HomeMy WebLinkAboutCity Council Packet 11-17-1998 Special2
PLYMOUTH CITY COUNCIL
SPECIAL MEETING
November 17, 1998
7:00 PM
Public Safety Training Room
1. Plymouth Fire Department Issues
2. City Council meeting rules and procedures
MEMO
CITY OF PLYMOUTH
3400 PLYMOUTH BOULEVARD, PLYMOUTH, MN 55447
DATE: November 11, 1998
TO: Dwight D. Johnson - City Manager
FROM: Richard C. Kline - Fire Chief ecor
SUBJECT: Fire Department Study
Fire department staff looks forward to our November 17' study session with City
Council, and appreciate this opportunity to share our thoughts concerning the delivery
of our life saving business.
Our presentation will address the following four categories. Provided is a brief
synopsis of each topic.
I. General Overview of Department and Operations
The definition and operating principles of a paid -on -call (POC) fire department
will be discussed. The fundamental operating methodologies (who, when,
where, why & how) of your fire department will be presented.
II. Challenges to Service Delivery
Providing life safety services does not come without a price. The "price" of
doing business, its barriers and challenges, combined with a demographic
analysis of our community, provides an appreciation for the provision of fire
department activities offered by the Plymouth Fire Department.
III. Service Delivery: Then and Now
Comparison between operational styles of the Plymouth Fire Department will be
discussed. We will focus upon past practices of service delivery and how we
currently provide our enhanced services. What are the expectations of the
community and of our elected officials regarding the delivery of fire department
services?
IV. The Future
We anticipate both new and continuing challenges to providing essential life
safety services in the future. We will discuss the impact that the following have
upon the delivery of our services:
Our community's demographics and emerging profile;
Continued development of our community;
The effect of mandated operational and training requirements; and
The current status of our staffing efforts.
We believe that the initiatives we've undertaken have helped us to "raise the
bar" regarding service delivery to our community. We will highlight both short
and long -term strategic planning options and offer considerations for the
delivery of service into the next century.
I have enclosed a copy of our Profile I & II report for your review prior to this
meeting. The information contained in these documents provide an informative look at
the Plymouth Fire Department and will prove useful for study session discussions.
Thank you for the opportunity to present our department to you. If I may be of
assistance, I may be contacted at 509 -5121.
MEMO
CITY OF PLYMOUTH
3400 PLYMOUTH BOULEVARD, PLYMOUTH, MINNESOTA 55447
DATE: November 12, 1998
TO: Mayor and City Council
FROM: Christian Preus, Councilmember at Large
SUBJECT: Council Rules and Procedures
We will be discussing Council Rules and Procedures at the study session on Tuesday,
November 17. I would like to suggest the following outline and offer some comments
in order to frame the discussion on this item:
City Ordinance 200.07, Subd. 2 and Subd. 3.
Subd. 2. Duties. The Presiding Officer shall preserve strict order and decorum at all meetings of
the Council. The Presiding Officer shall state every question coming before the Council,
announce the decision of the Council on all subjects and decide without debate all questions of
procedure, subject, however, to the final decision of the Council on appeal. The Presiding Officer
may introduce motions, second motions, and speak on any question.
Subd. 3. Appeals. Any member may appeal to the Council from a ruling of the Presiding Officer.
If the appeal is seconded, the member may speak once solely on the question at issue, and the
Presiding Officer may explain his ruling, but no other Councilmember may participate in the
discussion. The appeal shall be sustained if it is approved by a majority of the members present
exclusive of the Presiding Officer.
2. City Ordinance 200.17.
200.17. General Rules of order. Except as otherwise provided by statute or by this Section, the
proceedings of the Council shall be in accordance with Roberts Rules of Order, Revised.
Page 2
Plymouth Forum.
There should be no action.
This is not a time to debate with the speaker.
Generally, questions from speakers should not be answered at this time
unless it is very brief (no more than one minute).
Questions raised at the Forum should not be placed on the regular agenda at
this time, but rather considered for placement on the agenda under "Approve
Agenda". (Individuals speaking at the Forum can certainly wait until the
agenda is approved to determine if an item will be discussed at the meeting.)
4. Consent Agenda.
5. Approval of the Agenda.
6. Roberts Rules of Order.
A. Section 4 (1990 9' Edition) -- how a motion is brought before the assembly:
The motion is not open to debate until a motion is declared pending.
Discussion of any subject is permitted only with reference to a
pending motion.
Main debate must be confined to the merits of the pending question.
B. Section 42 -- consideration of motions:
Motion is not debatable until it is made.
Generally, speakers can only speak twice on a particular motion.
A speaker cannot speak adversely on a prior action not pending.
Rule against the Chair's participation in debate.
7. Possible additions to Council procedure:
A. When there is a speaker from the public, all questions and comments
made by the speaker should be allowed to be given. All information should be
taken before the Council enters into debate and before questions are answered.
B. The Council should not debate speakers. If necessary, ask questions for
clarification, but debate is for the City Council.
C. Once the questions from the public are received, all questions should be
directed to staff (and possibly the petitioner if necessary), for an opportunity to
respond. It is still not time for debate; it is the information gathering stage.
Once all information is received and questions answered, it is time for a motion.
Once a motion is made, all questions should have already been asked and
answered.
TO: Mayor and City Council
FROM: Kathy Lueckert, Assistant City Manager
SUBJECT: Council Process and Procedures
Attached is an excerpt from the city code (Section 200) regarding city council meetings
and procedures. This is the only "official" guide to how the council conducts its
business. Also attached is the brochure on city council meetings that is available at the
back of the council chambers for every meeting.
There are no written policies for the Plymouth Forum. In general, the practice is that any
issues raised at the forum are referred to staff for investigation. The response comes in
the form of a letter to the citizen, or a report to the council at a later time. However,
sometimes a question may be answered quickly by a staff member at the meeting, and
this has taken place on occasion.
Plymouth City Code 200.01
CHAPTER II
CITY COUNCIL
Section 200 - City Council. Rules of Procedure
200.01. Meetings of the Council. Subdivision 1. Regular Meetings. The City Council
annually shall establish a schedule of meetings for that year. The Council may cancel any regular
meeting. At least one regular meeting shall be held in each calendar month. (Ord.94 -23, 12105194)
Ord. 96 -1, 02101196)
Subd. 2. Special Meetings. The Mayor or any three members of the Council may call a
special meeting of the Council upon at least 24 hours written notice to each member of the
Council. This notice shall be delivered personally to each member or shall be left at the member's
usual place of residence with some responsible person. Notice to the public shall be given in the
manner required under State law.
200.03. Initial Meeting. At the first regular Council meeting in January of each year, the
Council shall:
1) Designate the depositories of City funds;
2) Designate a legal newspaper of general circulation in the City as the official
newspaper;
3) Choose one of its members as Deputy Mayor, who shall perform the duties of the
Mayor during the disability or absence of the Mayor from the City or, in case of a
vacancy in the office of Mayor, until a successor has been appointed and qualifies;
4) Appoint such officers (including Council Secretary) and employees and such
members of boards, commissions, and committees as may be necessary.
200.05. Agenda. Subdivision 1. Reports. Requests, etc. Petitions, requests, and
communications addressed to the Council, which in the opinion of the Manager, or by law,
necessitate advisory commission reports before disposition by the Council (except those required
by law to come before the Council initially), shall be withheld by the Manager from the agenda
until such reports are available, at which time both the petition, request or communication and the
related report shall be placed on the agenda for the next succeeding Council meeting.
Subd. 2. Establishment of Agenda. The agenda shall be closed to the addition of new
material at noon on the Wednesday preceding each regular or special Council meeting. Requests
from parties seeking to appear before the Council received after such time and date shall be placed
on the agenda for the regular meeting next following the meeting with respect to which the agenda
has been closed. The Council may, in its discretion, waive this rule of procedure and may hear
parties who are not on the agenda.
Plymouth City Code 200.07, Subd. 1
200.07. Presiding Officer; Duties; Appeals. Subdivision 1. Appointment. The Mayor shall
be the presiding officer at all meetings of the Council. In the absence of the Mayor, the Deputy
Mayor shall preside. In the absence of both, the Councilmember with the longest term of service
on the Council shall preside.
Subd. 2. Duties. The Presiding Officer shall preserve strict order and decorum at all
meetings of the Council. The Presiding Officer shall state every question coming before the
Council, announce the decision of the Council on all subjects and decide without debate all
questions of procedure, subject, however, to the final decision of the Council on appeal. The
Presiding Officer may introduce motions, second motions, and speak on any question.
Subd. 3. Appeals. Any member may appeal to the Council from a ruling of the Presiding
Officer. If the appeal is seconded, the member may speak once solely on the question at issue, and
the Presiding Officer may explain his ruling, but no other Councilmember may participate in the
discussion. The appeal shall be sustained if it is approved by a majority of the members present
exclusive of the Presiding Officer.
200.09. Secretary; Duties. Subdivision 1. Appointment. The Council shall appoint a
Council Secretary. The Council may designate any officer or employee of the city as Secretary,
except the City Manager, Mayor or Council Member.
Subd. 2. Duties. The Secretary shall keep a journal of Council proceedings and minutes
and perform duties required under the Charter, Code, Resolution and State law.
200.11. Minutes. Subdivision 1. Who Keeps. Minutes of each Council meeting shall be
kept by the Council Secretary. In the Council Secretary's absence, the Presiding Officer shall
appoint a Secretary Pro Tem.
Subd. 2. Content. Ordinances, resolutions, and claims need not be recorded in full in the
minutes if they appear in other permanent records of the City and can be accurately identified from
the description given in the minutes.
Subd. 3. Approval. The minutes of each meeting shall be reduced to typewritten form,
shall be signed by the Secretary, and copies thereof shall be delivered to each Councilmember as
soon as practicable after the meeting. At the next regular Council meeting following such
delivery, approval of the minutes shall be considered by the Council. The minutes need not be
read aloud, but the Presiding Officer shall call for any additions or corrections. If there is no
objection to a proposed addition or correction, it may be made without a vote of the Council. If
there is an objection, the Council shall vote upon the addition or correction. If there are no
additions or corrections, the minutes shall stand approved.
Subd. 4. Inspection. Any person may inspect the minutes at reasonable times and in
accordance with this Code, the Charter and State law.
200.13. Quorum and Voting. Subdivision 1. Quorum. A majority of all of the members of
the Council elected constitutes a quorum, but a smaller number may adjourn from time to time.
Plymouth City Code 200.13, Subd. 2
Subd. 2. Vote Required. A majority vote of all members of the Council is required for
approval of ordinances and resolutions, unless a larger number is required by the Charter or by
State law. Except as otherwise provided by statute, a quorum shall prevail in all other cases.
200.15. Order of Business. At the hour appointed for the meeting, the members shall be
called to order by the Presiding Officer. The Council Secretary shall call the roll and note the
absentees. Council business shall be conducted in the following order:
a) Call to Order and Pledge of Allegiance.
b) Roll Call.
c) Plymouth Forum.
d) Presentations and Public Information Announcements.
e) Approve Agenda.
f) Consent Agenda.
g) Public Hearings.
h) General Business.
i) Reports and Staff Recommendations.
0) Adjournment.
In order to accommodate persons in the Council Chambers waiting to be heard, the Presiding
Officer may vary the above order; but public hearings shall be held at the time set in the notice of
such hearings. (Ord. 95 -3, 1117195)
200.17. General Rules of Order. Except as otherwise provided by statute or by this Section,
the proceedings of the Council shall be in accordance with Roberts Rules of Order, Revised.
200.18. Items Removed from Consent Agenda or Added to the Agenda. If an item is
removed from the consent agenda or is added to the agenda at the Council meeting by a Council
member, when the item is brought up for consideration the presiding officer shall immediately,
without discussion or comment, recognize the Council member who removed the item from the
consent agenda or who added it to the agenda. (Ord. 96 -18, 07110196)
200.19. Ordinances Resolutions Motions, Petitions and Communications. Subdivision 1.
Readings. Every ordinance and resolution shall be presented in writing. The vote on an ordinance
shall be by roll call. An ordinance or resolution need not be read in full unless a member of the
Council requests such a reading.
Plymouth City Code 200.19, Subd. 2
Subd. 2. Signing; Publication and Proof; Effective Date. Every ordinance passed by the
Council shall be signed by the Mayor or, in the Mayor's absence, the Deputy Mayor, attested by
the Clerk, and filed in the ordinance book. Proof of publication of an ordinance shall be attached
and filed with the ordinance. Each resolution shall be appropriately numbered and filed by the
Clerk.
Subd. 3. Repeals and Amendments. Every ordinance or resolution repealing a previous
ordinance or resolution or a section or subdivision thereof shall give the number, if any, and the
title of the ordinance or code number of the ordinance or resolution to be repealed in whole or in
part. Each ordinance or resolution amending an existing ordinance or resolution or part thereof
shall set forth in full each amended section or subdivision as it will read with the amendment.
Subd. 4. Motions, Petitions, Communications. Every motion shall be stated in full before
it is submitted to a vote by the presiding officer and shall be recorded in the minutes. A motion
shall be reduced to writing at the request of any Councilmember present. Every petition or other
communication addressed to the Council shall be in writing and shall be read in full upon
presentation to the Council unless the Council dispenses with the reading. Each petition or other
communication shall be recorded in the minutes by title and filed with the minutes in the office of
the Clerk.
200.21. 10:00 O'clock Rule. At any regular meeting of the Council, any member of the
Council may give notice that the hour of 10:00 o'clock p.m. has been reached or is imminently
approaching and move to adjourn the meeting. To be effective the motion must receive a second
and be passed by majority vote. Upon passage, the Presiding Officer shall forthwith adjourn the
meeting unless the majority invoking the rule unanimously agree to permit the matter then under
discussion to be concluded before the meeting is adjourned. (Ord. 94 -5, 512194; Ord. 94 -1, 113194)
200.23. Required Attendance at Council Meetin,g_s. Subdivision 1. Rule. The Mayor and
each Council member shall attend not less than one meeting of the Council each calendar month.
Subd. 2. Non - Attendance. If the Mayor or any Council member fails to attend at least one
meeting of the Council in any month, the Mayor or Council member shall forfeit his /her full salary
for one month. This forfeiture does not apply if the Mayor or Council member notifies the City
Manager that they are on vacation or sick.
Subd. 3. Clerk; Procedure. The Clerk, in the event of a forfeit as provided in Subdivision
2, shall certify the fact of such forfeit in writing, together with the applicable dates of absence of
the Mayor or Council member, to the Manager and Finance Director. The Finance Director shall,
at the time of the issuance of salary checks to the Mayor and Council member, not issue a check
payable to the absent Mayor or Council member in the amount of the monthly salary.
Ord. 96 -8, 05101196)
Plymouth City Code 205.01
Section 205 - Council Salaries
205.01. Salaries of Mayor and Councilmembers. Subdivision 1. Moor. The salary of the
Mayor is $716.67 per month.
Subd. 2. Councilmembers. The salary of a Councilmember is $525 per month.
205.03. Health and Dental Benefits. Hospital, medical, surgical, and dental insurance
benefits shall be made available to the Mayor and individual Council Members in an amount equal
to the entire cost. (Effective 01/01/99) (Ord. 96 -19, 08121196)
Plymouth City Code 210.01
Section 210 - City Elections
210.01. Mayor /Council Elections Generally. Subdivision 1. Qualifications. The Mayor and
Council Members shall have the qualifications set forth in Chapter 2 of the Charter.
Subd. 2. Terms. The schedule of elections and terms of office shall be as set forth in
Sections 2.03, 12.11, 12.13 and Chapter 4 of the Charter.
210.03. Absentee Ballot Counting Board. Subdivision 1. Board Established. As authorized by
Minnesota Statutes, Section 203B.13, as amended, an absentee ballot counting board is established.
The board has those powers and duties, and shall be appointed in the manner provided by law.
Subd. 2. Examination of Ballots. The absentee ballot counting board is authorized to
examine absentee ballot envelopes and receive or reject absentee ballots in the manner provided by
Minnesota Statutes, Sections 203B.12 and 203B.13, as amended.
Subd. 3. Term. The absentee ballot counting board shall be appointed for each general
and special election in the City.
43
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THE PLYMOUTH FIRE
DEPARTMENT:
A DEPARTMENT PROFILE
Service Delivery Recommendations
IINTRODUCTION
In September of 1996, the Plymouth Fire Department completed the first phase of its
Profile Study - a careful examination of the Department, the services it provides, and the
challenges it faces. The first phase is part of a larger project designed to identify and
address both current and future issues challenging the Department. Of particular concern
are the issues of adequate staffing and response time, and the ability of the Department to
continue to meet the demand for services into the next century.
This, the second phase of the Profile Study, contains an in -depth analysis of the barriers
challenging the Department and offers recommendations for meeting those challenges. It
includes the results of researching several service delivery options, and provides
strategies to best position the Department for the future.
In the first phase of the Profile Study, we offered five recommendations to enhance fire
department operations. These recommendations considered both current and future
opportunities for improvement, and included:
1. The use of technology enhancements;
2. The utilization of City workers to supplement fire personnel;
3. The option of" duty crew" assignments;
4. Increasing the number of paid staff members; and
5. Increasing the number of volunteer fire personnel.
During the past nine months, we have further investigated each of these
recommendations. We have presented our ideas to members of the community, members
of City government, and members of the Fire Department. We have invited and
encouraged everyone to become a contributor in the process. Along the way, we have
been delighted to find others who are willing to critically explore not only who we are
and how we do business, but also who we can become and how we can do business even
better.
After careful analysis of the challenges facing the Department, we have become further
convinced that pursuing each of our five preliminary recommendations will enable us to
best position the Department for the future. We have already made substantial progress
toward realizing our goal of providing better service to our community. We are proud of
the accomplishments we have made thus far, but know that still more work needs to be
done.
We recognize that self - examination is an ongoing endeavor - a process, rather than a
project. A philosophy of continuous improvement exists within the Plymouth Fire
Department. With your help, we hope to realize our vision of being a leader in providing
modern fire services in an environment of teamwork and cooperation.
The Plymouth Fire Department Profile Committee
Fire Chief Rick Kline
Deputy Fire Chief David Burke
Public Safety Education Specialist Sara Cwayna
Firefighter Gretchen Hurr
June 1997
2
RECOMMENDATIONS
1. The Use of Technology Enhancements
In the first phase of the Profile Study, we identified the City's system of roadways as a
challenge for the Department in providing prompt responses to emergency scenes.
Specifically, we highlighted the fact that Plymouth, though served by more than 251
miles of city streets, has a limited number of through streets for primary and secondary
access and more than 645 cul -de -sacs. This network of roadways becomes very
congested during morning, afternoon, and evening rush hours.
The Department will continue to be challenged by the cul -de -sac design of the City,
which limits emergency vehicle access by reducing the number of routes available to
arrive at a destination. We are pleased to report, however, that we will soon join a
growing number of communities which have provided their police and fire vehicles with
the ability to manipulate intersection traffic controls to expedite emergency vehicle travel.
Emergency vehicle preemption systems have been endorsed by emergency vehicle
drivers, traffic engineers, and government officials because of the distinct safety
advantages they provide. Emergency vehicles equipped with emitters can actually
regulate the semaphores at controlled intersections. Such vehicles can then take
advantage of the safety of green lights, and are far more likely to be given the right -of-
way. Civilian traffic responds appropriately because drivers react naturally to their red or
green signal indications. Emergency vehicles cross the intersections safely and
efficiently, and the intersections quickly return to their routine.
A traffic signal preemption system is comprised of four (4) matched components: an
emitter, a detector, an indicator, and a phase selector. The emitter (a high intensity light
source) is attached to the emergency vehicle and functions like a strobe light, pulsating at
a frequency in excess of ten (10) times per second. As an emergency vehicle approaches
3
1
Ithe intersection, this pulsating light is received by a detector that is located at or near the
traffic signal. The detector relays the coded message to the phase selector, located in the
traffic light control box, which then either holds the existing green light in favor of the
approaching emergency vehicle or accelerates the normal cycle of a signal change to
provide green by the time the vehicle reaches the intersection. The indicator is a light
source located near the detector which is directed toward the oncoming emergency
vehicle to indicate to the driver whether or not the traffic light has been preempted in its
favor.
We are proud to have taken the lead in the research and acquisition of the system for the
City of Plymouth. Our investigation has shown that nearly all of the main arteries and
major roadways which serve the City have controlled intersections. The intersections on
the primary east - west thoroughfare, State Highway 55, are already equipped with the
emergency vehicle preemption system - including detectors, indicators, and phase
selectors. All that is necessary to take advantage of the system is the purchase and
installation of emitters in the City's emergency vehicles.
Municipal state aid funds administered by the Minnesota Department of Transportation
provide 100% of the funding necessary to install and maintain preemption systems at
intersections in which at least one leg of the roadway has been approved for state aid
funding. The City would be responsibility for funding the installation of such systems at
intersections which are not part of the state aid system.
Last month, approximately $26,000 of the City's General Fund monies became available
for emergency vehicle preemption systems. We recommend that the City use these funds
to purchase emitters for a portion of its police and fire vehicles. Additional funds which
become available in the future could be used to equip additional emergency vehicles and
provide for additional intersection installations. In anticipation of the arrival of these
funds, we have developed a priority list of Fire Department vehicles and critical
4
intersections. Our top priority vehicles are those which are used most, and our top
priority intersections are those which are along our most frequently traveled routes.
We are excited that the first of our recommendations to improve service delivery (the use
of technology enhancements) will soon become a reality. We know that this
improvement will not only be a step toward reducing response time, but will also
contribute significantly to both firefighter and public safety.
2. The Utilization of City Workers to Supplement Fire Personnel
One strategy for addressing issues of response time and adequate staffing is the utilization
of city workers to supplement fire personnel. This strategy has several advantages,
including:
a larger "pool" from which to draw firefighters;
a group of firefighters available to respond during the day (when the most
calls for service are received and the fewest firefighters are available);
a group of firefighters in close proximity to the fire stations (resulting in faster
response times); and
a group of firefighters who are already familiar with the City and its resources.
A number of other cities use their employees to supplement their fire personnel. Several
City of Plymouth employees have actual experience on the Plymouth Fire Department.
Several more have expressed an interest in becoming members of the Department.
The use of city workers for firefighting purposes, however, raises wage and hour issues
under the federal Fair Labor Standards Act. During the past nine months, we have met
several times with the City Attorney to discuss these issues. In March, we received a
written opinion from the City Attorney regarding the City's obligations under the FLSA.
5
According to the City Attorney, members of the Fire Department are "employees" under
the FLSA. As such, "City employees who also volunteer for the fire department are
entitled to overtime pay when they work and volunteer in excess of a combined total of
40 hours per week. [This does not apply to the specific employees in the inspections area
Y'
Most City employees, then, would qualify for overtime pay for every hour they spent
performing firefighting duties. This would be an expensive proposition on an hour -by-
hour basis, and would have significant financial impact for the City. The two Fire
Inspectors currently assigned to the Community Development Department are classified
as "fire employees", however. As a result, they are entitled to overtime pay only for
work in excess of 53 hours per week. Both fire inspectors are active members of local
fire departments; one, in fact, serves on the Plymouth Fire Department.
We recommend a revision of the City's current policy prohibiting the fire inspectors from
responding to calls for fire department service during their regular work day. Instead, we
suggest that they be permitted to respond to confirmed calls (actual fires or rescue
situations) in the City. Such an arrangement would allow the department to take
advantage not only of the fire inspectors' daytime availability, but also of their
specialized training and experience.
3. The Option of "Duty Crew" Assignments
The Duty Crew Program is a variation of the organizational style of a paid -on -call
volunteer fire department. Using existing personnel, a department schedules firefighters
to work blocks of time during the community's peak hours for fire service calls. This
arrangement ensures adequate staffing for responding crews, reduces response time to
R
emergencies, and has significant benefits for the provision of fire services to the
community.
We recommend the initiation of a Duty Crew Program to address the two major
challenges facing the Plymouth Fire Department: staffing and response time - especially
during the daytime hours, when most calls for service are received. The program
involves a restructuring of current fire department operations, a reassignment of existing
personnel, and the addition of one paid staff member, as outlined in Recommendation 4.
Our research into the subject of duty crew programs led us to the realization that no other
fire department has a program similar to the one we envisioned for the City of Plymouth.
With no model to follow, we set out to create our own program. We assembled a group
of firefighters to seek out, research, and recommend a framework for such a program.
Twelve members of the Department agreed to serve as members of the Duty Crew
Committee. The Department was well represented. The group included both officers and
firefighters, both day -time and night -time responders, and both experienced and
inexperienced firefighters.
The Duty Crew Committee met every Monday, from January through April of 1997.
Meetings were held both during the day and at night, and were rotated to all three stations
to allow input from all members of the Department. A portion of each meeting was
specifically set aside as an "open forum" to hear and discuss comments and questions
from interested members of the Department. Minutes from every meeting were printed
and posted at every fire station.
We, as members of the Profile Committee, were invited to attend the meetings to serve as
resources and to provide information and support as requested. We answered questions
as they arose, and sought advice from the Human Resources Manager and the City
Attorney.
7
In April, the Duty Crew Committee reported back to us, and recommended that a duty
crew program be implemented for the City of Plymouth. Such a program, the Committee
believes, would enhance the Department's ability to serve the community. Members of
the Committee provided a basic framework for the program, and indicated their
willingness to assist in its further development.
The Duty Crew Committee's recommendations were posted at each fire station, and were
mailed to every member of the Department. In May, the recommendations were
presented and discussed at the Department Staff Meeting. In addition, members of the
Duty Crew Committee hosted two department meetings to review and discuss the
recommendations. Recently, the Fire Chief reviewed the recommendations with both the
Human Resources Manager and the City Attorney.
We recommend beginning the Duty Crew Program, following the framework developed
by the Duty Crew Committee.
4. Increasing the Number of Paid Staff Members
The Plymouth Fire Department is staffed by sixty paid -on -call volunteer firefighters, one
half -time Education Specialist, one half -time Senior Clerk Typist, and one full -time Fire
Chief. Firefighters work out of three fire stations, and respond to nearly 1300 calls for
service each year.
Plymouth firefighters are obligated to provide an ever - increasing amount of committed
time (time required to respond to fire calls, attend mandatory training activities, carry out
administrative duties, manage personnel issues, and research and complete assigned
projects). Calls for fire department services have nearly quadrupled since 1982. With the
changing fire protection needs of the City, the demand for diversification of services, and
8
the corresponding increase in state and federal training mandates, the Plymouth volunteer
firefighter's committed time is at full capacity.
The Fire Chief is the only full -time staff member for the department. He directs all
administrative, management, and leadership functions. He supervises a volunteer staff of
sixty, oversees the maintenance of three fire stations and twenty -one fire vehicles, and
administers an annual budget of $944,000. His committed time is also at full capacity.
Because both staff time and volunteer time are at full capacity, critical duties such as
preplanning of SARA facilities (those which, under the Superfund Authorization
Recovery Act, contain "extremely hazardous substances ") and selected target hazards,
ongoing policy development, and long -range strategic planning are not being completed.
Critical issues such as training development and consistency, regular supervisory contact,
and daytime command level fireground leadership have also been identified as areas
needing improvement.
We recommend the creation of a Fire Operations Officer position, adding one full -time
staff member to the Fire Department.
We have recommended the initiation of a Duty Crew Program to address the two major
challenges facing the Plymouth Fire Department: staffing and response time - especially
during the daytime hours, when most calls for service are received. The program
involves a restructuring of current fire department operations, a reassignment of existing
personnel, and the addition of this paid staff member. Without the position, the
department will be unable to initiate the Duty Crew Program. The Duty Crew
Committee, in fact, identified a full -time administrator as being "... essential for the
success of the ... Program."
The Fire Operations Officer will provide for the management of the department's duty
crew program, including directing, coordinating, and supervising the activities of
E
program participants; assuring that the necessary duty crew records are accurately kept
and submitted; and assisting in the development and presentation of duty crew training
programs. In addition, the Fire Operations Officer will assume responsibility for the
overall administration and coordination of the department's training and maintenance
programs, assist the Fire Chief with various administrative duties, and direct and
coordinate activities at emergency scenes.
The person serving in this position will be an essential member of the department's
management team. He /she will assist the Fire Chief in providing for the comprehensive
management of the department, including the enhancement of day -to -day operations and
the development of strategic plans for the future. Without this position, the Plymouth
Fire Department is ill- prepared to face an ever - increasing demand for services.
5. Increasing the Number of Volunteer Fire Personnel
The Plymouth Fire Department continues to be challenged in its efforts to recruit and
retain volunteers to serve as firefighters. Although the Department has an authorized
strength of 71 members, only 68 firefighters served the City in 1995. Seven new
firefighters were hired between September 1996 and May 1997, but the Department has
not been able to keep pace with attrition. Currently, 60 firefighters serve on the
Department.
In the first phase of the Profile Study, we identified a number of factors (some unique to
the City of Plymouth) which challenge the City's all - volunteer fire department, especially
the Department's ability to recruit and retain volunteer firefighters. These factors
include:
an increase in state and federally mandated training requirements;
an increase in the time commitment required for call response and training;
10
the fact that Plymouth is a professional, white collar community, with many
residents commuting to daytime employment outside of the City;
an increase in household income and the value of housing;
a predominance of dual career families raising children;
the cost of child care; and
the financial compensation of a fire service professional.
Applications for the position of firefighter continue to be accepted year -round in an open
an ongoing recruitment effort. Two heightened recruitment drives are sponsored
annually. Advertisements in the City newsletter, the Sun Sailor, the City cable channel,
and the world wide web have been used to announce the positions and lighted signs have
been displayed near fire stations. Throughout the year, word -of -mouth recruitment is
facilitated at community events and educational programs.
To enhance recruiting efforts, the Department recently developed a promotional flyer and
sent it by direct mail to approximately 265 neighborhood watch leaders and 1200 parents
of children who, during 1996, participated in Plymouth's Park and Recreation programs.
Members of the Department also worked with Cable 12 staff to create a 5- minute
promotional segment on the rewards and challenges of the volunteer fire service. In
addition, the Department provided printed information to the Communications
Coordinator for use on the City's web site.
Two other programs designed to increase the number of volunteer fire personnel are
planned for the Summer of 1997. Notices about firefighter opportunities will appear in
City water bills, and firefighters are currently carrying out a door -to -door recruitment
campaign.
Despite these efforts, however, we remain concerned about the Department's ability to
recruit and retain firefighters from the community. The direct mailing of nearly 1500
promotional flyers resulted in only six inquiries. The Cable 12 promotional segment
produced only five inquiries. To date, only eight applications have been received.
Our experience has shown that for every twenty candidates who have applied for the
position of firefighter, only four will be qualified to receive an interview and usually only
one of these candidates will receive a conditional job offer. It may take over twelve
months to generate such a pool of twenty candidates.
IWe continue to review strategies to increase the number of volunteer personnel.
12
CONCLUSION
More than three years ago, we, as members of the Plymouth Fire Department, initiated a
study of the Department, including the services we provide and the challenges we face.
For the very first time, we looked critically at ourselves as a fire department - who we are
and how we do business. What we discovered proved to be both encouraging and
frustrating, for along the way we recognized both our strengths and our shortcomings.
The self - examination we chose to undertake far exceeded our expectations. We realized
that what we had initiated was really just the beginning of our continued success. We
remain committed to our efforts to provide the best possible fire services to the citizens of
the City of Plymouth.
In the first phase of the Profile Study, which was completed in September of 1996, we
offered five preliminary recommendations to enhance fire department operations. In the
subsequent nine months, we have further explored each of these recommendations. Our
final recommendations for addressing the issues facing the Department are as follows:
1. Use the $26,000 in General Fund monies currently available to take advantage
of the emergency vehicle preemption system presently in place along the City's
primary east - west thoroughfare, State Highway 55. Specifically, purchase and
install emitters in the most frequently used police and fire vehicles. Pursue
additional funds in the future, and use them to equip additional emergency
vehicles and provide for additional intersection installations;
2. Revise the current policy which prohibits the City's fire inspectors from
responding to calls for fire department service during their regular work day.
Allow fire inspectors to respond to confirmed calls (actual fires or rescue
situations);
13
3. Restructure current Fire Department operations to permit the initiation of a
Duty Crew Program for the City of Plymouth. Add one full -time staff member, as
outlined in Recommendation 4, whose duties will include management of the
Program;
4. Increase the number of full -time Fire Department staff members from one to
two. Create a Fire Operations Officer position with responsibility for managing
the Duty Crew Program, administering and coordinating the Department's
training and maintenance programs, and assisting the Fire Chief with various
administrative duties; and
5. Continue existing efforts to recruit and retain volunteers to serve as
firefighters.
We are convinced that the thoughtful pursuit of each of these recommendations is in the
best interest of the citizens of the City of Plymouth. We understand and appreciate the
concept of fiscal responsibility, and have ensured that our 1998 budget request reflects
these recommendations. Accomplishing these objectives will further our goal of
recognizing our current capabilities and taking advantage of our opportunities for
improvement. We are encouraged by the results of our efforts to date, and look forward
to the future with confidence and anticipation. As always, we invite and encourage all
readers to become contributors in this process.
14
THE PLYMOUTH FIRE DEPARTMENT:
A DEPARTMENT PROFILE
Acknowledgments
A project of this type requires not only a significant amount of time, but also a high level of skill
in research, organization, and writing. I would like to extend special thanks to the Plymouth Fire
Department Profile Committee, who kept this project focused and on task. The committee
members are Deputy Fire Chief David Burke, Public Safety Education Specialist Sara Cwayna,
Fire Captain Tom Evenson, and Firefighter Gretchen Hurr.
I would also like to extend our gratitude to:
Sue Van Cleaf for taking photographs of all three fire stations;
Kevin Leuer for allowing us to use information from his National Fire Academy Master
Plan and Research Project; and
Judy Gooden and Diane Fournier for their strong administrative support throughout the
entire project.
The Plymouth Fire Department is committed to providing a professional emergency service delivery
system. I am extremely proud of the dedication, hard work, and sacrifice exhibited by our
firefighters in the performance of their duties. We will continue to meet the challenges of today, and
be prepared to meet the challenges of the next decades. It is with great pleasure that we present the
Plymouth Fire Department Profile.
Richard C. Kline - Fire Chief
September 18, 1996
i
Executive Summary
The Plymouth Fire Department is a paid -on -call volunteer agency that provides fire protection
services for the 57,000 residents of the City of Plymouth. An authorized strength of seventy-one
firefighters, operating out of three fire stations, address the fire protection needs of our growing
community. In 1995, the Department responded to 1100 calls for service.
The volunteer fire service is a crucial national resource. The organizational style of volunteer fire
departments has a significant history in our country and is a tradition which dates back to the roots of
the United States. It is not, however, a system without limitations. Minimum staffing levels of fire
apparatus and the response time of fire department resources to the incident scene are at the forefront
of issues challenging the volunteer fire service.
Challenges or barriers to fire protection services provided by volunteer fire personnel have been
identified on the national level as a growing concern. The challenges faced by the City of Plymouth
include:
a tripling of the City's population;
the movement from an agrarian economy to an economy of technology and light industry;
an increase in the demand for fire protection service, especially during daytime hours;
the need for a diversified fire service delivery system, including technical rescue, hazardous materials
response, water rescue, and radiological monitoring;
an increase in state and federally mandated training requirements;
an increase in the time commitment required for call response and training;
the developing infrastructure of the City, and how the location of fire stations, roadway traffic levels, and
cul -de -sac street designs impact the delivery of fire services;
the fact that Plymouth is a professional, white collar community, with many residents commuting to
daytime employment outside of the City;
an increase in household income and the value of housing;
a predominance of dual career families raising children;
the cost of child care;
the misnomer of a "volunteer" fire service;
the fact that management team and firefighter committed time is already at full capacity; and
the financial compensation of a fire service professional.
ii
To address the issues that impact the quality of services provided now and in the coming decades,
the management team of the Plymouth Fire Department has authorized a "profile" study of the
department. This study will research and evaluate options for providing fire service into the next
century.
The purpose of this report is twofold. The first objective is to educate the reader so that informed
questions, concerns, and decisions concerning fire department operations may be brought forward.
The second objective is to define the issues which affect service delivery in our community and offer
recommendations to improve those identified deficiencies within our existing delivery system.
Several recommendations to enhance fire department operations will be put forward and researched.
These recommendations will consider both current and future opportunities for improvement, and
Iinclude:
1. The utilization of City workers to supplement fire personnel;
2. The option of "duty crew" assignments;
3. Increasing the number of volunteer fire personnel;
4. Increasing the number of paid staff members; and
5. The use of technology enhancements.
The purposes of this project are to analyze the Plymouth Fire Department's current level of service,
identify barriers to improved service delivery, and recommend a strategy which will guide the
Department into the future. Fire Department staff members invite and encourage all readers to
become contributors in this process.
iii
TABLE OF CONTENTS
Acknowledgments
Executive Summary
Table of Contents
Introduction
History of Fire Protection Service in the City of Plymouth
i
ii
iv
1
2
Recruitment and Retention Issues in the Volunteer Fire Service ----------------------------- - - - - -- 6
Departmental Strategies to Address Fire Response Time
Concluding Remarks
IV
17
22
Introduction
This profile study of the Plymouth Fire Department has been undertaken with the goal of identifying
and addressing both current and future issues challenging the Department. Of particular concern are
the issues of adequate staffing and response time, and the ability of the Department to continue to
meet the demand for services into the next century. The study is an in -house project, with all
research, documentation, and implementation generated by fire department personnel.
Future challenges of providing fire protection for the City have been identified, and strategies to
address these challenges comprise a major portion of this study. Concluding recommendations are
guided by the Plymouth City Council's "A List" of Goals for 1997, which includes encouraging
innovation and customer service, encouraging cost savings, encouraging Council Member
interaction with City employees, and improving financial forecasting and reporting.
The results of this study will be presented in two phases. The first phase will provide background
information relevant to understanding the issues affecting the Plymouth Fire Department. The
second phase will provide an in -depth analysis of the barriers challenging the Department, and will
offer recommendations for meeting those challenges. Questions and issues generated by Fire
Department staff and the Plymouth City Council's Community Policing Sub - Committee will be
addressed in the second phase of this study.
1
History of Fire Protection Service in the City of Plymouth
On November 1, 1959, the Plymouth Village Council passed Ordinance No. 59 -22, which chartered
the Plymouth Volunteer Fire Department to provide fire protection service to Plymouth's 9576
residents. Francis Bauer, credited as being the driving force behind this initiative, first served as the
Chairman of the Fire Protection Committee which laid the groundwork for the new Fire Department.
Then, on June 14, 1960, he was appointed by the Village Council as the City's first Fire Chief.
Chief Bauer served in this capacity until March of 1980.
On April 26, 1960, Council Resolution No. 60 -4 was passed. This resolution provided for the sale of
80,000 in bonds to build Plymouth's first fire station and to purchase fire service equipment. A bid
of $37,121.06 for the construction of the fire station was approved on November 1, 1960. Shortly
thereafter, on November 27th, the Village Council appropriated $20,800 for the purchase of the
City's first piece of fire apparatus, a John Beam pumper. This marked the humble beginning of the
Plymouth Fire Department, where fifteen volunteer firefighters and several officers answered the
City's fire protection challenges by operating out of one fire station located in the south central part
of the City.
Thirty-six years later, the City of Plymouth is now host to more than 57,000 residents, and the
Plymouth Fire Department has grown into a modern full service fire department. Sixty -eight highly
trained, paid -on -call volunteer firefighters, one half -time Education Specialist, and one full -time Fire
Chief address the fire protection needs of the rapidly growing community.
Plymouth firefighters work out of three fire stations: Station I at 13205 County Road 6 (built in
1991), Station II at 12000 Old Rockford Road (built in 1977), and Station III at 3300 Dunkirk Lane
built in 1989). Since 1993, calls for fire service in Plymouth have increased eighteen percent. The
Plymouth Fire Department now responds to approximately 1100 calls for fire service each year and
utilizes 14 pieces of apparatus to do so.
Originally, in 1969, the Plymouth Fire Department provided the sole service of fire suppression and
rescue to those endangered by fire. In 1996, the Department's volunteer professionals are highly
trained to provide a wide range of services to meet the growing needs of our urbanized community.
The Plymouth Fire Department's technical expertise includes:
0A
Fire Suppression: Fire suppression is the process of extinguishing burning materials. The
demand for fire suppression is usually required in critical incidents involving vehicles,
commercial or residential properties, or undeveloped areas. Plymouth firefighters assist with fire
suppression activities outside of the City borders when they are requested to provide mutual aid
to neighboring communities.
Severe Weather Response: During periods of severe weather, the Fire Department may alter its
normal response procedures to provide the best service to the citizens of Plymouth. During
periods of increased calls for public safety service, firefighters may be assigned to staff special
duty crews to provide additional coverage to the community.
Hazardous Materials Response: The Hazardous Materials Response Team is a highly skilled
unit of technicians and specialists who are trained to design and execute a critical incident
response to the release or potential release of hazardous solid or liquid materials or toxic gasses
into the environment. Since 1992, the Cities of Plymouth and Maple Grove have participated in
a joint Hazardous Materials Response Team. In doing so, the fire departments share the cost of
training and specialized equipment for hazardous response and, in turn, provide mutual aid to
each other.
Radiological Monitoring: Firefighters with radiological expertise assist with the monitoring of
the nuclear power plants in Monticello and Red Wing, Minnesota. This specialized unit is also
responsible for preparedness training and for developing and executing fire response in a
radiological critical incident. The Plymouth Fire Department receives a grant from the State of
Minnesota to underwrite this initiative.
Technical Rescue: Technical rescue involves skills and procedures employed by firefighters to
safely remove accident victims from various forms of entanglement or from confined spaces or
elevated structures. Technical rescue includes the rescue of victims of motor vehicle accidents.
Alarm Response: The Plymouth Fire Department responds to fire alarms at commercial and
residential properties. Upon arrival, firefighters conduct a technical investigation to determine
the cause of the alarm. The cause may be an actual fire or may be the result of a system
3
malfunction. During the five year period between 1990 and 1995, an average of 49.5% of all
calls made annually for Plymouth fire service were for false alarms.
Water and Ice Rescue: The Water and Ice Rescue Unit consists of specially trained firefighters
who execute the Fire Department's response to water and /or ice - related critical incidents
utilizing specialized rescue gear and watercraft.
Disaster Response and Preparedness Planning: Plymouth Fire administrators, working with
the State of Minnesota Division of Emergency Management and the Police Department's
Emergency Management Unit, pre -plan the Fire Department's response to incidents and natural
disasters that potentially may occur in the City of Plymouth. In addition, the Plymouth Fire
Department will assist public and private organizations with the development and review of their
individual preparedness plans.
CO Detector Response: The Plymouth Fire Department responds to requests for service from
the general public and the Police Department for incidents involving carbon monoxide (CO).
Using various means of atmospheric monitoring, firefighters determine the level of CO
concentration at the site. Self - Contained Breathing Apparatus, positive pressure ventilation, and
atmospheric monitoring are employed to safely mitigate the CO incident. In 1995, the Fire
Department responded to a total of ten CO detector calls. In January of 1996 alone, the Fire
Department responded to seventy-three CO detector calls, a 630% increase over 1995 activity.
Combined, these eighty-three calls cost the Department approximately $11,000 in personnel and
equipment.
Facility Pre - Planning: Upon the request of a Plymouth business or residential facility, Fire
Department personnel will assist the organization with pre - planning their fire evacuation
response. The Department also assists with the review of fire drills hosted by local businesses.
Fire Prevention Education: The Plymouth Fire Department presents public safety fire
prevention education programs as requested by our citizens. The purpose of this education is to
raise the awareness level within the community on how to prevent, detect, and react properly to
fire emergencies. The actual presentation of education programs is done primarily by
firefighters and officers, and is coordinated and designed by the Public Safety Education
4
Specialist. These programs include, but are not limited to, tours of fire stations; pre - school,
elementary school, and high school programs; neighborhood -based fire prevention education;
fire extinguisher training; baby- sitting safety; fire department open houses; display booths at
community functions; and juvenile fire setter education programs. Since 1993, the Department
has placed an increased emphasis on providing a proactive, educational approach to address the
City's fire problem. In 1995, firefighters, upon the request of the community, provided 36%
more educational programs than they provided in 1994.
Plymouth firefighters are highly trained, state certified, dedicated professionals who provide fire
protection and rescue service to their community. At a minimum, all Plymouth firefighters are
trained to State Certified Firefighter I and II levels, and have earned Emergency Medical First
Responder and Hazardous Materials Operational certificates. Many other courses are offered
through the local community college system for those members who want to extend their training
and education levels. The Plymouth Fire Department pays for all mandatory training and the
majority of "elective" continuing education courses. High levels of proficiency in the Department
are maintained through training drills that are conducted four times each month.
Although firefighters are not required to live in Plymouth, most do. Each firefighter must maintain a
five minute travel time to his or her assigned fire station during a chosen twelve hour block of "on-
call" time during the day. Firefighters must also attend 50% of their station's monthly fire calls
during their "on- call" time.
Firefighters are compensated for the time that they spend in training, responding to calls for fire
service, providing fire prevention education, and attending special details and mandatory training.
All active members receive a pension after twenty years of service.
5
Recruitment and Retention_ Issues in the Volunteer Fire Service
The most significant challenge that a volunteer fire department faces is its ability to secure and retain
a professional staff from the community which it serves. This challenge is rooted both in the
demanding standards intrinsic to the career of firefighting and in the service levels unique to the
demographics of the community.
The 1996 National Fire Prevention Association's annual survey of volunteer fire departments
reported a steady decline in the number of fire service volunteers from 1983 (when there were
884,600 active volunteers) to 1992 (when there were 795,400 active volunteers). The Plymouth Fire
Department has not been immune to this trend.
Changing demographics, unique to the City of the Plymouth, pose significant barriers that impact the
delivery of fire protection service and impede the Fire Department's ability to recruit and retain
firefighters. This section will explore how the following factors challenge the City's all- volunteer
fire department:
a tripling of the City's population;
the movement from an agrarian economy to an economy of technology and light industry;
an increase in the demand for fire protection service, especially during daytime hours;
the need for a diversified fire service delivery system, including technical rescue, hazardous materials
response, water rescue, and radiological monitoring;
an increase in state and federally mandated training requirements;
an increase in the time commitment required for call response and training;
the developing infrastructure of the City, and how the location of fire stations, roadway traffic levels, and
cul -de -sac street designs impact the delivery of fire services;
the fact that Plymouth is a professional, white collar community, with many residents commuting to
daytime employment outside of the City;
an increase in household income and the value of housing;
a predominance of dual career families raising children;
the cost of child care;
the misnomer of a "volunteer" fire service;
the fact that management team and firefighter committed time is already at full capacity; and
the financial compensation of a fire service professional.
6
I
CHALLENGE: Demographic Changes: Growth in Population and Diversification of
the Economy
The City of Plymouth has rapidly grown since the Plymouth Fire Department was established in
1959. In thirty-seven years, the population has increased from 9576 to 57,000 residents, and the
community has changed from one which was predominately agrarian, to one of light industry and
technology.
The growth in the City's population and change in economy have created barriers for the delivery of
fire protection. Since 1982, calls for fire service have tripled. The Department has been challenged
not only to provide service to the escalating demand, but also to recruit and retain a volunteer force
able to carry out this service.
The majority of the City's increase in demand for fire protection has occurred during daytime hours,
and has generally corresponded to providing service to the business community and/or residential
occupancies. To respond to these calls, the Plymouth Fire Department has needed to diversify from
an organization which was primarily oriented to provide fire suppression services to one that is
highly skilled and proficient in technical rescue, water and ice rescue, hazardous materials response,
disaster preparedness, radiological response, and fire prevention education. This diversification has
resulted in an increase in required training, time necessary for equipment maintenance, and on -call
response time. All of these have increased the firefighters' time commitment to the Department.
ICHALLENGE: The Common Misconception of the "Volunteer" Fire Service:
Challenges to Recruitment and Retention
Coupled with its efforts to address the increasing demand for fire protection service, the Department
continues to face the challenge of recruiting qualified and interested candidates who are able to work
as responders, particularly during daytime. hours.
One of the difficulties that the Department has faced in recruiting has been the public's perception of
Plymouth's fire service. In 1995, the Department conducted an information survey of community
groups involved with the City's Neighborhood Watch, McGruff House, and National Night Out
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Programs. This survey sought out the base level of knowledge that the community holds about the
Fire Department. Although a number of these groups had participated in fire prevention education
activities, 50% believed the department to be a combination fire department, one that consists of a
complement of firefighters serving on a full -time, shift - rotation basis, and supplemented by
firefighters who serve on a volunteer basis. Ten percent of respondents believed that the Department
employed only full -time firefighters. Only forty percent of those sampled knew that the Department
is an all- volunteer department.
The term "volunteer" as applied to the fire service profession is often a misnomer to the public.
Plymouth firefighters are compensated with an hourly wage for their service to the community. This
compensation applies to responding to calls for service, attending mandatory classes, participating in
training exercises, performing station maintenance, and teaching fire prevention.
The probationary wage of a firefighter is $6.50 per hour. In six months, this wage increases to $7.00
per hour, and in two years, firefighters are compensated at a rate of $8.50 per hour. Firefighters are
not full -time City employees and, subsequently, are not eligible for City- sponsored benefits such as
health and dental coverage or a pension program. However, after 10 years of service, firefighters are
eligible for a pension through the Plymouth Firefighter's Relief Association.
The Plymouth Fire Department functions like any other professional organization in its hiring
process. Candidates must be able to pass job- related performance tests, succeed in a personal
interview, be able to commit to an on -call 12 hour work shift, and be exemplary in character.
Physical agility, psychological, and urine analysis tests, as well as criminal background checks, must
also be passed.
Applications for the position of firefighter are accepted year -round in an open and ongoing
recruitment effort. Two heightened recruitment drives are sponsored annually. Advertisements in
the City newsletter, the Sun Sailor, the City cable channel, and the world wide web are used to
announce the positions and lighted signs are displayed near fire stations. Throughout the year, word -
of -mouth recruitment is facilitated at community events and educational programs.
To enhance recruiting efforts, the Department is considering the use of direct mail and residential
door -to -door campaigns to target to specific areas within a one -half to one mile radius from the fire
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stations, placing recruitment posters in local businesses and in the local print media, and personally
contacting local companies that have night shift employees to investigate the possibility of work
release for fire service duty.
With current recruitment practices, we have found that for every twenty candidates who have
applied for the position of firefighter, only four will be qualified to receive an interview and usually
only one of these candidates will receive a conditional job offer. It may take over twelve months to
generate such a pool of twenty candidates.
The majority of those employed by the Plymouth Fire Department are married men under forty years
of age who are raising children. Male or female, most firefighters are in the prime of their full -time
careers outside of the Plymouth Fire Department and integrate six to twelve hours per week,
scheduled and on -call, into their family and civic responsibilities.
In past years, local companies were willing to let their employees respond from work to emergency
calls. Today, none of Plymouth's firefighters is granted this privilege. Considering that firefighters
were often called away from their jobs at least eight to ten times per week, causing a continual
interruption in the employer's business operation and in productivity, it is easy to understand why
employers can no longer be supportive of this past practice.
The increases in calls for fire service and the time required to satisfy mandatory training
requirements have posed a dilemma to firefighters. Unable to compromise their full -time
employment outside of the department, firefighters must compromise family and civic obligations in
order to meet the increasing demands of the department. It has, in fact, been our recruiting
experience that most of the applicants for the position of firefighter screen themselves out of the
application process after they understand that there will be a six to twelve hour per week average
time commitment to on -call and scheduled Department responsibilities. Applicants also screen
themselves out of the process when employment requirements or the location of their residences
within the community do not allow them to. comply with the required five minute or less travel time
to a fire station during call -out.
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CHALLENGE: Committed Time of the Department is at Full Capacity
A paid -on -call, volunteer fire organization provides fire protection service to their community at a
fraction of the cost of a fully paid fire department. With the increase in calls for fire service in
Plymouth, the changing fire protection needs of the City, the demand for diversification of services,
and the corresponding increase in state and federal training mandates, the Plymouth volunteer
firefighter's committed time (time required to respond to fire calls, attend mandatory training
activities, carry out administrative duties, manage personnel issues, and research and complete
assigned projects) is at full capacity.
The Department has minimum performance standards that each firefighter is required to meet.
These standards include participation in mandatory training sessions and required courses, station
work details, responding to 50% of calls for service in the firefighter's District during his/her on -call
time, and maintaining a five minute travel time to his/her station. Beyond this minimum, the actual
time worked by firefighters varies greatly, depending on such factors as their service on special
committees, their involvement with pre - planning, educational programming, or station maintenance,
their particular level of specialized training, and their availability to respond to fire calls during their
on -call time.
The average Plymouth firefighter spends 284 hours per year responding to calls for fire service,
more than 100 hours attending training, 37 hours carrying out station maintenance details, 17 hours
presenting fire prevention education programs, and 8 hours completing administrative functions — a
total of 446 hours of service per year. Firefighters who specialize in hazardous materials response,
technical rescue, and water rescue contribute an additional average of 40 training hours per year.
As calls for service have increased, the time commitment of the firefighter has likewise increased.
Because firefighters cannot plan for their on -call commitments, i.e., cannot predict when calls will
be received, family responsibilities and other personal issues often suffer. The uncertainty of fire
service duty is often a cause of firefighter retention problems.
Like all members of the Plymouth Fire Department, management team members (fire officers and
special project firefighters) provide service during their personal time, in addition to full -time
employment outside of the Department. Beyond their minimum obligations to the Department
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responding to 50% of their station's calls, attending training, and participating in work details and
equipment maintenance), management team members provide an average of twenty to forty
additional hours per month conducting administrative and other operational functions.
Under its current organizational structure, committed time for members of the Plymouth Fire
Department is at full capacity. These time commitments limit the Department's efforts to develop
strategies to improve the delivery of fire protection services. Because of this, the Department has
begun to entertain options for service delivery which will promote continuous improvement within
the organization, and will meet the challenge of increased service demands into the twenty -first
century.
CHALLENGE: Level of Educational Attainment and Occupational Make Up of the
Community
The Department has had limited success in recruiting individuals from Plymouth's predominantly
professional, white collar community, where most residents work outside of the city during daytime
hours and manage families when they return to the City each evening.
The base level of educational attainment of Plymouth's residents has increased significantly over the
past two decades. The number of Plymouth residents who have some college education increased
from 42% in 1970, to 74% in 1990. The percentage of residents with at least a four year degree
increased 16% from 1970 to 1990. Those listing a high school diploma as the highest level of
education decreased from 38 % in 1970, to 21 % in 1990.
This trend of increasing educational attainment for Plymouth's workforce has paralleled an increase
in salaried positions within the executive community. In 1990, census data revealed that 74% of
Plymouth's workforce aged 25 years or older held executive, administrative, professional, or sales
positions.
America's volunteer fire service has historically been staffed by individuals employed in blue - collar
or service professions. These individuals traditionally have been wage earners involved in shift
work. The demographics of the Plymouth Fire Department and its recruiting experience has been
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consistent with this national finding. The majority of Plymouth's firefighters are employed as
skilled crafts persons, service maintenance workers, protective service providers, or technicians.
Eighty-one percent work full -time and 72% do not work in the City.
In 1996, the Organization for Economic Cooperation and Development (OECD) released its findings
on working conditions in America. This organization found that Americans' working hours are
higher than have been traditionally estimated because many workers hold multiple jobs and the
number of hours worked per job has risen. With corporate downsizing, white - collar professionals
and, in particular, middle managers are being worked harder by their employers. For blue - collar
workers, especially less skilled workers whose real wages have not kept pace with the economy,
working overtime has become a way to maintain their living standards. The OECD also found that
employees believe that those who do not demonstrate their "commitment" to their jobs will be the
first to be released during times of cutback or will not be rewarded during times of promotion.
Workers also believe that by sacrificing personal time for work during their twenties and thirties,
they will be financially rewarded during their forties.
ICHALLENGE: The Composition of Plymouth Families
Census data has shown that the clear majority of adult residents are part of two- parent working
families that are engaged in full -time, day employment outside of the City. Sixty-two percent of
Plymouth residents aged 15 and older are married, and 86% of the City's population lives in a family
household.
There is no argument that volunteer firefighting has always been taxing on a family. Today, with
the majority of two income, dual career families, the stress on firefighter families has been
significantly heightened. Integrating six to twelve hours per week of on -call and scheduled fire
service into a family where both parents work full -time, each commutes a minimum of forty minutes
daily, the children are cared for in daycare or school settings and are often involved with
extracurricular activities, is a difficult challenge to meet. The normal, day -to -day demands placed
on a family raising children are high on their own merit. Reducing available family time by 6 -12
hours per week to deliver fire protection service is not feasible for many households.
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Ensuring that child care is provided for a firefighter family has become one of the most difficult
challenges. In dual career families, frequently only one parent is home with the children at a time.
Each time that a firefighter is called away, immediate plans must be made for child care. For many,
the $6.50 to $8.50 hourly firefighter wage does not offset the cost of child care or compensate for the
inconvenience to the family. Likewise, when calls for service interrupt family or civic
commitments, firefighters must balance their responsibility to the Department with their other
obligations. The exponential increase in calls for fire service over the past decades has further
stressed this balance.
CHALLENGE: Full -Time Employment Status and Hours of Work
Eighty-three percent of Plymouth's labor force aged 16 and older works daytime hours. The
majority of these workers commute to work, leaving the City between the hours of 6:00 and 10:00
a.m. Daily commuting time exceeds 40 minutes for about half of the workers. Thirty-two percent of
workers spend between 20 and 39 minutes commuting to and from work.
Recruiting day responders from Plymouth's workforce to address the escalating daytime demand for
fire protection has been extremely difficult. Studying the demographics of the City, married women
who are not in the labor force and who are raising children in their homes, provide the most sizable
population from which to recruit. Yet, the on-call service requirement of the Department poses a
to 52% in 1990 -- up from only 14% in 1980. The percentage of middle income households (those
earning $35,000 to $49,999 per year) remained at 19% from 1980 to 1990.
Housing values have a significant impact on a volunteer fire department. The recruitment and
retention of volunteer firefighters hinges upon affordable housing within the community.
Firefighters must be able to afford housing that is within a fire district and is also within the required
five minute travel time to a fire station.
One of the difficulties that the Plymouth Fire Department has experienced in recruiting firefighters
from a population earning in excess of $50,000 annually is that for these families, the Department
will invoke financial and time burdens upon a family, rather than provide a cost benefit to them.
The $6.50 -$8.50 hourly wage cannot compete with the equivalent salary, commission, or wage
earned by the three - quarters of Plymouth's labor force employed in executive, administrative,
professional, or sales positions. The compensation received for spending a single additional hour of
work at one's full -time place of employment will exceed, by four times, the hourly firefighter wage.
The value of housing in the City of Plymouth has increased as the aggregate household income has
risen. Throughout the past three decades, roughly 74% of the City's residents have been
homeowners. The average price of a home in Plymouth rose from $31,273 in 1960, to $153,030 in
1990. This average value includes all residential structures: townhouses, condominiums, duplex
units, and single family dwellings. Using these figures, three - quarters of the City's homeowner
population owns property valued at or above $100,000. The City of Plymouth's Planning Division
has separated single family dwellings from this collective figure, and has estimated their average
value, in 1996, to be in excess of $200,000.
In the case of the Plymouth Fire Department, Fire Station I is located in an industrial park.
This industrial zoning has reduced the number of residential units that are within the required
five minute travel time to the station. The housing units in closest proximity to the station
have historically had a slow turnover rate and do not often become available for purchase.
New construction in this district exceeds the affordability range of the typical firefighter
candidate.
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With the exception of townhouses valued between $110,000 and $140,000, the five minute travel
time areas surrounding Fire Stations II and III have been developed to include residential housing
units valued in excess of $200,000. Townhouse lifestyles are often not preferred by young families
raising children. Likewise, a $200,000 mortgage is often not available to a blue - collar or service
professional raising a family.
ICHALLENGE: The Infrastructure of the Community
As Plymouth has grown in population, it has developed an infrastructure of public roadways to
access newly developed residential and industrial communities. The design of the City's
infrastructure has posed limitations for fire service response.
All of the City's main arteries and major roadways have controlled intersections. Currently, the
Plymouth Fire and Police Departments do not have the ability to manipulate intersection traffic
controls to expedite their travel throughout the community. The technology is available to do so, yet
Plymouth's emergency vehicles must still maneuver through controlled intersections, relying upon
the awareness of the general driving community to ensure a safe and timely emergency response.
The locations of Plymouth's fire stations also pose limitations on fire response time. Fire Station I is
located in the City's largest industrial park. The housing tracts that serve Station I's district are
located outside of the industrial park and closely approximate the end of the five minute travel zone.
This makes a prompt response to calls within this district very difficult.
Stations II and III are located on secondary arterial roadways. Depending on the time of day and the
status of road conditions, firefighters driving to their stations and emergency vehicles enroute to
calls, frequently have their response times impeded by traffic. Without a means to control
semaphores, firefighters and emergency crews depend upon the disposition of the driving
community and the state of.traffic to maneuver throughout the City. .
Another infrastructure barrier impeding the movement of emergency vehicles is the cul -de -sac
design of the community. Often preferred by residents for the privacy they offer and the sense of
community they promote, cul -de -sacs limit fire and other emergency access by reducing the number
of routes available to arrive at a destination. Limited access to emergency scenes delays fire
department response time. An increase in response time is also apparent during times of
construction, traffic congestion, and severe weather.
Three - quarters of Plymouth's work force leaves the City to work in another community and the
majority of workers employed in the City commute into Plymouth from the surrounding
metropolitan area. The exchange of this population creates congestion throughout the day on the
main and secondary roadways in the City. Simply by virtue of their size, commercial vehicles
utilizing arterial roads during business hours also impair the movement of emergency vehicles.
All of these factors influence emergency vehicle response time during morning, afternoon, and
evening rush hours. These challenges are multiplied by the limited number of through streets for
primary and secondary access, the lack of a means to regulate controlled intersections, and the
predominance of the cul -de -sac street design. All contribute to making emergency vehicle transit in
the City of Plymouth a very difficult endeavor.
A Summary
The challenges identified and discussed have prompted the Plymouth Fire Department to explore
organizational options which will address the growing need for fire protection service in the City and
assist in recruiting and retaining qualified individuals who are able to meet the on -call and scheduled
time commitments of the Department. In doing so, we hope to proactively deliver fire protection
service into the twenty-first century.
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Departmental Strategies to Address Fire Response Time
There has been much debate in the fire service literature and in the fire management profession
about the relative effectiveness of a fire company (a functional working unit of a fire department,
usually consisting of a given number of personnel assigned to a single piece of apparatus) at various
staffing levels. The main issues are the minimum company size needed to be able to provide basic
fire suppression capabilities with the potential to impact both fire control and firefighter safety, and
the time it takes for the company to arrive at the incident. Response time and available staffing are
the two most important factors which influence fire department success on the fire ground.
There are six critical time periods related to response time and a department's ability to attack a fire
prior to "flashover" (a state of fire involvement where all articles in a room simultaneously ignite).
These critical periods are:
1. The elapsed time between the start of a fire and its detection;
2. The amount of time required to report the fire, once it has been detected;
3. The elapsed time between the dispatch center's receipt of the report and the subsequent
notification of fire personnel;
4. The travel time of volunteer fire personnel from their homes or workplaces to their fire
stations;
5. The travel time of fire units from the stations to the fire scene; and
6. The time required for units to set -up at the fire scene and begin extinguishing activities.
The fourth through sixth steps are directly controllable by the fire department. From the fire
control standpoint, a minute saved on one item is as valuable as one saved on another. The time
required for detection and reporting, however, probably influence the progress of a fire far more
than any other factor. Response times for additional fire units are also important, since the speed
with which additional resources can be delivered to the fire scene impacts the Department's total
ability to control the spread of fire and accomplish other tasks such as rescue.
Total response time for fire service is defined as the time that it takes the first apparatus /company
to arrive at the emergency scene after firefighters have received a call from the dispatch center.
Fire protection planners suggest that a total fire response time, depending on the hazard and level
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of risk, should be 3 to 6 minutes. However, response time needs to be established by the
community with the active involvement of city management and the citizenry. The Plymouth Fire
Department's total response time averages between 9 and 11 minutes.
The Insurance Services Office, the creator and general administrator of the standards against which
the insurance classification of a fire protection jurisdiction is measured, calls for six personnel on
engine companies and truck companies. This standard is beyond the abilities of even the largest
and most affluent public jurisdictions. The level of company staffing required is directly related to
the types of fire encountered and the types of tasks which need to be performed. Generally, larger
and more complex fires require more personnel to control than do smaller and less hazardous fires.
In order to provide a first alarm response to a single family residential structure fire or comparable
incident, a standard response of 12 -15 fire suppression personnel is needed. Engine and truck
company staffing policies dictate the number of pieces of equipment needed to meet standard
incident response requirements. The Plymouth Fire Department maintains a 3 firefighter minimum
staffing level on major fire apparatus, with 4 -5 firefighters preferred.
A foremost concern and priority of the Plymouth Fire Department is to reduce the total response
time to an emergency incident. In a continuing effort to do so, the Department has separated
response time into community preparedness, in- service time, and total response time, and has
developed strategies to address each.
Ignition, detection, and reporting must be considered when addressing response times. The most
critical component of any fire suppression action is early detection of the fire. A fire may smolder
for several minutes or several hours before open flames can be observed. During this time, the fire
may be detectable by smoke detectors. If owners and occupants do not have an adequate number of
working detectors, the response of the fire department will be less effective in preventing loss of
life or property. Improperly maintained fire detection equipment can actually slow response since
its presence may create a false sense of security for owners and occupants. Likewise, a history of
false alarms due to system malfunctions may cause response problems for firefighters who may no
longer have the incentive to respond in a timely fashion.
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Once a fire is detected, it needs to be reported promptly. Automatic detection systems in
unattended buildings must be monitored, and alarms must be forwarded immediately to the dispatch
center before any other action is taken. Properties without fire alarm systems must rely on
occupants or passers -by to call 9 -1 -1 for help in a fire emergency. Major fires can result when
there is a delay in reporting.
To address the first part of the fire response equation, community preparedness, the Plymouth Fire
Department has placed an increased emphasis on fire prevention education. Between 1994 and
1995, community based programming increased by 36 %. The Department provides pre- school, K-
6, teen and adult -based programming, and also sponsors prevention initiatives in conjunction with
the American Red Cross, the Boy Scouts of America, and the Plymouth Crime and Fire Prevention
Fund.
In addition to fire prevention education, the Department has looked internally at its organization
and has divided its total response time into two components. The first component is in- service
time, the time it takes for firefighters to travel from their homes or workplaces to their fire stations
after receiving a fire call. The second component is the travel time from the fire station to the
incident scene. The sum of the in- service time and the travel time is the total response time.
Several strategies have been adopted to address the issue of fire department response times.
Organizational, procedural, personnel, and operating strategies have been implemented to reduce
the total response time to emergency incidents. For the Plymouth Fire Department, the greatest
impact to date has been a reduction of the in- service portion of the total response time.
The Department has taken the following initiatives to reduce fire department response time:
Single station dispatching is a call -out strategy that has eliminated the need for the entire
department to be alerted to an incident. The fire station which is geographically located closest
to the incident is alerted to the call and responds to it. Generally used during the weekends, on
holidays, and from the weekday hours of 6:00 p.m. to 6:00 a.m., this strategy has encouraged
a quicker response based on the proximity of the firefighters to the station and the proximity of
station to the incident scene. This strategy has also heightened the pride within the station
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ranks, and has fostered a healthy competition between stations to provide the most expedient in-
service times to "their" part of the community.
Multiple station dispatching is used by the Department during daytime hours when calls for
service are the most frequent. This tactic employs call -outs to all three stations between the
hours of 6:00 a.m. and 6:00 p.m. By utilizing all stations' available personnel, the Department
increases the number of responders to daytime calls.
Line officer response. (that of Fire Captains and Lieutenants) has also been revamped. Now,
supervisors respond directly to a fire station, instead of meeting the arriving crew at the
location of the emergency incident. This reassignment has increased the staffing level at the
stations during times of call -out and allows the supervisor to coordinate, control, and motivate
personnel to provide the most timely and appropriate deployment.
Station "Not Due" is a strategy used to deploy the most "ready" response crew to an
emergency incident. If the call is assigned to a single station, members from another station
may also respond if they have adequate staffing. Their response may preclude or supplement
the response of the originally assigned station.
The use of duty vehicles by Chief Officers has been instrumental in readily determining the
needs of an emergency incident and commanding resources, often before the first apparatus
arrives on the scene. Chief Officers use duty vehicles 24 hours per day, allowing them to
arrive at the scene of an emergency without first having to report to a fire station. Once on the
scene, Chief Officers assess the needs of the incident before the first company arrives and
coordinate the deployment of resources necessary to handle it.
To address the increase in demand for service, especially during daytime hours, the Department
has undertaken a concerted effort to hire personnel who are day available. Such recruitment
efforts have enabled the Department to meet the City's needs during the most difficult and busy
time periods.
The Fire Department has initiated automatic mutual aid with several communities to respond to
working structure fires and water rescue incidents.
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t
The closest department is automatically dispatched along with the Plymouth Fire Department to
ensure very timely and adequate response.
All members are required to reside or work within a five minute travel time to a fire station.
This requirement must be maintained throughout their career.
Other strategies employed by the Department to reduce total response time include: allowing
members to respond to the station closest to them at the time of dispatch; granting response
percentage credit to firefighters when they make an effort to assist with calls to which they have
not been dispatched; and using print and news media, networks in the community, brochures,
billboards, and flyers to publicize the need and importance of recruiting additional volunteer
fire personnel.
Considerations for future directives by the City or the Fire Department to reduce total response
time include utilizing City personnel to supplement day response, initiating "duty crews" at the fire
station(s), relocating fire stations to areas likely to draw volunteers, assisting with providing
affordable housing, increasing the number of through streets in the City, facilitating automatic
mutual aid from neighboring fire departments, installing traffic pre - emption control systems,
recruiting from local businesses, and utilizing paid personnel.
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Concluding Remarks
In this first phase of the Plymouth Fire Department Profile, we have discussed several challenges
or barriers which affect the performance of the Department in its delivery of services to the
community. A history of the department and community suggests that our city has grown, and will
continue to grow, at a rapid rate. The recruitment and retention of volunteer firefighters is related
to the changing demographics of our community, and a correlation exists between the rapid growth
of the community, the changes in its demographics, and the ability to maintain a viable volunteer
fire staff.
In this first report, we have highlighted current and anticipated challenges to service delivery. We
have provided input on strategies presently taken to address these challenges, and have also
advanced several options to be researched to enhance and improve service delivery in the future.
We encourage your critical review of this document, and welcome your questions and concerns
regarding your City's fire protection delivery system.
The second phase of the Plymouth Fire Department Profile will focus on those questions and
concerns which have been generated by our audience. If appropriate, service delivery options will
be researched and strategies will be developed to position the Department for the future. A
philosophy of continuous improvement exists within the Plymouth Fire Department. We seek your
help in meeting our current and future challenges.
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