Strategic Review Of The Fire Department MUNICIPALITY OF .
Strategic Review of the Fire DepartmentMUNICIPALITY OF ANCHORAGE, ALASKA201 San Antonio Circle, Suite 148Mountain View, CA 94040November 2013
TABLE OF CONTENTSNovember 20131.INTRODUCTION AND EXECUTIVE SUMMARY12.ORGANIZATION AND MANAGEMENT83.EMERGENCY OPERATIONS214.SUPPORT SERVICES715.SPECIAL OPERATIONS806.FIRE PREVENTION83APPENDIX A – DESCRIPTIVE PROFILE OF THE FIRE DEPARTMENT90APPENDIX B – SUMMARY OF THE EMPLOYEE SURVEY109APPENDIX C – SUMMARY OF THE COMPARATIVE SURVEY118
MUNICIPALITY OF ANCHORAGE, ALASKAStrategic Review of the Fire Department1.INTRODUCTION AND EXECUTIVE SUMMARYThe Matrix Consulting Group was retained by the Municipality of Anchorage toconduct a strategic review of the Anchorage Fire Department, which included anextensive review of management, staffing and other services. In reaching theconcluding point of the study, the project team has assembled this report, whichsummarizes our findings, conclusions, and recommendations where appropriate. Thisstudy was conducted with cooperation and assistance of the Municipality of Anchorageand the full support of the members of the Anchorage Fire Department.In this study of the Anchorage Fire Department (AFD), the project team utilized awide variety of data collection and analytical techniques. The project team conductedthe following data collection and analytical activities: The project team began an intensive process of interviewing personnel in everyfire department division and collecting a wide variety of data designed todocument workloads and service levels. Staff members at every rank and in every function were interviewed in either aone-on-one or small group setting. All staff had the opportunity to provide inputinto the study through an anonymous online survey. This included personnel inoperations, support, dispatch, and from the Municipality. The project team also compared organizational structure and staffing levels, aswell as certain operational and service delivery areas with comparable firedepartments. The fire department was compared to a series of best management practicesdeveloped by the Matrix Consulting Group. This process was used to identifyissues on a wide range of topics in the fire department, as well as a process bywhich positive aspects of the fire department could be identified. The project team collected detailed workload statistics for primary functionalareas, including calls for service from the computer aided dispatch / recordsmanagement system, budget documents and other statistical reports.Matrix Consulting GroupPage 1
MUNICIPALITY OF ANCHORAGE, ALASKAStrategic Review of the Fire DepartmentThroughout the performance audit process, the project team reviewed interimdeliverables, including the findings and issues, with the project steering committee,which consisted of members of AFD and municipal management.2.EXECUTIVE SUMMARYThe members of the Anchorage Fire Department were instrumental during theprocess for conducting this study. From making themselves available for interviews toresponding to requests for data during the process, it was clear the agency employsmembers who have a great deal of pride in the organization and a desire to provideexcellent fire and EMS services to the municipality. The project team has prepared asummary of the key findings, conclusions and recommendations to be found in this finalreport. While not inclusive of all findings and recommendations, this does illustrate keyfindings and those with cost impacts to the municipality and department.The following table provides a summary of recommendations. This wasdeveloped in order to provide the agency with a quick guide to what can be found in thereport.Finding#1The current organizationalstructure of the Anchorage FireDepartment addresses the keyneeds, goals and objectives ofthe Department. There are noissues in the currentorganizational structure thatimpact key factors such asclarity of authority, span ofcontrol, checks and balancesand ease of workflow. Thereare issues with levels ofresponsibility for command staffmembers or the integration ofsupport and operationalfunctions.Matrix Consulting GroupRecommendationThough the project teamreviewed several organizationalalternatives, we do notrecommend any change to thecommand staff structure in theDepartment.Fiscal Impact 262,439TimingImmediateWe do recommend the FireMarshal position be permanentlyfilled and upgraded to a DeputyChief rank consistent with theother divisional leaders, that anda Fire Inspector be upgraded toa supervisor position to improvethe span of control in FirePrevention.Page 2
MUNICIPALITY OF ANCHORAGE, ALASKAStrategic Review of the Fire DepartmentFinding#2A review of the command staffpositions in the Fire Departmentshows that there are noopportunities to convert swornpositions to non-sworn.#3The agency does an excellentjob at initial training andongoing training of linepersonnel, but there is a gap fornewly promoted Battalion-levelcommand officers.#4The AFD has adopted a singleperformance standard forresponding to fire and EMSincidents. The current standardis a four-minute response forthe first due fire apparatus, andan eight-minute response forthe first due ALS unit.#5Call processing times arelonger than best practices by asignificant margin. Currently,high priority calls are processedin 159 seconds on high priorityfire calls and 183 seconds onEMS calls as compared to thebest practice standard of 60seconds. Performance iscurrently measured only oncardiac arrest and structure firecalls. The project teamrecommends trackingperformance on all high prioritythcalls at the 90 percentile.#6The Fire Department hasestablished a 90 second turnoutgoal for responding to highpriority calls for service. Theagency is slightly out ofcompliance with the goalresponding within 94 secondsto 90% of high priority fire callsand 112 seconds on EMS callsfrom notification.Matrix Consulting GroupRecommendationFiscal ImpactTimingMaintain the current staffing ofsworn positions in the AFDcommand staff.NoneNoneDevelop and implement a newchief management-trainingprogram.NoneWithin nextfiscal yearThe Fire Department shouldevaluate the effectiveness of thesingle standard and consideradopting service level objectivesbased on risk and populationdensity of the area served. TheAFD should then publish theseresponse time goals to remaintransparent to the community.Reduceddemand foradditionalstations wherefour-minutestandard cannotbe met.Within nextyearThe Department should focus onimproving dispatch-processingtimes and continually monitorperformance to improve theoverall effective response toemergencies.NoneImmediateThe Department should continueto focus on improving reflextimes as this is within the controlof the department andimmediately improves overalleffective response toemergencies.NoneOngoingPage 3
MUNICIPALITY OF ANCHORAGE, ALASKAStrategic Review of the Fire DepartmentFinding#7The Fire Department regularlyaudits response time data andposts the data on the agencySharePoint site.#8The Fire Department hassufficient ambulance resourcesin total. However, geographicand workload issues impact theability of the Department todeliver effective service at alltimes and in all areas of theMunicipality.#9Current minimum staffing is wellsupported by current staffing.#10Future growth in the Anchoragewill have workload impacts,particularly in the north anddowntown areas. This growthwill generate additional calls forservice for both fire and EMSresponses.Matrix Consulting GroupRecommendationFiscal ImpactTimingThe Fire Department shouldcontinue to regularly auditresponse time data to ensureinformation is being accuratelycaptures and keep personnelinformed of their performance ascompared to the establishedstandards.NoneOngoingConsider staffing Medic 2 as apeak hour response unit withpersonnel from two of the fourperson staffed apparatus.NoneOncenegotiatedand put inCBAThe current deployment ofpersonnel is adequate to meetthe minimum staffing plan.NoneNoneApparatusCapital: 1,635,000Within thenext tenyearsUltimately, this growth willrequire the deployment of two(2) more ambulances and one(1) more engine in strategiclocations (including existingstations). This does not includethe relocation of Stations 3 and9. This includes one new station(Station 2) in the mid-town areato house these units.Annual: 4,520,407Page 4
MUNICIPALITY OF ANCHORAGE, ALASKAStrategic Review of the Fire DepartmentFinding#11The coordination of training inthe Fire Department is currentlydisjointed and could benefitfrom a published annualschedule.RecommendationEnsure Company Officers areaware of and utilize theSharepoint site for coordinatingthe use of the training tower andprops for Company trainingdrills.Fiscal ImpactNoneTimingAs soon aspossible.OngoingContinue to develop and adoptformal training objectives to beused during company drills.Within thenext yearContinue to assign Captains toserve as Platoon TrainingOfficers, but place them on a 40hour workweek to improve theiroverall utilization. This will allowthe number of PTOs needed todrop from three to two.Within nextfiscal year.Develop a method to ensureBattalion Chiefs regularly trainwith the companies assigned totheir area.#12The Fire Department ispursuing a number ofinformation technologyprograms and projects at thistime. There is no formalcoordination with the PoliceDepartment or Municipal ITDepartment.#13The current fleet is adequateand is replaced on a timelybasis, but there is no formalschedule for the replacement ofapparatus.#14The current number of reserveapparatus is adequate as it isslightly higher than the onereserve unit for every four frontline units.#15The Special OperationsFunctions handled by theAnchorage fire department areappropriately staffed andoperated.Matrix Consulting GroupForm an IT committee withrepresentatives from the Fire,Police, and Municipal ITDepartment to meet and discussupcoming IT projects beyond theinteraction through the currentprocurement process to ensurethere is formal coordination withthe Police Department on ITprojects.NoneAs soon aspossible.Develop a formal apparatus andvehicle replacement schedulebased on years of use ormileage.NoneWithin nextyearContinue with the current ratiosof reserve apparatus to front-lineequipment.NoneWithin nextone to twoyears.The Department should continueto staff the Heavy Rescue fulltime and staff the remainingspecial operation functions withcross staffing from stationpersonnel.NoneOngoingPage 5
MUNICIPALITY OF ANCHORAGE, ALASKAStrategic Review of the Fire DepartmentFinding#16Fire Prevention Personnel arecurrently unable to conductmaintenance inspectionsbeyond those mandated by theState.#17There is inadequate support forthe lone Fire Investigator whencause and origin investigationsare required#18The current fire educationprogram is lacking for anagency the size of Anchorageand should be staffed withdedicated personnel.RecommendationTimingThe AFD should implement aCompany Inspection Programfor inspecting low and moderaterisk occupancies a minimum ofonce every three years.NoneWithin nextfiscal year.Actively train an adequatenumber of shift personnel toassist in the determination ofcause and origin of fires. Thiswill allow the Fire Investigator tofocus more on follow-up andprosecution of suspicious andarson fires.NoneAs soon aspossible.Increase the involvement of frontline companies in providingpublic education programming intheir first due areas.NoneAs soon aspossible.Authorize two public educationspecialists.#19The Municipality currently hasan excellent ISO classificationof two (2) for areas within five(5)miles of a fire station. Rural /Areas outside the five milerequirement are classified as aten (10) since they do not meetthe requirements for ISO rating.Fiscal ImpactThe Municipality should work tomaintain their ISO 2 rating. 240,000ongoingNoneOngoingThe agency has a plan to change the number and staffing of stations. Thefollowing table illustrates the plan for adding/relocating stations in the coming years andthe types of apparatus planned to be located at each station.Matrix Consulting GroupPage 6
MUNICIPALITY OF ANCHORAGE, ALASKAStrategic Review of the Fire DepartmentProposed Station 10-131111122 E. 4 89101112141516Total4350 MacInnes St2207 McRae Rd1301 Patterson St8735 Jewel Lake Rd6151 O’Malley RdRelocated14861 Mountain Air Dr16630 Eagle River Rd7920 Homer Dr4501 Campbell Airstrip Rd11301 Southport DrUniversity Campus11As shown above, the proposed station plan will require an additional two (2)personnel to staff the additional ambulance to be located at the proposed mid-townstation (#2).Matrix Consulting GroupPage 7
MUNICIPALITY OF ANCHORAGE, ALASKAStrategic Review of the Fire Department2.ORGANIZATION AND MANAGEMENTThis chapter focuses on the organizational structure of the Fire Department andthe resulting management and support staffing. This chapter also focuses on the keymanagement systems utilized by the Fire Department for overseeing operations andsupport services in the Department.1.CURRENT ORGANIZATIONAL STRUCTUREThe Anchorage Fire Department is currently organized into three primaryorganizational units. These units are depicted in the organizational chart shown below.The paragraphs that follow the organization chart provide a description of the currentorganizational structure and identify several key issues with the current organizationalapproach.Matrix Consulting GroupPage 8
MUNICIPALITY OF ANCHORAGE, ALASKAStrategic Review of the Fire DepartmentFire ChiefMedicalDirectorDeputy ChiefAdministrationDeputy ChiefOperationsFire MarshalFinanceFire TrainingCRTKData SystemsWildfireMitigation The Fire Chief directly supervises two Deputy Chiefs and the Fire Marshal. A Deputy Chief runs the Operations Division, which encompasses line operations(Shift Operations) as well as EMS, and Training. An Assistant Chief reporting tothe Deputy Chief runs each of these three areas. Similarly, the Administration Division is run by a Deputy Chief who oversee manyof the support functions of the Department including: Finance, Dispatch, FleetMaintenance, Data Systems and the Contractor responsible for WildfireMitigation. The Fire Marshal oversees the fire prevention, investigation and community rightto know (CRTK) efforts of the Department.Matrix Consulting GroupPage 9
MUNICIPALITY OF ANCHORAGE, ALASKAStrategic Review of the Fire Department Note that the Fire Marshal position is currently filled by an interim employee andhas been for four (4) years.The current organizational structure of the Fire Department can be viewed asconsistent with a traditional allocation of roles, responsibilities and authority with a FireDepartment command staff. The current approach to organizing services recognizesseveral key principals, which are summarized in the following section.2.PRINCIPALS AND CRITERIA OF A SOUND ORGANIZATIONAL STRUCTUREIn order to evaluate the organizational structure of the Anchorage FireDepartment, the project team first needed to identify the criteria by which theorganizational structure would be judged.These criteria were developed by themembers of the project team based on our experience with a wide range oforganizational models. The following paragraphs give those a description of each ofthose criteria: Accountability and responsibility is clearly identified: The organizationalmodel must be consistent with the concept that clear lines of authority anddecision making are essential for any organization to achieve excellence. Areasof responsibility are clearly delineated and points of accountability are readilyidentifiable. Span of control or communication is optimal: Effective organizations arestructured so that lines of communication are identifiable and where there aremultiple reporting relationships, responsibility for communication and control areclearly identified and understood. There are essential checks and balances in place where necessary: As itrelates to this project, checks and balances are necessary in the area of clinicalperformance review as opposed to operational performance review. EffectiveEMS organizations are able to maintain a constructive and remedial focus onclinical issues while maintaining formal organizational discipline in the operationalarena.Matrix Consulting GroupPage 10
MUNICIPALITY OF ANCHORAGE, ALASKAStrategic Review of the Fire Department Structure is based on task requirements and workflow, as opposed tospecialized skills of individual members: There is a tendency in someorganizations to organize work patterns around the specific passions or skills ofindividual members. This results in high friction levels among group members. Similarly titled positions have similar responsibilities and levels ofaccountability: The organization should be structured such that decisionmaking authority and the possibility for decisions to impact the organization in astrategic way are all found at similar levels of the hierarchy. Support functions are logically grouped and do not, through this grouping,create additional layers of oversight: Organizational structures should groupsupport functions together, separated from operations, only when the scale andscope of the operation requires it.The section that follows provides our analysis of the current organizationalstructure and opportunities for improvement.3.THE CURRENT ORGANIZATIONAL STRUCTURE LARGELY MEETS THECRITERIA FOR AN EFFECTIVE ORGANIZATION.The following chart provides a graphical assessment of the current organizationalstructure. Note that the “Ö” marks in a box indicate that the organizational unit meetsthe criteria described in the preceding section of the report, while an “x” indicates thestructure does not meet the criteria.OrganizationalUnitOffice of the FireChiefOperationsDivisionBased onWork FlowSimilarTitles /SimilarDutiesSupportIntegratedinto �XÖÖÖÖÖÖÖÖAuthoritySpan ofControlChecksandBalancesÖÖÖFire OperationsEMS OperationsTrainingAdministrationDivisionMatrix Consulting GroupPage 11
MUNICIPALITY OF ANCHORAGE, ALASKAStrategic Review of the Fire DepartmentOrganizationalUnitFinanceBased onWork FlowSimilarTitles /SimilarDutiesSupportIntegratedinto Span ofControlChecksandBalancesÖÖÖDispatchShopData SystemsFire MarshalInspectionsInvestigationsCRTKThe paragraphs that follow provide a summary of the project team’s findings andconclusions regarding the current organizational structure of the Fire Department: The overall organizational structure of the Fire Department effectively representsthe primary mission and the administrative necessities of the Department. The Fire Marshal position is in the budget of the Fire Department, but is notfunded and has not been filled in recent years. The position is currently staffed inan acting capacity. Accountability for key elements of service delivery is generally found at the levelof Assistant Fire Chief (e.g., Fire Operations, EMS and Training). No majorissues are evident. The organizational structure is not built upon the specific interests of anyindividual(s), but rather is focused on a logical collection of assignments andfunctions. No major issues are evident. Responsibility is consistently divided among personnel with similar ranks withinthe overall organizational structure of the Fire Department with the exception ofthe Fire Marshal position – which is classified as an Assistant Chief versus aDeputy Chief consistent with the other Division Managers. No other major issuesare evident.Matrix Consulting GroupPage 12
MUNICIPALITY OF ANCHORAGE, ALASKAStrategic Review of the Fire Department The Platoon Training Officer (PTO) positions are staffed by shift Captains thatrotate into these positions for a l
MUNICIPALITY OF ANCHORAGE, ALASKA Strategic Review of the Fire Department Matrix Consulting Group Page 7 Proposed Station Plan Station Address Personnel Engines Ambulance Truck 1 122 E. 4th Avenue 10-13 1 1 1 . MUNICIPALITY OF ANCHORAGE, ALASKA Strategic Review of the Fire Department .
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