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06- City of Bozeman Fire Protection Master Plan
Fire Protection Fire Protection Fire Protection Fire Protection Fire Protection Fire Protection Fire Protection Fire Protection Master PlanMaster PlanMaster PlanMaster PlanMaster PlanMaster PlanMaster PlanMaster Plan August 2006August 2006August 2006August 2006 Emergency Services Consulting inc. City of Bozeman City of Bozeman City of Bozeman City of Bozeman City of Bozeman City of Bozeman City of Bozeman City of Bozeman BBBBBBBBoooooooozzzzzzzzeeeeeeeemmmmmmmmaaaaaaaannnnnnnn FFFFFFFFiiiiiiiirrrrrrrreeeeeeee DDDDDDDDeeeeeeeeppppppppaaaaaaaarrrrrrrrttttttttmmmmmmmmeeeeeeeennnnnnnntttttttt FFFFFFFFiiiiiiiirrrrrrrreeeeeeee PPPPPPPPrrrrrrrrooooooootttttttteeeeeeeeccccccccttttttttiiiiiiiioooooooonnnnnnnn MMMMMMMMaaaaaaaasssssssstttttttteeeeeeeerrrrrrrr PPPPPPPPllllllllaaaaaaaannnnnnnn 22222222000000000000000066666666 Prepared with the assistance of: Bruce Caldwell Phil Kouwe Martin Goughnour Robert McNally 25200 SW Parkway Ave. Suite 3 Wilsonville, OR 97070 503-570-7778 800-757-3724 fax: 503-570-0522 www.esci.us Copyright 2006, emergency Services consulting inc. All rights reserved. No part of this publication may be reproduced, stored in a retrieval system or transmitted in any form or by any means, electronic, mechanical, photocopy, recording or otherwise without the expressed written permission of Emergency Services Consulting inc. Bozeman Fire Department - Montana 2006 – Fire Protection Master Plan i Table of Contents Section I – City of Bozeman Current System Analysis ...................................................................1 Objective One - Organizational Governance..................................................................................................1 Responsibilities and Lines of Authority............................................................................................................3 Foundational Policy.........................................................................................................................................4 Organizational Structure..................................................................................................................................5 Maintenance of History....................................................................................................................................7 Fiscal Management.........................................................................................................................................9 Objective Two – Organizational Management..............................................................................................11 Mission, Vision, Strategic Planning, Goals, and Objectives..........................................................................11 Availability of SOGs, Rules, Regulations, and Policies.................................................................................12 Critical Issues................................................................................................................................................13 Internal and External Communications..........................................................................................................14 Document Control and Security.....................................................................................................................15 Reporting and Records..................................................................................................................................16 Objective Three – Planning for Fire and Emergency Medical Protection..................................................19 Organizational Planning Processes...............................................................................................................19 Tactical Planning...........................................................................................................................................20 Operational Planning.....................................................................................................................................21 Master Planning.............................................................................................................................................22 External Customer Planning Involvement.....................................................................................................22 Internal Customer Planning Involvement.......................................................................................................23 Objective Four – Risk Management...............................................................................................................25 Liability Issues...............................................................................................................................................26 Health and Safety..........................................................................................................................................26 Objective Five – Human Resource Management..........................................................................................29 Personnel Policies and Rules........................................................................................................................29 Compensation and Benefits..........................................................................................................................29 Personnel Records........................................................................................................................................30 Disciplinary Process......................................................................................................................................31 Counseling Services......................................................................................................................................31 Application and Recruitment Process............................................................................................................32 Ongoing Competency Evaluation..................................................................................................................33 Objective Six - Staffing....................................................................................................................................35 Administration and Support Staff...................................................................................................................35 Emergency Services Staff.............................................................................................................................37 Assignment of Responsibilities......................................................................................................................39 Objective Seven – Capital Assets and Resources.......................................................................................41 Facilities.........................................................................................................................................................41 Apparatus......................................................................................................................................................46 Support and Small Equipment.......................................................................................................................46 Maintenance..................................................................................................................................................47 Objective Eight – Service Delivery.................................................................................................................51 Notification System (Dispatch)......................................................................................................................51 Facility Deployment.......................................................................................................................................52 Resource Deployment...................................................................................................................................62 Emergency Response Activity.......................................................................................................................67 Response Time Performance Objectives......................................................................................................71 Emergency Medical Event Sequence............................................................................................................75 People, Tools and Time.................................................................................................................................76 Response Performance Objectives...............................................................................................................79 Bozeman FD Response Performance Objective...........................................................................................81 Recorded Response Time Performance and Outcomes...............................................................................81 Bozeman Fire Department - Montana 2006 – Fire Protection Master Plan ii Resource Workload.......................................................................................................................................84 Incident Staffing.............................................................................................................................................86 Mutual and Automatic Aid..............................................................................................................................89 Hazardous Materials Response.....................................................................................................................89 Homeland Security Integration......................................................................................................................90 Insurance Services Office..............................................................................................................................91 National Benchmarks and Comparables.......................................................................................................92 Objective Nine – Training................................................................................................................................95 General Training Competencies....................................................................................................................95 Training Facilities...........................................................................................................................................95 Training Staff..................................................................................................................................................96 Entry Level Training.......................................................................................................................................96 Ongoing Skills Maintenance Training............................................................................................................97 Career Development Training........................................................................................................................97 Training Program Planning............................................................................................................................98 Competency Based Training.........................................................................................................................98 Training Records and Reports.......................................................................................................................99 Objective Ten – Fire Prevention...................................................................................................................101 Background..................................................................................................................................................101 New Construction Review............................................................................................................................101 Fire Safety Inspections................................................................................................................................102 Life and Fire Safety Education.....................................................................................................................103 Fire Investigation..........................................................................................................................................103 Incident Information Analysis.......................................................................................................................104 Bozeman FD: Summary Table Organizational Recommendations...........................................................105 Section II- System Demand Projections.......................................................................................109 Community Growth Potential.......................................................................................................................109 Current Population Information....................................................................................................................109 Census-based Growth Projections..............................................................................................................113 Development-based Growth Projections.....................................................................................................113 Service Demand Projections.......................................................................................................................115 Community Risk Analysis.............................................................................................................................117 Section III- Future Delivery System Models.................................................................................121 Introduction..................................................................................................................................................121 Future Deployment Recommendations.......................................................................................................123 Facilities.......................................................................................................................................................126 Short Term: One to 18 months....................................................................................................................127 Middle Term: Eighteen Months to Five Years.............................................................................................128 Long Term: Greater than Five-Years...........................................................................................................131 Apparatus.....................................................................................................................................................134 Staffing.........................................................................................................................................................137 Projecting System Cost................................................................................................................................143 Cost Projections...........................................................................................................................................146 Appendices....................................................................................................................................149 Appendix: A – Response Time Thresholds and Triggers ..........................................................................149 Introduction..................................................................................................................................................149 Station Siting................................................................................................................................................149 Response Failure.........................................................................................................................................152 When a New Station is Needed...................................................................................................................153 Appendix: B – Montana Comparables.........................................................................................................157 Appendix: C - Maps........................................................................................................................................163 Bozeman Fire Department - Montana 2006 – Fire Protection Master Plan iii Table of Figures Figure 1: Comparison of Resources per 1,000 Population.......................................................................................................2 Figure 2: City of Bozeman Fire Department Organizational Chart............................................................................................6 Figure 3: Bozeman FD Insurance Coverage Summary..........................................................................................................26 Figure 4: All Personnel in Administrative/Support Personnel Functions.................................................................................36 Figure 5: Bozeman FD Administrative Support Personnel......................................................................................................36 Figure 6: Field Operations Staffing Summary.........................................................................................................................37 Figure 7: Comparison of Firefighters per 1,000 Population.....................................................................................................38 Figure 8: National Average of Firefighters On-Duty................................................................................................................39 Figure 9: Bozeman FD Facility and Condition Summary ........................................................................................................42 Figure 10: Bozeman FD Fire Station 1....................................................................................................................................43 Figure 11: Bozeman FD Fire Station 2....................................................................................................................................44 Figure 12: Bozeman FD Training Facilities.............................................................................................................................45 Figure 13: Bozeman FD Summary of Fire Apparatus Condition.............................................................................................46 Figure 14: Bozeman FD Extractor...........................................................................................................................................49 Figure 15: Bozeman FD Fire Service Area Map.....................................................................................................................53 Figure 16: Bozeman FD Current Deployment Travel Time Footprint......................................................................................55 Figure 17: Bozeman FD Current Deployment – Four-Minute Travel Polygons.......................................................................57 Figure 18: Bozeman FD Service Demand..............................................................................................................................59 Figure 19: Bozeman FD Structural Fire Incident Locations.....................................................................................................61 Figure 20: Hydrants Located Within 1.5 mile Polygons...........................................................................................................63 Figure 21: ISO 1.5 Mile Response Areas for Engine Companies...........................................................................................64 Figure 22: Bozeman FD Aerial Ladder Coverage at 2.5 Miles................................................................................................66 Figure 23: Bozeman FD Comparison of Incident Rates by Population...................................................................................67 Figure 24: Bozeman FD Fire per 1,000 Population.................................................................................................................68 Figure 25: Bozeman FD Workload History by Incident Type..................................................................................................69 Figure 26: Bozeman FD Workload Trend by Incident Type....................................................................................................69 Figure 27: Bozeman FD Workload by Time of Day.................................................................................................................70 Figure 28: Bozeman FD Workload by Day of Week................................................................................................................71 Figure 29: Bozeman FD Workload by Month of Year..............................................................................................................71 Figure 30: Fire Growth versus Reflex Time.............................................................................................................................73 Figure 31: National Data - Fire Growth to Life and Property Loss...........................................................................................75 Figure 32: Cardiac Arrest Event Sequence.............................................................................................................................76 Figure 33: Minimum Firefighting Personnel Based Upon Level of Risk..................................................................................78 Figure 34: Bozeman FD Average Response Time Analysis by Hour of Day..........................................................................82 Figure 35: Bozeman FD 90th Percentile Response Time Analysis by Hour of Day.................................................................83 Figure 36: Bozeman FD – Response Time Analysis by Apparatus.........................................................................................84 Figure 37: Total Response by Unit - 2003 and 2004...............................................................................................................85 Figure 38: Unit Hour Utilization for Bozeman FD – 2004........................................................................................................86 Figure 39: Resource and Staffing Availability Table................................................................................................................87 Figure 40: Bozeman FD Standard Response by Type of Call.................................................................................................87 Figure 41: Incident Staffing Analysis – 2004...........................................................................................................................88 Figure 42: Table of Benchmark Comparisons.........................................................................................................................93 Figure 43: Training Building and Prop.....................................................................................................................................96 Figure 44: Inspection Frequency Recommendation Table....................................................................................................102 Figure 45: City of Bozeman Population Growth History........................................................................................................109 Figure 46: City of Bozeman Population by Age.....................................................................................................................110 Figure 47: Selected Demographic Changes 1990 – 2000 ....................................................................................................110 Figure 48: City of Bozeman Housing by Occupancy.............................................................................................................111 Figure 49: Selected Housing Changes 1990 – 2000.............................................................................................................111 Figure 50: City of Bozeman Population Density....................................................................................................................112 Figure 51: Census Based Population Forecast.....................................................................................................................113 Bozeman Fire Department - Montana 2006 – Fire Protection Master Plan iv Figure 52: Development Based Population Forecast............................................................................................................114 Figure 53: Workload Projection by Type and Year...............................................................................................................115 Figure 54: Community Risk Assessment..............................................................................................................................118 Figure 55: Bozeman Future Land Use..................................................................................................................................124 Figure 56: Projected Service Demand..................................................................................................................................125 Figure 57: Proposed Fire Station 4.......................................................................................................................................128 Figure 58: Proposed Fire Station 3.......................................................................................................................................129 Figure 59: Proposed Fire Station 5.......................................................................................................................................130 Figure 60: Proposed Fire Station 6.......................................................................................................................................131 Figure 61: Proposed Fire Station 7.......................................................................................................................................133 Figure 62: Proposed Facility Deployment Strategy...............................................................................................................134 Figure 63: Truck Company Response Area Capability.........................................................................................................136 Figure 64: Bozeman FD Short Term Staffing Assumption....................................................................................................138 Figure 65: Bozeman FD Firefighters Compared to Residents, Short Term 2007.................................................................138 Figure 66: Comparison of Bozeman FD Minimum On-Duty Firefighters 2005 – 2007..........................................................139 Figure 67: Bozeman FD Middle Term Staffing Assumption..................................................................................................140 Figure 68: Bozeman FD Long Term Staffing Strategy..........................................................................................................141 Figure 69: Year 2025 Operational Staffing Assumption........................................................................................................141 Figure 70: Bozeman FD Year 2025 Administrative Staffing Assumption..............................................................................142 Figure 71: CPI-U Trend, 1996 – 2005...................................................................................................................................144 Figure 72: City of Bozeman Forecast Market Value.............................................................................................................145 Figure 73: City of Bozeman - Forecast Taxable Value .........................................................................................................146 Figure 74: Cost Projections for Fire Stations and Personnel................................................................................................148 Figure 75: Criterion Table to Determine When a New Station is Needed.............................................................................156 Figure 76: Population Served by Agency..............................................................................................................................157 Figure 77: Area Served by Fire Department.........................................................................................................................158 Figure 78: Montana Communities Comparison – Resources per 1,000 Population.............................................................159 Figure 79: Comparison of Firefighters per 1,000 population.................................................................................................160 Figure 80: Comparison of Minimum On – Duty Staffing per 1,000 Population......................................................................161 Figure 81: Total Calls for Service – per 1,000 Population.....................................................................................................161 Figure 82: Response Time Standard....................................................................................................................................162 Bozeman Fire Department - Montana 2006 – Fire Protection Master Plan 1 Section I – City of Bozeman Current System Analysis Objective One - Organizational Governance The Bozeman Fire Department is a department of the City of Bozeman, Montana, a governmental entity organized under the laws of the State of Montana. The City of Bozeman operates with a city commission/city manager structure of government with an elected municipal judge. These three bodies form a legislative, executive, and judicial branch of government. The city is granted authority to levy taxes for the purposes of providing fire protection and emergency medical services. Appropriate records of all municipal meetings are maintained by the city in accordance with the laws of the state governing various types of public meetings and decisions involving public funds. Minutes of the governing body’s activities are recorded and approved. They are made available to the community on the city’s website. As provided in the Montana Code Annotated, the City of Bozeman provides fire protection through the Division of Fire, Building, and Emergency Management, organized under the Department of Public Safety.1 The fire department is managed by a professional fire chief as specified in municipal code. As established by State law for Class One cities (those with a population over 10,000, which are required by law to have a paid fire department), the department has a paid career staff. Current population served is approximately 33,000, an increase from the 2000 U.S. Census figure of 27,509, in an area of approximately 17.25 square miles. The community is home to Montana State University, primarily a technical institution specializing in agriculture, engineering, and applied sciences with a student population of approximately 12,000. The department’s jurisdiction encompasses all areas within the city limits of Bozeman. The response area includes the economic core of Gallatin County; a mix of urban and suburban areas of the City of Bozeman and by contract to the Story Mill Fire District. Fire service is provided from two facilities within the city. The fire department maintains a fleet of vehicles which includes two front line (type 1) engines, with one engine at each station, one reserve (type 1) engine, one wildland firefighting vehicle (type 6), one ladder truck, as well as six staff vehicles that are all capable of operating as command units. Other specialty equipment includes a regional 1 Montana Code Annotated, (7-33-4101.Fire department authorized and required). In every city and town of this state there must be a fire department… Bozeman Fire Department - Montana 2006 – Fire Protection Master Plan 2 hazardous material response trailer and tow vehicle. The department provides first response emergency medical service (including Advanced Life Support as staffing allows) but does not provide medical transport.2 Staffing of the department involves 32 individuals (31.5 FTE), including 24 operational personnel, that deliver fire, medical, and emergency services to meet the needs of the community. The department is managed by a fire chief, and a deputy fire chief/fire marshal, with two (1.5 FTE) administrative support personnel. The department is served by a training officer, an emergency manager, and a firefighter/paramedic assigned to operational shift work that functions as the EMS coordinator.3 Fire prevention is led by the deputy fire chief/fire marshal who is assisted by two fire and life safety specialists. The following Figure 1 provides an overview of the Bozeman Fire Department’s fire suppression resources and compares these with the median rate of resource allocation in other communities of similar size within the western region of the United States. Figure 1: Comparison of Resources per 1,000 Population 0.093 0.061 0.114 0.091 0.021 0.030 0.00 0.02 0.04 0.06 0.08 0.10 0.12 StationsPumpersAerials Comparison of Resources per 1,000 Population Regional Median Bozeman FD 2005 2 The Bozeman Fire Department provides ALS (Advanced Life Support) capability, but due to a limited number of paramedics, service is on an inconsistent basis. 3 A firefighter/paramedic assigned to shift work serves as the EMS coordinator in addition to regular operational duties. Bozeman Fire Department - Montana 2006 – Fire Protection Master Plan 3 The Bozeman Fire Department has a below median allocation of stations when compared to the typical deployment for communities of its population.4 The department has a slightly below average number of pumpers (including the one reserve engine) and near median for aerial devices (trucks) when compared to a ratio to population served. The department also operates and maintains vehicles needed to fight wildland fires. The department provides a variety of services to the community including fire suppression, emergency medical assistance, victim rescue, technician-level hazardous material response, fire code enforcement, wildland fire response, trench, high angle, low angle, and confined space rescue. To a limited level the department provides public safety education and conducts fire and life safety inspections; primarily limited to new construction. The fire department operates a NHTSA (National Highway Traffic Safety Administration) child safety seat permanent check point. The Bozeman Fire Department is currently rated a Class 5 on the ISO (Insurance Services Offices) Community Fire Protection Rating system. The system is used to determine fire insurances rates that are applied to many structures. The department’s most recent ISO full survey was completed in September 1996 with the Class 5 rating applied on January 12, 2000. Responsibilities and Lines of Authority The City of Bozeman (city) is a municipal corporation, formed under the laws of the State of Montana, and is provided the authority to levy taxes for operating a fire protection system. As a Class One city with over 10,000 population, the city is required by state law to have a paid fire department. The city operates with a city commission/city manager form of government, as established by the city charter. The commission is provided with broad authority to govern the provision of fire protection and emergency services within the city including operating a fire protection system, appointing officers and members, purchasing land and equipment, entering into contracts, issuance of bonds, and levying of taxes. Commission terms are staggered, and elections are held every two years. The candidate who receives the most votes in an election becomes the Mayor during the last two years of his or her term. A city manager is hired by the city commission and acts as the administrative head of city government. He provides the commission with information needed to make informed policy decisions and is responsible for the efficient administration of all city departments, and carries out the day-to- 4 FEMA/NFPA, "A Needs Assessment of the U.S. Fire Service", FA-240/December 2002 Bozeman Fire Department - Montana 2006 – Fire Protection Master Plan 4 day management of municipal affairs. The city manager acts as the head of the Department of Public Safety. The roles and authorities of the commission, mayor, and the city manager are further clarified within city municipal code and written city policy documents; specifically local rules and regulations, which describe functions and tasks. The elected officials typically maintain strictly policy-level involvement, avoiding direct management and hands-on task assignment. The position of fire chief is hired by the city manager. The present chief, Chuck Winn, an “at-will employee,” does not have a personal services or employment contract, thus there is no fixed term to his fire chief position. Chief Winn has regular meetings with the city manager, and is provided with an annual performance evaluation. The chief’s authority is defined in both state law and municipal code. Foundational Policy Organizations that operate efficiently are typically governed by clear policies that lay the foundation for effective organizational culture. These policies set the boundaries for both expected and acceptable behavior, while not discouraging creativity and self-motivation. A comprehensive set of department operating rules and guidelines should contain at least two primary sections: administrative rules and standard operating guidelines. The following format is suggested: Administrative Rules and Regulations – This section should contain all of the rules and regulations that all personnel in the organization are required to comply with at all times. Administrative rules and regulations, by definition, require certain actions or behaviors in all situations. The city commission should adopt or approve the administrative rules since the chief is also subject to them. However, the officials should delegate authority to the chief for the enforcement of all administrative rules and regulations for department personnel. Administrative rules and regulations should govern all members of the department. Where rules and regulations, by their nature, require different applications or provisions for different classifications of members, these differences should be clearly indicated and explained in writing. Specifically, administrative rules and regulations should contain sections which address: • Public records access and retention • Contracting and purchasing authority • Safety and loss prevention • Respiratory protection program Bozeman Fire Department - Montana 2006 – Fire Protection Master Plan 5 • Hazard communication program • Harassment and discrimination • Personnel appointment and promotion • Disciplinary and grievance procedures • Uniforms and personal appearance • Other personnel management issues Standard Operating Guidelines and/or Policies (SOGs) – This section should contain “street-level” operational standards of practice for personnel of the department. SOGs are different from administrative rules and regulations in that variances are allowed in unique or unusual circumstances where strict application of the SOG would be less effective. The document should provide for a program of regular, systematic updating to assure that it remains current, practical, and relevant. SOGs should be developed, approved, and enforced under the direction of the fire chief. The Bozeman Fire Department functions under a set of municipal rules and regulations and department detailed SOGs and SOPs. In addition, the department has a collective bargaining agreement with IAFF (International Association of Firefighters) Local No. 613 that applies to employment and includes all employees in the fire department with the exception of the fire chief, the deputy fire chief/fire marshal, and administrative support personnel. Processes are in place for review of rules and regulations, SOGs, and SOPs as needed with input and appraisal from the office of the city attorney. Organizational Structure A well-designed organizational structure should reflect the efficient assignment of responsibility and authority, allowing the organization to accomplish effectiveness by maximizing distribution of workload. The lines on an organizational chart simply clarify accountability, coordination, and supervision. Thorough job descriptions should provide the details of each position and ensure that each individual’s specific role is clear and centered on the overall mission of the organization. No provisions are in place for a planned review of fire department job descriptions. They are described as being “in need of updating.” The review of job descriptions should be given a high priority of importance and completed in a timely manner. The city human resources department should be involved in the process to assure consistency with city practices. Participation by human resources will insure that job classifications are properly revised to adequately describe the primary functions and activities, critical tasks, levels of supervision and accountability, as well as reasonable Bozeman Fire Department - Montana 2006 – Fire Protection Master Plan 6 qualifications of each class or position within the organization. Involvement of Human Resources staff will also assure that the fire department positions are properly revised to conform to city standards, not only those of the department. Presently in place is a collective bargaining agreement which was initiated on July 1, 2004. The agreement has a two-year term. The agreement, among other things, clarifies salaries, benefits, and many of the working conditions under which the employees in specific classifications operate. The collective bargaining agreement covers all personnel of the department with exception of the chief, the deputy fire chief/fire marshal, and administrative support personnel. A review of the department’s organizational chart shows that it is organized in a typical top-down hierarchy. The chain of command is well defined with responsibilities and authority distributed in a reasonable fashion. Figure 2: City of Bozeman Fire Department Organizational Chart Bozeman Fire Department - Montana 2006 – Fire Protection Master Plan 7 The fire department structure provides for a deputy fire chief/fire marshal who manages the building division. The fire chief has responsibility for fire department operations and supervision of the 6 operational captains. In addition to operations direct reports to the fire chief include the deputy fire chief/fire marshal, training officer, manager of disaster and emergency services (DES), administrative support personnel, and a firefighter/paramedic assigned to operational shift work that functions as the EMS coordinator.5 The span of control exercised by the fire chief is considered to be beyond the number of subordinates that can be effectively managed by one supervisor. Span of control, also known as span of management, is a human resources management term that refers to the number of subordinates a supervisor can effectively manage. Developed in the United Kingdom in 1922 by Sir Ian Hamilton, the concept of span of control evolved from the assumption that managers have finite amounts of time, energy, and attention to devote to their jobs. In his research of British military leaders, Hamilton found that leaders could not effectively control more than three to six people directly. This generally accepted "rule of thumb" for span of control is still considered relevant today and applies not only to the military, but correspondingly to the fire service. It is important to note that all managers experience a decrease in effectiveness as their span of control exceeds the optimal level. In other words, the limitations implied by span of control are not short-comings of certain individual managers but rather of managers in general. In addition, it is important to understand that span of control refers only to direct reports, rather than to an entire corporate hierarchy (all personnel in the fire department). "Extending span of control beyond the recommended limits engenders poor morale, hinders effective decision making, and may cause loss of the agility and flexibility that give many entrepreneurial firms their edge."6 Maintenance of History The Bozeman Fire Department began in 1884. This is just one year (1883) after the Northern Pacific Railway finished its pathway to Bozeman through what is now known as the Bozeman Pass. Further evidence of Bozeman's heritage can be found throughout the city with historical districts and more than forty individual properties listed on the National Register of Historic Places.7 The Bozeman Fire 5 A firefighter/paramedic assigned to shift work serves as the EMS coordinator in addition to regular operational duties. 6 Hendricks, Mark. "Span Control” Entrepreneur. January 2001 7 National Register of Historic Places, National Register Information System (NRIS), 2006 Bozeman Fire Department - Montana 2006 – Fire Protection Master Plan 8 Department does not keep an official historical record, unofficial only. Documentation would provide a record of the significant role that the fire department has played in the development of the community and so that members can understand and appreciate the long history of service by the department. A well maintained historical record, serves as a valuable tool for planning and decision-making. It allows for quick recollection of how the department has adapted to changes in the community. It also provides valuable historical data to agencies, such as the Insurance Services Office, for evaluation purposes. And perhaps of most importance, it provides for permanent memory of the people who have contributed to the success of the department in its service to the community. A well produced annual report can also serve to satisfy this need. An annual report is a great communication tool to share the efforts and activities of the department with the public. An annual fire department report is not produced. Such reports include activities and trends and can be used to describe the successes and challenges of the department. We recommend that Bozeman Fire Department consider placing more emphasis on developing an annual report in a format that can be used by the department for multiple purposes. Taking the opportunity to develop narratives describing how the department has evolved to address twenty-first century firefighting needs in a developing urban setting (while surrounded by potential for wildland fires) should be a priority of the department. Through this information, the department will be able to demonstrate to the community its budgetary needs. Securing financing for operations, as well as capital needs, will be a challenge as financial resources continue to be scarce and the subject of competition by other city departments with competing needs. To be successful in obtaining adequate funding, the department must develop data and display it in a convincing manner so that decision-makers as well as city administration and financial staff fully understand and appreciate the needs of the fire department. Merely saying that a need exists because the city is growing is not enough in this day and age. Sophisticated data gathering and display in professionally written reports is the key to success. The department should devote resources to preparing annual reports as well as strategic plans for the department. We recommend at a minimum that an annual report be developed that contains at least the following: • Brief history of the department, • Summary of events and activities during the report year, • Description of major incidents handled by the department, Bozeman Fire Department - Montana 2006 – Fire Protection Master Plan 9 • Description of new or improved services and programs, • List of people who served with the department during the year, • Awards received by the department or individuals, • Financial summary including revenues and expenditures, grants, etc., • Statistical analysis, with trends, of key community service level indicators, • A list of the major challenges facing the department and the activities, programs and policies in place to address the challenges, and • Major capital needs of the department, how they will address the needs of the community, and the funding challenges that exist which prevent the community from acquiring the capital facilities and equipment that the community needs. The annual report should be printed and distributed to the community, made available on the city website, and at such places such as the two fire stations, the local chamber of commerce, and the public library. The initial distribution of the annual report should take place during the same time period each year, with the distribution a time of celebration. Media coverage of the chief delivering the report to the city commission, followed by a series of presentations to the local chamber of commerce and service clubs, will help to inform the public of the excellent service delivered every day by the department. Fiscal Management Overview The Bozeman Fire Department operates under the aegis of the City of Bozeman in accordance with Montana Code Annotated (MCA) Title 7, Chapter 33 Part 41 - Municipal Fire Departments. Fire department financial oversight flows from the five-member city commission, with the commission establishing budget policies and guidelines through the finance department and the city manager. The commission supervises the city manager in managing the daily operations of the city. It also levies taxes, adopts the city's yearly budget, and appoints citizens to advisory boards. Financial control within Bozeman city government is the responsibility of the finance department. The finance department manages all city revenues, funds, the city budget, and the city’s insurance programs. The city maintains a Capital Improvement Program (CIP) for all capital purchases or projects with a single acquisition cost of $5,000 (or greater) and a useable life of five years or more. Such projects are classified as major improvements rather than routine maintenance or equipment replacement. The projects are reviewed and prioritized for the city commission. When funds are Bozeman Fire Department - Montana 2006 – Fire Protection Master Plan 10 available, the commission makes the final decision on which projects are funded and implemented. The CIP represents a five-year moving window (currently 2004 through 2008) that is updated annually. Each year, the city conducts an audit and publishes a Comprehensive Annual Financial Report (CAFR). The report is prepared using financial reporting requirements in accordance with the Governmental Accounting Standards Board (GASB) Statement 34, Basic Financial Statements and Management’s Discussion and Analysis for State and Local Governments. The City of Bozeman was winner of both the Distinguished Budget Presentation Award (Budget Awards Program) the Certificate of Excellence in Financial Reporting for its comprehensive financial report (CAFR) presented by the Government Finance Officers Association (GFOA) for the year 2004. The Certificate Program, which was established in 1945, is designed to recognize and encourage excellence in financial reporting by state and local governments.8 The Budget Awards Program was designed to encourage governments to prepare budget documents of the highest quality was first established in 1984. 8 Government Finance Officers Association, Certificate of Achievement for Excellence in Financial Reporting (CAFR Program), Award Winners For Fiscal Years Ended In 2004 Bozeman Fire Department - Montana 2006 – Fire Protection Master Plan 11 Objective Two – Organizational Management As with most emergency services agencies, the Bozeman Fire Department faces challenges to organizational growth and management. Fortunately, the department has seen stable leadership at the upper management level with the position of fire chief, deputy fire chief/fire marshal, and other key positions held by long time department employees. The continuing growth of the community through new construction, renewal, and annexation to the city will only increase the workload of the department. This situation will likely continue to exceed the upper limits of management’s ability to direct daily operations while strategizing and working on long- term issues. Further areas of concern include; adequate personnel for consistent and adequate response, maintenance of core skills and competencies, and the on-going recruitment of a qualified future workforce. This section will examine the department’s efforts in this area and preparation for the future health of the organization. Mission, Vision, Strategic Planning, Goals, and Objectives The department has a mission statement which should be revised to reflect the present direction of the department. The adopted mission statement “is to minimize the loss of life, injury, or property through basic emergency medical care and fire rescue services.” The mission statement is displayed on the city’s website but is not displayed in fire department facilities. While the mission statement has been adopted, it has not been institutionalized by the organization and requires updating and revision. Accompanying the review of the mission statement, the department should develop a set of core values. Whereas a mission statement specifies what you do, for whom, core values speak to how you intend to behave, on a day-to-day basis, while fulfilling your mission. Core values describe what the department deems to be important and worth protecting, and to inspire people throughout the organization to behave in ways that reflect those values. The Bozeman 2020 Community Plan has identified a vision for the future of the City of Bozeman. The citywide effort provides the global view of the future for Bozeman goals, objectives, and policies. At the fire department level, strategic planning has not been conducted at this point. A strategic planning effort within the fire department can involve members at various levels within the organization addressing critical issues and developing goals for their specific divisions. Experience Bozeman Fire Department - Montana 2006 – Fire Protection Master Plan 12 has shown that such planning efforts within a fire department lead to improved morale, increased commitment, and a stronger sense of responsibility for organizational problem-solving. We recommend that the department strive to have active involvement of the entire department in this strategic planning effort. The process of strategic planning involves clarifying an organization’s mission, articulating its vision for the future, and specifying the values within which it will conduct itself. A strategic plan should be designed as a living document. Availability of SOGs, Rules, Regulations, and Policies As discussed previously in this report, departmental management policies exist. Regardless of the quality or condition of such policies and guidelines, their availability and familiarity to workers is critical. The department established goals and objectives are integrated in the city’s annual budget document each year during the budget process. The stated department goals are informal and are characterized as anecdotal. However informal the information, it does permit the city commission an opportunity to review budget requests in light of the goals. Copies of the rules, regulations, and SOGs are available to employees. No regular schedule has been implemented for updates and reviews and now occurs only as needed. Prior to completion of document revisions addressing personnel issues, the city’s human resource department reviews them for compliance with legal regulations and for alignment to city policy. The department should undertake a process that affords for development of new and at minimum an annual review of department rules, regulations, and SOGs. Department members indicate that rules, regulations, and SOGs are available in the workplace and that regular recurrence training occurs. This practice is encouraged as easy access to such policies is important for consistent application. By making the policies easily accessible, management reinforces the importance of the policies in the organization. It is important to also have a distribution system in place to record and confirm employee receipt of revisions or additions to the documents. The department is assisted by the city attorney’s office which keeps the department advised of changes in state and federal law, as well as pertinent lawsuits in Montana. The Bozeman 2020 Community Plan for growth and land use includes the fire department’s goal for response time. The plan (Adopted by Bozeman City Commission Resolution 3486) covers emergency services, with the department emphasizing the response plan goal and the need for adequate facilities and access to an adequate water supply for fire suppression. Bozeman Fire Department - Montana 2006 – Fire Protection Master Plan 13 “Growth in the size of the City has had significant impacts on the Fire Department’s ability to adequately provide fire protection for all areas of the City. The Fire Department has established a six-minute response time (two minutes preparation and four minutes of travel) as a level of service (LOS) standard. Based on a six-minute response time, service areas for the two existing fire stations can be established (see Figure 11- 1). According to this figure, many parts of the City are already outside of the optimal six-minute response time service areas. The City must start planning and budgeting for the future to site a new station and/or relocate existing stations. If the City is not able to provide acceptable levels of protection by the siting of new fire stations, other means of protecting life and structures, such as the installation of sprinkler systems in all new construction, may need to be considered.”9 Critical Issues It is extremely important that there be a clear understanding of critical issues facing the department. Without such an understanding, department leadership cannot be prepared to face these issues. In addition, the enunciation of critical issues to employees and members of the public increases their awareness of the organization’s priorities, and assists them in becoming focused on solutions. A further exploration of critical issues should be completed during strategic planning processes, but for now, the following issues should be given serious consideration for inclusion in the final list. These are items that have been identified by officers of the department as issues with significant potential for impacting the success of the organization and the effectiveness of its service. In the Bozeman Fire Department, they are: • Demands placed on the fire department by growth of the city. • To raise the level of proficiency of operational personnel in ICS (specifically strategies and tactics) • Need for a common vision for the fire department (internal and external) The department has stated that service delivery and maintaining adequate response times, while growth pressures exist, are critical and are being addressed. The department is concerned about response times in both existing and to newly annexed areas. Funding and infrastructure needs of the annexed areas are also of major concern. Department challenges for the future also concern growth and the ability to adequately plan for the future. Dealing with growth, while upgrading existing levels of service to existing residents, has been 9 Bozeman 2020 Community Plan, City of Bozeman, Montana Bozeman Fire Department - Montana 2006 – Fire Protection Master Plan 14 identified as the top challenge. Another challenge for the department is developing and maintaining relationships with other fire agencies. Presently, the Gallatin County Fire Council has taken a leadership role and created a mutual aid system. The mutual aid system in Gallatin County operates with area emergency service providers coordinating a systemic response. Consideration for adopting a “boundary drop” or automatic aid agreements should become an element of the county system.10 A third challenge for the department is the lack of a sufficient number of administrative staff to direct daily activities and “look within and outside the fire department and have the time to plan.” Internal and External Communications Quality communication is an achievable goal for any organization, but one that always seems to be most elusive. Quality communication is extremely important. To its credit, Bozeman Fire Department has established communication processes that provide opportunities for department personnel to be heard and be involved. However, as in most organizations, there continues to be room for improvement with internal communications. Staff meetings involving day staff are consistently held (weekly), early on Monday mornings. Minutes of the meetings are kept so that those unable to attend are kept up-to-date on significant issues. E- mails are used in place of memos to distribute items of importance to those within the organization. The chief conducts monthly officers meetings as a forum for sharing important topical information. Minutes of the monthly officers meeting are emailed to all department members. Additionally, as a positive measure in continuing the current constructive department relations, monthly labor management meetings are held. The chief also employs an open door policy. In fact, this practice by the fire chief is observed by the other administrative personnel and described in very positive terms. Communication utilizing bulletin boards occurs with organized, up to date bulletin boards at both stations. The department relies on e-mail for the exchange of routine information and all employees have individual e-mail accounts. They can log on to computers to access e-mail—computers for this purpose are located in both stations and at administration. Mailboxes for station/shift, supervisors, 10 See a discussion on mutual and automatic aid in Mutual and Automatic Aid on page 89 Bozeman Fire Department - Montana 2006 – Fire Protection Master Plan 15 and staff are used to exchange important hard-copy documents and to prevent missing or misplaced documents. Voicemail is a useful means to augment other modes of information exchange. Administration and management personnel are assigned individual voicemail accounts, permitting other department members, and external customers to efficiently and quickly leave messages. External communications and regular processes to communicate with the public are important for the department. While the department does not publish a community newsletter the fire department makes use of the city’s electronic version of the Neighborhood News as a way to distribute fire department and prevention related information to the community. The Bozeman FD could use neighborhood/community newspapers and newsletters as a way to distribute fire department and prevention related information. Community surveys are a good tool to solicit customer feedback on service priorities, quality issues, or performance efforts. While the fire department has not used surveys, the city recently completed the National Citizens Survey. Under the area of Quality of Public Safety Services, fire services rated a 73 percent and ambulance/emergency medical services a 68 percent and fire prevention and education 59 percent. This is “similar to the norm” for fire and ambulance/emergency medical services and “below the norm” for fire prevention and education compared to similar jurisdictions.11 The department does not have a standing advisory committee made up of citizens; however, the department solicits and receives community involvement through active participation in neighborhood organizations. The department uses the opportunity to get information out, and to seek input, through a variety of standing groups. In the past, the department has been available to speak at civic groups or at neighborhood associations or forums where the department has attended and attempted to spread the word about the successes and challenges facing the department. There is no formalized complaint process available for citizens who have an issue with service delivered by the department. Complaints or issues received via the telephone are addressed by the fire chief or deputy fire chief using an internal complaint process. Document Control and Security Records management is an essential function to any organization. Many uses are made of written records; therefore, the integrity of all such documents must be protected. State law requires public 11 The National Citizen Survey, DRAFT Report of Normative, Comparisons, The City of Bozeman, Montana, 2005 Bozeman Fire Department - Montana 2006 – Fire Protection Master Plan 16 access to certain fire department documents and data. Clear written procedures are in place to provide for public records access through the appropriate department staff. Emergency response records and NFIRS reports are readily available for public inspection. File protection is in place. The department keeps fire call records and other files considered sensitive in secured files and locked cabinets with controlled limited access by administrative staff. While hard copy files are kept at the fire department administration office, official personnel records are kept at the city’s human resources office. Security of facilities is a major concern for all public agencies. The department considers its buildings to be “pretty secure.” The department uses keypad entry to all facilities. All internal department offices have the capacity to be locked. Department computers are programmed with password security limiting entry to sensitive files and software, providing an additional level of security and data integrity. Every staff member has his or her own password. Important computer files are backed-up to a secure data location on a regular and dependable basis. Capital inventory control is maintained adequately. One way of maintaining inventory is to go through a process of cataloging and labeling all capital. Presently, the department only places property identification labels on large capital items. The fire department should employ an asset security system to gain a firm control of its assets. This can be accomplished with an asset tagging system using numbers or bar codes. Monetary controls are also employed by the department. Use of petty cash is very limited and controlled at the department administration level by the fire chief and the administrative secretary. Credit card controls are in place, with only two credit cards issued. These cards are monitored closely by the city finance department. Citywide purchasing controls and policies are used for department purchases. Reporting and Records Records are computerized and kept on the RMS (records management system) Sun Pro©. Fire department computers use Windows XP as the operating system. The MS Office Suite of software programs is used almost exclusively for all other fire department computer operations. Bozeman Fire Department - Montana 2006 – Fire Protection Master Plan 17 Annual reports are not made to elected officials. However, material that would likely be part of an annual report is submitted as part of the annual budget. Of the required reports developed, incident reports are properly maintained internally by the department. The department though has not submitted NFIRS reports to the state in many years— but has resolved to begin forwarding the data again this year. Patient care reports are not public documents; these are maintained electronically. Hard copy exposure records are maintained in the individual employee’s personnel file in the Human Resources office. Before (and annually thereafter) a firefighter uses a self-contained breathing apparatus, they must be fit tested with the same make, model, style, and size of respirator that will be used. Bozeman FD completes this annual FIT testing in-house. Test result records are kept in hard copy form. SCBA (self contained breathing apparatus) testing, maintenance, and repairs is outsourced and performed by an outside vendor. Other required testing is completed regularly such as: hose, ladder, pump, breathing air, and vehicles. Bozeman Fire Department - Montana 2006 – Fire Protection Master Plan 19 Objective Three – Planning for Fire and Emergency Medical Protection Emergency services exist in a rapidly changing environment. Along with improvements in tools and methods used to provide service comes increased regulation of activities, new risks to protect, and other challenges that can quickly catch the unwary off guard. Only through continuous internal and external environmental awareness and periodic course corrections can an organization stay on the leading edge. The Bozeman Fire Department has recognized the need for a stronger planning effort by pursuing this evaluation, master plan, and considering a customer centered strategic plan. Organizational Planning Processes The department has not developed a strategic plan. Simply put, strategic planning determines where an organization is going, how it's going to get there, and how it'll know if it got there or not. Strategic planning is the preparation in advance for occurrences that will take place in the future. It requires both discipline and organization if the fire department wishes to be more effective at addressing the challenges that come with expanding responsibilities, both geographically and in terms of technology. In order to be truly effective, an emergency services agency must consider planning on three distinct levels: tactical planning, operational planning, and master planning. Tactical planning is practical preparedness of incident strategies for potential emergency incidents. Operational planning is preparation for the day-to-day activities of the agency and its integration into other regional or national response networks. Master planning (long range planning) is preparation for the future success and effectiveness of the agency in a changing environment. Presently there is active short term planning taking place within the department, through the annual budget process. This process is used to define the level of effort for the coming year. Day-to-day activity planning also occurs. But, truly long term planning has not, and is not being sufficiently emphasized. Creating a long term perspective is a priority of the chief, as evidenced by the level of commitment that he has made to the present project. Through this process, the capability to conduct qualitative and quantitative analysis of level or quality of service should be developed. Without a clear definition of a plan, it is difficult for policy makers and fire department managers to recognize when required and desired service levels are achieved by the department. Developing well defined performance objectives at the department level will allow the organization and policy makers to more readily identify and address future service delivery issues. Bozeman Fire Department - Montana 2006 – Fire Protection Master Plan 20 Tactical Planning It is critical that firefighters and command staff have comprehensive, accurate, and detailed information readily at hand to identify hazards and direct tactical operations when called to respond to an emergency. When called upon, firefighters often are making their first visit to the “work site.” This is also the point in time where the internal environment at the job site is at its worst. A lack of familiarity with the building can easily lead a firefighter to become disoriented or injured by an unfamiliar internal layout, or by equipment or other hazards that may be encountered. It is important that firefighters use built-in fire resistive features to assist in fire prevention. This can be done by carrying out building familiarization tours, developing pre-fire plans, and conducting tactical exercises, either on-site or by tabletop simulation. Establishing a comprehensive process to create and maintain pre-incident plans should become a priority for the department. A defined list of target hazards should be developed and aggressive effort taken to ensure response crews have copies of these plans available. Target hazards are defined by: • Buildings with large potential occupancy loads • Buildings with populations who are partially or completely non-ambulatory • Buildings of large size (greater than 12,000 square feet) • Buildings that contain process hazards; such as hazardous materials or equipment Pre-incident plans should be easy to use, quick reference tools for company officers and command staff. At a minimum, a pre-incident plan should include information such as: • Building construction • Occupant characteristics • Incorporated fire protection systems • Capabilities of public or industrial responding personnel • Water supply • Exposure factors • Facility layouts Bozeman Fire Department - Montana 2006 – Fire Protection Master Plan 21 NFPA 1620 provides excellent information on the development and use of pre-incident plans and should be used as a reference.12 Presently, the department is not engaged in pre-fire planning. Once pre-plans are established and/or developed, training should be provided to all personnel who may respond to an incident at these locations. In addition, copies of pre-incident plans and drawings should be available on each response vehicle of the department and those of mutual assistance apparatus. The Gallatin County DES (Disaster and Emergency Services) is under the management of the Bozeman Fire Department. For this reason the department plays a major role in planning and preparation for both natural and man-made disasters within the city and county. The department and more specifically the DES manager is actively involved in the AHAD (All Hazards All Disciplines) planning committee. Hazardous materials planning has been a department concern as it has significant transit issues with both major rail and trucking routes traversing the city. An owner or operator of any business that handles a hazardous material in specific quantities is required to develop and submit a plan. These location specific hazard plans are received by the department. The fire department is the regional provider of incident response and mitigation of hazardous materials incidents from Fire Station 1. Operational Planning Presently, the department carries out operational planning on a day-to-day basis. The chief has the support and respect of his albeit limited command staff. Indications are evident that this group works together well and has made strides to address some on-going issues, such as the need for master and strategic planning. Day-to-day operations of the department are managed well as confirmed by a positive work environment. Financial planning through the city budgeting process is a challenge for Bozeman Fire Department. Funding for the department’s operation comes from the city’s general fund, a fund that as in most cities is receiving increasing pressures while citizens balk at increased taxes. The department has suffered somewhat in recent years during budget discussions as it has not presented its proposals along with as sophisticated analysis and justification as others city departments. 12 NFPA 1620: Recommended Practice for Pre-Incident Planning, National Fire Protection Association, 2003 Bozeman Fire Department - Montana 2006 – Fire Protection Master Plan 22 The department utilizes a CIP (Capital Improvement Program) and develops an annual department budget. The department is authorized to internally administer its adopted budget (with finance department oversight) within the limits of individual line items; however, all purchasing must be in accordance with city purchasing policies and rules. Operational planning falls under the responsibility of the fire chief. The department is involved in regional incident control, as mandated by new federal guidelines for incident management systems; National Incident Management System (NIMS).13 The department has adopted these rules and completed training. However, as stated earlier in this report, there is a need “to raise the level of proficiency of operational personnel in ICS” (specifically strategies and tactics). The department is also involved in mutual aid planning, but there is a need for greater involvement. An aspect step within the county mutual aid system is that the agencies have specified that NIMS ICS will be used. Master Planning The master planning process is underway now, a recognized need for the city. Involvement of fire department staff, other city officials, the public, mutual aid providers, as well as key emergency services users in and around the community will be useful to make the master plan as reflective of the needs of the community as possible. External Customer Planning Involvement There is a need for an external customer planning group. The neighborhood groups are a good starting point, but external involvement should be expanded. Several other external customer groups that should be involved in planning include elected officials, civic organizations, business, and academic communities. For instance, the department could involve people who have a specific interest. A recent success story is the program that brought the fire department and Montana State University together. This 2005 IAFC award winning program for E-911 mapping effort is exemplary. The award recognized the department for “innovation and achievement in managing resources to reduce the loss of life and property from fire and other emergencies.” 13 Beginning in fiscal year 2007, which starts on Oct.1, 2006, all federal preparedness funding will be conditioned upon full compliance with the NIMS. Bozeman Fire Department - Montana 2006 – Fire Protection Master Plan 23 Internal Customer Planning Involvement The city commission has been involved with department planning through the annual budget process and development of the CIP. The department has involved employees in the present planning process in an effort to gain acceptance of the plan. Given the on-going cooperative relationship of management and union personnel in an open environment, it is expected that the input of the internal staff will prove valuable and receive full consideration by management. Bozeman Fire Department - Montana 2006 – Fire Protection Master Plan 25 Objective Four – Risk Management The responsibility of a manager to safeguard the assets of their organization is just as applicable to a fire department as to any business. Although their mission is to manage community risk, fire departments must also be concerned with risk to themselves. These risks can keep the organization from successfully carrying out its mission. The fire department is open to a variety of risk— similar to those faced by every private organization. There are interesting parallels between the fire department and private enterprise. A risk manager in the private sector tries to protect the assets of the enterprise and ensure that it can stay in business. Similarly, a fire department risk manager tries to protect public assets including personnel, facilities, equipment, and making sure the department can perform its mission. The fire department manager is also the custodian of public funds and assets. He or she must restrict any undesirable outcome that costs money, consumes public dollars, and reduces the capability to spend funds where they would do the most good. The City of Bozeman provides the risk management function for the fire department. The city risk management function documents the frequency and nature of injuries of department personnel. This information can allow targeted injury prevention and reduction education and workplace modifications to be developed and delivered as part of a loss reduction strategy. While there is often limited interaction between fire department management and the risk management function, the kind of regular interaction that typically occurs between risk managers and fire departments should include: • Periodic safety and risk inspections of fire department facilities • Review of fire department rules, regulations and procedures for potential risk exposure • Review of contracts and agreements entered into by the fire department for potential risk exposure • Training of fire officers on emerging risk such as national liability claim trends, injury prevention, etc • Periodic review, with the fire chief, of risk coverage Bozeman Fire Department - Montana 2006 – Fire Protection Master Plan 26 Liability Issues Nothing is accomplished without some element of risk. Since avoiding risk altogether is impossible, effective management of risk is necessary. This involves a variety of strategies including transferring risk to a third party via insurance. The following Insurance Declarations for the City of Bozeman and the fire department provided by the Montana Municipal Insurance Authority detail their risk transfer arrangement: Figure 3: Bozeman FD Insurance Coverage Summary City of Bozeman Montana Liability Insurance Coverage Amount General Liability Personal and ADV Injury Each Occurrence $750,000 $1,500,000 Medical Expense any one person $750,000 Automobile Liability Bodily Injury $750,000 Bodily Injury – per accident $1,500,000 Property Damage $1,500,000 Umbrella Excess Liability $10,000,000 Workers compensation and employer’s liability are listed at statutory limits. At the time of this report, Bozeman FD reports no open claims or pending legal action is in process against the department. The City of Bozeman HR maintains the official personnel files for employees including performance evaluations, training evaluations & documentation, disciplinary actions, and attendance. Formal documentation is required for disciplinary actions and terminations with city legal counsel reviewing all terminations prior to their issuance. Health and Safety Firefighting is a very stressful job that requires physically and mentally fit personnel to perform it safely and efficiently. Approximately 50 percent of firefighter fatalities come from heart attacks. Of those, 50 percent had pre-existing heart problems. It is clearly in the interest of a fire department and the individual firefighters to ensure programs are in place to periodically review and support high levels of medical and physical fitness. Bozeman Fire Department - Montana 2006 – Fire Protection Master Plan 27 Physical capacity testing cannot detect all potential limiting conditions of an individual’s health and fitness levels. A periodic medical examination is necessary. National standards for firefighters recommend a regular medical examination. The evaluation should include all the criteria included in the entry-level examination as well as periodic stress EKGs and blood toxicology screening. Communicable disease vaccinations can also be updated as needed during this process. Bozeman FD requires an entry-level medical physical evaluation with on-going medical examinations provided annually to all personnel. This medical evaluation is based on standards recommended in the National Fire Protection Association (NFPA) Standard 1582.14 Baselines are established at time of hire for titer level, vision, spirometry, and audiometry for new employees. An ongoing fitness program is an important aspect of an overall firefighter training and performance system. NFPA Standard 1583 provides excellent guidance to the development of a comprehensive fitness screening, improvement, and maintenance program.15 Another good source of guidance for ongoing fitness programs is the Wellness/Fitness Initiative jointly produced by the International Association of Fire Chiefs and the International Association of Firefighters. The fire department has used Montana State University in the past to assist in developing physical standards and requirements for firefighters. The city has demonstrated a proactive stance on fitness by offering employees membership to a local gym (small contribution from employee required). The Bozeman FD should continue with the work in progress on the established physical fitness program. Bozeman FD maintains an active Safety Committee. The stated function of the committee is to advise department management in areas related to health and safety in the workplace, and to recommend from time to time policy, procedures, and technology available to address a safe working environment. Fire department safety committees should be organized in compliance with NFPA Standard 1500 requirements. In addition to these requirements, the safety committee should, at a minimum, be involved in the following: • Reviewing safety complaints. 14 NFPA 1582: Standard on Comprehensive Occupational Medical Program for Fire Departments, National Fire Protection Association, 2003 15 NFPA 1583: Standard on Health-Related Fitness Programs for Fire Fighters, National Fire Protection Association, 2000 Bozeman Fire Department - Montana 2006 – Fire Protection Master Plan 28 • Conducting safety inspections and making corrective recommendations. • Review accidents and make recommendations to prevent future occurrences. • Develop safety procedures. • Research new equipment to improve safety. • Document and distribute minutes and maintain records of activities and findings. Membership is determined by individual interest, with appointments to the committee made by the fire chief. The Safety Committee meets as needed, but at least once a quarter. Proper documentation and records are kept for each meeting. Bozeman Fire Department - Montana 2006 – Fire Protection Master Plan 29 Objective Five – Human Resource Management An organization’s people are its most valuable resource. Careful attention must be paid to managing that resource to achieve maximum productivity for the organization and maximum satisfaction for the individual. A safe working environment, fair treatment, and recognition for a job well done are key components to job satisfaction. We note here that we observed a strong collaborative relationship among all members of the fire department. Personnel Policies and Rules It is important that members of the organization know to whom they should go when they have a problem, question, or issue related to their relationship to the department. In large companies, this function is typically handled by a human resource department. Staff within such a department handles questions, issues, and tasks related to appointment, benefits, performance, disciplines, promotion, or termination of employees. In similar fashion, the City of Bozeman has established a human resource department. The human resource contact becomes knowledgeable on issues unique to the fire department; a level of trust is developed prior to dealing with issues that are often of a personal nature. In addition, the fire chief, and deputy fire chief/fire marshal coordinate internal personnel issues and provide an added point of contact for members when it comes to questions regarding their employment. Written policies are in place that adequately describe the appointment of employees, the salary and benefits to which they are entitled, the conditions under which leave time may be utilized, systems to rate personnel performance, processes, and qualifications for promotion to higher positions, and systems for grievance. These policies are made available to each member upon hiring. Policies are reviewed and updated on a regular basis. Compensation and Benefits Bozeman Fire Department uses career staffing to carry out its functions. All administrative, support, and response personnel are paid professional staff. Typical forms of compensation are provided to the full-time staff members, including salary, comprehensive medical/dental insurance, disability insurance, life insurance, and retirement pension. For general purposes, a full-time 15-year firefighter first class, EMT – Intermediate will receive an Bozeman Fire Department - Montana 2006 – Fire Protection Master Plan 30 annual salary of approximately $48,972.00, plus overtime, along with a variety of compensated leave time. The purpose of this study was not to be a thorough compensation analysis. Thus, this evaluation did not attempt to perform in-depth comparisons with other agencies of similar type and makeup. However, it is important that, within the context of this emergency services evaluation, we determine whether the salary and benefit packages appear to be strength or weakness of the organization as it affects employee morale, loyalty, and turnover. Benefit packages for represented members were developed through years of bargaining and appear to be realistically competitive when compared to other similar organizations. Benefit packages for non represented members also appear to be reasonably competitive. Furthermore, it appears that the benefit packages provided by the city do not present a significant threat to the welfare of the organization. Personnel Records The maintenance of adequate and up-to-date personnel records is critical in every organization that depends on the effective performance of its people. The city human resources (HR) department maintains adequate written and computerized records of Bozeman FD personnel. Records kept at the fire department are of a non-personnel nature (such as training, equipment, and apparatus) in a combination of electronic and hard copy format. With few exceptions, most records are computerized. Computerized records are backed up on a regular basis. Original application materials are retained in order to create a full historical record of the member’s participation in the organization, from initial appointment to separation. Additional documents and records referring to assignments, promotions, commendations, discipline, and other personnel actions are kept organized and updated. Forms or other documentation pertaining to member performance are retained internally in the fire department and by the HR department for an appropriate period of time. Reports describing details of accidents or other injuries or injury-related incidents are maintained by the HR department for future reference and cumulative evaluation or analysis. Copies are also preserved at fire administration. A shift firefighter/paramedic EMS coordinator acts as the exposure control officer and assist the HR department in assuring that all records of health evaluations, exposures to hazardous substances or Bozeman Fire Department - Montana 2006 – Fire Protection Master Plan 31 contagious diseases, and other medical records are thorough and complete.16 All medical-related records, protected under federal privacy laws, are kept separate from routine personnel records and access is strictly limited. The personnel records of all personnel are maintained at the city HR office. Limited duplicate essential records are also maintained in the fire administration office. The responsibility for maintaining and updating these records is somewhat split between the HR manager and fire chief. Disciplinary Process A formal progressive disciplinary process for personnel is adequately identified in written policies and collective bargaining agreements. Corrective action practices are very straight forward and conform to accepted practices and State of Montana laws. Counseling Services Emergency services bring otherwise ordinary people into life and death situations that sometimes end very tragically. Even though department personnel are trained responders, they do not have an impregnable shield that prevents them from being affected by traumatic events. Critical incident stress is a very real condition that affects all emergency service workers to some degree or another. It is how emergency workers deal with that stress that makes the difference. The trigger for significant psychological trauma may be a single event, or a series of events compounding on each other. Fire and EMS departments have recognized the need to provide a support system for their personnel who are exposed to traumatic incidents. Bozeman FD can call upon the services of trained personnel to conduct critical incident stress debriefings and defusing through a community based program. Critical incident stress interventions by this group are short-term process only. Though normally sufficient to help emergency personnel cope with the event, on occasion longer term support is needed. Failure to provide that support can ultimately lead to the loss of a very valuable member. An Employee Assistance Program (EAP) has been made available to personnel of the department as a long-term stress intervention tool. The EAP is made available to city employees by APS Healthcare at no out-of-pocket cost for the first four counseling visits each year. It provides additional support for other life problems that may affect a member’s motivation and work quality such as substance abuse, marital difficulties, financial complications, and the like. 16 A firefighter/paramedic assigned to shift work serves as the EMS coordinator in addition to regular operational duties. Bozeman Fire Department - Montana 2006 – Fire Protection Master Plan 32 Application and Recruitment Process Recruitment of personnel is a critically important function for emergency service agencies. The community places a tremendous amount of trust in fire department personnel. The process used to select personnel should be quite comprehensive. The American’s with Disabilities Act (ADA) prohibits discrimination against individuals with physical disabilities, but permits employers to establish the physical standards that are required to perform the primary functions of any job safely and effectively. History has shown that the most effective method of avoiding a litigation suit involving ADA is through reasonable and consistent application of job- relevant pre-employment physical ability testing. Applicants for career positions in emergency response within the fire department are subjected to a formal physical ability test to measure the applicant's ability to perform critical physical tasks and functions. The physical ability test created through the Fire Service Joint Labor Management Wellness/Fitness Initiative known as CPAT (Candidate Physical Ability Test) is the standard used for applicants for the Bozeman FD.17 CPAT was created to address the need for a holistic and non- punitive approach to wellness and fitness in the fire service. Modern firefighting and medical response also require extensive technical training, much of which is presented at the college level. Applicants aspiring for employment must demonstrate their aptitude to learn and perform the necessary mental skills to perform the work through a written aptitude test and proof of high school graduation. As a condition of employment, applicants are required to pass a pre-employment physical and psychological examination. The examination is appropriately required after a contingent offer of employment. The standard for entry medical physical examinations is based on the NFPA 1582 standard.18 The City of Bozeman participates in the Montana Firefighters Testing Consortium made up of all the major fire departments in the state.19 State-wide recruitment is conducted; applicants are given one 17 The Fire Service Joint Labor Management Wellness/Fitness Initiative was a Joint Labor Management effort of the IAFF and ICHIEFS in 1997. 18 NFPA 1582: Standard on Comprehensive Occupational Medical Program for Fire Departments, National Fire Protection Association, 2003 19 Participating in the process are the Montana Fire Departments of Billings, Bozeman, Great Falls, Helena, Miles City, Kalispell, Butte, and Missoula and Missoula Rural and Lockwood Fire Districts. Bozeman Fire Department - Montana 2006 – Fire Protection Master Plan 33 aptitude test followed by a pass/fail physical agility assessment (IAFF CPAT). The process followed by the consortium meets or exceeds all applicable laws and guidelines. The Montana Firefighter Testing Consortium typically conducts a joint testing process every year during the month of June for development of a list of qualified candidates for the position of entry-level firefighter. Ongoing Competency Evaluation Once on staff, personnel should be evaluated periodically to ensure their continued ability to perform job duties safely and efficiently. Technical and manipulative skills should be evaluated on a regular basis. This provides documentation about a person’s ability to perform their responsibilities and provides valuable input into the training and education development process. The Bozeman Fire Department provides on-going competency evaluations and physical agility testing. Both the physical competency testing and performance review are currently being expanded to more accurately replicate job functions and standards. Regular evaluation and feedback for personnel is critical to behavior modification and improvement. A formal performance evaluation system is currently in place for all employees of the department and such evaluations are conducted on a regularly scheduled basis. It is important to maintain such programs whenever possible. It has long been proven that employees and members sincerely wish to perform well and to be a contributing part of any organization. This desire to succeed is best cultivated through effective feedback that allows a member to know what he/she is doing well or what needs improvement. The honest and effective presentation of this feedback encourages the member to reinforce those talents and abilities they already excel in and to work harder to improve the areas where they fail to perform as desired. Bozeman Fire Department - Montana 2006 – Fire Protection Master Plan 35 Objective Six - Staffing The Bozeman Fire Department uses career personnel to accomplish its mission and responsibilities to the city. Administrative functions are generally the responsibility of staff officers with support functions provided by the two clerical employees. Staffing for emergency response to fire, emergency medical and related incidents is provided by career personnel on a 53-hour workweek rotating schedule. Beginning July 14, 2006 the department began a trail period with a schedule of 48 hours on-duty followed by 96 hours off-duty (2 by 4). Administration and Support Staff One of the primary responsibilities of the department’s administration and support staff is to ensure that the operational entities of the organization have the ability and means to accomplish their responsibilities on emergency incidents. Efficient and effective administration and support are critical to the success of the department. Without sufficient oversight, planning, documentation, training, and maintenance, the operational entities of the department will fail any operational test. Additionally, like any other part of the department, administration and support require appropriate resources to function properly. Analyzing the ratio of administrative and support positions to the total positions of the department facilitates an understanding of the relative number of resources committed to this important function. The appropriate balance of the administration and support component to the operational component is critical to the success of the department’s mission and responsibilities. The administration and support complement of the BFD is comprised of two major divisions and the fire chief’s office. The following figure summarizes the personnel FTE’s (full time equivalents) assigned to the administration and management. Bozeman Fire Department - Montana 2006 – Fire Protection Master Plan 36 Figure 4: All Personnel in Administrative/Support Personnel Functions Administrative/Support Personnel Position Title Number (FTE) Fire Chief 1 Deputy Fire Chief/Fire Marshal 1 Training Officer 1 Fire and Life Safety Specialist 2 Emergency Manager 1 Administrative Support 1.5 Total Administrative and Support 7.5 Percent administrative and support to total personnel 24.19% The administration and support staff for the Bozeman Fire Department is comprised of 7.5 FTE’s. Statistically, it appears as if the department maintains a ratio of 24.19 percent of administration and support staff to operations personnel. Based on our experience with similar organizations, we have determined emergency services departments usually enjoy a 15 to 20 percent ratio of administration and support staff of operational personnel. While it looks that the Bozeman FD administrative and support staffing level is above this comparison range, consideration must be given for those department responsibilities that fall well outside of norm. They include the countywide office of DES (Disaster and Emergency Services) and the duties of the building department. To present an accurate comparison of the administration and support staff we offer the next Figure 5. Figure 5: Bozeman FD Administrative Support Personnel Administrative/Support Personnel Position Title Number (FTE) Fire Chief 1 Deputy Fire Chief/Fire Marshal 1 Training Officer 1 Administrative Support 1 Total Administrative and Support 4 Percent administrative and support to total personnel 12.69% The above figure illustrates that the administration and support staff for the Bozeman Fire Department is actually operating with four FTE’s—a ratio of 12.69 percent of administration and support staff to Bozeman Fire Department - Montana 2006 – Fire Protection Master Plan 37 operations personnel. Again, we match up to our experience with similar organizations with a 15 to 20 percent ratio of administration and support staff of operational personnel; however, departments with fully-functioning EMS and fire prevention divisions often tend toward the higher end of that paradigm. Bozeman FD sustains active fire prevention and EMS functions; consequently, we view the fire department’s ratio of 12.69 percent administrative and support jobs as below what would be expected. Coupled this ratio with the fact that the department is operating with fewer operational personnel per 1,000 population than like communities, and that the fire chief and deputy fire chief are carrying out tasks outside normal job functions for those positions. Each organization should determine the proper ratio of administration and support staff to operational positions dependent upon local and organizational need. Emergency Services Staff It takes an adequate and well trained staff of emergency responders to put the appropriate emergency apparatus and equipment to its best use in mitigating incidents. Insufficient staffing at an operational scene decreases the effectiveness of the response and increases the risk of injury to all individuals involved. The following Figure 6 summarizes the personnel assigned to street-level service delivery. Figure 6: Field Operations Staffing Summary Position Title Number (FTE) Captains 6 Firefighter B/I/P 18 Total Operational Staff 24 Percent of operational officers to firefighters 19.35% An analysis of emergency service staffing begins with comparison of available emergency service personnel to other communities of similar size and organization. The number of operational personnel maintained by a fire department provides some measure of the ability of the agency to assemble emergency workers to respond to requests for assistance. The following chart (Figure 7) shows the number of career personnel maintained by Bozeman FD per 1,000 residents, and compares that benchmark to the western United States median for agencies serving similar communities with a residential population between 25,000 and 49,999. Bozeman Fire Department - Montana 2006 – Fire Protection Master Plan 38 1.08 0.73 0.0 0.2 0.4 0.6 0.8 1.0 1.2 Regional MedianBozeman FD 2005 Comparison of Firefighters per 1,000 Population Regional Median Bozeman FD 2005 Bozeman Fire Department has considerably less than one firefighter for every 1,000 population, which is significantly lower than departments of similar size. This does not take into consideration community fire risk and other factors that may require more firefighter resources. Figure 7: Comparison of Firefighters per 1,000 Population Regardless of the raw number of personnel available to a department, what matters most is the actual number of emergency responders the agency is able to produce at an emergency scene. This almost always relates to the actual number of emergency responders available for immediate deployment. While Bozeman's career staffing system distributes up to eight personnel on each of three platoons, it is important to note that this number is not necessarily reflective of the actual number of personnel on-duty. Due to sick leave, vacation, injuries, and other circumstances, the actual number of on-duty personnel often falls below the number assigned to each platoon. Bozeman FD staffing regularly allows the shift staffing level to fall to a minimum of six. A recent study by NFPA provides the average number of on-duty firefighters in cities with a population between 25,000 and 49,999.20 Figure 8 compares the average number of on-duty firefighters in the City of Bozeman with other cities serving a similar population base. 20 FEMA/NFPA, "A Needs Assessment of the U.S. Fire Service", FA-240/December 2002 Bozeman Fire Department - Montana 2006 – Fire Protection Master Plan 39 Figure 8: National Average of Firefighters On-Duty 18.80 7.00 0 2 4 6 8 10 12 14 16 18 20 National AverageBozeman FD 2005 National Average of On-Duty Firefighters in Communities With Similar Population Studies by the International City Manager’s Association (ICMA) place the national average of on-duty firefighting strength of a city fire department at 0.57 per 1,000 population. With an average staff of seven firefighters available for response, Bozeman FD’s on-duty staffing equates to 0.21 per 1,000 population, or about 37 percent of the national average. At minimum staffing with six firefighters available, Bozeman FD’s on-duty staffing is 0.18, or about 32 percent of the national average. Assignment of Responsibilities In previous and subsequent sections of the report, the need for adequate levels of management and administrative support and staffing are discussed. Analysis of the department’s current staffing performance will determine where recommendations for improvement may be indicated. Bozeman Fire Department - Montana 2006 – Fire Protection Master Plan 41 Objective Seven – Capital Assets and Resources Fire departments need a balance of three basic resources to successfully carry out their emergency mission: people, equipment, and facilities. Because firefighting is an extremely physical pursuit, the adequacy of personnel resources is a primary concern. But no matter how competent or numerous the firefighters, the department will fail to execute its mission if it lacks sufficient fire apparatus distributed in an efficient manner. Facilities There are many considerations when it is determined that a department has outgrown its facilities. The solutions are more complicated than constructing new facilities and purchasing a fleet of fire trucks. While volunteer, career, and even combination departments have different facility requirements, there are basic needs each fire station has to address; more specifically- quick response time and housing of apparatus and equipment. Everything else depends on a particular department's budget and needs. Consideration should be given to the ability of the facilities to support the functions of the department, as it may exist today and in the future. The primary functions that should take place within the fire station environment should be closely examined and adequate, efficient space for all functions should be provided. Here are some examples: • Housing and cleaning apparatus and equipment • Residential living for on-duty crew members (male and female) • Administrative office duties • Firefighter training/library area • Firefighter fitness area While this list may seem elementary, the lack of dedicated space compromises the ability of the facilities to support any of these functions, and can detract from its primary purpose. At this time, Bozeman FD maintains facilities that meet most of the above criteria. A deficiency is current stations is the lack of fitness areas—firefighters are allowed two-hours per shift (on-duty) to use the facilities of a local fitness club or may also choose to use them off-duty. The cost of membership is partially covered by the city. Bozeman Fire Department - Montana 2006 – Fire Protection Master Plan 42 Bozeman FD responds from two fire stations. The newest built in 1974 and the other, the oldest was constructed in 1964. The fire department maintains training facilities on property owned by the city that was once the site of a municipal public works facility. Figure 9 below is a summary of the facilities. Figure 9: Bozeman FD Facility and Condition Summary Fire Station Number Year Built Condition General Appearance Station 1 1964 Serviceable - Well Maintained Good Station 2 Circa 1974 Good – Well Maintained Good Training facility NA Under development, typical of municipal training grounds. Good The following evaluation and general condition assessment was conducted on the two fire stations and the training facility. While the two fire stations are over thirty-years old and lack some amenities found in more recently constructed facilities, they are clean, organized, and well maintained. Figure 10, Figure 11, and Figure 12 summarize the findings on the fire department facilities in a table format. Bozeman Fire Department - Montana 2006 – Fire Protection Master Plan 43 Figure 10: Bozeman FD Fire Station 1 This station is located in the municipal offices block, directly behind city hall. Over the years, the building has undergone remodels, which have extended the life of the structure and for adapting to administrative and living quarter needs. The facility is well maintained by the city and by Bozeman FD personnel. Any specific problems, concerns or features with this facility can be classified into the following seven categories: • Design: This station is aesthetically designed to fit the surrounding municipal structures. At the time of construction, ADA was not in effect. Subsequent remodels of the building have incorporated ADA mandated design requirements. • Construction: Cement block, with reinforced concrete and brick lend to minimal maintenance. Building is protected with automatic sprinkler. • Safety: No major safety violations noted—however truck bay aprons are short, and engines protrude over public sidewalks and street curb areas. Location of the building is congested and can pose difficulty in maneuvering large fire apparatus in and out of the building. Small differences noted in elevations in truck room floor, posing trip hazard. Auxiliary generator is used to provide auxiliary power for fire station as well as the city hall building • Environment: Clean and safe work areas, well lighted and ventilated. Recommend an energy audit and seismic review be conducted on building. • Code Compliance: Review for ADA compliance • Staff Facilities: Typical of municipal fire stations. The building is for administrative staff and suppression personnel, contains living areas, office space and training classroom. • Efficiency: Energy audit is recommended. This structure could serve as a functional fire station into the future with a capital outlay for major remodel and upgrades. However, the station may not be located for optimal response times. Area around building is congested; a school is located in close proximity of the station. Station is situated on a busy downtown collector street. Bozeman Fire Department - Montana 2006 – Fire Protection Master Plan 44 Figure 11: Bozeman FD Fire Station 2 This is the newest fire station constructed in the 1974. At the time of construction, the location had a lower density and less congested. Plans call for widening of the street in front of the station. This will move traffic extremely close to the facility; Lot lines of this facility make additions or remodels difficult to impractical. • Design: This facility is adequately designed for the current functions. This station is aesthetically designed to fit the surrounding commercial neighborhood designs. • Construction: Cement block, reinforced concrete, and siding. Building is protected with automatic sprinkler. • Safety: No major safety concerned noted. This station egress is to an extremely busy arterial street. There are no traffic pre-emption signals to stop traffic during exiting, and current plans call for widening of the street. This condition may pose an unsafe condition to the public and responding emergency personnel. Alternate plans or replacement of this facility is strongly recommended for safety reasons. Further discussion of this station is found in the response analysis section of this report. • Environment: Facility is clean and is obviously well cared for by the staff. Busy street provides background noise levels detectable inside building. • Code Compliance: To code at time of construction. Recommend an energy audit and seismic review be conducted on building. • Staff Facilities: Typical facility found in like municipalities. • Efficiency: Energy audit is recommended. This structure could serve as a functional fire station into the future with a capital outlay for major remodel and upgrades. However, the station may not be located for optimal response times. Area around building is congested; and future street widening plans are scheduled and funded. Bozeman Fire Department - Montana 2006 – Fire Protection Master Plan 45 Figure 12: Bozeman FD Training Facilities Training Ground Facility for Bozeman FD. The facility was once the site of a municipal public works facility. • Design: The facilities have been modified from original use. Extensive use of brick and reinforced concrete. Stacked Convex boxes will be used as tower prop. • Construction: Varies, depending on future plans for training facility. • Safety: None noted • Environment: Located in industrial area. No problems noted • Code Compliance: NA • Staff Facilities: NA. This section of the report deals only with analysis of current facilities. However, we are recommending development of a full long-range facilities management plan, as well as specific plans to address any current problems. A long-range facilities management plan should include a variety of items, such as: • Location, timing, and cost of any new facilities.21 • Identified long-term maintenance needs for existing facilities. • On-going funding plan. 21 See Section III – Future System Delivery Models for a discussion of future fire station locations. Bozeman Fire Department - Montana 2006 – Fire Protection Master Plan 46 Apparatus Bozeman FD fleet of response vehicles is well maintained. Average condition is considered excellent to good. The department should continue to make apparatus replacement a significant priority in both the short and long term to ensure continued reliability for emergency response. The following chart (Figure 13) lists all primary heavy apparatus and front line vehicles used by Bozeman FD, excluding staff vehicles. Figure 13: Bozeman FD Summary of Fire Apparatus Condition City of Bozeman Fire Department – Fire Station 1 Unit No. Year Manufacture Type Condition Engine 1 1998 General Fire 1250 GPM Pumper Fair Engine 3 1990 Pierce/Dash 1250 GPM Pumper Good Brush 1 1993 Ford/F450 Mini Pumper 500 GPM Good B-2 HM-1 2004 Ford/F550 Type 6 Excellent Utility 1 2003 Chev/250HD Pick-up Excellent City of Bozeman Fire Department – Fire Station 2 Engine 2 2004 Pierce/Dash 1250 GPM Pumper Excellent Ladder Truck 1987 LTI Ladder with 1250 GPM pump Good Utility 2 2005 Chev/250HD Pick-up Excellent Note: All “conditions” noted on stations, apparatus and equipment are as reported by the agency. ESCi did not conduct a mechanical inspection of each piece of apparatus, equipment or on the structures, themselves. Support and Small Equipment Small equipment is often a significant percentage of a fire department’s annual materials and services budget. Not only is small equipment quite expensive to acquire—its useful life is often limited by technological advancements. Establishment of a small equipment replacement plan should be considered. Currently the fire department does not have such a plan, but uses the annual budget process to acquire needed equipment on an as needed basis. The plan, like facilities and apparatus, should include a listing of equipment covered, estimated life expectancy, replacement cost, and annual contributions required to meet the replacement schedule. Bozeman Fire Department - Montana 2006 – Fire Protection Master Plan 47 It is recommended that all equipment with a value of more than $5,000, as well as groups of equipment with an aggregate value of more than $5,000, be included in the plan. Examples include: • Heart monitor/defibrillators • Portable and mobile radios • Computer equipment and systems • Shop diagnostic and maintenance equipment • Breathing apparatus • Computer software (major systems) Maintenance Apparatus Maintenance Bozeman FD has organized an apparatus committee to provide insight and assist with a number of apparatus related tasks. The committee is involved with apparatus design and selection, provides minor maintenance, and schedules maintenance. The committee is chaired by an 11 year veteran of the department. Apparatus maintenance is guided by Bozeman FD SOG No. 803.01, Preventative Maintenance for Apparatus and Equipment. The SOG clearly outlines frequency of service based on 100, and 200 hours of operation, and one and two year service requirements. Discussions with the apparatus committee chairperson resulted in the identification of the following critical issues: • Review current vehicle maintenance requirements and determine if a need exists for a full time (one FTE) fire department mechanic. • Determine the cost effectiveness of an “in house” vehicle mechanic. All appropriate apparatus checks are performed at appropriate intervals; daily, weekly, monthly, or annually. Advance arrangements have been made with local vehicle repair shops to perform major maintenance and repairs on fire department apparatus. The Bozeman FD maintenance calendar defines various tests and maintenance schedules for fire apparatus and equipment. Bozeman Fire Department - Montana 2006 – Fire Protection Master Plan 48 No written policy or SOG of the apparatus committee membership and function has been developed. At a minimum, the document should include: • Committee duties • Responsibilities • Authority levels • Reporting mechanisms • Committee membership Pump, Ladder and Hose Testing Three necessary procedures that must be performed and documented annually are fire apparatus pump testing, hose testing and ladder testing. Hose Testing The life-expectancy of a section of fire hose is generally determined by frequency of use and the care it receives. Hose is susceptible to mechanical injury, heat and fire damage, mold and mildew, and damage due to chemical contact and excessive pressures. An inventory of all fire hose is documented along with a history for each section. Complete records indicating that hose testing was conducted in calendar year 2005 were available. Hose testing is currently accomplished by Bozeman FD personnel. This is a time consuming process, sometimes interrupted by day to day response activity. The department should investigate the cost effectiveness and efficiencies of outsourcing hose testing to a certified hose testing company. Many departments because of response activity and the need for meticulous record keeping have contracted for this service. When the cost of labor and recordkeeping are considered, along with a reduction in out-of-service time; compared to the current practice, contracting of annual hose testing can be a cost effective alternative. Pump Testing Fire pumps are one of the most important and expensive parts of any fire apparatus. The care and routine check of a fire pump is a daily necessity. Bozeman FD maintains comprehensive records outlining various pump tests completed on the fire apparatus. Records reviewed by ESCi indicate both daily pump and annual tests are current. Bozeman Fire Department - Montana 2006 – Fire Protection Master Plan 49 Ladder, Aerial Device Testing Annual aerial testing is conducted under Underwriters Laboratory (UL) specifications. Records show that the aerial ladder was last tested in August 2005. Bozeman FD also maintains a service contract with American LaFrance Aerials for any prescribed maintenance. A comprehensive maintenance directive is included in SOG 803.1 regarding the aerial ladder test. Turnout Gear Maintenance Program As noted earlier in this report, the personnel of the Bozeman Fire Department are its most valuable asset. Statistical data indicates firefighter health and safety may be at risk because of exposure to buildup of contaminants found in many fire situations. At this time, Bozeman FD uses acceptable means of cleaning turnout gear in-house. Bozeman FD uses an extractor specifically designed for cleaning firefighter PPE (personal protective equipment, or turnout gear). Residential washers and dryers, and other less sophisticated cleaning methods will not remove contaminate or hydrocarbon products clean—and in fact may damage or destroy the protective properties of the garment. Figure 14: Bozeman FD Extractor In the latest revisions to NFPA Specifications 1500, 1581 and 1971, the fire service has addressed the health and safety risks associated with contaminated PPE (turnout gear) by requiring that protective clothing be cleaned at least once every six (6) months. With these new standards from NFPA, fire departments across the country are trying to find inexpensive ways to comply with the standards. The life expectancy of gear depends on the type of department, number and type of fires fought, and the aggressiveness of the firefighters. Proper care will likely lengthen the life cycle of PPE and thus reduce protective equipment expenditures. Bozeman Fire Department - Montana 2006 – Fire Protection Master Plan 51 Objective Eight – Service Delivery The delivery of fire suppression and rescue services is no more effective than the sum of its parts. It requires efficient notification of an emergency, rapid response from well-located facilities in appropriate apparatus, with sufficient staffing, following a well-practiced plan of action. The most visible, and valued, of the services provided by the Bozeman Fire Department is the response to, and control of, emergency events. The department provides a variety of emergency response services including: • Fire suppression • Emergency medical service • Hazardous materials emergency response • Entrapment rescue • Other specialized rescue services This section analyzes these various components and provides observations of the elements that make up the delivery of the most critical core services provided by the department. Notification System (Dispatch) Dispatch services are provided by Gallatin County (9-1-1). This dispatch center is the primary Public Safety Answering Point (PSAP) for all of Gallatin County. Cost share is divided 45 percent to the City of Bozeman and 55 percent to Gallatin County. The dispatch center is administered by a seven member board consisting of four members from the City of Bozeman and three from Gallatin County. During our on site visit, it was noted that the center is a fully-staffed, professionally managed communications center that dispatches for 24 other adjacent emergency agencies. At the time of our interviews, the center was below its authorized staffing level five FTE’s. The center has a fully-integrated computer aided dispatch (CAD) system that includes a records management system (RMS) and automated time stamping of all incident radio traffic. There are redundant back-up consoles available on-site. Dispatch personnel are certified in Emergency Medical Dispatch (EMD). Bozeman Fire Department - Montana 2006 – Fire Protection Master Plan 52 Call taking and processing standards were provided for this analysis. The dispatch center has service benchmark standards for processing calls from one-minute to 30-minutes depending on the category and classification of incident. Emergency response personnel are notified by dedicated alpha-numeric paging with voice back up. All appropriate data is captured including incident times and alarm type and is available to Bozeman FD for analysis. Facility Deployment The department provides emergency response services from two locations. Coverage of the current service area is considered good only within the urban core area of the city. As currently configured areas outside of the central area of the city (downtown); suburban area, and in projected growth areas, the department does not and will not be able to meet recognized response coverage standards. Bozeman FD needs to consider deployment changes and additional resources to improve current coverage and response time performance and for future development of the city. The following map (Figure 15) displays the current deployment of fire stations for the department. Bozeman Fire Department - Montana 2006 – Fire Protection Master Plan 53 Figure 15: Bozeman FD Fire Service Area Map Bozeman Fire Department - Montana 2006 – Fire Protection Master Plan 54 There are several ways to approach fire station deployment analysis. The ISO, in its standards, defines ideal coverage as having a fire engine within 1.5 miles of any “built-upon” area.22 In addition, the ISO standards consider any developed area greater than five miles from a fire station as being “unprotected”. Such areas are often subjected to a Class 10 insurance rating, making insurance difficult or expensive to obtain. We began our analysis by examining the fire response area and confirming that there were no road segments that are greater than five miles from an existing fire station and, thus, subject to an “unprotected” classification and fire insurance rating. With that established, we move on to an analysis of the Bozeman FD’s facility deployment for fire response. The map in the following figure demonstrates the current geographic-based coverage of Bozeman FD’s two fire stations by plotting the four, six, and eight-minute travel time footprint for the existing stations. Since these response time footprints are calculated on actual modeled travel time, the four-minute response footprint is slightly larger than the 1.5 mile travel zone used by the ISO for optimum community fire protection scoring in engine company distribution, but is a reasonably common performance target for urban communities. In Figure 16 below, the street segments that can be reached in four minutes of travel time are shaded in green. Those street segments that can be reached in six minutes of travel time are shaded in yellow. Street segments that can be reached within eight minutes of travel time are shaded in red. It should also be noted that, as a career staffed agency, BFD can be expected to experience about a one-minute time period for firefighter turnout before apparatus leaves the station and travel time to the incident begins. Thus, the figure could also be looked at as a depiction of five, seven, and nine- minute total response time capability of the current deployment. 22 ISO is an independent organization that serves insurance companies, fire departments, insurance regulators, and others by providing information about risk. ISO uses the Fire Suppression Rating Schedule (FSRS) to review the fire-fighting capabilities of individual communities. Bozeman Fire Department - Montana 2006 – Fire Protection Master Plan 55 Figure 16: Bozeman FD Current Deployment Travel Time Footprint Bozeman Fire Department - Montana 2006 – Fire Protection Master Plan 56 What is visually evident from the map in this figure is that most of the developed streets within the current limits of Bozeman FD’s response area are within a seven-minute response time of a fire station. However, several areas are outside this capability and fall into a nine-minute response time, with a few even exceeding this travel time. These areas of service gap will be discussed in a later section of the study. The following map (Figure 17) displays the four-minute response time from the stations. This is a useful display to evaluate any overlap in the response capabilities of the current deployment. Bozeman Fire Department - Montana 2006 – Fire Protection Master Plan 57 Figure 17: Bozeman FD Current Deployment – Four-Minute Travel Polygons Bozeman Fire Department - Montana 2006 – Fire Protection Master Plan 58 The figure demonstrates that there is some significant overlap of the four-minute response capability of the stations in the central section of the city, with evidence of service gaps in the northern, southern, and western portions of the response area. In order to analyze service demand-based coverage, we plotted the incident locations for a 24-month period on the map to demonstrate their relation to current facility locations. These graphics provide a visual demonstration of call volume and service demand by geography. Service demand for the fire department appears in the following Figure 18. Bozeman Fire Department - Montana 2006 – Fire Protection Master Plan 59 Figure 18: Bozeman FD Service Demand Bozeman Fire Department - Montana 2006 – Fire Protection Master Plan 60 The previous map demonstrates that service demand is heaviest in the urban central core of the city (downtown). This area corresponds with the area of greatest response capability overlap (resource concentration). The following map (Figure 19) plots the locations of structure fires only for the same time period. Bozeman Fire Department - Montana 2006 – Fire Protection Master Plan 61 Figure 19: Bozeman FD Structural Fire Incident Locations Bozeman Fire Department - Montana 2006 – Fire Protection Master Plan 62 Again, it is relatively clear that the greatest numbers of structure fire incidents are experienced in the central urban core area of the city. Resource Deployment As mentioned earlier in this report, Bozeman FD maintains a fleet of fire vehicles including two frontline engines and one reserve fire engine, one aerial truck two brush vehicles, and various support vehicles. In order to achieve optimum credit, ISO reviews the response areas of each existing station and identifies the number of fire hydrants within those response areas. ISO then analyzes whether there are additional geographic areas of the city outside of the existing station response areas where at least 50 percent of the number of hydrants served by the largest existing response area could be served by a new station were one to be built. If so, additional engine company deployment is recommended. For ISO review purposes, the response area of a station is measured at 1.5 miles of travel distance on existing roadways. The following map (Figure 21) depicts the location of the current engine companies as well as their 1.5 mile coverage polygons. Hydrant locations within the polygons equal 47.26 percent of the total hydrants in the city. The Bozeman FD operates less than an optimal number of pumpers required to receive full credit under ISO. Bozeman Fire Department - Montana 2006 – Fire Protection Master Plan 63 Figure 20: Hydrants Located Within 1.5 mile Polygons Bozeman Fire Department - Montana 2006 – Fire Protection Master Plan 64 Figure 21: ISO 1.5 Mile Response Areas for Engine Companies Bozeman Fire Department - Montana 2006 – Fire Protection Master Plan 65 As noted in Figure 20, less than 50 percent of hydrants are within the 1.5 mile coverage, from these maps it confirms that the city does not have sufficient engine company coverage to achieve maximum credit in the community fire protection rating. The department’s pumpers appear to be very well equipped, though none received 100 percent point credit for equipment in the last rating. While this may have improved since the last rating, a complete inventory should be performed to assure maximum point values for all vehicles prior to future ISO rating reviews. It is unclear precisely how much of the department’s protection area would meet the necessary requirements for aerial trucks (ladder companies). In order to receive full credit, aerial devices should be located within 2.5 mile distribution of all buildings that would meet the three story height and square footage limits. Other areas can receive credit for a truck company without the requirement of an elevated device. The following map (Figure 22) depicts the location of the current aerial device as well as the 2.5 mile coverage polygon. This can be used by the department to evaluate whether the tallest and largest square footage buildings are located primarily within the coverage area. Bozeman Fire Department - Montana 2006 – Fire Protection Master Plan 66 Figure 22: Bozeman FD Aerial Ladder Coverage at 2.5 Miles Bozeman Fire Department - Montana 2006 – Fire Protection Master Plan 67 The downtown urban core (the area with highest service demand) is within the 2.5 mile coverage of the truck company. However, there are areas of significant commercial development, including the city’s hospital and industrial areas along and on the northern side of Interstate-90, that are not within this ladder response area. Emergency Response Activity The area served by the department has experienced an increasing number of fire department responses. In comparison to other communities of its size within the western region, the Bozeman Fire Department experiences a similar number of emergency incident responses based on population.23 The following Figure 23 shows that Bozeman FD is very close to the median range of incident volume per population for similar urban communities. Data source for this section is the National Fire Protection Association “U.S. Fire Department Profile”, October 2003. This publication breaks down benchmark data into four regions: Northeast, North central, South, and West. Western regional data was selected for this report. Figure 23: Bozeman FD Comparison of Incident Rates by Population 83.43 42.42 63.63 61.67 0 10 20 30 40 50 60 70 80 90 Urban High RangeUrban Low RangeRegional MedianBozeman FD 2005 Comparison of Incidents per 1,000 Population 23 Data source for this section is the National Fire Protection Association “U.S. Fire Department Profile”, October 2003. This publication breaks down benchmark data into four regions: Northeast, North central, South, and West. Western regional data was selected for this report. Bozeman Fire Department - Montana 2006 – Fire Protection Master Plan 68 It should be remembered that the statistics include many communities that do not provide any type of emergency medical services through their fire department. This factor should be considered when evaluating the benchmark comparison data. As can be seen in the following Figure 24, Bozeman FD experiences fewer numbers of fires per 1,000 population for a community of its size. Several factors could be at play. The reasons to suspect this is a result of; a healthy economy, building code enforcement, modern building techniques and reporting methods. Newer design and construction features minimize the potential for fire in structures build under the new codes, and secondly, code enforcement and inspection practices over time have eliminated potential fire risks within the community. History has shown that during times of healthy economy fewer fires occur. Figure 24: Bozeman FD Fire per 1,000 Population 5.90 3.00 4.50 3.52 0 1 2 3 4 5 6 Urban High RangeUrban Low RangeRegional MedianBozeman FD 2005 Comparison of Fires per 1,000 Population The following Figure 25 shows how response volume has changed over the last five years and gives an overview of the workload history of the department. Bozeman Fire Department - Montana 2006 – Fire Protection Master Plan 69 Figure 25: Bozeman FD Workload History by Incident Type Bozeman FD Workload History by Incident Type 2,035 1,7651,761 1,6431,546 0 250 500 750 1,000 1,250 1,500 1,750 2,000 2,250 Fire 11612212082116 Other 393374436413516 EMS 1,0371,1471,2051,2701,403 Total Responses 1,5461,6431,7611,7652,035 20012002200320042005 The next Figure 26 shows a breakdown in more detail of call volume by type for a two-year period. The percent of EMS related calls, slightly above 71 percent, is an indicator of the importance the department should continue to devote to emergency medical all facets of its operation; training, equipment, and personnel resources. Figure 26: Bozeman FD Workload Trend by Incident Type Bozeman, MT: Call Volume by Type, 2003 - 2004 0.09%0.06%0.03%3.43%0.12%4.62%6.59%4.99%8.97% 71.12% 0.00% 10.00% 20.00% 30.00% 40.00% 50.00% 60.00% 70.00% 80.00% EMSFalse Alarm FireGood Intent Hazardous Condition Rupture/ Overheat Service Call SpecialWeather Event Misc. Bozeman Fire Department - Montana 2006 – Fire Protection Master Plan 70 In the following paragraphs, we provide further analysis of the agency’s workload. A review of incidents by time of occurrence reveals when the greatest response demand is occurring. The following charts (Figure 27, Figure 28, and Figure 29) show how activity and demand changes for the Bozeman FD based on time of day, day of week, and month of year. Figure 27: Bozeman FD Workload by Time of Day Bozeman, MT: Workload by Hour of Day for 2003 & 2004 0.00% 1.00% 2.00% 3.00% 4.00% 5.00% 6.00% 7.00% 8.00%Midnite 0100 0200 0300 0400 0500 0 600 07 00 0800 0900 1000 1100 1200 1300 1400 1 500 160 0 1700 1800 1900 2000 2100 2200 23 00 Fire EMS Peak response activity occurs between the hours of 9:00 a.m. and 9:00 p.m. This is typical of most fire agencies’ experience, which usually falls between about 8:00 a.m. and 10:00 p.m., and reflects a higher level of activity in the community throughout the workday hours. Incident volumes are relatively even throughout the days of the week, with only a slight increase toward week’s end. Bozeman Fire Department - Montana 2006 – Fire Protection Master Plan 71 Figure 28: Bozeman FD Workload by Day of Week Bozeman, MT: Call Volume by Day of Week for 2003 & 2004 13.50%14.16%13.76%14.04% 16.51%14.79% 13.24% 0.00% 2.00% 4.00% 6.00% 8.00% 10.00% 12.00% 14.00% 16.00% 18.00% SunMonTueWedThuFriSat Incident volumes are relatively even throughout the months of the year, as shown in the following figure, with only a one percent to two percent increase through the summer months and late fall months. Figure 29: Bozeman FD Workload by Month of Year Bozeman, MT: Call Volume by Month of Year, 2003 & 2004 8.47%9.85%9.28% 7.44% 9.10%9.48% 7.70%7.96%7.38%7.29%8.07%7.98% 0.00% 2.00% 4.00% 6.00% 8.00% 10.00% 12.00% JANFEBMARAPRMAYJUNJULAUGSEPOCTNOVDEC Response Time Performance Objectives The ultimate goal of any emergency service delivery system is to provide sufficient resources (personnel, apparatus, and equipment) to the scene of an emergency in time to take effective action Bozeman Fire Department - Montana 2006 – Fire Protection Master Plan 72 to minimize the impacts of the emergency. This need applies to fires, medical emergencies, and any other emergency situation to which the fire department responds. Before discussing the department’s current performance, it is important to gain an understanding of the dynamics of fire and medical emergencies. Dynamics of Fire in Buildings Most fires within buildings develop in a predictable fashion, unless influenced by highly flammable material. Ignition, or the beginning of a fire, starts the sequence of events. It may take some minutes or even hours from the time of ignition until flame is visible. This smoldering stage is very dangerous, especially during times when people are sleeping, since large amounts of highly toxic smoke may be generated during early phases. Once flames do appear, the sequence continues rapidly. Combustible material adjacent to the flame heats and ignites which in turn heats and ignites other adjacent materials if sufficient oxygen is present. As the objects burn, heated gases accumulate at the ceiling of the room. Some of the gases are flammable and highly toxic. The spread of the fire continues quickly. Soon the flammable gases at the ceiling reach ignition temperature. At that point, an event termed “flashover” takes place; the gases ignite, which in turn ignites everything in the room. Once flashover occurs, damage caused by the fire is significant and the environment within the room can no longer support human life. Flashover usually happens about five to eight minutes from the appearance of flame in typically furnished and ventilated buildings. Since flashover has such a dramatic influence on the outcome of a fire event, the goal of any fire agency is to apply water to a fire before flashover takes place. Perhaps as important as preventing flashover is the need to control a fire before it does damage to the structural framing of a building. Materials used to construct buildings today are often less fire resistive than the heavy structural skeletons of older frame buildings. Roof trusses and floor joists are commonly made with lighter materials more easily weakened by the effects of fire. “Light weight” roof trusses fail after five to seven minutes of direct flame impingement. Plywood I-beam joists can fail after as little as three minutes of flame contact. This creates a very dangerous environment for firefighters. Bozeman Fire Department - Montana 2006 – Fire Protection Master Plan 73 In addition, the contents of buildings today have a much greater potential for heat production than in the past. The widespread use of plastics in furnishings and other building contents rapidly accelerate fire spread and increase the amount of water needed to effectively control a fire. All of these factors make the need for early application of water essential to a successful fire outcome. A number of things must happen quickly to make it possible to achieve fire suppression prior to flashover. The figure below illustrates the sequence of events. Figure 30: Fire Growth versus Reflex Time The reflex time continuum consists of six steps, beginning with ignition and concluding with the application of (usually) water. The time required for each of the six components varies. The policies and practices of the fire department directly influence four of the steps, but two are only indirectly manageable. The six parts of the continuum are: 1) Detection: The detection of a fire may occur immediately if someone happens to be present or if an automatic system is functioning. Otherwise, detection may be delayed, sometimes for a considerable period. 2) Report: Today most fires are reported by telephone to the 9-1-1 center. Call takers must quickly elicit accurate information about the nature and location of the fire from persons who are apt to be Bozeman Fire Department - Montana 2006 – Fire Protection Master Plan 74 excited. A citizen well trained in how to report emergencies can reduce the time required for this phase. 3) Dispatch: The dispatcher must identify the correct fire units, subsequently dispatch them to the emergency, and continue to update information about the emergency while the units respond. This step offers a number of technological opportunities to speed the process including computer aided dispatch and global positioning systems. 4) Turnout: Firefighters must don firefighting equipment, assemble on the response vehicle, and begin travel to the fire. Good training and proper fire station design can minimize the time required for this step. 5) Response: This is potentially the longest phase of the continuum. The distance between the fire station and the location of the emergency influences reflex time the most. The quality and connectivity of streets, traffic, driver training, geography, and environmental conditions are also a factor. 6) Set up: Last, once firefighters arrive on the scene of a fire emergency, fire apparatus are positioned, hose lines stretched out, additional equipment assembled, and certain preliminary tasks performed (such as rescue) before entry is made to the structure and water is applied to the fire. As is apparent by this description of the sequence of events, application of water in time to prevent flashover is a serious challenge for any fire department. It is reasonable though, to use the continuum as a tool for designing the emergency response system. The National Fire Protection Association studied data from residential structures occurring between 1994 and 1998 in order to analytically quantify the relationship between the growth of a fire beyond the room of origin and losses in life and property. As the figures below clearly indicate, fires contained to the room of origin (typically extinguished prior to or immediately following flashover) had significantly lower rates of death, injury, and property loss when compared to fires that had an opportunity to spread beyond the room of origin (typically extinguished post-flashover). Incidents in which a fire spreads beyond the room where it originates are likely to experience six times the amount of property loss and have almost nine times greater chance of resulting in a fatality. Bozeman Fire Department - Montana 2006 – Fire Protection Master Plan 75 Figure 31: National Data - Fire Growth to Life and Property Loss Extension Civilian Deaths Civilian Injuries Dollar Loss Per Fire Confined to room of origin2.3235.19$3,385 Beyond room of origin; confined to floor of origin19.6896.86$22,720 Beyond floor of origin 26.54 63.48 $31,912 Fire Extension in Residential Structure Fires 1994-1998 Rates Per 1,000 Fires *Data from NFPA Annual Fire Experience Survey and USFA National Incident Reporting System Emergency Medical Event Sequence Cardiac arrest is the most significant life threatening medical event. A victim of cardiac arrest has mere minutes in which to receive definitive lifesaving care if there is to be any hope for resuscitation. Recently, the American Heart Association (AHA) issued a new set of cardiopulmonary resuscitation guidelines designed to streamline emergency procedures for heart attack victims, and to increase the likelihood of survival. The AHA guidelines include new goals for the application of cardiac defibrillation to cardiac arrest victims. Heart attack survival chances fall by seven to ten percent for every minute between collapse and defibrillation. Consequently, the AHA now recommends cardiac defibrillation within five minutes of cardiac arrest. As with fires, the sequence of events that lead to emergency cardiac care can be visually shown, as in the following figure. Bozeman Fire Department - Montana 2006 – Fire Protection Master Plan 76 Figure 32: Cardiac Arrest Event Sequence The percentage of opportunity for recovery from cardiac arrest drops quickly as time progresses. The stages of medical response are very similar to the components described for a fire response. Recent research stresses the importance of rapid cardiac defibrillation and administration of certain drugs as a means of improving the opportunity for successful resuscitation and survival. An Oregon fire department recently studied the effect of time on cardiac arrest resuscitation and found that nearly all of their “saves” were within one and one-half miles of a fire station, underscoring the importance of quick response. People, Tools and Time Time matters a great deal in the achievement of an effective outcome to an emergency event. Time, however, isn’t the only factor. Delivering sufficient numbers of properly trained, appropriately equipped, personnel within the critical time period completes the equation. For medical emergencies this can vary based on the nature of the emergency. Many medical emergencies are not time critical. However, for serious trauma, cardiac arrest, or conditions that may lead to cardiac arrest, response time is very critical. Bozeman Fire Department - Montana 2006 – Fire Protection Master Plan 77 Equally critical is delivering enough personnel to the scene to perform all of the concurrent tasks required to deliver quality emergency care. For a cardiac arrest this can be up to six personnel; two to perform CPR, two to set up and operate advanced medical equipment, one to record the actions taken by emergency care workers, and one to direct patient care. Thus, for a medical emergency the real test of performance is the time it takes to provide the personnel and equipment needed to deal effectively with the patient’s condition, not necessarily the time it takes for the first person to arrive. Fire emergencies are even more resource critical. Again, the true test of performance is the time it takes to deliver sufficient personnel to initiate application of water on the fire. This is the only practical method to reverse the continuing internal temperature increases and ultimately prevent flashover. The arrival of one person with a portable radio does not provide fire intervention capability and should not be counted as “arrival” by the fire department. Effective operations at the scene of fire emergencies also depend on the arrival of enough trained personnel to perform all of the duties and tasks required to control a fire event. Tasks that must be performed can be broken down into two key components, life safety, and fire flow. Life safety tasks are based on the number of building occupants, their location, status, and ability to take self-preservation action. Life safety tasks involve the search, rescue, and evacuation of victims. The fire flow component involves delivering sufficient quantities of water to extinguish the fire, and creating an environment within the building that allows entry by firefighters. The number and types of tasks needing simultaneous action will dictate the minimum number of firefighters required to combat different types of fires. In the absence of adequate personnel to perform concurrent action, the command officer must prioritize the tasks, completing some in chronological order rather than at the same time, reducing overall fire emergency effectiveness. These tasks include: command, scene safety, search and rescue, fire attack, water supply, pump operation, ventilation, and back-up line. The following chart illustrates the fire ground staffing recommendations of the Commission on Fire Accreditation, International. Bozeman Fire Department - Montana 2006 – Fire Protection Master Plan 78 Figure 33: Minimum Firefighting Personnel Based Upon Level of Risk Task Maximum Risk High Risk Moderate Risk Low Risk Attack Line 4 4 2 Search and Rescue 4 2 2 Ventilation 4 2 2 Back-Up Line/Rapid Intervention 8 6 4 2 Pump Operator 1 1 1 1 Water Supply 1 1 1 Utilities Support 1 1 1 2 Command/Safety 2 2 2 1# Forcible Entry * Salvage * Overhaul * Communication 1* Operations Section Chief 1 Logistics 1 Planning 1* Staging 1* Rehabilitation 1 Division/Group Supervisors 2* High Rise Evacuation 10* Stairwell Support 10* Totals: 53 19 15 6 # Can often be handled by the first due officer. * At maximum and high-risk fires, additional personnel may be needed. The following definitions apply to the chart: Low Risk – Fires involving small sheds and other outbuildings, larger vehicles and similar— characterized by sustained attack fire flows typically less than 250 gallons per minute. Moderate Risk – Fires involving single-family dwellings and equivalently sized commercial office properties—sustained attack fire flows range between 250 gallons per minute to 1,000 gallons per minute. High Risk – Fires involving larger commercial properties with sustained attack fire flows between 1,000 gallons per minute and 2,500 gallons per minute Bozeman Fire Department - Montana 2006 – Fire Protection Master Plan 79 Maximum Risk – Fires in buildings with unusual hazards such as high-rise buildings, hazardous materials facilities, very large buildings, and high life risk properties (nursing homes, hospitals, etc.). Though they may not require large sustained attack fire flows they do require more personnel to perform tasks required for effective control. Response Performance Objectives Emergency service agencies should have clearly defined response performance objectives established to allow evaluation of capability and service delivery. An organization’s performance objectives should clearly state both the current and desired emergency service capabilities in very measurable terms. For emergency response, performance objectives should define response performance using both time and resource criteria. For example: • Provide for the arrival of adequate resources to initiate basic emergency medical services at the scene of any medical emergency within “X” minutes following dispatch, 90 percent of the time. Current: 5 minutes Target: 5 minutes • Provide for the arrival of adequate resources to initiate interior fire suppression operations at the scene of any fire within “X” minutes following dispatch, 90 percent of the time. Current: 6 minutes Target: 5 minutes With specific performance criteria a fire department can develop deployment methodologies to achieve desired levels of performance, and can quickly identify when conditions in the environment degrade performance. NFPA 1710 The National Fire Protection Association (NFPA) has issued a response performance standard for all or mostly career staffed fire departments. This standard, among other things, identifies a target response time performance objective for fire departments and a target staffing standard for structure fires. Though not a legal mandate, NFPA 1710 does provide a useful benchmark against which to measure the fire department’s performance. NFPA 1710 contains time performance standards for structure fire response as well as emergency medical response. Each will be discussed individually. Bozeman Fire Department - Montana 2006 – Fire Protection Master Plan 80 Structure Fire Response NFPA 1710 recommends that the first company arrive at the scene of a structure fire within five minutes of dispatch, 90 percent of the time. NFPA uses the 90th percentile rather than average. This allows an evaluation of a department’s performance on the vast majority of its incidents. The standard establishes that a response “company” consists of four personnel. The standard does not require that all four be on the same vehicle, but does expect that the four will operate as a single functioning unit once on scene. NFPA 1710 response time standard also requires that all four personnel be on scene within the recommended five minutes, 90 percent of the time. The Bozeman FD performance objective does not include this staffing component. Thus, there is a need to establish a way to determine if sufficient resources are on-scene to initiate effective fire suppression operations. An effective means to accumulate this data for analysis would be to use the arrival time of the second unit. There is another reason the arrival of four personnel is critical for structure fires. As mentioned earlier, current safety regulations require that before personnel can enter a building to extinguish a fire at least two personnel must be on scene and assigned to conduct search and rescue in case the fire attack crew becomes trapped. This is referred to as the “two-in, two out” rule. The only exception to this regulation is if it is known that victims trapped are inside the building. Given Bozeman FD’s typical staffing of engines, the time it takes for the second unit to arrive becomes very important to achievement of the NFPA standard. If additional help is a considerable amount of time away the fire will continue to grow rapidly contributing to significantly more damage to the property. Finally, the NFPA standard calls for the arrival of the entire initial assignment (sufficient apparatus and personnel to effectively combat a fire based on its level of risk) within nine minutes of dispatch, 90 percent of the time. This is to ensure that enough people and equipment arrive soon enough to be effective in controlling a fire before substantial damage occurs.24 NFPA 1710 describes the following performance as meeting the structure fire response criteria of the standard: 24 See previous discussion about the “time/temperature curve” and the effects of flashover. Bozeman Fire Department - Montana 2006 – Fire Protection Master Plan 81 • Turnout time within one minute, 90 percent of the time, • Arrival of the first “company” within five minutes of dispatch, 90 percent of the time, or • Arrival of the entire initial response assignment (all units assigned to the call) within nine minutes of dispatch, 90 percent of the time. Emergency Medical Response There are three time standards within NFPA 1710 for emergency medical responses. They are: • Turnout time within one minute, 90 percent of the time, • Arrival of a unit with first responder or higher level of capability (basic life support) within five minutes of dispatch, 90 percent of the time, and • Arrival of an advanced life support unit, where this service is provided by the fire department, within nine minutes of dispatch, 90 percent of the time. Bozeman FD Response Performance Objective Bozeman Fire Department has not established a formal response time objective for its emergency services so there will not be a target against which to compare current performance. We recommend that the City Commission of the City of Bozeman adopt and maintain a time objective for Bozeman FD emergency response in accordance with appropriate NFPA Standards. As previously discussed, NFPA 1710 sets response time performance for first arriving fire apparatus at five minutes or less, 90 percent of the time. The 1710 standard does not include call processing time, which is covered in other related NFPA standards that call for a performance of one minute or less for this activity. Recorded Response Time Performance and Outcomes The average response time for those incidents occurring within the primary response area of Bozeman FD during 2003 and 2004 ranged from a high average of eight minutes and nine seconds for calls between the hours of 5:00 a.m. and 6:00 a.m., to a low average of five minutes and 21 seconds for incidents between the hours of 7:00 a.m. and 8:00 a.m.25 The overall average response time of the department within its primary jurisdiction was six minutes and 29 seconds. These 25 Non-emergency incidents were not used in the calculation of response times; to the extent these calls could be identified. In addition, calls with response times in excess of twenty minutes were considered anomalies and were not used in response time analysis. Mutual aid incidents out of district were not considered in the analysis. Response time is for first arriving apparatus. Bozeman Fire Department - Montana 2006 – Fire Protection Master Plan 82 response times do include firefighter turnout, but do not include call processing time in the dispatch center. The following Figure 34 provides the average response times for the Bozeman Fire Department, broken out by hour of day, for 2003 through 2004. Figure 34: Bozeman FD Average Response Time Analysis by Hour of Day Bozeman, MT: Average Response Time By Hour of Day 00:0001:2602:5304:1905:4607:1208:38 Midnite 0100 0200 0300 0400 0500 0600 0700 0800 0900 1000 1100 1200 1300 1400 1500 1600 1700 1800 1900 2000 2100 2200 2300 Of more significance is how well the emergency response demand is being serviced. One useful way to determine how well “demand-based” coverage is achieved is by determining maximum response time to a majority of incidents; in this case we will use 90 percent. As was indicated earlier, the 90th percentile is the manner in which the majority of performance standards for emergency services are set. The 90th percentile response time for all incidents occurring within the primary response area of BFD during 2004 was ten minutes and 10 seconds. Again, this figure does not include call processing time in the dispatch center. The following Figure 35 provides the 90th percentile response times for the department, broken out by hour of day, for 2003 through 2004. The percentile response is derived in the following manner: If a Bozeman Fire Department - Montana 2006 – Fire Protection Master Plan 83 community has a standard response time of 6 minutes, and had 100 calls, of which 30 of those calls were over the standard of 6 minutes, then the result would be a 70th percentile (100 minus 30 = 70).26 Figure 35: Bozeman FD 90th Percentile Response Time Analysis by Hour of Day Bozeman, MT: 90th Percentile Response Times by Hour of Day 00:0001:2602:5304:1905:4607:1208:3810:0511:3112:58 Midnite 100 200 300 400 500 600 700 800 900 1000 1100 1200 1300 1400 1500 1600 1700 1800 1900 2000 2100 2200 2300 The following Figure 36 provides both the average and the 90th percentile response times for the Bozeman Fire Department, broken out by each fire station’s primary response area for the year 2004. 26 Percentile – In statistics, percentile is one of the points or values that divide a collection of statistical data, arranged in order, into 100 equal parts. For example: The 90th percentile is the value below which 90 percent of the responses lie. Bozeman Fire Department - Montana 2006 – Fire Protection Master Plan 84 Figure 36: Bozeman FD – Response Time Analysis by Apparatus Bozeman FD: Response Times by Apparatus 05:03 03:59 04:15 03:54 05:06 06:53 07:15 07:00 07:15 10:00 00:0001:2602:5304:1905:4607:1208:3810:0511:31 BOZB1 BOZE1 BOZE2 BOZE3 BOZL1 Average 90th Percentile The analysis of response time performance data reveals that, if the department seeks to maintain a response time objective of six minutes or less to 90 percent of the calls in the Bozeman FD’s service area, significant improvement will need to be made in reducing overall response times across all hours of the day and at all fire stations.27 Resource Workload The workload on emergency response units can be a factor in response time performance. The busier a given unit, the less available it is for the next emergency. If a response unit is unavailable, then another unit perhaps from a more distant station, must respond increasing overall response time. A cushion of surplus response capacity above average values must be maintained due to less frequent, but very critical times, when atypical demand patterns appear in the system. Multiple medical calls, simultaneous fires, multi-casualty events, or multiple alarm fires are all examples. The following chart shows response activity by unit. This chart describes total response activity for each unit from 2003 through 2004. Total unit responses exceed total incidents for the year since 27 Including call processing time Bozeman Fire Department - Montana 2006 – Fire Protection Master Plan 85 many calls for service require more than one unit to respond. Using the total time on incident, unit hour utilization is also calculated for Bozeman FD response units.28 Figure 37: Total Response by Unit - 2003 and 2004 2004 2003 Unit Calls Total Time Minutes UHU Calls Total Time Minutes UHU Brush 1 12 6:56:03 128.05 0.02% 32 37:09:20 2,229.33 0.42% Engine 1 800 259:23:10 15,563.16 2.96% 1020 346:35:41 20,795.68 3.96% Engine 2 1050 351:36:10 21,096.16 4.01% 989 370:42:58 22,242.97 4.23% Engine 3 178 51:47:31 3,107.52 0.59% 10 7:21:39 441.6 0.08% Ladder 1 46 4:15:09 255.15 0.05% 45 37:51:36 2,307.6 0.44% Unit hour utilization is an important workload indicator. It describes the amount of time a unit is not available for response since it’s already committed to an incident. The larger the number, the greater it’s utilization and the less available it is for assignment to an incident. Recommended unit hour utilization (UHU) maximums for fire department units are typically around 20 percent with some studies indicating that unit failure rates at this workload will begin to hit 10 percent.29 Some studies indicate that significant employee burnout can occur with fire-based EMS units at around 30 percent unit hour utilization. 28 unit hour utilization is expressed in the figures as UHU 29 The unit failure rate is the percentage of calls for which a unit is unavailable due to handling an existing call where it otherwise would have been dispatched as the primary unit. Bozeman Fire Department - Montana 2006 – Fire Protection Master Plan 86 Figure 38: Unit Hour Utilization for Bozeman FD – 2004 0.00% 0.50% 1.00% 1.50% 2.00% 2.50% 3.00% 3.50% 4.00% 4.50% Engine 3Brush 1Ladder 1Engine 1Engine 2 Unit Hour Ultilization 2003 and 2004 2003 2004 All Bozeman FD units are currently below 5 percent. This is a fair indication that total unit workload is not a significant factor in failure rates or extended response times. Incident Staffing Delivering sufficient numbers of personnel to the scene to accomplish all the various tasks that are required to effective control an emergency is essential. Bozeman FD has personnel available to routinely staff emergency medical and other non-emergency incidents with sufficient personnel. The most labor intensive incidents are structure fires. National criteria recommend at least 15 personnel be on scene of a fire in a single family home. More personnel are needed as the size of the structure increases, the life risk increases, or when special hazards exist. At minimum staffing, Bozeman FD has six personnel available to respond to structure fires. The following is a breakdown of daily minimum staffing levels at the two stations. Bozeman Fire Department - Montana 2006 – Fire Protection Master Plan 87 Figure 39: Resource and Staffing Availability Table Fire Station Unit Type Maximum On-duty Staffing Minimum On-duty Staffing Engine 1 Pumper 4 3 Engine 3 Pumper Staffed by call back Staffed by call back B-1 Mini-Pumper Staffed with cross trained personnel or call back Staffed with cross trained personnel or call back Station 1 B-2/HM – 1 Type 6 wildland Staffed with cross trained personnel or call back Staffed with cross trained personnel or call back Engine 2 Pumper 4 3 Station 2 L – 1 Aerial Ladder Staffed by call back Staffed by call back Total On-Duty Staffing 8 6 Bozeman FD assigns apparatus and personnel to respond to incidents based on both the location of the event and the type of event occurring. Bozeman FD Policy Number 502.01 - Minimum Initial Emergency Response Protocol provides for an “adequate and uniform level of response to standard types of incidents consistent with customer needs and responder safety.” Response protocols for the department are based on type of call, and in the case of extrication the location, either within the city or a county location (Figure 40). Figure 40: Bozeman FD Standard Response by Type of Call Incident Type Engines Ladders Command Mutual Aid E1 or E2 Call back 130 Public service By type of request EMS, MVA, Rescue E1 or E2, or both Structure fires E1 and E2 Call back HAZ/Materials E1 and E2, All call County extrication E1, and call back to maintain min. manning Vehicle fire 1 engine Wildland Brush 1, and E1 or E2 131 Other incidents Discretion of officer in charge 30 All six of the staff vehicles are equipped to operate as command units. 31 All six of the staff vehicles are equipped to operate as command units. Bozeman Fire Department - Montana 2006 – Fire Protection Master Plan 88 It can be seen that inadequate staffing for a low-risk incident is typical for the initial response from the stations at the time of dispatch. Inadequate manpower is available for initial critical tasking at moderate and high-risk incidents. In order to assess the adequacy of Bozeman FD’s staffing methodology, we analyzed historical incident data to determine the number of staff recorded as on-scene for incidents of various types. Data was analyzed for 2004. The figures do not reflect staffing provided by mutual or automatic aid companies. The following Figure 41: Incident Staffing Analysis – 2004 provides the average staffing performance by call type for Bozeman Fire Department. Several conclusions can be drawn from the data. Staffing figures for most non-structure fire and service calls are four or more with a two station configuration. Figure 41: Incident Staffing Analysis – 2004 Category Average Staffing Fire 4.04 Other 3.51 EMS 3.01 Grand Total 3.18 Average staffing figures for structure fires (typically representing medium-risk occupancies) is currently at nine firefighters, according to the department’s data. When compared to the sample critical tasking chart, it can be seen that the current performance provides a little more than one half of the manpower necessary to complete all of the critical tasks listed (15). Failure to ensure adequate manpower to accomplish the critical tasks listed in the chart will result in relatively predictable outcomes of advancing fire spread, increased dollar loss, and potentially increased scene safety risks. Staffing Performance By Type Of Call: 2004 0246810 Fires Structure Fires Overpressure, Rupture, Explosion-no fire EMS Hazardous Condition Service Call Good Intent Call False Call 90th Percentile Average Bozeman Fire Department - Montana 2006 – Fire Protection Master Plan 89 High and maximum-risk incidents are not analyzed here since these types of incidents typically involve the extensive use of mutual aid companies in a regionally coordinated response. Mutual and Automatic Aid Bozeman FD has mutual aid agreements with all surrounding fire departments. Through these agreements Bozeman FD can gain, within a ten to 15 minute time period, additional firefighters and response units. Bozeman reciprocates to its neighboring departments. No automatic aid or “dropped border” (closest unit response) agreements are in effect. Nearly all persons interviewed indicated insufficient training occurs between fire departments. In some cases, use of volunteers and tension between departments was identified as the problem, while others said it just wasn’t a “high enough priority.” For the most effective mutual and automatic aid programs, as well as maximum credit in the ISO Fire Suppression Rating Schedule (FSRS), additional multi-agency drills must be scheduled. Ideally, these should occur at least once per quarter and be recorded as multi-agency training in all agency records. In addition to the ISO credit, these trainings will naturally lead to enhanced working relationships, more regional thinking, and perhaps cooperative planning, policy, and procedural development. Overall, the mutual aid systems in place for the Bozeman FD appear to be adequate. Fire department leadership in all agencies should continue to address issues that impede working relationships, and make corrective adjustments to improve the response system. Hazardous Materials Response The Bozeman Fire Department is trained and equipped to provide hazardous materials response at the “technician” level. The technician level permits offensive operations for purposes of containment, and aggressive forward tactical efforts focused on corrective action, clean-up, or handling of hazardous substances (with a few exceptions).32 The Bozeman FD, hazardous materials response team is one of the six regional hazmat teams in Montana. It is a local city/county team which will respond regionally if requested by the state. Bozeman FD personnel receive Technician Level training during the first year of employment. Training competencies are tracked using a hazardous materials competency handbook. The city is fortunate to have this level of resource available locally. 32 OSHA CFR 1910.120(q) (6) (ii) Bozeman Fire Department - Montana 2006 – Fire Protection Master Plan 90 Homeland Security Integration Fire departments are considered First Responders in the national systems for homeland defense and security. Recent changes in the structure of the federal government have placed the United States Fire Administration (USFA) under the umbrella of the Department of Homeland Security. Given this status, emergency service agencies should continue to assess their capabilities for response and integration into larger incidents involving acts of terrorism or threats to national defense. The Bozeman Fire Department’s response area is not a likely primary target for an act of terror. It does not contain sensitive military or government facilities, nor is it home to any high-profile institutions or enclaves of controversial immigrant societies. The area is far more likely to be a secondary, collateral damage area in the event of a significant act of terrorism. While this may be of some comfort, it should be remembered that acts of domestic terror can also have significant and far- reaching effects on even small communities, and that acts of international terrorism can go awry, as in the case of rural Pennsylvania on September 11, 2001. From the standpoint of first responders, the results of an act of domestic or international terrorism will typically fall into one or more categories: • Large fire and/or explosion accompanied by fire • Mass casualty incident (MCI) • Hazardous substance release • Secondary threat (timed or triggered event following arrival of first responders) Emergency agencies are, to some degree, trained to respond and mitigate the first three categories in this list. However, this statement is not intended to oversimplify the challenges. The resulting incident caused by an act or terror can be much larger, more complex, and more demanding than most local incidents that might fall into these same major categories. Still, the agencies must rely on the same training, procedures, command structures, and strategies that are taught for such incidents. The primary key to success will be familiarity with response plans for such incidents, practice, and integration with other agencies at the regional, state, and federal level. Bozeman has at least some level of planning and procedure in place for large fires, mass casualty incidents, and hazardous substance releases. Additional training on the recognition and response to incidents with likely secondary threats to first responders will continue to help prepare personnel. Bozeman Fire Department - Montana 2006 – Fire Protection Master Plan 91 And, of course, the agency should continue to seek out additional, advanced training on the following areas: • Explosions and threats • Conflagration fire incidents • Mass casualty incidents • Radiation response strategies • Large-scale quarantine, containment and decontamination • Hazardous substance response, evacuation, containment, and decontamination • Regional and federal incident command strategies As in our discussions dealing with hazardous materials response, the cost of establishing and maintaining capability for full response to incidents involving weapons of mass destruction (WMD) is extremely high and best handled through the development of regional, state, or federal programs. This regionalized approach is also encouraged by those federal and state agencies responsible for distribution of grant funding for homeland security programs. Bozeman should encourage and support any additional efforts at regionalization of first responder training and preparation in homeland security issues. In addition, the department should aggressively seek out and respond to grant opportunities afforded to local communities for first responder equipment and supplies. Insurance Services Office The Insurance Services Office (ISO) last rated the Bozeman Fire Department in 1999. The ISO assigned the city a class 5 rating for all properties within 1,000 feet of a fire hydrant. The ISO uses a 1 – 10 rating scale with class 1 being the best level of service (and lowest fire insurance premium cost) and class 10 being no service at all. The ISO reviews fire protection in three major categories. These categories, and the credit received for the city rating, are shown below. Communication (10%) – This evaluates the function and reliability of the dispatch service. The department received 6.75 percent out of a possible ten percent in this category. Water Supply (40%) – This evaluates the community’s ability to deliver firefighting water in sufficient volumes to combat fires in buildings. The city received 38.70 percent out of a possible 40 percent. Fire Department – (50%) – This evaluates the capability of the fire department to effectively respond to and extinguish a fire. Items reviewed include apparatus, staffing, training, and station locations. Bozeman Fire Department - Montana 2006 – Fire Protection Master Plan 92 The city received 21.28 percent out of a possible 50 percent. Items noted in the ISO report indicate that the ISO looked critically at were; distribution of first due engine companies and truck companies, the amount of equivalent fire fighters and company officer on duty, and training. Improvement in any of these areas may result in a better ISO classification. The total percentage credit received was 55.91.33 In order to achieve the next lower rating the city would need at least 60 percentage points of credit. The ISO rating is important to a community. Many property insurance companies base the fire risk portion of property insurance premiums on the community’s ISO rating. As the ISO class improves, fire insurance rates decrease dramatically until class 5 for homes. Businesses generally benefit from further reductions down to class 1. “Virtually all U.S. insurers of homes and business property use ISO's Public Protection Classification in calculating premiums. In general, the price of fire insurance in a community with a good PPC is substantially lower than in a community with a poor PPC, assuming all other factors are equal.”34 ISO reviewed the cost of fire claims per thousand dollars worth of insured property by PPC for communities around the country. Based on five years of data for homeowners and commercial property insurance show that the communities with better classifications experienced noticeably lower fire losses than the communities with poorer classifications.35 National Benchmarks and Comparables There are a variety of other standards and performance criteria developed by various organizations with an interest in fire and emergency services. The Figure 42 that follows lists a number of these. 33 ISO subtracts points when the quality of the fire department and the quality of the water system are significantly different (divergence). In the 1999 survey 10.83 percentage points was subtracted for divergence. 34 ISO's Public Protection Classification (PPC) Service gauges the capacity of the local fire department to respond if flames engulf a property in which your company has a financial stake. 35 ISO, Jersey City, N.J, ISO’s PPC Program, Better fire protection — as measured by the PPC program — leads to lower losses. According to loss data collected by ISO from insurance companies for accident years 1994 to 1998, 2001 Bozeman Fire Department - Montana 2006 – Fire Protection Master Plan 93 Figure 42: Table of Benchmark Comparisons National Standard or Comparison Organization Current BFD Standard Minimum effective company staffing is 4 firefighters Dallas Fire Dept. Study, Seattle Fire Dept. Study, NFPA Standards., Federal OSHA Current staffing levels for engines is 3 firefighters 4-person company assembled at scene using 2 engines Engine company within 1.5 miles of built upon areas Insurance Services Office (ISO) Not met Ladder truck within 2.5 miles of built upon areas Insurance Services Office (ISO) See footnote36 Staffed ladder truck if 5 or more buildings exceed 35’ high Insurance Services Office (ISO) Not met Average fireground staffing to be 15 firefighters (up to 53 at mall, high rise, etc.) Commission on Fire Accreditation International (International Association of Fire Chiefs) This benchmark would not be met with on duty staff alone, requiring call back or mutual aid. National average of on-duty personnel = .48 per 1,000 population International City/County Management Association (ICMA) Current strength is .25 per 1,000 population National average total uniformed, full-time personnel = 1.59 per 1,000 International City/County Management Association (ICMA) Current strength is .93 per 1,000 population Arrive at structure fire prior to flashover (typically 5 to 7 minutes from ignition) FEMA , National Fire Academy Overall average is 6 minutes and 29 seconds.37 Arrive at EMS call within 4 to 6 minutes of cardiac or respiratory arrest American Red Cross Overall average is 6 minutes and 29 seconds.38 36 It appears that the downtown urban core area is within the 2.5 mile coverage. There are however, areas of significant commercial development, including the hospital and industrial areas along and on the northern side of I-90 that are not within the ladder company response area. 37 The 90th percentile response time for all incidents occurring within the primary response areas is 10 minutes and 10 seconds. 38 The 90th percentile response time for all incidents occurring within the primary response areas is 10 minutes and 10 seconds. Bozeman Fire Department - Montana 2006 – Fire Protection Master Plan 95 Objective Nine – Training Providing quality and safe fire and emergency services requires a well-trained response force. Training and education of department personnel are critical functions for the department. Without a quality, comprehensive training program, emergency outcomes are compromised and departmental personnel are at risk. General Training Competencies In order to ensure quality training is provided it should be based on established standards of good practice. There are a variety of sources available for training standards. Bozeman Fire Department uses the International Fire Service Training Association (IFSTA) and National Fire Protection Association (NFPA) as its sources of standards and training materials. Both are considered industry standards. Hazardous materials’ training is offered during the first year of employment. Bozeman FD has a regional hazardous materials team, so on-going training in this area is critical. Training of members is tracked and documented by using a hazardous materials competency handbook. Training Facilities Bozeman FD Fire Station 1 is designed to provide an efficient training environment. The facility, in addition to operating as an active in-service fire station, provides formal classrooms, standard AV equipment, computer projection capability, and a training library. Governing body support for training is evident; however training budgets have been reduced every year across the board within the city. There is a concern within the Bozeman FD that these cuts have delayed further development and improvements to the training facility A drill ground area with appropriate props and a well designed drill tower providing hose, ladder, and other “hands-on” training opportunities is being developed. Providing quality training props and tools to support training efforts should continue to be a priority for fire department. Quality training occurs when simulations are created that closely mimic real life emergencies. Bozeman Fire Department - Montana 2006 – Fire Protection Master Plan 96 Figure 43: Training Building and Prop Training Staff The Training Officer position was instituted three years ago. This position is the first of its kind in over 30 years for the Bozeman FD. The position is under the direction of the Fire Chief and is within the IAFF bargaining unit. The training program is under the direction of a 22 year veteran member of department. The training officer position does not equate to any specific rank within the department, thus the ability to enforce training standards, schedules, and training performance could be compromised. Program managers like the training officer should posses the appropriate rank and authority to direct personnel and set guidelines regarding training of department personnel and be part of the management structure, and not in the bargaining unit. A comprehensive job description should clearly outline duties, authority, and other specifics of the position. Entry Level Training Bozeman Fire Department participates in the Montana Firefighter Testing Consortium. Typically, a joint testing process is conducted every year during June for development of a list of qualified candidates for the position of entry-level firefighter. State-wide recruitment is conducted; applicants are given one aptitude test followed by pass/fail physical agility, (IAFF, CPAT). The process followed by the Consortium meets or exceeds all applicable laws and guidelines. Participating in the process with Bozeman are the Montana fire departments of Billings, Helena, Great Falls, Miles City, Kalispell, Butte, Missoula, and Missoula Rural and Lockwood fire districts. Check off of required skills and knowledge is required before being certified as a firefighter 1. All members receive wildland firefighting training from the State of Montana. Annual recertification is documented for survival training. Bozeman Fire Department - Montana 2006 – Fire Protection Master Plan 97 Ongoing Skills Maintenance Training Once assigned to a response unit, personnel must be continually provided with refresher training to avoid degradation of skills learned during entry-level training. In addition, training must be provided to deal with emerging risks and service demands. In most departments, company officers are expected to provide assistance with ongoing training to the personnel at their station. Bozeman FD is moving toward greater involvement with training delivery and is developing a “Team” training program. The program objective is to have company officers play a greater role in the training program and training their shift personnel. While we applaud the efforts to have company officers provide training delivery, it is important to make sure that three separate training programs are not in play within the department. The training officer should insure that lesson plans are developed and approved, easily accessible, training objectives and measurements are clearly defined, and record keeping and documentation is seamless throughout the department. Frequent monitoring and mentoring of the officers during training sessions by the training officer is important for continuity among personnel. Annual training contact hours reported by BFD for 2004 totaled 1,761 hours and increased to 2,108 hours in 2005. The number of training hours in 2005 increased over 16 percent from 2004. For the first quarter of 2006 the department has recorded a total of over 1,500 hours of training! These figures do not include 50 hours of EMS related training per firefighter required annually. Career Development Training National standards recommend that personnel demonstrate the skills and knowledge required prior to being promoted to a more responsible position within the organization. Pre-promotional training is often provided to ensure candidates for promotion meet the minimum educational requirements for the position. Then the promotional process is used to select the most qualified individual based on a demonstration of proficiency. The Bozeman FD does not formally provide organized pre-promotional training to potential or aspiring officers. The National Fire Protection Association has standards for each of the company officer positions. The fire officer standard is NFPA 1021. Other standards exist for specialty skills. Pre-promotion training programs should be developed and completion required of personnel prior to application for promotion. This kind of training is best performed in an academy setting with consistency in instruction and ample opportunity for student/instructor interaction. Officers at the Bozeman Fire Department - Montana 2006 – Fire Protection Master Plan 98 station can provide some training, but the majority should be in a more formalized setting. The promotional process should effectively evaluate applicants to determine who best demonstrates the skills and knowledge required of the position. Training Program Planning Like any other activity training and education of personnel should be conducted under a comprehensive plan. This plan should include a clear definition of the goals and objectives of the training program, and a schedule of training activities to achieve them. A department training committee could help formulate this plan. Bozeman FD makes some effort at training program planning through their annual budget process and the formulation of the annual training schedule by the training officer. Ideally, a comprehensive training plan includes: • Identification of performance standards for all personnel. • Provisions for periodic review of individual and company level performance. • Scheduled training to prevent skills degradation. • Scheduled skills improvement training. • Comprehensive training objectives for each training session presented. • Process for evaluating the amount of learning that occurred. • Scheduling outside training opportunities Multi-agency drills were not noted to be a common practice of the Bozeman Fire Department. More emphasis on developing operational efficiency with other fire service agencies in the region is critical and should be a high priority in the future. We believe that is imperative for departments that work together during emergencies; joint training is a critical step in the outcome of emergency events. The level of risk in the City of Bozeman is high and department resources are minimal. For Bozeman FD to create a depth of resources, they must include all the surrounding agencies in a comprehensive response plan that must include routine joint training. Competency Based Training Ongoing training should follow an identified plan based on demonstrated training needs. Such a plan is best developed as a result of periodic evaluation of the current skill levels of employees and members (competency based training). Bozeman Fire Department - Montana 2006 – Fire Protection Master Plan 99 Under a competency-based system, an evaluation of skill performance is conducted at scheduled intervals to determine if the person being evaluated can perform the task in accordance with pre- determined standards. Those skills that are performed well require no additional training. Those skills not performed well are practiced until the standard is met. This approach maximizes the time used for training. Further it ensures that personnel are performing at an established level. Specialty skills can be evaluated in the same manner with further training provided as needed. Ideally the competency based training approach is used on an ongoing basis. For example, each quarter different skills are evaluated on an individual-by-individual basis. To institute a competency-based approach to training, all of the needed skills must be documented to describe the standard of performance expected. This would include all skills such as hose handling, apparatus operation, EMS procedures, use of equipment and tools, forcible entry, ventilation, tactics and strategy, and others. To operate an effective ongoing training program, even under the competency-based approach, sufficient resources must be available to conduct skill evaluations and to assist with performance improvement training. Training Records and Reports Training records are maintained on a record management system (RMS) using Sun Pro™ software designed for that purpose. The system is able to provide reports showing the amount of training received by each employee/member by category, by hour. This is an excellent resource for the department to assist in developing long-range training and education plans. Continued training of company personnel in the use of the RMS should be ongoing. Bozeman Fire Department - Montana 2006 – Fire Protection Master Plan 101 Objective Ten – Fire Prevention An aggressive fire, medical, and accident risk management program, through active prevention efforts, is a fire department’s best opportunity to minimize the losses and human trauma associated with fire and medical emergency events. The International Association of Fire Chiefs has defined proactive emergency services as: “…embracing new, proven, technology, and built-in protection, like automatic fire sprinkler and early detection systems, combined with an aggressive code enforcement and strong public education programs.” A fire department should actively promote fire resistive construction, built-in early warning and suppression systems, and an educated public that is trained to minimize their risk to fires, accidents, and medical emergencies. Background As a duly formulated municipality in the State of Montana, the City of Bozeman has adopted the following Codes and Standards: National Fire Protection Association Standard 1, Uniform Fire Code UFC 2003. The Bozeman FD Chief has authorized the deputy chief/fire marshal to enforce the fire code in the City of Bozeman. In-service, on shift, fire suppression personnel are not used to complete inspection and/or testing duties. There are two full time fire and life safety specialist positions whose primary responsibility is to conduct plans reviews. New Construction Review The fire department is a member of the city’s Development Review Committee (DRC). This committee meets weekly to review proposed construction projects. Fire and life safety plans are required for new construction. The Bozeman FD fire prevention office reviews new construction plans in cooperation with the city building department for the requirements of the fire code. The fire department has “sign off” approval for new construction prior to issuance of a certificate of occupancy by the building official. Observation and interview indicates a good working relationship between the city building official and the deputy chief/fire marshal. Bozeman Fire Department - Montana 2006 – Fire Protection Master Plan 102 Fire Safety Inspections When listing the three most critical issues facing the Inspection Division, the following were identified: • Existing Occupancy Inspections especially downtown district. Currently, inspections are infrequent, and not on regular inspection schedule. The only trigger for inspections is through the City of Bozeman Business License Program. • Staffing. The three FTE’s currently in the Inspection Division are involved in new construction plan reviews, meeting with developers and others in the development community, leaving little time to deal with existing occupancy inspections except on a case by case basis. • Growth in new construction. As cited in the above bullet, this issue will continue to be exacerbated due to continued growth in the community, putting additional strain on already limited resources. Property inspections to find and eliminate potential fire hazards are an important part of the overall fire protection system. The recommended frequency for commercial fire safety inspections varies by the type of business. Generally, they are classified by degree of hazard. The table (Figure 44) below describes the various hazard classes and the recommended frequency for fire safety inspections by class. Figure 44: Inspection Frequency Recommendation Table Hazard Classification Example Facilities Recommended Inspection Frequency Low Apartment common areas, small stores, and offices, medical offices, storage of other than flammable or hazardous materials. Annual Moderate Gas stations, large (>12,000 square feet) stores and offices, restaurants, schools, hospitals, manufacturing (moderate hazardous materials use), industrial (moderate hazardous materials use), auto repair shops, storage of large quantities of combustible or flammable material. Semi-annual High Nursing homes, large quantity users of hazardous materials, industrial facilities with high process hazards, bulk flammable liquid storage facilities, a facility classified as an “extremely hazardous substance” facility by federal regulations (SARA Title III) Quarterly Bozeman FD’s goal is to inspect high hazards and high priority facilities annually. The inspection program needs to be modified to reflect a more aggressive approach. The fire prevention bureau recognizes that the inspection program needs improvement and is working to improve the program. Bozeman Fire Department - Montana 2006 – Fire Protection Master Plan 103 There needs to be a defined objective for the frequency of inspections based on the level of risk and a concerted effort to achieve this objective. Life and Fire Safety Education Providing fire safety education to the public to minimize the occurrence of fire and train the community in appropriate actions to take when faced with an emergency is a very important fire protection strategy. The deputy chief/fire marshal is the public education/information officer for the department. Public fire safety education is conducted by the fire prevention bureau on an as-can basis due to workload demands and insufficient staff resources. Fire station personnel provide station tours by request. Additionally, engine company personnel are involved during Fire Prevention Week activities. Educational activities for the fire prevention bureau and engine company personnel include Fire Prevention Week activities, Exit Drills in The Home (EDITH), smoke detector education, and injury prevention. Bozeman FD also meets, when requested with various civic and community service groups to present information about the fire department and fire safety. Educational brochures are available to the public but are not in bi-lingual format. Bozeman FD participates in a juvenile fire setter program and offers wildland interface education in partnership with DES. The public education program could be expanded significantly by using the existing core of career staff personnel, under the supervision of the deputy fire chief/fire marshal, to recruit, train, and direct groups of community based volunteers. Retired or interested citizens could be mobilized to provide community fire and life safety training. This type of program involvement not only expands the reach of community fire safety education, but provides an opportunity for members of the community the opportunity to be part of a positive community endeavor. Fire Investigation The investigation of fires, explosions, and related emergencies is an integral part of providing life and fire safety services to a community. The deputy fire chief/fire marshal is responsible for fire cause determination and is also a member of the Investigation Arson Task Force in Gallatin County. Fire investigation reports as they related to the incident report are kept in SunPro. The department maintains separate hard copy fire investigation folders for Task Force and city fire investigations. Bozeman Fire Department - Montana 2006 – Fire Protection Master Plan 104 Data on fire cause is not used for planning or analyzed for trends as much as deputy fire chief/fire marshal would like due limited time of personnel. Community fire problems are addressed by a cycle of resources provided by the authority having jurisdiction. These resources include public education so the citizen is aware of hazards, how to prevent them, and what to do should they occur; engineering/code enforcement so fire and life safety is an inherent part of the community infrastructure and where there is a violation compliance is achieved; and finally, fire suppression so that when there is a failure in the education, engineering/code enforcement portion of the cycle the emergency can be resolved; and fire investigation where the incident is documented, the cause determined accidental or intentional and steps taken so it will not happen again. The results of fire investigations should suggest education needs, the need for code modifications and changes, fire department training practices, resources and deployment of resources, and identification of the community’s fire problem. Bozeman FD has all the pieces of the cycle, however while public education, engineering/code enforcement, fire suppression, and fire investigation services exist; they have little or no formal interface. The services operate within the same department, but do not necessarily collect, share, and/or analyze data together. The deputy fire chief/fire marshal and plans reviewers are busy mired in the “today and now” work that must be accomplished, leaving little time for analysis, planning and program enhancements. Incident Information Analysis The primary purpose for maintaining a record of emergency responses is to evaluate the effectiveness of fire/rescue programs and performance. This effort includes deployment strategies, training requirements, and the effectiveness of fire prevention, code enforcement, fire investigation, and life safety education programs. If a coordinated data collection and analysis process is in place, incident records may be used to quickly and continuously determine, as an example, what types of incidents are occurring most frequently, the types of properties most often involved in fire, causes of ignition, and other factors to assist with targeting fire prevention and accident prevention efforts and future departmental resource needs. Bozeman Fire Department - Montana 2006 – Fire Protection Master Plan 105 Bozeman FD: Summary Table Organizational Recommendations What follows is a compilation of recommendations and strategies designed to improve the efficiency and/or effectiveness of the Bozeman Fire Department. The suggestions offered by ESCi associates are derived from our analysis of the existing emergency system as detailed in Section I of this report. Recommendations and comments are based on experience with similar fire and emergency medical agencies, and categorized in accordance with the ten objectives of Section I. This is intended as a management reference to be used by the leaders of the city and fire department to aid in forthcoming planning and management activities. Because of that, the discussion and rationale behind each of the recommendations is not included here; that information may be found in the appropriate chapter of Section I as referenced below. In keeping with the advisory nature of most of these comments, none is listed in order of importance or priority. Summary Table of Short and Mid-Term Organizational Recommendations Objective Reference Context Reference Recommendation Objective One – Organizational Governance Organizational Structure on page 5 We recommend the addition of an administrative staff position to direct the emergency operations section of the department.39 Objective One – Organizational Governance Organizational Structure on page 5 The review of job descriptions should be given a high priority of importance and completed in a timely manner. Objective One – Organizational Governance Maintenance of History, on page 7 Designate a fire department historian. A historian should be specifically charged with documenting "historic" events, activities, personnel changes. Objective One – Organizational Governance Maintenance of History, on page 7 We recommend that Bozeman Fire Department consider placing more emphasis on developing an annual report in a format that can be used by the department for multiple purposes. Objective Two – Organizational Management Mission, Vision, Strategic Planning, Goals, and Objectives, on page 11 We recommend that accompanying a review of the mission statement, the department should develop a set of core values. Objective Two – Organizational Management Availability of SOGs, Rules, Regulations, and Policies, on page 12 The department should undertake a process that affords for development of new and at minimum an annual review of department rules, regulations, and SOGs. 39 Note: This position was budgeted for in the fiscal year 2006 – 07. Bozeman Fire Department - Montana 2006 – Fire Protection Master Plan 106 Summary Table of Short and Mid-Term Organizational Recommendations Objective Reference Context Reference Recommendation Objective Two – Organizational Management Critical Issues, on page 13 We recommend that adopting a “boundary drop” or an automatic aid agreement should become an element of the county system. Objective Two – Organizational Management Critical Issues, on page 13 The fire department should consider the use surveys, when appropriate. Objective Two – Organizational Management Internal and External Communications, on page 14 The Bozeman FD could use neighborhood/community newspapers and newsletters as a way to distribute fire department and prevention related information. Objective Two – Organizational Management Internal and External Communications, on page 14 The department should consider a standing advisory committee made up of local citizens. Objective Two – Organizational Management Internal and External Communications, on page 14 Develop a formalized complaint process for handling issues of service delivery. Objective Two – Organizational Management Document Control and Security, on page 15 The fire department should employ an asset security system to gain a firm control of its assets. Objective Two – Organizational Management Reporting and Records, on page 16 The department should submit NFIRS reports to the state.40 Objective Three – Planning for Fire and Emergency Medical Protection Organizational Planning Processes, on page 19 We recommend the fire department develop a strategic plan. Objective Three – Planning for Fire and Emergency Medical Protection Tactical Planning, on page 20 We recommend that the fire department develop Uniform Pre-Incident Plans in conjunction with the other fire departments in Gallatin County. Objective Three – Planning for Fire and Emergency Medical Protection External Customer Planning Involvement, on page 22 Develop an external customer planning group. The successful Montana State University fire department collaboration project could serve as a model. Objective Four – Risk Management Health and Safety, on page 26 The Bozeman FD should continue with the work in progress on the established physical fitness program. Objective Seven – Capital Assets and Resources Bozeman FD Fire Station 1, on page 43 Recommend an energy audit and seismic review be conducted on building, and modification of street access from apparatus bay. 40 While not done in many years—the fire chief has resolved to begin forwarding the data again this year. Bozeman Fire Department - Montana 2006 – Fire Protection Master Plan 107 Summary Table of Short and Mid-Term Organizational Recommendations Objective Reference Context Reference Recommendation Objective Seven – Capital Assets and Resources Bozeman FD Fire Station 2, on page 44 Replacement of this facility is strongly recommended because of a lack of property for modification and continued encroachment from street widening. Objective Seven – Capital Assets and Resources Support and Small Equipment, on page 46 Consider establishing a small equipment replacement plan. Objective Seven – Capital Assets and Resources Apparatus Maintenance, on page 47 Develop a written policy or SOG for apparatus committee membership and function. Objective Seven – Capital Assets and Resources Hose Testing, on page 48 Investigate the cost effectiveness and efficiencies of outsourcing hose testing to a certified hose testing company. Objective Eight – Service Delivery Bozeman FD Response Performance Objective, on page 81 We recommend that the City Commission of the City of Bozeman adopt and maintain a time objective for Bozeman FD emergency response in accordance with appropriate NFPA Standards. Bozeman Fire Department - Montana 2006 – Fire Protection Master Plan 109 Section II- System Demand Projections Community Growth Potential Current Population Information The Bozeman Fire Department provides primary fire protection services to all of the City of Bozeman in Gallatin County. The population of the city was 27,509 in the 2000 U.S. Census41. However, the Census Bureau has estimated some increase since the 2000 census and the city’s population was estimated at 32,414 in 2004.42 For the city, this population figure represents a significant 43 percent increase over the 1990 Census, when the population of the City of Bozeman was 22,660. The most significant portion of growth within the Township has clearly occurred through additional housing development, since over 24 percent of the total housing in City of Bozeman has been built since 1990. The following chart provides some historical information on population for the City of Bozeman. Figure 45: City of Bozeman Population Growth History Population History; 1970 - 2004 0 5,000 10,000 15,000 20,000 25,000 30,000 35,000 19701980199020002001200220032004 0.00% 1.00% 2.00% 3.00% 4.00% 5.00% 6.00% Population Growth Rate 41 2000 U.S. Census Table SF-1 and SF-3 42 Population estimate for 2004 was based on a 2000 Estimate Base of 27,686, reflecting modifications to the 2000 Census official figure as documented in the Count Question Resolution program and other program revisions following the 2000 U.S. Census. Bozeman Fire Department - Montana 2006 – Fire Protection Master Plan 110 A more recent study shows that the population of the City of Bozeman is growing at a faster rate than is reported by the U.S. Census Bureau. The following figures (Figure 46, Figure 47, and Figure 48) provide some general demographic information on population and housing for City of Bozeman41. Figure 46: City of Bozeman Population by Age Demographics - Population By Age 0 2,000 4,000 6,000 8,000 10,000 12,000 14,000 Age <55 to 2425 to 4445 to 5455 to 6465 to 7475 and up Figure 47: Selected Demographic Changes 1990 – 2000 Selected Demographic Information- 1990 to 2000 Total Population Age <5 5 to 24 25 to 44 45 to 54 55 to 64 65 to 74 75 and up 2000 27,509 1,366 12,110 7,869 2,781 1,183 885 1,315 1990 22,660 1,288 9,720 7,096 1,439 1,061 1,091 965 change 21% 6% 25% 11% 93% 11% -19% 36% Percent of Population under age 5 5% Percent of Population over 65 8% As can be seen from the figure, eight percent of the population is 65 years of age or older and five percent of the population is under five years of age, placing a total of 13 percent of the area’s population within the significant target age groups that pose the highest risk for fatalities in residential fire incidents. It is also worth noting that the number of residents over the age of 75 has increased by 36 percent since 1990, a change that can be expected to create a significant increase in service demand for emergency medical incidents. Bozeman Fire Department - Montana 2006 – Fire Protection Master Plan 111 Figure 48: City of Bozeman Housing by Occupancy Demographics - Housing By Occupancy 6,214 700 4,663 10,877 0 2,000 4,000 6,000 8,000 10,000 12,000 Housing UnitsOwner OccupiedRenter OccupiedVacant Figure 49: Selected Housing Changes 1990 – 2000 Selected Housing Information- 1990 to 2000 Housing Units Owner Occupied Renter Occupied Vacant 2000 10,877 4,663 6,214 700 1990 8,751 3,519 5,232 366 Percent Change 24% 33% 19% 91% From the demographic information reviewed here, it is projected that City of Bozeman should experience a slightly higher demand for emergency services in comparison with other communities of its size. It is also useful to assess the distribution of the population within the City of Bozeman, since there is a direct correlation between population density and service demand. The following map displays the population density of the city, based on information from the 2000 U.S. Census. Bozeman Fire Department - Montana 2006 – Fire Protection Master Plan 112 Figure 50: City of Bozeman Population Density Bozeman Fire Department - Montana 2006 – Fire Protection Master Plan 113 Census-based Growth Projections As indicated earlier in this section, the population of City of Bozeman has increased in the last decade. We anticipate that additional growth will continue into the future. In developing forecasts for population growth, we typically develop a forecast based on several decades of census experience. In the case of the City of Bozeman, we used decennial census figures from 1970 through 2000. A mathematical forecast is created through the year 2024. The resulting population forecast appears as follows in Figure 51: Census. Figure 51: Census Based Population Forecast Population Projection By Census Experience 30,000 31,000 32,000 33,000 34,000 35,000 36,000 37,000 38,000 39,000 Population 31,05531,79832,54233,28534,02934,77335,51636,26037,00337,747 2006200820102012201420162018202020222024 Development-based Growth Projections While census-based population projections provide a mathematically based estimate of future population based on historical data, they often fail to account for expected trends in the growth rate of an area. These changes often result from redevelopment, annexation, changes in employment capacity, or other socio-economic factors not reviewed in a census-based projection. For this reason, we also offer population projections based on review of available local development and business information. Bozeman Fire Department - Montana 2006 – Fire Protection Master Plan 114 In this case, we reviewed information available from the City of Bozeman Comprehensive Plan and believe it to more accurately reflect the growth that will occur over the next twenty years. The resulting population forecast appears as follows in Figure 52: Development. Figure 52: Development Based Population Forecast Population Projection By Development Forecast 30,000 32,000 34,000 36,000 38,000 40,000 42,000 44,000 46,000 48,000 50,000 Population 37,16738,38339,60041,00042,40043,80045,20046,60048,00049,400 2006200820102012201420162018202020222024 The development-based population forecast is significantly higher than the census-based population forecast primarily due to local and regional influences that are expected to expand development opportunities, including annexation, additional transportation improvements, and adequate water and sewer infrastructure capacity. It is not the intent of this study to be a definitive authority for the projection of future population in the service area, but rather to base our recommendations for future fire protection needs on a reasonable association with projected service demand. Since we know that the service demand for emergency agencies is based almost entirely on human activity, it is important to have a population-based projection of the future size of the community. While we can see variation in the population projections discussed here, one thing that can be certain is that City of Bozeman fire department will continue to be an emergency service provider to a growing population, likely reaching over 50,000 by 2025. Planning should begin now to maintain the resources needed to meet the continuing demand for services. Bozeman Fire Department - Montana 2006 – Fire Protection Master Plan 115 Service Demand Projections In evaluating the deployment of facilities, resources, and staffing, it is imperative that consideration be given to potential changes in workload that could directly affect such deployment. Any changes in service demand can require changes and adjustments in the deployment of staff and resources in order to maintain acceptable levels of performance. For purposes of this study, we utilized population projections obtained through community development research and multiplied these by a forecasted incident rate derived from a two-year history of incident per capita rates to identify workload potential through the year 2024. The results of the analysis are shown, by year and type of call, in the following chart and table (Figure 53). Figure 53: Workload Projection by Type and Year Workload Forecast 0 500 1,000 1,500 2,000 2,500 Fire EMS Other Fire 108113118123128133138143148153 EMS 1,4581,5241,5911,6581,7251,7911,8581,9251,9912,058 Other 497520543565588611634656679702 2007200920112013201520172019202120232025 The increase in actual fire incidents is forecast to be relatively moderate during the study period, but this is a reflection of national trends for fire incident rates per capita and is believed to be a result improvements made in building codes and public fire education during the last three decades. EMS and other emergency service calls not involving actual fires is expected to continue to rise significantly. Bozeman Fire Department - Montana 2006 – Fire Protection Master Plan 117 Community Risk Analysis The fire service assesses the relative risk of properties based on a number of factors. Properties with high fire and life risk often require greater numbers of personnel and apparatus to effectively mitigate a fire emergency. Staffing and deployment decisions should be made with consideration of the level of risk within geographic sub-areas of a community. The community’s risk assessment has been developed based on potential land use within its anticipated future boundaries. These potential uses are found in the city’s development plans and zoning designations. The following map translates land use (potential scale and type of development within geographic sub-areas) to categories of relative fire and life risk. • Low risk – Areas zoned and used for agricultural purposes, open space, low-density residential, and other low intensity uses. • Low to moderate risk – Areas zoned for medium-density single family properties, neighborhood shops, • Moderate risk – Areas zoned for small commercial and office uses, low-intensity retail sales, mixed use, and equivalently sized business activities. • Moderate to high risk – areas zoned for institutional uses such as jails and universities, high- density residential. • High risk – Higher-intensity business districts, industrial, warehousing, and large mercantile centers. Bozeman Fire Department - Montana 2006 – Fire Protection Master Plan 118 Figure 54: Community Risk Assessment Bozeman Fire Department - Montana 2006 – Fire Protection Master Plan 119 The community contains mostly moderate risk and moderate to high risk properties. The predominance of highest risk is located in the city’s central downtown core, along the rail corridor on the north side of the city, and in certain non-residential developments along the Interstate highway. These properties include industrial, heavy commercial, mid-rise, mixed-use, institutional, and multi- family occupancies. The city’s land use patterns generally contribute to development of an efficient fire resource deployment configuration, with the exception of the remote commercial and industrial areas. Aside from these, higher risk properties are not concentrated in the central area of the city, rather they are scattered throughout. Bozeman Fire Department - Montana 2006 – Fire Protection Master Plan 121 Section III- Future Delivery System Models Introduction The agency evaluation contained in this study provides over 100 pages of in-depth analysis of the Bozeman Fire Department and its delivery of services. In the evaluation section, we described our findings and provided a review of current conditions or issues that require the attention of the department. In many cases, these issues require relatively short-term effort or corrective action. However, a Fire Protection Master Plan is intended to provide strategies that are long-term in nature. It is the job of a Master Plan to identify the most critical issues the agency will face over the long haul, out as much as twenty years in the future. We initiated that process in the previous section of this report where we reviewed community growth, identified risks, and evaluated service demands. Now, we will compile the information from that section as well as the evaluation of future service demand to provide a recommended long-term strategy; planning for the growth and development of a healthy BFD organization, capable of providing the services that are valued most by its customers. Bozeman Fire Department - Montana 2006 – Fire Protection Master Plan 123 Future Deployment Recommendations For the City of Bozeman, long term growth plans include annexation of surrounding areas nearly equidistant around the existing city limits. Roughly, this extends the city limits to Story Mill Rd in the east, Patterson Rd to the south, to Chapman Rd. in the west, and to almost Riverside Drive in the north. The planned development in these areas is predominately residential apart from some industrial and commercial areas north of the city by Interstate 90, the railway, and south by the University. Commercial and industrial land uses in Bozeman typically required a higher use of emergency services, and will require attention in strategy development. Contrastingly, the large areas of residential land use, such as planned for the peripheral of the city, historically has less service demand especially in lower units per acre densities. However, any increase in the geography of a city brings the expectation of public services by taxpayers, including fire protection. The following Figure 55: Bozeman depicts the future city limits planned for the year 2020 and planned land use outside the current city limits. The four-minute travel polygons for each current station are placed to illustrate the relationship of this response capability and the planned land uses. Bozeman Fire Department - Montana 2006 – Fire Protection Master Plan 124 Figure 55: Bozeman Future Land Use It can be seen that large areas within the future city boundary and its planned development will be beyond the reach of the response time objective with the current fire stations. New fire stations will be required in areas of development, and especially in areas projected to have higher service demand. The timing of construction should coincide with the projected development timetables to ensure adequate coverage to meet future growth. This will require a long lead-time to procure real property, design facilities, acquire apparatus, hire, and train personnel, and secure funding. It is important to note that even today there exist areas within the current city limits that are outside of the fire departments response time objectives. A projection of future service demand has been developed using several measures developed earlier and appear in the following Figure 56: Projected Service Demand. Information is based on such Bozeman Fire Department - Montana 2006 – Fire Protection Master Plan 125 elements as historic service demand, population density growth, traffic pattern changes, and future land use designations all figure into the future service demand model. Figure 56: Projected Service Demand The previous Figure 56 Projected Service Demand illustrates that although some light to moderate service demand will occur in the planned residential areas, with the core of the city remaining one of the most concentrated areas for service demand. Most of the increased service demand appears north of the city center near Interstate 90 and railroad where industrial and commercial land use is planned, in addition to the area just south of the University campus. The new pattern of service demand will require changes in strategies for deployment of resources to meet response objectives. The following long-term resource deployment strategies are intended to allow the Bozeman Fire Department to continue its existing level of service as growth as the community continues to grow and where possible, improve the level of service toward achieving its target performance objectives. The Bozeman Fire Department - Montana 2006 – Fire Protection Master Plan 126 extensive use of geographic information system (GIS) allows for the scientific modeling of apparatus response times against the road network using appropriate speed levels during straight-aways and turns. This process allows us to evaluate current deployment and future strategies with accuracy and detail. Facilities To determine whether a new station or relocation is necessary, further analysis of how well the existing facility deployment would serve the community in the future is undertaken. In evaluation of the current facility deployment, it was found that twenty-eight percent of the future geographic area can be covered within four-minutes of travel time and that fifty-seven percent of the road miles would also be covered. More importantly however, is the amount of projected service demand that can be reached within four-minutes of travel time with the current facility deployment; this was found to be sixty-one and one half percent. This indicates that the potential to reach a response time objective of ninety percent of calls within four-minutes of travel time for the first due engine company is not possible with the existing facility deployment. Therefore, a new facility or relocation of an existing station(s) is necessary in order to meet this goal. Initial strategy development examines the current facility deployment with respect to gaps in coverage and redundant coverage. In higher service demand areas, redundant coverage can be advantageous as it places more apparatus within proximity of events. Redundant coverage is also helpful to meeting response time objectives should concurrent calls take place. In areas of low risk and lower service demand, this can be inefficient if other higher risk or service demand areas are left underserved or not served at all (gap). Redundant coverage and gaps in current and projected service demand coverage from existing fire stations require priority attention as potential for relocation of a station is a possible strategy. Earlier in the report (Figure 17) the separate four-minute travel time model from each station was presented within their respective response areas (excluding turnout and dispatch processing). As each ‘ring’ overlapped the other, potential redundant coverage was identified. The overlap that exists between Fire Stations 1 and 2 is an area of high service demand and therefore not of much concern in that respect. However there are gaps in coverage in areas of projected high service demand which indicates an investigation of relocation possibilities for either existing station. Bozeman Fire Department - Montana 2006 – Fire Protection Master Plan 127 Station 1 is currently positioned downtown in an area with good public visibility, high service demand, and adequate access routes, but unreliable right of entry to the street for apparatus. The ability to reach Interstate 90 and just north of it justifies its location as one to be maintained. As discussed earlier in this report, Station 2 has several challenges regarding egress from the station and facility adequacy. This station will be considered for relocation if, optimal coverage can be achieved that reduces gaps and redundant coverage. Evaluation of possible relocation of Station 2 yielded little benefit. Multiple evaluations of moving Station 2 in attempt to gain projected service demand coverage versus locating another facility left gaps in coverage which were unacceptable. The general fire station location is good; however, we recommended that this station be replaced with a new facility located in the same vicinity. In the following strategy, specific locations are described for future construction or relocation of fire stations. It should be noted that these specific locations provide the point at which the performance projection data was achieved and represent our recommended “best case” location. It is understood that additional factors such as land availability, zoning, traffic patterns, and so forth, will also impact any decision on a specific fire station site. For these reasons, we suggest that variations to the listed locations are suitable within a range of the equivalent of two or three city blocks. Any such variations will impact the performance projection of the strategy, but not appreciably to render it inaccurate. While we do not expect the peak service demand to change sufficiently as to alter the strategy of facility deployment described during this master plan period, city officials, including the Planning Department, will need to work closely to identify any changes in growth and development that would require a reconsideration of this conclusion. Short Term: One to 18 months The west side of Bozeman (near Durston Rd and Flanders Mill) is an area of recent development. This development may precipitate the applications for permits for neighborhood commercial uses, such as gas stations, retailers, and small shops in the locations depicted on the City’s land use plan. It is recommended that this area be sited for an additional station (Station 4) to provide for coverage beyond Station 2’s response time goal and to handle the moderate service demand that will occur. According to the information received, Flanders Mill Rd. is an unpaved and poorly maintained roadway, but may be paved in the near future. In addition, Oak St. is planned to be extended to Laurel Glen. If these improvements are made, further residential commercial development in this area is likely. Because of this as well as the moderate to high projected service demand near Baxter Bozeman Fire Department - Montana 2006 – Fire Protection Master Plan 128 Drive, the station is recommended in the near vicinity of Oak St. and Flanders Mill. The following figure models response capability on the improved surface of Flanders Mill and the Oak St. extension. Figure 57: Proposed Fire Station 4 Middle Term: Eighteen Months to Five Years The south side of Bozeman below Kagy Ave. is a well developed neighborhood with high density housing and an assisted living facility. This area is also beyond the current fire stations response objective capability and already experiences moderate levels of service demand that is expected to continue. A station (Station 3) should be located within this area. Due to the lack of connectivity access to 19th and Sourdough Road developments those areas is limited, unless can be extended east and west to these streets. If so, response capability for the proposed Station 3 would improve dramatically as a projected high density development off of 19th street south of Kagy would benefit. Also if plans to extend 11th St south to Graf are realized, this would provide access back toward town. Bozeman Fire Department - Montana 2006 – Fire Protection Master Plan 129 Station 3 could then be built at the intersection of Graf St. and the extension of11th St. The following figure models response time for apparatus from this location using the plans for Graf St extension to 19th St., and the 11th St. extension south to Graf St. Figure 58: Proposed Fire Station 3 A recent proposal from Bozeman Deaconess Hospital to develop their parcel into higher density housing and care facilities precipitates this area to be considered for a fire station in the next few years. As the area around the hospital begins to develop, the service demand in that area will increase. This station is projected to have very light to moderate service demand, most of which will be concentrated near the hospital. Currently, this is beyond the four minute response capability of Station 1. As shown in the following figure, Station 5, located on Kagy just east of Highland, would be capable of responding to Interstate 90 in the north, to beyond future city limits in the east and south to almost the end of Painted Hills Rd. Bozeman Fire Department - Montana 2006 – Fire Protection Master Plan 130 Figure 59: Proposed Fire Station 5 Residential development pressure within the southwest section of the planning area has become an area which will demand attention within the coming years. Projected to be an area of light to moderate service demand, it is currently outside the four minute travel time each of the current stations as well as proposed Stations 4 and 3. Locating a station (Station 6) near the corner of Cottonwood and Stucky would enable a fire engine to cover this area within the stated response time objective. The following figure illustrates this location and the modeled area of coverage. Bozeman Fire Department - Montana 2006 – Fire Protection Master Plan 131 Figure 60: Proposed Fire Station 6 The order of these medium term stations may be altered depending on the timing of development near the hospital, and residential growth in area of Station 4 and Station 6. Fire and City Planning Officials should work closely together to monitor the progress of development in each area to coordinate the construction of the stations to precede the growth. Long Term: Greater than Five-Years Because of the projected high growth in service demand on the north side of the city that is beyond the response time goal of the existing stations, a new station is recommended. The challenge in locating a station within this area is three-fold. First, this area has a railroad mainline which can delay emergency response as currently not all railroad crossings are served by trestles, bridges under or overpasses. Adding these types of structures will greatly increase costs. Second, Interstate 90 can provide rapid egress to areas to the extreme northeast and southwest, although this type of roadway Bozeman Fire Department - Montana 2006 – Fire Protection Master Plan 132 limits the connectivity of local streets. Third, the existing arterial roadways in this area flow in a north and south direction; the few arterials flowing east and west limit connectivity. This hampers the capability of emergency response performance and coverage. It is recommended that as the City of Bozeman grows, these issues should be of top concern in development planning. A station (Station 7) is therefore recommended on N. 7th near Flora Lane. This station has some redundancy coincidently with Station 1 and 2 but captures an area just south of Interstate 90, off 19th Ave which currently has moderate to high service demand. With access to the freeway, it can respond to the eastern side and the northwest corner of Bozeman easily. It can also access without railroad crossing delays because a bridge over the railroad exists at 7th and 19th Sts. The northeastern side can be reach via Griffin Drive due to the station’s proximity to this arterial street. The following figure illustrates Station 7’s proposed location and its response capability in four- minutes of travel time. Bozeman Fire Department - Montana 2006 – Fire Protection Master Plan 133 Figure 61: Proposed Fire Station 7 When the response capability areas of the existing and proposed stations are combined, the service area is eighty-two percent covered, and nearly ninety percent of projected service demand is within the response time objective of five minutes (4-minute travel, plus 1-minute turnout). The following illustrates the projected service demand with the proposed facility deployment described in this section. Bozeman Fire Department - Montana 2006 – Fire Protection Master Plan 134 Figure 62: Proposed Facility Deployment Strategy Earlier in this report it was determined that the current response time performance, though improving, was not yet meeting the stated goal of arriving at ninety percent of calls within five minutes (including turnout time). Other factors that may routinely extend response time should be examined for possible improvement. They include; call processing, turnout time, and other factors that may impede response. Other factors affecting response times are concurrent calls and responding from alternate locations such the other station or the training facility. Appropriately placed additional apparatus can help lessen these types of delays in response times. Apparatus At full build out of Bozeman, an additional five fire engines will need to be acquired; one per each proposed new station. No additional truck companies are required to meet the response needs of the department. This is because of Station 2’s access to main arterials for an acceptable level of Bozeman Fire Department - Montana 2006 – Fire Protection Master Plan 135 response to the majority of Bozeman. This is illustrated in the following figure (Figure 63: Truck) using a nine-minute response time model for the truck company (eight-minute travel and one-minute turnout). However, we do recommend that the department invest in a second truck and use cross staffing. Cross staffing of two aerial devices would allow for: • dispatch of a ladder company on all first alarm structure fires, • more efficient use of personnel, • a reduced response time an aerial device to arrive on scene, • built in redundancy, and • a ready reserve unit. It is expected that the second aerial device would also be beneficial in meeting the requirements under the ISO Fire Suppression Rating Schedule. Bozeman Fire Department - Montana 2006 – Fire Protection Master Plan 136 Figure 63: Truck Company Response Area Capability Bozeman Fire Department - Montana 2006 – Fire Protection Master Plan 137 Staffing The Bozeman Fire Department operates with a maximum of four and a minimum of three firefighters per station, on each of the three shifts (two fire stations). Each station responds using an engine with a minimum of three medically trained firefighters. The department exceeds the established operational minimums at a rate of about 33 percent to allow for scheduled and unscheduled absences among emergency personnel. Staffing of the third engine (reserve) and ladder truck is accomplished by initiation of an all-call (Special Resource Response) through dispatch.43 Personnel responding to the all-call typically staff the reserve engine, ladder truck, brush unit, or hazardous materials unit; although some cross staffing is done by on-duty personnel. Principles of management require that the department assure proper oversight and support of the emergency mission by maintaining a cadre of non-emergency managers and technicians. Other fire departments of similar size and character typically maintain between 10 to 20 percent administrative jobs compared to the total number of FTE positions.44 For the purpose of this plan, we use a conservative 15 percent of administrative and support jobs compared to total number of FTEs. The following table (Figure 64 below) details the number of FTEs necessary short-term, to staff and support the recommended apparatus deployment using a three fire station model. It is anticipated that the addition of operational battalion chiefs would provide the necessary supervision of daily operations not available under the present deployment configuration. 43 Bozeman Fire Department, Standard Operating Guidelines, Index Number: 502.01, August 23, 2005 44 Departments with fully functioning EMS and fire prevention divisions tend toward the higher end of the 10 to 20 percent paradigm. Bozeman Fire Department - Montana 2006 – Fire Protection Master Plan 138 Figure 64: Bozeman FD Short Term Staffing Assumption Fire Station Unit Minimum On- Duty Staffing Maximum On- Duty Staffing Total Staffing Engine 1 3 4 12 Haz-Mat Unit Cross staffed with engine 1 personnel Station 1 Battalion Chief 1 1 3 Engine 2 3 4 12 Station 2 Truck 1 Cross staffed with engine 2 personnel Station 4 Engine 3 3 4 12 Operational Staff 10 13 39 Administrative Staff 7.5 Total Staffing 46.5 The next table (Figure 65) illustrates the net effect of this change in comparison to the median number of firefighters on-duty with other western fire departments serving a similar number of residents.45 Figure 65: Bozeman FD Firefighters Compared to Residents, Short Term 2007 1.08 0.73 0.86 0.00 0.20 0.40 0.60 0.80 1.00 1.20 Regional MedianBozeman FD 2005Bozeman FD 2007 Comparison of Firefighters per 1,000 Population Regional Median Bozeman FD 2005 Bozeman FD 2007 45 NFPA, Michael J. Karter Jr., "U.S. Fire Department Profile through 2003", January 2005 Bozeman Fire Department - Montana 2006 – Fire Protection Master Plan 139 As discussed earlier in this report, certain variables and local conditions must be considered when such benchmarks are compared. Certainly, the involvement of the Bozeman FD in emergency management, EMS, and the Building Department influences the outcome. It is important to reinforce that regardless of the raw number of personnel available to a department, what matters most is the actual number of emergency responders the agency is able to produce at an emergency scene. This almost always relates to the actual number of emergency responders available for immediate deployment. Under the short-term staffing assumption Bozeman's career staffing would increase to thirteen personnel on each of three platoons. We note that this number is not necessarily reflective of the actual number of personnel on-duty. Due to sick leave, vacation, injuries, and other circumstances, the actual number of on-duty personnel often falls below the number assigned to each platoon. The minimum staffing level would allow the shift staffing level to fall to a minimum of ten. At 1.10 firefighters per 1,000 residents (2007), Bozeman FD would still be significantly below the ICMA calculated national average of municipal firefighters per 1,000 population (1.59 per 1,000).46 Figure 66: Comparison of Bozeman FD Minimum On-Duty Firefighters 2005 – 2007 18.80 7.00 11.50 0 2 4 6 8 10 12 14 16 18 20 National AverageBozeman FD 2005Bozeman FD 2007 On-Duty Firefighters in Similar Communities National Average Bozeman FD 2005 Bozeman FD 2007 46 FEMA/NFPA, "A Needs Assessment of the U.S. Fire Service", FA-240/December 2002 Bozeman Fire Department - Montana 2006 – Fire Protection Master Plan 140 The following table (Figure 67 below) details the number of FTEs necessary middle-term, to staff and support the recommended apparatus deployment using a six fire station model. It is anticipated that it would be necessary to add administrative staff to support the growth in the city and the additional operational staff. Figure 67: Bozeman FD Middle Term Staffing Assumption Fire Station Unit Minimum On-Duty Staffing Maximum On-Duty Staffing Total Required Staffing47 Engine 1 3 4 10.2 Haz-Mat Unit Cross staffed with engine 1 personnel Station 1 Battalion Chief 1 1 3 Engine 2 3 4 10.2 Station 2 Truck 1 Cross staffed with engine 2 personnel Station 3 Engine 3 3 4 10.2 Station 4 Engine 4 3 4 10.2 Station 5 Engine 5 3 4 10.2 Station 6 Engine 6 3 4 10.2 Operational Staff 19 25 64.2 Administrative Staff 13.5 Total Staffing 77.7 The next table (Figure 68 below) details the number of FTEs necessary long-term, to staff and support the recommended apparatus deployment using a seven fire station model. 47 The number of FTEs (Full Time Equivalency) required to maintain a staffing level of three per station is 3.4 Bozeman Fire Department - Montana 2006 – Fire Protection Master Plan 141 Figure 68: Bozeman FD Long Term Staffing Strategy Fire Station Unit Minimum On- Duty Staffing Maximum On- Duty Staffing Total Required Staffing48 Engine 1 3 4 10.2 Haz-Mat Unit Cross staffed with engine 1 personnel Station 1 Battalion Chief 1 1 3 Engine 2 3 4 10.2 Station 2 Truck 1 Cross staffed with engine 2 personnel Station 3 Engine 3 3 4 10.2 Station 4 Engine 4 3 4 10.2 Station 5 Engine 5 3 4 10.2 Station 6 Engine 6 3 4 10.2 Engine 7 3 4 10.2 Station 7 Truck 2 Cross staffed with engine 7 personnel Operational Staff 22 29 74.4 Administrative Staff 13.5 Total Staffing 89.9 The long-term staffing strategy requires 58.4 additional FTEs above the existing cadre of 31.5 FTEs. For purposes of this analysis, we assume that the additional positions are allocated in accordance with the following table (Figure 69). Figure 69: Year 2025 Operational Staffing Assumption Position Title Year 2005 FTE Year 2025 FTE Total Required Staffing Change Battalion Chief 0.0 3.0 +3.0 Captain 6.0 21.0 +15.0 Firefighter EMT/Paramedic 18.0 50.4 +32.4 Total 24.0 74.4 +50.4 While there are no additional FTEs above the minimum requirement for battalion chief, we offer several options on replacement for vacations, school, sick leave, and sick injury. They are: • Department chief officer fill the position 48 The number of FTEs (Full Time Equivalency) required to maintain a staffing level of three per station is 3.4 Bozeman Fire Department - Montana 2006 – Fire Protection Master Plan 142 • Captain temporary assignment • Off-duty battalion chief work overtime Adding employees to the emergency function of the fire department also requires more non- emergency jobs to assure proper oversight and management. At present, the department maintains seven and one half FTEs in non-emergency employees for administration and support. As discussed earlier, four FTEs are in positions that are similar to other fire departments. The other three and one half FTEs work in positions that are not typically found in the fire department.49 Fully career fire departments typically staff between ten and 20 percent of total positions with non- emergency employees. Departments with non-emergency training, fire prevention, and EMS staff sometimes tend toward the high end of the paradigm. In this case, we assume that Bozeman FD will continue to support a relatively lean administrative and support ratio of about 15 percent of total employees.50 Under this staffing model, a department with 74.4 emergency employees requires about 13.5 administrative and support positions — a net increase of nine and one-half FTEs from year 2005 staffing. How those additional positions are distributed within the administrative section depends on the need of the department as it evolves in the coming years. For the purpose of this analysis however, we consider that the administrative and support section of Bozeman FD is organized as detailed in Figure 70 below. Figure 70: Bozeman FD Year 2025 Administrative Staffing Assumption Position Title Year 2005 FTE Year 2025 FTE Change Fire Chief 1.0 1.0 - Deputy Fire Chief 1.0 2.0 +1.0 Captain, Training 1.0 2.0 +1.0 Emergency Manager, DES 1.0 1.0 - EMS Coordinator 0.0 1.0 +1.0 Fire & Life Safety Specialist 2.0 3.0 +1.0 Administrative Secretary 1.0 1.0 - Secretary 0.5 1.5 +1.0 General Staff Position 0.0 4.5 +4.5 Total 7.5 17.0 +9.5 49 The fire department is responsible for emergency Gallatin County emergency management and for the city building department functions. 50 Calculation does not include the FTEs assigned to emergency management and the building department Bozeman Fire Department - Montana 2006 – Fire Protection Master Plan 143 Our work assumes that personnel are added to the training function (one FTE), to the fire prevention (one FTE), and the creation of a deputy fire chief/operations (one FTE), and a dedicated position as EMS coordinator (one FTE). The remaining four and one half positions are allocated as “general staff positions,” which are merely non-specific jobs added for the purpose of cost estimation. When actually appointed, the jobs could be inserted anywhere on the administrative organizational chart from deputy chief to secretary.51 Projecting System Cost The long-term deployment strategy for Bozeman FD calls for the addition of five engine companies to serve the city. The addition of the five emergency units results in the requirement for approximately 50 FTEs more emergency personnel and nine FTE administrative staff. Of course, increasing the staff and equipment of the fire department equates to a direct increase of the operational costs of the agency. To estimate the fiscal outcome of the long-term deployment strategy, we use the same ESCi financial methodology described in an earlier part of this report. The process provides a means by which the existing operating budget of the department is adapted to a computer-driven model that adjusts allocation relative to the proposed changes in personnel, equipment, facilities, and programs. For example, the addition of firefighting staff directly changes budgeted expenditures for salaries, overtime, and benefits; but adding staff also directly affects budget line items like uniforms, career development, and professional services. Changes made to the quantity of emergency equipment or the number of facilities will influence other budgetary line items such as fuel, utilities, and maintenance. In addition, certain system changes (like population and demand for emergency assistance) have a bearing on the fire department’s operational budget. Consequently, each line item of the reformatted Bozeman FD operating budget is assigned with a contingent modifier designed to adjust that account based on changes to budgetary inputs (such as personnel, stations, and equipment). The resulting operational budget reflects the estimated financial impact as if the recommended long-term deployment strategy were currently in effect. Inflation is also an important consideration when forecasting long-term operational cost. For the purpose of this analysis, we use the consumer price index for all urban consumers (CPI-U) during the 51 The estimated cost of general staff positions are calculated as the average compensation of all administrative positions except the fire chief and management intern. Bozeman Fire Department - Montana 2006 – Fire Protection Master Plan 144 period 1996 through 2005 in the west urban region as compiled by the U.S. Department of Labor.52 Figure 71: CPI-U Trend, 1996 – 2005, summarizes the CPI-U during the last ten years and shows the average rate of inflation for the region. Figure 71: CPI-U Trend, 1996 – 2005 CPI-U Trend: Western Urban Region 1996 - 2005 0.00% 0.50% 1.00% 1.50% 2.00% 2.50% 3.00% 3.50% 4.00% 1996199719981999200020012002200320042005 CPI-U AVG For the current ten-year period, inflation in the western region has averaged about 2.6 percent. The cumulative affect of that average during the period of this master plan will tend to increase cost nearly 63 percent between now and year 2025. Our calculation of operational cost includes that inflationary increase. The value of the property protected by Bozeman FD is also an important consideration in forecasting cost. The ten-year history of the market value of the City of Bozeman is plotted in Figure 72, and the likely growth of market value is forecast through year 2025. 52 U.S. Department of Labor, Bureau of Labor Statistics, Consumer Price Index, West Urban, all items Bozeman Fire Department - Montana 2006 – Fire Protection Master Plan 145 Figure 72: City of Bozeman Forecast Market Value City of Bozeman - Forecast Market Value R2 = 0.9068 $0.0 $1.0 $2.0 $3.0 $4.019 9 6 1998 2000 2002 2004 2 0 06 2 0 08 2 0 10 2012 2 0 1 4 2 0 1 6 2 0 1 8 20 2 0 20 2 2 20 2 4 Ma r k e t V a l u e B i l l i o n s Market Value of Taxable Property Linear (Market Value of Taxable Property) The trend of Bozeman assessed value shows an R squared value of slightly more than 0.90, indicating that the forecast is statistically significant.53 The trend, if continued throughout the 20-year planning horizon, will result in an assessed value of the city in excess of $3.7 billion by year 2025. We use that value as a means to compare the public cost of fire and emergency medical service today with the projected cost in year 2025. The ten-year history of the taxable value history of the City of Bozeman is plotted in Figure 73, and the likely growth of taxable value is forecast through year 2025. 53 R squared is the relative predictive power of a model. R squared is a descriptive measure between zero and one. The closer the value of R squared is to one, the better the model. “Better” means a greater ability to predict. Bozeman Fire Department - Montana 2006 – Fire Protection Master Plan 146 Figure 73: City of Bozeman - Forecast Taxable Value City of Bozeman - Forecast Taxable Value R2 = 0.8638 $0.0 $20.0 $40.0 $60.0 $80.0 $100.0 $120.019 96 1 9 98 20 0 0 20 02 20 0 4 2 0 06 2008 20 10 2 0 12 20 14 2016 20 1 8 2 0 20 2022 2 0 24 Ta x a b l e V a l u e i n M i l l i o n s City of Bozeman - Forecast Taxable Linear (City of Bozeman - Forecast Taxable) The trend of Bozeman taxable value trend, if continued throughout the 20-year planning horizon, will result in a taxable value of the city in excess of $130 million by year 2025. Both the market value and taxable values in the city indicate strong growth over the entire period. Cost Projections These deployment recommendations identify the continuing use of one existing station (Station 1), the relocation of one station (Station 2), and the construction of five new stations over a period of twenty years. To calculate the cost of the new fire stations we use the following assumptions: • Each new fire station is estimated at 9,500 square feet. o The structures would include; two-drive-through bays and living space for up to nine personnel. o Construction costs of $296 per square foot were used (2006 costing basis).54 o Property acquisition amounts vary widely and the following price tag is for illustration only. Property costs will vary widely by location selected, and economic conditions at the time of acquisition. 54 Square footage cost estimate from Saylor Commercial Construction Costs, 2006, and modified by regional modifier - Butte, Montana Bozeman Fire Department - Montana 2006 – Fire Protection Master Plan 147 • Staffing costs are based on annual total compensation package for each position; 5556 o Battalion chief $84,650 o Captain $75,056 o Firefighter $65,965 • A company consists; o One captain per shift o Two firefighters per shift o For purposes of establishing a cost for each position a calculation of 0.4 FTE is added for each three FTEs. This approximates a 30 to 40 percent figure considered suitable to accommodate the need to fill in for vacation, sick, sick injury leave and maintain a minimum three-person company. • Annual operating costs for operating a fire station (maintenance, supplies, and utilities only) are estimated at $3.15 per square foot. • Although some redistribution of existing apparatus may occur, additional apparatus would be needed to meet the proposed number of fire stations. Five new engines are estimated at $380,000 each. The following table (Figure 74) is used to project capital and the cost of operating the recommended fire stations and the addition personnel. These costs are in addition to current operating costs of the department and, thus, would represent new funds in today’s dollars needed to support the strategy. 55 Personnel costs include all rollups 56 Amount is based on an average of all ranges within each position Bozeman Fire Department - Montana 2006 – Fire Protection Master Plan 148 Figure 74: Cost Projections for Fire Stations and Personnel Capital Costs Replacement Fire Station 2 $ 2,814,280 Fire Station 3 $ 2,814,280 Fire Station 4 $ 2,814,280 Fire Station 5 $ 2,814,280 Fire Station 6 $ 2,814,280 Fire Station 7 $ 2,814,280 Apparatus Acquisitions $ 1,900,000 Total Capital Costs $18,785,680 Annual Operating Cost Annual Staffing $ 7,087,092 Annual Operating Costs $ 149,625 Total Annual Operating Costs $ 7,266,642 Bozeman Fire Department - Montana 2006 – Fire Protection Master Plan 149 Appendices Appendix: A – Response Time Thresholds and Triggers Introduction When a community creates a fire department and builds its first fire station, a response time criterion is usually established. This response time anticipates that it applies to 100 percent of the area covered by the boundaries of that fire station. This is especially true when there is only one fire station and a small area to cover. Simply speaking, a central fire station is among the first public buildings created in most communities, no matter how small. As the community grows away from that station in incremental steps, the expectation is that the original fire station will still provide adequate coverage. However, that expectation is fraught with many problems. In the simplest of terms, the total area covered by a fire department may or may not be highly developed initially; and even if a crew from the fire station responds, it may not do so in a timely manner. Most fire departments begin as totally volunteer. They usually are operated with this staffing pattern for economic reasons. When population and service area increases, there is often pressure to add full time staff and to consider adding additional stations. In fact, there are many variations on this theme. Older, established cities tended to be denser and smaller in dimension, but they often annexed new areas. Newer communities may be created from a much larger area than the first fire station can cover. Urban sprawl, which is a currently an active discussion in other areas of public policy, has resulted in the timing of additional fire station construction and staffing being a topic of concern. Station Siting Usually when a fire department constructs its first fire station in the area, the values at risk and hazards to be protected are within a close driving distance. In effect, the first fire station in a community is a centroid. That is, the local fire station is the center of the response capacity of the jurisdiction. Earlier in the 20th century, fire stations were often characterized on maps by having a circle drawn around the station with an l.5 mile radius. This was sometimes used to describe the area of coverage. However, fire apparatus responds using the roadbed that consists of angles and distances that did not result in the circle being the true description of the coverage. Not only that, but one cannot place fire stations exactly three miles apart and have the two circles overlap. When they Bozeman Fire Department - Montana 2006 – Fire Protection Master Plan 150 are placed closer together than the 1.5 radius, there is not only overlap, but also gaps where there does not appear to be coverage. Later, the circle was replaced by diamond-shaped templates that could be overlaid over the station and rotated to estimate the relative advantage of road distances. The contemporary method used to evaluate fire stations is based upon using the actual road-network in a computer model. This system uses time and distance to create a network that more closely represents how far the company can respond from its fire station, using the adopted time standard. A few years ago, the method that was in vogue was called FLAME. This is an acronym for Fire Station Location and Mapping Environment. From the time the first station is built, it creates an expectation that the facility can and will provide a timely response to calls for service in an area surrounding that facility. When the original criterion was set for response time from that facility, there is an immediate location – allocation created by that station. The station provides a response to a given area within a reasonable time in a pattern that essentially is an overlay on the streets and highways that radiate outward from that location. Even before any incidents occur in a community, the road-network geography and the topographical attributes of a community create a dynamic segmentation that results in the ability of fire professionals to reasonably predict what areas can be and those that will not be covered. Today the preferred tool for conducting this type of analysis is through Geographical Information Systems (GIS). There are many infrastructure components that have an effect upon the location allocation concept. Among these are road and highways networks, impedance factors such as traffic patterns and processes (stoplights and signs), and turn impedance, i.e.: roadbed configuration and elevation impedance (slope). It is axiomatic that there is an inverse distance-weighting factor that results in longer response times to areas further away from the centroid of the station. This is called distance decay. The manner and means of response involve the use of the roadbed, but also involve dealing with differences in elevation and competing vehicles on the roadbed. In short, the further away from the location of an incident and the higher the impedance for response, the less effective any specific resource is in dealing with the initial stages of an emergency event as you move away from the station’s location. The use of the concept of using travel time itself is not exactly new. However, for many years the basic criterion was road mileage only. The standard that was normally applied was that a fire station was expected to be able to reach any incident within 1.5 miles of the station within five-minutes of Bozeman Fire Department - Montana 2006 – Fire Protection Master Plan 151 driving time. Time was a secondary consideration. That standard was based upon data from the 1940s with respect to road conditions and traffic patterns. A lot has changed since then. For decades, the Insurance Services Office (ISO) has based fire station locations on a 1.5-mile separation. In general, this has served as rule of thumb, but it does not deal with the vagaries of physical response (such as geography, transportation, and weather). Secondarily, it does not place any emphasis on response needed for emergency medical service (EMS) incidents, such as basic life support (BLS) or advanced life support (ALS). The concept of using actual travel time today is based upon a more accurate representation of the level of service for an all-risk approach. It is more performance-based. Today most fire agencies set a time standard that includes three elements, two of which were missing from the strict use of mileage for station location; specifically, alarm processing time and turnout time. The actual time of road travel has often been used to set the communities expectation of performance. Using this approach, stations are seldom located in a linear fashion. This concept is based on the time intervals identified in the Standards of Response Coverage section of the Self Assessment Manual published by the Commission on Fire Accreditation International. This process leads to the development of a standard of response cover, or a time and level of staffing designed to control an emergency at a minimum level of loss. The process is however, a policy choice based on risk and local conditions. The basic performance standards for time goals are based on the rapid speed of fire growth and consequences of emergency medical situations over a short time frame. It has been determined that both fires and medical emergencies can gain a foothold that result in excessive losses when the times are excessive. The most common benchmark time standards used are: • Alarm processing time — 60 seconds • Turnout time — 60 seconds • Travel time o Fire response — five minutes, 90 percent of the time o BLS response — five minutes, 90 percent of the time o ALS response — eight minutes, 90 percent of the time The contemporary method of measuring performance looks at response time on incidents as an indicator of levels of service. The way this is done is two-fold. The first is to measure the actual Bozeman Fire Department - Montana 2006 – Fire Protection Master Plan 152 performance during emergencies; the second is to monitor the system to determine when the system fails to achieve the performance goals. One point of caution — Response time criterion should only be applied to calls that are emergency calls. When incidents are analyzed, the data should be reviewed to assure that non-emergency calls are not used when calculating performance. There are many calls for service that fire departments log as incidents that are non-threatening scenarios and the responding companies will handle them on an as–needed basis. To include these times in the analysis of emergency services tends to skew the outcome, leading to a false service indicator. Response Failure To understand when response failure occurs, we must define first what is being measured and how we measure the performance goal. For example, a basic question to be answered is whether a department is protecting the dirt or the incidents? Are we going to measure percentage of performance by first-due district, or department wide? Generally, fire protection practitioners try to position stations to cover 90 percent of the ground in each first-due district, to provide overlap for concentration, redundancy for multiple calls, and for equity of access for customer service. It is economically impossible to cover 100 percent of the ground. Based on actual call loading, we could strive for 80 to 90 percent of the calls within first-due and concentration total reflex measures. If the measure for either area or incidents is set at 80 to 90 percent effectiveness, how much slop over the performance measure is acceptable? For example, if an historical incident measure is at the 85 percentile, BUT the other five percent are covered in the next 60 seconds, is that acceptable? Maybe yes, maybe no. It is important to understand that values at risk, type of unmet calls and the total number of calls can combine to create a need. If the deficiency is only five percent or 25 calls out 500, depending on the size of the measurement area the gap may or may not be significant. For example, if the performance requirement was to arrive at the scene of an emergency within five minutes of travel time, 90 percent of the time, this criterion could be applied to one year of response data to see if the goal was achieved. It should be noted that this criterion allows for ten percent of the calls to be beyond the five minutes traveling time over a given reporting period. This provides flexibility in the assessment of coverage to cope with anomalies such as extra-ordinary response conditions such responding from out of district, or for delays caused by simultaneous alarms. This raises an additional question: Of the ten percent overage, how many of the incidents are covered within the next 30 to 60 seconds? Bozeman Fire Department - Montana 2006 – Fire Protection Master Plan 153 The first indication of a problem of providing service is when a number of alarms that exceed the performance standard are documented. This may or may not be function of new growth. It could be the result of in-fill that causes a higher number of alarms for the company than it can service. This is especially true when alarms come in simultaneously. Moreover, when areas are being developed that begin to extend travel times they do not automatically become the source of new alarms. In fact, new construction often has a period of several years before adding to fire service demand. The same is not necessarily true from the perspective of emergency medical service. When a New Station is Needed The question that many communities have to address is when is a second or third fire station required to meet time goals? Obviously, this has been answered in any community that has more than one fire station. The problem comes in finding a quantifiable threshold to determine that point for each specific situation because it varies from community to community and even within a specific jurisdiction. The overall answer is part financial and part professional judgment. In fact, in the literature of the fire service today, there is very little definitive guidance on how this should be accomplished. There are several steps that can be identified. They consist of: • Identifying areas with minimum coverage • Identifying feasible locations for a new facility • Evaluating those locations using specific criterion The description in this document is based upon a growing body of knowledge aimed at quantifying this process. What is unfortunate is that there is no universally acceptable algorithm. The fire protection planning process does allow for an evaluation of potential loss as a result of deteriorating response times. One form of measurement is to assess the road and transportation network to ascertain the percentage of road mileage that theoretically is covered by the time criterion. This is done using computer-based modeling that will create a polygon that describes the areas of coverage. In fact, this process will also identify gaps and deficiencies where response time is not adequate. It should be noted that as long as a department operates a totally volunteer force, the time established as a turnout time will be a factor. Generally speaking, volunteers take more time to get out of a Bozeman Fire Department - Montana 2006 – Fire Protection Master Plan 154 station than a permanent crew. This statement does not place any prejudice on the use of volunteers. This is mentioned only to remind the readers that total response time must be considered when evaluating alternatives. As growth and development extends beyond the range of travel time of one station, the percentage of calls that exceed the performance requirement should begin to increase. It should be noted that growth, in and of itself, does not create an instantaneous demand. New construction has the advantage of better codes, a higher level of owner interest, and limited deterioration of fire-breeding conditions. A more subtle difference in today's fire service is the fact that community demand for medical services is almost from day one of occupancy. In short, this means that new construction may place more values and lives at risk, but the demand for service will be incremental. When demand for service does begin, it will be based upon two factors - nature of the occupancy and hazards that are present. Incident increase may first appear as a change in the performance of an existing company in the annual analysis of emergency calls. For example, if a station has 1,000 alarms and a 90 percent compliance rate with the response standard, there would be about 100 alarms per year that were beyond the goal. This would be the baseline for existing response performance. If the following year, the number of alarms was 1,200 and percentage dropped to 85 percent, this would indicate that the department is losing ground on response performance. If the change in the number of alarms had merely increased because of more calls in the same area, the response time percentage should have remained fairly similar. (One exception to this rule is when a single company has such a high call volume that it cannot handle all calls without call queuing.) However, since the alarm rate went up and the performance went down, the failure threshold may be approaching. The change in alarms that were not met may now go to 180 (15 percent of the overall). As stated earlier, analysis needs to be performed on the deficiency to determine how many of those incidents were handled in the increment of 60 seconds beyond the performance time. Based upon actual response time analysis, one threshold that needs to be considered is the increase in alarms and the percent of calls handled under the criterion adopted. Anything more than a ten percent increase in call and a ten percent reduction in performance is a signal to evaluate the level of service being provided. Bozeman Fire Department - Montana 2006 – Fire Protection Master Plan 155 In larger departments, most practitioners are factoring out non-emergency calls and for actual incident performance, only looking at core emergencies. The definition of core can be made locally based on risk and importance to the community, but they are usually structure fires and moderate to severe status EMS calls. In general, if more than one measure must be slipping, an evaluation of all Standards of Coverage factors, along with the reason why the data is slipping, is required. A one-year snap-shot may not be valid if the agency had a big storm event, a catastrophic weather event, major wildland fire, and stacked a bunch of calls for just a month or the year. Incident analysis approach depends upon having emergencies, which does not address what is at risk. That is where the mapping technology applies. As structures and different types of fire problems are constructed on the ground, they may represent additional lives and property that are at risk that deserve equity in protection. One of the elements for creating a governmental entity is to control land use and to create mechanisms for collecting taxes and determining ownership. Furthermore, these same individuals and properties are paying the taxes, fees, and permits for the level of service being provided. In one sense when growth occurs, the new properties are usually safer than the older part of the community because they are constructed to a higher standard. What is clear to almost any community is that being slightly out of the response standard range does not trigger a new facility. Assessed valuation or increased revenues in the form of benefit assessment or mitigation fees, provide incentive for new fire stations to be constructed and staffed when the fire agency can afford them. One threshold that needs to be carefully monitored is the revenue stream that accrues from development. That revenue stream should provide a threshold when different elements of future fire stations can be determined. For example, it takes several years to evolve a location into a fire station site. As the revenue stream proceeds, funds could be available for site acquisition, initial plans and specifications, site treatment, and construction. This may be a multi-year process. The threshold for construction should be to provide a new fire station into any zone in the city or jurisdiction that has more than 35 to 50 percent of its parcels developed. Some of the secondary measures currently being used are 300 to 500 calls for service for any individual fire company or a service population of 10,000 to justify a full-time paid company. The following criterion grid illustrates a series of measures that may be useful deciding when a new fire station should be deployed within a Bozeman Fire Department - Montana 2006 – Fire Protection Master Plan 156 city. Similar grids could be developed to help establish triggers for the deployment of additional emergency equipment and personnel. Figure 75: Criterion Table to Determine When a New Station is Needed Criterion Grid to Determine When a New Station is Needed ——————— Criterion ——————— Action Choices Travel Distance Response Time Parameter Out of Area Calls Building/Risk Inventory Maintain status quo Enter local information 1st due company Enter local response time Enter existing out of area calls Enter local building/risk inventory Temporary facilities and minimal staffing Risks 1.5 to 3.0 miles from existing station 1st due company Exceeds 5-minutes travel time 10% of the time, but never exceeds 8 minutes. More than 10% of calls are in adjacent area New area has 25% of same risk distribution as in initial area Permanent station needed Risk locations exceeding 4.0 miles from the station 1st due company Exceeds 5-minutes travel time 20-25% of the time. Some calls < 8 m. More than 20- 25% of calls are in outlying area New area has 35% of same risk distribution as in initial area of coverage Permanent station essential Outlying risk locations exceeding 5.0 miles from the 1st station 1st due company Exceeds 5-minutes travel time 30% of the time. Some calls <10 minutes. More than 30% of calls are in outlying area New area has 50% of same risk distribution as in initial area The decision process has to be placed into the context of staffing pattern decisions. It is not uncommon to have a station constructed, and have the staffing pattern evolve over years from one system to another. In the case of a station under consideration, it should be anticipated that a policy decision needs to be made with respect to the staffing system to be used as soon as possible. It is anticipated that a completely volunteer system would not be viable for this type of facility. Conversely, a fully staffed paid company has a significant price tag to it. A combination staffing system would seem to be the most practical for the first five years of consideration. These are the staffing configurations used in the matrices developed to describe thresholds and triggers that should be evaluated in the future. This observer’s experience has been that it takes a multiple elements of the standards of coverage to be out-of-balance along with having additional economic resources to justify an additional paid company or staffing increase on one or more companies. Bozeman Fire Department - Montana 2006 – Fire Protection Master Plan 157 Appendix: B – Montana Comparables The cities in the State of Montana share many similar traits and characteristics. There is also a shared uniqueness not found among many other communities in the country. For example, in the State of Montana, cities of a certain size are required under Montana Code to have a fire department with paid firefighters.57 The information included in this section was designed to assist the reader be to compare some basic facts about the career fire departments in Montana. To capture this information a survey was sent to the larger municipal fire departments in the state. Six fire departments responded to the request for information. Those departments were; Butte-Silver Bow, City of Billings, City of Helena, City of Great Falls, City of Kalispell, and the City of Missoula. We are grateful and appreciate their participation. In the following figure, the population served by each fire department in the survey is shown. It should be noted however, that in nearly every instance the population, and area served, is larger than the city jurisdictional limits. For instance, outside the City of Great Falls, the city serves a population of 4,000. Figure 76: Population Served by Agency 0 20,000 40,000 60,000 80,000 100,000 120,000 City of Kalispell City of Helena City of Bozeman Butte-Silver Bow City of Great Falls City of Missoula City of Billings Population Served by Department 57 Montana Code Annotated, (7-33-4101.Fire department authorized and required). In every city and town of this state there must be a fire department… Bozeman Fire Department - Montana 2006 – Fire Protection Master Plan 158 In Figure 77 below, the area served by the fire department is shown. Again as in Figure 76, in nearly every instance the area served is larger than the city limits. Figure 77: Area Served by Fire Department Area Served in Square Miles 718.00 84.00 17.50 24.70 14.00 8.70 26.30 0.0100.0200.0300.0400.0500.0600.0700.0800.0 Butte-Silver Bow City of Billings City of Bozeman City of Great Falls City of Helena City of Kalispell City of Missoula The following Figure 78 compares the City of Bozeman FD’s fire suppression resources and shows in comparison with the resource allocation of the other survey communities, as well as the average of all seven fire departments. Bozeman Fire Department - Montana 2006 – Fire Protection Master Plan 159 Figure 78: Montana Communities Comparison – Resources per 1,000 Population 0.000 0.050 0.100 0.150 0.200 0.250 0.300 0.350 0.400 Montana Commmunities - Resources per 1,000 Population Stations Pumpers Aerials Stations 0.1030.3180.0500.0610.0660.0630.1090.057 Pumpers 0.1370.3760.0670.0910.0820.0940.1640.086 Aerials 0.0320.0290.0170.0300.0330.0310.0550.029 Montana Average Butte- Silver Bow City of Billings City of Bozeman City of Great Falls City of Helena City of Kalispell City of Missoula The comparison in Figure 78 shows that Bozeman FD has fewer fire stations per 1,000 population than all departments—except for the cities of Billings, and Missoula. It should be noted, however, that the City of Missoula is in the process of adding a fire station this fiscal year. When comparing the number of fire pumpers, three cities have fewer per 1,000 than the Bozeman FD. Again we note that the City of Missoula is in the process of adding an additional pumper this fiscal year. In the category of aerial devices per 1,000 population, the City of Bozeman is about average among the seven departments with one. As discussed in the staffing objective of this report, the number of operational personnel maintained by a fire department provides some measure of the ability of the agency to assemble emergency workers to respond to request for assistance. The following chart (Figure 79) shows the number of career personnel maintained by Bozeman FD per 1,000 residents, and compares that with the other six departments. It should be noted here that not all of the fire departments serve communities with similar populations, or use paid career personnel exclusively. Bozeman Fire Department - Montana 2006 – Fire Protection Master Plan 160 Figure 79: Comparison of Firefighters per 1,000 population 0.87 1.08 0.73 1.05 0.94 1.91 1.070.93 0.0 0.5 1.0 1.5 2.0 2.5 Montana Communities Avg Butte-Silver BowBillingsBozemanGreat FallsHelenaKalispellMissoula As this chart shows (Figure 79 above), Bozeman FD has fewer firefighters per 1,000 population than every department. This does not take into consideration community fire risk and other factors that may require more firefighter resources. Regardless of the raw number of personnel available to the department, what matters most is the actual number of emergency responders the agency is able to produce at an emergency scene. The next figure compares the minimum staffing levels per 1,000 population for each of the departments. Bozeman Fire Department - Montana 2006 – Fire Protection Master Plan 161 Figure 80: Comparison of Minimum On – Duty Staffing per 1,000 Population 0.173 0.175 0.182 0.214 0.219 0.436 0.186 0.00 0.05 0.10 0.15 0.20 0.25 0.30 0.35 0.40 0.45 Butte-Silver Bow BillingsBozemanGreat FallsHelenaKalispellMissoula The chart below (Figure 81) shows the emergency response totals for each department for the previous calendar year. Figure 81: Total Calls for Service – per 1,000 Population Comparison of Incidents Per 1,000 Population 050100150200250 Urban High Range Urban Low Range Rural High Range Rural Low Range Regional Median Butte-Silver Bow City of Billings City of Bozeman City of Great Falls City of Helena City of Kalispell City of Missoula Bozeman Fire Department - Montana 2006 – Fire Protection Master Plan 162 As shown in Figure 81 above, requests for service occur at a higher rate per 1,000 population in the rural area. Another factor affected the incident rate is that departments in the survey provide deferring levels of service—for instance, Kalispell Fire Department provides EMS transport services. Each of the departments was asked if they have and had officially adopted response time standards; and if yes, what fractile percent are they currently meeting? The results are shown in the table (Figure 82) below. Figure 82: Response Time Standard Fire Department Do you have an official response time standard? Accepted response time standard Current fractile percentage Butte-Silver Bow Unofficial only 5:00 minutes 5:06 minutes, average City of Billings Yes > 8:00 – 90 percent of the time Less than 8:00 – 90 percent of the time City of Bozeman Yes Not reported Not reported City of Great Falls Not reported N/A N/A City of Helena None adopted N/A N/A City of Kalispell Yes Turnout time is 60 seconds or less, 90 percent of the time. Response time is 240 seconds or less, 90 percent of the time. 91.5 percent City of Missoula Yes Provide initial resources on scene within six- minutes or less, 90 percent of the time. The six-minute goal includes a 1 minute dispatch time, a 1 minute turnout time, and a 4 minute travel time. equals 8:00 minutes 90 percent of the time B o z e m a n F i r e D e p a r t m e n t - M o n t a n a 2006 – Fire Protection Master Plan 163 Ap p e n d i x : C - M a p s B o z e m a n F i r e D e p a r t m e n t - M o n t a n a 2006 – Fire Protection Master Plan 164 B o z e m a n F i r e D e p a r t m e n t - M o n t a n a 2006 – Fire Protection Master Plan 165 B o z e m a n F i r e D e p a r t m e n t - M o n t a n a 2006 – Fire Protection Master Plan 166 B o z e m a n F i r e D e p a r t m e n t - M o n t a n a 2006 – Fire Protection Master Plan 167 B o z e m a n F i r e D e p a r t m e n t - M o n t a n a 2006 – Fire Protection Master Plan 168 B o z e m a n F i r e D e p a r t m e n t - M o n t a n a 2006 – Fire Protection Master Plan 169 B o z e m a n F i r e D e p a r t m e n t - M o n t a n a 2006 – Fire Protection Master Plan 170 B o z e m a n F i r e D e p a r t m e n t - M o n t a n a 2006 – Fire Protection Master Plan 171