The Town of Pelham

Fire Department Final Report

The Town of Pelham, in an effort to improve the provision of municipal fire services, retained Bennett Associates to conduct a comprehensive organization and operational review of the management of the fire department and the provision of public safety services including fire suppression, emergency medical response, emergency management, prevention, education and inspection.  This study also took in to consideration the utilization of information management support services.

The report, which follows, summarizes the results of three- (3) months of data collection, meetings with local officials, employees, and client interviews. The analysis of the Pelham Fire Department included current and future operation demands, activity levels, staffing levels, management practices, and  policies.

 It should be emphasized that the purpose of this study was to evaluate an organization , not its individual employees.  While organizational studies tend to be critical in nature, no criticism of individuals is intended, nor should our findings or recommendations imply any. 

 As stated in the Conclusion Section of this Report, we have identified specific areas of improvement for the Board of Selectmen to consider.  These areas of improvement are stated on both a short and long-term basis.  We are mindful that, in our experience, all organizations are in need of continuous improvement.  Our recommendations therefore are directed at making a very good fire service organization better.

 The project team consisted of Donald Jacobs, Project Manager, Fire Chief Michael Cassidy of Holliston, MA, and Fire Chief Brian Duggan of Northampton, MA.  It should be noted that, during the course of the work, the consultants received excellent cooperation from all of the town's employees, especially Mr. Eli Kwartler, member of the Board of Selectmen, Ken Gay, Fire Chief and Ms. Sandra Burgess, Administrative Assistant to the Board of Selectmen in providing us with detailed information and support. 

 Having conducted numerous on-site interviews, group and individual meetings with employees in the Town of Pelham fire department, as well as reviewing relevant financial and organizational data, this report is submitted for consideration and implementation by the Town of Pelham.

 II. SCOPE OF WORK

 The scope of services for this project was to evaluate the Town's Fire Department and how the department interacted with the other components of Public Safety services in Pelham as well as with the communities contiguous to the town. Those communities included Amherst, Leverett, Shutesbury, and Belchertown.  The functional fire department services included: 

·Suppression

·Emergency Medical

·Emergency Management

·Prevention

·Education

·Inspection

·Dispatching

 In addition to examining staffing levels, the project team conducted an assessment of the department’s administrative operations, information management, and technical support services required of each of the functional areas of the department reflecting both current and future demand for administrative services.

 The goal of this study was to identify areas where improvements could be made relating to the efficiency and cost-effectiveness of providing fire services, organization management, utilization of information management support systems, and thereby staffing.

 The "objectives" of this study are to improve the effectiveness of the functional service areas and  the level of department and employee accountability.  The recommendations contained in this report should be measured on how these objectives are impacted.

The project team has developed this Final Report to summarize its findings, conclusions, recommendations, and to identify areas for additional analysis or study as necessary. 

III.    PROJECT METHODOLOGY

A wide variety of data collection and interviewing approaches were utilized to obtain input from management, line staff, and internal customers of the Fire Department.  The data collection and analytical activities included the following:  

·At the beginning of the study, the project team held a series of meetings with the Fire Chief, members of the Board of Selectmen and Administrative Assistant to the Board of Selectmen.  The purpose of these meetings was to clearly establish the goals and objectives of the study, to obtain an overview of the operations of the Town (past and present), and specifically the fire department.  These meetings also provided an opportunity to identify specific areas of concern to the town.  As a result, the project team was able to establish an in depth perspective into important historical, cultural, and operational issues in the provision of public safety services in Pelham.   

·Interviews were conducted with all managers/supervisors and employees of the fire department as well as "internal" clients of the fire department (Police, Inspections, School, DPW, and Finance departments).  Individual and group interviews were conducted with department employees including four- (4) officers of the Fire Department.  In addition, individual interviews were held with members of the Board of Selectmen and the Chairman of the Town’s Finance Committee.  These interviews were focused on gathering data and obtaining an in-depth understanding of the each department interacts with the Fire Department and to further understand specific areas of concern.  

·Confidential employee questionnaires were distributed to every employee in the Department.  Employee surveys were returned to the project team's office for summary and review.  The objective of this task was to identify and develop an understanding of the issues of concern to Fire department employees and to provide them with an opportunity to voice those concerns in a confidential manner.  The results of the employee survey were shared with the employees of the Fire Department. 

·Descriptive summaries of each of the functional areas of the fire department was developed and reviewed with department management.  The purpose of the descriptive summary report was to provide the study team with a sound informational foundation to complete its analyses and to develop final recommendations.

 ·The project team also evaluated the administrative and personnel operations as well as the availability and utilization of information management support systems. Several key questions were asked: 

-  Are information systems in place to provide cost-effective, efficient support service?

-  Are management systems in place to effectively evaluate and measure the work that is being conducted by each functional area of the department and by each employee?

-  Is information available in a timely and accurate manner, and in sufficient detail to support the operational capability of the department, and its ability to provide support to department employees, and service to the public, and outside agencies? 

·Throughout this project, the project team met with Selectmen Kwartler to review the study's progress and to make certain that all issues or concerns would be addressed during the course of the study. 

·To the extent possible, staffing levels and distribution of staffing was evaluated.  However, due to the need to establish a clearly defined Mission Statement for the provision of public safety services in Pelham, a detailed operational and cost analysis was beyond the scope of this engagement. 

·It is recommended that further study is required to complete the organizational and operational changes that are recommended  in this report. 

The project team combined all of the approaches and methods as stated above in developing this final report.  Please note that this report provides prioritized recommendations for the Board of Selectmen and the town to consider on both a short and long-term basis. 

 

IV.    EXECUTIVE SUMMARY: RECOMMENDATIONS

This section provides a summary of the major findings, conclusions, and recommendations included in the body of the final report.  The major recommendations are listed below along with a priority assigned for the implementation of each recommendation.  Recommendation priorities are defined as follows:

 1 = Essential Recommendation: Recommendations requiring immediate action or an

      essential activity to achieve organizational change within the Department.  These

      recommendations should be implemented as soon as possible.

2 =Very Important Recommendations:  These recommendations should be

       implemented within a 12 to 15 month period; and

3 = Useful recommendations.  Implementation of these recommendations would result

      in a better service delivery organization, but should be implemented as time and/or    

      funding allows.

FINDING

RECOMMENDATION

PRIORITY

The provision of public safety services in Pelham lacks a clear and concise Mission Statement.  The functional relationship between public safety service areas and level of staff accountability is in need of immediate improvement.

The Town should reorganize the provision of Public Safety services by combining the Police and Fire departments in to one department to establish a Department of Public Safety under the administrative direction of a Director of Public Safety.

Please see enclosed proposed Public Safety Function Organization Chart (Option I).

1

The department's fee structure has been in effect for more than 10 years as does not reflect the cost of providing inspection and permit services.  There is no town-wide Capital Budget process.

The Town should revise its fee structure to provide inspection and permit services on a self sustaining basis.  It is estimated that $5,000/yr could be generated in revenues.

The department should prepare an operating budget including performance management and activity standards. Develop a short and long-term capital budget (5 years). Establish a Special Revenue Account to apply inspection revenues to offset department salary expenses.

1

The department's administrative staffing level was found to be ineffective.  Lack of consistent administrative management has resulted in the need to improve the functional relationship and staff accountability in the delivery of public safety services in Pelham.

The Town should establish a full-time Director of Public Safety position (Police/Fire Chief) with full authority to manage the provision of all public safety services.

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FINDING

RECOMMENDATION

PRIORITY

Current stipend method of compensation is ineffective and serves as a disincentive to call force recruitment. 

 There is no standardized, written department promotional process in effect.

 Job descriptions should be established for all positions in the department.

The Town should establish an hourly method of compensation.  Please see enclosed chart for details.

 Establish a department promotion, demotion and disciplinary process.

 Establish a part-time Administrative Assistant position to provide clerical support services.

1

Operational staffing levels, particularly during daytime hours has resulted in excessive dependency on mutual aid. 

The officer to private ratio is much lower than necessary.  In accordance with proposed organization chart, the number of officers should be reduced.

Department should immediately implement an on-call member recruitment and retention program including the development of a student cadet program with UMASS students in conjunction with the Town of Amherst. 

2

  No Standard Operating Guidelines (SOG's), policies and department regulations exist to guide tactical operations.

Develop a complete set of Standard Operating Guidelines and related policies including dispatch function.

 Develop and codify mutual aid agreements with neighboring towns.

1

    There is no uniform, standardized employee performance management system in place to hold the department and its employees accountable based on  agreed upon goals and objectives.

Establish a performance management system and related forms based on job duties, goals/objectives, skills/competencies, and employee development

2

Department training program lacks     clearly defined objectives and attendance is not consistent.  The process is currently top-down driven with little or no employee participation. Dedicated training funds are not currently provided in the department's operating budget. Develop a comprehensive employee training program.

Establish an Employee Training Committee to develop, oversee, and recommend new training programs.

2

 Training program is not comprehensive.

 There are a lack of formal expectations, goals, objectives, and limited employee training regarding the provision of customer service.

    There are no customer service standards or objectives.

    A significant communication gap exists  

   in the staff's perception of quality of    service and the customers of the    department.  The Department has    consistently been in a reactionary    or enforcement mode resulting in low  staff morale and poor customer service. 

Customer service needs to be made a top priority. 

 A comprehensive customer relations program (internal and external) should be developed.  This should include the monitoring of complaint resolutions, identification of service issues, and various ways to provide more effective service (i.e. use of web page, internet, forms, signage, pamphlets that explain various department processes, multiple languages, etc.).

 Establish a public relations outreach program including follow-up to incidents and use of the internet (for permit applications etc).

2/3

The current condition of the fire station is  inadequate reflecting the lack of an effective capital planning process.  Lack of a proper diesel exhaust system, heating system, and also a lack of training space.

The headquarters station is in need of immediate renovation to accommodate possible student force.

1

Utilization of technology in support of administrative requirements is very limited and ineffective. Develop a technology master plan to identify short and long-term technology needs including the use of computers, development of a customer friendly web page, maintenance of department personnel, training and response statistics.

2

The department’s record and activity management system is not well organized and is not updated on a regular or consistent basis.

 

The Fire Chief and other volunteers currently provide required  record keeping management services. 

The Town should establish a part-time clerical administrative assistant position to provide clerical support for the fire and police departments.

The department should consider purchasing a software program designed for fire departments to manage operational activity, billing and budgetary activities.

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 V.      Summary of Employee and Customer Survey

  The project team conducted a confidential employee and internal customer survey as a critical part of the information gathering for this study.  The survey was developed and distributed to all employees of the Fire Department at the beginning of the study so that results could be used in assisting the analytical process.   

Once the confidential surveys and customer meetings were completed they were tallied and analyzed.  While there were common questions in all of the surveys, the project team also utilized unique questions directed at each functional area and the unique issues and characteristics of that service function within the Fire Department.

 The detailed summary of survey responses is included as an attachment to this report.

 1.     Employee survey response rate was excellent (100%); five- (5)

Town departments (customers) were interviewed.

 In total, ten- (10) surveys were received from employees of the department.  In addition, employees were interviewed from various departments throughout the Town that regularly interact with the Fire Department.

 In the discussion of the survey results, which follows, the responses are grouped into more general categories to facilitate summary.  In most cases, survey respondents were asked to provide their answers on a 1 - 10 scale.  In addition, survey responses were grouped according to "Strongly Disagree," Neutral," and "Strongly Agree" categories. There also several open-ended questions in this survey and customer interviews which required narrative responses on the part of employees.  These questions were for the use of the project team and will remain confidential.

  2.     Employees in the Fire Department believe that the Department provides a high level of service.

 The project team asked respondents to evaluate the level of service that their department provides to its "various customers."  Over 78% of the staff members rated the delivery of service very highly.  89% of staff feels that customer service is given a high priority.

 The staffs' self-evaluation quality of service rating is in significant contrast to the quality of financial services expressed by internal customers of the Department.  The customers uniformly expressed significant concerns regarding the quality of support service.  Some of these quality of service concerns included: 

·Ineffective, unreliable financial software system

·Accounting forms difficult to use;

·No training provided regarding use of financial system for new employees

·Lack of timely budget information

·Lack of automated access to personnel data base

·Courtesy and responsiveness to customer request for support was rated as poor.

 3.     Respondents generally stated that while their workload is occasionally heavy, they could keep up with it.

 This response is an important one for this analysis.  It appears that most staff feels that there is a balance between the amount of incoming work and the time and/or staff to perform or accomplish it.

 The implementation of a fully automated, integrated personnel and budgetary system will result in significant improvements in staff productivity and efficiency.  This will provide the Town with the opportunity to re-define, reallocate, and effectively manage staff.

 4.     Reactions were varied when staff was asked to characterize the management of personnel. 

Respondents were asked to characterize the management of the department in a range of responses.  Responses were mixed as summarized below: 

·59% of respondents said that the level of training was "fair" to "poor".

·69% of respondents said that there was a "good" to "superior" amount of training.

·56% of respondents said that their department does a "good" job keeping them informed.

 In conducting individual as well as group staff meetings, the need was expressed to update job descriptions and related compensation levels as well as promotional procedures. 

5.     Staff reaction to department operations and specific service questions were generally, "good" to "excellent," but respondents did identify several specific areas that should be improved: 

·Quality of training and operational space

·Utilization of administrative technology

·Availability of backup staff support

·Quality of office equipment and computer hardware/software

·Need to establish a regular equipment replacement program

·Need to establish a more realistic compensation system

 The discrepancy between how the staff of the Fire Department perceives the quality of fire department services, especially inspections, and how their customers perceive the department, is a significant issue that the Town must address as soon as possible.  This is a result of the lack of administrative leadership and the poor communications that exists between the department and the Board of Selectmen. 

 The communications problem that exists between these functional groups which if not addressed in a proper and timely manner will result in further staff productivity and public safety performance issues.


VI.     Conclusion

 Many significant issues have been identified during the course of this study pertaining to improving the provision of fire department and public safety services in the Town of Pelham.  The consultants considered four- (4) different options during the course of this study including status quo, regionalization on a County and contiguous town basis as well as the formation of a department of Public Safety.  In preparing the Final Report, the consultants took into consideration the significant financial constraints that the Town is currently operating under as well as two- (2) additional factors:

 1.      the present and future functional relationship between the components of public safety service (police, fire, ambulance, and dispatch); and

2.      the level of accountability to ensure that public safety services are provided in a quality, cost-effective manner.

 The most significant and unique characteristics that characterizes the provision of public safety services in Pelham at the present time are the effective working relationship that exists between the Town’s Police and Fire Departments, the dependence on neighboring communities, and the lack of a clearly defined mission and vision statement regarding the provision of public safety services.  The Town’s Police Officers are certified as fire officers and coordinate the proper response to fire calls.  In addition, police department personnel provide staff training in the use of the defibrillator and CPR, First responder emergency medical training.  In addition, the Police Chief currently serves as the town’s Civil Defense and Emergency Management Coordinator, regularly interacting with members of the Fire Department that are located in the same facility.

 Option I: Department of Public Safety

 Option I, calls for reorganization of public safety services in Pelham by combining the Police and Fire Departments into one functional operating unit called the Department of Public Safety.  It is proposed that this department be under the administrative direction of  a new Director of Public Safety position.  Additional staffing changes include the provision of a part-time administrative clerical position, the reduction in the number of command positions in the Fire Department, the establishment of a part-time Deputy Fire Chief position serving as the Department’s Inspection/Training Officer, and the establishment of a student call force.

 It is recommended that the staffing changes as outline above be funded at no additional cost to the Town of Pelham.  This can be accomplished by combining the current Police Chief and Fire Chief salaries to fund the Director of Public Safety position and by establishing the financial policy that inspection and permit fee service be provided on a self-sustaining basis.  Based on the fire department’s permit and inspection activities over the past three- (30 years, it is estimated that approximately $5,000 could be raised per year.  It is recommended that the Town establish a special revenue account for the Fire Department of Public Safety to ensure that these revenues are available to offset the cost of providing these services.

  The Town if it so chooses is able to implement the recommendations contained in

Option I in a timely manner.  This option will provide the much needed administrative direction and leadership necessary to effectively oversee the provision of public safety services in Pelham.   Once a Director of Public Safety position is established, the town can then begin to establish clear, well-defined goals and objectives (Mission and Vision statement) and to address the administrative and operational issues that have been raised in this report.

 Option II: Regionalization of Public Safety Services

 At the present time the Town of Pelham depends on a regional agreement with the Town of Amherst for the provision of emergency medical ambulance services. It is the conclusion of the consultants that this arrangement is working very well. In addition, the Town has informal mutual aid agreements with contiguous communities for the provision of fire suppression services.

 As stated above, the consultants took in to consideration the possibility of expanding the provision of public safety services on a regionalized manner.  Several regional service approaches were evaluated by the consultants including expanding the service arrangement with the Town of Amherst, establishing a county-wide regional service, and establishing a regional agreement with neighboring contiguous communities.

 Of these regional options, it is the recommendation of the consultants that as a second option, the Town of Pelham consider the formation of a regional agreement for the provision of certain public safety services with contiguous communities.  Those communities are the Towns of Pelham, Leverett, Shutesbury, Belchertown, and Amherst.

 Further study is required of this option in order to evaluate what specific public safety services may be regionalized and what the potential operational and cost impact would be to the member communities.  The town should pursue the availability of state and/or federal funding for this option depending upon what if any services are regionalized.

 It is recommended that as in Option I, the Town adjust its permit and fee structure to provide funding for administrative support and inspection services.  In addition, it is recommended that the town in conjunction with the Town of Amherst consider the establishment of a student call force.

 Due to the time constraints and the uncertainties associated with an expansion of regional public safety services, it is the opinion of the consultants that the Town should proceed ahead with the implementation of Option I.  At a later date, as funding becomes available, and the towns are able to meet to discuss their respective interest in regionalization the possibility of regionalizing certain public safety services (dispatching, inspections etc.) can be considered in further detail.

 Finally, in addition to the organizational options, it is recommended that the Town of Pelham change the method of compensating call force members from a stipend format to an hourly format.  Please see the enclosed salary survey of area communities for further details regarding this recommendation.