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Operational and Administrative Analysis Dover Fire Department
Dover, Del. Final Report – March 2016
EMS FIRE
474 K Street, NW, Suite 702
475 K Street, NW, Suite 702 Washington, DC 20001
www.cpsm.us – 716‐969‐1360
Exclusive Provider of Public Safety Technical Assistance for the
International City/County Management Association
Operational and Administrative Analysis, Dover Fire Department page ii
International City/County Management Association (ICMA) The International City/County Management Association (ICMA) is a 100-year-old, nonprofit professional association of local government administrators and managers, with approximately 9,000 members spanning thirty-two countries.
Since its inception in 1914, ICMA has been dedicated to assisting local governments in providing services to their citizens in an efficient and effective manner. Our work spans all of the activities of local government — parks, libraries, recreation, public works, economic development, code enforcement, Brownfields, public safety, etc.
ICMA advances the knowledge of local government best practices across a wide range of platforms including publications, research, training, and technical assistance. Its work includes both domestic and international activities in partnership with local, state, and federal governments as well as private foundations. For example, it is involved in a major library research project funded by the Bill and Melinda Gates Foundation and is providing community policing training in Panama working with the U.S. State Department. It has personnel in Afghanistan assisting with building wastewater treatment plants and has had teams in Central America providing training in disaster relief working with SOUTHCOM.
The ICMA Center for Public Safety Management (ICMA/CPSM) was one of four Centers within the Information and Assistance Division of ICMA providing support to local governments in the areas of police, fire, EMS, emergency management, and homeland security. In addition to providing technical assistance in these areas we also represent local governments at the federal level and are involved in numerous projects with the Department of Justice and the Department of Homeland Security. In each of these Centers, ICMA has selected to partner with nationally recognized individuals or companies to provide services that ICMA has previously provided directly. Doing so will provide a higher level of services, greater flexibility, and reduced costs in meeting members’ needs as ICMA will be expanding the services that it can offer to local governments. For example, The Center for Productivity Management (CPM) is now working exclusively with SAS, one of the world’s leaders in data management and analysis. And the Center for Strategic Management (CSM) is now partnering with nationally recognized experts and academics in local government management and finance.
Center for Public Safety Management, LLC (CPSM) is now the exclusive provider of public safety technical assistance for ICMA. CPSM provides training and research for the Association’s members and represents ICMA in its dealings with the federal government and other public safety professional associations such as CALEA. The Center for Public Safety Management, LLC maintains the same team of individuals performing the same level of service that it has for the past seven years for ICMA.
CPSM’s local government technical assistance experience includes workload and deployment analysis using our unique methodology and subject matter experts to examine department organizational structure and culture, identify workload and staffing needs, and identify and disseminate industry best practices. We have conducted more than 200 such studies in 36 states and 155 communities ranging in size from 8,000 population (Boone, Iowa) to 800,000 population (Indianapolis, Ind.).
Thomas Wieczorek is the Director of the Center for Public Safety Management. Leonard Matarese serves as the Director of Research & Program Development. Dr. Dov Chelst is the Director of Quantitative Analysis.
The Association & The Company
Operational and Administrative Analysis, Dover Fire Department page iii
CPSM Project Contributors Thomas J. Wieczorek, Director Leonard A. Matarese, Director of Research and Program Development Michael Iacona, Senior Manager for Fire and EMS John Brown, CPSM Associate Peter Finley, CPSM Associate Dennis Kouba, Editor
Operational and Administrative Analysis, Dover Fire Department page iv
Contents
Tables .............................................................................................................................................. vi
Figures ............................................................................................................................................ vii
Section 1. Executive Summary ........................................................................................................ 1
Recommendations ........................................................................................................................................ 2
Section 2. Scope of Project ............................................................................................................. 7
Section 3. Organization and Management ..................................................................................... 8
Governance and Administration ................................................................................................................... 8
Dover Fire Department ............................................................................................................................... 14
Robbins Hose Company No. 1 ........................................................................................................ 16
Organizational Structure ................................................................................................................ 16
Personnel Management/Rank Structure ....................................................................................... 19
Section 4. Analysis and Planning Approaches .............................................................................. 22
Community Risk Analysis ............................................................................................................................ 22
Strategic Planning/Long‐Range Planning .................................................................................................... 22
Standards of Cover ...................................................................................................................................... 23
Fire Risk Analysis/Target Hazards ............................................................................................................... 24
Section 5. Operational Response Approaches .............................................................................. 27
Dover Response Matrix/Response Protocols ............................................................................................. 30
Staffing and Volunteer Deployment ........................................................................................................... 33
Apparatus and Fleet Maintenance ............................................................................................................. 33
Fleet Maintenance ......................................................................................................................... 38
Fire Response .............................................................................................................................................. 39
EMS Response and Transport ..................................................................................................................... 45
Workload Analysis/Fire Loss ....................................................................................................................... 50
Fire Loss ......................................................................................................................................... 52
Service Relationship with Kent County ....................................................................................................... 53
Mutual Aid .................................................................................................................................................. 54
Emergency/Nonemergency Response ........................................................................................................ 54
Section 6. Response Time Analysis ............................................................................................... 58
Measuring Response Times ........................................................................................................................ 59
Dover Fire Department Response Times .................................................................................................... 60
Station Locations ......................................................................................................................................... 63
Assessment of Fire Station Locations ............................................................................................ 63
Section 7. Measurement and Self‐Assessment ............................................................................ 69
Performance Measurement ........................................................................................................................ 69
Hazard Analysis ........................................................................................................................................... 72
Operational and Administrative Analysis, Dover Fire Department page v
Fire Preplanning/Company Inspections ...................................................................................................... 73
Accreditation ............................................................................................................................................... 75
ISO ............................................................................................................................................................... 75
Section 8. Essential Resources ...................................................................................................... 78
Fire Prevention, Code Enforcement, Public Education, and Investigations ............................................... 78
Education and Training Programs ............................................................................................................... 80
Internal Communications ........................................................................................................................... 83
Emergency Management/COOP/Hazard Mitigation .................................................................................. 83
Emergency Communications Center (ECC) ................................................................................................. 85
Section 9. Data Analysis ................................................................................................................ 87
Introduction ................................................................................................................................................ 87
Methodology .................................................................................................................................. 87
Aggregate Call Totals and Dispatches ......................................................................................................... 88
Calls by Type .................................................................................................................................. 88
Calls by Type and Duration ............................................................................................................ 90
Average Calls per Day and per Hour .............................................................................................. 91
Units Dispatched to Calls ............................................................................................................... 93
Workload by Individual Unit—Calls and Total Time Spent ......................................................................... 95
Runs and Deployed Time – All Units .............................................................................................. 95
Workload by Unit ........................................................................................................................... 96
Analysis of Busiest Hours ............................................................................................................................ 99
Overlapping Calls ......................................................................................................................... 100
Response Time .......................................................................................................................................... 101
Response Times by Type of Call ................................................................................................... 101
Response Times by Hour .............................................................................................................. 104
Response Time Distribution ......................................................................................................... 106
Operational and Administrative Analysis, Dover Fire Department page vi
Tables
TABLE 3‐1: Comparison of Personnel Costs ................................................................................................ 19
TABLE 5‐1: Staffing and Response Time Guidance from NFPA 1720 .......................................................... 29
TABLE 5‐2: Fire Pumper Life Expectancy by Type of Jurisdiction ................................................................ 34
TABLE 5‐3: Dover Fire Department Apparatus Inventory ........................................................................... 35
TABLE 5‐4: Call Workload by Unit ............................................................................................................... 36
TABLE 5‐5: Proposed Fire Apparatus Replacement Schedule .................................................................... 37
TABLE 5‐6: Call Types .................................................................................................................................. 42
TABLE 5‐7: Calls by Type and Duration ....................................................................................................... 43
TABLE 5‐8: Actions Taken Analysis for Structure and Outside Fire Calls .................................................... 44
TABLE 5‐9: PrimeCare Statistics, June 2015‐September 2015 .................................................................... 47
TABLE 5‐10: 2015 Mutual Aid EMS Units Dispatched into Dover ............................................................... 47
TABLE 5‐11: Annual Runs and Deployed Time by Call Type ....................................................................... 51
TABLE 5‐12: Call Workload by Unit ............................................................................................................. 52
TABLE 5‐13: Fire Loss .................................................................................................................................. 53
TABLE 5‐14: Number of Units Dispatched to Calls ...................................................................................... 56
TABLE 6‐1: Average Response Times of First Arriving Unit, by Call Type (Minutes) ................................... 61
TABLE 6‐2: 90th Percentile Response Times of First Arriving Unit, by Call Type (Minutes) ....................... 62
TABLE 7‐1: The Five GASB Performance Indicators .................................................................................... 70
TABLE 9‐1: Call Types .................................................................................................................................. 88
TABLE 9‐2: Calls by Type and Duration ....................................................................................................... 90
TABLE 9‐3: Number of Units Dispatched to Calls ........................................................................................ 93
TABLE 9‐4: Annual Runs and Deployed Time by Call Type.......................................................................... 95
TABLE 9‐5: Call Workload by Unit ............................................................................................................... 96
TABLE 9‐6: Total Annual Runs by Call Type and Unit .................................................................................. 97
TABLE 9‐7: Daily Average Deployed Minutes by Call Type and Unit .......................................................... 98
TABLE 9‐8: Frequency Distribution of the Number of Calls ........................................................................ 99
TABLE 9‐9: Top 10 Hours with the Most Calls Received ............................................................................. 99
TABLE 9‐10: Average Response Times of First Arriving Unit, by Call Type (Minutes) ............................... 102
TABLE 9‐11: 90th Percentile Response Times of First Arriving Unit, by Call Type (Minutes) ................... 102
TABLE 9‐12: Average and 90th Percentile Response Times of First Arriving Unit, by Hour of Day .......... 105
TABLE 9‐13: Number of Total Calls by First Arriving Units ........................................................................ 106
TABLE 9‐14: Cumulative Distribution Function (CDF) of Response Time of First Arriving Unit ................ 107
TABLE 9‐15: Actions Taken Analysis for Structure and Outside Fire Calls ................................................ 109
TABLE 9‐16: Fire Loss ................................................................................................................................ 110
Operational and Administrative Analysis, Dover Fire Department page vii
Figures
FIGURE 3‐1: City of Dover FY 2016 Organizational Chart ............................................................................. 9
FIGURE 3‐2: Proposed Fire Department Organizational Structure ............................................................. 13
FIGURE 3‐3: City of Dover Map with Fire Station Locations ....................................................................... 15
FIGURE 3‐4: Dover Fire Department FY 2015 Organizational Chart ........................................................... 17
FIGURE 5‐1: Low‐Risk Response–Exterior Fire Attack ................................................................................ 28
FIGURE 5‐2: Moderate‐Risk Response–Interior Fire Attack ....................................................................... 29
FIGURE 5‐3: Calls by Type ........................................................................................................................... 42
FIGURE 5‐4: Dover EMS Incidents 2001‐2014............................................................................................. 46
FIGURE 5‐5: Number of Dover Fire Department Units Dispatched to Calls ............................................... 56
FIGURE 6‐1: Fire Propagation Curve ........................................................................................................... 59
FIGURE 6‐2: DFD Station Locations and Travel Times (red = 240 seconds) ................................................ 65
FIGURE 6‐3: DFD Station Locations and Travel Times (green = 360 seconds) ............................................ 66
FIGURE 6‐4: DFD Station Locations and Travel Times (blue = 480 seconds) .............................................. 67
FIGURE 6‐5: DFD Fire Runs .......................................................................................................................... 68
FIGURE 9‐1: Calls by Type ........................................................................................................................... 89
FIGURE 9‐2: Average Calls per Day, by Month ............................................................................................ 91
FIGURE 9‐3: Calls by Hour of Day ................................................................................................................ 91
FIGURE 9‐4: Number of Dover Fire Department Units Dispatched to Calls ............................................... 93
FIGURE 9‐5: Average Response Times of First Arriving Unit, by Call Type ............................................... 101
FIGURE 9‐6: Average Response Time of First Arriving Unit, by Hour of Day ............................................ 104
FIGURE 9‐7: Number of Total Calls by First Arriving Units ........................................................................ 106
FIGURE 9‐8: Response Time Distribution — First Arriving Unit ................................................................ 108
Operational and Administrative Analysis, Dover Fire Department page 1
Section 1. Executive Summary
TheCenterforPublicSafetyManagement,LLC(CPSM)wasretainedbytheCityofDovertoconductacomprehensiveanalysisofitsfiredepartmentoperations,includingthedepartment’sdeploymentpractices,workload,organizationstructure,training,performancemeasures,preventionactivities,andinteractionswithmutualaidpartners.Specifically,CPSMwastaskedwithprovidingrecommendationsandalternativesregardingfiredepartmentoperations,staffinglevels,financialefficiencies,andalternativemodesofoperation.
Duringthestudy,CPSManalyzedperformancedataprovidedbytheDoverFireDepartment(DFD)andalsoexaminedfirsthandthedepartment’soperations,includingitsworkingrelationshipwiththeVolunteerAssociation(formallytheRobbinsHoseCompanyNo.1),whichprovidesfireprotectioninthecommunity.Firedepartmentstendtodeployresourcesutilizingtraditionalapproaches,whicharerarelyreviewed.Tobeginthereview,projectstaffaskedthecityforcertaindocuments,data,andinformation.Theprojectstaffusedthisinformation/datatofamiliarizethemselveswiththedepartment’sstructure,assets,andoperations.Theprovidedinformationwasalsousedinconjunctionwithinformationcollectedduringanon‐sitevisittodeterminetheexistingperformanceofthedepartment,andtocomparethatperformancetonationalbenchmarks.ThesebenchmarkshavebeendevelopedbyorganizationssuchastheNationalFireProtectionAssociation(NFPA),CenterforPublicSafetyExcellence,Inc.,(CPSE),andtheICMACenterforPerformanceMeasurement.
ProjectstaffconductedasitevisitonNovember3‐5,2015forthepurposeofobservingfiredepartmentandagency‐connectedsupportoperations,interviewingkeydepartmentstaff,andreviewingpreliminarydataandoperations.Telephoneconferencecallsaswellase‐mailexchangeswereconductedbetweenCPSMprojectmanagementstaff,thecity,andtheDFDsothatCPSMstaffcouldaffirmtheprojectscope,andelicitfurtherdiscussionregardingthisoperationalanalysis.
DFDisahighlyskilledandprogressiveorganizationthatiscomposedalmostentirelyofvolunteerpersonnel.ThecityandthevolunteerpersonnelwithwhomCPSMinteractedaretrulyinterestedinservingthecitytothebestoftheirabilities.OneoutstandingissuefacingDFDistheinteractionbetweentheVolunteerAssociationandcitygovernment.IntertwinedinthisassociationistheworkingrelationshipwithPrimeCare,theprivateambulancetransportprovidercontractedbythecitytoprovideEMStransport.Inaddition,thecollaborationbetweenthefireandpolicedispatchcentersisanintegralcomponentofensuringthehighestlevelsofprotection.AsservicedemandsincreaseandDFDisrequiredtoprovideincreasedresponseactivities,thenecessityforstrongcollaborationsandseamlessservicedeliverywillalsocontinuetoexpand.Thisworkloadandthepotentialforexpandingcallvolumeisnot,however,insurmountableandCPSMwillprovideaseriesofobservationsandrecommendationsthatwebelievecanallowDFDtobecomemoreefficientandsmarterinthemanagementofitsemergencyandnonemergencyresponsibilities.
Operational and Administrative Analysis, Dover Fire Department page 2
Recommendations
TheDFDprovidesanexcellentandextremelycost‐effectiveservicetoitscitizens,visitorstothearea,andlocalbusinesses.Thedepartmentiswellrespectedinthecommunityandbycityleadership.TheCityofDover,thestatecapital,hasmaintaineditsrelationshipwiththeVolunteerAssociation(formallytheRobbinsHoseCompanyNo.1)since1882.TheworkingrelationshipobservedbetweenthecityandtheVolunteerAssociationisimpressiveandtrulycommendable.
Forty‐ninerecommendationsarelistedbelowandintheapplicablesectionswithinthisreport.TherecommendationsarebasedonbestpracticesderivedfromtheNFPA,CPSM,ICMA,theU.S.FireAdministration,theInternationalAssociationofEmergencyManagers(IAEM),andtheFederalEmergencyManagementAgency(FEMA).
Theserecommendationshavebeengroupedonthebasisofourperceivedprioritizationforimplementation.Wehaveidentifiedthreegroupings:InitialPhaseImplementation,SecondPhaseImplementationandThirdPhaseImplementation.CPSMrecommendsthattheFirstPhaserecommendationsbeimplementedwithinthefirstsix(6)monthsafterformalacceptanceofthereport.TheSecondPhasewouldbeimplementednextandwerecommendthistakeplacewithinsix‐(6)monthstoeighteen(18)monthsafteracceptance.TheThirdPhasewouldthenfollowandweanticipateanimplementationschedulethatwouldoccurfromtwo(2)tofive(5)yearsafterformalacceptance.
InitialPhaseRecommendations
TheCityofDovershouldcreateafull‐timepositionofEmergencyServicesManagerandtransfertheday‐to‐dayoversightofthefiredepartmentandtheothercloselyrelatedemergencyservicesandsupportfunctionsunderthisposition.WerecommendthatthisnewpositionbeadirectreporttotheCityManager.
TheCityofDoverandtheVolunteerAssociationshouldenterintoacontractualagreementthatspecifiesthetermsandconditionsinvolvedinthedeliveryoffireservices.
TheEmergencyServicesManagershouldbeassignedtheadministrationofthecontractwithPrimeCareandshouldcoordinatetheemergencymanagementactivitiesfortheCityofDover.
TheCityofDoverandtheVolunteerAssociationshouldspecifythosecitypersonnelpoliciesthatapplytomembersoftheVolunteerAssociationandplacetheseprovisionsintheserviceagreement.
TheCityofDovershouldfacilitatethedevelopmentofastrategicplanfortheDoverFireDepartmentwhichfocusesonthedepartment’slong‐termneedsandanticipatedservicedemands.
Operational and Administrative Analysis, Dover Fire Department page 3
TheFireChiefand/orthedutyofficer,whendispatchedtoanincident,shouldrespondwiththeirassignedcommandvehicletotheincidentsceneandassumetheroleofincidentcommander.
TheDFDshouldstandardizeitsresponsetoasingleunittoautomaticfirealarmsoundingsandothernonemergencysituations(whentheseareunconfirmedasatrueemergency).
TheDFDshouldlimititsfleetofprimaryresponseapparatustothreeengines,oneladdertruck,andtwocommandvehicles.
TheDFDshouldbuildatleastaportionofitstrainingregimensandtacticalstrategiesaroundtheexteriorortransitionalattackwhenthefirescenarioandthenumberofrespondingpersonnelwarrantthisapproach.
TheDFDshouldworkwiththeDover911PoliceCommunicationsCenterinanefforttoclassifyanddispatchfirecallsintoemergencyandnonemergencyresponsecategories.
TheDFDshouldmodifyitsresponseprotocolsinanefforttoreducethenumberofunitsrespondingtothosecallsthatarescreenedsufficientlytodeterminethattheyarenonemergencyinnature.
TheDFDshouldinstituteaunifiedincidentandactivityreportingsystemforemergencyresponseandothersupportactivitiescarriedoutbyallpersonnel.
DovershouldrequestfromISOareevaluationofitsAugust2015reviewaftermakingadjustmentsinitsfirehydranttestingproceduresandthetransferoffiredispatchingtoKentCounty.
TheCityofDovershouldincludearequirementforresidentialfiresprinklerswhenitadoptsthe2015InternationalCodeCouncilInternationalFireCode.
TheDoverFireDepartmentshouldrequireallnewfirefighterstomeetthetrainingqualificationsoftheNationalFireProtectionAssociation(NFPA)Standard1001,StandardforFirefighterProfessionalQualificationsforFirefighterIandII.
TheDFDtrainingprogramshouldberevisedinordertoscheduleweeklytrainingmeetingsanddrillsthroughouttheyear.
TheDFDshouldrevisetheongoingtrainingrequirementsforallactivemembers(includinglife‐members)toensurethatskillsandproficiencytrainingiscarriedouttosufficientlyensurefirefighterreadinessandsafety.
Operational and Administrative Analysis, Dover Fire Department page 4
SecondPhaseImplementation
TheCityofDovershouldreorganizethestructureoffiredepartmentoperationssothatthesupervisionandmanagementoftheDoverFireDepartmentisunifiedandunderthedirectionoftheCityManager.
ThecityFireMarshalandFireInspectors(DeputyFireMarshals),alongwithfirecodeenforcement,plansreview,andfireinspectionduties,shouldbeassignedunderthesupervisionoftheEmergencyServicesManager.
Allofficerpositions,includingCaptain,AssistantFireChief,DeputyFireChief,andFireChief,shouldbefilledonthebasisoffirefighting/emergencyservicestraining,certifications,andexperience,alongwithsuccessfulcompletionofaformal,openlycompetitiveassessmentprocess,includingapracticalskillsevaluation.
TheCityofDovershouldreassignthedispatchingfunctionattheDoverFireDepartmentandmoveallfiredispatchingtotheKentCounty911DispatchCenter.
TheCityofDovershouldreducethenumberoffull‐timedispatchersfromfivetotwo,reclassifythispositiontoaFireTechniciandesignation,andeliminatetheFireChief’sAssistantposition.
TheCityofDover,throughtheEmergencyServicesManager,shouldreviewallselection,promotional,andpersonnelissuescarriedoutbytheVolunteerAssociationinordertoensurecompliancewithcityregulations,andstateandfederalguidelines.
TheCityofDovershouldrevisititscurrentprohibitionofallowingemployeestorespondasvolunteerfirefighterswithoutdockingtheirpayorrequiringutilizationofleavetime.
TheDFDshouldconductaformalfireriskanalysisthatconcentratesonitsdowntownareas,high‐risestructures,andmanufacturingandinstitutionaloccupancies.
TheCityofDovershouldadoptanapparatusreplacementscheduletoserveasaguideforthefinancialplanningandreplacementoffireapparatus.
TheCityofDovershouldadoptanapparatusreplacementprogramthatallocatesannualfundingthatisearmarkedforfutureapparatuspurchases.
Thecity,underthedirectionofthenewEmergencyServiceManager,shouldberesponsibleforfleetmaintenanceandvehicleacquisitionfortheDoverFireDepartment.
TheDFDshouldundertakeaconcertedefforttodevelopacomprehensivesetofperformancemeasuresthatmonitorsitssystemperformanceandsystemoutcomes.TheprocessofdevelopingthesemeasuresshouldutilizeinputfromDFDmembers,thecommunity,electedofficials,andcityadministrators.
Operational and Administrative Analysis, Dover Fire Department page 5
DFDshouldexpandtheresponsibilitiesoftheFireTechnicianpositiontoincludeinspectionandcodeenforcement,includingtheprefireplanningofkeyoccupancies.
TheDoverFireDepartmentshouldmandatethatallofficersparticipateinadditionalofficer‐relatedtrainingeachyearinordertobeeligibletoretaintheirpositions.
Dovershouldconsiderthere‐assignmentoftheFireMarshal’sOfficeanditsfirecodeenforcementdutiesundertheFireDepartment’sEmergencyServicesManager.
TheDFDshoulddevelopanannualtrainingbudgetthatidentifiestheneededtrainingforitsmembershipandtheassociatedcostsforeachelementofthetrainingprogram.
UnderthedirectionoftheEmergencyServicesManager,theDFDshouldformacommitteecomprisedofacross‐sectionofthedepartment’smembershiptodevelopstandardoperatingguidelines(SOGs).
TheCityofDovershouldensurethatallFireDepartmentpersonnelarefamiliarwithapplicablecitypoliciesandthattheseareincludedintheannualtrainingcurriculum.
TheCityofDovershouldensurethatthehazardmitigationeffortsofKentCountyarealignedwiththeneedsofthecityandshouldidentifythosekeyinfrastructureandpublicoutreacheffortsnecessarytoprotectallcityresidents.
TheCityofDovershouldtransferitsfiredispatchingdutiestotheKentCounty911CommunicationsCenter.
ThirdPhaseImplementation
ThecityshouldconsidertherelocationofallFireDepartmentoperations,includingFireCodeInspections/Enforcement,EMStransport,andtheemergencymanagementfunctions,tothemainfirestationat103S.GovernorsAve.
TheCityofDovershouldintegrateitscommunityriskanalysisandhazardmitigationeffortswithKentCounty.
TheDFDshouldconductaformalStandardsofResponseCoverageanalysisundertheguidelinesoftheCommissiononFireAccreditationInternational(CFAI)
TheDFDshoulddevelopacomprehensive,department‐wideriskmanagementplanasrecommendedinNFPA1500.
Operational and Administrative Analysis, Dover Fire Department page 6
TheDFDshouldmakeitaprioritytoestablishaformalpre‐incidentplanningprogramwiththegoalofhavinganup‐to‐datepreplanforeverybusinessandcommercialoccupancy(includingschools,churches,etc.)withinitsresponsearea.
TheCityofDovershouldreviseitsperformancecriteriainfuturecontractswiththeambulanceprovider,withspecificguidelinesrelatingtounitavailability,turnouttime,andoverallresponsetime,measuredatthe90percentfractilerates.
TheCityofDovershouldamenditsfutureambulancecontracttorequirethatallambulancesoperatingwithinthecitybestaffedwithaminimumoftwo(2)EMTs.
AtthecloseofthecurrentcontractwithPrimeCare,theCityofDovershouldconsiderissuinganationalRFPforanambulanceproviderforthecityservicearea.
ThecityshouldconsiderthehousinganddeploymentofambulanceunitsfromtheDoverfirestations.
TheDoverFireDepartmentshouldconsiderCPSEaccreditationinthefuture.
Personnelseekingtobecomeanofficershouldberequiredtostartattherankofcaptainandserveineachsuccessiverankforaminimumperiodoftimebeforeseekingahigheroffice.
TheCityofDovershoulddevelopContinuityofOperationsPlans(COOP)foreachdepartmentandaligntheseplanswithanoverallContinuityofGovernmentPlan.
Operational and Administrative Analysis, Dover Fire Department page 7
Section 2. Scope of Project
ThescopeofthisprojectwastoprovideanindependentreviewoftheDoverFireDepartment(DFD)sothatcityofficials,includingofficialsoftheVolunteerAssociation,couldobtainanexternalperspectiveofthecity’sfireandEMSdeliverysystem.Thisstudyprovidesacomprehensive
analysisoftheDoverFireDepartment,includingitsorganizationalstructure,workload,staffing,deployment,training,fireprevention,emergencycommunications(911),andplanningandpubliceducationefforts.Cityofficialsoftenattempttounderstandiftheirfiredepartmentismeetingtheservicedemandsofthecommunity,andcommissionthesetypesofstudiestomeasuretheirdepartmentsagainst
industrybestpractices.InthisanalysisCPSMprovidesrecommendationswhereappropriate,andoffersinputonastrategicdirectionforthefuture.
Keyareasevaluatedduringthisstudyinclude:
Firedepartmentresponsetimes(usingdatafromthecity’scomputer‐aideddispatchsystemandthecity’srecordsmanagementsystem).
Deploymentandstaffing.
Organizationalstructureandmanagerialoversight.
FireandEMSunitworkloads.
DFDsupportfunctions(training,fireprevention/codeenforcement/911dispatch).
EssentialDFDfacilities,equipment,andresources.
Budgetandfinancialaccountability.
Operational and Administrative Analysis, Dover Fire Department page 8
Section 3. Organization and Management
Governance and Administration
TheCityofDoverislocatedinKentCountyincentralDelaware.ItisthecapitalCityofDelaware,adistinctionithasheldcontinuouslysince1781.ItisalsothecountyseatofKentCounty.ThecityisthehosttoDoverAirForcebaseandishometoDelawareStateUniversity,WesleyCollege,WilmingtonUniversity,DelawareTechnicalandCommunityCollege,andDoverDownsInternationalSpeedway.Doverisapproximatelyninety(90)milessouthofPhiladelphia,Penn.;fifty‐three(53)milessouthofWilmington,Del.;andninety(90)mileseastofWashington,D.C.Thecityisoneofonlyfour(4)statecapitalsnotservedbyanInterstatehighway.ItsprimaryhighwayconnectionisDelawareRoute1,alimitedaccesstollroadthatconnectsthecitytopointsnorthandsouth.
AccordingtotheU.S.CensusBureau,Doverhadanofficial2010populationof36,047andanestimatedJuly2014populationof37,355,1makingitthesecond‐mostpopulouscityinthestate.Thecityencompassesanareaof23.15squaremiles,andhasapopulationdensityof1,557personspersquaremile.2WhileitspopulationissignificantlylessthanthatofWilmington,DoverencompassesalargerareathananyothercityontheDelmarvaPeninsula.3IncontrasttomostmajorcitiesintheNortheastUnitedStates,Doveriscontinuingtogroweconomically,inpopulation,andinlandarea.4Thecity’smajoremployersaretheStateofDelaware,DoverAirForceBase,BayHealth/KentGeneralHospital,DoverDowns,andtheinstitutionsofhigherlearning.5Therearealsoseveralmanufacturingfacilities,eachwithmorethan390employees.6Retailsalesarealsocumulativelyamajorsourceofemployment.
Doveroperatesunderahybridformofmunicipalgovernmentutilizingamodifiedcouncil‐citymanagersystem.Thegoverningbodyiscomposedofafull‐timeMayorandnine(9)part‐timecouncilmembers.Two(2)membersofthecouncilarechosenfromeachofthecity’sfour(4)councildistricts;theninthmemberofcounciliselectedatlarge,asistheMayor.Allelectionsarenonpartisan.TheMayorandmembersofCouncilservestaggeredtermsoffour(4)years.TheCityCouncilannuallyelectsone(1)ofitsmemberstoserveastheCouncilPresident.Together,theMayorandCityCouncilarethecollectivelegislativeandpolicy‐makingbranchofthegovernment.
TheCityCouncilappointstheCityManager,TaxAssessor,CityClerk,CityController,CitySolicitor,andCityPlanner,allofwhomreportdirectlytotheCouncil.TheVolunteerAssociation(RobbinsHoseCompany),whichbycitycharterprovidesfireprotectiontothecity,electsitsFireChiefandotherofficerssubjecttoapprovalbytheCouncil.TheFireChiefalsoreportstotheCityCouncil.The 1http://factfinder.census.gov/faces/nav/jsf/pages/community_facts.xhtml,December14,20152http://quickfacts.census.gov/qfd/states/10/1021200.html,December14,20153CityofDover,Delawarewebsite,December14,20154CityofDover,Delawarewebsite,December14,20155https://imageserv11.team‐logic.com/mediaLibrary/134/Kent_County_Major_Employers_2010_1.pdf,December14,20156https://imageserv11.team‐logic.com/mediaLibrary/134/Kent_County_Major_Employers_2010_1.pdf,December14,2015
Operational and Administrative Analysis, Dover Fire Department page 9
Mayor,whomthecitycharteridentifiesasthecity’sCEO,appointsthePoliceChief,whoreportsdirectlytohim/her.Perthecharter,theCityManageristhechiefadministrativeofficerandprovidesfinancialoversight;however,aswasnoted,thefinanceofficerisappointedby,andreportsdirectlyto,thecouncil.Themanageroverseespublicworks,humanresources,electric,informationtechnology,customerservices,andthelibrary.
FIGURE 3‐1: City of Dover FY 2016 Organizational Chart
Inmostcommunitieswithacouncil/managerformofgovernmenttheCityManagerisresponsiblefortheday‐to‐dayadministrationandoperationsofthecitywhiletheelectedofficialsareresponsibleforpolicydirectionandfiscaloversight.InDover’shybridsystemthemanagerhaslimitedcontrolofcityoperations.TheMayorandCityCouncilbothhaveappointmentpowersanddirectsupervisionoverasignificantportionofthecity’sday‐to‐dayoperations.InthecaseoftheFireDepartment,CPSMhasobservedthatthecurrentoversightofoperationsappearsdisjointed.TheFireChiefandlineofficersareelectedbytheVolunteerAssociationmembershipandtheelectionresultsareconfirmedbyCityCouncil.BudgetaryoversightandpersonnelmattersareunderthesupervisionoftheCityManager;however,theLeadershipoftheVolunteerAssociationmaintainssignificantoversightofFireDepartmentoperations.
TheVolunteerAssociation,asaseparateentity,functionsindependentofmunicipaloperationsandtheAssociation’sstructureoforganization,training,selectionprocesses,anddisciplinarypractices
Operational and Administrative Analysis, Dover Fire Department page 10
arenotunderthepurviewofeitherthecity’selectedofficialsortheCityManager.Thereare,however,severalcityemployeeswhoareemployedbythefiredepartment(DispatchersandtheAssistanttotheFireChief)whooperateundercitypersonnelpoliciesandfallunderthesupervisionoftheCityManager.FireInspectorswhoareresponsibleforenforcingfirecodeandlifesafetypermittingprocessesarealsocityemployees,buttheyworkunderthesupervisionoftheDirectorofPlanningandCommunityServices.Webelievethatthisoverlycomplexarrangementcreatestheveryrealpotentialforambiguousorconflictingdirection.Revisionsshouldbeconsidered.
Recommendation:TheCityofDovershouldreorganizethestructureoffiredepartmentoperationssothatthesupervisionandmanagementoftheDoverFireDepartmentisunifiedandunderthedirectionoftheCityManager.
CompoundingthismanagementissueisthefactthattheFireChiefiselectedonanannualbasisbytheVolunteerAssociationandthenapprovedbytheCityCouncil.He/shehasdirectcontrolandoversightofthedepartment’sfieldoperations.SincetheFireChiefiselectedonanannualbasisthereisthepossibilityforalackofcontinuityinmanagementandadministrativeoversightofthedepartment.Inaddition,therearenospecificqualifications,training,orsupervisoryexperiencerequiredtobeselectedFireChief.
TheCityofDoverprovidessignificantannualfundingfortheoperationoftheFireDepartmentandprovidesannualpaymentstotheVolunteerAssociation.ThedutiesforoperatingandmanagingthevariousfunctionsoftheFireDepartmentareextensiveandtheimpactsofthesedecisionscreatesignificantliabilitiesforthecity.Theseliabilitiesareintheareasinvolvingworkplaceissues,discrimination,anddisparatetreatmentwithregardtoage,gender,nepotism,race,orethnicity.Inaddition,therearebroadfinancialcomponentsofthisoversightthatrequiretransparency,equalaccess,andproperaccountingpractices.Ouranalysisdidnotrevealanyillegalorunethicalpractices;however,thereisconcernthatimprovedoversightiswarranted.
Recommendation:TheCityofDovershouldcreateafull‐timepositionofEmergencyServicesManagerandtransfertheday‐to‐dayoversightofthefiredepartmentandtheothercloselyrelatedemergencyservicesandsupportfunctionsunderthisposition.WerecommendthatthisnewpositionbeadirectreporttotheCityManager.
ThedutiesandresponsibilitiesoftheEmergencyServicesManagerwillbesignificant,withtheoversightofthefiredepartment,emergencymanagement,EMS,fireprevention,publiceducation,fleetmaintenance,andcapitalplanning.However,theprimaryobjectivewouldbetomanageandadministertherelationshipbetweentheVolunteerAssociationanditsinteractionwiththeCityofDover.
In2009,areportbythepublicaccountingandmanagementfirmofHaggertyandHaggertywascommissionedbyCityCouncil.InthereportanumberoffindingsandrecommendationsweremaderegardingimprovedoversightoftheFireDepartment.Ultimately,ajointcommitteecomposedofCityofDoverandrepresentativesoftheVolunteerAssociationnegotiatedanine‐pointagreement
Operational and Administrative Analysis, Dover Fire Department page 11
thataddressedfinancialissuesandtheoverallworkingrelationshipbetweenthetwoparties.Inourinterviewswithvariousstakeholderstherewasawidedivergenceofopiniononwhetherthisagreementresolvedthevariousconcerns,andiftheagreementisstillbeingadheredto.Itisapparent,however,fromCPSM’sperspectivethataformal,writtenagreementiswarranted.ThisagreementshouldspecifythetermsandconditionsaroundwhichthecityandtheVolunteerAssociationshouldoperatejointlyinprovidingfireservices.
Recommendation:TheCityofDoverandtheVolunteerAssociationshouldenterintoacontractualagreementthatspecifiesthetermsandconditionsinvolvedinthedeliveryoffireservices.
CPSMbelievesthatthisagreementshouldbefullyencompassingandshouldprovidedetailedguidanceintheworkingrelationshipbetweenthecityandtheVolunteerAssociation.WefurtherrecommendthatthenewlyappointedEmergencyServicesManagerberesponsiblefortheadministrationofthisagreementandbethedirectpointofcontactbetweenthecityandVolunteerAssociation.Wewouldrecommendthefollowingcomponentsbedefinedinthisagreement:
RelationshipbetweenthecityandtheVolunteerAssociation.
Annualbudgetallocationsandreportingrequirements.
ReportingrelationshipbetweentheFireChiefandtheEmergencyServicesManager.
Minimumtrainingandselectioncriteriafornewvolunteerpersonnel.
Professionalqualifications,promotionalprocesses,andon‐goingtrainingrequirementsforexistingvolunteers.
Safetypractices,safetyequipment,andPPE.
Deployment,emergencyresponse,andon‐sceneoperationalpractices.
Incidentreportingandotherreportrequirements.
Themanagementofthefiredepartmentapparatus,includingpurchasing,maintenance,andownership.
Useoffirefacilitiesandassociatedrentalcharges.
WorkingrelationshipwithPrimeCare.
WorkingrelationshipwithKentCounty.
Serviceresponsedesignationandrelationshipwithmutualaidresponders.
IncludedinthisagreementshouldbethedelineationoftheresponsibilitiesoftheEmergencyServicesManagerandhis/herrelationshipwiththeVolunteerAssociationinthedeliveryofservices.Thiswouldinclude:
Managingtheday‐to‐dayadministrativeoperationsofthefiredepartmentandprovidingtheFireChiefwithadditionaloperationalsupportwhenneeded
Operational and Administrative Analysis, Dover Fire Department page 12
○ TheFireChief,aschosenbythemembershipoftheVolunteerAssociation,wouldretaintheresponsibilityforemergencyscenemanagementandincidentcontrol;however,he/shewouldreportdirectlytotheEmergencyServicesManager.
OverseeingEMSoperationsandmanagingtheEMScontract.
OverseeingtheoperationsoftheFireMarshal’soffice.
ServingastheOEMcoordinator,or,ataminimum,overseeingtheOEMfunctionanditsoperations.
ManagingtheFireDepartmentfleet.
Ensuringadherencetotrainingrequirementsandrecordkeeping.
Reviewingincidentreportsandfollowinguponincompleteorinaccuratereporting.
Maintainingproperworkplacebehaviorandthesupervisionoffiredepartmentemployees.
Maintainingfinancialrecords.
Long‐andshort‐termplanningforFireDepartmentoperations,facilities,andequipment.
Emergencymedicaltransportinthecityisprovided,undercontract,byaprivatethird‐partyentity.ThecurrentproviderisPrimeCareMedicalTransport.ThePrimeCarecontractisadministeredbythecity’sCoordinatorofPublicAffairs.Thisindividualalsohasoversightofthecity’sOfficeofEmergencyManagementfunctions.CPSMbelievesthatboththeadministrationoftheEMScontractwithPrimeCareandtheoversightofthecity’semergencymanagementactivitiesshouldfallunderthedutiesassignedtotheEmergencyServicesManager.
Recommendation:TheEmergencyServicesManagershouldbeassignedtheadministrationofthecontractwithPrimeCareandshouldcoordinatetheemergencymanagementactivitiesfortheCityofDover.
TheCoordinatorforPublicAffairshasmanagedthecity’sresponsibilitiesinvolvingPrimeCareandemergencymanagementinaveryprofessionalandproficientmanner.ItisstronglyrecommendedthatthisindividualworkcloselywiththeEmergencyServicesManagerintransitioningtheseduties.CPSMalsorecommendsthatthisindividualcontinuetoplayanactiveroleinbothactivitiesandpossiblyassumeanalternateordeputymanagerstatusinthesekeyduties.
TheFireMarshal’sofficeiscurrentlylocatedinthePlanningandCommunityDevelopmentDepartment.CPSMbelievesthatthisisaFireDepartmentfunctionandshouldfallunderthepurviewofthenewEmergencyServicesManager.Itisimportant,however,thattheFireMarshal’sdutiescontinuetohaveclosetiesandcoordinationwiththePlanningandCommunityDevelopmentDepartment.
Recommendation:ThecityFireMarshalandFireInspectors(DeputyFireMarshals),alongwithfirecodeenforcement,plansreview,andfireinspectionduties,shouldbeassignedunderthesupervisionoftheEmergencyServicesManager.
Operational and Administrative Analysis, Dover Fire Department page 13
Asnotedabove,thecurrentappointmentofkeyfireofficials(FireChiefandFireMarshal)requiresapprovalbytheDoverCityCouncil.UndertheproposedrestructuringwearenotrecommendingthatthesechangesmodifythecurrentCityCharterprovisionsthatguidethisoversight.InsteadCPSMrecommendsthattheCityManagerbeinvolvedanddevelophis/herrecommendationsinthesekeyareasofoversight,whichthenarepresentedtoCityCouncilforapproval.ThiswouldincludetherecommendedappointmentofFireChiefandFireMarshal.Inaddition,theCityManagerwouldnegotiatetheagreementsandtheirrespectivestipulationswithboththeVolunteerAssociationandPrimeCareandpresenttheserecommendationstoCityCouncilforapproval.However,onceapprovalisachieved,itthenbecomestheresponsibilityoftheCityManagerandtheEmergencyServicesManagertoadministertheseagreementsinaccordancewiththedirectionofthecitycouncil.
FIGURE 3‐2: Proposed Fire Department Organizational Structure
InadditiontotherevisionsintheorganizationalstructureoftheFireDepartmentandassociatedsupportactivities,CPSMbelievesthatitisalsobeneficialtohouseallfiredepartmentoperationsatacentrallocationinthemainfirestation.Weproposethatthosepersonneloperatingfromthislocationinclude:theEmergencyServicesManager,theFireMarshal,FireInspectors,FireTechnicians,andothersupportpersonnel.ThiswillrequireVolunteerAssociationapprovalandagreementregardingthestipulationsinvolvingspaceallocation,buildingmaintenance,utilities,andrentalcharges.WebelievethattheproposedserviceagreementbetweenthecityandtheVolunteer
Operational and Administrative Analysis, Dover Fire Department page 14
Associationisthebestmechanismtonegotiatethesetermsandshouldbebuiltintothewrittenagreement.CPSMalsorecommendsthatPrimeCareoperationsbemovedtothemainfirestation.ThiswillfacilitateacloseralignmentbetweentheFireDepartmentandPrimeCareandwillprovidetheabilityfordirectoversightofPrimeCareactivitiesbytheEmergencyServicesManager.
Recommendation:Thecityshouldconsidertherelocationofallfiredepartmentoperations,includingFireCodeInspections/Enforcement,EMStransport,andtheemergencymanagementfunctionstothemainfirestationat103S.GovernorsAve.
AsthecityandtheVolunteerAssociationmovetowardacloseralignmentoftheirworkingrelationship,itiscriticalthatallfiredepartmentactivitiesarehousedatacommonlocation.Theregularmovementofpersonnelinanoutofthisstructurewillidentifythestructureasafullyoperationalgovernmentfacilityandthiswillassistinmaintainingthesecurityatthislocation.Inaddition,thisverylargestructureprovidesamplespacetohostFireDepartmentadministrativeservices,VolunteerAssociationactivities,anEMSdormitory,andapparatusspace.Thisfacilityalsoprovidesopportunitiestohouseandoperatethecity’sEmergencyOperationsCenterwhenneeded.
Dover Fire Department
TheDoverFireDepartmentisoperatedandstaffedbytheVolunteerAssociation(formallytheRobbinsHoseCompanyNo.1).ThedesignationofRobbinsHoseCompanyasthecity’sofficialfirecompanyisspecifiedinthecitycharterandthecitycode.TheVolunteerAssociationisanautonomousorganization,andprovidesfireprotectionandemergencyresponsewithinthecorporatelimitsoftheCityofDoveralongwithsomecontiguousareasofKentCounty.
DFDStation1islocatedat103S.GovernorsAve.indowntownDover.Engines4,6,and7,Ladder2,Rescue1,Brush9,andMarine1aredeployedfromthisstation.ThisfacilityalsohousestheVolunteerAssociation’sadministrativeoffices,afiredispatchcenter,meetingareas,andafiremuseum.Station2islocatedat911KentonRd.,andhousesEngines2and3,Ladder1,Utility1,andafoamtrailer.MembersoftheVolunteerAssociationgenerallyrespondtothestationnearesttheirresidence.Thelocationofthecity’sfirestationsandthemunicipalboundariesareillustratedinFigure3‐3.
Operational and Administrative Analysis, Dover Fire Department page 15
FIGURE 3‐3: City of Dover Map with Fire Station Locations
AllmembersoftheDFDarevolunteer.Thedepartment’smembershiprollshowsanactiverosterofapproximatelyeighty(80)personnel.Aswithmostvolunteerorganizations,thenumberofactivevolunteerscontinuallyfluctuatesasnewmembersjoinwhileotherleaveormoveon.TheVolunteerAssociationhasbeenshowinganetgaininitsactivemembersofapproximatelyfive(5)tosix(6)newmembersannually.Basedonourexperiencestudyingdepartmentsacrossthecountry,wecansaythatthecityisfortunatetohaveaveryhealthyvolunteerorganizationthatappearstobeeffectiveinitsrecruitmentandretentionefforts.
TheCityemploysfive(5)full‐timeFireDispatchers,andseveralpart‐timedispatchers(alternates),whoprovidedispatchandcommunicationsservicesforthedepartment.Thereisone(1)dispatcherondutyatStation1atalltimes.DispatchersatStation1workarotatingschedulethatconsistsoffour(4)daysonfollowedbythree(3)daysoff.One(1)full‐timedispatcherisalsoassignedatStation2andworksfour(4)ten(10)‐hourdays.ThisindividualmaymovetoStation‐1asafill‐inifoneoftheotherdispatchersisonleave.Thepart‐timedispatchersareutilizedtofillinasnecessary.ThecityalsoemploysaFireChief’sAssistantwhoprovidesadministrativeandnoncombatoperationalsupporttotheFireChief.Thispersoninessencehandlestheday‐to‐dayadministrativeneedsofthedepartment.Whilethepositionhastraditionallybeenfulltime,atthetimeofourassessmentitwasonlybeingfilledonapart‐timebasisoftwenty‐nine(29)hoursperweek.The
Operational and Administrative Analysis, Dover Fire Department page 16
FireChief’sAssistantisdesignatedasthesupervisorfortheFireDispatchers,thoughthesepersonneloftenreceiveworkassignmentsanddirectionfromvolunteerpersonnel.
Robbins Hose Company No. 1 TheRobbinsHoseCompanywasorganizedasavolunteerfirecompanyinNovember1882byseventeencitizensofDover.ThecompanywasgrantedanactofincorporationbytheDelawareLegislatureonJanuary25,1883.Thecompanyhasremainedthesolefirefightingforceforthecityeversinceandthisrelationshiphasbeendesignatedinboththecitycharterandcitycodes.Despitetrendsnationwidethathavestrainedtheabilityofthevolunteerfireservicetoprotectlargercommunities,theDoverFireDepartmenthasremainedfullyvolunteerfor132years.Infact,thecityandcompanypridethemselvesonbeingtheonlystatecapitalthatisprotectedbyafullyvolunteerfiredepartment.AlthoughtodaythecompanyismoreoftenreferredtosimplyastheDoverFireDepartment,thetraditionalfirecompanystructurewhichispartofitsheritageisstillveryactiveinallfacetsofitsoperations.
Thebusinessaspectsofthefirecompanyareoverseenbyanine(9)‐memberboardofdirectorswhosemembersareelectedbythecompanymembership.Ontheadministrativesideofthecompanythemembershipalsoelectsafirecompanypresident(whoalsoservesasanex‐officiomemberoftheboard),vicepresident,secretary,treasurer,andthree(3)trustees.Thetrusteesservetwo‐year(2)termswhiletheremainderoftheofficersserveone‐year(1)terms.Thecompanymembershipalsodirectlyvotesforthemembersoftheapparatusandmaintenancecommittee,therulescommittee,funddrivecommittee,andthefirerecorder.Therearealsotwenty‐four(24)variouscommitteeswhosemembersareappointedbythefirecompanypresident.
OntheoperationssidethefirecompanymembershipelectstheFireChief,DeputyFireChief,four(4)AssistantFireChiefs,andtwo(2)firelineCaptains.Allofthesepersonnelalsoserveone‐year(1)terms.Aswithmanyvolunteerfirecompaniestheadministrative/socialofficersandboardofdirectorsandtrustees,whilenotdirectlyinvolvedinemergencyoperations,wieldsignificantinfluenceandcontroloverallaspectsofthecompany’soperations.Ultimately,iftherewasamajordisagreementbetweentheFireChiefandthecompanyPresident,thecompanyPresident’sdecisionwouldprevail.
Organizational Structure TheDoverFireDepartmentutilizesatraditional,althoughratherlinear,organizationalstructure.ThedepartmentisledbyaFireChiefwhoisanactiveresponder.HeisassistedbyaDeputyFireChiefwhoservesasthesecondincommandandinchargeoffiresuppressionoperations.Therearefour(4)AssistantChiefs,firstassistantthroughfourthassistant,andtwo(2)firelineCaptains.PersonnelwhoarecertifiedasFirefighterIIIaredeemedtobequalifiedtoserveasanofficeronapparatus.Thehierarchicalrelationshipsandthejobfunctionsencompassedinthisstructuredoesnotappeartobewelldefinedanditwasdifficulttodetermineanydifferencesinassignmentsorresponsibilitiesamongchiefofficersandcompanyofficers.
Operational and Administrative Analysis, Dover Fire Department page 17
FIGURE 3‐4: Dover Fire Department FY 2015 Organizational Chart
Allofficersareelectedannuallybythemembershipofthedepartment.Thereisnotapromotionalprocesstodetermineifthepersonnelbeingnominatedthroughthecompany’selectionprocessarequalifiedtoholdtheirrespectivepositions.OfficersareonlyrequiredtohavecompletedthefourmandatorytrainingclassesthatarerequiredtoreceivetheClassIIIFireFightergrade.Officersarenotrequiredtopossessordemonstrateanyskillsinadvancedfirefightingtactics,knowledgeofbuildingconstruction,firecodes,codeenforcement,firepumppractices,operationalscenemanagement,incidentcommand,orfirefightersafety.Thereisnorequirementthatpersonnelhaveaprogressionintheirassignments,norhavepreviousexperienceasanadvancedfirefighter,companyofficer,orchiefofficer.Mostofthosepersonnelwhoserveasofficersweresimplyrecruitedbyotherstorunforapositiontowhichtheywereultimatelyelected.
Recommendation:Allofficerpositions,includingCaptain,AssistantFireChief,DeputyFireChief,andFireChief,shouldbefilledonthebasisoffirefighting/emergencyservicestraining,certifications,andexperience,alongwithsuccessfulcompletionofaformal,openlycompetitiveassessmentprocess,includingapracticalskillsevaluation.
CPSMbelievesthatthetestingandselectionprocessforthevariousrankedpositionswithintheFireDepartment’sorganizationalstructureistheresponsibilityoftheVolunteerAssociationtomanage.Itisnecessary,however,toincludeinthecontractualagreementbetweenthecityandtheVolunteerAssociationspecificlanguagethatrequirestheAssociationtomaketheseselectionsthroughanopenlycompetitivetestingprocessesthatutilizesnationallyrecognizedskillsrequirementsandexperiencefortheaffectedpositions.Thecontractshouldalsoprovidethecitywiththeabilitytoreviewtheseprocessesandthatdetailedrecordkeepingbekeptregardingtheseselections.
Operational and Administrative Analysis, Dover Fire Department page 18
Aswaspreviouslynoted,theCityofDoveremploysfive(5)full‐timeandseveralpart‐timefiredispatcherswhoareassignedtoworkatthefiredepartment.Thisdispatchersworkintandemwiththecity’s911PoliceDispatchCenter;whenafirecallisreceivedbythe911centeritispassedtothefiredispatchcenter,whichsendsoutapagetothevolunteersandmonitorstheresponseandon‐scenecommunicationsinvolvingfiredepartmentpersonnel.However,theprimaryworkloadforthefiredispatchersisthemaintenanceofvehiclesandstationequipmentalongwiththecustodialdutiesforthetwofirestations.CPSMbelievesthattheassignmentofdutiesforFireDispatchersisjustifiedandappearseffective.TheFireDispatchersarechargedwithkeepingtheequipmentandvehiclesinafullstateofreadiness.Theycleanthefacilitiesandprovidegeneralmaintenanceonthevehiclesandequipment.Thisallowsthevolunteerstorespondtoincidentsandfocusontrainingandskillsdevelopment.Duringfirecallsthedispatchersupportssceneactivitiesviaradiocommunicationsandcoordinatespersonneldeployment.Thecurrentarrangementisnot,however,themostefficientutilizationofthesepersonnelandCPSMrecommendsthatthisarrangementbemodified.
Recommendation:TheCityofDovershouldreassignthedispatchingfunctionattheDoverFireDepartmentandmovethisdispatchingfunctiontotheKentCounty911DispatchCenter.
ThecurrentdispatchoperationsprovidedbytheDoverFireDepartmentappearredundantandinefficient.ThesameservicecanbeprovidedbyKentCountyfromamuchmoretechnologicallyadvancedcenter,withprofessionallytrainedpersonnel.Byusingasinglecentertoprocesscalls,CPSMbelievesthatthiswillreducethenumberoftimescallsaretransferredbetweenagenciesandwillexpeditetheemergencyresponseprocess.TheKentCenterismodernandwell‐staffedandmoretechnologicallyadvancedthaneitherthecity’spoliceorfirecommunicationscenters.TheKentCenterislocatedintheCityofDover,whichwouldenabledirectinteractionwithmanagerialandlineofficerswhenneeded.Thiscentercurrentlydispatchesallothervolunteercompaniesinthecounty,alongwithPrimeCare.Thecenterhastheabilitytoscreencallsandprioritizetheassignmentofunitstobestmatchthenatureofthecall.ThecenteralsomonitorsallradiotrafficforPrimeCareandotherMutualAidCompaniesinthearea.Countyofficialswithwhomwespokeindicatedthatthe911serviceisavailabletothecityatnocharge.ThecurrentworkloadanticipatedwithamoveoffiredispatchingservicesintotheKentCentercouldbehandledwithouttheneedforadditionalpersonnelorequipment.
Thecityiscurrentlyexpendinginexcessof$400,000annuallyinpersonnelcostsfortheFireDispatchersandthepart‐timeFireChief’sAssistant.CPSMbelievesthatbyrestructuringtheorganizationoftheFireDepartment,movingdispatchoperationstoKentCounty,reducingthenumberofFireDispatcherstotwo(2)full‐timepositions,andeliminatingtheFireChief’sAssistant,therewouldbesufficientsavingstofundthefull‐timeEmergencyServicesManagerandafull‐timeadministrativesupportposition.
Recommendation:TheCityofDovershouldreducethenumberoffull‐timedispatchersfromfive(5)totwo(2),reclassifythispositiontoaFireTechniciandesignation,andeliminatetheFireChief’sAssistantposition.
Operational and Administrative Analysis, Dover Fire Department page 19
TABLE 3‐1: Comparison of Personnel Costs
Current DFD Personnel Costs* Proposed DFD Personnel Costs
Five (5) Dispatchers & Alternates,
Fire Chief’s Asst.‐Salary & Benefits
$409,800
$80,000 1‐Emergency Services Manager
$33,000 1‐Administrative Assistant
$90,000 2‐Fire Technicians
$20,000 Fire Technicians/Alternates/OT
$99,904 Employee Benefits (@44.8%)
TOTALS $409,800 $322,904
*Note: Does not include any payments to the Volunteer Association or for Fire Prevention staff.
WhenreclassifyingthepositionofFireDispatchertoFireTechnician,CPSMproposestoeliminatethedispatchingdutiesforthesepersonnelandtoexpandtheirroleinsupportofvolunteeroperations.Theirprimaryjobswillcontinuetobethemaintenanceoffireapparatus,equipment,andfirestationfacilitiesandgrounds.Itisproposedthatthetwo(2)full‐timeFireTechsworkfour10‐hourdayssothatone(1)firetechnicianisondutyeverydayoftheseven(7)‐dayweekandonone(1)dayeachweek,two(2)wouldbescheduledtowork.Inaddition,CPSMproposesthat$20,000inadditionalfundingbeavailabletomaintainalternateswhowouldcoverfortheFireTechniciansduringscheduledabsencesortosupplementstaffingduringhigherworkloadperiods,specialevents,training,etc.However,withtheeliminationofthedispatchingduties,theFireTechscansupporttheFireMarshal’sofficeindevelopingdetailedpreplansontargethazardsandothercommercial,industrial,andmultifamilyresidentialoccupanciesthroughoutthecity.Theywillberesponsibleforproducingthesedocumentsintoviableprefireplanningdocumentsthatwouldbeavailabletorespondingpersonnelandkeptontheapparatus.Inaddition,theycouldbeinvolvedinthetrainingofthesematerialstothevolunteerpersonnelduringweeklytrainingsession.CPSMdoesnotbelievethenewroleofFireTechnicianisa24/7operation,butinsteadcanbeaccomplishedonamodified40‐hourschedulewithtwo(2)full‐timepositionsandalternativesupport.WeproposethattheFireTechpositionbeplacedunderthesupervisionoftheEmergencyServicesManagertoassisttheEmergencyServicesManagerinvariousdutiesinvolvedintheoversightoffiredepartmentoperations.
TheFireChief’sAssistantisresponsibleformanyoftheadministrativedutieswithinthefiredepartment.BycreatingtheEmergencyServicesManagerandtheAdministrativeAssistantpositions,thedutiesoftheChief’sAssistantdutieswillbeassumedbythesenewpositionsandthiswilleliminatetheneedfortheFireChief’sAssistantposition.
Personnel Management/Rank Structure FireDepartmentrules,regulations,andproceduresshouldworkintandemwithandbeconsistentwiththeoverarchingordinances,rules,regulations,andpoliciesthathavebeenadoptedbytheCityofDover.Thoughvolunteerpersonnelarenotemployeesofthecity,theyoperateundertheauthorityandsupervisionofcitygovernment.Assuch,employeeworkplacepoliciesinvolving
Operational and Administrative Analysis, Dover Fire Department page 20
discrimination,sexualharassment,utilizationofgovernmentfundsforpurchasing,freedomofinformation,Internetandcomputerusage(includingsocialmedia),andsmoking(oncitypremisesorinvehicles)aretypicallyguidedbythegoverningbodyandappliedacross‐the‐boardtoallemployees,includingvolunteermembers.Thecityshouldprovidetrainingandfamiliarizationconcerningthesepoliciesandthesupervisoryoversighttoensurethatthesepoliciesarebeingfollowed.
Recommendation:TheCityofDoverandtheVolunteerAssociationshouldspecifythosecitypersonnelpoliciesthatapplytomembersoftheVolunteerAssociationandincludetheseprovisionsintheserviceagreement.
CPSMrecommendsthatacleardelineationofthosecitypersonnelpoliciesthatapplytothemembersoftheVolunteerAssociationbecommunicatedinwriting.ItshouldbetheresponsibilityoftheEmergencyServicesManagerincollaborationwiththeFireChieftosupervisethiseffort.
TheVolunteerAssociationalsohasapersonnelcommittee.Thecommitteeisprimarilyresponsibleforprocessingapplicationsfornewvolunteermembersoftheassociation.Onceanapplicationisreceivedthechairpersonofthecommitteeperformsabackgroundcheckontheapplicant;however,theyarenotfingerprintedtodetermineifthereisacriminalhistory,whichisastaterequirement.Theapplicantisthensentforamedicalevaluationanddrugtesting.TheVolunteerAssociationhasrecentlyaddedasocialmediareviewcomponenttothescreeningprocess.Ifthepotentialmembersuccessfullypassesallscreening,thechairpersonandthreeadditionalmembersinterviewthecandidate.Thisisacommendableeffortforavolunteerorganization,andwhichCPSMconsidersabestpractice.OncethecandidateisacceptedintomembershipintheVolunteerAssociationtheyareassignedtotheorientationofficertoinitiateandoverseetheirtraining.
TheVolunteerAssociationhasaninternalaffairscommitteecomprisedofthePresident,VicePresident,andFireChief.Othermemberscanbeappointedasnecessary.Thecommitteeistaskedwithinvestigatingcomplaintsorallegationsofwrongdoingagainstmembersandrecommendingappropriatedisciplinaryaction.Thoughtheseprocessesarevalidandintendedtoprovidethenecessaryoversightoftheselectionprocessandperformanceissues,CPSMbelievesthatagovernmentalreviewoftheseactivitiesiswarranted.
Recommendation:TheCityofDover,throughtheEmergencyServicesManager,shouldreviewallselection,promotional,andpersonnelissuescarriedoutbytheVolunteerAssociationtoensurecompliancewithcityregulations,andstateandfederalguidelines.
CPSMrealizesthatthereisseparationbetweencitygovernmentandtheinnerworkingsoftheVolunteerAssociation.However,itisincumbentuponthecitytoensurethattheactionsoftheVolunteerAssociationareincompliancewithlocal,state,andfederalguidelines.ItshouldbetheprimaryresponsibilityoftheEmergencyServicesManagerinconjunctionwiththeFireChieftomakesurethatthisoversighttakesplaceandthatproperrecordkeepingismaintained.
Operational and Administrative Analysis, Dover Fire Department page 21
Undercurrentcitypolicy,employeesarenotpermittedtorespondaspartoftheVolunteerAssociationwithouttakingpersonalleaveforanyworkinghoursmissed.EmployeesarepermittedtobemembersoftheAssociation,butarerestrictedintheirabilitytorespondtoemergencies.CPSMbelievesthatthereareanumberofemployeeswhohaveadesiretoparticipatefullyandshouldbepermittedtodoso.Thereisalwaysaneededbalancethatmustbemaintainedwhenemployeesassumesecondaryrolesapartfromtheirprimaryemploymentduties.Clearguidelinesmustbeprovidedastowhenitisappropriatetorespondtoemergenciesandwhenitisnot.Inaddition,worker’scompensationissuesmayariseifanemployeeisinjuredorlosestimefromtheirprimaryworkresponsibilitiesbecauseofinjuriessustainedinavolunteerfirefightingstatus.Inaddition,thecityandtheemployeemustestablishanovertimeexclusionforthosevolunteeractivitiesthatmaytakeplaceaftertheemployee’snormalworkinghours.Notwithstandingtheseconsiderations,CPSMbelievesthatthecityshoulddiscontinuethelimitationonreleasingemployeeswhoareactivefirefightervolunteersforrespondingtoemergenciesduringbusinesshours.
Recommendation:TheCityofDovershouldrevisititscurrentprohibitiononallowingemployeestorespondasvolunteerfirefighterswithoutdockingtheirpayorrequiringutilizationofleavetimeinprovidingthisservice.
Thekeytoavibrantandcompetentvolunteerfireserviceisdirectlyrelatedtoitsabilitytorecruitandmaintainaviablecomplementofpersonnel.Doverhasbeenfortunateinitsrecruitingeffortbutasnationaltrendingindicates,thiscapacitywillbetestedintheyearsahead.Theremustalwaysbeabalanceinregulatingtheabilitiesofemployeestomaintaindualrolesandthisisparticularlydifficultwhentheadditionaldutiesinvolveemergencyresponse.Goodcommunicationsbetweentheemployeeandtheirsupervisorregardingwhenitisappropriatetorespondandwhenitisnotisessential.Theremustbeanabilitytotrainandtoparticipateinfiredepartmentactivitieswithoutafinancialhardshiporreductioninleavetime.Similarly,theemployeemustunderstandthelimitationsinvolvedinthiseffortandthattheultimatepriorityistheirprimarywork.Theprocessmustbeguidedbywrittenpolicyandgoodcommonsense.Ultimatelythenumberofparticipantswillnotbesignificant;however,CPSMbelievesthattheexpansionofthetalentpoolwillhavefarmorebeneficialimpactsthancomplications.
Operational and Administrative Analysis, Dover Fire Department page 22
Section 4. Analysis and Planning Approaches
Community Risk Analysis
Inanefforttoreducethenation'smountingnaturaldisasterlosses,theU.S.CongresspassedtheDisasterMitigationActof2000(DMA2000)toprovidenewandrevitalizedapproachestomitigationplanning.Section322ofDMA2000emphasizestheneedforstateandlocalentitiestocloselycoordinatemitigationplanningandmakesthedevelopmentofahazardmitigationplanaspecificeligibilityrequirementforanylocalgovernmentapplyingforfederalmitigationgrantfunds.ThesefundsincludetheHazardMitigationGrantProgram(HMGP)andthePre‐DisasterMitigation(PDM)program,bothofwhichareadministeredbytheFederalEmergencyManagementAgency(FEMA).Communitieswithanadoptedandfederallyapprovedhazardmitigationplantherebybecomeprepositionedandmoreapttoreceiveavailablemitigationfundsbeforeandafterthenextdisasterstrikes.
In2015,theKentCountyDepartmentofPublicSafety,EmergencyManagementDivision,facilitatedanupdatetotheKentCountyMulti‐JurisdictionalHazardMitigationPlan,whichincludestheCityofDover.KentCountyisvulnerabletoawiderangeofnaturalhazards,includingflooding,drought,tropicalstormsandhurricanes,andwinterstorms.Itisalsovulnerabletoavarietyofhuman‐causedhazards,includingchemicalreleases,spills,orexplosionsassociatedwiththefixedstorageormobiletransportofhazardousmaterials.Thesehazardsthreatenthelifeandsafetyofcountyresidents,andhavethepotentialtodamageordestroybothpublicandprivatepropertyanddisruptthelocaleconomyandoverallqualityoflife.7
The2015PlanUpdatewasconductedincoordinationwiththeFederalEmergencyManagementAgency(FEMA)andtheDelawareEmergencyManagementAgency(DEMA)toensurethatitmeetsallapplicableDMA2000planningrequirements.ALocalMitigationPlanReviewTool,includedinthePlanUpdate,providesasummaryofFEMA’scurrentminimumstandardsofacceptabilityandnotesthelocationwithintheplanwhereeachplanningrequirementismet.
Recommendation:TheCityofDovershouldintegrateitscommunityriskanalysisandhazardmitigationeffortswithKentCounty.
Strategic Planning/Long‐Range Planning
Thedevelopmentofacomprehensivefireprotectionandpreventionstrategicplaninvolvesthreekeysteps:
First:Togenerateanassumptionofwhatthecommunitywilllooklikeattheendoftheplanningprocess.
7KentCountyMulti‐JurisdictionalHazardMitigationPlan,2015Update(Draft)
Operational and Administrative Analysis, Dover Fire Department page 23
Second:Thedepartmentneedstoassessrealisticallythestrengthsandweaknessesoftheexistingfireprotectionsystemtoincludecodes,standards,andordinancesrelatingtofirepreventionefforts,publicsafetyeducationprograms,andemergencyresponsecapability.
Third:Toprojecttheneededcapabilitiesandcapacityofthefireprotectionsystemanditsfiredepartmentcomponentasthecommunitychanges.
Thisprocesshelpstoensurethatanadequatelevelofresources,includingstaffingandequipment,areallocatedtomeetthecommunity’sneedsfortheservicesdeliveredbytheFireDepartmentasefficientlyaspossible.Astrategicplanalsoassiststhedepartmentinmatchingresourceswithavailablerevenues.
Definingcleargoalsandobjectivesforanyorganizationthroughaformalstrategicplanningdocumentestablishesaresourcethatanymemberoftheorganization,orthoseexternaltotheorganization,canviewanddetermineinwhatdirectiontheorganizationisheading,andaswellashowtheorganizationisplanningtogetthere.
Inastrategicplan,itisessentialthatclearandachievablegoalsandobjectivesforeachprogramareaaredeveloped.Eachprogramareamustthen(1)defineitsgoals;(2)translatethegoalsintomeasurableindicatorsofgoalachievement;(3)collectdataontheindicatorsforthosewhohaveutilizedtheprogram;and(4)comparethedataonprogramparticipantsandcontrolsintermsofgoalcriteria.ObjectivesshouldbeSMART,anacronymthatstandsforspecific,measurable,ambitious/attainable,realistic,andtime‐bound.Additionally,thesegoalsshouldlinkbacktofiscalplanninggoals.
TheDoverFireDepartmentdoesnothaveacomprehensivestrategicplanthatfocusesonthefuture,providescleardepartmentaldirection,anddefinesresourcesthatsupportthestrategyforfireprotection.
Recommendation:TheCityofDovershouldfacilitatethedevelopmentofastrategicplanfortheDoverFireDepartmentthatfocusesonthedepartment’slong‐termneedsandanticipatedservicedemands.
Standards of Cover
AStandardsofCoverisadocumentthatisfullycompliantwithindustrybestpracticesinthefieldofdeploymentanalysis.Theevaluationandanalysisofdataisbasedonnationallyrecognizedguidelinesandcriteria,includingrecognizedNationalFireProtectionAssociation(NFPA)standards,ISOschedules,anyfederalandstatemandatesrelativetoemergencyservices,andgenerallyacceptedpracticeswithinemergencyservices.AllmethodologyusedinaStandardsofCoveranalysisofadepartmentshouldfollowthemethodologydescribedinthe“StandardsofResponseCoverage,5thEdition,”publishedbytheCommissiononFireAccreditationInternational(CFAI).
Operational and Administrative Analysis, Dover Fire Department page 24
CFAIdefinestheprocess,knownas“deploymentanalysis,”aswrittenprocedureswhichdeterminethedistributionandconcentrationoffixedandmobileresourcesofanorganization.Thepurposeforcompletingsuchadocumentistoassisttheagencyinensuringasafeandeffectiveresponseforceforfiresuppression,emergencymedicalservices,andspecialtyresponsesituationsinadditiontohomelandsecurityissues.CFAIfurtherdefines“StandardsofResponseCoverageasbeingthoseadopted,writtenpoliciesandproceduresthatdeterminethedistribution,concentration,andreliabilityoffixedandmobileresponseforcesforfire,emergencymedicalservices,hazardousmaterials,andotherforcesoftechnicalresponse.”
TheCityofDoverhasnotdevelopedaStandardsofCoverdocumentinaccordancewithCFAIguidelines.
Recommendation:TheCityofDovershouldconductaformalStandardsofResponseCoverageanalysisundertheguidelinesoftheCommissiononFireAccreditationInternational(CFAI).
Fire Risk Analysis/Target Hazards TheCityofDoverisfortunatetohaveadedicatedforceofvolunteerswhoprovide100%ofthecity’sfirefightingneeds.Ifafull‐timeforceofpaidpersonnelwereutilized,CPSMestimatesthatthesecostscouldexceed$3millionto$4millionannually.The“professionalvolunteerfiredepartment”intheCityofDoverworkswellandhasbeeneffectiveinservingthiscommunityformanyyears.ThisarrangementisextremelycosteffectiveandisconsideredbyCPSMtobeabestpractice,anditshouldbefullysupportedandmaintained.
Regardlessofthetypeoforganizationthatservesagivencommunity,itisinherentuponacommunity’sleadershiptoaskthefundamentalquestionofwhetherthelevelofriskintheirjurisdictioniscommensuratewiththetypeofprotectiveforcethatiscurrentlybeingdeployed.Tothisend,afireriskassessmentandhazardanalysisprocessshouldbeutilizedinanefforttoprovideamoreobjectiveassessmentofthecommunity’slevelofrisk.
Afireriskanalysisutilizesa“fireriskscore,”whichisaratingofanindividualpropertyonthebasisofseveralfactors,including;
Theneededfireflow.
Theprobabilityofanoccurrencebasedonhistoricalevents.
Theconsequenceofanincidentinthatoccupancy(tobothoccupantsandresponders).
Thecumulativeeffectofsuchoccupanciesandtheirconcentrationinthecommunity.
Plottingtheratedpropertiesonamapwillprovideabetterunderstandingofhowtheresponsematrixandstaffingpatternscanbeusedtoprovideahigherconcentrationofresourcesforworse‐
Operational and Administrative Analysis, Dover Fire Department page 25
casescenariosor,conversely,fewerresourcesforlowerlevelsofrisk.8Thecommunityfireriskassessmentmayalsoincludedetermininganddefiningthedifferencesinfireriskbetweenadetachedsingle‐familydwelling,amultifamilydwelling,anindustrialbuilding,andahigh‐risebuildingbyplacingeachinseparatecategory.Further,anoverallcommunityriskprofilecanbelinkedtohistoricalresponsetimedata.Thatanalysiscanthenbeusedtoestablishresponsetimebaselinesandbenchmarks.
Communityriskandvulnerabilityassessmentareessentialelementsinafiredepartment’splanningprocess.TheCityofDoverhasnotcompletedacomprehensivecommunityriskandvulnerabilityassessment.AccordingtoaNationalFireProtectionAssociation(NFPA)paperonassessingcommunityvulnerability,firedepartmentoperationalperformanceisafunctionofthreeconsiderations:resourceavailability/reliability,departmentcapability,andoperationaleffectiveness.9Theseelementscanbefurtherdefinedas:
Resourceavailability/reliability:Thedegreetowhichtheresourcesarereadyandavailabletorespond.
Departmentcapability:Theabilityoftheresourcesdeployedtomanageanincident.
Operationaleffectiveness:Theproductofavailabilityandcapability.Itistheoutcomeachievedbythedeployedresourcesorameasureoftheabilitytomatchresourcesdeployedtotheriskleveltowhichtheyareresponding.10
Theprocessofidentifyingtargethazardsandpreplanningsuppressionandrescueeffortsarebasicpreparednesseffortsthathavebeenkeyfunctionsinthefireserviceformanyyears.Inthisprocess,criticalstructuresareidentifiedonthebasisoftherisktheypose.Then,tacticalconsiderationsareestablishedforfiresinthesestructures.Considerationisgiventotheactivitiesthattakeplace(manufacturing,processing,etc.),thenumberandtypesofoccupants(elderly,youth,handicapped,imprisoned,etc.),andotherspecificaspectsrelatingtotheconstructionofthefacilityoranyhazardousorflammablematerialsthatareregularlyfoundinthebuilding.Targethazardsarethoseoccupanciesorstructuresthatareunusuallydangerouswhenconsideringthepotentialforlossoflifeorthepotentialforpropertydamage.Typically,theseoccupanciesincludehospitals,nursinghomes,high‐rise,andotherlargestructures.Alsoincludedarearenasandstadiums,industrialandmanufacturingplants,andotherbuildingsorlargecomplexes.
TheCityofDoverhasanumberoftargethazardswithinitsservicearea.Targethazardsautomaticallyreceiveanupgraded“boxalarm”responseassignment,eachspecificallytailoredtotheuniquerisksandhazards.TheDoverFireDepartmentclearlydesignatesthetypesandnumberofapparatustobedeployedtoeachtargethazard.
8FireandEmergencyServiceSelf‐AssessmentManual,EighthEdition,(CenterforPublicSafetyExcellence,2009),49.9FireServiceDeployment,AssessingCommunityVulnerability:Fromhttp://www.nfpa.org/assets/files/pdf/urbanfirevulnerability.pdf.10NationalFireServiceDataSummitProceedings,U.S.DepartmentofCommerce,NISTTechNote1698,May2011.
Operational and Administrative Analysis, Dover Fire Department page 26
Thecity’stargethazardsinclude:
LutherTowers,locatedat430KingsHighwayhas258onebedroomand33efficiency(studio)apartmentsinfourbuildings.LutherTowersandLutherVillageofDoverareoperatedundertheguidelinesestablishedbytheU.S.DepartmentofHousingandUrbanDevelopmentSection202/8programs.LutherTowersandLutherVillageareapartmentcampusesforseniors62andolder.
NRGEnergysellselectricitytothemid‐Atlanticregion,whichfeedsintotheCityofDovertransmission/distributionsystem.ThecombinedheatandpowerplantwasconstructedbyGeneralFoodsin1984,lateracquiredbyKraftFoodsandthensoldtoStatOilin1996andfinallypurchasedbyNRGin2000.NRGaddedtwounitstothefacilitytobettersupportthelocalKraftFoodsplant,theProcter&Gambleplant,andtheCityofDover.
TheGarrisonOakTechnologyParkishometoTheGarrisonEnergyCenter,a309‐megawattcombined‐cycleelectricgeneratingfacilitybuilttoenhancereliabilityforDelawareandtheregionalpowermarket.Theenergycenterwillaccommodatetheadditionofanother309megawattsofgenerationcapacityshouldmarketconditionswarrant.
KraftFoodshasoperatedamajorplantinDoversinceatleast1969,originallyaGeneralFoodsplant.TheplantisownedbyKraftFoodsGroup,oneofthedaughtercompaniesoftheKraftFoodsbreakup.ItmakesJell‐O,StoveTopdressingmix,Baker'sChocolate,CountryTimepowderedmix,CrystalLight,andKool‐Aid.
ProctorandGambleisanAmericanmultinationalconsumergoodscompanyheadquarteredinCincinnati,Ohio,foundedbyWilliamProcterandJamesGamble.Itsproductsincludecleaningagents,andpersonalcareproducts.TheDoverfacilityknownasProctorandGambleDoverWipesisclassifiedasanindustrialplant;itmanufactures40percentofthebabywipesproductssoldintheUnitedStates,Canada,andPuertoRico.
DoverMallisaclimate‐controlledindoormallwithmorethaneighty‐five(85)storesrangingfromjewelrytoapparel,appliancestocellular,andfootweartosportinggoods.LargestoresincludeMacy’s,JCPenney,Boscov’s,Sears,OldNavy,andHollisterCo.
Recommendation:TheDFDshouldconductaformalfireriskanalysisthatconcentratesonthedowntownareas,high‐risestructures,andmanufacturingandinstitutionaloccupancies.
Operational and Administrative Analysis, Dover Fire Department page 27
Section 5. Operational Response Approaches
Manyagenciesincorporatetheuseofpre‐fireplanstoprovidearesponseandtacticalstrategyforthosemorecriticalorcomplexoccupanciesinthecommunity.Thecommunityriskandvulnerabilityassessmentevaluatesthecommunityasawhole,andwithregardtoproperty,measuresallpropertyandtherisksassociatedwiththatpropertyandthensegregatesthepropertyaseitherahigh,medium,orlow‐hazard,whicharefurtherbrokendownintovaryingdegreesofrisk.AccordingtotheNFPAFireProtectionHandbook,thesehazardsaredefinedas:
High‐hazardoccupancies:Schools,hospitals,nursinghomes,explosivesplants,refineries,high‐risebuildings,andotherhighlife‐hazardorlargefire‐potentialoccupancies.
Medium‐hazardoccupancies:Apartments,offices,andmercantileandindustrialoccupanciesnotnormallyrequiringextensiverescuebyfirefightingforces.
Low‐hazardoccupancies:One(1)‐,two(2)‐,orthree(3)‐familydwellingsandscatteredsmallbusinessandindustrialoccupancies.11
Theoperationsnecessarytosuccessfullyextinguishastructurefire,anddosoeffectively,efficiently,andsafely,requiresacarefullycoordinated,andcontrolled,planofaction.Certainoperationssuchasventingaheadoftheadvancinginteriorhoseline(s)shouldbecarriedoutwithahighdegreeofprecisionandtiming.Multipleoperations,frequentlywheresecondscount,suchassearchandrescueoperationsandtryingtocutoffarapidlyadvancingfire,mustalsobeconductedsimultaneously.Iftherearenotenoughpersonnelontheincidentinitiallytoperformallofthecriticaltasks,somewill,outofnecessity,bedelayed.Thiscanresultinanincreasedriskofinjury,ordeath,tobuildingoccupantsandfirefighters,and,increasedpropertydamage.Figures5‐1and5‐2illustratethecriticaltasksandresourcedeploymenttypicallyutilizedonlow‐riskincidentsandmoderate‐riskstructurefires.Understandingthecommunity’sriskgreatlyassistsfiredepartmentmanagementplanningforandjustificationofstaffingandapparatusresources.
11Cote,Grant,Hall&Solomon,eds.,FireProtectionHandbook(Quincy,MA:NationalFireProtectionAssociation,2008),12.
Operational and Administrative Analysis, Dover Fire Department page 28
FIGURE 5‐1: Low‐Risk Response–Exterior Fire Attack
Figure5‐2representscriticaltaskelementsforamoderate‐riskstructurefire.Somejurisdictionsaddadditionalresponseresourcestomeetandinsomecasesexceedthespecificsofnationalbenchmarking,suchasNationalFireProtectionAssociation(NFPA)1720,StandardfortheOrganizationandDeploymentofFireSuppressionOperations,EmergencyMedicalOperations,andSpecialOperationstothePublicbyVolunteerDepartments,2014Edition.DFDoftenutilizesmutualaidtoassemblethenecessarystaffingtomanageitslargerincidents.
Operational and Administrative Analysis, Dover Fire Department page 29
FIGURE 5‐2: Moderate‐Risk Response–Interior Fire Attack
NFPA1720(paragraph4.3.2)isaguidethatcanbeusedbytheauthorityhavingjurisdiction(AHJ)todeterminestaffingandresponsetimeobjectivesforstructuralfirefighting.Thisguidanceisbasedonalow‐hazardoccupancysuchasa2,000squarefoot,one(1)‐ortwo(2)‐story,andsinglefamilystructureswithoutbasementorexposures.
TABLE 5‐1: Staffing and Response Time Guidance from NFPA 1720
Demand Zone Demographics
Minimum
Staff to
Respond
Response
Time
(minutes)
Meets
Objective (%
of time)
Special risks AHJ AHJ AHJ 90
Urban >1000 people/mi. 15 9 90
Suburban 500 ‐ 1000 people/mi. 10 10 80
Rural < 500 people/mi. 6 14 80
Remote Travel distance > 8 mi. 4
Dependent
upon travel
distance
90
Note: Dover is an urban community with a population density of 1,557 people per square mile.
Operational and Administrative Analysis, Dover Fire Department page 30
Inadditiontoexaminingrisksfacedinthecommunityatlarge,adepartmentshouldexaminethecumulativerisksitplacesonitsrespondingpersonnel.TheNationalFireProtectionAssociation’sStandardforaFireDepartmentOccupationalSafetyandHealthProgram(NFPA1500)recommendsthedevelopmentofaseparateriskmanagementplanforthedailyoperationsofthedepartment.12Thisstandardofsafetyestablishestheparametersbywhichthedepartmentshouldconductallactivitiesduringemergencyandnonemergencyoperations.Theintentisforallmembersofthedepartmenttooperatewithinthisstandardorplanofsafetyandnotdeviatefromthisprocess.
Recommendation:TheDFDshoulddevelopacomprehensive,departmentwideriskmanagementplanasrecommendedinNFPA1500.
AtthetimeofthisstudytheDFDhadalimitednumberofformalprefire/incidentplans.Aswithmanyotheraspectsofadepartmentthatisstaffedwithvolunteerpersonnel,itisdifficulttomanageaprocessofthistype.ItisenvisionedthatthisprocesscanbeaddressedwiththeadditionoftheFireTechnicianpositionandtheassignmentofthesepersonneltocarryoutthistask.
Recommendation:TheDFDshouldmakeitaprioritytoestablishaformalpre‐incidentplanningprogramwiththegoalofhavinganup‐to‐datepreplanforeverybusinessandcommercialoccupancy(includingschools,churches,etc.)withinitsresponsearea.
Prefire/incidentplansshouldbereviewedregularlyandtestedbyperiodictable‐topexercisesandon‐sitedrills.Inaddition,thedepartmentshoulddevelopaplantomakeprefire/incidentplansaccessibleonmobiledataterminals(notebook/laptopcomputers)onallfireapparatusforuseenroutetoanincidentandwhileonscene.
Dover Response Matrix/Response Protocols
TheDoverFireDepartmentself‐dispatchesallincidentsafterbeingforwardedthe911callfromthe911PoliceDispatchCenter.Incidentsaregenerallyclassifiedascrewcalls,stationcalls,orgeneralalarms.Crewcallsareincidentsthataregenerallyhandledwithone(1),orperhapstwo(2),units.Thisincludesminorincidentssuchasfireinvestigations,vehiclefires,ortrashfires.Crewcallsaredispatchedfromtheneareststation,MondaythroughFridayfrom6:00p.m.to6:00a.m.and24hoursonSaturdaysandSundays.Ifthereisnoresponsetoacrewcallaftereight(8)minutes,theincidentisre‐dispatchedasageneralalarmforbothstationsandallpersonnel.
Stationcallsareincidentsthatarehandledbyacrewthatisinstationatthetimethecallisreceivedwithouttheincidentbeingtonedoutasacrewcallorgeneralalarm.Stationcallscancoverawiderangeofincidenttypesandareinitiatedatthediscretionofanofficerinthestationatthetimethecallisreceived.
12RobertC.BarrandJohnM.Eversole,eds.,TheFireChief’sHandbook,6thedition(Tulsa,OK:PennWellBooks),270.
Operational and Administrative Analysis, Dover Fire Department page 31
Generalalarmsareincidentstowhichtheentiredepartmentisdispatched.Thesecanbeincidentsthatstartedasacrewcallthatdidnotgeneratearesponse.However,themajorityofgeneralalarmsinvolvestructuralfireincidentsincludingalertsfromautomaticfirealarmsystems.Astationcallcanbesubstitutedforageneralalarmatthediscretionofanofficerifwarranted.Ifthereisnoresponsetoageneralalarmdispatchaftereight(8)minutestheincidentisre‐dispatchedalongwiththenearestmutualaidcompanyunlessanofficerdirectsotherwise.
Thedepartmentutilizesaresponsematrixthatindicatesthenumbersandtypeofunitsthatrespondtoaspecifictypeofincident.Thedepartment’sresponseareas(whichincludesareasoutsideoftheCityofDover)arebrokendownintoquadrantsandunitassignmentsaredesignatedforeachquadrant.ThenormalDoverresponsetoasinglefamilydwellingfireis:
Station1–One(1)engine,One(1)ladder,One(1)rescue
Station2–Two(2)engines,One(1)ladder
IftheofficerrequeststohaveaboxalarmassignmentthenthedispatchercontactsKentCountyformutualaidresources.DFDhas“BoxAlarms”establishedforsix(6)ofitslargesttargetand/orlifehazardoccupancies.Theseboxalarmsareutilizedonlywhenanactualfireisconfirmedbyon‐scenepersonnel.
InanefforttoreducethehighnumberoffalsefirealarmsoriginatingfromDelawareStateUniversityandWesleyCollege,DFDhasestablishedaverificationprocessfromcollegesecuritybeforearesponseisinitiated.Ifsecuritydoesnotrespondwithinseven(7)minutesfromthereceiptofthealarm,anactivationofthevolunteersisgenerated.ThispracticehasbeenimplementedinthelastyearandCPSMrecognizesthisasabestpracticethatshouldbecontinued.
Thedepartmenthastwo(2)commandvehicles.One(1)isassignedtotheFireChiefandtheotherisutilizedbythedepartmentdutyofficer.Eachofficerinthedepartmentrotatesthroughthedutyofficerassignmentandinthiscapacityhe/shemustbeavailabletorespondtoincidentsasarankingofficerorforminorincidentstoconductaninvestigationbeforepagingoutthealarm.OnmostincidentstheFireChieforthedutyofficerrespondtoastationandridetheapparatusratherthanrespondingdirectlytothesceneintheircommandvehicle.Typically,commandisresponsiblefortheincidentsize‐up,scenesafety,determiningifadditionalresourcesareneeded,andmakingassignmentsfortheincomingunits.Whenoperatingasacompanyofficerandengagedinthetacticalcomponentsoftheincident,thecommandofficerisnotabletoperformthenecessaryoversightoftheincidentandprovidethenecessaryscenemanagement.Inmanycasesthisisnotaproblem,asthesituationisminorandthecoordinationofmultipleresourcesisnotrequired.However,onlargereventsitiscriticalthatthecommandofficerbeapartfromthetacticalunitsandareabletomanagetheentireincident.
Recommendation:TheFireChiefand/orthedutyofficer,whendispatchedtoanincident,shouldrespondtotheincidentscenewiththeirassignedcommandvehicleinordertoassumetheroleofincidentcommander.
Operational and Administrative Analysis, Dover Fire Department page 32
Scenemanagementandtheincidentcommandprocessarecriticaltotheorderlyexecutionofanemergencyincident.Itisessentialthateveryincidenthaveadesignatedincidentcommanderandthatacommandpostbeformallyestablishedandclearlyidentifiableamongthevariousrespondingunits.Theincidentmanagementprocessisauniversallyadoptedmanagementtoolthatisutilizedinalleventsandisparticularlycriticalwhentherearemultipleagenciesresponding.Itiscriticalthatallcompanyofficers(captains)andchiefofficersarefullytrainedandutilizetheincidentcommandprocessinmanagingemergencyevents.
CPSMhasalsoobservedsomeinconsistenciesinthenumberofunitsrespondingtothevarioustypesofemergencyincidents.Weobservedtwo(2)automaticfirealarmsthatwerereceivedduringoursitevisit.Thefirstincidentwasforanalarmsoundinginalargemanufacturingfacility.Itwasbelievedthatthebuildingwasfullysprinklered,butitisafacilityofsignificantsizewhereapotentialfirewouldbechallenging.Therewasnocorrespondingcallconfirmingsmokeoractualfire.AtthetimeoftheincidenttherewasacrewinStation1andtheincidentwashandledasastationcall,withasingleengineandtheFireChiefresponding.Thejudgementutilizedinscreeningthiscallandreducingthelevelofresponseappearedsoundandwebelievegoodjudgementwasusedinmanagingandadjustingtheresponsetomeettheneed.Thefollowingdayanalarmwasreceivedforafirealarminasinglefamilydwelling.Again,therewasnocorroboratingcallconfirmingorobservingsmokeorfire.Sincetherewerenopersonnelinstationatthetimeageneralalarmwasdispatched.Theresponsetothismuchsmallerstructurewastwo(2)enginesandtwo(2)ladders.Thislevelofresponseappearedunnecessary,thuscreatinganinconsistencyinthemannerinwhichthecallswerehandled.
PartoftheFireDepartmentriskmanagementassessmentprocessisdecidingwhatresourcesarenecessary,andappropriate,forresponsetoeachtypeofincident.Thereshouldalsobeconsistencyindispatchandresponse.Anytimethatemergencyvehiclesactivatetheirwarninglightsandsirensitincreasestheirchancesofbeinginvolvedinavehicleaccident.Thisriskincreasesasmultiplevolunteerpersonnelrespondtotheirstationsintheirpersonalvehicles.Thisiscoupledwiththefactthatmanyfireresponsesarenotactualfiresortrueemergencies.Organizationstodayareattemptingtolimitthenumberofapparatusresponding,andlimitthoseresponsestoacoldresponse(nolightsandsirensandfollowingnormaltrafficpatterns)asmuchaspossible.
Recommendation:TheDFDshouldstandardizeitsresponsetoasingleunittoautomaticfirealarmsoundingsandothernonemergencysituations(whentheseareunconfirmedasatrueemergency).
Iftherearenoindicationsthatthecallisatrueemergency,therespondingunitshouldproceedinacoldresponsetoinvestigate.
Operational and Administrative Analysis, Dover Fire Department page 33
Staffing and Volunteer Deployment
TheCityofDoverandtheVolunteerAssociationhavefaredwellinmaintainingasuitableandreliableworkforce.However,withthechangingnatureofoursocietytheleadersofboththeCityofDoverandVolunteerAssociationwillneedtomonitorandbeawareofanysubtlechangesthatbegintooccurintheiroperations.
Withanactivemembershiprosterofapproximatelyeighty(80)personneltheDFDwouldseemtohaveenoughpersonneltoprovideadequateprotectiontothecity.Associationrecordsindicatethatonaverage,fourteen(14)personnelarerespondingongeneralalarms.ThislevelofresponseisexcellentandwellwithintherecommendationsofNFPA1720.Thislevelisalsowell‐suitedforthecallactivitiesandservicedemandscurrentlypresentedinthecommunity.
UnderAssociationguidelines,apparatusaresupposedtorespondwithaminimumoffour(4)personnelonboard.Ideallythisconsistsofadriver,officerandtwo(2)personnelcertifiedattheFFIIIlevel.However,whennecessaryFFIIsarepermittedtorespond.Theabsoluteminimumstaffingisidentifiedasthree(3)personnel.Apparatuswithfewerthanthree(3)personnelwouldnotnormallybeallowedtorespond.Thisisaveryhighstaffinglevelandinourobservationconsistentwithmanyofthemoreurbanized,careerorganizationsacrossthenation.
TheCityofDoverhasbeenextremelyfortunateinitsassociationwiththeVolunteerAssociationanditsabilitytomaintainandrecruitaviablevolunteerfirefightingforce.CPSMrecognizesthiseffortandcommendstheleadershipoftheVolunteerAssociationinitsservicetothecommunity.
Apparatus and Fleet Maintenance
Apparatuspurchaseandmaintenanceisanintegralpartofanyfiredepartmentandrequiressoundfinancialplanning.Asfleetsage,itislogicaltoconcludethatreliabilityislessenedandrepaircostsincrease. Therearetwo(2)provenwaystomitigatethelong‐andshort‐termcostsassociatedwithvehiclerepairsandreplacement.Theprimarywayistohavearegimentedpreventivemaintenance(PM)programthatplaceseachvehicleonaregularmaintenancecycle.Theothermethodistohavearealisticapparatusreplacementplansothatwhenavehiclehasoutliveditsusefulnessitisreplacedandremovedfromservice.
NFPA1901AppendixD,whichsets“GuidelinesforFirst‐LineandReserveFireApparatus,”haschangedandadaptedovertheyearstoreflectthechangesinindustrystandards.Itstates:
“Thelengthofthatlifedependsonmanyfactors,includingvehiclemaintenance,enginehours,qualityofthepreventivemaintenanceprogram,qualityofdrivertrainingprogram,whetherthefireapparatuswasusedwithinthedesignparameters…therearefireapparatuswith8to10yearsofservicethataresimplywornout.Therearealsofireapparatus…thathaveexcellentmaintenance,andthathaverespondedtoaminimumnumberofincidentsthatarestillinserviceableconditionafter20years.
Operational and Administrative Analysis, Dover Fire Department page 34
…thecareoffireapparatuswhilebeingusedandthequalityandtimelinessofmaintenanceareperhapsthemostsignificantfactorsindetermininghowwellafireapparatusages.”13
Ina2004surveyofthree‐hundred‐sixty(360)firedepartmentsinurban,suburban,andruralsettingsacrossthenation,PierceManufacturingreportedontheaveragelifeexpectancyforfirepumpers.14TheresultsareshowninTable5‐2.
TABLE 5‐2: Fire Pumper Life Expectancy by Type of Jurisdiction
Demographic First‐Line Service
Annual Miles Driven
Reserve Status Total Years of Service
Urban 15 Years 7,629 10 Years 25
Suburban 16 Years 4,992 11 Years 27
Rural 18 years 3,034 14 Years 32
Note: Survey information was developed by Added Value Inc. for Pierce Manufacturing in, “Fire Apparatus Duty Cycle White Paper,” Fire Apparatus Manufacturer’s Association, August 2004.
Thecity’sfireapparatusfleetisrepresentedinTable5‐3.Inmostorganizationswereviewthetypicalapparatusreplacementscheduleanticipatestheusefulworkinglifeoffireenginestobefifteen(15)yearsinfrontlineservicefollowedbyfive(5)toseven(7)yearsinareservestatus(ausefullifeexpectancyof20to22years).Laddertruckstypicallyhavealongerlifeexpectancy—twenty(20)yearsinfrontlineserviceandfiveyearsinreserve.Thisisbecauseinmostsystemsladdersareutilizedlessthanfirst‐linefirepumpersandtheirservicetimeisabitlonger.Today’sfireenginesareexpectedtotravelatotalof100,000to120,000miles,withpropermaintenance,beforeneedingreplacement.TheDoverFireDepartmentoperateswithseven(7)engines,two(2)aerialladdertrucks,one(1)heavyrescuevehicle,six(6)utilityvehicles(includingtwo(2)command,two(2)brush,andtwo(2)pickuptrucks),one(1)boat,andone(1)foamtrailer.
13NFPA‐1901StandardforAutomotiveFireApparatus‐2016Edition,Sect.D.214FireApparatusDutyCycleWhitePaper,FireApparatusManufacturer’sAssociation.August2004.
Operational and Administrative Analysis, Dover Fire Department page 35
TABLE 5‐3: Dover Fire Department Apparatus Inventory
Unit ID Year Manufacturer Type Age
Ladder 1 2011 Pierce Rear mount aerial 5 years
Ladder 2 2005 Pierce Tower Ladder 11 years
Engine 2 2008 Pierce Pumper 8 years
Engine 3 2003 Pierce Pumper 13 years
Engine 4 2005 Pierce Pumper 11 years
Engine 6 2003 Pierce Pumper 13 years
Engine 7 1997 Pierce Pumper 18 years
Brush 1 2013 RTV Kubota Brush Vehicle 3 years
Brush 9 2001 Ford F‐350 4x4 Pick‐Up truck 15 years
Rescue 1 1997 Pierce Heavy Rescue Vehicle 18 years
Marine 1 1990 Polar Kraft Flat Bottom Boat 25 years
Foam 46‐13 2004 CNMI Foam Trailer 12 years
Car 1 2015 Chevrolet SUV Chief’s Vehicle 1 year
Car 2 2015 Chevrolet SUV Command Vehicle 1 year
Utility 1 2006 Ford Pickup 10 years
Utility 2 1997 GMC Pickup 18 years
ItisCPSM’sobservationthattheapparatusintheDoversystemdonotexperienceheavycallvolume.Inouranalysisofcallactivity,Ladder1hadthehighestnumberofruns,542inthe12‐monthperiodevaluated.Itisnotuncommoninmanysuburbanandurbancommunitiestoseefireapparatusrespondtobetween2,000and2,500alarmsandtravelfrom10,000to12,500milesannually.CPSMestimatesthattheaverage,round‐triptraveldistanceforcallsintheDoversystemisapproximatelyfour(4)miles.Withthistypeoftraveldistanceandtheassociatedcallvolume,weestimatethatLadder1wouldtravelapproximately2,200milesannually.Thethree(3)otherunitswiththehighestresponseactivityinthissametimeframewereEngines2,4,and6.Weestimatethattheseunitswilltravelanestimated1,200to1,800milesannually.GiventhisamountofresponseactivityweanticipatethatfireenginesintheDoversystemshouldhaveanexpectedfrontlineservicelifeoftwenty20‐plusyears.Weestimatethataladdertruck’slife‐cyclewouldbecomparable.Table5‐4showstheworkloadbyunitfortheDFDfleet.
Operational and Administrative Analysis, Dover Fire Department page 36
TABLE 5‐4: Call Workload by Unit
Unit Type Unit ID
Avg. Deployed
Min. per Run
Total
Annual Hours
Avg. Deployed
Min. per Day
Total
Annual Runs
Avg. Runs
per Day
Brush B1 17.0 3.4 0.6 12 0.0*
B9 18.0 31.5 5.2 105 0.3
Engine E2 27.8 199.4 32.8 431 1.2
E3 29.0 63.8 10.5 132 0.4
E4 27.2 164.4 27.0 363 1.0
E6 25.7 120.7 19.8 282 0.8
E7 32.7 20.7 3.4 38 0.1
Ladder L1 26.1 235.8 38.8 542 1.5
L2 26.0 50.6 8.3 117 0.3
Rescue R1 33.7 58.3 9.6 104 0.3
Utility U1 24.2 14.9 2.5 37 0.1
Other Other 36.3 2.4 0.4 4 0.0*
* These units had so few runs that their average runs per day, rounded to the nearest one‐tenth, appears to be zero
ItisimportanttonotethatthecurrentworkloadobservedinDoverisconsiderablylowerthanmanyagenciesweobserveincomparablysizedcommunities.CPSMattributesthistotheinfrequencywithwhichDFDunitsrespondtoEMS‐relatedincidents.Inmostcommunities,EMScallsmakeupthepredominantshareofworkload,inmostcasesaccountingforasmuchasseventy‐five(75)toeighty(80)percentofresponseactivities.WeestimatethatifDFDunitswereprovidingfirstresponderserviceforEMScalls,totalresponseactivitieswoulddoubleandpossiblytriplefromwhatiscurrentlyoccurring.
Acriticaldeterminantindevelopingasuitableapparatusreplacementprogramisthedecisiononthesizeofthefleetthatisutilizedandultimatelymaintainedbytheorganization.Asindicatedabove,DFDoperatesfiveenginesandtwoladdertrucksasitsfirst‐lineresponseunits.Inaddition,thereareanumberofsupportandcommandvehiclesthatareavailable.Itisourobservation,however,thatonlyfour(4)DFDapparatusareutilizedregularlyinhandlingthecurrentworkload.Asindicatedinthetable,therearefour(4)primaryapparatusthatrespond:Ladder1,Engine2,Engine4,andEngine6.Thiswebelieveisaproductofthenumberofvehiclesneededtotransportthevolunteerswhoassembleandtheamountofequipmentrequiredtomanagemostincidents.Areviewofattendancerecordsforpersonnelrespondingtofiresduring2014indicatesthatonaverage,fourteen(14)personnelrespondedtomostincidents.Foravolunteerorganization,thisisanexcellentresponselevelandconsideredabestpracticebyCPSM.However,giventheworkloadinDoverandthelevelofriskindicatedbyhistoricaleventsandthestrengthofthecity’sfirepreventionefforts,werecommendthatthecityestablishasitsfirst‐linefleetaninitialresponseforceofsix(6)units,andatotalresponseforceoftwelve(12)tosixteen(16)personnel.
Operational and Administrative Analysis, Dover Fire Department page 37
Recommendation:TheDFDshouldestablishasitsfirstresponseapparatusthree(3)engines,one(1)laddertruck,andtwo(2)commandvehicles.
Inadditiontotheprimaryresponsefleetofthree(3)engines,one(1)ladder,andtwo(2)commandvehicles,Dovershouldmaintainone(1)engineandone(1)ladderasreserveunits.Theassortedsupportvehiclesshouldalsobemaintainedandkeptaspartoftheapparatusfleet.Giventheproposedfirst‐linefleetofthree(3)engines,one(1)ladder,andthereserveunits(one(1)engineandone(1)ladder),wewouldrecommendareplacementscheduleforthissizefleetasshowninTable5‐5.
TABLE 5‐5: Proposed Fire Apparatus Replacement Schedule
VEHICLE TYPE FIRST LINE SERVICE RESERVE STATUS TOTAL SERVICE LIFE
Engines 18 yrs./or 100,000 mi. 5yrs./or 120,000 mi. 23 yrs./or 120,000 mi.
Aerial Ladders 20 yrs./or 100,000 mi. 7 yrs./or 120,000 mi. 25 yrs./or 120,000 mi.
Aswithanyscheduleorplan,theproposedapparatusscheduleshouldserveasaguideforfinancialplanningforapparatusreplacement.Ifanapparatusisinvolvedinawreckoriftherearefrequentandunexpectedrepairsthatarecostly,thereplacementplanmaybeacceleratedsothatareplacementismadebeforethescheduledtimeframe.Similarly,ifonthebasisofsometypeoffinancialconstraintorifanapparatusisstilloperatingwellattheendofthereplacementschedule,theproposedplanmaybeextendedsothataparticularapparatusisusedbeyondtheexpectedreplacementschedule.Itisalsowisetobuildintoanyreplacementscheduleotherfactorsinadditiontoageoftheapparatusandwhichwillassistinthisdecisionmaking.Vehiclemilesoroperatinghoursshouldbeconsidered.Inaddition,thecumulativerepaircostsforaparticularvehiclemaybeusedinguidingthepurchaseofnewapparatus.Forexample,ifthroughtheworkinglifeofanapparatus,thetotalrepaircostsexceedfifty(50)percenttoseventy‐five(75)percentofthevehiclecost,thismaybefactoredintothedecisiontoreplacethevehicle.
Recommendation:TheCityofDovershouldadoptanapparatusreplacementscheduletoserveasaguideforthefinancialplanningandreplacementoffireapparatus.
IfDFDweretomaintainafleetoffour(4)first‐lineapparatusandtwo(2)reserveunits(four(4)enginesandtwo(2)aerialladders),thissizefleetwouldhaveareplacementvalueofmorethan$4.3millionin2016dollars($525,000perengineand$1.1millionperaerial).Thus,astraight‐linecalculationutilizingaTwenty‐three(23)yearreplacementscheduleindicatesaneedtoearmarkapproximately$187,000annuallyforapparatusreplacement.Thisnumberdoesnotaccountforspecialtyapparatus,boats,staff,andutilityvehicles.Doverdoesnothaveaformalreplacementprogramforfireapparatus,andmoreimportantlyitdoesnothaveinplaceanyongoingfundingordepreciationprogramforfutureexpenditures.Intheabsenceofthistypeofsinkingfund,acommunitycanbefacedwithmajorcapitalexpendituresthatareunexpectedandnotplannedfor.
Operational and Administrative Analysis, Dover Fire Department page 38
Recommendation:TheCityofDovershouldadoptanapparatusreplacementprogramthatearmarksannualfundingforfutureapparatuspurchases.
Fleet Maintenance Fleetmaintenanceisvitaltopreservingthequalityoffireapparatusandultimatelyaffectstheperformanceofapparatusatemergencyincidents.Unlikeothertasksthatcanbescheduledforonceaweek,month,oryear,apparatuschecksshouldbeperformeddaily.Takingthetimetoproperlyinspectandmaintainfireapparatuswillnotonlyextendvehiclelife,butit’salsoessentialtothesafetyofthecrew,department,andcommunity.
TheDoverFireDepartmenthasaprocessinplacetocheckvehiclesonaregularlyassignedbasisbytheFireDispatcher.Eachvehiclehasachecklistthatinvolvesthevehicle,handtools,pumps,andaerialdevices.Whenvehiclerepairsareneededorperiodicservicemaintenanceisrequired,thisfunctioniscarriedoutunderthesupervisionoftheVolunteerAssociation,specificallytheirapparatusandmaintenancecommittee,andwhichismanagedbythecommitteechairman.
Pumpsandaerialdevicesaretestedannually,inaccordancewithNFPAStandard1901,byAtlanticEmergencySolutionsatitsMiddletown,Del.,servicecenter.AtlanticEmergencySolutionsdeliversfireandemergencyequipmenttoVirginia,Maryland,Delaware,theDistrictofColumbia,NorthCarolina,andportionsofWestVirginia,servingastheprimaryPierceManufacturingdealer.PierceisapremiermanufactureroffireapparatusintheU.S.knownforthequalityofitsvehiclesandcustomerservice.AtlanticEmergencySolutionsisarespecteddealerandmaintenanceproviderinthemid‐Atlanticregion,withten(10)servicecentersstrategicallylocatedforcustomerconvenience.Currently,AtlanticEmergencyServicesprovidesbothdrivelineandtechnicalrepairservicestotheDoverFireDepartmentfleet.AtlanticEmergencyServicesmechanicsmaintainAutomotiveServiceExcellence(ASE)certificationsaswellasEmergencyVehicleTechnicianCertification.TheEmergencyVehicleTechnicianCertificationCommission,Inc.(EVT)isanonprofitcorporationdedicatedtoimprovingthequalityofemergencyvehicleserviceandrepairthroughouttheUnitedStatesandCanada.EVTisgovernedbyaboardofdirectorsthatrepresentsemergencyresponseagencies,emergencyvehiclemaintenanceserviceassociations,andtheeducationalcommunity.
TheapparatusspecificationandpurchasingprocessismanagedbytheVolunteerAssociationutilizingcityfunds.TheVolunteerAssociationappointsanapparatusreplacementcommitteetodevelopspecificationsandtodevelopthebidprocess.Inanypurchasingprocessthatutilizespublicfundsitisimperativetomaintainasystemofcompetitivenessandequalaccesswithoutanyindicationoffavoritismorpreferencetoanindividualdealerorvendor.Whilemanyvolunteerfiredepartmentsdevelopspecificationsforaparticularapparatusmanufacturerandpurchasefromtheirvendorofchoice,thispracticeisgenerallynotallowedinmostlocalandstategovernments.Itisessentialthatarequestforproposal(RFP)andaninvitationtobid(ITB)aredevelopedtoensuretheproductorserviceprovidestheintendedresults,andthattechnicalspecificationsarewritteninawaythatprovidesfairnessandcompetitiveness.
Operational and Administrative Analysis, Dover Fire Department page 39
Duetothecostsandtheassociatedliabilitiesinvolvedinfleetpurchasesandmaintenance,CPSMrecommendsthatthecity,underthedirectionoftheproposedEmergencyServicesManager,beresponsibleforfleetmaintenanceandacquisitionfortheDoverFireDepartment.
Recommendation:Thecity,underthedirectionofthenewEmergencyServicesManager,shouldberesponsibleforfleetmaintenanceandvehicleacquisitionfortheDoverFireDepartment.
Thoughtheultimatedecisionmakingandauthorityshouldresidewiththecity,itisessentialthattheVolunteerAssociationbeintegrallyinvolvedinthefiredepartmentfleetfunctions.ForthisreasonitisrecommendedthatthecityutilizeacommitteegrouptoprovideguidanceandrecommendationstotheEmergencyServicesManagerincarryingoutthepurchase,maintenance,anddisposalofthefiredepartmentapparatusandequipment.
Fire Response
Doverisasmall‐tomedium‐sizedcitywithaservicepopulationofabout37,000people.Asastatecapital,andacommunitythathostsanumberofwell‐attendedspecialevents,itisnotuncommontoseepopulationspikesandacorrespondingincreaseinservicecalls.However,thefireservicedemandinthecityisstillrelativelylight.Intheone(1)‐yeartimeframeanalyzedbyCPSM,theDoverFireDepartmentrespondedtoatotalof991alarms,ofwhich106werestructurefiresand69wereoutsidefiresorgrassfires.AsmentionedearlierthecityutilizesKentCountyandaprivateambulanceproviderforitsEMStransports.TheDoverFireDepartmenttypicallydoesnotrespondtoEMSincidentsunlessthereareextenuatingconditionsthatwouldnecessitateitsresponse.Subsequently,onadailybasistheDFDrespondstofewerthanthree(3)callsperdayandinmostcasestheseareservicecallsorminorincidents.Onoccasiontherearethemoresignificantincidentsthatrequireasubstantialworkforcetomanage.Thisisthemostdifficultquestionthatmanycommunitiesface.Theymustaskthemselves:Whatistheappropriatelevelofprotectionwhenconsideringthetypicaldailydemandforserviceversustheinfrequentlargereventthatrequiresasubstantiallyhigherresponse?Regardlessofthesizeoftheresponseforce,itisstillextremelydifficulttodeterminetheeffectivenessoftheinitialresponseinlimitingfirespreadandfiredamage.Manyvariableswillimpacttheseoutcomes,including:
Theageandtypeofconstructionofthestructure.
Thecontentsstoredinthestructureandtheirflammability.
Thepresenceofanyflammableliquids,explosives,orcompressedgascanisters.
Thetimeofdetection,notification,andultimatelyresponseoffireunits.
Thepresenceofanybuilt‐inprotection(automaticfiresprinklers)orfiredetectionsystems.
Weatherconditionsandtheavailabilityofwaterforextinguishment
Operational and Administrative Analysis, Dover Fire Department page 40
Subsequently,inthosesituationsinwhichthereareextendeddelaysintheextinguishmenteffortorthefirehasprogressedsufficientlyuponarrivaloffireunits,thereisactuallyverylittlethatcanbedonetolimittheextentofdamagetotheentirestructureanditscontents.Inthesesituationssuppressioneffortswillfocusontheprotectionofnearbyoradjacentstructureswiththegoalbeingtolimitthespreadofthefirebeyondthebuildingoforigin.Thisisoftentermedprotectingexposures.Whentheextentofdamageisextensiveandthebuildingbecomesunstable,firefightingtacticstypicallymovetowhatiscalledadefensiveattack,oroneinwhichhoselinesandmoreimportantlypersonnelareontheoutsideofthestructureandtheirfocusistomerelydischargelargevolumesofwateruntilthefiregoesout.Inthesesituationstheabilitytoenterthebuildingisverylimitedandifvictimsaretrappedinthestructure,thereareveryfewsafeoptionsformakingentry.
Today’sfireserviceisactivelydebatingtheoptionsofinteriorfirefightingvs.exteriorfirefighting.Thesetermsareself‐descriptiveinthataninteriorfireattackisoneinwhichfirefightersenteraburningbuildinginanattempttofindtheseatofthefireandfromthisinteriorpositionextinguishthefirewithlimitedamountsofwater.Anexteriorfireattackisatacticinwhichfirefightersinitiallydischargewaterfromtheexteriorofthebuilding,eitherthroughawindowordoorandknockdownthefirebeforeentryinthebuildingismade.Theconceptistointroducelargervolumesofwaterinitiallyfromtheoutsideofthebuilding,cooltheinteriortemperatures,andreducetheintensityofthefirebeforefirefightersenterthebuilding.Anexteriorattackismostapplicableinsmallerstructures,typically,one‐storydetachedunitswhicharesmallerthan2,000squarefeetintotalfloorarea.
Thereareanumberoffactorsthathavefueledthisdebate,thefirstandmostcriticalofwhicharestaffinglevels.Asfiredepartmentsoperatewithreducedlevelsofstaffing,andthisstaffarrivesatthescenefromgreaterdistances,itislikelythatasinglefireunitwiththreeorfourpersonnelwillonlyhavetheoptionofinitiatinganexteriorattack.TheU.S.OccupationalSafetyandHealthAdministration(OSHA)hasissuedastandardthathasbeentermedthe“Two‐in‐Two‐Out”provision.ThisstandardaffectsmostpublicfiredepartmentsacrosstheU.S.,includingDFD.Underthisstandard, firefighterswhoareengagedininteriorstructuralfirefightingandenteranareathatisimmediatelydangeroustolifeorhealth(anIDLHatmosphere),mustremaininvisualorvoicecontactwitheachotherandhaveatleasttwootheremployeeslocatedoutsidetheIDLHatmosphere.Thisassuresthatthe"twoin"canmonitoreachotherandassistwithequipmentfailureorentrapmentorotherhazards,andthe"twoout"canmonitorthoseinthebuilding,initiatearescue,orcallforback‐upifaproblemarises.15ThereisaprovisionwithintheOSHAstandardthatallowstwo(2)personneltomakeentryintoanIDLHatmospherewithouttherequiredtwoback‐uppersonnel.Thisisallowedwhentheyareattemptingtorescueapersonorpersonsinthestructurebeforetheentireteamisassembled.16
Whenusinganexteriorattack,therequirementofhavingthefour(4)personsassembledon‐scenepriortomakingentrywouldnotapply.RecentstudiesbyULhaveevaluatedtheeffectivenessof
15OSHA‐RespiratoryProtectionStandard,29CFR‐1910.134(g)(4)16Ibid,Note2toparagraph(g).
Operational and Administrative Analysis, Dover Fire Department page 41
interiorvs.exteriorattacksincertainsimulatedfireenvironments.Thesestudieshavefoundthattheexteriorattacktobeequallyeffectiveinthesesimulations.17Thisdebateisdeep‐seatedinthefireserviceandtraditionaltacticalmeasureshavealwaysproposedaninteriorfireattack,specificallywhenthereisapossibilitythatvictimsmaybepresentintheburningstructure.Thelong‐heldbeliefinoppositiontoanexteriorattackisthatthisapproachmayactuallypushthefireintoareasthatarenotburningorwherevictimsmaybelocated.Thecounterpointsupportingtheexteriorattackcentersonfirefightersafety.Theexteriorattacklimitsthefirefighterfrommakingentryintothosesuper‐heatedstructuresthatmaybesusceptibletoeitherafloororroofcollapse.FromCPSM’sperspective,andgiventheuncertaintiesregardingresponseofvolunteerpersonnelatanygiventime,thereisatleastsomelikelihoodthatasinglecrewofthreeorfourpersonnelwillencounterasignificantandrapidlydevelopingfiresituation.ItisprudentthattheDFDbuildatleastacomponentofitstrainingandoperatingproceduresaroundthetacticalconceptoftheexteriorfireattackwhenthesituationwarrantssuchanapproach.
Recommendation:TheDFDshouldbuildatleastaportionofitstrainingregimensandtacticalstrategiesaroundtheexteriorortransitionalattackwhenthefirescenarioandthenumberofrespondingpersonnelwarrantthisapproach.
TheDoverFireDepartmentshouldbefullycapable(andwebelieveis)ofhandlingfiresthatarelimitedissizeandintensityinsingle‐familydwellings.Thisgoalbecomesmoreachievablewhensufficientstaffingisavailable,ANDthefiredepartmentcanarriveatthefireincidentandtakedefinitiveactionbeforethesizeofthefireintensifies.
CPSManalyzedtheDFD’sresponseactivityfromJuly1,2014throughJune30,2015.Duringthestudyperiod,thedepartmentrespondedto975calls.CPSManalyzedcallsandruns.Acallisanemergencyservicerequestorincident.Arunisadispatchofaunit.Asmultipleunitsareoftendispatchedtoacall,therearemorerunsthancalls.
Table5‐6andFigure5‐3showtheaggregatecalltotalsforthetwelve(12)monthperiodevaluated,brokendownbynumberofincidents,averagecallsperday,andthepercentageofcallsthatfallintoeachcalltypecategory.WhiletheDoverFireDepartmentdoesnotprovideambulanceservices,itdoesrespondtoselectemergencymedicalservice(EMS)callsandmotorvehicleaccidents(MVAs)involvingextricationsandrescues.WeincludeMVAsasaseparatecalltypewhileweidentifyallotherEMS‐typecallsgroupedassimply“EMS.”Actualfirecalls(structuralandoutside)represent17.6%percentoftheoverallcalls(approximately0.48callsperdayoroneactualfire‐typecalleveryotherday).Structurefiresaccountfor10.7%oftheincidents(approximately0.29perday,oronestructurefireevery3.4days).Hazard,falsealarms,goodintent,andpublicservicecallsrepresentthelargestpercentageoffirecallsforservice,whichisalsotypicalinCPSMdataandworkloadanalysesofotherfiredepartments.
17“InnovatingFireAttackTactics”,U.L.COM/NewsScience,Summer2013.
Operational and Administrative Analysis, Dover Fire Department page 42
TABLE 5‐6: Call Types
Call Type Number of Calls Calls per Day Call Percentage
MVA 47 0.13 4.7
EMS 43 0.12 4.3
Structure fire 106 0.29 10.7
Outside fire 69 0.19 6.9
Hazard 115 0.32 11.6
False alarm 355 0.97 35.8
Good intent 127 0.35 12.8
Public service 113 0.31 11.4
Subtotal 975 2.67 98.2
Cancelled 16 0.04 1.6
Total 991 2.72 100.0
FIGURE 5‐3: Calls by Type
Observations:
Firecallsfortheyeartotaled975,averaging2.7perday.
Structureandoutsidefirescombinedtotaled175calls,averagingonecallevery2.1days.
Structurefires(106calls)accountedfor11percentoftotalcalls.
Outsidefires(69)accountedfor7percentoftotalcalls.
Falsealarms(355)accountedforthelargestpercentageofcallsat36percent.
Inlookingattheactualcallsitisimportanttonotethatofthe975incidentstabulated,atotalof885werefire‐related(thatis,excludesMVAandEMScalls).Ofthese885fire‐relatedincidents,only175(106structureand69outsidefires)wereactualfires(20percent).Falsealarms,publicservice,
Operational and Administrative Analysis, Dover Fire Department page 43
goodintent,andhazardcallsmakeupthelargestpercentageofthefire‐relatedcalls,atmorethan80percent.Thisfactiscriticalwhenwelookattheresponsepatternsthatareutilizedfortheseminorornon‐emergentresponses.
Table5‐7indicatesthedurationofcallsbytypeanddurationusingfour(4)durationcategories:lessthanthirty(30)minutes,thirty(30)minutestoone(1)hour,one(1)totwo(2)hours,morethantwo(2)hours.
TABLE 5‐7: Calls by Type and Duration
Call Type
Less than
One‐half Hour
One‐half Hour
to One Hour
One to
Two Hours
More than
Two Hours Total
MVA 33 12 2 0 47
EMS 38 4 1 0 43
Structure fire 54 37 8 7 106
Outside fire 48 19 2 0 69
Hazard 64 42 8 1 115
False alarm 324 29 2 0 355
Good intent 100 23 4 0 127
Public service 67 33 11 2 113
Subtotal 728 199 38 10 975
Cancelled 15 1 0 0 16
Total 743 200 38 10 991
Observations:
Overall
95percentofcalls(943)lastedlessthanonehour.
Fourpercentofcalls(38)lastedbetweenoneandtwohoursand1percent(10)lastedmorethantwohours.
Onaverage,0.1callsperday,orapproximatelyonecalleveryeightdays,lastedmorethanonehour.
Structure Fires
86percentofstructurefires(91)lastedlessthanonehour;8percent(8)lastedbetweenoneandtwohours;and7percent(7)lastedmorethantwohours.
Outside Fires
97percentofoutsidefires(67)lastedlessthanonehour;3percent(2)lastedbetweenoneandtwohours;andnonelastedmorethantwohours.
False Alarms
99percentoffalsealarms(353)lastedlessthanonehour,and1percent(2)lastedmorethananhour.
Operational and Administrative Analysis, Dover Fire Department page 44
Again,whenwelookatthenatureofthe86structurefirecalls,only15involvedcalldurationsthatexceededonehourormore.Thiscanbeattributedtothemagnitudeoftheseevents.Similarly,intheoutsidefirecategory,onlytwo(2)ofthesixty‐nine(69)eventshaddurationsinexcessofone(1)hour.
Table5‐8summarizestheactionstakenbytheFireDepartmentatstructureandoutsidefires.Inthistableitisimportanttonote,specificallyintherowreferencing“extinguishmentbyfireservicepersonnel,”thatonlyin26ofthe106structurefiresand45ofthe69outsidefires,wasextinguishmentdonebyfireservicepersonnel.Thisagainmayindicatethatononlyalimitednumberofinstanceswerefireextinguishmentactionsonthepartofthefiredepartmentactuallyneeded.
TABLE 5‐8: Actions Taken Analysis for Structure and Outside Fire Calls
Action Taken
Number of Calls
Structure Fire Outside Fire
Assistance, other 4 0
Extinguishment by fire service personnel 26 45
Fire control or extinguishment, other 11 10
Information, investigation & enforcement, other 3 3
Investigate 48 7
Investigate fire out on arrival 12 4
Notify other agencies. 2 0
Provide equipment 1 0
Remove hazard 2 0
Salvage & overhaul 6 2
Search & rescue, other 5 0
Ventilate 3 0
Total* 123 71
* Totals are higher than the total number of calls because some calls had more than one action taken.
Observations:
Atotalof26structurefirecallswereextinguishedbyfireservicepersonnel,whichaccountedfor25percentofstructurefirecallsinDFD’sjurisdiction.
Atotalof45outsidefirecallswereextinguishedbyfireservicepersonnel,whichaccountedfor65percentofoutsidefirecallsinDFD’sjurisdiction.
Operational and Administrative Analysis, Dover Fire Department page 45
EMS Response and Transport
Emergencymedicalservices(EMS)operationsareanimportantcomponentofthecomprehensiveemergencyservicesdeliverysysteminanycommunity.Togetherwiththedeliveryofpolice,fire,andemergencymanagement,itformsthebackboneofthecommunity’soverallpublicsafetyservicenetwork.WhenEMSactivitiesarelookedatasapercentageofoverallservicerequests,itcouldbearguedthatEMSconstitutesthemostfrequentlyutilizedservicerequestamongacommunity’scitizenry.
EMSintheCityofDoverisprovidedunderatwo(2)‐tierservicedeliverysystemforbasiclifesupport(BLS)andadvancedlifesupport(ALS).ALSisprovidedcountywidebyKentCountyparamedicswhoutilizenontransportvehiclesforresponse.BLSisprovidedundercontracttothecitybyPrimeCare,aprivateandfor‐profitambulancecompany.PrimeCareMedicalTransport,LLC,hashadthecontractwiththecityforapproximatelyten(10)years.ThemostrecentRFPfortheambulancecontractwasissuedonJanuary8,2015.Thenewcontract,whichisforaperiodofthree(3)yearswithaprovisionfortwo(2)additionalone‐yearrenewaloptions,wasapprovedandsignedbythecityonOctober8,2015;itwasretroactivetoApril1,2015.ThecontractstipulatesthattheEMSserviceareaistheboundariesoftheVolunteerAssociationFireDistrict,whichincludesnotonlythecorporateboundariesofthecity(excludingDoverAirForceBase)butsomecontiguousareasofKentCountyaswell.ThePrimeCareservicecontractisadministeredbythecity’sOEMcoordinator.
PrimeCarestaffstwo(2)ambulancesinthecityfromaleasedfacilityat601FultonSt.Oneambulanceisstaffedona24‐basisthroughouttheyear.Thesecondunitisstaffedseven(7)daysaweekfrom7:00a.m.to11:00p.m.Eachambulanceisrequiredtobestaffedwithoneemergencymedicaltechnician(EMT‐B)andaqualifieddriver.TheambulancesarerequiredtobemaintainedandequippedasrequiredbytheStateofDelaware.
Whilenotspecifiedinthecontractthatwereviewed,CPSMwasinformedthatthecitypaysPrimeCareamonthlystipendforprovidingthisservice.Thisstipendisbasedonaflatrateformulathatpaysonthebasisofthenumberofcallsandnotonthebasisofcollections.In2014,thepaymentswereinexcessof$237,500andinthe10‐monthtimeframebetweenJanuary‐October2015,thepaymentswerejustunder$200,000.Infiscalyear2016(July2015–June2016),thebudgetallocationforthePrimeCarestipendisapproximately$238,000.Inadditiontothisstipend,PrimeCarealsobillstheindividualpatientfortransportservices;however,collectionratesandrevenuefigureswerenotavailableforourreview.
In2014,therewere6,865EMSincidentsintheCityofDover.Thisequatestoanaverageofapproximately19.1incidentseachday.AccordingtostatisticsprovidedbytheEmergencyCommunicationsDivisionoftheKentCountyDepartmentofPublicSafety,fromJanuarythroughOctoberof2015,EMSincidentsinDoverhadtotaled6,259,or20.8perday.Since2000therehasbeenasteadygrowthinthevolumeofEMSactivity,upapproximately90percentoverthis15‐yearperiod.(Figure5‐4)
Operational and Administrative Analysis, Dover Fire Department page 46
FIGURE 5‐4: Dover EMS Incidents 2001‐2014
ThecurrentcontractwithPrimeCareisverylimitedinitsrequirementsregardingperformancecriteria,includingunitavailability.Thecontractincludesaturnouttimerequirementthatstipulatestheambulanceunitmustrespondtocallswithinanaverageofone(1)minute(00:01:00)afterreceiptofthecall.However,therearenootherresponsetimecriteriainthecurrentagreement.Theaveragetraveltimeinthetimeframereferencedabovewassix(6)minutes,thirty‐two(32)seconds(00:06:32)afteraturnouttimeofapproximatelyforty‐one(41)seconds(00:00:41).TheCommissiononAccreditationofAmbulanceServicesisanindependentagencythatpublishesaseriesofstandardsfortheambulanceserviceindustryanditrecommendsthatambulancesshouldachieveaneight(8)minute,fifty‐nine(59)seconds(00:08:59)responsetimein90percentofallresponses.18ItshouldbenotedthatthesereportsareforPrimeCareunits,whenitisabletorespond.WhenaPrimeCareunitisunavailableandamutualaidunitresponds,thesetimesareexcluded.Webelievethatiftheseincidentswerecalculatedintotheaverageresponse,theoverallaveragewouldbesignificantlyhigher.
18TheCommissiononAccreditationofAmbulanceServices(CAAS)isanindependentcommissionthatestablishedacomprehensiveseriesofstandardsfortheambulanceserviceindustry.
Operational and Administrative Analysis, Dover Fire Department page 47
TABLE 5‐9: PrimeCare Statistics, June 2015‐September 2015
JUNE
2015
JULY
2015
AUGUST
2015
SEPTEMBER
2015
Total 9‐1‐1 Ambulance Runs 641 669 645 672
Gone on Arrival/Cancelled 82 65 82 79
Transport Refusals 31 29 13 30
Standby at Scene 2 5 2 3
Average Turnout Time 00:00:40 00:00:40 00:00:44 00:00:41
Average Travel Time to Scene 00:06:46 00:06:27 00:06:25 00:06:31
Average Time on Scene 00:10:12 00:10:30 00:09:27 00:09:50
Average Time to the Hospital 00:06:40 00:07:05 00:06:31 00:06:34
Average Daily Responses 21 22 21 22
Average Daily Transports 17 18 17 18
Total Patients Transported 517 561 541 553
ThenumberoftimesthatPrimeCareunitsareunavailableandmutualaidEMSunitsarerequiredtorespondintoDoverisexceedinglyhigh.Inthe10‐monthperiodfromJanuary2015throughOctober2015,therewere1,325instancesinwhichPrimeCareunitswereunavailableandamutualaidrequestforanambulancesquadwasrequired.Thisequatestoanaverageof4.6instanceseachday;overall,21.2percentofalltheEMSincidentsinDoversofarthisyearwerecoveredviamutualaidrequests.
TABLE 5‐10: 2015 Mutual Aid EMS Units Dispatched into Dover
January February March April May June July August September October Total
133 114 92 123 134 190 112 128 125 174 1,325
ThishasbeenanongoingissuedatingbackseveralyearsanddefinitelypriortothesigningofanewcontractforEMS.InanefforttoacknowledgetheservicesofthemutualaiddepartmentsthatcomeintoDoveronaregularbasis,theCityofDoverhasimplementedapaymentof$25.00percalltothoseagenciesprovidingassistance.Onanannualbasisthisaddsanadditional$40,000tothestipendpaidbythecitytomaintainambulanceservice.
Recommendation:TheCityofDovershouldreviseitsperformancecriteriainfuturecontractswiththeambulanceprovider,withspecificguidelinesrelatingtounitavailability,turnouttime,andoverallresponsetimethatismeasuredatthe90percentfractilerate.
Manymunicipalitiesincludeintheirambulancecontractsapenaltyprovisioninwhichfinesandfinancialoff‐setsarerequiredwhenperformancecriteriaarenotmet.Thecityshouldconsiderthe
Operational and Administrative Analysis, Dover Fire Department page 48
additionoffinancialpenaltiesagainsttheambulanceproviderincaseswherecriticalperformancecriteriaarenotmet.
ThecurrentcontractwiththecityrequiresthateachambulancebestaffedwithasingleEMT‐Bandadriver.ThecontractdoesnotstipulatethatthedriverneedstohavebasicCPR,AED,andfirstaidtraining.WhilehavingonlyasingleEMTonacareerBLSunitmaybepermittedbyDelawareregulations,itiscertainlynotthecommonlyacceptedpracticenationallyandCPSMbelievesthatbothcrewmembersshouldbeEMTs.Therearemanyreasonswhytwo(2)EMTsarepreferred,particularlyinbusysystemssuchasDover.Chiefamongthemistheneedforbothpersonneltobeactivelyinvolvedinpatientcareforseriouslyillorinjuredpatientsandtheneedtotreatmultiplepatientssimultaneouslyduringincidentssuchasmotorvehicleaccidents.
Recommendation:TheCityofDovershouldamenditsfutureambulancecontracttorequirethatallambulancesoperatingwithinthecitybestaffedwithaminimumoftwo(2)EMTs.
EMSservicedemandintheCityofDoveraresignificantandthelevelofcarecurrentlyprovidedbyPrimeCareappearslacking.Thecityispayinginexcessof$275,000annuallytomaintainthePrimeCarecontract.CPSMbelievesthatthecurrentagreementwithPrimeCareshouldbereconsidered.ThereisasubstantialcallvolumeintheDoverareaandthepotentialtoobtainamorecompetitivebidislikelyifeffortsareinitiatedtoseekanationalambulanceproviderthroughadirectedRFPprocess.
Recommendation:AtthecloseofthecurrentcontractwithPrimeCare,theCityofDovershouldconsiderissuinganationalRFPforanambulanceproviderforthecityservicearea.
ThemostrecentRFPforanambulanceprovideronlyresultedintwoqualifiedcompaniesbiddingforthecontract.InthenextRFP,thecityshouldmakeaconcertedefforttosolicitbidsfromseveralofthenationalambulanceprovidersinanefforttoenhancethecompetitionandimprovepricing.AspartofthisRFPthecityshouldincludeaseriesofperformanceindicatorsandreportingrequirementsthatwillbepartofthenewcontractualagreement.Ifastipendisrequireditshouldbebasedonaperformanceindicatorandafterathoroughreviewoftheambulanceproviderrevenuesandcollectioneffortsthatjustifythepaymentofastipendandtheamount.
TheabilityofacommunitytomonitorandevaluatetheeffectivenessofitsEMSdeliverysystemisgreatlydependentupontheavailabilityofvaliddataandstatisticalanalysisthatmeasuressystemperformance,includingbothclinicalandfinancialoutcomes.Thecityshouldrequirethecontractortoprovidedetailedandperiodicreportingasfollows:
OperationalReportingRequirements
Totalresponses.
Totalemergencytransports.
Totalpatientstransported.
Operational and Administrative Analysis, Dover Fire Department page 49
Totalresponsesandtransportactivitybyambulanceunit.
Totalcancelledcalls(priortoarrival).
Frequencyinwhichambulanceunitsareunavailableandthereason.
Totalpatientrefusals(treatmentandtransport).
Distributionofresponsesbytimeofdayanddayofweek.
Distributionofincidentsbylocation(ambulanceservicezones).
Descriptionofincidentsbyseverityofinjury/illness.
Summaryofpatientcomplaints(situationfound).
Responsetimesummaryforallresponses.
Responsetimesummarybyambulanceservicezones.
Responsetimesummarybyambulanceunit.
Frequencyofsimultaneouscallsforservice(citywide).
Summaryofmutualaidrequests.
Summaryofcallduration(transportsandnontransports).
Listingofequipmentorvehiclebreakdown/malfunctions.
Listinganddispositionofallpatientcomplaints(regardingservice).
FinancialReportingRequirements
Totalexpensesandrevenues.
Totalaveragechargeperpatient.
Totalaveragepatientchargeformedicalsuppliesanddisposableequipment.
Totalaveragepatientchargeformileage.
30‐,60‐,and90‐dayaccountsreceivable.
Distributionofpaymentsbyallpaymentgroups(Medicare,Medicaid,privateinsurance,directpayment,andnon‐collectables/baddebt).
Quarterlycollectionrate(percentage)forallambulancebillings.
Totalaccountswrittenoffasbaddebtafter180daysattemptedcollections.
MiscellaneousRecordkeeping
Deploymentplanningreports.
Vehiclemaintenancerecords.
Continuingeducationandcertificationrecordsdocumentingtrainingcompliance.
Operational and Administrative Analysis, Dover Fire Department page 50
TheabilitytosupervisethedeliveryofEMStransportservicesisacriticalfunctionoflocalgovernment.Asindicatedbythealarmactivity,thousandsofresidentsinteractdirectlywiththeambulanceserviceproviderannually.Typically,whenaprivateambulanceserviceischargedwithprovidingtheseservices,amunicipalfiredepartmentisacoprovideroftheservice.Thisinvolvementcreatesanongoinginteractionandanindirectoversightoftheprocess.InthesystemcurrentlybeingutilizedinDover,thisrelationshipdoesnotexistbecausethevolunteerfireserviceislargelyuninvolvedinEMSdelivery.Inanearlierrecommendation,CPSMsuggestedtheutilizationoftheEmergencyServicesManagerintheoversightoffireresponseandpreventionactivities.Similarly,itisourrecommendationthattheoversightofambulanceservicedeliveryalsobetheresponsibilityoftheEmergencyServicesManager.Withtheproposaltoinstituteaseriesofcomprehensiveperformancecriteriaitiscriticalthatanongoingreviewoftheseperformanceindicators,combinedwithregularfieldevaluations,beenacted.Additionally,thecitymayconsidertheplacementofthecontractedambulanceunitsattheDoverfirestations.ThiswouldprovidedirectinteractionwiththeEmergencyServicesManageranddrawtheambulanceproviderclosertofireoperations.
Recommendation:ThecityshouldconsiderthehousinganddeploymentofambulanceunitsfromtheDoverfirestations.
PrimeCarecurrentlyleasesspaceforitsoperationsinDover.Theabilitytojointlyhousefireandambulanceoperationsatcityfacilitiesmaycreateafinancialincentivethatwouldattractanoutsidevendorandreducetheneedforacitystipendtosupplementambulancerevenues.
Workload Analysis/Fire Loss
Asindicatedabove,thefire‐relatedcallvolumeobservedinDoverequatesto2.72callsperday,withthemajorityofthesecallsbeingnonemergencyinnatureandpublicassists.Averageelapsedtimeforacallis26.7minutes(fromcallreceipttimetounitsreturningtothestation)andthetotaldeployedtimeforallunitsisjustovertwoandone‐half(2.5)hourseachday(158.8minutes).Themajorityofallalarmactivity(approximately60percent)occursduringthenine‐hourperiodfrom10:00a.m.to7:00p.m.OuranalysisshowsthatonlyoninfrequentoccasiondoestheDoversystemexperienceoverlappingorsimultaneousalarms.Therewere51occasionsinthetwelve(12)‐monthperiodsurveyedinwhichtwocallsoccurredsimultaneously.Theaveragetimeofthisoverlapwas12.1minutes.
Whenweexaminethebreakdownofcallactivityandthecorrespondingaveragedeployedminutesperdayforeachcalltype(Table5‐11),wecanevaluatethetimeDoverunitsarespendingonthevariouscalltypes.Itisimportanttonotethatatotal966hoursofdeployedtimeoccurredintheperiodevaluated.Thisisthecompositeofalltimeloggedforallrunsbythevariousunitsresponding.Ofthisamount,251hours(26percent)wereattributabletofalsealarmruns.Ifwelookattheothercategoriesoffireresponseactivitiesthataretypicallynonemergencyinnature(hazard,falsealarm,goodintent,andpublicservice),itshouldbenotedthat509.8hours(approx.62percent)ofallthetimeloggedwasattributabletothesecalltypes.Thisisofparticularinterest
Operational and Administrative Analysis, Dover Fire Department page 51
becausethesearegenerallythecalltypesthatcouldbescreenedeffectivelyinordertoreducethenumberofunitsrespondingandthemodeofresponse(i.e.,hotvscold).
TABLE 5‐11: Annual Runs and Deployed Time by Call Type
Call Type
Avg. Deployed
Min. per Run
Annual
Hours
Percent of
Total Hours
Deployed
Min. per Day
Total
Annual Runs
Runs
per Day
MVA 24.7 48.2 5.0 7.9 117 0.3
EMS 17.8 18.7 1.9 3.1 63 0.2
Structure fire 45.5 243.3 25.2 40.0 321 0.9
Outside fire 25.4 58.4 6.0 9.6 138 0.4
Hazard 28.8 125.4 13.0 20.6 261 0.7
False alarm 19.2 251.0 26.0 41.3 785 2.2
Good intent 24.0 109.9 11.4 18.1 275 0.8
Public service 34.6 104.5 10.8 17.2 181 0.5
Subtotal 26.9 959.4 99.3 157.7 2,141 5.9
Cancelled 15.3 6.6 0.7 1.1 26 0.1
Total 26.7 966.0 100.0 158.8 2,167 5.9
Observations:
Therewere2,167runsintheyearstudied,resultinginatotalof966hoursofdeployedtime.
Onaverage,therewere5.9runsperday,withanaverageof2.6hoursofdeployedtimeperday.
Structureandoutsidefiresresultedin459runs,withatotalworkloadof301.7hours,equalto32percentoftotalDFDworkload.
Structurefiresaveraged45.5minutesofdeployedtime.
Outsidefiresaveraged25.4minutesofdeployedtime.
WhenwelookedattheresponseactivitiesamongthevariousDFDunitsitwasinterestingtonotethatLadder1wasthebusiestunit,responding542times,with235.8hoursofannualtotaloperatingtime.Typically,laddertrucksaretheleastutilizedprimaryresponsevehicles.Thesevehiclesarelessmaneuverable,theirresponsetimesareslower,andbecauseoftheirweightthereismorewearandtearontheseapparatus.Aswell,thefrequencywithwhichaerialdevicesareactuallyneededisverylimited.
Operational and Administrative Analysis, Dover Fire Department page 52
TABLE 5‐12: Call Workload by Unit
Unit Type Unit ID
Avg. Deployed
Min. per Run
Total
Annual Hours
Avg. Deployed
Min. per Day
Total
Annual Runs
Avg. Runs
per Day
Brush B1 17.0 3.4 0.6 12 0.0*
B9 18.0 31.5 5.2 105 0.3
Engine E2 27.8 199.4 32.8 431 1.2
E3 29.0 63.8 10.5 132 0.4
E4 27.2 164.4 27.0 363 1.0
E6 25.7 120.7 19.8 282 0.8
E7 32.7 20.7 3.4 38 0.1
Ladder L1 26.1 235.8 38.8 542 1.5
L2 26.0 50.6 8.3 117 0.3
Rescue R1 33.7 58.3 9.6 104 0.3
Utility U1 24.2 14.9 2.5 37 0.1
Other Other 36.3 2.4 0.4 4 0.0*
* These units had so few runs that their average runs per day, rounded to the nearest one‐tenth, appears to be zero.
Observations:
Ladder1madethemostruns(542intotalor1.5perday)andhadthehighesttotalannualdeployedtime(236hoursfortheyearor39minutesperday).
Engine2madethesecondmostruns(431totalor1.2perday)andhadthesecondhighesttotalannualdeployedtime(199hoursfortheyearor33minutesperday).
Fire Loss Inexaminingthefireincidentsinmoredetail,itwasdeterminedthatinfifty(50)ofthetotalfireincidents,nofirelosswasrecorded.Lossamountsrangedfrom$100to$100,000.Theaveragelossamountwas$9,869andinonlyseven(7)incidentsdidweseeareportedfirelossexceeding$20,000.Whenlookingatfirelosscomparisonsnationwideforstructurefires,NFPAestimatesthatin2012theaveragefirelossforastructurefirewas$20,345.19WhenthisiscomparedwiththeaveragefirelossinstructurefiresinDover,whichwas$9,869,weseetheDoveraveragelossislessthanhalfthefirelossbeingexperiencednationally.Althoughthefirelossin2014‐2015wasnotexceptionallyhigh,atanytimeasinglefirecanoccurthatresultsinmillionsofdollarsinfireloss.However,onecandeterminefromboththenumberofactualfiresoccurringinDoverandtheaveragefirelossduringtheseevents,thatthefireprobleminDoverisnotexceptionallyhigh.
19MichaelJ.KarterJr.,FireLossintheUnitedStatesduring2012,NFPASeptember2013,13.
Operational and Administrative Analysis, Dover Fire Department page 53
TABLE 5‐13: Fire Loss
Call Type Calls Total Loss Average Loss
Structure Fire 35 $463,350 $13,239
Outside Fire 5 $23,100 $4,620
Good Intent 1 $250 $250
Hazard 9 $14,400 $1,600
Total 50 $501,100 $10,022
Note: This analysis only includes calls with recorded loss greater than 0.
Observations:
Overall
50incidentshadpropertyloss,withanaveragelossamountof$10,022.
Onlysevenincidentsinvolvedalossamountexceeding$20,000.
Structure Fires
Outof106structurefirecalls,35hadrecordedloss,withtotalrecordedlossvalueof$463,350andaveragelossof$13,239.
Fivestructurefireshadunder$500inloss,and20hadmorethan$500butlessthan$10,000inloss.
Thesmallestlosswas$100,andthelargestlosswas$100,000
Outside Fires
Outof69outsidefirecalls,fivehadrecordedloss,withtotalrecordedlossvalueof$23,100andaveragelossof$4,620.
Oneoutsidefirehadunder$500inloss,andtheremainingfourhadmorethan$500butlessthan$10,000inloss.
Thesmallestlosswas$100,andthelargestlosswas$10,000.
Service Relationship with Kent County
TheStateofDelaware,becauseofitssize,hasonlythree(3)countieswithinthestate.Countygovernmentsworkcloselywithcities,towns,andunincorporatedcommunitiesinprovidingarangeofcountyandmunicipalservices.Countygovernmentsalsoprovidesignificantsupporttovolunteerfirecompanies,whicharetheprimaryserviceprovidersforfireandEMSservicesinDelaware.WilmingtonisthelargestcityinDelawareandtheonlymunicipalitythatoperatesafull‐timecareerfiredepartment.Allothercities,towns,andfireprotectiondistrictsareservedbyfullyvolunteerorpaid‐on‐callfiredepartments.
TheCityofDoverisanincorporatedmunicipalitywithinKentCounty.Asthestatecapital,Doverhasacriticalworkingrelationshipwithmanystateagenciesthatarelocatedwithincitylimits.The
Operational and Administrative Analysis, Dover Fire Department page 54
DoverFireDepartmentworkscloselywiththeKentCountyDepartmentofPublicSafetyandtheStateofDelawareinprovidingfireprotectiontoitsresidents,visitors,statebuildings,andbusinesses.TheKentCountyEmergencyCommunicationsCenterprovidescountywide911emergencycall‐taking,dispatching,andcentralizedcommunicationsservicestoseventeen(17)volunteerfiredepartmentsandfourteen(14)EMSagenciesfromastate‐of‐the‐artfacility.TheCityofDoverdoesnotutilizeKentCountyDepartmentofPublicSafetyfor911servicesandinsteadoperatesitsowndispatchsystemforitspoliceandfiredepartments.
Mutual Aid
TheDoverFireDepartmentispartofthestatewidemutualaidsystem.Eachparticipantofthissystemrecognizesthat“emergenciestranscendpoliticaljurisdictionalboundariesandthatintergovernmentalcoordinationisessentialfortheprotectionoflivesandpropertyandforbestuseofavailableassetsbothpublicandprivate.”20
TheCityofDoverutilizesfour(4)primarymutualaidpartners:Cheswold,LittleCreek,Hartly,andCamden‐Wyoming.ThemutualaidpartnersaredispatchedbyKentCounty911.Inaddition,two(2)ofthepartnershaveEMSambulancesthatfrequentlyrespondtocallsforserviceinDoverwhenPrimeCareunitsarenotavailable.MutualaidisusedextensivelyinDoverandamongthesurroundingfiredepartmentsinKentCounty.Inthetwelve12‐monthperiodevaluatedinouranalysistherewereatotaloftwenty‐five(25)occasionsinwhichaDoverunitprovidedassistancetoamutualaidpartner.Onapproximatelyeighty(80)occasions,Doverreceivedfireassistancefromitsneighboringpartners.Manytimesthisassistancetooktheformofa“stand‐by”or“cover‐up”response.Inthisscenario,theagencyprovidingassistancewouldrespondintotheneighboringcommunityandstand‐bywhiletheresidentagencywastieduponaninitialcall.ThesurroundingFireChiefsreportedthatthemutualaidprocesswasveryeffectiveandthattherewerenotactical,jurisdictional,orequipment/radioincompatibilitiesinthemutualaidprocess.OperationalandtacticalproceduresaredevelopedcollaborativelybytheKentCountyChief'sAssociationintheformofstandardoperatingprocedures.ThemutualaidsystemappearstobeveryfunctionalandCPSMviewsthiscombinedeffortasabestpracticethatiscommendable.
Emergency/Nonemergency Response
AnotherinterestingtrendCPSMcontinuestoevaluateisthefrequencyoftrueemergencycallsvs.nonemergencyorpublicassistcalls.Ourfindingsnationally(fromCPSMfiredatareports)indicatethatinmanyjurisdictionsmorethanfifty(50)percentofallresponses(fire,EMS,andother)arenonemergencyinnature.Thisfactoriscriticalwhenvolunteerpersonnelareutilizedandindividualsarecalledinforaresponseandthecallturnsouttobeafalsealarmorsomethingminorthatcouldhavebeenhandledwithalesserresponse.Inanefforttolimittheresponseofmultipleunits,DFDhasbuiltintoitsresponseprotocolstheuseofa“SilentAlarm”andthe“DutyOfficer
20DelawareCode§20,Chapter32,MilitaryandCivilDefenseIntrastateMutualAidCompact.
Operational and Administrative Analysis, Dover Fire Department page 55
Call.”ThisisanexcellenteffortthatCPSMrecognizesasabestpractice.TheDover911CenterandtheDoverFireDispatchCenterareverylimitedintheircallscreeningefforts.Innearlyallfireresponses,unitsrespondinaHotmode,utilizinglightsandsirens.
Recommendation:TheDFDshouldworkwiththeDover911PoliceCommunicationsCenterinanefforttoreducethenumberofresponsesthatrequireunitstorespondwithlightsandsirens.
Mostfireresponses,specificallythoseinvolvingautomaticfirealarmsoundings,smokeinvestigations,smellofgas,andpublicservicecalls,arenonemergencyanddonotrequireahotresponse.Inmostcases,aninvestigationofthesituationiswarrantedandminimalpersonnelshouldbeassigned.Inlookingatthefireresponsesthatoccurredinthetwelve(12)‐monthperiodfromJuly2014toJune‐2015,wefoundthatmorethan80percent(710incidents)wereclassifiedaseitherahazard,falsealarm,goodintent,orpublicservicecall.CPSMbelievesthatwithproperscreening,manyoftheseresponsescouldbehandledasnonemergencyresponses.
Ouranalysisalsofoundthaton35.6percentofallresponses,DFDrespondsasingleunit.CPSMbelievesthatthisnumberisverylow.Ourexperiencewithcallactivityinothercommunitiesindicatesthatupwardsof50percentto60percentofallfireresponsescanbescreenedsufficientlytoreducethelevelofresponse.Theabilitytorespondthefewestnumberofunitsandhavetheseunitsrespondina“coldmodeofresponse”(withoutlightsandsirensandfollowingtrafficpatterns)resultsinthemaximizationofresourcesandimprovedrespondersafety.Emergencyresponseunitsthatarerespondingwithlightsandsirensaremoresusceptibletotrafficaccidents.Accidentsinvolvingfirevehiclesrespondingtoemergenciesarethesecondhighestcauseforline‐of‐dutydeathsoffirefighters.21Itisestimatedthatmorethan30,000fireapparatusareinvolvedinaccidentswhenrespondingtoemergencieseachyearintheU.S.22Respondingfewerunitsandhavingtheseunitsrespondinanonemergencymodemakessenseintermsofsafetyandefficiency.
21“AnalysisofFiretruckCrashesandAssociatedFirefighterInjuriesintheU.S.”AssociationfortheAdvancementofAutomotiveMedicine.October‐2012.22Ibid.
Operational and Administrative Analysis, Dover Fire Department page 56
FIGURE 5‐5: Number of Dover Fire Department Units Dispatched to Calls
TABLE 5‐14: Number of Units Dispatched to Calls
Call Type
Number of Units
Total One Two Three
Four or
More
MVA 10 11 19 7 47
EMS 30 7 5 1 43
Structure fire 20 19 27 40 106
Outside fire 31 18 13 7 69
Hazard 40 25 35 15 115
False alarm 96 130 95 34 355
Good intent 47 38 23 19 127
Public service 72 20 15 6 113
Subtotal 346 268 232 129 975
Cancelled 8 6 2 0 16
Total 354 276 234 129 993
Percentage 35.6 27.8 23.6 13.0 100.0
Operational and Administrative Analysis, Dover Fire Department page 57
Observations:
Overall
Onaverage,2.2unitsweredispatchedpercall.
Oneunitwasdispatched36percentofthetime,twounitsweredispatched28percentofthetime,threeunitsweredispatched24percentofthetime,andfourormoreunitsweredispatched13percentofthetime.
Structure Fires
Threeunitsweredispatchedtostructurefires25percentofthetime,andfourormoreunitsweredispatched38percentofthetime.
Outside Fires
Threeunitsweredispatchedtooutsidefires19percentofthetime,andfourormoreunitsweredispatched10percentofthetime.
False Alarms
Threeunitsweredispatchedtofalsealarms37percentofthetime,andfourormoreunitsweredispatched10percentofthetime.
Recommendation:TheDFDshouldmodifyitsresponseprotocolsinanefforttoreducethenumberofunitsrespondingtothosecallsthatarescreenedsufficientlytodeterminethattheyarenonemergencyinnature.
Theabilitytoscreencallssufficientlyatthedispatchleveltodeterminetheircriticalityisdoneonadailybasisindispatchcentersacrossthenation.Intoday’senvironmentinwhichcellulartelephonesarecarriedbymosteveryone,itisverylikelythatduringtrueemergenciesmultiplecallsarereceivedforthesameincident.Fromthisstandpoint,theabilitytoupgradeacallfromnonemergencytoemergencycanbedonewithlittletimedelayifmultipleorconfirmingcallsarereceived.
Operational and Administrative Analysis, Dover Fire Department page 58
Section 6. Response Time Analysis
ResponsetimesaretypicallytheprimarymeasurementinevaluatingfireandEMSservices.Mostdeploymentmodelshavebeenbuiltaroundafour‐minuteinitialtraveltimeforEMSandaneight‐minutefull‐forcetraveltimeforfires.Thoughthesetimeshavevalidity,theactualimpactofaspeedyresponsetimeislimitedtoveryfewincidents.Forexample,inafullcardiacarrest,analysisshowsthatsuccessfuloutcomesarerarelyachievedifbasiclifesupport(CPR)isnotinitiatedwithinfourminutesoftheonset.However,cardiacarrestsoccurveryinfrequently;onaveragetheyare1percentto1.5percentofallEMSincidents.23TherearealsootherEMSincidentsthataretrulylife‐threateningandthetimeofresponsecanclearlyimpacttheoutcome.Theseinvolvefulldrownings,allergicreactions,electrocutions,andseveretrauma(oftencausedbygunshotwounds,stabbings,andseveremotorvehicleaccidents,etc.).Again,thefrequenciesofthesetypesofcallsarelimited.
Regardingresponsetimesforfireincidents,thecriterionisbasedontheconceptof“flashover.”Thisisthestateatwhichsuper‐heatedgassesfromafirearereleasedrapidly,causingthefiretoburnfreelyandbecomesovolatilethatthefirereachesanexplosivestate.Inthissituation,usuallyafteranextendedperiodoftime(ofteneight(8)totwelve(12)minutesafterignitionbuttimesasquicklyasfive(5)toseven(7)minutes),andacombinationoftherightconditions(fuelandoxygen),thefireexpandsrapidlyandismuchmoredifficulttocontain.Whenthefiredoesreachthisextremelyhazardousstate,initialfirefightingforcesareoftenoverwhelmed,largerandmoredestructivefireoccurs,andsignificantlymoreresourcesarerequiredtoaffectfirecontrolandextinguishment.Flashoverhasbeenobservedtooccurmorefrequentlytodayaspartofanincreaseinquantitiesofplastic‐andfoam‐basedproductsintohomesandbusinesses.Thesematerialsigniteandburnquicklyandproduceextremeheatandtoxicsmoke.Figure6‐1illustratestheflashoverphenomenonanditspotentialimpactonfirefightersandfireextinguishmentasthefirepropagationcurve.
23Myers,Slovis,Eckstein,Goodloeetal.(2007).”Evidence‐basedPerformanceMeasuresforEmergencyMedicalServicesSystem:AModelforExpandedEMSBenchmarking.”Pre‐hospitalEmergencyCare.
Operational and Administrative Analysis, Dover Fire Department page 59
FIGURE 6‐1: Fire Propagation Curve
Anotherimportantfactorinthewholeresponsetimequestioniswhatweterm“detectiontime.”Thisisthetimeittakestodetectafireormedicalsituationandnotify911toinitiatetheresponse.Inmanyinstances,particularlyatnightorwhenautomaticdetectionsystems(firesprinklersandsmokedetectors)areunavailableorinoperable,thedetectionprocesscanbeextended.
Measuring Response Times
TherearenodocumentedstudiesthathavemadeadirectcorrelationbetweenresponsetimesandoutcomesinfireandEMSevents.Noonehasbeenabletoshowthatafour(4)‐minuteresponsetimeismeasurablymoreeffectivethanasix(6)‐minuteresponsetime.Thelogichasbeen“fasterisbetter”butthishasnotbeensubstantiatedbyanydetailedanalysis.Furthermore,theabilitytomeasurethedifferenceinoutcomes(patientsaves,reducedfiredamage,orsomeotherquantifiablemeasure)betweenasix(6)‐minute,eight(8)‐minute,orten(10)‐minuteresponseisnotaperformancemeasureoftenutilizedinthefireservice.
Thelevelofprotectioninacommunityshouldbebasedonthespecificneedsofthatcommunity.So,inlookingatresponsetimesitisprudenttodesignadeploymentstrategyaroundtheactualcircumstancesthatexistandthehistoricalservicedemandsthatareoccurring.
ForthepurposeofthisanalysisResponseTimeisaproductofthreecomponents;DispatchTime,TurnoutTime,andTravelTime.
Operational and Administrative Analysis, Dover Fire Department page 60
Dispatchtimeisthetimeintervalthatbeginswhenthealarmisreceivedattheinitialpublicsafetyansweringpoint(PSAP)orcommunicationscenterandendswhentheresponseinformationbeginstobetransmittedviavoiceand/orelectronicmeanstotheemergencyresponsefacilityoremergencyresponseunitsorpersonnelinthefield.
Turnouttimeisthetimeintervalthatbeginswhenthenotificationprocesstoemergencyresponsefacilitiesandemergencyresponsepersonnelandunitsbeginsbyanaudiblealarmand/orvisualannouncementandendsatthebeginningpointoftraveltime.Thefiredepartmenthasthegreatestcontroloverthesefirsttwosegmentsofthetotalresponsetime.
Traveltimeisthetimeintervalthatinitiateswhentheemergencyresponseunitisactuallymovinginresponsetotheincidentandendswhentheunitarrivesatthescene.
Responsetime,alsoknownastotalresponsetime,isthetimeintervalthatbeginswhenthecallisreceivedbytheprimarydispatchcenterandendswhenthedispatchedunitarrivesonthesceneoftheincidenttoinitiateaction.
Forthisstudy,andunlessotherwiseindicated,responsetimesandtraveltimesmeasurethefirstarrivingunitonly.Theprimaryfocusofthissectionisthedispatchandresponsetimeofthefirstarrivingunitsforcallsrespondedwithlightsandsirens.
AccordingtoNFPA1710,StandardfortheOrganizationandDeploymentofFireSuppressionOperations,EmergencyMedicalOperations,andSpecialOperationstothePublicbyCareerDepartments,2014Edition,thealarmprocessingtimeordispatchtimeshouldbelessthanorequalto60seconds90percentofthetime.WhileDover’sfiredepartmentitselfisvolunteer,itsdispatchfunctionsarenot;thereforeforthepurposesofdispatchtime,thisstandardmaybeconsideredanapplicablebenchmark.
NFPA1720issilentoninitialunitresponsetimes.However,forfiredepartmentsservinganurbancommunityitstatestheinitialfirstalarmassignment(atotaloffifteen(15)personnelforasinglefamilyresidentialstructure)shouldbeassembledonscenein540seconds(nineminutes)90percentofthetime(includingturnouttimebutnotdispatchtime).NFPA1720responsetimecriterionisabenchmarkforservicedeliveryandnotnecessarilyaCPSMrecommendation.
Dover Fire Department Response Times
ThissectionfocusesondispatchandresponsetimeanalysisforthefirstarrivingDFDunit.Wetypicallyfocusonemergencycallswherethedepartmentwouldrespondwithlightsandsirens—alsoknownasahotresponse.TheDFDdoesnotrecordthepriorityofacallinitsrecordsmanagementsystem,soalleligiblecallswereincludedinthisanalysis.CPSMused940callsincreatingthisanalysis.Weexcludedcallsinwhichunitswerecanceledenroute,administrativecalls,andcallsinwhichthedatawereincompleteorinaccurate.Weincludedfirstarrivingunitswithcompleteunitdispatchtime,unitenroutetime,anduniton‐scenearrivaltime.
Operational and Administrative Analysis, Dover Fire Department page 61
FortheDFDcallsanalyzedtheaveragedispatchtimewas1.3minutes.Theaverageturnouttimewas3.3minutes.Theaveragetraveltimewas3.5minutes.TheaverageDFDresponsetimeforEMScallswas5.8minutes.Theaverageresponsetimeforstructurefirecallswas7.8minutes.Theaverageresponsetimeforoutsidefirecallswasalso7.8minutes.Theaveragetotalresponsetimewas8.1minutes.
TABLE 6‐1: Average Response Times of First Arriving Unit, by Call Type (Minutes)
Call Type Dispatch Time Turnout Time Travel Time Response Time Sample Size
MVA 2.0 1.8 3.2 7.0 42
EMS 1.3 2.7 1.8 5.8 42
Structure fire 1.0 3.4 3.4 7.8 104
Outside fire 2.1 2.0 3.7 7.8 68
Hazard 1.3 3.4 3.3 8.0 111
False alarm 1.0 3.9 3.6 8.5 346
Good intent 1.3 3.1 3.7 8.1 125
Public service 1.6 2.5 4.4 8.5 102
Total 1.3 3.3 3.5 8.1 940
Observations:
48calls(5percent)hadadispatchhandlingtimegreaterthanfiveminutes.
370calls(39percent)hadaturnouttimeofgreaterthanfourminutes.
234calls(25percent)hadatotalresponsetimegreaterthantenminutes.
Averages – First Arriving Unit
Dispatchtime:1.3minutes.
Turnouttime:3.3minutes.
Traveltime:3.5minutes.
Totalresponsetime:8.1minutes.
Structurefireresponsetime:7.8minutes.
Outsidefireresponsetime:7.8minutes.
The90thpercentilemeasurement,oftenreferredasa“fractileresponse,”isamoreconservativeandstrictermeasureoftotalresponsetime.MostfireagenciesareunabletomeettheNFPAfractileresponsetimestandard.Simplyexplained,for90percentofcalls,thefirstunitarriveswithinaspecifiedtime,andifmeasured,thesecondandthirdunit.Table6‐2depictsthe90thpercentileresponsetimesinDoverforvariousresponses.Itisimportanttonotethatthe90thpercentiledispatchtimeforfireresponsesis3.3minuteswhiletheaveragedispatchtimewasjust1.3minutes.MVAsandoutsidefiresweremeasuredatfiveminutes(00:05:00)andfiveminutes,thirty
Operational and Administrative Analysis, Dover Fire Department page 62
seconds(00:05:30),respectively.Structurefireshada90thpercentileturnouttimeofsixminutes,thirtyseconds(00:06:30).
TABLE 6‐2: 90th Percentile Response Times of First Arriving Unit, by Call Type
(Minutes)
Call Type Dispatch Time Turnout Time Travel Time Response Time Sample Size
MVA 5.0 4.5 5.5 10.4 42
EMS 2.5 6.7 4.5 11.0 42
Structure fire 2.2 6.5 5.8 12.2 104
Outside fire 5.5 5.5 6.6 11.1 68
Hazard 3.4 6.8 5.5 12.1 111
False alarm 2.4 7.1 5.8 12.0 346
Good intent 3.3 6.6 6.3 12.3 125
Public service 3.9 5.8 8.3 14.0 102
Total 3.3 6.7 6.1 12.1 940
Observations
90th Percentile – First Arriving Unit
Dispatchtime:3.3minutes.
Turnouttime:6.7minutes.
Traveltime:6.1minutes.
Totalresponsetime:12.1minutes.
Structurefireresponsetime:12.2minutes.
Outsidefireresponsetime:11.1minutes.
Ingeneral,theresponsetimesreflectedinthisanalysisareexcellentconsideringtheuseofafullyvolunteeroperationandtheaverageturnoutofpersonnelthatwasachieved.Theabilitytoachieveanaveragetotalresponsetimeof8.1minutesanda90thpercentileresponsetimeof12.1minutes,isconsideredabestpractice,andwhichCPSMviewsasbeinghighlycommendable.
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Station Locations
Thefirestationisacriticallinkinservicedeliveryandwherethesefacilitiesarelocatedisthesinglemostimportantfactorindeterminingoverallresponsetimesandworkloadmanagement.TheDoverFireDepartmentprovidesitsservicesfromtwo(2)firestations,whicharelocatedasfollows:
Station1/FireHeadquarters:103S.GovernorsAve.
Station2:911KentonRd.
PrimeCareambulancesrespondfromasinglefacilitylocatedat601FultonSt.
Typically,firestationshaveananticipatedservicelifeofapproximatelyfifty(50)years.Inmostcasesfacilitiesrequirereplacementbecauseofthesizeconstraintsofthebuildings,aneedtorelocatethefacilitytobetterservechangingpopulationcenters,theabsenceofneededsafetyfeaturesorserviceaccommodations,andthegeneralageandconditionofthefacility.AtthetimeofthisassessmentbothDoverstationswerefoundtohaveup‐to‐datebuildingsystems,suchasHVAC,andstationinfrastructurewasgenerallyinexcellentcondition.Bothstationsareequippedwithautomaticfiresuppressionsystemsanddieselexhaustremovalsystems.
Station1wasoriginallybuiltin1922.Itwasexpandedin1976andagain,alongwithextensiverenovationsandupgradingin2004.Itoccupiesatotalof23,000squarefeetthatencompassestwelve(12)apparatusbays,thedepartment’sadministrativeoffices,thedispatchcenter,meetingrooms,andoperational/memberspacesincludingbunkrooms,andafiremuseum.OperationalandmaintenancecostsforStation1arebornebytheVolunteerAssociation.
Station2wasconstructedin1993andcontains8,300squarefeet.Thisincludesfive(5)apparatusbaysandadministrativespace.Thereisaroomonthesecondfloorthatcouldbeconvertedintoabunkroomforusebyaninstationdutycrew.Station2’soperationalandmaintenancecostsarebornebythecity.
Assessment of Fire Station Locations TheDFDservesanestimatedpopulationof37,355peopleandatotalserviceareainexcessof25squaremiles.WhiletheCityofDoverencompasses23.15squaremiles,thefiredepartment’sserviceareaextendsbeyondthecityboundariesintocontiguousareasofKentCounty.Thisequatestoanaverageserviceareaforeachfirestationofapproximately12.5squaremiles.
InaFY2011ICMADataReport,ICMAreportedsurveyinformationfrom76municipalitieswithpopulationsrangingfrom25,000to100,000people.Inthisgroupingtheaveragefirestation
Operational and Administrative Analysis, Dover Fire Department page 64
serviceareawas11squaremiles.24Themedianserviceareaforthisgroupingofcommunitieswas6.67squaremilesperfirestation.25
Inaddition,theNFPAandISOhaveestablisheddifferentindicesindeterminingfirestationdistribution.TheISOFireSuppressionRatingSchedule,Section560,indicatesthatfirst‐dueenginecompaniesshouldserveareasthatarewithina1.5‐miletraveldistance.26Theplacementoffirestationsthatachievesthistypeofseparationcreatesserviceareasthatareapproximately4.5squaremilesinsize,dependingontheroadnetworkandothergeographicalbarriers(rivers,lakes,railroads,limitedaccesshighways,etc.).TheNationalFireProtectionAssociation(NFPA)referencestheplacementoffirestationsinanindirectway.Itrecommendsthatfirestationsbeplacedinadistributionthatachievesthedesiredminimumresponsetimes.NFPAStandard1710,Section5.2.4.1.1,suggestsanengineplacementthatachievesa240‐second(four‐minute)traveltime.27Usinganempiricalmodelcalledthe“piece‐wiselineartraveltimefunction”theRandInstitutehasestimatedthattheaverageemergencyresponsespeedforfireapparatusis35mph.Atthisspeedthedistanceafireenginecantravelinfourminutesisapproximately1.97miles.28Apolygonbasedona1.97miletraveldistanceresultsinaserviceareathatonaverageis7.3squaremiles.29
Fromthesecomparisons,itcanbeseenthattheaverage12.5square‐mileserviceareaperstationinDoverislargerthanallofthenotedreferences.ImmediatelyobviouswhenexaminingacitymapshowingthelocationofDover’sstationsisthatthenorthernandeasternsectionsofthecityappeartolackaneasyorrapidresponsefromeitheroftheexistingfirestations.Inparticular,forresponsestotheeasternsideofthecity,unitsmustcrossoverbothUSRoute13(DuPontHighway)andDelawareRoute1(KoreanWarVeteransMemorialHighway).Theseroadsessentiallydividethecity,astherearelimitedlocationswherestreetsdirectlycrossfromonesideofthesehighwaystotheother.Itisquitepossiblethatthelackofastationinthisarea,andthebarrierspresentedbythesehighways,impactsresponsetimes.
Asnoted,theDFDdeploysitsapparatusfromtwo(2)firestations.Figures6‐2,6‐3,and6‐5illustratestationlocations,alongwith240‐second(indicatedbytheredoverlay),360‐second(indicatedbythegreenoverlay),and480‐second(indicatedbytheblueoverlay)traveltimebenchmarks.
24ComparativePerformanceMeasurement,FY2011DataReport‐FireandEMS,ICMACenterforPerformanceMeasurement,August2012.25Ibid.26InsuranceServicesOffice.(2003)FireProtectionRatingSchedule(edition02‐02).JerseyCity,NJ:InsuranceServicesOffice(ISO).27NationalFireProtectionAssociation.(2010).NFPA1710,StandardfortheOrganizationandDeploymentofFireSuppressionOperations,EmergencyMedicalOperations,andSpecialOperationstothePublicbyCareerFireDepartments.Boston,MA:NationalFireProtectionAssociation.28UniversityofTennesseeMunicipalTechnicalAdvisoryService,ClintonFireLocationStationStudy,Knoxville,TN,November2012.p.8.29Ibid.,p.9.
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FIGURE 6‐2: DFD Station Locations and Travel Times (red = 240 seconds)
Operational and Administrative Analysis, Dover Fire Department page 66
FIGURE 6‐3: DFD Station Locations and Travel Times (green = 360 seconds)
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FIGURE 6‐4: DFD Station Locations and Travel Times (blue = 480 seconds)
Figure6‐2showsthatapproximately50percentofthedevelopedareasofthecityarecoveredunderthe240‐secondbenchmark.Weestimatethatapproximately80percentofthedevelopedareaofthecityiscoveredunderthe360‐secondoverlayandmorethan90percentiscoveredunderthe480‐secondbenchmark.ItisimportanttonotethattheDoverAirForcebase,whichisofficiallylocatedwithincitylimitsinthefarsoutheastsectionofthecity,isnotservedbyDFD.Themajorityofthecity,thecommercial,andthemorebuilt‐uponareasarewellwithinthe240‐and360‐secondbenchmarks.ThisisconfirmedbytheinformationinTable6‐2showing90thpercentiletimes;itcanbeseenthatnearly90percentofthecallshandledbyDFDresultinatraveltimeinthesixminuterange(360seconds).Itis,however,importanttonotethatthesetraveltimedistancesdonottakeintoconsiderationalarmhandlingandturn‐outtimes.ThemapsinFigures6‐2,6‐3,and6‐4onlydepicttraveldistancesandnotactualresponsetimes.
Figure6‐5representstheactuallocationsoffireandotheremergencyresponsescarriedoutbytheDFD.ItisapparentthatmostresponsesarewithinfourtofiveminutesoftraveltimefromtheDoverfirestations.Itisalsorevealingthatthereareanumberofcallgeneratingpointsthatareintheeasternareasofthecitythatareatthefartherlimitsofthe480‐secondtraveldistance.Inaddition,thereisapocketofcallslocatedintheextremesoutheastsectionofthecity,adjacenttoDoverAirForcebase,andthesecallstypicallyresultinextendedtraveltimes.Thisareaincludesthe
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GeneralGreenHousingdevelopment,asmallmobilehomepark,andsomebusinessestablishments.Weestimatethatabout50callsoccurinthisareaannually.
FIGURE 6‐5: DFD Fire Runs
Operational and Administrative Analysis, Dover Fire Department page 69
Section 7. Measurement and Self‐Assessment
Performance Measurement
Firesuppression,preventionprograms,andsafetyservicesneedtobeplannedandmanagedtoachievespecific,agreed‐uponresults.Determininghowwellanorganizationorprogramisdoingrequiresthatthesegoalsbemeasurableandthattheyaremeasuredagainstdesiredresults.Thisisthegoalofperformancemeasurement.
Simplydefined,performancemeasurementistheongoingmonitoringandreportingofprogresstowardpre‐establishedgoals.Itcapturesdataaboutprograms,activities,andprocesses,anddisplaysdatainstandardizedwaysthathelpcommunicatetoserviceproviders,customers,andotherstakeholdershowwelltheagencyisperforminginkeyareas.Performancemeasurementprovidesanorganizationwithtoolstoassessperformanceandidentifyareasinneedofimprovement.Inshort,whatgetsmeasuredgetsdone.
Incidentreportingistheprimarymediumthroughwhichdepartmentactivitiesarerecordedandcansubsequentlybemeasured.Consistency,accuracy,andcompletenessinincidentreportingiscriticaltoaneffectiveperformancemeasurementsystem.CPSMbelievesthatimprovedoversightisneededregardingtheincidentreportingandactivityreporting(inspections,training,publiceducationpresentations,andfireinvestigations)systemscurrentlyutilizedbyDFD.Itisimportantthatallpersonnelbefullytrainedintheincidentandactivityreportprocessandthatclearguidelinesbeestablishedonwhensuchreportingisrequired.Inaddition,CPSMrecommendsthatanassignedperson(s)beresponsibleforthereviewofthesereportsforpurposesofqualitycontrol.
Recommendation:TheDFDshouldinstituteaunifiedincidentandactivityreportingsystemforemergencyresponseandothersupportactivitiescarriedoutbyallpersonnel.
Performancemeasurementsystemsvarysignificantlyamongdifferenttypesofpublicagenciesandprograms.Somesystemsfocusprimarilyonefficiencyandproductivitywithinworkunits,whereasothersaredesignedtomonitoroutcomesproducedbymajorpublicprograms.Stillotherstrackthequalityofservicesprovidedbyanagencyandtheextenttowhichcitizensaresatisfiedwiththeseservices.
Withinthefireservice,performancemeasurestendtofocusoninputs(theamountofmoneyandresourcesspentonagivenprogramoractivity,numberofpersonnel,dailystaffinglevels,etc.)andshort‐termoutputs(thenumberoffiresandaverageresponsetimes).Oneofthegoalsofanyperformancemeasurementsystemshouldbetoincludeefficiencyandcost‐effectivenessindicators,aswellasexplanatoryinformationonhowthesemeasuresshouldbeinterpreted.ThevarioustypesofperformancemeasuresareshowninTable7‐1.
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TABLE 7‐1: The Five GASB Performance Indicators30
Category Definition
Input Indicators These are designed to report the amount of resources, either financial or
other (especially personnel), that have been used for a specific service or
program.
Output Indicators These report the number of units produced or the services provided by a
service or program.
Outcome Indicators These are designed to report the results (including quality) of the service.
Efficiency (and cost‐
effectiveness) Indicators
These are defined as indicators that measure the cost (whether in dollars
or employee hours) per unit of output or outcome.
Explanatory Information This includes a variety of information about the environment and other
factors that might affect an organization’s performance.
AstheDFDevolvesitiscriticalthataseriesofmeasurementsbeestablishedtotracktheperformanceofalloperations.Currently,thedepartmentdoesnotuseperformancemeasureswithanyregularityinmonitoringsystemperformanceandefficiency.Tobeeffective,thefindingsfromthesereportsneedtobepublishedandsharedwithalltheaffectedstakeholders,includingthecitycouncil,theMayor’sOffice,theCityManager’sOffice,theVolunteerAssociation,andthefirstresponders.Ongoinganalysisandthemonitoringoftrendsaremostusefultojustifyprogrameffectiveness,directtrainingefforts,andtomeasureservicedeliverylevels.
Toaccomplishthislinkage,theuseofperformancemeasures,particularlyservice‐qualityandcustomer‐satisfactionmeasures,shouldbeincorporatedintothesystem.Staffthroughouttheorganizationshouldparticipateindevelopingperformancemeasures.Inadditiontohelpingfacilitatedepartmentwidebuy‐in,thiscouldprovideanopportunityfortheVolunteerAssociationandcityleadershiptobetterunderstandwhatthevolunteersbelievetobecriticalgoals—andviceversa.Forthesamereason,theprocessofdevelopingperformancemeasuresshouldincludecitizeninput,specificallywithregardtoservicelevelpreferences.Translatingthisadvicefromthecitizensintoperformancemeasureswilllinkthecitizensandbusinesscommunitytothedepartment,andwillarticulateclearlyifthepublic’sexpectationsarebeingmet.
EstablishingaperformancemanagementsystemwithintheframeworkofanoverallstrategicplanwouldhelpcitymanagementandelectedofficialstogainabetterunderstandingofwhattheDFDistryingtoachieve.Buildinganysuccessfulperformancemanagementsystemthatmeasuresmorethanoutputsrequiresaconsistentmodel.
30FromHarryP.Hatryetal.,eds.ServiceEffortsandAccomplishmentsReporting:ItsTimeHasCome(Norwalk,CT:GASB,1990).
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Recommendation:TheDFDshouldundertakeaconcertedefforttodevelopacomprehensivesetofperformancemeasuresthatwillbeusedtomonitoritssystemperformanceandsystemoutcomes.TheprocessofdevelopingthesemeasuresshouldutilizeinputfromDFDmembers,thecommunity,electedofficials,andcityadministrators.
CPSMrecommendsthatDFDundertakeaconcertedefforttodevelopacomprehensivelistingofperformancemeasuresforbothemergencyandnonemergencyactivities.Thefollowingareanumberofsuggestedmeasuresthatmaybeconsidered:
Operations:
Responsetimes(fractal/average/frequencyofexcessivetimes).
○ Alarmhandlingtimes.
○ Turnouttimes.
○ Traveltimes.
○ On‐scenetime.
○ Callduration.
○ Cancelledenroute.
Workloadmeasures.
○ Emergencyvs.nonemergencyresponses.
○ Responsetoautomaticfirealarms/frequencyandoutcomes.
○ Smokedetectordistribution(installationsandfollow‐up).
○ Prefireplanning.
○ Publiceducation‐contacthours/numbersbyagegroup.
Outcomemeasures
○ Fireloss/limitoffirespread–pointoforigin,roomoforigin,etc.
○ On‐dutyinjuries.
○ Volunteerparticipationandattendanceatevents.
○ Vehicleaccidents.
○ Equipmentlostorbroken.
Staff Training and Development:
Firetrainingandparticipationatdrills.
Officerdevelopment.
Specialtytraining.
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Professionaldevelopment/formaleducation/certifications.
Fire Prevention:
Plansreview(numbers/valuation$/completiontime).
Inspections(newandexisting).
○ Numbers.
○ Completiontime.
○ Violations(found/corrected).
○ Quantificationbytypeofviolationandoccupancytype.
Fireinvestigations.
○ Numbersanddeterminations.
○ Locationsandoccupancytypes.
○ Fireloss/structureandcontents.
○ Arsonarrests/convictions.
○ Firedeaths(demographics/occupancytype/causeandorigin).
Miscellaneous:
Customerservicesurveys.
○ Followingemergencyresponse.
○ Publicassist.
○ Inspections(preventionandcompany).
○ Publiceducation.
○ In‐servicetraining(volunteerassessments).
Financial/budgetary.
○ Apparatusrepaircostsandout‐of‐servicetime.
Hazard Analysis
TheCityManagerhasdesignatedthePublicAffairsCoordinatorasthecity’sEmergencyManagementCoordinatorandassuchisresponsibleforthecity’soverallemergencyplanninganddisasterpreparednessefforts.Thecityhasadoptedanemergencyoperationsplan(EOP)thatincludesalineofsuccession,identifyingtheFireChiefandPoliceChiefasalternatesintheabsenceoftheEmergencyManagementCoordinator.Thecity’splanisverywellwrittenandidentifiesthosepotentialhazardsthatcanaffectthecommunity.Theseinclude:
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Hurricanes/tropicalstorms.
Coastalerosion/tidalsurge.
Flooding
Drought
WinterStorms
Energydisruption/shortage
Transportationaccident
Doverisalsovulnerabletoavarietyofhuman‐causedhazards,includingchemicalreleases,spills,orexplosionsassociatedwiththefixedstorageormobiletransportofhazardousmaterials.31Inaddition,theKentCountyMulti‐JurisdictionalHazardMitigationPlanencompassestheCityofDover.Thepurposeofhazardmitigationistoreduceoreliminatelong‐termriskstopeopleandpropertyfromnaturalhazards.Theemergencyoperationsplanincludesaseriesofresponseguidesthatidentifytheassociatedtasksandtowhomtheyareassigned,dependingonthetypeofincidentanditsmagnitude.
Linkingafiredepartment’soperationalfunctionalitytothecommunityriskanditsvulnerabilityassessmentisintendedtoassistfirepersonnelinrefiningtheirpreparednessefforts.Becauseoftheinvolvementofafullyvolunteerfiredepartment,CPSMhasobservedlimitedeffortsdirectedtowardthislevelofpreparednessandorganizedmanagementofthefiredepartmentintheeventoflarge‐scaledisasteroranemergencyeventwithabroadreach.WewilldiscussthisissueandourrecommendationsintheEmergencyManagementsectionofthisreport.
Fire Preplanning/Company Inspections
TheDoverFireDepartmenthasdevelopedanumberofprefireplansformajortargethazardswithintheresponsedistrict.Thesedocumentsaddressroutesoftravel,typesofoccupancies,watersupplies,sprinklerandstandpipeconnections,andhazardsassociatedwiththevariousoccupancies.Eachpieceofapparatushasabookwithrunningroutesandbuildinglayoutfortargethazards.
Riskassessmentandvulnerabilityanalysisarenotnewtothefireservice;theNFPA1620,RecommendedPracticeforPre‐IncidentPlanning,identifiestheneedtoutilizebothwrittennarrativeanddiagramstodepictthephysicalfeaturesofabuilding,itscontents,andanybuilt‐infireprotectionsystems.Theoccupanciesthataretypicallyspecifiedforpre‐incidentplans,or“preplans,”areasfollows:
Largeassembly.
31KentCountyMulti‐JurisdictionalHazardMitigationPlan,2015Update(Draft)
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Educational.
Healthcare.
Detentionandcorrection.
High‐riseresidential.
Residentialboardandcare(assistedliving).
Mercantile.
Business.
Industrial.
Warehouseandstorage.
OfparticularnotearetheDangerousBuildingPlacards,whichmarkabandoned,damaged,andvacantstructuresthatcouldposeahazardtofirefightersrespondingtoafire.Placardsareaffixedatdesignatedlocations,ifapplicable,indicatingtheneedtousecautionordonotenter.Thisprocedureisabestpractice.
TheCityofDoverfirepreventionfunctionsaremanagedbytheFireMarshal,asectionwithinthecity’splanningdepartment.Thefiredepartmentdoesnotperformcompanyinspections;however,obviousfirehazardswhileperformingareafamiliarizationarereportedtotheFireMarshalbysuppressionpersonnel.
Thebuildinginspectionprocessistheidealmechanismforemergencyresponsepersonneltokeepcurrentwiththehundredsofcommercial,industrial,fabrication,storage,andresidentialoccupancies.Theabsenceoflinefirepersonnelwhoareinvolvedintheinspectionandcodeenforcementprocessisalostopportunityingivingemergencyrespondersup‐to‐dateinformationregardingstructuresandthestorageofmaterialsthattheymayencounterduringanemergency.Itisveryunderstandablethatasavolunteerforcetheabilitytoinvolvelinepersonnelintheinspectionprocessisdifficult.However,theinabilityforthisinteractiontooccurreducestheoveralleffectivenessofthesuppressioneffortandminimizesthesafetyconsiderationsthatwouldotherwisebegainedfromtheeffort.InoursectionregardingthereorganizationoftheDFDwespokeabouttheexpansionoftheFireDispatcherroleandmovingtheirfunctionalitytooneofaFireTechnician.InthiscapacitywewouldrecommendthattheFireTechshaveaninspectionresponsibilityinconjunctionwithcityfireinspectorsandthat,inadditiontotheircodeenforcementduties,theyalsobeinvolvedinthetransferofthisfamiliarizationprocessinthetacticalprefireplanningofkeyoccupancies.
Recommendation:DFDshouldexpandtheresponsibilitiesoftheFireTechnicianpositiontoincludeinspectionandcodeenforcement,includingtheprefireplanningofkeyoccupancies.
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Thisinformation,alongwiththeimpactsofthisinformationontacticalconsiderations,canbediscussedinweeklytrainingsessionswiththevolunteers.Theutilizationofdigitalphotography,schematics,anddiagramsarerecommendedtofurtherenforcethisinformationexchange.
Accreditation
Accreditationisacomprehensiveself‐assessmentandevaluationmodelthatenablesorganizationstoexaminepast,current,andfutureservicelevels.Itisusedtoevaluateinternalperformanceandcomparesthisperformancetoindustrybestpractices.Theintentoftheprocessistoimproveservicedelivery.
TheCenterforPublicSafetyExcellence(CPSE)providesanextensiveevaluationprocess,onafeebasis,tomemberagenciesandwhichultimatelyleadstoaccreditation.CPSEisgovernedbytheCommissiononFireAccreditationInternational(CFAI),aneleven(11)‐membercommissionrepresentingacross‐sectionofthefireservice,includingfiredepartments,cityandcountymanagement,codecouncils,theU.S.DepartmentofDefense,andtheInternationalAssociationofFirefighters.
TheCPSEAccreditationProgramisbuiltaroundthefollowingkeymeasurements:
Determinecommunityriskandsafetyneeds.
Evaluatetheperformanceofthedepartment.
Establishamethodforachievingcontinuousorganizationalimprovement.
Localgovernmentexecutivesfaceincreasingpressureto"domorewithless"andjustifyexpendituresbydemonstratingadirectlinktoimprovedormeasuredserviceoutcomes.Particularlyforemergencyservices,localofficialsneedcriteriatoassessprofessionalperformanceandefficiency.
CPSEaccreditationhasnationalrecognitionandiswidelyusedthroughoutthefireservice.Thekeytoitssuccessisthatitallowscommunitiestosettheirownstandardsthatarereflectiveoftheirneedsandaservicedeliverymodelthatisspecifictotheirneeds.Inaddition,itisaprogramthatisbasedonongoingimprovementandcontinuousmonitoring.TheCPSEaccreditationmodelmaybewellsuitedfortheDoverFireDepartment.
Recommendation:TheDoverFireDepartmentshouldconsiderCPSEaccreditationinthefuture.
ISO
ISOcollectsdataformorethan47,000communitiesandfiredistrictsthroughoutthecountry.ThedataarethenanalyzedusingaproprietaryFireSuppressionRatingSchedule(FSRS).ThisanalysisthenresultsinaPPC(PublicProtectionClassification)scorebetween1and10tothecommunity,
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withClass1representing"superiorpropertyfireprotection"andClass10indicatingthatanareadoesn'tmeettheminimumcriteriasetbytheISO.OnJuly1,2013,therevisedFSRSwasreleased;itaddsanemphasisonacommunity'sefforttolimitlossbeforeanincidentoccurs.
IndevelopingaPPC,thefollowingmajorcategoriesareevaluated:
EmergencyCommunications:Firealarmandcommunicationsystems,includingtelephonesystems,telephonelines,staffinganddispatchingsystems.
FireDepartment:Thefiredepartment,includingequipment,staffing,training,andgeographicdistributionoffirecompanies.
WaterSupply:Thewatersupplysystem,includingtheconditionandmaintenanceofhydrantsandtheamountofavailablewatercomparedtotheamountneedtosuppressfires.
FirePrevention:Programsthatcontainplanreview;certificateofoccupancyinspections;compliancefollow‐up;inspectionoffireprotectionequipment;andfirepreventionregulationsrelatedtofirelanesonarearoads,hazardousmaterialroutes,fireworks,barbecuegrills,andwildland‐urbaninterfaceareas.
PublicFireSafetyEducationPrograms:Firesafetyeducationtrainingandprogramsforschools,privatehomes,andbuildingswithlargelosspotentialorhazardousconditionsandajuvenilefiresetterinterventionprogram.
TheCityofDoverisratedas4/4Y.The4/4Yratingisanoutstandingachievementforacommunitywithsuchafireload,density,andpopulationprotectedbyanall‐volunteerfiredepartment.Inasplitclassificationforacommunitythefirstnumberistheclassthatappliestopropertieswithinfiveroadmilesoftherespondingfirestationand1,000feetofacrediblewatersupply,suchasafirehydrant,suctionpoint,ordryhydrant.Thesecondnumberistheclassthatappliestopropertieswithinfiveroadmilesofafirestationbutbeyond1,000feetofacrediblewatersupply.
Withatotalpointscoreof68.81,theCityofDoverisjust1.19pointsawayfromthe70pointsnecessarytoberatedasa3/3Y.CPSMhasreviewedthemostrecentISOevaluationandbelievesthatthecitycanachieveaClass‐3/3Yratingwithminimaleffort.
Recommendations:DovershouldrequestfromISOareevaluationofitsAugust2015reviewaftermakingadjustmentsinitsfirehydranttestingprocessandthetransferoffiredispatchingtoKentCounty.
InthemostrecentISOreviewthecitydidnotreceivethefullallotmentofpointsintheareasofEmergencyCommunicationsandtheWaterSupplysection.InEmergencyCommunications(440)thecityreceivedonly5.81pointsoutofatotalof10pointsavailable.PointdeductionsoccurredbecauseoftheEmergencyReportingprocess(1.5points),thenumberofTele‐Communicators(1.64points),andthenumberofDispatchCircuits(1.05points).IntheWaterSupplysection,specifically,inHydrantInspectionandFlowTesting(631),thecityreceived4.8pointsoutofatotalavailableof7points.IfthecitymovesitsfiredepartmentdispatchingservicetotheKentCountyCommunicationsCenter,andmakesadjustmentsinthefrequencyandrecordkeepingforits
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hydranttesting,webelievethatasufficientpointincreasecanresultthatwillincreasetheoverallrating.ISOisverycooperativeinattemptingtoimproveonrecentreviewsandoftenentersintoaremediationplan,ifrequestedbyajurisdiction.CPSMbelievesthatthecityshouldcontactISOandrequestareconsiderationofthemostrecentrating.
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Section 8. Essential Resources
Fire Prevention, Code Enforcement, Public Education, and
Investigations
Firepreventionisafunctionwithinthecity’splanningdepartment.Firecodeenforcement,fireplansreview,andinspectionactivitiesaretheresponsibilityofthecity’sFireMarshalandtwo(2)DeputyFireMarshals.Thisofficeisresponsiblefornearly574annualinspectionsatareabusinesses,institutionaloccupancies,publicofficebuildings,restaurants,andmultifamilyresidentialproperties.Thisofficeisalsochargedwiththeplansreviewprocess,primarilyinthereviewofnewoccupanciesthatrequirefireprotectionsystemsorfirealarmsystems.TheFireMarshalworkscloselywiththeBuildingOfficialinthesiteplanreviewprocess,preconstructionconferencesforlargerdevelopmentsandsubdivisionconstruction,andegressissues.Theyarealsoinvolvedintheissuanceofcityoccupancylicenses.CPSMwasadvisedthatbecauseoftheworkload,theFireMarshal’sofficeisonlyabletocompleteapproximately50percentoftherequiredannualoccupancyinspections.
ThereisnodirectorganizationalconnectionbetweentheDoverFireDepartmentandtheOfficeoftheFireMarshal,althoughoutstandingrelationshipsexistbetweenthetwoagencies.Theabilitytobridgefiresuppression,firecodeenforcement,andpubliceducationisessentialforsuccessfulfirepreventioninthecommunity.
Recommendation:Dovershouldconsiderthere‐assignmentoftheFireMarshal’sOfficeandtheirfirecodeenforcementdutiesundertheFireDepartment’sEmergencyServicesManager.
CPSMbelievesthatthedutiesoftheFireMarshal’sofficearemorecloselyalignedwiththeFireDepartmentthantheplanningdepartment.ThoughitisimportantthattherebeacloseworkingrelationshipbetweentheBuildingOfficialandtheFireMarshal,theday‐to‐daydutiesoffirepreventionandlifesafetyareaFireDepartmentfunction.Fromthestandpointofoccupantandemergencyrespondersafety,thefocusoftheFireMarshalgoesbeyondtheinitialconstructionanddesignofanoccupancy.Thefireinspectionprocessandfirecodeenforcementeffortsaremaintainedthroughoutthelifecycleofthebuildingandwithitschangingoccupants.Annualfireinspectionsensurethatthesesystemsareoperableandthatstorageandegresssystemsaremaintainedasdesignedandpermitted.
Firesuppressionandresponse,althoughnecessaryinminimizingpropertydamage,havelittleimpactonpreventingfires.Rather,publicfireeducation,fireprevention,andbuilt‐infireprotectionandnotificationsystemsareessentialelementsinprotectingcitizensfromdeathandinjuryduetofire.Thecitycurrentlyutilizesthe2009InternationalFireCode,whichisthecoderequiredtobeenforcedunderstateguidelines.Wehavebeenadvisedthatthestateisintheprocessofadoptingthe2015InternationalCodeCouncil(ICC)InternationalFireCodeandwhenthisoccursitwillbeappliedinDover.
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Automaticfiresprinklershaveproventobeveryeffectiveinreducingfirelossandminimizingfiredeathsinresidentialstructures.Manycommunitieshavebeenreluctanttoimposecodeprovisionsthatrequiretheseinstallations.The2015ICCInternationalFireCodeincludestherequirementforautomaticfiresprinklersinsinglefamilyandduplexresidentialstructures.GiventhevolunteeroperationsutilizedinDover,CPSMbelievesitisessentialthatwhenadoptingthe2015ICCInternationalFireCode,thecityshouldmaintaintheresidentialfiresprinklerrequirement.
Recommendation:TheCityofDovershouldincludetheresidentialfiresprinklerrequirementswhenitadoptsthe2015InternationalCodeCouncil(ICC)InternationalFireCode.
AccordingtotheNFPA,theaveragecostnationallyforinstallingautomaticfiresprinklersinnew,singlefamilyresidentialstructuresisestimatedtobe$1.61persquarefoot.32Fora2000square‐foothome,theestimatedcostwouldbeapproximately$3,220.Thiscanbelessthanthecostofgranitecountertopsoracarpetingupgrade.Inaddition,manyhomeownerinsurancepoliciesprovideadiscountforhomesequippedwithresidentialfiresprinklers.GiventhelimitedresourcesavailableforfiresuppressioneffortsintheDoverservicearea,CPSMbelievesthatthecityshouldincludeinits2015firecodeadoptiontherequirementforautomaticfiresprinklersinallnewsinglefamilyandduplexresidentialstructures.
TheDoverFireDepartmentplaysasignificantroleinfirepreventionefforts,mainlythroughpublicfiresafetyeducationintheannual“OpenHouse”duringFirePreventionWeekeachOctober.Membersofthefiredepartmentroutinelyrespondthroughouttheyeartorequestsfromschools,civicgroups,andthecommunitytoseethedepartment’sfireapparatus.Departmentmembersreviewbasicfiresafetywiththepublicsuchasexitdrillsinthehome;stop,dropandroll;andchangingsmoke/carbonmonoxidedetectorbatteriesinthespringandfall.Thesepublicfiresafetyeffortsareabestpractice.ThecityFireMarshalhaslimitedstaffingtoperformthepublicfiresafetyeducationfunction,butdoesrespondtorequestsforspecificevents,particularlyinvolvingthebusinesscommunity.
FireinvestigationsareconductedbythecityFireMarshal.TheFireMarshaliscertifiedtotheNFPA1031and1033level,withfulllawenforcementauthority.Histwodeputieshaveresponsibilitytoconductinitialoriginandcauseinvestigations,butdonothaveallofthesametraining,certifications,orauthority.InourdiscussionstherewereissuesraisedregardingtheneedtoobtainlawenforcementcertificationsfortheDeputyFireMarshals.Withthecurrentfireinvestigationworkload,CPSMdoesnotbelievethatobtainingtheadditionallawenforcementcertificationsarewarrantedatthistime.
32NFPA,“CostofInstallingResidentialFireSprinklersAverages$1.61perSquareFoot”Quincy,MA:September11,2008.
Operational and Administrative Analysis, Dover Fire Department page 80
Education and Training Programs
Educationandtrainingprogramscreatethecharacterofafireserviceorganization.Agenciesthatplacearealemphasisontheirtraininghaveatendencytobemoreproficientincarryingoutday‐to‐dayduties.Theprioritizationoftrainingalsofostersprofessionalismandteamworkandinstillsprideintheorganization.Aneffectivefiredepartmenttrainingprogrammustcoveralloftheessentialelementsinthedepartment’scoremissionsandresponsibilities.Theprogrammustincludeanappropriatecombinationoftechnical/classroomtrainingandmanipulativeorhands‐on/practicalevolutions.Mostofthetraining,butparticularlythepracticalhands‐ontrainingevolutions,shouldbedevelopedbaseduponthedepartment’sownoperatingprocedures.Itisalsoimportantthatalltrainingevolutionsarereflectiveofthoseacceptedpracticesandindustrystandards.
TheDoverFireDepartmenthasaverygoodtrainingprogramandthereisadedicatedeffortfocusedonawidearrayoftrainingactivities.ThetrainingfunctionsoftheDFDareprimarilyhandledbytwo(2)oftheassistantfirechiefswhoalsoserveasthetrainingofficers.One(1)ofthemhandlesthegeneralfire‐relatedtrainingwhiletheotherfocusesondrivertraining.
Newmembersofthedepartmentreceiveabasicintroductiontothedepartmentanditsoperationsbyoneofthecaptainswhoservesastheorientationofficer.Attheconclusionofthisprocesstheprobationarymemberisrequiredtosuccessfullycompleteawrittentest.ThisisacommendableeffortthatCPSMconsidersabestpractice.AtthispointthepersonisconsideredtobeaFireFighter‐I(FF‐1),whocanrideinthe“hydrant”seat,workingunderthesupervisionoftheofficer.
Therearenostatestatutes/regulationsorlocalordinancesthatspecifyanyfiredepartmenttrainingorcertificationrequirements.Fromaregulatoryperspectivealltrainingisvoluntary.However,allDoverFireDepartmentmembersarerequired(bytheVolunteerAssociation)tocompletefourbasicfirefighterclassesthatareeach36hoursinlengthforatotalof144hoursoftraining.Theseclassesinclude:
BasicFirefighting.
StructuralFirefighting.
VehicleRescue.
HazardousMaterials.
OnceanindividualhassuccessfullycompletedthesecoursestheyareconsideredtobeaFF‐II,whichthenallowsthemtoutilizeSelfContainedBreathingApparatus(SCBA)andenteraburningbuildingorotherhazardousenvironmentsintheaccompanimentofaFF‐III.InordertoachieveFF‐IIIstatus,andbepermittedtorideinanyseatontheapparatus,includingtheofficer’sseat,theindividualneedstocompleteadditionalstructuralfirefightingtraining(sixhours)afterwhichtheyareevaluated.CPSMwasadvisedthattherewerenonewmembersofthedepartmentwhoachievedFF‐IIIqualificationin2015.
Operational and Administrative Analysis, Dover Fire Department page 81
Recommendation:TheDoverFireDepartmentshouldrequireallprospectivefirefighterstomeetthetrainingqualificationsoftheNationalFireProtectionAssociation(NFPA)Standard1001,StandardforFirefighterProfessionalQualificationsforFirefighterIandII.
NFPA1001isanationallyrecognizedminimumfirefightertrainingcurriculumutilizedbynumerousstateregulatoryorganizations.TheDelawareStateFireSchoollocatedinDoverconductsperiodicwrittenandpracticaltestingopportunitiesforthistraining.CPSMsuggeststhattheFirefighter‐Irequirementbecompletedwithinone(1)yearofjoiningthedepartmentandFirefighter‐IIwithintwo(2)yearsorpriortothecompletionoftheprobationaryprocess.
TrainingwithintheVolunteerAssociationistypicallyconductedforthree(3)hours,three(3)Tuesdaynightseachmonth.However,verylittletrainingisconductedduringthesummer,fromlateJunethroughlateSeptember.Althoughtheremaybemoredemandsonthetimeofvolunteerpersonnelduringthesummermonths,thispracticecreatesathree‐monthgapintrainingactivitieswhichisnotconducivetooverallreadiness.CPSMbelievesthatfiredepartmenttrainingshouldbeconductedyear‐round.
Recommendation:TheDFDtrainingprogramshouldberevisedinordertoscheduletraininganddrillsthroughouttheyear.
Probationarymembersofthedepartmentarerequiredtocompleteaminimumof36hoursoftrainingannuallyduringtheirfirsttwo(2)years.Memberswhoareconsideredtobe“active”arerequiredtocomplete21hoursoftrainingannuallyforfive(5)years.Afterfiveyearsofmeetingtheseandothercompanyrequirementsmembersareconsideredtobe“life”membersandallmandatorytrainingparticipationrequirementsarewaived.CPSMbelievesthatthistrainingrequirementshouldbechanged.Allpersonnelwhoarepermittedtorespondtoemergencyincidentsshouldberequiredtotrainonaregularbasis.
Recommendation:TheDFDshouldrevisetheongoingtrainingrequirementsforallactivemembers(includinglife‐members)toensurethatskillsandproficiencytrainingiscarriedouttosufficientlyinsurefirefighterreadinessandsafety.
Itisourbeliefthatarealisticgoalforasuitabletrainingprogramwouldbetoprovideseventy‐two(72)hoursoftrainingpermemberperyear(anaverageofsix(6)hourspermonth).Allpersonnelshouldberequiredtocompletecertainmandatorytraining,andparticipateinanestablishedminimumnumberoftrainingsessionsortraininghoursinordertobeallowedtorespondtoemergencyincidents.
Thedepartmentdoesnothaveanytypeofformalofficertrainingortrainingrequirementsforfireofficers.Personnelwhohavecompletedthefourbasicfirefightertrainingclassesarepermittedtorunforofficerpositionsintheannualcompanyelections.Therearenoprerequisitesforpursuingofficerappointmentsincludingjobexperience,timeingraderequirements,orincidentcommandorsupervisorytraining.Inaddition,duetotheannualelectionprocess,themake‐upoftheofficercorpscouldchangeonaregularbasis.Onceelectedtotheirrespectivepositionsofficersdonot
Operational and Administrative Analysis, Dover Fire Department page 82
haveanyadditionaltrainingorcertificationrequirementsnecessarytomaintaintheirpositionsotherthanbeingsuccessfulinthefollowingyear’selections.
Recommendation:Personnelseekingtobecomeanofficershouldberequiredtostartattherankofcaptainandserveineachsuccessiverankforaminimumperiodoftimebeforeseekingahigheroffice
AlthoughseveralfiredepartmentofficersarecertifiedasfireofficersinaccordancewithNationalFireProtectionAssociation(NFPA)Standard1021:StandardforFireOfficerProfessionalQualifications,thisisnotarequirementtoeitherseekorretainanofficerposition.TheNFPAstandardsidentifynumerousskillstoassistindeterminingofficerqualifications.
Recommendation:TheDoverFireDepartmentshouldmandatethatallofficersparticipateinadditionalofficer‐relatedtrainingeachyearinordertobeeligibletoretaintheirposition.
Thereareanumberofvaluableofficertrainingprogramsavailableincludingthosethatfocuson;firefightingstrategyandtactics,incidentmanagement,scenesafety,leadershipandmanagementtraining,teambuilding,incidentreporting,buildingconstruction,publiceducation,companyinspections,etc.
Theabilitytotrainproperlyrequiressufficientfunding.Thisfundingisneededfortrainingmaterials,books,trainingvideoprograms,on‐linesubscriptions,tuitioncosts,andtheuseofoutsideinstructors.Thecitycurrentlybudgetsapproximately$7,000peryearfortrainingrelatedactivities.Withanactivemembershipofapproximatelyeighty(80)membersitisimportantthattheutilizationoftrainingdollarsissufficienttomeettheorganization’sneeds.
Recommendation:TheDFDshoulddevelopanannualtrainingbudgetthatidentifiestheneededtrainingforitsmembershipandtheassociatedcostsforeachelementofthetrainingprogram.
TheDFDdoesnotsubscribetoanyfirefightertrainingservicesorresourcesthatwouldpermitthemostup‐to‐dateinformationandtrendstobereadilyavailabletomembers.Thedepartmenttraininglibraryisalsolimitedinscope.CPSMbelievesthatannualtrainingfundsshouldbeutilizedtoupgradetrainingresources,includingmanuals,DVDs,andfiretrainingsubscriptions.
Operational and Administrative Analysis, Dover Fire Department page 83
Internal Communications
Effectivecommunicationssystemsarethekeytosuccessfuloperationsinemergencyservicesorganizations.Standardoperatingprocedures(SOPs)/standardoperatingguidelines(SOGs)andotherordersarecriticaltothemissionofconsistent,effective,andsafeoperations.Thesepoliciesareintendedtoensurethatconsistencyandsafetyareconsideredinalloperations.Withoutthemthereisatendencyto“freelance”andpersonnelmaynotallbeonthe“samepage”regardingawiderangeofemergencyandadministrativeoperations.
Recommendation:UnderthedirectionoftheEmergencyServicesManager,theDFDshouldformacommitteecomprisedofacross‐sectionofthedepartment’smembershiptodevelopstandardoperatingguidelines(SOGs).
TheDoverFireDepartmentshouldalsoconsiderexpandingitswrittencommunicationssystemtoincludeTrainingBulletins,whichwouldbeissuedtoserveasreferencewithregardtotestedandapprovedmethodsofperformingtasks,andSafetyBulletins,whichareissuedtoserveasreferenceswithregardtogeneralandspecificsafetyandhealthissues.
Thedepartmentshouldalsodevelopaneffectivesystemforensuringthatanynewstandardoperatingguidelines,trainingbulletins,andsafetybulletinsaredistributedtoallpersonnelandstations.Electroniccommunicationsishighlyrecommendedasthemethodofchoicefordistributingdepartmentalcommunicationsanddocuments.AllcityanddepartmentpoliciesanddepartmentSOGsshouldbepostedonthedepartmentIntranet,inbothstations,andallpersonnelshouldberequiredtoreviewthisinformationandacknowledgetheirreceiptandunderstandingofit.AllrevisionsshouldalsobepostedineachstationandontheIntranetande‐mailedtoeverymember.
TheCityofDovershouldensurethatallfiredepartmentpersonnelarefamiliarwithapplicablecitypoliciesandthattheseareincludedintheannualtrainingcurriculum.
Emergency Management/COOP/Hazard Mitigation
EmergencymanagementintheCityofDoveriscoordinatedbyastaffmemberwhoservesinadual‐roleasthecity’sPublicAffairsCoordinatorandEmergencyManagementCoordinator.Thesepositionswereconsolidatedin2012asacost‐savingmeasureinresponsetobudgetconstraints.TheincumbenthasbeenanactiveparticipantontheCityManager’semergencymanagementteamandhastrainedtotheMasterExercisePractitioner(MEP)levelinaccordancewiththefederalgovernment’sHomelandSecurityExerciseandEvaluationProgram(HSEEP).WhiletheincumbentisqualifiedtoserveastheEmergencyManagementCoordinator,theadditionaldutiesassociatedwithpublicaffairsandtheresponsibilitiesinvolvedinmanagingthecity’sambulanceprovidercontract,iscreatingasignificantworkload.DuringasignificanteventboththefunctionofEmergencyManagementCoordinatorandPublicAffairsCoordinatorwillbeextremelydemandingandCPSMbelieveswillexceedthecapacityofasingleindividual.
Operational and Administrative Analysis, Dover Fire Department page 84
AsrecommendedintheOrganizationalsectionofthisreport,CPSMsuggeststhatthecityreassignthedutiesofEmergencyManagementCoordinatortotheEmergencyServicesManager.WealsorecommendthatthePublicAffairsCoordinatorcontinuetomaintainaleadershiproleinthecity’semergencymanagementprocess,servingasanalternatecoordinatorduringextendedactivationsorduringtheabsenceoftheEmergencyServicesManager.
TheCityofDoverdoesnothaveaContinuityofOperationsPlan(COOP)foreachdepartmentofthecityandaContinuityofGovernment(COG)planforthecityasawhole.Thepurposeofcontinuityofoperationsplanningistoensurethatessentialcityservicesareprovidedinthewakeofcatastrophicordisruptiveevents.
Recommendation:TheCityofDovershoulddevelopContinuityofOperationsPlans(COOP)foreachdepartmentandaligntheplanswithanoverallContinuityofGovernmentPlan(COG).
Continuityofoperationsplanningistheprocessinwhichgovernmentformallyreviewsandmakescontingencyplansintheeventthatgovernmentcannolongeroperateundernormalconditions.COOPlooksatthepotentialinabilityofalocalgovernmenttoutilizekeypublicbuildings,includingfirestationsorpolicestations,cityhall,orotherkeystructures.Theplanningprocessidentifiesalternativesitesthatcouldbeutilizedifthesefacilitiesareincapacitated.COOPalsolooksatcontingenciesifcurrentservicelevelsmustbecurtailedduetowide‐scaleemployeeabsences.Agenciesareaskedtoformulateplansiftheirworkforceisreducedbyvariousincrements(15percent,25percent,50percent,etc.).Thisexerciserequireseachdepartmenttodefineitsplanforwhichofitsserviceswillcontinueandwhichotherservicescouldbemodifiedoreliminated.TherearenumerousguidesthatprovideinsightsormodelsforCOOP.FEMAprovidesatemplatethatisoftenutilizedtoassistlocalgovernmentandfederalagenciesinthisprocess;itcanbefoundathttp://www.fema.gov/pdf/about/org/ncp/coop/continuity_plan_federal_d_a.pdf
Hazardmitigationistheefforttoreducelossoflifeandpropertybylesseningtheimpactofdisasters.Federal,state,andlocalgovernmentsengageinhazardmitigationplanningtoidentifynaturalhazardsthatimpactthem,identifystrategiesandactivitiestoreduceanylossesfromthosehazards,andestablishacoordinatedapproachtoimplementingtheplan,takingadvantageofawiderangeofresources.Mitigationplansarekeytofederal,state,andlocalgovernments’effortstobreakthecycleofdisasterdamage,reconstruction,andrepeateddamage.
Developinghazardmitigationplansenablesfederal,state,andlocalgovernmentsto:
Increaseeducationandawarenessaroundthreats,hazards,andvulnerabilities.
Buildpartnershipsforriskreductioninvolvinggovernment,organizations,businesses,andthepublic.
Identifylong‐termstrategiesforriskreductionthatareagreeduponbystakeholdersandthepublic.
Operational and Administrative Analysis, Dover Fire Department page 85
Identifycosteffectivemitigationactions,focusingresourcesonthegreatestrisksandvulnerabilities.
Alignriskreductionwithothercommunityobjectives.
Communicateprioritiestopotentialsourcesoffunding.
TheCityofDover,asapoliticalsubdivisionofKentCounty,shouldworkwiththecountytoensurethathazardmitigationstrategiesandinvestmentsmeettheneedsofthecity.
Recommendation:TheCityofDovershouldensurethatthehazardmitigationeffortsofKentCountyarealignedwiththeneedsofthecityandshouldidentifythosekeyinfrastructureandpublicoutreacheffortsnecessarytoprotectallcityresidents.
Emergency Communications Center (ECC)
TheCityofDoveroperatesitsPublicSafetyAnsweringPoint(PSAP)attheDoverPoliceDepartment.911callsthatoriginatefromlandlineswithinthecityarereceivedatthePoliceCenter.FirecallsthatarereceivedbythePoliceCenterarethenroutedtotheDoverFireDispatcherwhoislocatedatFireStation1.911callsthatoriginatefromacellulartelephonearefirstreceivedattheKentCounty911Centerandthentransferredtothecity.KentCountyestimatesthatapproximately80percentofallcallsreceivedatitsCenteraremadefromcellulartelephones.
FirecallsreceivedbytheKentCenterarenottransferred,butinsteadtheFireDispatchCenteriscalledbyadirectphonelineandtheinformationistransferredviavoicecommunications.ThisisbecausetheFireDispatchCenterisunabletoreceivetheANI/ALI(automatednameinformation/automatedlocationinformation)functionofthe911system.TheFireDispatchCenterisnotacertifieddispatchcenterundertheNationalAcademyofEmergencyDispatch(NAED).UponreceivingacalltheFireDispatcherwillnotifythevolunteerpersonnelviathepagingsystemandthencoordinatetheradiotrafficoftherespondingunits.IfadditionalassistanceoutsidetheCityofDoverisnecessary,theFireDispatchermustthencalltheKentCountyCenterandrequestmutualaidassistancefromsurroundingcommunities.
TheKentCountyDepartmentofPublicSafetyEmergencyCommunicationsCenterdispatchesallfireandEMSagenciesinKentCounty,exceptfortheDoverFireDepartment.TheCenterdispatchesfor17firedepartments,14BLSdepartments,andacountywideparamedicdepartment;ithas18dispatchconsolepositions.TheCenteralsodispatchesPrimeCareambulanceunits.TheKentCenteristheback‐upemergencycommunicationscenterfortheDoverFireandPoliceDepartments.
Uponreviewofthemultipledispatchoperationsandtheredundancythatwasobserved,CPSMrecommendstheconsolidationoftheDoverFireDispatchdutiesintoKentCounty.ThiswouldeliminatetheneedtotransfercallstoandfromtheDoverFireCenter.Inaddition,theDoverfiredispatchfunctionisstaffedwithone(1)person,whichleavesnoredundancyformultiplecalls.This
Operational and Administrative Analysis, Dover Fire Department page 86
situationiscompoundedwiththeaddedresponsibilityofthesinglefiredispatcherinhandlingbothincomingtelephonecallsandtalkingviaradiotorespondingunits.
Recommendation:TheCityofDovershouldtransferitsfiredispatchingdutiestotheKentCounty911CommunicationsCenter.
TherecentISOevaluationelevatedanumberofdeficienciesinthecurrentfiredispatchoperationsandCPSMbelievesthatthetransferofthefiredispatchoperationstotheKentCountyCenterwilladdresstheseconcerns.Inaddition,byeliminatingthedispatchingdutiesforthecurrentFireDispatchers,CPSMbelievesthatanumberofsupportfunctionsmaybeaddressed,particularlyinthecoordinationofapparatusrepairs,prefireplanning,recordsmanagement,emergencyplanning,andtheoversightofambulanceoperations.
Operational and Administrative Analysis, Dover Fire Department page 87
Section 9. Data Analysis
Introduction
ThisdataanalysiswaspreparedasakeycomponentofthestudyconductedbytheCenterforPublicSafetyManagement,LLC(CPSM)oftheDoverFireDepartment(DFD).ThisanalysisexaminesallcallsforservicebetweenJuly1,2014,andJune30,2015,asrecordedintheDoverFireDepartmentCADsystem.
Thisanalysiscontainsfoursections:thefirstsectionfocusesoncalltypesanddispatches;thesecondsectionexplorestimespentandworkloadofindividualunits;thethirdsectionpresentsanalysisofthebusiesthoursinayear;andthefourthsectionprovidesaresponsetimeanalysisofthefirstarrivingon‐sceneDFDunits.
Thedepartmentutilizesfive(5)engines,two(2)ladders(includingone(1)aerial),two(2)specialtybrushunits(includingoneRTV),one(1)heavyrescue,two(2)utilitytrucks,one(1)boat,one(1)foamunit(trailer),andtwo(2)commandcars.
Duringthestudyperiod,thedepartmentrespondedto991calls.Thetotalcombinedyearlyworkload(deployedtime)forallDFDunitswas966hours.TheaveragedispatchtimeofthefirstarrivingDFDunitwas1.3minutes,andtheaverageresponsetimeofthefirstarrivingDFDunitwas8.1minutes.The90thpercentiledispatchtimewas3.3minutesandthe90thpercentileresponsetimewas12.1minutes.
Methodology Inthisreport,weanalyzecallsandruns.Acallisanemergencyservicerequestorincident.Arunisadispatchofaunit.Thus,acallmightincludemultipleruns.
WereceivedCADdatafortheDoverFireDepartmentalongwithitsNationalFireIncidentReportingSystem(NFIRS)data.WefirstremovedCADcallstowhichnoDFDunitrespondedortowhichadministrativeunits(chiefunits)werethesoleresponders—thisincludescallswhereunitsweredispatchedbutwerecancelledbeforegoingenroute.Weexcluded244incidentsthatmetthesecriteriafromthisreport.
Operational and Administrative Analysis, Dover Fire Department page 88
Aggregate Call Totals and Dispatches
Inthisreport,eachcitizen‐initiatedemergencyservicerequestisacall.Duringtheyearstudied,Doverrespondedto991calls.Ofthese,106werestructurefirecallsand69wereoutsidefirecallswithinDover’sjurisdiction.Eachdispatchedunitisaseparate“run.”Asmultipleunitsrespondtoacall,therearemorerunsthancalls.Wereportthedepartment’stotalrunsandworkloadinthesecondsection.
Calls by Type Table9‐1andFigure9‐1showthenumberofcallsbycalltype,averagecallsperday,andthepercentageofcallsthatfallintoeachcalltypecategory.WhiletheDoverFireDepartmentdoesnotprovideambulanceservices,itdoesrespondtoemergencymedicalservice(EMS)callssuchasmotorvehicleaccidents(MVAs),extrications,andrescues.WeincludeMVAsasaseparatecalltypewhileweidentifyallotherEMS‐typecallsgroupedassimply“EMS.”
TABLE 9‐1: Call Types
Call Type Number of Calls Calls per Day Call Percentage
MVA 47 0.13 4.7
EMS 43 0.12 4.3
Structure fire 106 0.29 10.7
Outside fire 69 0.19 6.9
Hazard 115 0.32 11.6
False alarm 355 0.97 35.8
Good intent 127 0.35 12.8
Public service 113 0.31 11.4
Subtotal 975 2.67 98.2
Cancelled 16 0.04 1.6
Total 991 2.72 100.0
Operational and Administrative Analysis, Dover Fire Department page 89
FIGURE 9‐1: Calls by Type
Observations:
Firecallsfortheyeartotaled975,averaging2.7perday.
Structureandoutsidefirescombinedtotaled175calls,averagingonecallevery2.1days.
Structurefires(106calls)accountedfor11percentoftotalcalls.
Outsidefires(69)accountedfor7percentoftotalcalls.
Falsealarms(355)accountedforthelargestpercentageofcallsat36percent.
Operational and Administrative Analysis, Dover Fire Department page 90
Calls by Type and Duration Table9‐2showsthedurationofcallsbytypeanddurationusingfourdurationcategories:lessthan30minutes,30minutestoonehour,onetotwohours,morethantwohours.
TABLE 9‐2: Calls by Type and Duration
Call Type
Less than
One‐half Hour
One‐half Hour
to One Hour
One to
Two Hours
More than
Two Hours Total
MVA 33 12 2 0 47
EMS 38 4 1 0 43
Structure fire 54 37 8 7 106
Outside fire 48 19 2 0 69
Hazard 64 42 8 1 115
False alarm 324 29 2 0 355
Good intent 100 23 4 0 127
Public service 67 33 11 2 113
Subtotal 728 199 38 10 975
Cancelled 15 1 0 0 16
Total 743 200 38 10 991
Observations:
Overall
95percentofcalls(943)lastedlessthanonehour.
Fourpercentofcalls(38)lastedbetweenoneandtwohoursand1percent(10)lastedmorethantwohours.
Onaverage,0.1callsperday,orapproximatelyonecalleveryeightdays,lastedmorethanonehour.
Structure Fires
86percentofstructurefires(91)lastedlessthanonehour;8percent(8)lastedbetweenoneandtwohours;and7percent(7)lastedmorethantwohours.
Outside Fires
97percentofoutsidefires(67)lastedlessthanonehour;3percent(2)lastedbetweenoneandtwohours;andnonelastedmorethantwohours.
False Alarms
99percentoffalsealarms(353)lastedlessthanonehour,and1percent(2)lastedmorethananhour.
Operational and Administrative Analysis, Dover Fire Department page 91
Average Calls per Day and per Hour Figure9‐2showsthemonthlyvariationintheaveragedailynumberofcallshandledbytheDFDduringtheyearstudied.Similarly,Figure9‐3illustratestheaveragenumberofcallsreceivedeachhouroftheday,shownintwo‐hourincrements.
FIGURE 9‐2: Average Calls per Day, by Month
FIGURE 9‐3: Calls by Hour of Day
Operational and Administrative Analysis, Dover Fire Department page 92
Observations:
Averagecallsperdayrangedbetween1.9and4.0.
September2014hadthelowestaveragecallsperday(1.9)whileJune2015hadmorethandoublethatnumberofcallsperday,onaverage(4.0),whichwas110percenthigherthanSeptember.
○ MultiplelargemusicandculturalfestivalswereheldinDoverinJune2015,drawingcrowdsof10,000upto90,000.TheseincludedPositivelyDover,theBigBarrelCountyMusicFestival,andtheFireflyMusicFestival.
○ TheFireflyMusicFestivaldrewthelargestcrowdswith80,000to90,000peopleattendingthefour‐dayeventheldJune18throughJune21.
○ FourofJune’ssixbusiestdays(7ormorecalls)werethefourdaysoftheFireflyMusicFestival.OneadditionaldayofJune’ssixbusiestdayswasthelastdayoftheBigBarrelCountryMusicFestival(June28).
○ Thebusiestdayofthestudyperiodhad15callsandoccurredonJune21,thelastdayoftheFireflyMusicFestival.
Averagecallsperhourrangedbetween0.04(between2:00a.m.and6:00a.m.)and0.19(between6:00p.m.and8:00p.m.).
Overall,10:00a.m.to10:00p.m.werethebusiesttimeswithbetween0.13and0.19callsperhour,whichisthreetofivetimesmorethantheslowestperiodof2:00a.m.to6:00a.m.
Operational and Administrative Analysis, Dover Fire Department page 93
Units Dispatched to Calls Table9‐3andFigure9‐4detailthenumberofDFDunitsdispatchedtocallsoverallandbrokendownbycalltype.
FIGURE 9‐4: Number of Dover Fire Department Units Dispatched to Calls
TABLE 9‐3: Number of Units Dispatched to Calls
Call Type
Number of Units
Total One Two Three
Four or
More
MVA 10 11 19 7 47
EMS 30 7 5 1 43
Structure fire 20 19 27 40 106
Outside fire 31 18 13 7 69
Hazard 40 25 35 15 115
False alarm 96 130 95 34 355
Good intent 47 38 23 19 127
Public service 72 20 15 6 113
Subtotal 346 268 232 129 975
Cancelled 8 6 2 0 16
Total 354 276 234 129 993
Percentage 35.6 27.8 23.6 13.0 100.0
Operational and Administrative Analysis, Dover Fire Department page 94
Observations:
Overall
Onaverage,2.2unitsweredispatchedpercall.
Oneunitwasdispatched36percentofthetime,twounitsweredispatched28percentofthetime,threeunitsweredispatched24percentofthetime,andfourormoreunitsweredispatched13percentofthetime.
Structure Fires
Threeunitsweredispatchedtostructurefires25percentofthetime,andfourormoreunitsweredispatched38percentofthetime.
Outside Fires
Threeunitsweredispatchedtooutsidefires19percentofthetime,andfourormoreunitsweredispatched10percentofthetime.
False Alarms
Threeunitsweredispatchedtofalsealarms37percentofthetime,andfourormoreunitsweredispatched10percentofthetime.
Operational and Administrative Analysis, Dover Fire Department page 95
Workload by Individual Unit—Calls and Total Time Spent
Inthissection,theworkloadofeachunitisreportedintwoways:deployedtimeandruns.Adispatchofaunitisdefinedasarun;thus,onecallmightincludemultipleruns,whichresultsinahighertotalnumberofrunsthantotalnumberofcalls.Thedeployedtimeofarunisfromthetimeaunitisdispatchedthroughthetimeaunitiscleared.
Runs and Deployed Time – All Units Deployedtime,alsoreferredtoasdeployedhours,isthetotaldeploymenttimeofalltheunitsdeployedonallcalls.Table9‐4showsthetotaldeployedtime,overallandbrokendownbytypeofcall,forDFDunitsduringtheyearstudied.
TABLE 9‐4: Annual Runs and Deployed Time by Call Type
Call Type
Avg. Deployed
Min. per Run
Annual
Hours
Percent of
Total Hours
Deployed
Min. per Day
Total
Annual Runs
Runs
per Day
MVA 24.7 48.2 5.0 7.9 117 0.3
EMS 17.8 18.7 1.9 3.1 63 0.2
Structure fire 45.5 243.3 25.2 40.0 321 0.9
Outside fire 25.4 58.4 6.0 9.6 138 0.4
Hazard 28.8 125.4 13.0 20.6 261 0.7
False alarm 19.2 251.0 26.0 41.3 785 2.2
Good intent 24.0 109.9 11.4 18.1 275 0.8
Public service 34.6 104.5 10.8 17.2 181 0.5
Subtotal 26.9 959.4 99.3 157.7 2,141 5.9
Cancelled 15.3 6.6 0.7 1.1 26 0.1
Total 26.7 966.0 100.0 158.8 2,167 5.9
Observations
Therewere2,167runsintheyearstudied,resultinginatotal966hoursofdeployedtime.
Onaverage,therewere5.9runsperdayforanaverageof2.6hoursofdeployedtimeperday.
Structureandoutsidefiresresultedin459runswithatotalworkloadof301.7hours,equalto32percentoftotalDFDworkload.
Structurefiresaveraged45.5minutesofdeployedtime.
Outsidefiresaveraged25.4minutesofdeployedtime.
Operational and Administrative Analysis, Dover Fire Department page 96
Workload by Unit Table9‐5providesasummaryofeachunit’sworkloadoverall.Table9‐6andTable9‐7provideamoredetailedviewofworkload,showingeachunit’srunsbrokeoutbycalltype(Table9‐6)andtheresultingdeployedtimebycalltype(Table9‐7).Someunitsrespondedtofewcallsduringtheyear.Ratherthanshowingeachoftheseunitsindividually,weanalyzedtheirworkasagroupreferredtoas“other”inthetables.The“other”categoryincludestheunits:ACC1,FT,HRT,andSpecOps1.
TABLE 9‐5: Call Workload by Unit
Unit Type Unit ID
Avg. Deployed
Min. per Run
Total
Annual Hours
Avg. Deployed
Min. per Day
Total
Annual Runs
Avg. Runs
per Day
Brush B1 17.0 3.4 0.6 12 0.0*
B9 18.0 31.5 5.2 105 0.3
Engine E2 27.8 199.4 32.8 431 1.2
E3 29.0 63.8 10.5 132 0.4
E4 27.2 164.4 27.0 363 1.0
E6 25.7 120.7 19.8 282 0.8
E7 32.7 20.7 3.4 38 0.1
Ladder L1 26.1 235.8 38.8 542 1.5
L2 26.0 50.6 8.3 117 0.3
Rescue R1 33.7 58.3 9.6 104 0.3
Utility U1 24.2 14.9 2.5 37 0.1
Other Other 36.3 2.4 0.4 4 0.0*
* These units had so few runs that their average runs per day, rounded to the nearest one‐tenth, appears to be zero.
Operational and Administrative Analysis, Dover Fire Department page 97
TABLE 9‐6: Total Annual Runs by Call Type and Unit
Unit Type Brush Engine Ladder Rescue Utility Other
Unit B1 B9 E2 E3 E4 E6 E7 L1 L2 R1 U1 Other
MVA – 1 30 11 31 10 2 – – 30 1 1
EMS 1 21 5 1 7 4 – 9 3 6 5 1
Structure fire – 2 74 16 51 32 11 83 28 19 5 –
Outside fire 2 31 10 14 34 25 10 6 2 1 2 1
Hazard 1 12 52 11 51 38 4 60 15 14 3 –
False alarm 2 2 183 42 104 108 3 272 44 14 11 –
Good intent 2 16 54 16 49 39 5 63 15 13 3 –
Public service 4 18 21 16 31 19 3 44 10 7 7 1
Cancelled – 2 2 5 5 7 – 5 – – – –
Total 12 105 431 132 363 282 38 542 117 104 37 4
Runs per Day 0.0* 0.3 1.2 0.4 1.0 0.8 0.1 1.5 0.3 0.3 0.1 0.0*
* These units had so few runs that their average runs per day, rounded to the nearest one‐tenth, appears to be zero.
Operational and Administrative Analysis, Dover Fire Department page 98
TABLE 9‐7: Daily Average Deployed Minutes by Call Type and Unit
Unit Type Brush Engine Ladder Rescue Utility Other
Unit B1 B9 E2 E3 E4 E6 E7 L1 L2 R1 U1 Other
MVA – 0.0* 2.0 0.7 2.3 0.7 0.0* – – 2.1 0.1 0.0*
EMS 0.1 0.2 0.3 0.0* 0.5 0.2 – 0.8 0.2 0.3 0.2 0.2
Structure fire – 0.4 9.0 2.3 5.6 4.9 1.3 9.7 2.8 3.5 0.5 –
Outside fire 0.1 2.0 0.6 1.2 2.2 2.0 0.7 0.5 0.1 0.1 0.1 0.0*
Hazard 0.0* 0.6 4.6 0.8 4.1 3.0 0.2 4.7 1.1 1.3 0.2 –
False alarm 0.0* 0.0* 10.4 2.3 4.8 5.2 0.2 14.8 2.2 0.6 0.6 –
Good intent 0.0* 0.7 3.9 0.9 3.4 2.2 0.3 4.5 1.1 0.9 0.1 –
Public service 0.3 1.2 1.8 2.2 3.8 1.3 0.6 3.5 0.8 0.7 0.7 0.2
Cancelled – 0.1 0.2 0.1 0.2 0.3 – 0.2 – – – –
Total 0.6 5.2 32.8 10.5 27.0 19.8 3.4 38.8 8.3 9.6 2.5 0.4
* These units had such low total deployed minutes that average minutes per day, rounded to the nearest one‐tenth, appears to be zero
Observations:
Ladder1madethemostruns(542intotalor1.5perday)andhadthehighesttotalannualdeployedtime(236hoursfortheyearor39minutesperday).
○ Structureandoutsidefiresaccountedfor89oftheseruns(16percent)and62hours(26percent)ofdeployedtime.
○ Falsealarmsaccountedfor272oftheseruns(50percent)and90hours(32percent)ofdeployedtime.
Engine2madethesecondmostruns(431totalor1.2perday)andhadthesecondhighesttotalannualdeployedtime(199hoursfortheyearor33minutesperday).
○ Structureandoutsidefiresaccountedfor84oftheseruns(20percent)and59hours(30percent)ofdeployedtime.
○ Falsealarmsaccountedfor183oftheseruns(42percent)and63hours(32percent)ofdeployedtime.
Operational and Administrative Analysis, Dover Fire Department page 99
Analysis of Busiest Hours
Thereissignificantvariabilityinthenumberofcallsfromhourtohour.Onespecialconcernrelatestotheresourcesavailableforhourswiththeheaviestworkload.Wetabulatedthedataforeachofthe8,760hoursintheyear.Table9‐8showsthenumberofhoursintheyearwheretherewereone,two,orthreecallsduringthehour.
Table9‐9showsthe10one‐hourintervalsduringtheyearwheretherewerethreecalls.
TABLE 9‐8: Frequency Distribution of the Number of Calls
Calls in an Hour Frequency Percentage
0 7,864 89.8
1 809 9.2
2 77 0.9
3 10 0.1
TABLE 9‐9: Top 10 Hours with the Most Calls Received
Hour
Number
of Calls
Number
of Runs
Total
Deployed Hours*
9/14/2014 – 10 p.m. to 11 p.m. 3 12 3.2
7/23/2014 – 11 p.m. to 12 a.m. 3 8 2.1
5/29/2015 – 1 p.m. to 2 p.m. 3 8 3.0
7/24/2014 – 8 p.m. to 9 p.m. 3 7 3.3
2/22/2015 – 12 p.m. to 1 p.m. 3 7 3.4
6/23/2015 – 7 p.m. to 8 p.m. 3 6 2.1
6/30/2015 – 11 p.m. to 12 a.m. 3 6 0.8
6/28/2015 – 8 p.m. to 9 p.m.** 3 5 2.1
6/18/2015 – 2 p.m. to 3 p.m.** 3 3 0.6
6/20/2015 – 1 a.m. to 2 a.m.** 3 3 0.3
* The total deployed hours is time spent responding to calls received in the hour, which may extend into the next hour(s).
** 06/28/2015 was the last day of the Big Barrel Country Music Festival which drew a crowd of 30,000‐ 35,000. 06/18/2015 was the first day of the Firefly Music Festival, which drew a crowd of 80,000‐90,000. 06/20/2015 was the third day of the Firefly Music Festival.
Operational and Administrative Analysis, Dover Fire Department page 100
Observations:
During87hoursintheyear(1percentofallhours),theDFDrespondedtotwoormorecalls.
Approximatelyonceeveryfourdays,therewasonehourduringwhichtwoormorecallsoccurred.
Therewere10hoursintheyear(0.1percentofallhours)wheretheDFDrespondedtothreecalls;therewerenevermorethanthreecallsinanhour.
Ofthese10hours,September14,2014,between10:00p.m.and11:00p.m.,hadthemostruns(12total)withatotalworkloadof3.2hours.Thelongestcallwasastructurefirethatlasted21minutes.
July23,2014,between11:00p.m.andmidnightandMay29,2015,between1:00p.m.and2:00p.m.,bothhadthesecondmostruns(eight).ThelongestcallwasapublicsafetycallonMay29thatlastedfor24minutesandtowhichfourunitsweredispatched.
Overlapping Calls Overlappingcallsaredefinedascallsthatstarted(basedondispatchtime)whileanothercallwasstillactive.Intheanalysis,callswithlessthan30secondsofoverlapwereexcluded.Therewere51callsduringtheperiodstudiedthatwereinitiatedwhileoneothercallwasalreadyactive.Onaverage,callsoverlappedfor12.1minutes.Therewerenocallsthatwereinitiatedwhiletwocallswerealreadyactive.
Ofthe51calls,23ofthecalls(47percent)werecompletelyoverlappingwithanothercall,meaningtheystartedandendedwhileanothercallwasactive.Onaverage,thesecallsoverlapped14minutes.Theremaining28overlappingcalls(53percent)partiallyoverlappedwithanothercall,meaningthecalltheyoverlappedwith(firstcall)endedbeforetheoverlappingcall(secondcall)ended.Onaveragethesecallsoverlapped10.3minutes.
Operational and Administrative Analysis, Dover Fire Department page 101
Response Time
Thissectionpresentsresponsetimestatisticsfordifferentcalltypesandunits.
Differenttermsareusedtodescribethecomponentsofresponsetime.Dispatchprocessingtimeisthedifferencebetweenthetimeacallisreceivedandthetimeaunitisdispatched.Turnouttimeisthedifferencebetweendispatchtimeandthetimeaunitisenroute.Traveltimeisthedifferencebetweenthetimeenrouteandarrivalon‐scene.Responsetimeisthetotaltimeelapsedbetweenreceivingacalltoarrivingon‐scene.ThemainfocusinthissectionisthedispatchandresponsetimesofthefirstarrivingDFDunit.
Wetypicallyfocusonemergencycallswherethedepartmentwouldrespondwithlightsandsirens—alsoknownasahotresponse.TheDFDdoesnotrecordthepriorityofacallinitsrecordsmanagementsystem,soalleligiblecallswereincludedinthisanalysis.
Therewere991callsincludedintheanalysesinprevioussections.Thissectionuses940callsandexcludesthe16cancelledcalls,18additionalcallswhereanadministrativeunitwasthefirsttoarrive,and17callswithunreliabledata(e.g.,atwo‐secondtraveltime,aten‐hourdispatchtime,etc.).
Response Times by Type of Call Figure9‐5andTable9‐10showaveragedispatch,turnout,travel,andtotalresponsetimesforthefirstarrivingunits,brokenoutbycalltype.
Table9‐11showsthe90thpercentiletimesbrokenoutinthesamemanner.A90thpercentiletimemeansthat90percentofcallshaddispatch,turnout,travel,ortotalresponsetimesatorbelowthatnumber.
FIGURE 9‐5: Average Response Times of First Arriving Unit, by Call Type
Operational and Administrative Analysis, Dover Fire Department page 102
TABLE 9‐10: Average Response Times of First Arriving Unit, by Call Type
(Minutes)
Call Type Dispatch Time Turnout Time Travel Time Response Time Sample Size
MVA 2.0 1.8 3.2 7.0 42
EMS 1.3 2.7 1.8 5.8 42
Structure fire 1.0 3.4 3.4 7.8 104
Outside fire 2.1 2.0 3.7 7.8 68
Hazard 1.3 3.4 3.3 8.0 111
False alarm 1.0 3.9 3.6 8.5 346
Good intent 1.3 3.1 3.7 8.1 125
Public service 1.6 2.5 4.4 8.5 102
Total 1.3 3.3 3.5 8.1 940
TABLE 9‐11: 90th Percentile Response Times of First Arriving Unit, by Call Type
(Minutes)
Call Type Dispatch Time Turnout Time Travel Time Response Time Sample Size
MVA 5.0 4.5 5.5 10.4 42
EMS 2.5 6.7 4.5 11.0 42
Structure fire 2.2 6.5 5.8 12.2 104
Outside fire 5.5 5.5 6.6 11.1 68
Hazard 3.4 6.8 5.5 12.1 111
False alarm 2.4 7.1 5.8 12.0 346
Good intent 3.3 6.6 6.3 12.3 125
Public service 3.9 5.8 8.3 14.0 102
Total 3.3 6.7 6.1 12.1 940
Operational and Administrative Analysis, Dover Fire Department page 103
Observations:
48calls(5percent)hadadispatchhandlingtimegreaterthan5minutes.
370calls(39percent)hadaturnouttimegreaterthan4minutes.
234calls(25percent)hadatotalresponsetimegreaterthan10minutes.
Averages – First Arriving Unit
Dispatchtime:1.3minutes.
Turnouttime:3.3minutes.
Traveltime:3.5minutes.
Totalresponsetime:8.1minutes.
Structurefireresponsetime:7.8minutes.
Outsidefireresponsetime:7.8minutes.
90th Percentile – First Arriving Unit
Dispatchtime:3.3minutes.
Turnouttime:6.7minutes.
Traveltime:6.1minutes.
Totalresponsetime:12.1minutes.
Structurefireresponsetime:12.2minutes.
Outsidefireresponsetime:11.1minutes.
Operational and Administrative Analysis, Dover Fire Department page 104
Response Times by Hour Averagedispatch,turnout,travel,andtotalresponsetimesbyhourareshowninFigure9‐6andTable9‐12.Thetablealsoshows90thpercentiletimes.
FIGURE 9‐6: Average Response Time of First Arriving Unit, by Hour of Day
Operational and Administrative Analysis, Dover Fire Department page 105
TABLE 9‐12: Average and 90th Percentile Response Times of First Arriving Unit,
by Hour of Day
Hour
Dispatch
Time
Turnout
Time
Travel
Time
Response
Time
90th Percentile
Response Time
Sample
Size
0 1.3 3.3 3.9 8.5 12.0 25
1 1.0 4.8 3.1 8.9 12.7 24
2 2.5 4.5 4.2 11.1 15.3 15
3 1.2 5.3 3.3 9.8 15.8 12
4 2.4 5.5 3.0 11.0 13.9 14
5 0.9 5.5 5.7 12.1 17.3 13
6 2.0 4.8 3.2 10.0 14.0 20
7 0.9 5.3 4.8 11.0 17.1 25
8 1.2 3.4 4.6 9.2 13.9 31
9 1.5 3.5 3.3 8.3 11.5 40
10 1.0 3.2 3.7 7.9 13.0 50
11 1.7 2.9 3.4 8.0 11.8 41
12 1.2 2.9 3.5 7.5 11.0 59
13 1.3 2.7 3.5 7.4 11.5 52
14 2.0 2.3 3.8 8.1 11.3 50
15 1.3 2.4 4.0 7.7 12.1 48
16 1.1 2.9 3.2 7.1 10.5 52
17 1.3 2.5 3.2 7.0 10.4 54
18 0.8 3.0 3.7 7.6 10.8 59
19 1.0 2.8 3.5 7.2 10.2 72
20 1.1 2.8 3.2 7.1 10.3 61
21 1.1 3.6 2.9 7.6 11.0 43
22 1.2 3.0 3.9 8.2 12.1 33
23 1.2 4.0 3.0 8.3 11.8 47
Observations:
Dispatchtimeaveragedbetween0.8minutes(6:00p.m.)and2.5minutes(2:00a.m.).
Turnouttimeaveragedbetween2.3minutes(2:00p.m.)and5.5minutes(4:00a.m.and5:00a.m.).
Traveltimeaveragedbetween2.9minutes(9:00p.m.)and5.7minutes(5:00a.m.).
Totalresponsetimeaveragedbetween7.0minutes(5:00p.m.)and12.1minutes(5:00p.m.).
The90thpercentiletotalresponsetimerangedfrom10.2minutes(7:00p.m.)to17.1minutes(7:00a.m.).
Operational and Administrative Analysis, Dover Fire Department page 106
Response Time Distribution Amoredetailedlookathowresponsetimesaredistributedamongunitsandcalltypesispresentedhere.Table9‐13andFigure9‐7detailhowofteneachunitwasthefirsttoarrivetoacall.Table9‐14givesthecumulativedistributionoftotalresponsetimeforfirstarrivingunit,andFigure9‐8showsthesameinformationforstructureandoutsidefiresonly.
TABLE 9‐13: Number of Total Calls by First Arriving Units
Unit
Structure and
Outside Fire Other Fire Total Percentage
Cumulative
Percentage
L1 63 287 350 37.2 37.2
E2 23 134 157 16.7 53.9
E4 30 127 157 16.7 70.6
E6 20 77 97 10.3 81.0
B9 22 66 88 9.4 90.3
E3 5 35 40 4.3 94.6
U1 4 18 22 2.3 96.9
B1 1 9 10 1.1 98.0
R1 2 7 9 1.0 98.9
E7 1 5 6 0.6 99.6
L2 1 3 4 0.4 100.0
FIGURE 9‐7: Number of Total Calls by First Arriving Units
Operational and Administrative Analysis, Dover Fire Department page 107
TABLE 9‐14: Cumulative Distribution Function (CDF) of Response Time of First
Arriving Unit
Response
Time
(minutes) Frequency
Cumulative
Percentage
0 ‐ 1 0 0.0
1 ‐ 2 13 1.4
2 ‐ 3 20 3.5
3 ‐ 4 19 5.5
4 ‐ 5 33 9.0
5 ‐ 6 69 16.4
6 ‐ 7 81 25.0
7 ‐ 8 125 38.3
8 ‐ 9 128 51.9
9 ‐ 10 110 63.6
10 ‐ 11 108 75.1
11 ‐ 12 84 84.0
12 ‐ 13 55 89.9
13 ‐ 14 39 94.0
14 ‐ 15 21 96.3
> 15 35 100.0
Operational and Administrative Analysis, Dover Fire Department page 108
FIGURE 9‐8: Response Time Distribution — First Arriving Unit
Observations:
Forstructurefires,Ladder1(L1)wasthefirstunitonscenemostoftenwithanaverageresponsetimeof8.1minutes.
Theoverallaverageresponsetimeforthefirstarrivingunittostructurefireswas8.1minutes.
40percentofthetimethefirstunit'sresponsetimewaslessthan7.2minutes.
90percentofthetimethefirstunit'sresponsetimewaslessthan12.1minutes.
Operational and Administrative Analysis, Dover Fire Department page 109
Addendum
TABLE 9‐15: Actions Taken Analysis for Structure and Outside Fire Calls
Action Taken
Number of Calls
Structure Fire Outside Fire
Assistance, other 4 0
Extinguishment by fire service personnel 26 45
Fire control or extinguishment, other 11 10
Information, investigation & enforcement, other 3 3
Investigate 48 7
Investigate fire out on arrival 12 4
Notify other agencies. 2 0
Provide equipment 1 0
Remove hazard 2 0
Salvage & overhaul 6 2
Search & rescue, other 5 0
Ventilate 3 0
Total* 123 71
* Totals are higher than the total number of calls because some calls had more than one action taken.
Observations
Atotalof43structurefirecallswereextinguishedbyfireservicepersonnel,whichaccountedfor41percentofstructurefirecallsinDFD’sjurisdiction.
Atotalof57outsidefirecallswereextinguishedbyfireservicepersonnel,whichaccountedfor83percentofoutsidefirecallsinDFD’sjurisdiction.
Operational and Administrative Analysis, Dover Fire Department page 110
TABLE 9‐16: Fire Loss
Call Type Calls Total Loss Average Loss
Structure Fire 35 $463,350 $13,239
Outside Fire 5 $23,100 $4,620
Good Intent 1 $250 $250
Hazard 9 $14,400 $1,600
Total 50 $501,100 $10,022
Note: This analysis only includes calls with recorded loss greater than 0.
Observations:
Overall
50incidentshadpropertyloss,withanaveragelossamountof$10,022.
Only7incidentsinvolvedanamountexceeding$20,000.
Structure Fires
Outof106structurefirecalls,35hadrecordedloss,withtotalrecordedlossvalueof$463,350andaveragelossof$13,239.
Fivestructurefireshadunder$500inloss,and20hadmorethan$500butlessthan$10,000inloss.
Thesmallestlosswas$100,andthelargestlosswas$100,000
Outside Fires
Outof69outsidefirecalls,fivehadrecordedloss,withtotalrecordedlossvalueof$23,100andaveragelossof$4,620.
Oneoutsidefirehadunder$500inloss,andtheremainingfourhadmorethan$500butlessthan$10,000inloss.
Thesmallestlosswas$100,andthelargestlosswas$10,000.