS, including recruit training, career development, inservice, officer, and specialized training programs. A RMS for training will aid
department/division heads in budget planning, training delivery, and with resource and risk management. Guidance Establish a work group that includes at least one training representative from each department. o o o o Identify system requirements and needs of each department. Evaluate the RMS currently used by each department, including justification for their use. Evaluate other available RMS systems. Select an RMS that most adequately satisfies mutual requirements, needs, and budget.
Each department should share in the cost of an individual to administer and manage the training RMS, including: o o o Training RMS management. Oversight of hardware and software installation. Providing for the initial and on-going RMS training for end users.
Determine server requirements for training RMS. Use an existing or establish a new Intranet/Internet network. Provide for RMS maintenance and troubleshooting services. Acquire technical assistance for RMS programming. Provide for a periodic appraisal of the RMS. Fiscal Considerations A reduction in duplicated effort (reduces soft costs) in acquiring, learning, and maintaining, individual systems. Economies of scale in the collective purchase, use, and maintenance of a single RMS. Cost to purchase, administer, maintain, or modify existing network.
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Personnel costs associated with RMS committee, training, and implementation.
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Strategy U Develop Mutual Training Strategies Level of Cooperation Functional Timeline for Completion Short to Mid Term Section Training Affected Stakeholders Both Agencies Objective Provide purpose and direction for training program management and delivery. Combine strengths and resources to: o o o o Overcome current training obstacles and deficiencies. Provide a comprehensive and integrated training structure. Develop a mutually beneficial training program. Train and certify a cadre of knowledgeable and skilled emergency responders.
Summary Agreements between public agencies to functionally consolidate certain programs are becoming increasingly common. Such cooperative initiatives are a means to mutually increase efficiency through reduction or elimination of duplication; something not usually achievable by a single entity. We believe that mutual training strategies for Kitsap County Fire District #18 and North Kitsap Fire & Rescue will accomplish that. Discussion Certain individuals are assigned responsibility (through job description or by special assignment) for development and delivery of their departments training program. Kitsap County Fire District #18 and North Kitsaps training program is carried out, in large part, independently, with varying levels of program development, content, and quality. All persons responsible for firefighter training appear to work towards providing comprehensive programs; but not surprisingly, success is inconsistent. With a mutually established training strategy,
Kitsap County Fire District #18 and North Kitsap can develop consistency and improve training results.
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With shared resources, shared expertise, and geographical proximity, Kitsap County Fire District #18 and North Kitsap Fire & Rescue are well positioned for training collaboration. Developing a strategic training plan for Kitsap County Fire District #18 and North Kitsap firefighter training is a crucial first step. A strategic training plan evaluates current training levels and determines future training goals and objectives. The process includes identifying the existing type and level of emergency
services, followed by an audit of the certification and skills of emergency workers. Strategies are created to develop curriculum, obtain resources, and produce a training schedule. Currently, each agency adopts their training standards and certification levels for the job classifications independently. A combined strategic training plan drives consistency and
continuity between the two agencies and within each agency. As part of the combined training strategy, a system of competency-based training and skills evaluation is recommended for all suppression and EMS personnel. Competency-based training helps firefighters achieve and retain the required skills for specific jobs. The term skill is defined in Merriam-Webster as A learned power of doing something competently: and a developed aptitude or ability. We recommend that mutual training strategies include the semiannual evaluation of individual and company proficiency. Results of the evaluations may then be used to continuously re-evaluate the training strategy over the long term. Critical Issues The variations between current programs used by the two agencies may initially require personnel to receive additional training. Personnel involved in the development of a combined training manual should also be involved with development of mutual training strategies. The two agencies should produce a statement attesting to their commitment of developing mutual training strategies. Guidance Establish a work group to evaluate and develop common training strategies: o o Identify goals and establish objectives. Set benchmarks.
Evaluate the other related training topics found in this section: o o Video conferencing Annual training plan
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o o o o
Shared training manual Training facilities Training standards Record keeping
Encourage creativity to apply existing strategies in new and different ways and to develop new strategies. Provide for a periodic appraisal of the training strategy, evaluating relevancy, effectiveness, and compatibility with current need. Keep strategies in electronic format for ease of updating. Fiscal Considerations No significant financial considerations.
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Strategy V Develop an Annual Shared Training Plan Level of Cooperation Functional Timeline for Completion Short Term Section Training Affected Stakeholders Both Agencies Objectives Provide standardized and consistent training. Provide a well-trained emergency workforce. Provide long-term vision and direction for training delivery. Summary The 2007 version of NFPA 1500 states, "The fire department shall provide training and education for all department members commensurate with the duties and functions that they are expected to perform.45 A formalized training plan provides the guidance for meeting training requirements. The plan and subsequent training is used to ensure that firefighters are competent, certified, and possess the ability to safely deal with emergencies. Training priorities are established by evaluating responder competencies to training mandates, requirements, desired training, and with the emergency services being delivered. performance or outcome-based training. An annual training plan should reflect priorities by identifying the training that will occur. Training topics, general subject matter, required resources, responsible party, tentative schedule, and instructors are all covered in the plan. Rationale for why certain topics were chosen (or not chosen) is also included in the plan. Contemporary training delivery often revolves around
45
National Fire Protection Association, Standard 1500 Standard for Fire Department Occupational Safety and Health Programs, Training and Education, 2007 Edition.
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Discussion Planning is essential to a successful training division, functioning much like the rudder of a ship. To efficiently plan the direction of a training program, complex factors must be considered, including: training mandates, department type, personnel development, unanticipated need, priorities, and finite training time. Successfully charting a course through such issues can be a daunting and overwhelming task for the lone training officer. Currently, each agency individually deals with the same or similar fire training responsibilities and issues; inefficiencies exist as a result. A single training plan is an opportunity to combine intellectual resources to exploit the strengths and assets of each department for mutual benefit. Efficient training systems are those that identify what they do well and take advantage of the opportunities provided by other systems to supplement their efforts. Inefficient systems are those that try to be all things to all people, and in doing so, squander resources.46 Determining the level of training that will be supported is crucial. Develop the annual training plan accordingly and deliver the training that directly supports those levels. For example,
training could be directed at supporting certifications of Firefighter I, Fire Officer I, and Apparatus and Pump Operator. A pool of instructors who are experts in that subject can be developed from those with the interest, qualifications, and expertise. Developing and carrying through with a well-conceived and coordinated training plan can improve on-scene safety, efficiency, and effectiveness of personnel. With personnel from both agencies trained from the same plan, an emergency incident may be attacked with an expectation as to the level of training and skill set of the responders. The training plan will also assist in the planning and tracking of employee development and certifications. Guidance Provide a coordinated training plan, including: o o o o Conduct didactic sessions via the video conferencing system. Plan regular use of training facilities. Schedule regular single agency, single and multi-company manipulative skill drills. Schedule regular multi-agency, multi-company manipulative skill drills.
Establish and maintain a training committee that meets regularly. Include at least one training representative from each department:
46
Department of Homeland Security, FEMA, U.S. Fire Administration, The Future of Fire Service Training and Education Professional Status: Part Two Training and Education, page 1.
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o o o o
Develop an annual training plan. Publish, distribute, and implement the plan. Provide an orientation for personnel of each department regarding the plan's purpose and contents. Publish monthly training schedules based on the plan.
Place the annual plan and monthly schedules in electronic format for distribution and ease of updating. Provide for periodic reviews and adjustments to the plan. Direct all curricula towards risk management. Include all hazards in the training plan rather than solely fire-related incidents. Fiscal Considerations An elimination or reduction in duplicated staff effort (reduced soft costs) in the creation and updating of multiple training plans. Instructional time is increased during multi-agency training sessions with personnel trained to selected certification levels. A reduction in costs through coordination of shared training resources and equipment.
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Strategy W Consolidate Training into a Single Training Division Level of Cooperation Functional Timeline for Completion Mid-Term Section Training Affected Stakeholders Both Agencies Objectives Eliminate duplication in training emergency responders. Create a single unified training division. Summary Responsibility for fire department training programs is often assigned to either one person or a group of people. Two classic forms of providing training are: 1) a training division with assigned personnel or, 2) a company officer is assigned training responsibilities in combination with regular duties. Historically, the training programs for Kitsap County Fire District #18 and North Kitsap Fire & Rescue have been managed and operated quite independent of one another. Multiple assignments also tend to underscore the difficulty faced by many officers in trying to balance staff responsibilities. With the creation of a single training division, the personnel used to perform collateral duties will be positively affected. As specialists it will take fewer individuals to conduct training than is currently required by the fire departments individually. Discussion To varying degrees, most fire department training programs display strengths and weaknesses. The weaknesses are commonly a result of two basic problems influencing agency training officers multiple responsibilities and a lack of time to do it all, forcing the training officer to juggle job responsibilities, which at times seems overwhelming.
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Advanced levels of education and training for company officers, and command officers are not adequately addressed. Training officers have expressed a desire to take up these training issues. The training officers recognize that officers need to have the knowledge and skills necessary to be successful in supervisory, management, administrative, and executive positions. To provide the necessary knowledge and skills, an Officer Development Program must be adopted. However, a lack of time to research, plan, develop, and conduct the training appears to be an insurmountable challenge for each agency. Collaborating on this effort
increases efficient use of existing resources, enabling additional capacity to be created, thereby facilitating the development of such a program. Given the resources and expertise within the agencies, there exists an opportunity to eliminate duplication by consolidating the training divisions. The mission of the training division would be to coordinate the administration, management, and delivery of the training program for the two departments. Combining the existing fiscal, supplies, services, and personnel resources would provide greater efficiency of effort. Guidance Establish a single training division. o o o Provide for the administration of training delivery. Provide opportunities with regular meetings for both agency representatives to coordinate training activities. Provide adequate training facilities and office space for training staff.
Combine the training staff, with an administrator (division head) at the chief level. o o Chief training officer should report to one supervisor. Chief training officer should have overall training program administration, supervision, and management responsibilities.
Adequate personnel to administer and provide training for: o o o o o o o A joint recruit academy. Recurrence training for Firefighter I and II, and Fire Officers. Officer level training and career development. Apparatus operator/engineer skills and engineer development. Administration and coordination of the emergency medical services training and recertification program. A RMS (records management system) for tracking individual, company, and department training. Adequate clerical support staff.
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Fiscal Considerations Increased efficiencies by eliminating duplication of staff effort in managing individual department training programs. Potential for increased instructional capacity through pooled instructors. Cost to develop and or modify existing training facilities. Cost of purchasing any additional training aids. Personnel costs to staff the training division. Maintenance and capital replacement costs.
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Strategy X Develop and Adopt Training Standards Level of Cooperation Functional Timeline for Completion Short Term Section Training Affected Stakeholders Both Agencies Objective Adopt uniform training guidelines. Adopt uniform certification standards. Summary Training standards provide the benchmark for training. They define and specify the quantity and quality of training for achieving levels of competency and certification. Certain standards are mandated by governing or regulating agencies such as Washington State Department of Labor & Industries via WAC 296-305 (Vertical Safety Standards for Firefighters). Others are
considered industry standards developed by organizations like the National Fire Protection Association (NFPA). Occasionally, locally developed standards are adopted to address Manufacturers recommendations and certifications are
circumstances unique to that area.
often applicable to the use of specialized equipment. Training records should consist of: Daily training records Company training records Individual training records An inventory of equipment assigned to the training department A complete reference library Discussion By collectively adopting a set of training standards (IFSTA, for example), both participating departments are foundationally prepared to move forward with an RMS. The adoption of
uniform standards provides uniformity throughout the training delivery system and improves interagency compatibility. It further simplifies development of a shared training manual, annual training plan, data entry, and data retrieval from computerized training records. Adoption will
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provide for uniformly trained and certified responders and will assure increased emergency scene compatibility, efficiency, effectiveness, personnel confidence, and safety. Guidance Establish a work group including at least one training representative from each department. o o o Identify mandated training standards. Assess all other standards currently used by each fire department, including the rationale for their use. Develop a process for the adoption of training standards.
Educate personnel on the purpose and application of the standards. Provide for continual use of training standards throughout the training delivery system. Maintain standards in a readily available format. Provide for frequent evaluation and updating of training standards. Address and resolve personnel certification issues created by new standards and certifications. Fiscal Considerations A reduction in duplicated staff effort (reduces soft costs) to develop similar but separate programs based on the same standards. A potential for reduced specialized training costs through a larger pool of personnel. Responders trained to the same standard provide a more cohesive workforce, increasing efficiencies.
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Strategy Y Create a Shared Training Manual Level of Cooperation Functional Timeline for Completion Short Term Section Training Affected Stakeholders Both Agencies Objective Provide consistent, standardized training procedures. Summary Fire department instructors use manuals based on local, state and national standards as a resource to develop lesson plans for classroom and field training. Training sessions provide students with the knowledge, skills, and abilities to perform in emergency and non-emergency situations. Kitsap County Fire District #18 and North Kitsap Fire & Rescue should cooperatively develop a training manual for adoption by both agencies. Discussion Until now, both fire departments unilaterally selected training materials from a variety of options. Not surprisingly, training and performance varies. The creation and use of a standard training manual will provide for more consistent training, better on-scene coordination, and improved firefighter safety. As the firefighters of each agency are trained in the same procedures, each can respond to an emergency with the confidence that all responders are prepared to work effectively as a team. This will improve the effectiveness of firefighters from the two agencies by working together as a coordinated emergency workforce. Standardized training procedures improve on-scene safety, efficiency, and effectiveness. Care should be exercised to prevent the development process from taking too long. To
expedite progress, ESCI recommends adopting material from existing model training manuals, hose evolutions, and standard operating guidelines.
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Model fire department training material is readily available through the Fire Department Training Network (FDTN), Thomson Delmar, and Oklahoma State University. The International Fire Service Training Association (IFSTA, through Oklahoma State University) and Fire Protection Publications (FPP) have been longstanding producers of training manuals, course curricula, and audiovisual aids for fire departments. NFPA recommended practices and standards can also assist with the development of the training manual. Relevant standards include: NFPA 1401, Recommended Practice for Fire Service Training Reports and Records NFPA 1403, Standard on Live Fire Training Evolutions NFPA 1404, Standard for Fire Service Respiratory Protection Training NFPA 1410, Standard on Training for Initial Emergency Scene Operations NFPA 1451, Standard for a Fire Service Vehicle Operations Training Program The need for training of personnel with specialized duties should be included in the combined training manual. Guidance Establish and maintain a user group that meets regularly. o Include at least one training representative from each department.
Develop and adopt a single training manual. Place the training manual in electronic format for easier updating and to allow access by firefighters. Provide for coordinated training of both agencies. Provide for regularly scheduled multi-agency drills. Provide for a regular evaluation and review of the training manual for applicability to pertinent laws, industry standards, and regional standard operating guidelines. Seek out existing procedures for use in development of the training manual. Fiscal Considerations The elimination of duplicated staff effort (reduces soft costs) in the selection, development, and updating of separate training manuals. Instructional time is likely impacted during multi-agency training sessions by reducing or eliminating the time devoted to adaptive or remedial training. An emergency workforce trained under a cooperative system is more efficient and effective in reducing property damage and loss during emergency incidents.
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A workforce trained to operate under universal standards will experience fewer emergency scene injuries.
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Strategy Z Develop a Shared Fire and EMS Training Facility Level of Cooperation Functional Timeline for Completion Mid Term Section Training Affected Stakeholders Both Agencies Objectives Provide training facilities readily available to Kitsap County Fire District #18 and North Kitsap Fire & Rescue. To develop and maintain the knowledge and skills of emergency services personnel. Summary Classroom instruction is an essential component of preparing emergency responders with knowledge and skills. A training facility or drill ground is a second indispensable element. Training facilities provide a controlled and safe environment to use to simulate emergencies, developing and testing the skills of emergency workers. Training involves both individual and group manipulative skills development in the operation of firefighting equipment, and fire apparatus. NFPA 1402: Guide to Building Fire Service Training Centers, is a standard that addresses the design and construction of facilities for fire training.47 The document covers the features that should be considered when planning a fire training facility. Absent the availability of suitable training facilities, some fire departments may forego essential training. Discussion Proficient emergency responders have confidence in their own abilities to handle the emergencies they encounter. Best practices suggest that emergency workers have regular access to training grounds for repetitive drills and to develop new skills. Training is identified as a vital part of any fire departments safety and accident prevention program. An effective and continuous training program results in safer, more efficient, and effective emergency operations.
47
National Fire Protection Association, Standard 1402 Guide to Building Fire Service Training Centers, 2002 Edition.
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Maintaining independent training facilities is a very expensive duplication of cost. Constructing a comprehensive modern training facility to comply with industry standards concerning classrooms, practice grounds, training tower, live-fire building, and training props is a significant investment of capital. In addition, the on-going cost of operating and maintaining a training facility further advances the case for joint ownership. Examples of recently constructed basic fire training facilities illustrate (in the Figure 112) that these facilities need not be complicated or ornate to be quite functional.
Figure 112: Sample Training Grounds
With in-kind donations and grant funding, these fire departments were able to construct the basic buildings with very little local tax dollars. Critical Issues Determine the ideal location of a shared training facility. Any property that is a potential site for a training center should have an environmental assessment performed. Conduct a needs assessment before design and construction of a training center. Consider community and environmental impact of training grounds and training props when determining locations. Pay particular attention to access and egress routes. Select an architect, engineer, and vendor familiar with fire department training centers for oversight of the project. A number of companies have extensive knowledge and expertise in developing complete fire training facilities. Manufacturers of fire training facilities also offer lease packages for financing.
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Guidance Establish a user group that meets regularly to include at least one training representative from each fire department. Develop a training facility central to the service area and easily accessible by both agencies. Consider neighboring jurisdictions as additional funding partners. Assure easy/safe access and egress routes. If possible, select a site easily served by existing utilities, including electric, water, gas, and sewer. Provide a borderless plan for maintaining adequate emergency response coverage for crews attending training. Provide for regular scheduled use of the facilities. Secure adequate support for facility and grounds maintenance, and improvements. Provide adequate training resources and equipment beyond those carried by on-duty apparatus. Consider reassigning reserve apparatus scheduled for surplus to become dedicated training apparatus. Live fire training is a crucial element when developing plans for a fire training facility. In addition to a gas-fired live training prop, the purchase of a flashover training prop should be given strong consideration. Establish policies and procedures for safe and effective use of the facilities. Consider jointly insuring against accident and liability. Visit fire regional training centers for ideas for the training facility. Fiscal Considerations Anticipate an increase in fuel consumption and vehicle maintenance caused by travel to and from the training facility. Any increase would likely be offset by a comparative reduction in travel after the completion of the video conferencing system. The cost of new construction of facilities. The shared costs for the use, support, and maintenance of facilities.
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Strategy AA Implement and Cooperatively Use a Video Conferencing System Level of Cooperation Functional Timeline for Completion Short Term Section Training Affected Stakeholders Both Agencies Objectives Provide standardized, consistent, and high-quality classroom training. Reduce training staff hours required for curriculum delivery. Increase in-service time of emergency response apparatus. Summary The ability to connect all fire stations in Kitsap County Fire District #18 and North Kitsap Fire & Rescue service area with interactive video conferencing would allow for a more efficient delivery of didactic training and tabletop exercises. This type of system is designed to increase training delivery efficiency and shared training capabilities. Discussion Following certification, a significant amount of continuing education, training, and skills development are conducted at the local level. The training of new employees, continuing
education, and specialized training within both fire departments varies considerably; yet both agencies share the same or similar training needs. As an example, both departments must provide for training on: Infectious diseases Blood and airborne pathogens SCBA (self-contained breathing apparatus) and respiratory protection ICS (incident command system) Hazardous materials EMS OTEP training Safety
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Confined space Wildland refresher training Harassment Evaluations of each fire departments training programs noted that the delivery, quality, and level to which required training is satisfied vary. Factors that influence this include: Available training staff. Staff time is often divided between job functions, balancing training versus non-training priorities. Level of interest and commitment of individual trainers. Access to and availability of training facilities and equipment. Ability of on-duty personnel to attend training sessions. Availability and cost of replacement crews for personnel attending training. Interruptions for emergency responses. Many of these issues can be mitigated through the use of a video conferencing system. Cooperative use of the system will likely: Increase compliance with annual training and competency requirements. Improve efficiencies at emergency scenes for individual departments and during multiagency operations. Increase training staff productivity through a reduction in curriculum development and delivery time. Keep crews in service and in position for emergency response. Guidance Establish and maintain a user group with one representative from each department. o o o o o o o Schedule regular training meetings. Identify common and individual department training needs. Identify and solve mutual training delivery problems. Adopt common training standards. Coordinate the development, distribution, and delivery of training by assigning common training needs. Ensure delivery of mandatory didactic training using the video conferencing system. Provide for periodic review and evaluation of delivered training for compliance with standards.
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o o o o
Provide for periodic quality assurance review of delivered training. Develop a formula where each department shares costs associated with operation of the video conferencing system. Provide maintenance and troubleshooting services. Provide system programming services (scheduling, production, editing, and library maintenance).
Fiscal Considerations The reduction of duplicated staff effort (reduced soft costs) in the development and delivery of training programs. A reduction in material costs associated with duplicated training resources for training delivery. A reduction in apparatus fuel costs associated with a reduced travel for training. Personnel costs for services to operate and maintain the video conferencing system.
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Strategy BB Develop a Single Apparatus Refurbishment/Replacement Plan Level of Cooperation Functional Timeline for Completion Long Term Section Emergency Operations Affected Stakeholders Both Agencies Objective Create a single set of emergency apparatus specifications. Provide single-source uniform emergency apparatus for Kitsap County Fire District #18 and North Kitsap Fire & Rescue. Summary Both fire departments use and maintain a variety of emergency apparatus types. Among the common types of apparatus, each department uses equipment of different makes, models, and configurations. A standard specification and procurement process for each apparatus type
would result in lower cost, faster production, and training efficiencies. Procurement of uniform fire apparatus can translate into lower purchase prices, reduction in parts warehousing, and less money, time, and effort spent training drivers and maintenance personnel. Other benefits include greater interoperability, a potential for reducing driver training, and greater confidence and skill level among operators. Discussion The apparatus fleet of the two departments is diverse. Fire apparatus are categorized by function, including pumpers, water tenders, brush units, boats and medic units. While there is an identifiable need for vehicles from each category in more than one configuration, acquiring and maintaining standard apparatus creates desirable efficiencies. Dissimilar apparatus tends to increase purchase cost, requires additional initial and recurrent training, and results in the need to warehouse a larger parts supply. The cash price of a pumper frequently exceeds $500,000. The reasons for such prices are due to the specialized nature of fire apparatus and new and evolving emissions standards.
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However, customization, add-ons, and options tend to make each fire apparatus a one of a kind vehicle. The costs to equip, maintain, repair, train operators and mechanics, and to
warehouse parts only adds to the overall expenditure. Fire apparatus useful service life varies generally depending on the rate of use, the environment, operating conditions, and the frequency and level of preventive maintenance. A fire pumper with average to heavy use can reasonably be expected to have a 10 to 15-year service life. With light to very light use, service life can reach 20 years; very heavy use may reduce service life to as few as ten years. Factors influencing fire apparatus service life include technology and economics. At a given time the cost to operate and maintain a fire apparatus passes the economics of rehabilitation, refurbishment, or replacement. In the following figure (Figure 113) ESCI uses these three differences in example apparatus to illustrate how each may impact apparatus operational costs and efficiencies.
Figure 113: Impact from Apparatus Differences Jacobs and Engine Exhaust Brake Method of operation Training of operators and maintenance personnel Recurring training Parts for maintenance and repair Roll Up and Conventional Compartment Doors Initial cost difference Different storage layout for equipment Parts for maintenance and repair Different Manufacturers Method of operation Training of operators and maintenance personnel Recurring training Parts for maintenance and repair
A trend is developing within the fire apparatus manufacturing industry. Several manufacturers now offer a line of stock fire apparatus built on custom chassis in addition to a more traditional line of fully custom units. The cost savings of purchasing a stock unit is often 20 percent or more when compared to a custom unit. Safety should always be the main consideration when purchasing and operating emergency fire apparatus. When developing emergency fire apparatus specifications and operational
procedures, NFPA and other industry standards should be used. Additional guidance on fire
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apparatus safety devices, response, and training can be found in the Emergency Vehicle Safety Initiative.48 Guidance Assemble data on current department apparatus, including: age, mileage, operating hours, maintenance costs, cumulative down time, and annual test results. Use the information to create a single apparatus refurbishment/replacement plan and schedule. Determine the replacement interval and projected life expectancy of each apparatus. Examine the merits of extending the useful service life of apparatus through rehabilitation and refurbishment. Develop an emergency apparatus prescribed load list (standardized inventory) for use by both agencies. Mark apparatus in a standard format with striping, decals, and department name following NFPA standards and recommendations from the Emergency Vehicle Safety Initiative.49 Create Standard Operating Guidelines for the operation, maintenance, and recordkeeping of apparatus. A resource for obtaining sample documents may be found at the National Fire Service Library website. Outfit reserve apparatus with the same complement of equipment as frontline units. Fiscal Considerations Time and effort savings by preparing fewer bid specifications. Effort avoided by conducting fewer bid processes. Investigate the letting of apparatus bids for periods longer than one year. Cost savings in acquiring emergency fire apparatus. Consider the purchase of stock versus custom apparatus. Consider leasing versus outright purchase of emergency apparatus.
48
Department of Homeland Security, FEMA, U.S. Fire Administration, Emergency Vehicle Safety Initiative.FA-272, August 2004, pages iii, iv. 49 Western Fire Chiefs Association, National Fire Service Library, www.wfca.com.
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Strategy CC Continue with the County AVL and MDC or MDT Project Level of Cooperation Functional Timeline for Completion Mid Term Section Emergency Operations Affected Stakeholders Both Agencies Objective Provide AVL (Automatic Vehicle Locator) information transmitted to dispatch for use during emergency and non-emergency incidents. Provide standardized MDC/MDT (Mobile Data Computer or Mobile Data Terminal) in emergency apparatus. Summary Automatic Vehicle Location (AVL) provides real-time location information for apparatus. An AVL system consists of a GPS receiver on the apparatus, a communications link between the unit and a dispatch center, and PC-based tracking software for dispatch. The communication
system is usually based on a network similar to those used by cellular phone systems. Mobile data terminals (MDT) permit communication between dispatchers and emergency response vehicles without reliance on voice radio. A digital display on the vehicular MDT shows short messages. Dedicated keys and a touch screen permit an officer to quickly issue
commands and status reports. MDTs also function as the communication link between the AVL and CAD software. Like MDTs, mobile data computers (MDC) permit instantaneous communication between dispatchers and fire apparatus without the need for voice radios. MDCs can also be used for messaging, electronic dispatching, and vehicle monitoring. The units are available with GPS capability. The major difference between an MDT and an MDC is that the latter includes all of the hardware and software abilities of a traditional laptop computer. MDTs, on the other hand, merely function as a link to a larger computer server usually located in the dispatch center.
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Discussion AVL The Global Positioning System (GPS) provides the backbone for AVL. GPS is funded by and controlled by the U.S. Department of Defense (DOD). While there are many thousands of civil users of GPS worldwide, the system was designed for and is operated by the U.S. military. GPS provides specially coded satellite signals that can be processed in a GPS receiver, enabling the receiving unit to compute position, velocity, and time. Four GPS satellite signals are used to compute positions in three dimensions and the time offset in the receiver clock.50 GPS provides the location of a vehicle with accuracies of about 25 to 30 feet. A geographic location is logged into the vehicles GPS unit and transmitted along with the unit identification to dispatch. Information displayed may include time, unit speed, and heading. The frequency of updating vehicle information can be set for any variable of seconds or minutes. If cellular coverage is inadequate, an alternative satellite communications network may be available for certain areas. The communication satellite receives location information from the AVLs satellite transmitter and forwards it to the dispatch center. The dispatch software shows vehicle locations in relation to streets and intersections. Most AVL systems have a feature for two-way mobile messaging that allows e-mail messaging to and from the apparatus over a wireless internet link. Additional options and features that can be added to AVL include: Display vehicle position, speed, heading Display dispatch addresses and routing suggestions Provide visible and audible alerts to crews Replay vehicle activity with user defined date and time Create unit reports Display vehicle status Benefits of AVL include: Display precise location and status of emergency apparatus Enhances the ability of commanders to control emergency resources Increases apparatus operator safety Ability to locate and dispatch the nearest emergency response unit Reduces response times
50
Peter H. Dana, The Geographer's Craft Project, Department of Geography, The University of Colorado at Boulder.
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Uses current investment in GIS data Increase in number of units dispatchers can manage appropriately Tracking report documentation
MDC/MDT Mobile data computers and mobile data terminals are computerized devices used to communicate between emergency vehicles and dispatch. MDTs feature a screen on which to view information and a keyboard or keypad for entering information; the terminal may be connected to various peripheral devices. With MDC/MDTs, fire and EMS agencies are more likely to work with up-to-date information. The devices are used during emergency response to locate addresses, anticipate what will be encountered on-scene, receive updated call information, for record keeping, and to gather data used to show trends and patterns.51 Prior to electronic media, most information was gathered by officers in the field and was subsequently transmitted to others verbally or via hand written notes and reports. Raw
statistical information was usually stored as written documents, a form not well suited to analysis. Now, of course, the computer has taken over most data collection, transmission, dissemination, compilation, and storage. One school of thought is that MDTs are better suited for fire and EMS service, yet many fire administrators argue that MDCs are superior. A summary of some of the perceived attributes of each is listed in the Figure 114.
Figure 114: Comparison of Features MDT vs. MDC
MDT
Longer life expectancy Brighter screen Less likely to be stolen No mobility Durable Difficult to upgrade Lower initial cost Detachable keyboard
MDC
Shorter life expectancy and need for frequent repairs Units not bright enough May be stolen May be used out of vehicle as a laptop Less durable Easily upgradeable High initial cost Non-detachable keyboard
Critical Issues Using a cost-benefit analysis to determine which systems (AVL, MDT, and/or MDC) are financially viable for use by the fire departments. A cost-benefit analysis can be used to
51
Public Safety Mobile Data Systems, www.911dispatch.com/information/mobiledata.html, October 2004.
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estimate the total capital investment represented by the purchase of the equipment, and for how many vehicles and then establishing if the expenditure is justified by the gains in dispatch, response, and incident command. Include in the analysis the cost to train emergency communications and fire department personnel. Guidance Strongly consider the incorporation of AVL technology into a MDC/MDT system versus a standalone AVL. In a white paper report published in June 2005, the author lists five reasons mobile technology projects fail.52 They are: o o o o o The complexity of the mobile deployment is underestimated. Solutions are built upon flawed assumptions. Business (operations, dispatch) and IT priorities are misaligned. Hardware-dependent approaches are doomed to failure. Losing sight of the end result during deployment of mobile solutions.
Anticipate the useful life expectancy of the system and consider leasing or funding replacement. Determine time savings for automatic data entry versus manual. Security and access issues should be addressed prior to system design. Are adequate radio frequencies/channels available for MDT/ MDC? Determine interoperability prior to system purchase. Exercise caution in the selection process for equipment size and the ability to mount hardware in vehicles. Concern for safety of personnel. Involve staff, operations, dispatch, and other key individuals in system design and development. Develop operational policy. Fiscal Considerations Significant costs for the dispatch center equipment and software. Procurement costs to install equipment and software both in fire apparatus and at the dispatch center. Labor cost to maintain vehicular and dispatch AVL, MDC/MDT equipment, the time required to train workers on the new systems, and for any additional IT staff.
52
The Top 5 Reasons Why Mobile Projects Fail And What You Can Do About It, June 2005, Addesso Systems.
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Cost of system is highly variable dependent on selection of AVL and/or MDC/MDT, or a combined system.
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Strategy DD Develop a Regional Fire Safety Education Coalition Level of Cooperation Functional Timeline for Completion Mid Term Section Fire Prevention Affected Stakeholders Both Agencies Objective Provide for the cost effective, regional dissemination of public fire safety education. Summary The prevention of fires is far more desirable than extinguishing them from a life safety standpoint and clearly more cost effective. It is widely recognized that one of the most
successful methods of preventing fires is through a multi-faceted public fire safety education program. Cooperative delivery of public education programs is an effective and efficient
methodology. Discussion Kitsap County Fire District #18 and North Kitsap Fire & Rescue have made a substantial commitment to their public education outreach, as detailed in the current conditions section of this report. Each has had a long-term commitment of participation in two fire prevention
coalitions, Safe Kids Kitsap and the Kitsap County Fire Chiefs Association. The two groups work cooperatively on countywide prevention initiatives, capitalize on the efficiencies of joint purchasing, apportion workload creating materials and have developed and produced several effective programs (broadcast through local access television and a radio station of limited reach). The area is dependent on Seattle-based electronic media and is a regular beneficiary of broadcasts prepared by the King County Fire and Life Association as well as Seattle Fire Department. However, both agencies desire to do more and have limited financial and staffing capacities. A cooperative approach between the two agencies, potentially expanding in scope to joint staffing of fire prevention may offer opportunities for enhanced program delivery.
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Successful public education programs use a range of communication methods, many of which cannot be limited to a specific geopolitical boundary. Television and radio, for instance, are regional media that over-arch jurisdictional limits delivering information to citizens in a wide variety of communities. For fire safety campaigns to be most effective each must be designed to target a specific audience and each must be crafted for the means of delivery. Kitsap County is dependent on Seattle-based electronic media and is a regular beneficiary of broadcasts prepared by the King County Fire and Life Association as well as Seattle Fire Department. KCFD #18 and NKFR participation Safe Kids Kitsap and the Kitsap County Fire Chiefs Association has regionalized public education and helped to standardize fire safety messages across the region and worked to reach more of the target audience. This, in turn, has allowed for reduced cost to each agency through sharing of resources, while improving the quality of programs. The Districts have also contained costs through volume purchasing of handouts and other public education materials. Increased exposure can be achieved in public education, through the regular use of engine company personnel, non-combat volunteers, and involvement of community members by the use of Fire Corps.53 Guidance Formalize the creation of the coalition through a written agreement. Involve others from outside the immediate area and from non-traditional groups (insurance industry, educators, Kitsap County Fire Marshal, media). Continue the use of standardized messages throughout the service area. Learn from others. Investigate other successful coalition models that provide regional public fire safety education programs. Fiscal Considerations54 The elimination of duplicated staff effort in the creation and distribution of public fire safety education messages reduces soft costs. Cost savings can be achieved through group purchasing of materials and other media.
53
Fire Corps is one of five partner programs under Citizen Corps, the Federal Emergency Management Agency's grassroots strategy to bring together government and community leaders that involves citizens in all-hazards emergency preparedness and resilience. 54 KCFD #18 and NKFR are currently effectively using the clout in the creation, purchasing and distribution of public education materials.
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Strategy EE Develop a Regional Juvenile Fire Setter Intervention Network Level of Cooperation Functional Timeline for Completion Short Term Section Fire Prevention Affected Stakeholders Both Agencies Objective Provide an effective means for intervening in juvenile-set/caused fires. Summary Statistical analysis nationwide clearly demonstrates the growing problem of juvenile fire setting. While fires set by juveniles have always been a problem, fire cause determination and fire data reporting systems have not always been adequate to identify the extent of the phenomenon. Many jurisdictions simply do not realize the extent of juvenile-set fires in their community. The lack of involvement by the fire departments, law enforcement agencies, mental health professionals, schools, juvenile court, and other affected interests throughout the region limits the effectiveness of the overall fire prevention efforts of the individual departments. Discussion Kitsap County Fire District #18 and North Kitsap Fire & Rescue are currently able to access intervention resources that are made available county-wide via other agencies. Internally,
NKFR's community services specialist has credentials for intervening with juvenile firesetters. The establishment of an effective, multi-discipline, multi-agency Juvenile Fire Setter Intervention (JFSI) Network will allow shared expertise, services, knowledge, and (most importantly) information to the benefit of both agencies and their communities. A network of trained
professionals from all the needed disciplines, working together, allows for more accurate assessment of individual fire setters to determine the nature and depth of intervention required. A regional program also: Allows for sharing the workload between agencies.
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Facilitates appropriate referral to professional services when needed. Makes possible effective prosecution on those few occasions when juvenile-set fires are verified as arson. Guidance Develop a regional program modeled on already established and successful JFSI networks. Include all the needed professional disciplines. Provide important, on-going training. Involve only those fire agency personnel who desire to participate. Formally organize the structure of the network for long-term sustainability. Fiscal Considerations Reduced fire loss to the community through reduction in juvenile-caused fires. Potential increased training requirement and cost. Potential overtime for training and for intervention.
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Strategy FF Create a Unified Occupational Medicine Program Level of Cooperation Functional Timeline for Completion Mid Term Section Administration Affected Stakeholders Both Agencies Objective Provide a fire-service related occupational and health program. Summary A single method and source for providing occupational and health services may provide savings through economies of scale. NFPA 1500, Standard on Fire Department Occupational Safety and Health Programs, provides the minimum requirements for a fire-service related occupational safety and health program.55 Along with NFPA 1500, NFPA 1582, the Standard on Comprehensive Occupational Medicine Programs for Fire Departments, and related documents, provide guidance for the creation of occupational health programs and for establishing medical requirements for current and future firefighters. Discussion There is a need for all fire departments to have access to a group of professionals with expertise in the occupational medicine field. Occupational medicine is dedicated to promoting and protecting the health of workers through preventive services, clinical care, research, and educational programs. One aspect of a program is keeping up to date with health and safety regulations, standards, and current practices. Occupational medicine specialists review current practices to see if the agencies meet new regulations, make modifications if needed, and assist the departments in adopting any changes. The importance of employee health and welfare and the potential liability associated with the lack of such programs necessitates that fire departments establish close professional
55
National Fire Protection Association, Standard 1500: Standard on Fire Department Occupational Safety and Health Program, 2007 Edition.
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relationships with occupational medicine specialists to assure that emergency workers are protected by the most up-to-date occupational health and safety programs possible. Occupational safety and health programs (sometimes referred to as Industrial Medicine) vary in depth, form, and delivery. A fire department may employ a physician full time, contract with a provider organization, or conduct part of a program in-house while contracting for the remaining services. Any number of hospitals or medical centers in the greater Seattle area has programs that may meet the needs of the two agencies. One such occupational medicine program that ESCI is familiar with uses the fire department wellness coordinator to conduct audiometric, spirometric, and vision screenings before personnel complete their annual physical evaluation. The occupational medicine provider then conducts blood draws at individual fire stations. Consequently, at the time of the medical physical the physician has at his/her disposal not only the firefighters historical but also current medical screening records. The medical physical examination, stress test, and all other components of the evaluation are completed as part of the fire departments regular training rotation at a regional training center. Through a professional relationship developed with a medical service provider over several years, the fire department in this example was able to receive this level of service at a very competitive price. The legal requirements for a fire department occupational safety and health program have been established. How a fire department administers and supports the program determines the
success and the resultant benefit. In the example, the department previously had to hire extra staff or pay employees overtime to take annual medical physicals. The occupational medical program resulted in the saving of more than $15,000 through reduced overtime cost; however, some funding is still required for medical follow-ups and for employees not able to meet the schedule. An additional advantage of using a local occupational safety and health provider is the ability to quickly evaluate and treat non-threatening injuries suffered by employees. Guidance Determine required and desired specifications for an occupational safety and health program.
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Create a single personnel policy for occupational safety and health. Develop a request for proposals (RFP) for soliciting vendors to supply occupational safety and health services. Investigate the purchase of audiometric, spirometric, and vision testing equipment for use in conducting in-house medical evaluations. This should include the certification of personnel to conduct the testing. Conduct baseline testing for firefighters without previous audio and lung function baseline records. Fiscal Considerations The purchase of a single set of testing equipment for audiometric, spirometric, and vision screening requires a capital outlay of approximately $15,000. Classes for training and certification in audiometry and spirometry average $1,000 per class, exclusive of salary. Occupational medicine programs are often menu driven. Items selected for inclusion in the program determine the final cost. Additional financial factors involve whether the fire departments elect to exceed mandated requirements, perform some of the occupational medicine functions internally, or consolidate the occupational medicine program with interrelated programs. Interrelating programs that share functions include wellness, infectious disease, FIT testing, EMS, and hazardous materials.
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Strategy GG Create a Unified Wellness and Fitness Program Level of Cooperation Functional Timeline for Completion Mid Term Section Administration Affected Stakeholders Both Agencies Objective Provide a wellness and fitness program that promotes the improved health and wellbeing of personnel at all ranks. Increase fitness levels and decrease injuries. Reduce frequency and number of sick/sick injury incidents. Reduce the number of days used for sick/sick injury leave. Summary Wellness and fitness programs have proven beneficial to employers and employees alike. Onsite visits by licensed wellness experts are part of an all-inclusive program. Services offered under a comprehensive wellness program may include: Wellness screening Health coaching Wellness educational materials Support groups Presentations Fitness evaluations Newsletters Nutritional information Health risk assessment Fitness training
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Discussion The benefits of wellness and fitness programs have, in some instances, been quantified anecdotally without specific documentation. Documented individual incidents and case studies over a longer period of time have now yielded conclusive data as to their benefits. Two case studies are used here to illustrate this point. First, during an annual visit for his medical and fitness evaluation, a battalion chief with the Indianapolis, Indiana, fire department was found to have an abnormal heart rhythm. He had considered himself to be in excellent condition, competing in track and field events since 1996. He was immediately removed from duty and sent to a cardiologist for a heart catheterization. He was diagnosed with severe blockages in four coronary arteries. Within two days of his medical evaluation, he underwent quadruple bypass surgery. His cardiologist told him the he would not have lived another two weeks without intervention. Remarkably, the battalion chief returned to work and was back exercising within six weeks of surgery. The father of four and grandfather of two is thankful to be alive, attributing his good fortune to the IAFF/IAFC Wellness and Fitness Initiative. The second example involves a mid-sized fire department employing both career and volunteer personnel. The department was in need of a fitness/wellness program and subsequently
contracted with Oregon Health Sciences University (OHSU) to provide an evidence-based program custom tailored for its diverse group of firefighters. The primary goals of the program were to increase fitness levels and decrease injuries. Results of the study spanning seven years conducted by OHSU Health Management Services included these findings: Greater than 30 percent increase in the number of participants. A decrease in average total cholesterol. A decrease in average LDL cholesterol from 130 to 120. Participants with BP in the high normal range or above dropped from 18.3 percent to 8.5 percent. Participants with moderate or high coronary risk dropped from 61.7 percent to 35.4 percent. Participants with an overall wellness score of good or excellent increased from 41.7 percent to 58.5 percent. Annual number of days lost (workers compensation days) dropped from a high of nearly 300 days to below 50 days. During the study period, the fire department increased the number of career personnel two-fold.
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Guidance Determine the components of a wellness and fitness program that would best benefit all departments. Involve a broad cross section of employees in the development process. Investigate multiple programs and providers for best fit. Coordinate activities with established fitness and safety committees. Train in-house peer fitness trainer/coaches. Incorporate wellness and fitness services as an element of recruit academies. Include volunteers, staff, and support personnel in wellness and fitness services. Provide initial and recurring wellness education to personnel. Provide a newsletter (paper or virtual) for all personnel. Incorporate wellness in training sessions. Provide for a periodic appraisal of the wellness and fitness program. Fiscal Considerations The cost per employee of a wellness and fitness program can vary widely. An annual per employee cost may range from as low as $25 to as high as $100 depending on many factors, such as: o o o o Frequency of employee contact Range of services desired Equipment need Inclusion of ancillary offerings (newsletter, peer fitness coach training)
The soft costs associated with on-duty time required for wellness and fitness instruction need to be addressed before carrying out a plan. o o o o Potential cost savings may result from: Reduced work related injury leave days Reduced sick leave usage Reduction in medical benefits used Improvement in employee fitness and morale
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Strategy HH Develop Uniform Fees for Service Level of Cooperation Functional Timeline for Completion Mid Term Section Administration Affected Stakeholders Both Agencies Objective Provide participating fire departments with a uniform schedule of fees for service. Summary Kitsap County Fire District #18 and North Kitsap Fire & Rescue charge fees for services. Fees are levied for ambulance transport costs, but not for standby charges, fire safety inspections, enforcement of the building code, or for out-of-district responses. Some departments will
charge fees for non-routine services to recover costs due to extraordinary or unusual events. Examples include response to and standby for hazardous materials incidents and recurring false automatic alarms. Ambulance transport fees differ in the Kitsap County Fire District #18 and North Kitsap agencies, though not dramatically. Discussion The agencies have adopted service fee schedules that differ from each other and are applied to ambulance transport and certain medical standby activities only. Fees are not charged for, fire safety inspections, enforcement of the building code, event standbys and contracts for service. In addition, neither of the agencies levies development related impact fees. The departments could charge fees for non-routine services to recover costs due to extraordinary or unusual events. Examples include response to and standby for hazardous materials incidents and recurring false automatic alarms. representative fee types: Below is a description of
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Stand-by Charges A fee charged for cost necessitated by a one-time or on-going need for general public safety. For example, a fire department may charge a stand-by fee to post an ambulance at a local sports event. User Fee A fee based on actual cost incurred for any service performed by a fire department where these costs require a recall of fire personnel above normal staffing. Charge for Service to Non-Tax Supporting Institutions A fee for the total cost incurred by a fire department for service provided to any non-tax supporting institution. Plan Review Fee A fee charged to review plans for multiple dwellings, commercial, manufacturing, or public assembly units. The fee can be based on a percentage of the total estimated construction cost per structure. This fee off-sets expenses incurred by a fire department during the planning phase of any development or construction. Fire Cause Determination Fee A fee that recovers the fire departments cost of providing service resulting from a violation of the Fire Code. Permit Fee A charge for a fire department permit for special or short-term events. Other fees for service include agreements where one emergency service provider either wholly or partially supplies services to another. This can be done under a contract for service or an interlocal agreement. Currently the two fire departments use different companies to conduct billing services. The fee charged for billing varies between the two providers, however the collection rates also vary considerably with percentages of un-collected fees ranging from just over eight percent in one agency to about four and one half percent in the other. If the Districts consolidated billing services with the more successful provider they may be able to capture a greater portion of the revenue. There are good reasons for developing uniform fees for services; foremost of which is the reduced time, effort, and cost of developing independent fee schedules. Beyond duplicated effort and expense, however, a consistent fee schedule across the region creates a more coherent public service image to the business and taxpaying communities. Critical Issues Fire agency partners should design a standardized procedure for billing. For example, the process may establish a collection policy for non-payment, billing cycle, recordkeeping, billing service allowance, and oversight rules for the program. The agencies should constantly review fees for service for improvements and to capture potential sources of new revenue that may become available.
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Guidance Evaluate the existing fee for service schedules. If possible, use one as the basis for developing uniform fees for service. Evaluate whether all potential sources of revenue are included in the fees for service schedule. Format the fees for service schedule for adoption by each organization as a uniform fee. Investigate using a single source for billing for services. It is common to charge a fee for fire inspections. The Benicia (California) Fire Department also uses inspection fees, but with a positive reinforcement twist. Benicia charges $35 per company inspection. However, if the inspected property is found to be in compliance or complies with fire department instructions before a follow-up visit, the fee is waived. If the occupancy fails to comply, the fee is applied for each fire department visit (usually $105 for three inspections). Fiscal Considerations No significant financial considerations.
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Strategy II Develop a Model Labor Agreement for Both Departments Level of Cooperation Functional Timeline for Completion Long Term Section Administration Affected Stakeholders Both Agencies Objective Demonstrate continued partnership between labor and management groups by providing a model regional labor agreement. Align the effective dates and provisions of labor agreements to create a smooth path for unification between participating agencies at a future date, if this option is chosen. Eliminate duplicated effort in developing labor agreements. Summary A labor agreement is a contract between the management representatives of a county, city or other political unit and the designated representatives of a labor group. The purpose of a labor agreement is to memorialize in written form the wages, hours, benefits, and terms and conditions of employment afforded to covered employees. Labor agreements (also referred to as contracts or Memorandum of Understandings [MOU] or Collective Bargaining Agreements [CBA]) also outline an orderly and equitable means of resolving any misunderstanding or conflict between the parties. One way to move forward is to begin the process of aligning the labor agreements of both fire departments during future collective bargaining processes. Discussion Kitsap County Fire District #18 and North Kitsap Fire & Rescue collective bargaining agreements vary substantially. In addition, the two labor groups were observed to possess significantly different views with regard to labor-management matters. The development of a single labor agreement that is acceptable to both organizations will be highly valuable, but will require care and understanding of the issues and concerns involved.
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Labor agreements specify the wages, hours, benefits, and other terms and conditions of employment. The documents detail other items of importance to employees and management matters that may prove difficult to modify without a high level of trust, cooperation, and harmony in the labor and management relationship. The significance of any article in an agreement should never be trivialized. What may seem insignificant to many may be the one item that is essential to others and can disrupt advancement. To illustrate this point, the following example is offered regarding attitudes toward the use of tobacco. What a group of people believes, values, and feels is not static but continually in flux. Like society, demographic shifts, changing roles in the workplace, and education levels alters perception. For instance, in the not so distant past, smoking was socially acceptable; now, in many situations it is not. Sample language from a labor agreement article concerning tobacco use reads as follows:56 Current fire department uniformed personnel shall not use tobacco products inside the work-site, within or on fire department apparatus, or inside training facilities. All new fire department candidates shall be tobacco free upon appointment and throughout their length of service to the department. The contract language above was crafted to address a change of belief. While some would see this as a relatively simple issue, it may prove otherwise when applied across the wider spectrum of regional fire protection. It would be unfortunate for fire departments to be successful in many of the strategic partnerships only to be blocked by unilateral issues. Each contract article is important and was included for a reason; however, there are numerous instances in the fire department labor agreements where collaboration can aid in aligning the agreements. The Fair Labor Standards Act (FLSA) provides a second example. By now, FLSA is a familiar component of labor agreements; however, the way that fire departments establish and administer the special rules for firefighters may be different. Public sector fire departments may establish special work cycles for sworn firefighters, which can increase the FLSA overtime beyond the normal 40-hour workweek. Firefighters covered by these special rules are entitled to FLSA overtime only for hours worked in excess of a threshold set by the Department of Labor, unless the collective bargaining agreement provides for a lower threshold. For example, in a 28-day cycle fire fighters are entitled to FLSA overtime only for the time actually worked
56
Memorandum of Understanding, the City of Carlsbad and the Carlsbad Firefighters Association, Inc., January 2002.
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over 212 hours during that 28-day period. On the other hand, a work cycle of 27 days entitles employees to overtime after 204 hours of work. The FLSA regulations also permit employers to exclude up to eight hours of sleep time from work when shifts exceed 24 hours in length.57 For FLSA purposes, hours worked means time when the employee is actually performing services for the employer. These are the only hours that must be included when determining if FLSA overtime is due. Thus, sleep time, "Kelly Day," or other paid leave may not count as hours worked for FLSA purposes. Because of the
potential overtime liability when FLSA work cycles are changed, these are important issues to have a clear understanding between all parties to an agreement. It is important to first determine how changes to each article will affect individuals, organizations, and the mission of the fire departments. With more than one fire department involved, the number of potential labor agreement conflicts can be large, but the reward for resolving them can be equally significant. Experience shows that success in aligning labor agreements
between collaborating fire departments is the one partnering opportunity that can easily make or break future functional consolidation initiatives. Critical Issues Strategically involve as many people as practical without burdening the process. Determine one individual to be the spokesperson for matters related to partnering strategies. Open communication between stakeholders. Ensure that there is a process in place to respond to rumors linked to discussions related to labor negotiations. Joint release of information from management and labor is more effective. Guidance Align policies, procedures, and operating guidelines prior to changes in labor agreements. This should include required and desired qualifications for job descriptions, titles, and ranks associated with each position. Determine how any changes to a contract would impact promotional opportunities including existing promotional lists. Determine the hiring and promotional date of employees. This basic information will be needed when establishing and merging various employee rosters at a future date. Align trade time and rules governing its use.
57
The law requires that there be an agreement with the employees to exclude sleep time.
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If the fire departments decide to enter into an interlocal agreement, a point of good faith negotiations could design a tiered scale, spanning a defined period of time to reach parity. The services of legal counsel and an accountant are advised. Fiscal Considerations Carefully inventory existing liabilities for pensions, disability, compensation time, and accrued leaves before making changes to labor agreements. In addition, this exercise is important before functionally consolidating operations involving the transfer of employees. Project future liabilities and fiscal impacts of changes to labor agreements.
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Strategy JJ Provide for Shared EMS Supervision Level of Cooperation Functional Timeline for Completion Short Term Section EMS Affected Stakeholders Both Agencies Objective Provide a single point for training and recertification of all EMS personnel in both organizations. Summary Kitsap County Fire District #18 and North Kitsap Fire & Rescue provide very similar EMS response services. Each agency requires EMS training and EMS certification for its personnel, which is effectively coordinated through the Kitsap County Emergency Medical Services office (KCEMS) under the oversight of a Medical Program Director (MPD). Generally, the EMS Each of the
training is based on the certification requirements established by the state.
agencies has a system to oversee the performance of personnel and each manages quality assurance practices, again in concert with KCEMS. Each of the agencies has one person assigned to provide EMS oversight. The ability to manage the system using a joint
management structure for EMS will improve efficiency, reduce fragmentation and at the same time ensure a single method of overseeing and managing the personnel in the EMS system. Discussion Creating one EMS program oversight process allows the fire service to maximize the supervisory capability of local fire service agencies. A single EMS management and training structure promotes enhanced coordination of resources and expanded abilities to standardize quality and levels of care. Agencies presently without adequate structure for managing
emergency medical service can benefit from oversight that is supported by all of the agencies. However, a single EMS management structure is not without challenges. Some agency
personnel may have multiple reporting structures. Using an EMS management structure in addition to a standard fire agency structure could create confusion for field personnel. The
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agency managers will have to agree on such issues as personnel issues, cost distribution, roles and responsibilities, and how the EMS infrastructure will be managed. Critical Issues Training issues o o o The personnel used to provide ALS management must be cross-trained to understand the management structures and oversight capabilities of each agency. Each agency will have to coordinate to ensure that appropriate training is provided to EMS personnel. The agencies must have a method to ensure that the EMS management structure will be used appropriately during EMS events.
Roles and responsibilities o o o o o Fire agency partners should clearly define the roles and responsibilities of the EMS structure in the system. The roles and responsibilities should be clearly communicated to personnel. Fire agencies should have integrated electronic reporting mechanisms for patient care reports. Quality assurance methods should be structured to ensure an integrated method of overseeing quality assurance can be accomplished. Personnel needed for oversight of the system should have the appropriate rank to manage the system.
Guidance Develop a system-wide, cross functional committee to explore an EMS oversight process. Establish standards for EMS system quality assurance and reporting. Establish standards and methods for overseeing the day-to-day operations of the EMS system. Align agencies to provide EMS oversight. Ensure agency support for standardized EMS services. The agency support will be based on the roles and responsibilities established by the cross functional team. The agencies must determine whether they should provide support 24 hours per day or 40 hours per week. Fiscal Considerations Financial support will be necessary to provide 24-hour coverage and a different level of support will be required for 40-hour EMS oversight. The agencies must determine whether and what type of hardware and software will be needed for patient records.
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Marginal costs of deploying additional EMS personnel will be determined based on the agency and on personnel costs. Cost savings may be realized by eliminating duplicated efforts.
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Strategy KK Provide Joint EMS Supply Purchasing and Logistics Services Level of Cooperation Functional Timeline for Completion Short Term Section EMS Affected Stakeholders Both Agencies Objective Standardize supply purchases through group purchasing and standardize supply distribution. Summary Collaborating for supply and logistics in an EMS system allows agencies to achieve rightcolumn pricing on EMS supplies and equipment, to reduce average transaction costs, and to gain the benefits of standardizing equipment. The agencies can work together to create a joint purchasing and logistics program. The purchasing program can create joint bids for supplies and equipment and can achieve additional benefits such as integrated inventory of supplies that can accommodate lag times in deliveries from manufacturers and suppliers. Discussion A multi-agency purchasing program could improve the management of the agencies supply chains. In theory, the agencies would collectively create or contract for a logistics center to manage the purchasing process. The logistics center would work with each of the agencies to standardize supplies and equipment. It would follow state and organizational purchasing
guidelines to conduct bids for products and then make those products available to all of the agencies. Distribution can be managed internally or through agreements with suppliers to gain the advantages of collective purchasing and supply: 1) a larger, collective bid process for supplies can achieve lower prices and attract additional competitors; 2) the logistics center can negotiate terms of the conditions of the sale that might not be available to smaller purchasing centers; and 3) it can conduct collective bidding processes that are applicable to all of the agencies.
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Coordination of activities is critical to the success of a joint purchasing program. Each of the agencies currently conducts purchasing of EMS supplies and equipment independently. As such, any joint efforts will reduce the level of effort required by each agency to provide joint purchasing services. Critical Issues Coordination issues o o o o o A cross-functional committee of system purchasing agents and system participants can work together to design purchasing rules for each agency. The committee can provide a standardized equipment list for agencies. The agencies can share bidding processes, so that the bidding procedure used by the purchasing agent can be used by all agencies. Agencies must work closely with the cross-functional committee to ensure that the goods are received and distributed to the appropriate location. Agencies should have agreements in place to specify inventory and purchasing plans.
Receiving and distribution considerations o Agencies should design distribution plans to deliver goods directly to the appropriate location. Using a joint purchasing system, the agencies will no longer have to receive goods at the agency; instead, they can receive goods at the appropriate fire station or ambulance location. The agencies can jointly determine the proper level of inventory to maintain within the system. The use of system-wide inventory planning ensures that the most costeffective inventory management can be established for the system participants.
Financial and fiscal considerations o o Marginal costs of creating system-wide purchasing infrastructure should be compared against the reduced level of effort of individual agencies. Cost saving can be achieved through reducing inventory carrying costs, reducing transaction costs, and achieving economies of scale through larger volume purchasing. The participating agencies should agree on contributions to account for more difficult to discern costs such as freight charges and unit costs for warehousing space.
Guidance Develop a system-wide, cross functional committee to explore a joint purchasing process. Work with elected officials to adopt purchasing requirements that help the agencies meet purchasing goals and guidelines. Establish standards for EMS system equipment and supplies. Establish inventory standards and methods for distributing equipment and supplies. Contract for or align agencies to provide logistics and supply services.
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Fiscal Considerations Financial support will be necessary, as agencies will be required to meet the costs of creating or modifying existing logistics systems.
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Strategy LL Provide for Medic Unit Surge Capacity During Major Incidents Level of Cooperation Functional Timeline for Completion Short Term Section EMS Affected Stakeholders Both Agencies Objective To prepare to accommodate medic unit service demands that exceed normal operating conditions in the event of a large scale EMS incident or local disaster Summary Kitsap County Fire District #18 and North Kitsap Fire & Rescue both operate medic and first response units to manage routine medical emergencies. In the event of a major emergency or mass casualty incident, availability of those resources will be strained. Planning to meet the demands of unexpected surges in demand enables the agencies to prepare for unexpected events. Discussion To prepare for the occurrence of a major incident, plans should be in place to meet the increased demand. Using a cooperative approach between the two agencies, planning together and sharing available resources, the surge capacity is increased. Being prepared to place reserve units in service when needed is the first step. Staffing of additional units that are called to duty can best be accomplished by cooperative re-deployment of appropriately trained personnel. Alternatives that exist include splitting medic crews in
instances when two paramedics are normally assigned to one unit. Instead, two units will then be staffed with one paramedic and a Basic Life Support (BLS) responder. When staffing
availability is limited, BLS-only crews may be assigned to transport less critical patients. Responders normally assigned to engine companies may also be transferred to transport vehicles.
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Other opportunities may be identified to increase capacity, including recall of addition off duty personnel and use of resources from neighboring agencies. Critical Issues Maintenance of adequate reserve capacity to meet routine expected service needs Guidance Appoint representative(s) from each agency to evaluate medic unit surge capacity needs. Inventory available resources including reserve medic units and other equipment that may be appropriate for patient transport. Evaluate external resources that may be called upon in the event of a major incident. Establish a plan that is jointly agreed to by both agencies for emergency deployment of resources. Fiscal Considerations Minimal financial impacts will be realized.
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Strategy MM Establish System-Wide Guidelines for EMS Response Level of Cooperation Functional Timeline for Completion Short Term Section EMS Affected Stakeholders Both Agencies Objective Standardize EMS response and deployment protocols in both agencies. Summary Kitsap County Fire District #18 and North Kitsap Fire & Rescue already respond to EMS incidents in a similar manner, though some variations in deployment and response practices exist. Establishing a collaborative methodology for how EMS calls are handled offers the
potential of streamlining how resources are used, decreasing response times and increasing the efficiency of service delivery. Discussion The primary gain that can be realized from standardizing EMS response procedures, beyond the considerable similarities that already exists, will be that of improved response times. The adoption of dropped-boundary practices for medical emergencies is the most effective way to increase efficiency. With the approach, the closest available ambulance and/or first response resource is dispatched to the incident without regard to whether the address falls within one agencies jurisdiction or another. Additional opportunities to streamline and standardize response practices should be identified, evaluated and implemented by the two agencies EMS management staff. Critical Issues Quality of patient care must be maintained as the foremost concern when making decisions about standardizing response practices. Decisions must be made in absence of concerns about turf and political issues. Guidance Develop a joint committee to evaluate opportunities to standardize response.
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Coordinate efforts with the Kitsap County EMS office and Medical Program Director. Evaluate current response times and identify areas of weakness. Review station locations and staffing methodologies to identify opportunities to reduce response times. Establish standards for EMS system practices and response protocols. Fiscal Considerations Minimal financial impacts, if any, will be realized.
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Strategy NN Establish System-Wide Deployment of Paramedics Level of Cooperation Functional Timeline for Completion Short Term Section EMS Affected Stakeholders Both Agencies Objective Reduce scheduling challenges and overtime costs by using paramedic trained personnel on a shared basis between the two fire departments. Summary Given that both Kitsap County Fire District #18 and North Kitsap Fire & Rescue maintain a staff of Advanced Live Support (ALS) paramedics, opportunities exist for increased efficiencies by assigning trained personnel to response units in either agency on an as needed basis. Shared deployment is further accommodated by the fact that paramedics from both organizations are trained and certified to the same standards by way of the county-wide EMS training practices. Discussion When insufficient numbers of paramedics are on the roster, or when vacancies occur due to illness, vacation or other leaves, fire departments are often challenged to find sufficient numbers of properly qualified personnel to fill the void. The problem is particularly difficult when
attempting to cover vacancies that require specialized skills, because agencies typically have a smaller number of ALS technicians from which to draw. overtime costs are often incurred. By employing a system-wide deployment strategy for specialized positions, the agencies will have a single and larger personnel pool from which to draw. The concept is dependent on standardizing response protocols, as discussed in the above strategy, to assure that all personnel are working under the same practices and procedures. Critical Issues Managing the assignment of overtime shifts will be challenging to address to the satisfaction of both bargaining units. As a result, qualified increased
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Guidance Meet and confer with representatives from both bargaining units at the onset of consideration of the strategy. Develop a labor-management committee to address how the initiative may be implemented. Evaluate current call back and overtime practices to identify opportunities for shared deployment. Fiscal Considerations Cost savings may be realized through reduced overtime costs.
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Strategy OO Implement Centralize EMS Billing Practices Level of Cooperation Functional Timeline for Completion Short Term Section Administration Affected Stakeholders Both Agencies Objective Increase EMS service delivery cost recovery through a single billing process Summary EMS billing is currently contracted externally by both agencies. The two fire departments use different companies to provide billing services, both of which charge similar fees for their services, but with differing return rates. A review of current cost recovery and evaluation of the two companys practices and results will increase financial returns. Discussion Collection rates vary considerably between the two companies. Kitsap County Fire District #18 reports an uncollected billing percentage of 8.225 percent, while North Kitsap Fire & Rescue reports 4.494 percent. However, total collection rates in Kitsap County Fire District #18 are reported to be higher than those in North Kitsap. The differences may be a result of varied reporting and tracking methodologies, and an evaluation of both, as well as looking for other alternatives, holds the potential to increase overall collection rates. Critical Issues Existing contracts with the two billing companies will need to be considered to assure that the terms of the contracts are not violated. Guidance Assign an administrative review team to evaluate current billing activities. Compare and evaluate existing procedures and overall returns. Identify other opportunities that may exist, including other external sources as well as internal billing by one of the two fire departments. Select a preferred method and provider and execute appropriate contracts for services.
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Fiscal Considerations Positive financial impacts may be realized through increased collections.
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Strategy PP Relocate Fire Station No. 73 Level of Cooperation Operational Timeline for Completion Mid Term Section Emergency Operations Affected Stakeholders Kitsap County Fire District #18 Objective Reduce response time in KCFPD #18 Improve response reliability, with a reduction in the time to assemble an effective firefighting force to the core of the District (City of Poulsbo) on multiple unit responses Improve reliability and reduce response time for simultaneous calls in areas of highest call density Summary Evaluation of fire station locations involves a combination of factors including staffing methodologies, travel times, street and road networks and the density of incident occurrence. ESCI reviews these considerations in order to identify opportunities to increase response effectiveness by modification of station deployment when doing so proves to be beneficial. An opportunity is found in review of the location of Fire Station No. 73, a volunteer staffed facility located in a portion of the District that experiences lower incident frequency as compared with the balance of the response area. ESCI recommends moving the station to the north and west, near Viking and Sherman Hill to improve coverage and reduce response times. Discussion In the Service Delivery section earlier in this report, ESCIs GIS analysis indicates that Fire Station No. 73 is located in an area of lower call density compared with other stations in the District. Figure 16: Fire Station Area Call Volume illustrates that Fire Station No. 73 responded to 236 incidents in 2010, the fewest number of calls of all stations in the District. Relocation of Fire Station No. 73 to the vicinity of Viking and Sherman Hill offers advantages in terms of coverage and efficiency by siting the station in a location more central to respond
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demand.
In the map (Figure 115), current six-minute travel times are compared that
demonstrate how coverage is enhanced by the proposed relocation of the fire station.
Figure 115: Proposed Relocation Site for Fire Station No. 73
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By factoring in the relocation of Fire Station No. 73 into travel time mapping, the percentage of KCFD #18 geographic response area that can be accessed in six minutes or less, increases to 40 percent. From the new location, the portion of the District that experiences higher call densities is served more effectively and the incidents that can be reached in six minutes or less travel time increases to 68 percent. Response times to the area around the current location of Fire Station No. 73 will be lengthened if the station is relocated. The Keyport response area includes the Naval Undersea Warfare Center. With an automatic aid agreement with the Navy to serve the area, the proposed
relocation, based on travel times is acceptable. Guidance Convene a work group to review and further analyze the advantages and disadvantages of relocating Fire Station No. 73. o o Consider negative impacts on response times relative to the current fire station location. Consider the advantages to be gained by the enhanced coverage that will be realized by the relocation.
Identify potential sites that may be appropriate for construction of a new fire station Establish a committee to identify needs and develop design criteria with which project costing can be generated Identify a funding methodology and project timeline Fiscal Considerations Cost of securing property. Cost to design and build the new station. Methodology of staffing the new station and associated personnel costs. o o Remain as a volunteer staffed facility. Become a career or partially career staffed fire station as development occurs.
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Strategy QQ Future Joint Staffed Fire Station Location Level of Cooperation Functional Timeline for Completion Long Term Section Emergency Operations Affected Stakeholders Both Agencies Objective Improve response time in both Districts Reduce response times for additional apparatus and personnel to respond to incidents requiring multiple units Improve service demand coverage Summary Kitsap County Fire District #18 and North Kitsap Fire & Rescue have facilities, apparatus, and personnel that cover a large geographic area of North Kitsap County. A single call for service in either District means that for subsequent or concurrent call the next response unit may have to travel from a significant distance to arrive at the incident. ESCI, with input from the two Fire Districts, has identified prospective sites to consider for a future locating a fire station as the agencies look to meet current and future service demands. In developing the future siting of facilities, ESCI has considered the gains that can be achieved via a cooperative approach to shared service delivery. Included are opportunities to staff fire stations jointly, if the agencies remain as separate entities, or as a single entity should the organizations be combined. Discussion Future service demand has been discussed throughout this report. A pro-active approach to deployment of fixed facilities is important to planning for fire departments when future growth is expected, as can be anticipated in KCFD #18 and NKFR. When station deployment is viewed in the absence of existing boundary constraints, new alternatives frequently present themselves. When looking at the ideal physical location for a prospective fire station, ESCI did so as if the two Districts were one. Figure 116 offers two potential locations for future fire station siting.
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North Kitsap Fire & Rescue Kitsap County Fire District #18, WA Feasibility Study Figure 116: Potential Sites of a Joint Fire Station
A fire station at either of the two identified locations provides an eight-minute travel time service area that covers approximately 40 percent of the combined KCFD #18 and NKFR road network.
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Figure 117 lays out an analysis of percentage of road network coverage in eight minutes that would result from the two optional locations.
Figure 117: Future Fire Station Location Travel Time Coverage
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Either location improves the concentration of equipment and personnel available in both agencies current service areas. A fire station at either location would have the benefit of
reducing response time and improving station reliability for both Fire Districts. Guidance As a community grows, it is important that future service demands be forecast well in advance. It is inappropriate to wait until the effects of increased workload results in disproportionate call concurrency, high unit hour utilization, and low apparatus reliability results in elongated or delayed responses. Whether or not unification of the agencies occurs, benchmarks should be developed and monitored of the reliability of response activity and for changes to response time to incidents. If negative trends in response targets are seen, it should trigger an action to maintain the level of service established by the District policymakers. This analysis should include: Determination of the need for additional personnel and apparatus. Review of the advantages and disadvantages of relocating or construction one or more new fire stations. Identification of property that may be available for a new fire station. Establish a committee of internal and external stakeholders to develop a needs assessment and design criteria from project costing can be generated. Identify funding methodologies and project timeline. Fiscal Considerations Cost efficiencies to be gained if joint funding the construction of a new fire station. Ability to provide enhanced or maintains service not possible independently. Shared staffing of fire stations can yield significant cost avoidance. Cost of securing property. Cost to design and build the new station. Methodology of staffing a new station and associated personnel costs. o o Staff new fire station with volunteer or intern personnel. When or if to partially or fully career staff a new fire station.
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Findings and Recommendations

Findings
Based on all of the preceding work of developing organizational Strengths, Weaknesses, Opportunities and Challenges (SWOC), evaluation of current conditions, fiscal analysis, and based on our experience with other projects of similar character and scope, we draw certain conclusions regarding Kitsap County Fire District #18 and North Kitsap Fire & Rescue, the region, and the opportunities for collaboration. A summary of those findings follow. KCFD #18 and NKFR are Interdependent The fire departments of Kitsap County have historically created long-term plans and generally functioned in an autonomous fashion. Collaboration between departments has been motivated by individual agency need. More recently, internal and external forces have encouraged a more widespread policy of mutual interdependence and consolidation of agencies. The trend is likely to continue as the cost of providing emergency service escalates, and as the uncertain funding system persists. KCFD #18 and NKFR Value Customer Service During the work leading to this report, both Fire Districts consistently demonstrated a sophisticated focus toward serving those who live, work, and play in the area. KCFD #18 and NKFR Meet the Publics Service Expectation While not empirically verifiable, there is a general impression across the region that the Fire Districts do a good job of satisfying the service expectations of the public within the limits of geography, transportation, and funding. Existing Partnerships Reduce Duplicated Effort KCFD #18 and NKFR have eliminated some regional duplication through active interagency cooperation. Examples include automatic/mutual aid, apparatus maintenance, and of a great significance this project. These successful programs hint at the high potential value of a policy encouraging greater intergovernmental collaboration. Volunteers and Interns Play an Active Role in Fire Protection Volunteer and intern firefighters are an important part of the community and the fire departments. KCFD #18 and NKFR both maintain a roster of committed volunteer and intern firefighters. The need for volunteer and intern firefighters in the Fire Districts will not be eliminated by any of the partnership opportunities detailed in this report. Rather, the intent of one option in particular is to administratively support and strengthen the volunteer program (See: Strategy N Combine Volunteer Services, page 246) and another to expand the intern program (Strategy M Shared Intern Program, page 244). Other Organizations Should be Included in Partnership Initiatives Organizations outside of KCFD #18 and NKFR that participated in this work should be included when developing a partnership plan. The Suquamish Tribe has a large stake in any decisions that could affect or change the provision of fire and EMS services. Bainbridge Island Fire Department did not participate in the study, but without question, the department should be an informed, involved, and an active participant in any plan development process. Likewise, other entities such as Central Kitsap Fire & Rescue, Port Ludlow Fire & Rescue,
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and Jefferson County Fire & Rescue were not involved in this work but have an interest and/or role in a partnership plan. In addition, all of the Kitsap fire departments (this includes Naval resources) maintain and use some form of mutual and automatic aid protocols among themselves in daily operations. Such practices reduce the reflex time required to react to serious emergencies and maximize the value of available resources. Automatic aid agreements should extend to areas outside of KCFD #18 and NKFRs service areas. The North Kitsap County Region is Geographically Diverse and Unique The geography of the North Kitsap County includes a variety of waterways, headlands, open land, hills, and rugged terrain. All add to the allure of the region as a desirable place to live or visit; however, such features also include the expectation of the hazards of flooding, tsunami, earthquake, and erosion-related mudslides. Individually, neither fire agency, nor any other fire department in Kitsap County, has the resources to mitigate such disastrous events alone. The North Kitsap County Region is Politically Diverse The highly varied geography of the North Kitsap County influences where and how people choose to live. Consequently, the city of Poulsbo, tribal lands, and unincorporated community gain its political identity from the people who live in it and who participate in the governance of that area. It is no surprise therefore, that the culture and politics within individual communities of the area are as different as the topography. The Regional Transportation System Limits Emergency Response Much of Kitsap County suffers from frequent bouts of traffic congestion. In general, the area lacks the necessary transportation routes that contribute to efficient emergency response. It appears that KCFD #18 and NKFR cannot positively impact or influence the regular overcrowding of roadways and the associated increase of emergency response times. The limitations of the transportation system will continue to affect response times in the future, equating to increased protection cost because of the necessity to locate fire stations more closely together. Internal and External Forces Act on KCFD #18 and NKFR Internal pressure from administration and support staff reductions, an overall increase in workload and community expectations, and uncertain funding tend to create a sense of urgency, leading to a general inclination to do something. While a merger or consolidation could ultimately provide increased efficiency, the initial complexity of combining the organizations would prove to be a major obstacle, and would most likely create an inequity in cost paid for service received. Emergency Service Cost is Variable The cost of fire and emergency medical service differs between KCFD #18 and NKFR (See Survey Table 1: Organization Overview, beginning on page 17). Property tax for fire protection in 2010 were $1.457 for KCFD #18 and $1.309 for NKFR per $1,000 of assessed value while EMS levies in the Districts were identical at the tax levy rate cap of $0.50 of assessed value in the current fiscal year. If property values continue to decline it is possible that both fire levies will reach the tax levy rate cap of $1.50 of assessed value for fire protection in the next two years. If the tax levy rate cap is reached the cost variable could become a moot issue. In general, the tax constraints of the State of Washington have pushed the cost of emergency service near the limits of the funding system. Fire departments are forced to
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deal with a shortage of revenue by not filling some authorized positions. The lack of a funding strategy could leave KCFD #18 and NKFR fire protection and EMS in limbo when developing any long-term plans. A Consolidation of KCFD #18 and NKFR has Local Political Support The governing bodies of KCFD #18 and NKFR appear to be genuinely interested in improving the efficiency and quality of fire protection and emergency medical service. Officials are open to virtually any suggestion of intergovernmental collaboration that would maintain or improve service without an increase in the burden on taxpayers. KCFD #18 and NKFR Policymakers Should Develop a Plan to Implement Partnership Opportunities Fire District administrators, staff, and labor representatives have created a foundation for partnerships without a policy commitment from policymakers; progress on valuable initiatives may eventually falter. KCFD #18 and NKFR policymakers need to adopt a plan to move ahead with aligning the processes, services, and operations of the Fire Districts wherever possible. Many Opportunities Exist for Cost Avoidance An ability to reduce duplication and/or improve efficiency exists for the two Fire Districts. Such opportunities include savings as a result of standardized specifications for fire equipment, the creation of a joint fire training division, administrative services, reducing the number of reserve apparatus, and sharing of unique recourses (like specialty teams), and other unified programs. Consolidation of KCFD #18 and NKFR is Feasible KCFD #18 and NKFR should share management resources (Overarching Strategy 1 Administrative Consolidation, page 165). An agreement would result in reduced duplication and increased efficiency at the administrative level. Long-term, extending the agreement to merge all organizational aspects of the Fire Districts is forecast to save money, reduce the complexity of managing two independent operational divisions, and enhance the ability of the agencies to plan and manage fire and emergency medical service in the region. All Other Cooperative Opportunities are Feasible Without exception, all other identified collaborative strategies are feasible.
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Strategic Recommendations
It is common for those in the fire service to tout themselves, or their department in terms such as a pride-driven organization that is at their best every day, and the best by test, or more simply, the best. The true mark of quality of the best fire departments however, is those that work continuously for measurable improvement in organizational performance. By undertaking this study of collaborative opportunities, the leadership (commissioners and administration) of KCFD #18 and NKFR have begun the task of organizational and system evaluation that is necessary to plan for and reach the goal of truly being the best. Success is peace of mind, a direct result of self-satisfaction in knowing that you did your best to become the best that you are capable of becoming John Wooden We intend no suggestion that KCFD #18 and NKFR are not already operating at a high level. In fact, we are pleased to report all available evidence shows that the Fire Districts consistently provide excellent service to the citizens of the protected communities. However, in keeping with the notion of continuous improvement wherein an unending loop of performance, measurement, and evaluation leads to system enhancements that would otherwise be impossible, we offer recommendations to assist the steering committee and Districts to implement the collaborative strategies that will best benefit the public. Some (opportunities for cooperative effort) are quite frankly mirroring what we have already started. However, others continue to build upon those efforts and actually take them to the next levels. Fire Chiefs Dan Olson, Kitsap County Fire District #18 and Dan Smith, North Kitsap Fire & Rescue
The success of adopting and implementing cooperative opportunities depends on many things. In our experience with dozens of functional, operational, and legal unifications, leadership is the single factor that most frequently determines success. Nearly always, a key staff, councilor, or commission member champions the concept garnering the support of the various affected groups (political, labor, member, and community). Additionally, good leadership fosters an
organizational culture receptive to planning, calculated risk taking, and flexibility. The manner in which leaders promote a trusting relationship between all groups and aid two-way communication between them is essential. From these issues, research by Kohm, Piana, and
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Gowdy identifies five factors that most often seem to contribute to the successful implementation of a partnership or consolidation.58 The five factors are: A leadership that believes strongly in the partnership and demonstrates this belief, often by acting selflessly to maintain it. Multiple forms of communication to keep all persons (governing board, staff, members, and community) up to date about plans, problems, and benefits concerning the partnership. Face-to-face communications with partner organizations in the forms of meetings, training, and other forums to build trust and understanding among staff. Flexibility through an expectation that even in the best-planned partnership unforeseen issues will arise, mistakes will be made, and alternative paths will be identified. Early evidence of benefit to assure everyone that they are on the right track, such as better or less expensive employee benefits or improved facilities.
Kohm, Piana, and Gowdy term the establishment of an ongoing relationship between two or more independent organizations as strategic restructuring. The relationship is generally created to increase the administrative efficiency and/or further the programmatic mission of one or more of the participating agencies through shared, transferred, or combined services, resources, or programs. Restructuring may be thought of as a continuum that ranges from jointly managed programs (such as automatic aid agreements) to complete organizational merger. Moving Forward Overarching Recommendation Implementation of the feasible cooperative opportunities (as recommended above), addresses a myriad of the administrative, support and operational challenges identified in the course of this study. What these efforts fail to address, is the fact that the Districts are at that point where expenditures are, or soon will, exceed revenue. While cash on hand would allow operations to continue for a limited period of time, this would only serve to exacerbate the problem. With the Districts already deferring maintenance, leaving positions unfilled and restricting purchases, operational costs continue to increase. Even if spending only out paces receipts by a percent or two, it is not sustainable.
58
Amelia Kohm, David La Piana, and Heather Gowdy, Strategic Restructuring, Findings from a Study of Integrations and Alliances Among Nonprofit Social Service and Cultural Organizations in the United States, Chapin Hall, June 2000.
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ESCI recommends that, Overarching Strategy 1 Administrative Consolidation and elements of Overarching Strategy 2 Functional Consolidation, with modifications, is the first course of action adopted by the fire commissions. Such action would result in a new organizational
structure. One concept of this structure is provided in the following figure.

Figure 118: KCFD #18/NKFR Administrative Consolidation Organizational Chart (Conceptual)
Board of Fire Commissoners
Fire Chief
Asst. Chief Admin/Support Clerical Support
Asst. Chief Operations
Maint. Shop
Fleet Maint.
A Shift B/C
Fire Prevention B Shift B/C
Stations & Company Officers
Community Outreach C Shift B/C
Facilities Maint. Admin. B/C Administrative/ Office Mgr. EMS Coordinator
Information Technology
Clerical Staff
Finance & Budget Training Captain
1. Elimination of three battalion chief positions The combined service area has six shift battalion chiefs (two per shift) covering approximately 100 square miles including contracted service areas, which is served by nine fire stations. The battalion chief
configuration is appropriate to the distances traveled and the number of fire stations supervised. Given the total number of emergency responses per year for the combined agencies, incident supervision and emergency response readiness could be managed with three battalion chiefs, one per shift. By shifting to a single 24-hour battalion chief,
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the function must be centralized to the combined service area to the greatest extent possible. While no one centroid station currently exists, Fire Station No. 71 is the most advantageous location to house the shift battalion chief. This is predicated on the
disproportionately high frequency of structure fires in that area when compared to the overall service area. While the response area is geographically large, and the number of units being supervised is slightly higher than what is considered ideal, the call volume is manageable under this scenario. To balance the administrative activities of a single shift battalion chief, the training battalion chief would be reassigned to handle routine administrative work currently managed by the shift battalion chiefs. accomplished by reassigned the training battalion chief to administration. The administrative battalion chief would remain as a 40-hour work week position and provide administrative support services to the three shift battalion chiefs. ESCI This is
recommends that this position be rotated among the four battalion chiefs for skills maintenance and for career development of chief officers. The administrative battalion chief could be assigned to work shift relief for extended absences. The deputy chief of operations would perform the functional responsibilities of training chief. Fire Station No. 72s current staffing model of occasional coverage by the shift battalion chief will be sacrificed in this option. With a single operational battalion chief, it is imperative that response readiness for larger incidents be maintained. 2. Elimination of one fleet maintenance supervisor position Combining the apparatus maintenance functions makes this position redundant. The NKFR maintenance facility is already performing contracted apparatus maintenance for multiple outside agencies in addition to its own fleet. Adding KCFD #18s fleet will impact the existing maintenance staff, but the impact could be absorbed without requiring additional mechanics or administrative staff. 3. Elimination of one PIO position While both agencies provide excellent outreach and communication with their constituencies, the function is redundant if the two agencies combine administrative teams. This may be a politically challenging position to
eliminate, as both agencies have legitimate marketing needs as separate legal entities.
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However, a single skilled public information officer/outreach coordinator can market both organizations and meet the information needs of the constituencies of both agencies. 4. Elimination of one administrative services manager/director As a combined management team, only one administrative services manager/director is needed. ESCI recommends that the administrative services manager/director perform human resource functions and administer the outsourced information technology/information services, financial and budgeting, and supervision of the clerical staff. 5. Elimination of one receptionist With a single headquarters, only one receptionist will be required. Consideration should be given to expanding the duties of this position to
provide additional clerical support to the organization. Activities of this position should not require the individual to leave the front office, and be suitable to perform despite frequent interruptions by customers. These combined cuts result in a cost avoidance of approximately $725,500 in wages and benefits in the first year. Over five-years the reduction in expenditures totals over $3.5 million in todays dollars. 6. Form an RFA (Regional Fire Authority) Formation of an RFA with KCFD #18, NKFR, and the Suquamish Tribe is considered to be one strategy that has potential to produce long-term financial stability. It would require an RFA with an EMS levy and benefit charge as the funding mechanism. Establishing an exploratory committee made up of internal and external stakeholders would determine the plausibility of such an endeavor by determining the level of community support. If the committee reports back favorably on the RFA concept, the two boards and tribe formally establish a planning committee to set service level standards, funding mechanisms, governance, and the remaining obligations as listed in RCW 52.26. Formation of an RFA will be an extended process, likely taking up to two years to complete. The preceding actions will provide temporary financial relief until this long-term solution is implemented.
The option of a merger also has the option of a benefit charge; however, since neither District has a benefit charge in place, a merger would need to occur before the charge can be implemented. If the benefit charge is rejected by voters subsequent to a merger
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vote, the Districts would need to grapple with a lower tax base than is necessary to support the current operations. 7. Involvement of the Suquamish Tribe in all future endeavors The Suquamish Tribe can play an important role in the evolution of emergency services provided by NKFR and KCFD #18. Instead of continuing their role as a contract service, ESCI recommends that dialogue with the tribe include an invitation to discuss a full partnership. This is
envisioned as a single agency providing services to the entire service area, including the tribal territory. While the Suquamish Tribe does not own fire suppression assets, they have access to financial opportunities not available to either Fire District. Exploration of the formation of a fire authority that includes the tribe is considered a viable alternative to the current system. Additionally the formation of a port district by the tribe could provide revenue that could be beneficial for the entire region. During stakeholder interviews tribal representatives were genuinely excited at the prospect of playing a larger role in emergency service delivery to the region. ESCI recommends that dialogue be initiated by officials of the two Districts engaging tribal leaders in possibilities thinking. Functional Cooperation Recommendations KCFD #18 and NKFR should promptly and systematically implement as many of the feasible cooperative opportunities as is possible. It is important that the steering committee exercise proper management of the process, but at the same time it is also important not to get bogged down by bureaucracy. Long-term success of many of the initiatives may depend on short-term evidence of improvement and benefit. Consequently, the continued use of a steering committee is recommended to assure that the process moves forward without delay. Establish an Oversight Board to Plan and Manage the Implementation of Feasible Collaborative Opportunities We recommend that the KCFD #18 and NKFR empanel an oversight board comprised of agency representatives and other affected parties. The group should assume responsibility for prioritizing, and determining the sequential order for implementation of all feasible collaborative opportunities. The oversight board should have the authority and accountability to initiate all opportunities within established budgetary and governance limitations.
This report cites 43 separate strategies through increased collaboration to generally build an improved system by more closely aligning the Districts. Some of the strategies require strategic
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investments to implement.
There is an assumption that the Districts are able to fund the
investments that later pay-back economically, through service improvement or efficiencies gained in internal operations. For KCFD #18 and NKFR it is not a safe assumption that monies will be available to finance or invest in any new activities. In fact, both agencies face significant fiscal challenges in the near term with no return to normal expected over the next several years, if ever. Thus, the first order of business has to be to establish a fiscal equilibrium before considering many of the strategic investment opportunities. The following recommendations are judged as being most likely to result in significant improvement to systems and/or programs. Only those individual Strategies not requiring an investment beyond soft costs and yielding economic or operational efficiencies can and should be considered for implementation at this time. ESCI recommends that these initiatives should be acted on regardless of action on the remaining feasible opportunities. They include: Strategy B Develop Uniform Pre-Incident Plans Strategy D Provide Regional Incident Command and Operations Supervision Strategy F Develop Standard Operating Guidelines Strategy K Shared Public Education/Public Information Strategy N Combine Volunteer Services Strategy O Combine Administrative Services Strategy P Implement North Kitsap Benefit Package Strategy Q Align Operational Staffing Schedules* Strategy R Adopt Dropped Border Response Strategy S Adopt Criteria-Based Dispatch Strategy U Develop Mutual Training Strategies Strategy V Develop an Annual Shared Training Plan Strategy X Develop and Adopt Training Standards Strategy Y Create a Shared Training Manual Strategy BB Develop a Single Apparatus Refurbishment/Replacement Plan Strategy HH Develop Uniform Fees for Service Strategy II Develop a Model Labor Agreement for Both Departments* Strategy LL Provide for Medic Unit Surge Capacity During Major Incidents** Strategy MM Establish System-Wide Guidelines for EMS Response Strategy NN Establish System-Wide Deployment of Paramedics* Strategy OO Implement Centralize EMS Billing Practices
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Strategy PP Relocate Fire Station No. 73

*Impact bargaining is required, thus the fiscal effect is subject to the results of negotiations **Some elements of this recommendation are implementable without cost, but the strategy would have to be modified to make it cost neutral.
It is important that related opportunities should be implemented concurrently with the creation of a single training division.
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Appendices
Appendix A: Table of Figures
Figure 1: NKFR Organizational Chart ......................................................................................................... 25 Figure 2: KCFD #18 Organizational Chart .................................................................................................. 26 Figure 3: Fire Station No. 81 (NKFR Headquarters) ................................................................................... 85 Figure 4: Fire Station No. 84 (NKFR) .......................................................................................................... 86 Figure 5: Fire Station No. 85 (NKFR) .......................................................................................................... 87 Figure 6: Fire Station No. 87 (NKFR) .......................................................................................................... 88 Figure 7: Fire Station No. 88 Storage Facility (NKFR) ................................................................................ 89 Figure 8: Fire Station No. 89 (NKFR) .......................................................................................................... 90 Figure 9: Fire Station No. 71 (KCFD #18 Headquarters) ............................................................................ 91 Figure 10: Fire Station No. 72 (KCFD #18)................................................................................................. 93 Figure 11: Fire Station No. 73 (KCFD #18) ................................................................................................. 94 Figure 12: Fire Station No. 77 and Drill Tower (KCFD #18) ....................................................................... 95 Figure 13: KCFD #18/NKFR Study Area .................................................................................................... 97 Figure 14: Census Data Study Area Population Density ............................................................................ 98 Figure 15: First Due by Fire Station Areas ................................................................................................ 100 Figure 16: Fire Station Area Call Volume ................................................................................................. 101 Figure 17: 2010 Call Density, All Calls ...................................................................................................... 102 Figure 18: 2010 Call Density, Fire Calls ................................................................................................... 103 Figure 19: Study Area, Six-Minute Travel Time ........................................................................................ 104 Figure 20: Six-Minute Travel Time, 2010 All Calls .................................................................................... 106 Figure 21: WSRB 5-Mile Travel Distance ................................................................................................. 107 Figure 22: Total Calls by Incident Type, 2006 2010 .............................................................................. 108 Figure 23: Percentage of Calls by Incident Type, 2006 2010 ................................................................ 108 Figure 24: Annual Service Demand, 2006 2010 .................................................................................... 109 Figure 25: Calls by Month, 2010 ............................................................................................................... 110 Figure 26: Calls by Day of Week, 2010 .................................................................................................... 110 Figure 27: Calls by Hour of Day, 2010 ...................................................................................................... 111 Figure 28: NKFR Unit Hour Utilization, 2010 ............................................................................................ 112 Figure 29: KCFD #18 Unit Hour Utilization, 2010 ..................................................................................... 112 Figure 30: NKFR Concurrent Calls, 2010 ................................................................................................. 113 Figure 31: NKFR Percentage of Concurrent Calls, 2010 .......................................................................... 113 Figure 32: KCFD #18 Concurrent Calls, 2010 .......................................................................................... 114 Figure 33: KCFD Percentage of Concurrent Calls, 2010 .......................................................................... 114 Figure 34: KCFD #18/NKFR Fire Station Reliability, 2010 ....................................................................... 115 Figure 35: NKFR Response Time Frequency, 2010 ................................................................................. 116 Figure 36: KCFD #18 Response Time Frequency, 2010 .......................................................................... 116 Figure 37: KCFD #18/NKFR 90th Percentile Turnout Time by Incident Type, 2010 ................................ 117 Figure 38: KCFD #18/NKFR 90th Percentile Response Time by Incident Type, 2010 ............................ 118 Figure 39: KCFD #18/NKFR 90th Percentile Response Time by Hour of Day, 2010 ............................... 118 Figure 40: NKFR Eight-Minute Travel Time-Overlapping Coverage ........................................................ 120
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North Kitsap Fire & Rescue Kitsap County Fire District #18, WA Feasibility Study Figure 41: KCFD #18 Eight-Minute Travel Time-Overlapping Coverage ................................................. 122 Figure 42: KCFD #18/NKFR Overlapping Coverage Area ....................................................................... 123 Figure 43: Capital Resources per 1,000 Residents .................................................................................. 125 Figure 44: Emergencies per 1,000 Residents........................................................................................... 125 Figure 45: Fires per 1,000 Residents ........................................................................................................ 126 Figure 46: Career Firefighters per 1,000 Residents ................................................................................. 126 Figure 47: Volunteer/Intern Firefighters per 1,000 Residents ................................................................... 127 Figure 48: Comparable Capital Resources per 1,000 Residents ............................................................. 128 Figure 49: Comparable Career Firefighters per 1,000 Residents ............................................................. 128 Figure 50: Comparable Agencies by Population....................................................................................... 129 Figure 51: Comparable Agencies by Service Area in Square Miles ......................................................... 129 Figure 52: Comparable Emergencies per 1,000 Residents ...................................................................... 130 Figure 53: Forecast TAV Impact, 2011 2016 ......................................................................................... 131 Figure 54: Median Value and Home Sales in Poulsbo, 2005 2010 ....................................................... 132 Figure 55: Median Value and Home Sales in Kingston, 2005 2010 ...................................................... 133 Figure 56: Historical and Average CPI-U Table, 2001 2010.................................................................. 134 Figure 57: Historical and Average CPI-U Graphic, 2001 2010 .............................................................. 134 Figure 58: CPI-U Forecast Budget Impact Graphic, 2011 2021 ............................................................ 135 Figure 59: CPI-U Forecast Budget Impact Table, 2011 2021................................................................ 135 Figure 60: KCFD #18 Historical TAV and Tax Rate, 2007 2011 ........................................................... 136 Figure 61: KCFD #18 Historical Revenue, 2007 2011 ........................................................................... 136 Figure 62: KCFD #18 Historical Expenditures, 2007 2011 .................................................................... 137 Figure 63: KCFD #18 Historical Fund Balance, 2007 2011 ................................................................... 138 Figure 64: KCFD #18 Fire TAV Forecast, 2011 2016 ............................................................................ 138 Figure 65: KCFD #18 EMS TAV Forecast, 2011 2016 .......................................................................... 139 Figure 66: KCFD #18 Revenue Forecast, 2011 2016 ........................................................................... 139 Figure 67: KCFD #18 Expenditure Forecast, 2011 2016....................................................................... 140 Figure 68: KCFD #18 Forecast Fund Balance, 2011 2016.................................................................... 140 Figure 69: NKFR Historical TAV and Tax Rate, 2007 2011 .................................................................. 141 Figure 70: NKFR Historical Revenue, 2007 2011 .................................................................................. 141 Figure 71: NKFR Historical Expenditures, 2007 2011 ........................................................................... 142 Figure 72: NKFR Historical Fund Balance, 2007 2011 .......................................................................... 143 Figure 73: NKFR Fire TAV Forecast, 2011 2016 ................................................................................... 143 Figure 74: NKFR EMS TAV Forecast, 2011 2016 ................................................................................. 144 Figure 75: NKFR Revenue Forecast, 2011 2016 .................................................................................. 144 Figure 76: NKFR Expenditure Forecast, 2011 2016 .............................................................................. 145 Figure 77: NKFR Forecast Fund Balance, 2011 2016........................................................................... 145 Figure 78: Summary Table of Overarching Strategies ............................................................................. 157 Figure 79: Summary Table of Partnering Strategies ................................................................................ 158 Figure 80: Administrative Consolidation Organizational Structure Conceptual ........................................ 168 Figure 81: Administrative and Support Staffing, Conceptual .................................................................... 169 Figure 82: Administrative and Support Staffing Cost Reductions, Conceptual ........................................ 169 Figure 83: Independent Functional Consolidation Organizational Structure, Conceptual ........................ 176 Figure 84: Functional Consolidation Organizational Structure, Conceptual ............................................. 177
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North Kitsap Fire & Rescue Kitsap County Fire District #18, WA Feasibility Study Figure 85: Functional Consolidation Staffing, Conceptual ........................................................................ 178 Figure 86: Functional Consolidation Staffing Cost Reductions, Conceptual ............................................ 178 Figure 87: Independent Implementation of Operational Consolidation Organizational Structure (Conceptual) .............................................................................................................................................. 183 Figure 88: Sequential Implementation of Operational Consolidation Organizational Structure (Conceptual) .................................................................................................................................................................. 184 Figure 89: Operational Consolidation Operations Personnel (Conceptual) .............................................. 185 Figure 91: Full Merger Administrative Organizational Structure (Conceptual) ......................................... 189 Figure 92: Forecast Full Merger Impact on TAV, 2011 2016................................................................. 190 Figure 93: Forecast Full Merger Consolidated Fire TAV, 2011 2016 .................................................... 190 Figure 94: Forecast Full Merger Consolidated EMS TAV, 2011 2016 .................................................. 190 Figure 95: Full Merger Fire Budgeted Consolidated Revenue, 2011 ....................................................... 191 Figure 96: Full Merger Budgeted Consolidated Expense, 2011 ............................................................... 192 Figure 97: Full Merger Consolidated Revenue, 2011 2016 ................................................................... 193 Figure 98: Full Merger Consolidated Expense, 2011 2016 ................................................................... 194 Figure 99: Full Merger Operations Consolidated, 2011 2016 ................................................................ 194 Figure 100: Full Merger Cost per Residence ............................................................................................ 195 Figure 101: RFA Organizational Structure (Conceptual) .......................................................................... 200 Figure 102: Forecast RFA Impact on TAV, 2011 2016 .......................................................................... 201 Figure 103: Forecast RFA Fire TAV, 2011 2016 ................................................................................... 201 Figure 104: Forecast RFA EMS TAV, 2011 2016 .................................................................................. 201 Figure 105: RFA Fire Budgeted Consolidated Revenue, 2011 ................................................................ 202 Figure 106: RFA Budgeted Consolidated Expense, 2011 ........................................................................ 203 Figure 107: RFA Consolidated Revenue, 2011 2016 ............................................................................ 204 Figure 108: RFA Consolidated Expense, 2011 2016 ............................................................................ 205 Figure 109: RFA Operations Consolidated, 2011 2016 ......................................................................... 205 Figure 110: Full Merger Cost per Residence ............................................................................................ 206 Figure 111: Emergency Operations Cascade of Events ........................................................................ 234 Figure 112: Sample Schedule for Staffing a PAU Engine ........................................................................ 237 Figure 113: Sample Training Grounds ...................................................................................................... 276 Figure 114: Impact from Apparatus Differences ....................................................................................... 282 Figure 115: Comparison of Features MDT vs. MDC ............................................................................. 286 Figure 116: Proposed Relocation Site for Fire Station No. 73 .................................................................. 321 Figure 117: Potential Sites of a Joint Fire Station ..................................................................................... 324 Figure 118: Future Fire Station Location Travel Time Coverage.............................................................. 325 Figure 119: KCFD #18/NKFR Administrative Consolidation Organizational Chart (Conceptual) ............. 332 Figure 120: Cost Allocation by Service Area ............................................................................................ 348 Figure 121: Cost Allocation by Assessed Value ....................................................................................... 349 Figure 122: Cost Allocation by Resource Deployment ............................................................................. 350 Figure 123: Cost Allocation by Service Demand, 2010 ............................................................................ 351 Figure 124: Cost Allocation by Population ................................................................................................ 352 Figure 125: Summary of Cost Allocation Factors by Percentage 2009 ................................................. 355 Figure 126: Multiple Variable No. 1, Allocation and Cost Apportionment ................................................. 355 Figure 127: Multiple Variable No. 2, Allocation and Cost Apportionment ................................................. 355 Figure 128: Multiple Variable No. 3, Allocation and Cost Apportionment ................................................. 356
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Appendix B: Summary Table of Organizational Kudos

Kudos: Management of both agencies make firefighter training and safety a high priority. ........ 60 Kudos: Both agencies have made an effective commitment to public education activities. ........ 66 Kudos: CENCOM has developed a long-range plan that is routinely updated by the communications centers strategic advisory board. ................................................................... 69 Kudos: CENCOM has installed equipment necessary to handle upgrades of the telephone system. ..................................................................................................................................... 69 Kudos: CENCOM plans include the capacity and capability for expansion of its functions and operations. ................................................................................................................................ 70 Kudos: Both agencies have established an effective system of EMS program management and oversight. .................................................................................................................................. 75 Kudos: The maintenance, upkeep, cleanliness, and organization of fire apparatus is a positive reflection of the organizational culture of both fire departments. ................................................ 82 Kudos: KCFD #18s fleet maintenance facility operations have been recognized and received awards for begin totally green. ................................................................................................ 82 Kudos: NKFRs fleet maintenance program has developed a unique model in providing mobile maintenance service. This serves both the District and some surrounding contracts agencies with an economical method of remote delivery of vehicle service. ............................................. 82
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Appendix C: Summary of Recommended Actions (Current Conditions)

Both Agencies: Consider setting regular meeting dates on the same cycle to facilitate joint meetings without calling for a special meeting .......................................................................... 18 KCFD #18: Reduce fire chief performance evaluations to written form ...................................... 18 KCFD #18: Establish rules & regulations................................................................................... 18 KCFD #18: Develop schedule for review and revision to ensure conformity with legal/organizational changes ..................................................................................................... 18 KCFD #18: Review the merit of having on-line access to financial reporting ............................. 19 NKFR: Consider posting board minutes on website for better transparency to constituency ..... 20 Both Agencies: Consider a joint committee to review/ update job descriptions together, aligning functions where possible, and facilitating future integration ....................................................... 20 Both Agencies: Consider pooling reserve ambulances between the agencies, potentially reducing the need for one reserve (maintenance record verification of reliability) ...................... 21 NKFR: Evaluate need for four motor pool vehicles, verify reliability through maintenance records21 Both Agencies: Consider conducting an informal re-rate analysis to determine whether a Class 4 is possible for both agencies .................................................................................................. 22 KCFD #18: Consider expanding the administrative and support volunteer program .................. 22 Both Agencies: Consider obtaining property value from county assessor on line, add contents estimate for total value of property exposed to fire .................................................................... 24 Both Agencies: Consider amending NFIRS report with insurance information once claim is settled ....................................................................................................................................... 24 Both Agencies: Adopt organizational guiding principles or values for all personnel ................... 27 Both Agencies: Establish a synchronous five-year strategic planning cycle for both agencies .. 27 KCFD #18: Establish an SOG during the revision that establishes a review/revise interval ....... 28 KCFD #18: Consider adding a regular electronic internal department newsletter distributed to all personnel. ................................................................................................................................. 29 NKFR: Consider face-to-face crew meetings ............................................................................ 29 KCFD #18: Consider clarifying communication path via chain of command .............................. 30 Both Agencies: Consider joint citizen advisory committee in this feasibility effort ...................... 30 KCFD #18: Establish a written citizen complaint process .......................................................... 30 NKFR: Establish a written budget process ................................................................................ 33 Both Agencies: Consider establishing a centralized warehouse, staffed by an inventory control specialist who orders, receives and delivers supplies for both agencies.................................... 35 NKFR: Establish performance measures and service level objectives compliant with RCW 52.3336 KCFD #18: Consider vacancies as opportunities to buffer against lay-offs or strategic investment opportunities in partnership with NKFR ................................................................... 37 KCFD #18: Evaluate the NKFR model for cost efficiencies. Also, consider self-insurance for all District needs, including employee health benefits through a third party program ..................... 39
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Both Agencies: Review EMS billing rate annually and make adjustments as necessary. Seek to equalize billing rate schedules .................................................................................................. 42 KCFD #18: During revision, consider aligning District policies and personnel policies with NKFR where appropriate ..................................................................................................................... 45 KCFD #18: Incorporate personnel policy manual familiarization into new hire training .............. 45 NKFR: Consider participation in a LOSAP ................................................................................ 49 Both Agencies: Seek to provide medical examinations for all personnel that are compliant with NFPA Standard 1582 ................................................................................................................ 50 KCFD #18: Establish a program of periodic competency testing of firefighting skills ................. 51 KCFD #18: Establish a program of annual physical competency testing ................................... 51 Both Agencies: Seek to provide annual medical examinations for all personnel that are compliant with NFPA Standard 1582......................................................................................... 51 Both Agencies: Conduct safety committee meetings on a monthly basis .................................. 51 Both Agencies: Establish tracking of volunteer turnout time ...................................................... 56 NKFR: Complete and adopt standards of cover or comply with RCW 52.33 at a minimum ....... 56 Both Agencies: Develop a multi-year plan for training ............................................................... 59 NKFR: If the Navy facilities are comparable to North Bend, consider using Naval facilities for its close proximity .......................................................................................................................... 60 KCFD #18: Establish a procedure to accurately record training hours. Consider using NKFR tracking system for training records........................................................................................... 61 Both Agencies: Consider regularly scheduled night drills for consistency .................................. 61 NKFR: Consider 360-degree feedback for annual performance evaluation for all personnel ..... 61 KCFD #18: Develop a comprehensive training records management system (RMS) by company to pinpoint companies needing improvement ............................................................................ 61 Both Agencies: Offer a comprehensive officer development program to develop future leadership ................................................................................................................................. 62 Both Agencies: Consider shared staff support for overarching tasks common to both agencies 62 KCFD #18: Consider a fully integrated data base (RMS) for all training records........................ 62 KCFD #18: Provide annual inspections of all existing occupancies ........................................... 64 Both Agencies: Establish a self-inspection program for low risk occupancies ........................... 64 Both Agencies: Assure that all commercial occupancies receive annual inspections either by agency staff or KCFMO inspectors............................................................................................ 64 KCFD #18: Make use of fire occurrence data in prevention planning efforts ............................. 67 Both Agencies: Evaluate methods to strengthen and improve water system program .............. 72 Both Agencies: Consider active involvement in hydrant placement due to impact on WSRB Class Rating ............................................................................................................................. 73 Both Agencies: Consider active involvement in hydrant placement due to impact on WSRB Class Rating ............................................................................................................................. 73
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KCFD #18: Consider active involvement in fire flow calculations for target response patterns .. 73 Both Agencies: Consider Adopt-a-Hydrant campaign where nearby residents purchase reflective markers and epoxy for installation by road crews ....................................................... 73 Both Agencies: Consider certifying battalion chiefs as Haz-Mat incident commanders (IC). Technicians manage entry, evaluation, ICs manage scene ....................................................... 78 Both Agencies: Develop a comprehensive CIP (Capital Improvement Plan) including policies and procedures. Complete development of the AMP (Asset Management Plan)....................... 81 Both agencies: Complete development of the AMP (Asset Management Plan) ......................... 81 Both Agencies: Develop a CIP (Capital Improvement Plan) including policies and procedures. Complete development of the AMP (Asset Management Plan) ................................................. 82 Both Agencies: Develop a CIP (Capital Improvement Plan) including policies and procedures. Complete development of the AMP (Asset Management Plan) ................................................. 83 Both Agencies: Complete development of the AMP (Asset Management Plan). Aggregate like item purchases with a total value of an established capital value threshold and include in an asset management plan ............................................................................................................ 83
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Appendix D: Cost Allocation

Local governments provide services (such as fire protection) based on an assumption of public interest rather than the need for profitability, as in the private sector. Consequently, the limiting market forces of supply, demand, and price are not typically found at the forefront of policy decisions concerning fire protection. While elected officials may spend significant time and effort debating the overall cost of fire protection, it is very unusual that the point of service price is considered. In this light, it is not surprising that local governments find it difficult to establish a fair market price for essential services when entering into partnerships. Usually when a single local government provides fire protection to its residents, that community bears the entire financial burden because of the presumption that everyone benefits from the service. In the case of municipalities, the full cost of the service may not be easily determined because administrative and support expenses are frequently borne by other municipal departments and not documented in the fire departments budget. It all works because
individual users of the service are not charged; therefore, the real price of that service is never an issue. On the other hand, when two or more communities share in providing fire protection, elected officials must assure that each community assumes only its fair pro rata share of the cost, thereby fulfilling an obligation to act as stewards to the best interest of their respective constituencies. However, while purely economic considerations may suggest that those who benefit from a service should pay in direct proportion to the level of benefit (the benefits received principle), social and political concerns may also enter into the price-setting process. For example, ESCI completed an evaluation of the fire protection system comprised of a city and a fire protection district located in eastern Oregon.59 The fire district provides no emergency service of its own, contracting instead with the city fire department for all operations within the districts territory. The fire district compensates the city for a percentage of the fire department budget (minus certain budgetary transfers and any funds not spent during the previous year) equivalent to a rolling five-year average of district alarms compared to city alarms. Cost Allocation Options What follows is a listing of system variables that can be used (singly or in combination) to allocate cost between allied fire departments. Each option is summarized by the concept, its
59
City of John Day and John Day Rural Fire Protection District, Oregon.
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advantages and disadvantages, and other factors that should be considered. Regardless of the option(s) chosen to share the cost of fire protection, the resulting intergovernmental service agreement needs to address the issues of full cost versus marginal cost and should be clear about the inclusion of administrative or overhead cost. In addition, service contracts often must reconcile the exchange of in-kind services between the participating agencies. Area The cost of emergency service can be apportioned based on the geographic area served relative to the whole. For instance, the jurisdictional boundaries of the KCFD #18 and NKFR represent about 99.0 square miles. The following figure displays the services area in square miles and the percentage for each jurisdiction.
Figure 119: Cost Allocation by Service Area Service Area in Percentage Jurisdiction Square Miles of Total Kitsap County FD #18 54.00 54.545% North Kitsap FR 45.00 45.455% Total 99.00 100.000%
Apportionment founded on service area alone may work best in areas that are geographically and developmentally homogeneous. Pro: Service area is easily calculable from a variety of sources. Size of service area is generally remains constant with few if any changes. Con: Service area does not necessarily equate to greater risk or to greater workload. Consider: Service area may be combined with other variables (such as assessed value and number of emergencies) to express a compound variable (such as assessed value per square mile and emergencies per square mile).
Taxable Assessed Value The taxable assessed value (TAV) of agencies is established by tax assessors under laws of the state. Usually, higher-valued structures and complexes carry a greater risk to the
community from loss by fire; consequently, taxable assessed value also tends to approximate the property at risk within an area. Fire departments are charged with being sufficiently
prepared to prevent property loss by fire. Therefore, the cost of contracted fire protection may be apportioned relative to the assessed value of the allied jurisdictions. Typically, TAV is used
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to apportion cost of shared service by applying the percentage of each partners TAV to the whole. Figure 120 illustrates the allocation of cost by the assessed value of the two agencies.
Figure 120: Cost Allocation by Assessed Value Assessed Percentage Jurisdiction Value of Total Kitsap County FD #18 $3,303,787,872 54.629% North Kitsap FR 2,743,847,365 45.371% Total $6,047,635,237 100.000%
Pro: TAV is updated regularly, helping to assure that adjustments for changes relative to new construction, annexation, and inflation are included. Because a third party (the assessor) establishes TAV in accordance with state law, it is generally viewed as an impartial and fair measurement for cost apportionment. Fire protection is typically considered a property-related service; thus, apportionment tied directly to property value has merit. Con: TAV may not reflect the property risk associated with certain exempt property, such as schools, universities, government facilities, churches, and institutions. TAV may not always represent the life risk of certain properties, such as nursing homes or places of assembly, which might dictate more significant use of resources. In addition, some large facilities may seek economic development incentives through TAV exemptions or reductions. Adjustments may need to be made to TAV if such large tracts of exempt property in one jurisdiction cause an imbalance in the calculation. Last, TAV typically includes the value of land, which is not usually at risk of loss by fire. Depending on the local circumstance, however, this may not be a significant factor if the relative proportion of land value to structure value is reasonably uniform over the whole of the territory. Consider: Discounted TAV depending on the class of property (commercial or residential), which may skew the overall proportion of those properties compared to risk. As an additional consideration, assessors usually establish the AV in accord with the property tax cycle, which can lag somewhat behind the budget cycle of local agencies and the time when service contracts are reviewed or negotiated. Deployment The cost for service is based on the cost of meeting specific deployment goals. Deployment goals may be tied to the physical location of fire stations, equipment, and personnel (strategic deployment) or by stating the desired outcome of deployment (standards of cover). For
example, a strategic goal could specify the location of two stations, two engines, and four onduty firefighters. A standard of cover might state the desired outcome of the same deployed resources as two engine companies and four emergency workers on the scene of all structure fire emergencies within eight minutes 85 percent of the time. While both strategic and outcome goals can be used effectively to assist in allocating cost, ESCI views outcome goals to be more dynamically linked to the quality of service and therefore preferable to strategic goals. This
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alternative is highly variable due to the independent desires of each community in regard to outcome goals. A weighted scoring system uses a critical task analysis. This type of scoring system for each agency allows the ranking of each area based on the assigned risk as well as the apparatus, manpower, and Needed Fire Flow (NFF). The following figure (Figure 121) illustrates the
allocation of cost by the number of resources deployed to serve each jurisdiction. It includes fire stations and frontline engines and ladder trucks.
Figure 121: Cost Allocation by Resource Deployment Engines Percentage Jurisdiction Facilities Total and Aerials of Total Kitsap County FD #18 6 4 10 52.632% North Kitsap FR 5 4 9 47.368% Total 11 8 19 100.000%
Pro: Deployment is intuitively linked to the level of service. The outcome of deployment based on a standard of cover can be monitored continuously to assure compliance. Such deployment can be adjusted if standards are not met. This assures the continuous quality of emergency response throughout the life of a service contract. Con: Strategic deployment may not equate to better service because such goals are prone to manipulation wherein resources may be sited more for political reasons and less for quality of service reasons. Outcome goals require common reporting points and the automatic time capture of dispatch and response activities to assure accuracy. Record keeping needs to be meticulous to assure the accurate interpretation of emergency response outcomes. Consider: Contracts for deployment-based fire protection should address the inclusion of administrative or overhead cost, as well as capital asset cost, depreciation, rent, and liability insurance.
Service Demand Service demand may be used as an expression of the workload of a fire department or geographical area. Cost allocation based on emergencies would consider the total emergency response of the service area and apportion system cost relative to the percentage of emergencies occurring in the jurisdictions.
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North Kitsap Fire & Rescue Kitsap County Fire District #18, WA Feasibility Study Figure 122: Cost Allocation by Service Demand, 2010 Service Percentage Jurisdiction Demand of Total Kitsap County FD #18 3,178 56.168% North Kitsap FR 2,480 43.832% Total 5,658 100.000%
With 54.63 percent of the taxable assessed valuation, KCFD #18 represented 56.17 percent of the calls for service in 2010 This statistic could be misleading as a portion of the service demand for KCFD #18 occurred outside of its jurisdictional boundaries. Pro: Easily expressed and understood. Changes in the workload over the long term tend to mirror the amount of human activity (such as commerce, transportation, and recreation) in the corresponding area. Con: Emergency response fluctuates from year to year depending on environmental and other factors not directly related to risk, which can cause dependent allocation to fluctuate as well. Further, the number of alarms may not be representative of actual workload; for example, one large emergency event requiring many emergency workers and lasting many hours or days versus another response lasting only minutes and resulting in no actual work. Last, emergency response is open to (intentional and/or unintentional) manipulation by selectively downgrading minor responses, by responding off the air, or by the use of mutual aid. Unintentional skewing of response is most often found in fire systems where dispatch and radio procedures are imprecisely followed. Further, service demand does not follow a predetermined ratio to land area. As such, the service demand per square mile ratios may produce large variations. Consider: Using a rolling average of alarms over several years can help to suppress the normal tendency for the year-to-year fluctuation of emergencies. Combining the number of emergencies with the number of emergency units and/or personnel required may help to align alarms with actual workload more closely; however, doing so adds to the complexity of documentation. In a similar manner (and if accurate documentation is maintained), the agencies could consider using the total time required on emergencies as an aid to establish the comparative workload represented by each jurisdictional area.
Fixed Rate The use of fixed fees or rates (such as a percentage) to calculate allocation of shared cost is more common between municipalities and independent fire districts. Occasionally, fixed-rate contracts involve the exchange of in-kind services. Pro: The concept is simple and straightforward. A menu of service options and the fees corresponding to those alternatives can be developed by the contractor agency. The contracting agencies can tailor a desired level of service based on risk and community expectation by choosing from the various menu items.
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Con: Partnering communities may change (i.e., population, jobs, commerce, structures, and risk) at divergent rates, causing disconnection between the rationales used to establish the fee and the benefit received. A fixed-rate contract may be difficult to coherently link to the services provided and/or received, which can lead to a lack of support by officials and the community. Consider: Partnering agencies need to assure that provision for rate adjustment is included in the agreement, including inflation. The agreement should address the issue of full cost versus marginal cost. The inclusion or non-inclusion of administrative and/or overhead cost also requires statement, as does the reconciliation of in-kind service exchange. The ownership and/or depreciation of capital assets should be addressed, as should rent, utilities, and liability insurance. In the case of a fixed fee, the agreement should establish how the participation of other public agencies in the partnership would affect cost.
Population Payment for service can be based on the proportion of residential population to a given service area. The following figure lists the population by jurisdiction and the percentage of the total number of individuals living in each service area.
Figure 123: Cost Allocation by Population Population Percentage Jurisdiction Served of Total Kitsap County FD #18 23,500 55.164% North Kitsap FR 19,100 44.836% Total 42,600 100.000%
Pro: Residential population is frequently used by governmental agencies to measure and evaluate programs. The U.S. Census Bureau maintains an easily accessible database of the population and demographics of cities, counties, and states. Estimates of population are updated regularly. Laypersons intuitively equate residential population to the workload of fire departments.60 Con: While census tracts for cities frequently follow municipal boundaries, this is not the case with fire district boundaries, forcing extrapolated estimates, which can fail to take into account pockets of concentrated population inside or outside of the fire district boundaries. Residential population does not include the daily and seasonal movement of a transient population caused by commerce, industry, transport, and recreation. Depending on the local situation, the transients coming in (or going out) of an area can be very significant, which can tend to skew community risk. Residential population does not statistically link with emergency workload; rather, human activities tend to be the linchpin that connects people to requests for emergency assistance.
60
The average citizen may easily associate population to emergency workload, but no statistical link can be made between the two.
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For example, if residential population actually determined emergency workload, emergencies would peak when population was highest within a geographic area. However, in many communities where the residential population is highest from about midnight to about 6:00 AM (bedroom communities), that time is exactly when the demand for emergency response is lowest. It turns out that emergency demand is highest when people are involved in the activities of daily lifetraveling, working, shopping, and recreating. Often, the persons involved in such activities do not reside in the same area. Additionally, simply relying on population will not account for the effects that socioeconomic conditions have on emergency service response activity. Consider: The residential population of unincorporated areas can sometimes be estimated by using the GIS mapping capability now maintained by most counties and municipalities. By counting the residential households within the area in question, then applying demographic estimates of persons per household, it may be possible to reach a relatively accurate estimate of population within the area in question. Alternately, residential population can be estimated by using information obtainable from some public utility districts by tallying residential electrical meters within a geographic area and then multiplying by the persons per household.
Kitsap County FD #18 and North Kitsap FR areas experience a daily or seasonal influx of people who are not counted as residential population. This transient population can be
estimated by referring to traffic counts, jobs data, hotel/motel occupancy rates, and, in some cases, state ferry statistics. Residential population plus transient population is referred to as functional population. Where functional population is significantly different from residential
population, service agreements based on population should be adjusted to account for it. The study area is unique in that considerable transient population may be present depending on the season or routinely during the daily commute. Basing cost allocation only on residential population may seem to disregard the effect of these transient populations on the regional emergency services system, but ESCI believes that the nature of transient populations and the character of the region result in an equivalent on the tow fire districts. Residents and visitors to the area tend to move in and through both study jurisdictions. Some travel is for work and daily activities, while other is seasonal; such as destination travel related the Clearwater Casino Resort and the waterfront in Poulsbo. ESCI believes that the fact that transient populations shift in this manner tends to negate most disproportionate impacts on the districts, creating instead a background effect that need not be considered for the purpose of apportionment. Multiple-Variable Allocation Frequently, even though everyone may agree on the benefit of allied fire protection, officials find it difficult to reach an accord on the cost. The differences between community demographics
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and/or development, along with changes that occur within the system over the long term, can cause the perception of winners and losers. This can be especially prevalent when a single variable is used to apportion cost. A service contract based on more than one allocation
determinate may help solve these problems. For example, ESCI is familiar with a 9-1-1 dispatch center in Oregon that serves more than 20 fire agencies of all sizes and typeslarge, small, metropolitan, and rural; on-duty career and on-call volunteer. agency. Base charge 10 percent of the dispatch centers budget is divided equally between all agencies. This charge is based on the acknowledgement that each agency is equally responsible to maintain the dispatch center on continuous stand-by, irrespective of size of the agency or its use of the dispatch services. Usage charge 45 percent of the dispatch centers budget is divided between the agencies in accordance with the number of emergency dispatches made for each during the preceding year. The member agencies determined that this charge fairly assesses the overall use of the 9-1-1 dispatch system by each. Risk charge 45 percent of the dispatch centers budget is divided between the agencies in accordance with the relative percentage of each departments AV. The member agencies determined that this charge is relational to each departments community risk and that it is closely associated with the overall ability to pay. Here, the service contract includes three determinates applied to each
By apportioning the dispatch center cost over three variables, the members of this alliance have been able to reach a long-term agreement that fits the diversity of the partnering agencies. Other partnerships in other geographical areas may require a different solution involving different combinations of variables. In summary, we restate something said earlier: When
choosing a cost-sharing strategy for partnered fire protection, it is important to keep any apportionment formula fair, simple, and intuitively logical to assure that the public accepts and supports the endeavor. Allocation Summary The information provided previously serves as a detail of cost allocation factors. Given the lengthy discussion provided with each option, ESCI has compiled the information into a summary table illustrating the distribution of factors between the two Districts. These examples are for illustrative purposes and may be used as part of a check for fairness of assigning the cost for service.
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North Kitsap Fire & Rescue Kitsap County Fire District #18, WA Feasibility Study Figure 124: Summary of Cost Allocation Factors by Percentage, 2009 Assessed Resource Service Jurisdiction Area Population Value Deployment Demand Kitsap County FD #18 54.545% 54.629% 52.632% 56.168% 55.164% North Kitsap FR 45.455% 45.371% 47.368% 43.832% 44.836% Total 100.000% 100.000% 100.000% 100.000% 100.000%
ESCI extrapolated the cost of emergency services using the fiscal year 2010 2011 budgeted amounts using a multiple variable formula. This was applied to the cost allocation factors derived from 2010 data. The dollar amount used in the calculations was the operational
budgets of the two fire districts $13,025,835. In addition to the individual funding alternatives, several multiple-variable scenarios are also provided as examples of how this type of methodology can be modified and applied. The following figures show three multiple cost allocations by variable, the weighted apportionment by percentage, and cost to each agency. The first (Figure 125) allocates costs on the basis of taxable assessed value (50 percent) and service demand (50 percent).
Figure 125: Multiple Variable No. 1, Allocation and Cost Apportionment Agency Allocation Cost Taxable Assessed Value 50% Kitsap County FD #18 55.399% $7,216,161 Service Demand 50% North Kitsap FR 44.601% 5,809,674 Total 100% 100.000% $13,025,835
The second (Figure 126) allocates costs on the basis of taxable assessed value (70 percent) and service demand (30 percent).
Figure 126: Multiple Variable No. 2, Allocation and Cost Apportionment Agency Allocation Cost Taxable Assessed Value 70% Kitsap County FD #18 55.091% 7,176,072 Service Demand 30% North Kitsap FR 44.909% 5,849,763 Total 100% 100.00% $13,025,835
The third example (Figure 127) allocates the cost based on taxable assessed value (50 percent), deployment (25 percent), and service demand (25 percent).
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North Kitsap Fire & Rescue Kitsap County Fire District #18, WA Feasibility Study Figure 127: Multiple Variable No. 3, Allocation and Cost Apportionment Agency Allocation Cost Taxable Assessed Value 50% Kitsap County FD #18 54.515% $7,100,991 Deployment 25% North Kitsap FR 45.485% 5,924,844 Service Demand 25% Total 100% 100.00% $13,025,835
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Appendix E: Summary Table of Stakeholder Interviews

Stakeholder 1. Internal, North Kitsap FR 1. Tim Gates 2. Stephen Neupert 3. Fernando Espinosa 4. Todd Bailey 5. Tom Curly 6. Roy Thornton 7. Patrick Pearson 8. Wil Stewart 9. Dan Smith, 10. Scott Trueblood, 11. NKFR B Shift 12. Rick Lagrandeur 13. Ken Lemay 14. Wayne Kier 15. Sean Moran 16. Gillian Gregory 17. Steve Engle 18. Cindy Moran 19. Tyler Williams 20. Kris Osera 21. Alex Hickey 22. Dean Schuster 23. Michele Laboda 2. Internal, Kitsap County Fire District #18 24. Dan Olson 25. Chris Morrison 26. Kathy Narte 27. Lise Alkire 28. Bruce Peterson 29. Jody Matson 30. Brett Annear 31. Jim Ingalls 32. Martin Sullivan 33. Darryl Milton 34. Conrad Green 35. David Ellingson 36. Jeff Russell 37. Jim Gillard 38. Craig Becker 39. Trevor Holmberg 40. Kurt Kretch 41. A shift representatives 3. External, North Kitsap FR & Kitsap County Fire District #18 42. Wayne George 43. Russell Steele Date 3/20/11 3/20/11 3/20/11 3/20/11 3/20/11 3/20/11 3/20/11 3/20/11 3/21/11 3/23/11 3/21/11 3/21/11 3/21/11 3/21/11 3/21/11 3/21/11 3/21/11 3/21/11 3-21-11 3-21-11 3-21-11 3-21-11 3/21/11 Affiliation or Group Chaplain Commissioner, Chair Commissioner Lieutenant Volunteer Representative Volunteer Representative Commissioner Commissioner Fire Chief IAFF Local #2819 B Shift Battalion Chief Battalion Chief Assistant Chief Battalion Chief Commissioner Medical Safety Officer Human Resources B Shift B Shift B Shift B Shift Fire Prevention
3/21/11 3/21/11 3/21/11 3/21/11 3/21/11 3/21/11 3/22/11 3/22/11 3/22/11 3/22/11 3/22/11 3/22/11 3/23/11 3/23/11 3/23/11 3/23/11 3/22/11 3/23/11
Fire Chief Battalion Chief Office Assistant Administrative Services Manager Battalion Chief Community Relations Fleet Maintenance Commissioner Commissioner Commissioner Commissioner Commissioner Battalion Chief Battalion Chief IAFF Local #2819 IAFF Local #2819 KCFD #18 Volunteer Battalion Chief A Shift
3/20/11 3/20/11
Suquamish Tribe Council Member Clearwater Casino Manager
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North Kitsap Fire & Rescue Kitsap County Fire District #18, WA Feasibility Study Stakeholder 44. Louann Bean 45. 46. 47. 48. 49. 50. 51. 52. 53. 54. Tom Curley Chief Lovato Gordon Pomeroy Richard Kurton Dr. Bennett Jerry Cooper Becky Erickson Ed Wilkerson Hank Teran Dave Lynam Date 3/21/11 3/21/11 3/22/11 3/20/11 3/22/11 3/22/11 3/22/11 3/22/11 3/22/11 3/22/11 3/23/11 Affiliation or Group Director of Emergency Department Harrison Medical Center GIS Assistant Chief, Central Kitsap F&R Fire Chief, East Jefferson Fire & Rescue Director, CENCOM 9-1-1 Center Medical Program Director Fire Marshal, city of Poulsbo Mayor, city of Poulsbo Fire Chief, Port Ludlow F&R Fire Chief, Bainbridge Island Fire Dept. Kitsap County Fire Marshal
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Corporate Offices 25200 SW Parkway Avenue, Suite 3 Wilsonville, Oregon 97070 800.757.3724
Eastern Region Office 249 Normandy Road Mooresville, North Carolina 28117 704.660.8027
National Capital Region Office 4025 Fair Ridge Drive Fairfax, Virginia 22033 703.273.0911
Copyright 2011. Emergency Services Consulting International. All Rights Reserved.

North Kitsap-Poulsbo Efficiency Study

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Opportunities for Collaborative Efforts Feasibility Study

Emergency Services Consulting International

Opportunities for Collaborative Efforts Feasibility Study

Jack W. Snook President, COO

performance and fiscal analysis.

negative ending fund balance of approximately $500,000 in 2016.

Purpose and Methodology Strengths, Weaknesses, Opportunities, and Challenges (SWOC)

Second Critical Issue: Cultural Differences

Third Critical Issue: Collective Bargaining Issues

Evaluation of Current Conditions

i) head of governing body ii) key employee of governing body

Code of conduct and table of offenses only

i) process for revision provided B. Legal counsel maintained

No Yes, Brian Snure

Survey Component i) consultation available ii) labor counsel C. Financial controls

i) financial control system

ii) financial review

iv) frequency of review

Yes, electronic and in a binder

B. Descriptions of all jobs maintained

Yes, in 2005 (need to be updated)

Yes, non-uniform might need review

vi) command vii) boat

1 (4 staff & support vehicles) 1 (17 foot SafeBoat)

Survey Component viii) tenders ix) brush

5 (6 for unhydranted areas)

i) administrative and support personnel, full-time

ii) operational personnel, fulltime iii) operational personnel, volunteer

33 18 14 to 16 interns and 2 tender operators

i) levy rate (FY 2007 through 2010)

i) value of property exposed to fire, 2010

Training & Safety

Budget & Finance

C itize ns o f K itsa p Co u n ty Fire D istrict 18

D e p u ty C h ief O p era tio ns/E MS

A d m in stra tive S e rvice s M gr

Tra inin g /Sa fe ty

Fle e t/Fa cilities

Survey Table 2: Management Components

On server, hard copy in office n/a Outdated, being revised

E-mail, weekly flash (electronic newsletter), Twitter, Facebook

Seek input, empower as appropriate

Decisions at the lowest appropriate level See above

ii) credit card controls

C. Budget development process

ii) administration iii) management iv) staff

D. Budget adoption process

ii) financial review F. Basis of accounting G. Purchasing i) purchasing policy

ii) credit cards

vi) central supplies/logistics

A. Service level defined

Yes, Policy #1004

B. Operating budgetary funds i) organized by program or category ii) sub accounts

ii) capital outlay

Survey Component H. District overhead

i) reserve fund contributions

vi) medical and dental insurance

Survey Component 13. Debt

ii) workers compensation claims 14. Revenue A. Tax levy

B. Service contracts C. Grants i) recent awards ii) county grants

ii) outstanding applications

i) foundation ii) volunteer association E. Fees for service