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90-1366 ��y-�, �� OuliCil F�1@ � 9v�'/� (n(n / �i V � Green Sheet # RESOLUTION CITY OF SAINT- AUL, MINNESOTA -� , . Proseatad By � 1 . ;�tcz-�-�-� /hy , �• . R�ftrrod To Committee: Date � RESOLUTION ADOPTING THE PLAN FOR FIRE AND EMERGENCY MEDICAL SERVICES AS PART OF THE SAINT PAUL COMPREHENSIVE PLAN."' WHEREAS, the City of Saint Paul is authorized under Minnesota Statutes, Section 462.353, to carry on comprehensive municipal planning activities for guiding the future development and improvement of the City; and WHEREAS, the City of Saint Paul as a local government unit within the metropolitan area is required under Minnesota Statutes, Section 473.858, to prepare a Comprehensive Plan in accordnance , with Laws of 1976, Chapter 127; and WHEREAS, the Council of the City of Saint Paul is authoirized under Minnesota Statutes, Section 462.355, to adopt or amend a Comprehensive Plan or portion thereof after a recommendation by. the Planning Commission; and WHEREAS, the City engaged public safety consultant Carroll Buracker and Associates to propose a "master plan" for fire and emergency medical services; and WHEREAS, a committee of fire and emergency medical services staff and concerned citizens convened to evaluate the consultant recommendations; and WHEREAS, after thorough study of the consultant recommendations and other issues relevant to fire and emergency medical services in Saint Paul, the committee issued a report entitled, Plan for Fire and EMS Services in the City of Saint Paul, Minnesota; and WHEREAS, the Planning Commission has reviewed and held a public hearing on the committee's report, dated January 29, 1990; and C)�t�l��r. �-�Q - �3�c� r / V 2 WHEREAS, the Planning Commission has found a number of recommendations contained in the committee's report to pertain to facility or system decisions appropriate for inclusion in the City's comprehensive plan and has recommended adoption of a Plan for Fire and Emergency Medical Services, dated June 22, 1990, by the Council of the City of Saint Paul as �a replacement for the 1976 fire services plan; and WHEREAS, the Council of the City of Saint Paul has reviewed the Plan for Fire and Emergency Medical Services, including its relationship to other elements of the Comprehensive Plan as have been adopted and the overall health, safety and welfare needs of the residents of the City of Saint Paul and the metropolitan area; NOW, THEREFORE, BE IT RESOLVED, that the Council of the City of Saint Paul hereby adopts the Plan for Fire and Emergency Medical Services, dated June 22, 1990, with the attached amendments dated December 18 , 1991, as a segment of the Comprehensive Plan for the City of Saint Paul in replacement of the 1976 fire services plan, subject to Metropolitan Council review. Yeas a s Absent Requested by Department of: r�[r.^ �/ �� ...-- acca ee � ettma une z so» BY= Adopted by Council: Date N? -��9 Form Approved by City Attorney Adoption Ce ied by Counc�Y-�S cretary By: / , ' By� � Approved by Mayor for Submission to Approved by �r: Date JAN 9 1992. council �? ,/ � B �.i�,��'(�l'Z'. By: Y= ,� � . �YY��0+8�v� Uiti^� ,.. ��... `�J'1.'. . 7 J R i G I I�A L' • � Council File # � � Green Sheet � RESOLUTION CI OF SAINT PAUL, MINNESOTA. ` � � - ;� �J Pres ted By ' ferred T � � ..9 ��L��G�- Committee: Date � � RESOLUTION ADOPTING THE PLAN FOR IRE AND EMERGENCY MEDICAL SERVICES AS PART OF T E SAINT PAUL COMPREHENSIVE PLAN. WHEREAS, the City of Sain Paul is authorized under Minnesota Statutes, Section 462.353, to carry on comprehensive municipal planning activities for gui 'ng the future development and improvement of the City; and WHEREAS, the City of Saint Paul a local government unit within the metropolitan area is required nder Minnesota Statutes, Section 473.858, to prepare a Compr hensive Plan in accordance with Laws of 1976, Chapter 127; and WHEREAS, the Council of the City of Sain Paul is authorized under Minnesota Statutes, Section 462.355, to adopt or amend a Comprehensive Plan or portion thereof after a recommendation by the Planning Commission; and WHEREAS, the City engaged public safety consulta t Carroll Buracker and Associates to propose a "master plan ' for fire and emergency medical services; and WHEREAS, a committee of fire and emergency medical se ices staff and concerned citizens convened to evaluate the consul ant recommendations; and , WHEREAS, after thorough study of the consultant recommen tions and other issues relevant to fire and emergency medical s ices � in Saint Paul, the committee issued a report entitled, Pla for Fire and EMS Services in the City of Saint Paul, Minnesota; and WHEREAS, the Planning Commission has reviewed and held a publi hearing on the committee's report, dated January 29, 1990; and -. ORI�GI NAL � � � - �y° �� 2 WHEREAS, the Planning Commission has found a number of recommendations contained in the committee's report to pertain to facility or system decisions appropriate for inclusion in the City's comprehensive plan and has recommended adoption of a Plan for Fire and Emergency Medical Services, dated June 22, 1990, by the Council of the City of Saint Paul as a replacement for the 1976 fire services plan; and WHEREAS, the Council o the City of Saint Paul has reviewed the Plan for Fire and Emer ncy Medical Services, including its relationship to other el ments of the Comprehensive Plan as have been adopted and the ove 11 health, safety and welfare needs of the residents of the City f Saint Paul and the metropolitan area; NOW, THEREFORE, BE IT RESOLVE , that the Council of the City of Saint Paul hereby adopts the an for Fire and Emergency Medical Services, dated June 22, 1990, s a segment of the Comprehensive Plan for the City of Saint Paul 'n replacement of the 1976 fire services plan, subject to Metrop itan Council review. ea Navs Absent Requested by Depa tment of: mon oswztz n Plannin and Econo 'c velo� ment acca ee �� et man v ne ' i son BY� � Adopted by Council: Date Form Appro by City to Adoption Certified by Council Secretary By: By' Approved by Mayor for Submission to Council / � Approved by Mayor: Date � �i'/G��,�i�<��j. By: BY' � . � . � . . ��o-�� DEPARTMENT/OFFICE/COUNCIL DATE INITIATED No _ 10 2 2 8 P�� 1 latn�n � n 7- I 'r-ga GREEN SHEET CONTACT PERSON 8 PHONE �DEPARTMENT DIRECTOR NITIAUD E �CITY COUNCIL INITIAUDATE �IQ`1C ��e�e k - x 33 6 3 ASSIGN �CITY ATTORNEY �CITY CLERK MUST BE O COUNCIL AGENDA BY(DATE) ROUTINGFOR �BUDGET DIRECTOR �FIN. GT.SERVICES DIR. ORDER �MAYOF(OR ASSISTAN� �e��`j TOTAL#OF SIGNATURE PAGES 3 (CLIP ALL LOCATIONS FOR SIGNATURE) ACTION REQUESTED: p�loP�iDn o,F ��uh �or �'ire. and �n�er��,cc,� �e�ica/ Se;y�ps.� a s � C'ha�0�'e� of��►-e �orn�re�iel�S`I�v�e 1�/Cch '�� CE��/Eb 4 RECOMMENDATIONS:Approve(A)or Reject(R) PERSONAL SERVICE CONTRACTS MUST ANSWER THE FOLL E��S: �PLANNING COMMISSION _CIVIL SERVICE COMMI3SION 1• Has this person/firm ever worked under a contract for�idlpaitment? � v H rT0 CIB COMMITfEE YES NO � � RNE� �STAFF _ 2• Has this person/firm ever been a city employee? YES NO _DISTRICT COURT _ 3. Does this erson/firm p possess a skill not normally possessed by any current city employee? SUPPORTS WHICH COUNCIL OBJECTIVEI YES NO Explain all yea answers on ssparate sheet and attach to green sheet INITIATING PROBLEM,ISSUE,OPPORTUNITY(Who,What.When,Where,Why): EXiS�;� F��e se��,��ps P�Q„ (�l976� ��S o��, �;�y �;re �r � ��su��kt in /4�9 �o P►�e�ere �►ew plan. /4d�n1�,:sfi-a��'o�,, �a-��ed Plc�gn��`� (�omrniss:o•, �n �onv�Ne a ei�i��hls74��F' C'a.r,m:tF�e '7�v rev�Qw Ca�sultd�.� �pla�, � hc� 1^e �ommQ�► a� c�cf%v->, . ADVANTAGES IF APPROVED: /�} �ur�^eh�- se� a ,F polr�c �e s yb �u%��e, adm%^ ;s i�-ar�� h d �'ouh�;/ Q��c i S i o�S �'e�dNQ� �/l� �� / i^� a�'1� �M21��e�� 'e�![o1 � �1l°hVr�C,Q . C.� f,(� _ f� - v�a.�� cc s;s �f e va 1 u��'�.. a f' C►t g. �r d�o s a /s , DISADVANTAGES IF APPROVED: DISADVANTAOES IF NOT APPROVED: /110 ovQralc �otuh �' .- �ec �S•"an _ mQk��S, ��l�i �oa��►�-s measure d 0.�arnsY- ah O�t- o�- 4�a t2 �Ola r, . I�ECEiVED Counci� Research Cente_r, aUG021�� JUL 31 �yyu ,�,�, TOTAL AMOUNT OF TRANSACTION S COST/REVENUE BUDGETED(CIRCLE ONE) YES NO FUNDING SOURCE ACTIVITY NUMBER FINANCIAL INFORMATION:(EXPLAIN) �O �OC• d�/� `1/ NOTE: COMPLETE DIRECTIONS ARE INCLUDED IN THE GREEN SHEET INSTRUCTIONAL MANUAL AVAILABLE IN THE PURCHASING OFFICE(PHONE NO.298-4225). ROUTING ORDER: Below are correct routings for the five most frequent rypes of documents: CONTRACTS(assumes authorized budget exists) COUNCIL RESOLUTION (Amend Budgets/Accept. Grants) 1. Outside Agency � 1. Department Director 2. Department Director 2. City Attorney 3. City Attorney 3. Budget Director 4. Mayor(for contracts over$15,000) 4. MayoNAssistant 5. Human Rights(for contracts over$50,000) 5. City Council F' 6. Finance and Management Services Director 6. Chief Accountant, Finance and Management Services 7. Finance Acxounting ADMINISTRATIVE ORDERS(Budget Revision) COUNCIL RESOLUTION (all others,and Ordinances) 1. Activity Manager 1. Department Director 2. Department Accountant 2. City Attorney 3. Department Director 3. Mayor Assistant 4. Budget Director 4. City Council 5. City Clerk 6. Chief Accountant, Finance and Management Services ADMINISTRATIVE ORDERS(all others) 1. Department Director 2. City Attorney 3. Finance and Management Services Director 4. City Clerk TOTAL NUMBER OF SIGNATURE PAGES Indicate the#of pages on which signatures are required and paperclip or flag �h of th•se pages. ACTION RE�UESTED Describe what the projecUrequest seeks to accomplish in either chronologi- cal order or orcler of importance,whichever is most appropriate for the issue. Do not write cDmplete sentences.Begin each item in your list with a verb. RECOMMENOATIONS Complete if the issue in question has been presented before any body,public or private. SUPPORTS WHICH COUNCIL OBJECTIVE? Indicate which Council objective(s)your projecVrequest supports by listing the key word(s)(HOUSING, RECREATION, NEIGHBORHOODS, ECONOMIC DEVELOPMENT, BUDGET, SEWER SEPARATION). (SEE COMPLETE LIST IN INSTRUCTIONAL MANUAL.) PERSONAL SERVICE CONTRACTS: This information will be used to determine the city"s liability for workers compensation claims,taxes and proper civil service hiring rules. INITIATING PROBLEM, ISSUE,OPPORTUNITY Explain the situation or conditions that created a need for your project or request ADVANTAGES IF APPROVED Indicate whether this is simply an annual budget procedure required by law/ charter or whether there are specific ways in which the City of Saint Paul and its citizens will benefit from this projecUaction. DISADVANTAGES IF APPROVED What negative effects or major changes to existi�g or past processes might this projecUrequest produce if it is passed(e.g.,traffic delays, noise, tax increases or assessments)?To Whom?When? For how long? DISADVANTAGES IF NOT APPROVED What wili be the negative consequences if the promised action is not approved?Inability to deliver service?Continued high traffic, noise, accident rate?Loss of revenue? FINANCIAL IMPACT ARhough you must tailor the information you provide here to the issue you are addressing, in general you must answer two questions: How much is it going to cost?Who is going to pay? . . � � � �yo-,3�� t**o. GITY OF SAINT PAUI. �e ; . � OFFICE OF THE MAYOR a a ° '�'�i i 1° : V� �� 347 CITY HALL ��`� SAINT PAUL, MINNESOTA 55102 JAMESSCHEIBEL (612) 298-4323 MAYOR July 19, 1990 Council President William Wilson and Members of the City Council 700 City Hall Saint Paul, MN 55102 RE: Plan for Fire and Emergency Medical Services (EMS) Dear President Wilson and Members of the City Council: Attached you will find: 1. A recommended Council resolution to adopt the Plan for Fire and Emerqency Medical Services as a segment of the City's Comprehensive Plan. 2 . Copies of : a. the Planning Commission resolution recommending the plan, b. the Plan for Fire and Emerqency Medical Services: A Chapter of the Comprehensive Plan, c. a Plan Brief, summarizing the fire/EMS plan, and d. the Fire Plan Committee report with Arson Committee addendum. I am very pleased to recommend adoption of the fire/EMS plan as a segment of our Comprehensive Plan. I believe that the recommendations contained in the plan will provide a sound basis for City decisions regarding emergency service delivery in Saint Paul during the 1990's. It has been a long time since the City has had this kind of comprehensive policy guidance for fire and emergency medical services. Saint Paul has changed in the 15 years since the last fire plan was adopted. The Fire Department has adapted itself to respond to those changes. This adaptation has not always been easy. As with all City functions, there is room for continuing improvement. s�ae PHnted on Aecycled Paper . . . � . . . . �y�,�� Council President William Wilson and Members of the City Council Page Two July 19, 1990 Last year the City hired a consultant to prepare a thorough analysis of the Fire Department's staffing, operational and capital needs for the 1990's. The City recognized, however, the importance of critical review of this analysis by those who know the service and those who depend on the service, and appointed a staff/citizen committee to evaluate the consultant's work. The committee submitted a report to the Planning Commission for consideration in updating the Comprehensive Plan. The Planning Commission endorses the efforts of the Fire Plan Committee and includes its recommendations in the plan that is before you for adoption. Included among the key recommendations of the proposed fire/EMS plan are: 1. A modified two-tiered EMS system which will (a) carefully train dispatchers to differentiate between "basic life support" (BLS) and "advanced life support" (ALS) cases, (b) send ambulances staffed with emergency medical technicians with advanced training to the BLS cases, and (c) send medic units staffed with paramedics to the ALS cases. 2 . Hiring, compensation and management policies to ensure adequate staff for EMS, communications, and training. 3 . Policies to ensure adequate attention to fire investigation. 4. Policies to ensure that the service is made up of highly qualified individuals, while being fair and inclusive. 5. Retention of the dual-staffing model which gives a single company in a fire/EMS station the dual responsibility of responding to fire and EMS calls in their response area. 6. Retention of all existing operational fire stations. 7. Addition of ambulances in the central part of the city. 8. Continuance of "call-screening" and public education in the proper use of 9-1-1. 9. A feasibility study of a new administration building. 10. Development of a five-year capital improvement program for the Department. . . . (,��-�3�� Council President William Wilson and Members of the City Council Page Three July 19, 1990 In addition to supporting the formal adoption of the fire/EMS plan into the Comprehensive Plan, the administration will be using the more specific recommendations in the Fire Plan Committee report to inform appropriate administrative and budget decisions. I believe that the Committee and Commission have done a good job sorting through the many complex questions surrounding the City's emergency services. I urge adoption of this plan. Sincerely, '1 da�L�i'r' Ja es Scheibel Mayor JS/nf Enclosures (5) cc: John Colonna Nancy Frick Peggy Reichert . � �jo-r 3� city of saint paul . P��9 �r�ssion resolution f�e number _ 9Q-6� Udte June 22, 1990 WHEREAS, the City of Saint Paul is authorized under Minnesota Statutes, Section 462.353 to carry on comprehensive municipal planninq activities for guiding the future development and improvement of the City; and WHEREAS, the City of Saint Paul as a local government unit within the metropolitan area is required under Minnesota Statutes, Section 473.858, to prepare a Comprehensive Plan in accordance with Laws of 1976, Chapter 127 ; and WHEREAS, the Council of the City of Saint Paul is authorized under Minnesota Statutes, Section 462.355 to adopt or amend a Comprehensive Plan or portion thereof after a recommendation by the Planning Commission; and WHEREAS, the City engaged public safety consultant Carroll Buracker a�d Associates to propose a "master plan" for fire and emergency medical services; and WHEREAS, a committee of fire and emergency medical services staff and concerned citizens convened to evaluate the consultant recommendations; and WHEREAS, after thorough study of the consultant recommendations and other issues relevant to fire and emergency medical services in Saint Paul, the committee issued a report entitled, Plan for Fire and EMS services in the City of Saint Paul, Minnesota; and WHEREAS, a number of recommendations contained in the committee's report pertain to facility or system decisions appropriate for inclusion in the City's comprehensive plan; and WHEREAS, after legal public notice, the Planning Commission held a public hearing on the report of the committee on May 11, 1990; and WHEREAS, the Department of Fire and Safety Services has developed a report recommending improvements to the fire investigation function, entitled the Arson Committee report; moved by �� DONET,T, seconded by �EID in favor___��__ against 2 , � 9o~13d6 NOW, THEREFORE, BE IT RESOLVED, that the Planning Commission endorses the process and effort which resulted in the report of the Committee; and That the Planninq Commission forwards the Committee report, with Arson Committee addendum, to the Mayor with the recommendation that its contents be used to direct appropriate administrative and budqet decisions; and That the Planning Commission recommends adoption of the attached plan, which excerpts and is consistent with the Committee report, as a segment of the City's Comprehensive Plan, replacing the 1976 � fire services plan. � �� -� 366 .� D � o D D PLAN FOR FIRE AND EMERGENCY MEDICAL SERVICES � FOR THE CITY OF SAINT PAUL June 1990 PURPOSE The fire/EMS plan, as proposed by the Planning Commission, presents recommendations for the delivery of fire and emergency medical services in the City of Saint Paul. The goal of these recommendations is to maintain a high standard of life, health and property protection in the face of current and anticipated challenges and constraints. PROCESS The recommendations in the report resulted from the Commission's evaluation of the report of the Fire Plan Evaluation Committee. The Committee's report was based on an assessment of a plan prepared for the City in 1989 by public safety consultants Carroll Buracker and Associates. Study of that�report and further investigation of issues by the Committee led to the 80 recommendations contained in the Committee's report. A public hearing was held on the Fire Plan Committee report on May 11, 1990. The Commission is recommending that the Fire Plan Committee report be used to direct administrative and budget decisions. The Commission is also recommending adoption of a fire/EMS chapter of the City's Comprehensive Plan, which excerpts and is consistent with the recommendations of the Fire Plan Committee report. � PLAN SUMMARY The plan recommends that the City continue to cross-train fire fighters in EMS and assign them to both EMS and fire apparatus at existing stations, a practice known as dual personnel. The dual staffing model makes efficient use of limited personnel, but necessitates that the City retain the current number of operational fire stations so that there is adequate back-up response for those times when a company is out on another call. The plan recommends that the City develop and implement a modified two-tiered EMS system within the City of Saint Paul. A modified two-tiered EMS system uses (1) ambulances staffed with emergency medical technicians (EMT's) and with medical technicians specially trained in defibrillation and intravenous practices (EMT-I/D's) to provide "basic life support" (BLS) care and transport, and (2) medic units staffed with paramedics to provide "advanced life support" (ALS) care and transport. Critical to the implementation of such a system are the plan's recommendations to establish a call-prioritization procedure and dispatcher training and certification whereby � the dispatcher can effectively decide which level of EMS response to send to calls. DIVISION OF PLANNING•DEPARTMENT OF PLANNING AND ECONOMIC DEVELOPMENT• CITY OF SAINT PAUL CITY HALL ANNEX• 25 WEST FOURTH STREET, SAINT PAUL, MINNESOTA, 55102 • TELEPHONE 612-228-3270 ." �a�! 3� , N 11 In addition, the plan recommends that the City continue the practice of call-screening , that is, determining whether or not a 9-1-1 call is indted an emergency requiring City EMS response, before dispatching a unit. The plan does stress, however, that call screening must be carefully managed and monitored. To improve the EMS service in the central part of the city, the plan recommends placing an ambulance in service at Station 8 (100 East llth Street) and an ambulance in service at Station 18 (681 University). The addition of these ambulances are first steps in the implementation of the two-tiered EMS system. To provide continuity in fire protection to the second fire district, the plan recommends that an additional fire company also be stationed at Station 18, and that, when new hires become available, the reassigned fire company be replaced. To address the City's paramedic shortage and stress issues, the plan recommends pay hiring, compensation and management policies which achieve and maintain an adequate level of staffing. The plan also makes recommendations for improving the size, abilities and continuity of the communications staff. The plan says that a multi-lingual public education program should be funded to inform citizens of the proper and correct use of the 9-1-1 system and of the proposed policy of call- prioritization. The plan proposes a number of facility improvements, including the adaptation of sleeping and restroom facilities to accommodate female fire fighters. It says that the City should study the feasibility of constructing a new Fire Department administrative facility. The plan finds that more information is needed for complete Fire Department capital planning and recommends the development of a five-year capital improvement plan to begin with the City's 1992-1993 capital improvement budget planning process. The plan finds that there is inadequate fire protection of the downtown airport and recommends options for discussion with the Metropolitan Airport Commission. The Committee is also concerned about the capacity for responding to metro-wide disasters and recommends that the City take a lead role in improving disaster planning. The plan recommends the development and implementation of practices and polices that ensure fair and inclusive hiring and promotion, and that ensure that the fire/EMS service is made up of highly qualified individuals. The plan also makes recommendations for improving procedures and policies, investigating the centralization of inspection services and adding investigation, management and support capacity to the arson unit. Copies of the complete Plan for Fire and Emergency Medical Services: A Chapter of the Saiat Paul Comprehensive Plan, are available at the Planning Division office, llth floor, City Hall Annex, 25 West Fourth Street, Saint Paul. Telephone: 228-3270 � 1 �� PLAN FOR � FIRE AND EMERGENCY MEDICAL SERVICES for the City of Saint Paul, Minnesota � � ' � l � 1 � January 29, 1990 � Recommendation of the Fire Plan Evaluation Committee to the Saint Paul Planning Commission � � 1 � 1 � � � . FIRE PLAN EVALUATION COMMITTEE � - -, Chair David McDonell (Planning Commission)� , � Community Kathryne Haggerty (CIB Committee) �y Kirk Hayes ✓ Tina Moreland (CIB Committee)✓ �! Jon Walsh (CIB Committee)✓ Kathy Zieman (Planning Commission) ✓ 1 Department of Fire and David Huisenga (EMS) ✓ � Safety Services Lawrence Stanger (Operations) Gary Trudeau (Administration) ✓ � Fire Supervisory Timothy Fuller ✓ Association � Fire Fighters Union Gary Olding ✓ (Local 21) Saint Paul Ramsey R.J. Frascone � � Medical Center � STAFF � � Mayor's Office Ron Kline '� Kelly Tanzer '� � Planning and Economic Nancy Frick Development � � � � � j � � � � CONTENTS � REPORT SUMMARY 1 Major Issues and Recommendations 1 Major Consultant Recommendations Rejected � � by the Committee INTRODUCTION 1 Consultant Report I � Evaluation Process 1 COMMITTEE RECOMMENDATIONS 3 Overall Service Delivery 3 � Communications �1 Facilities 15 Fire Fighting Operations 1� � Inspections 20 Community Relations 21 Special Service Areas and Incidents 22 � Human Resource Management 23 CONCLUSION 27 � APPENDICES � FIGURES � 4 Fire station location and apparatus (Map 1) � Fire districts (Map 2) 4 Three-minute travel time coverage from existing fire stations (Map 3) 8 � Three-minute travel time coverage from existing EMS stations (Map 4) 8 � � � � � � FIRE/EMS SERVICES PLAN REPORT SUMMARY � This report of the Planning Commission's Fire Plan Evaluation Committee presents recommendations for the delivery of the City's fire and emergency medical services. The recommendations of the Committee are submitted to the Saint Paul Planning Commission � for consideration in updating the 1976 fire services plan. The recommendations have resulted from the Committee's evaluation of the Fire and � Safety Services Master Plan, prepared under contract with the City by public safety consultants Carroll Buracker and Associates (July 1989). � MAJOR ISSUES AND COMMITTEE RECOMMENDATIONS Study of the plan proposed by the consultant and further investigation of issues by the Fire Plan Advisory Committee resulted in 80 Commitfee recommendations. The ma jor � points of this report are summarized here. A. Overall Service Delivery � Issue: Emergency medical service delivery (EMS) is a major responsibility of the Department. How this function is structured and managed is critical to its success. An � all-ALS (paramedic unit) system, which has been the City's goal for years, is not necessary to meet Saint Paul's emergency medical needs and may underutilize and degrade the paramedic skills needed for critical cases. � Recommendation 1. Develop and implement a modified two-tiered EMS system within the city of � Saint Paul. � Issue: How emergency apparatus are staffed is an integral part of determining the number and location of fire stations. As long as there are enough stations to provide back-up, the ` practice of "dual staffing" fire engines and EMS units makes efficient use of limited field � personnel. There is generally adequate fire coverage provided by the existing location of fire stations. Recommendations � 2. Continue cross-training of fire fighters in EMS and dual staffing of EMS and fire apparatus at existing stations. � 3. Retain the current number of operational fire stations. Issue: There is a service gap for EMS in the center of the city. � Recommendations � 4. Put an ambulance in service at Station 18 (681 University) and permanently assign an additional fire company to the second fire district (to be stationed at Station 18) to provide continuity in fire protection. When new hires become � available, replace the reassigned fire company. 5. Put an additional ambulance in service at Station 8 (100 East llth Street) to be dual staffed by the existing company. ,� i � Issue: The Fire Department has a severe paramedic shortage. In addition, a two-tiered � EMS system which relies more on BLS service, as recommended by the Committee, must have an adequate number of EMT's and EMT-I/D's. Recommendations i 6. Implement the following pay differentials: six percent for any EMT who works � on an ambulance or medic company, eight percent for EMT-I/D's, 10 percent for paramedics, and 12 percent for paramedics with more than five years experience. Provide training bonuses to paramedic trainees. 7. Make rotation of paramedics to other apparatus for a minimum of 15 percent of � their work time mandatory. 8. Recruit and hire certified paramedics as fire fighters. � 9. Require that all currently-certified EMT's and new hires maintain EMT certification. Detail or compensate personnel for this training and testing. � B. Communications � Issue: The Fire Department communications center is understaffed. Recommendations � 10. Staff the communications center with a minimum of three personnel (2 dispatchers and 1 supervisor/dispatcher) at all times and hire staff to support � that level. Base adjustments in staffing the shift on workload assessment. 11. Introduce civilian personnel into the dispatch center in 1990 and replace the 24-hour shift for communications personnel with an alternative work shift, with � the provision that present and future injured fire fighters are given priority for jobs. � Issue: There is a lack of community understand�ng of the d�fferent tevels of EMS response, the non-transport policy and the appropriate use of "9-1-1". Recommendations � 12. Continue the current policy of "call-screening" (determining whether or not the � call is of a non-emergency nature) by dispatchers. 13. Develop and fund a public education program to inform the public of the proper and correct use of the 9-I-1 system and of the future policy of "call- � prioritization". Public education should be conducted in different languages. Issue: Dispatchers need more training to make decisions about which level of response (in � a modified two-tiered EMS system) to send to an incident. Dispatchers also need training for giving pre-arrival instructions to the caller. � Recommendations 14. Institute an effective "call-prioritization" procedure (determining which type of � EMS response to send - BLS or ALS) with appropriate protocols for use by dispatchers, in conjunction with the development of an effective and formalized fire and EMS dispatch training and certification program. � ii � � 15. Develop a program in which pre-arrival instructions are to be given by emergency medical dispatchers on appropriate incidents. � C. Facilities Is u : Current space allocated for Fire Department administration and related functions is � inadequate for the future. Recommendation � 16. Conduct a cost and feasibility study of constructing a new administrative facility, including offices, training center and building maintenance division, in time for submission for the 1992-1993 capital improvement budget. �� Issue: Current Fire Department planning for capital facilities is inadequate and needs to � be strengthened. Nevertheless, some needs for immediate rehabilitation are evident. Recommendations � 18. Budget for the following improvements: a. Renovate Station 20 (2179 University Avenue) with a new addition on the � west side of the building and installation of two overhead doors on the north side of the building to allow fire apparatus to enter from that side. � b. Install a new roof on Station 6 (33 Concord). c. Renovate the training tower during the next five years. d. Install ventilation equipment for apparatus exhausts in the stations which � need them. e. Equip station apparatus bay doors with door closing pre-emption devices which would reverse their travel should a vehicle or person enter the �. doorway as the door is closing. f. Adapt sleeping and restroom facilities in all stations to accommodate female � fire fighters. g. Install monitoring devices on underground fuel storage tanks. � 19. Develop an incremental five-year capital improvement plan to begin with the 1992-1993 CIB planning process. � D. Fire Fighting Operations � Issue: Fire Department written policies and procedures are limited and, in some cases, out of date. � Recommendation 20. Develop comprehensive policies and procedures between stations and shifts, including general orders, standard operating procedures, informational bulletins � and training bulletins, as described in the Buracker report. �. iii � Issue: Improvements are needed in how the Department's fire investigation function is � organized. Recommendation � 21. Make fire investigation a section of the fire prevention division, with the I� addition of two qualified back-up investigators for each shift and adequate management and clerical support. E. Ins ections � P Issue: The involvement of several City agencies in property inspection and violation � correction results in some perceived and actual inefficiencies. Recommendation - 22. Seriousl review the complex arrangements of the four agencies conducting � Y inspections in order to improve the coordination of the inspection service and to determine the possibility of centralizing the inspection services. � F. Community Relations � Issue: While there is generally a high degree of public satisfaction with fire and EMS services, there is opportunity to increase community interaction by making stations more accessible to the neighborhoods. � Recommendation 23. In future internal and external publications, stress the Department's interest in � expanding visits by citizens to stations. G. S ecial Service Areas and Incidents � P Issue: The downtown airport has inadequate fire protection. � Recommendation 24. Discuss and come to a conclusion with the Metropolitan Airport Commission � (MAC) regarding these options for the fire protection of the downtown airport: a. Full funding and staffing of a fire service facility on airport property by � MAC; b. City staffing of an airport fire service facility built by MAC on airport � property, with the staffing funded at some level by MAC; or c. Acceptance by MAC of increased risk of having the airport served by Station 6 and funding at some level by MAC of staffing at Station 6. � Issue: The disaster response capability in the metropolitan area is suffering from a lack �� of coordination. � iv ,� � Recommendation 25. Have the City administration take a lead role in working to establish a metro-wide disaster emergency response plan and capability. � � H. Human Resource Management Issue: The City has had difficulty achieving its objectives for hiring females, as well as more minorities, for sworn fire service positions. � Recommendations � 26. Develop and implement a recruiting strategy for aggressive hiring of capable and qualified ethnic minorities and females. 27. Suspend the five point residency bonus for fire fighters for five years or two � entrance tests, whichever comes first, to determine if the lionus has an effect on hiring. The Personnel Office should then perform a study and analyze the results. This suspension should sunset after five years unless action is taken to � readopt. � Issue: The City needs to increase the perception of professionalism, objectivlty and trust in its Fire Department performance evaluation and promotional processes. Recommendations � 28. Develop written guidelines or a manual governing the periodic performance evaluation procedures. � 29. Consider the explicit weighting of periodic performance evaluation ratings in future promotional processes. � 30. Enhance the objectivity and fairness in all promotional techniques, especially in the oral interview component. Development and application of the oral interview technique should embrace the technology inherent in the assessment center � technique. � MAJOR CONSULTANT RECOMMENDATIONS REJECTED BY THE COMMITTEE There are several proposals in the consultant-prepared plan which are not supported by � the Fire Plan Evaluation Committee. The most important of these are as follows: 1. "Stop the practice of dual staffing." The Committee found "dual staffing", the � practice of staffing the fire engine and medical vehicle in a station with the same personnel rather than with two separate companies, to be an efficient use of limited personnel, so long as there is adequate back-up for the apparatus which is left out of � service when a company is out on a call. Dual staffina should be continued. 2. "Decrease the number of fire stations, apparatus and district chiefs" which would no � longer be necessary if dual staffing were eliminated. With the continuation of dual staffing, the overlapping fire station service areas are necessary for back-up. Stations should not be closed• aaaaratus should not be retired• the number of district chiefs � should not be reduced. v �. 3. "Upgrade ambulances 9 (1624 Maryland Avenue) and 17 (1226 Payne Avenue) to medlc � status and place a medic unit at Station 18" to complete implementation of a � single-tiered all-ALS emergency medical service. While a single-tiered all-ALS (paramedic unit) emergency medical service system has been the City's goal for many years, the Committee has concluded that a two-tiered system with the proper balance of upgraded BLS (ambulances) and ALS (paramedic units), and proper training of � dispatchers in which type of response to send to incidents, is a better way to use limited EMS personnel and to ensure that their skills are being put to the best use. A modified two-tiered svstem should be imnlemented. � 4. "Consider combining the police and fire dispatch center." The Committee finds that the special knowledge required for dispatching fire and emergency medical response � is more likely to be developed and maintained if the fire dispatch function is kept separate from the police dispatch function. The Citv should not nursue combination of these two functions. � 5. "Consider phasing out the practice of call-screening." The Committee believes that � "call-screening", the practice of having the dispatcher determine whether or not a medical call is an emergency requiring response from the City EMS service, is advisable so long as (1) the policy only screens out calls which are clearly non-emergency, (2) dispatchers are adequately trained in application of the policy � ("when in doubt, dispatch"), and (3) the community is fully educated about the proper use of 9-1-1, call-screening and call-prioritization. Call-screeninQ. carefullv mana�ed. should continue. � 6. "Impose a filing fee for required hazardous material information filings." The Committee finds that the intent of hazardous material filings is to have the � information available to help the Department protect the community in the event of an incident, not to generate revenue or be a burden on business. The Committee does not judge the required filings to be a major administrative problem for the � Department. The Citv should not imoose a fee on hazardous material information filinQS at this time. �� lin s on fire h drants to the national standard." The � 7. Cons�der sw�tching the coup g y Committee sees no persuasive argument for incurring the large cost involved in altering all hydrants and hoses. The non-standard couplings on Saint Paul fire � hydrants present few problems; the Minneapolis Fire Department, with which Saint Paul has a mutual aid agreement, has adapters for the Saint Paul hydrants. The Citv should leave the counlinas on the hvdrants as thev are. � 8. "Exaraine legal issues involved in the use of personal equipment in a fire station." The � Committee finds that the Department has benefited from the voluntary work performed by fire personnel in making vehicle and building repairs with their own equipment, and that there have been few or no problems with this practice in the past. The Citv should not find reasons to discoura�e these voluntarv efforts bv fire � fit�hters. � vi � � � 9. "Fully equip reserve apparatus." Reserve apparatus is normally used to fill in for apparatus undergoing scheduled maintenance or repairs. It is very rarely called up to respond to an incident, and when it is, it is usually called for the fire fighter � assistance rather than for the extra equipment. By not having the reserve apparatus equipped at all times, each station maintains accountability for its equipment, which would otherwise have to be taken off the unit before it could be sent to another station. The Denartment should maintain its current nolicies reQardin� reserve � apnaratus eauinment. � 10. "Consider negotiations for mutual aid agreements with communities which surround the city." The Committee believes that Saint Paul would have little to gain from mutual aid agreements with other communities (other than Minneapolis with which Saint Paul already has an arrangement). The Committee rather believes that, under � such agreements, Saint Paul's Fire Department could be overburdened by demands for service from these other cities, which do not have full-time paid fire fighters. The Committee stresses that a rejection of this recommendation does not mean that Saint � Paul would discontinue its present policy of assisting other metro communities when they have major incidents. The Citv should not nursue mutual aid a�reements with municinalities other than Minneanolis. � 11. "Reduce the weight for seniority in promotional decisions. The Committee finds that, �� due to the nature of the fire service, seniority has particular value and should remain � highly weighted when promotions are considered. The Citv should maintain the current wei�ht for senioritv in nromotional decisions. � 12. "Set eligibility requirements for becoming an assistant chief." The Committee finds that the minimum requirements for assistant chief recommended in the Buracker report may limit the ability of the chief to form an administrative team supportive of � and able to carry out the chief's direction for the Department. The eligibilitv for assistant chief should remain at the discretion of the fire chief. � 13. "Lower the requirement for eligibility to the rank of district chief." The Committee is not persuaded that the requirement needs to be lowered and finds that the current 15-year requirement is a fair amount of time. The eli�ibilitv reauirement for district � chief should not chan�e. � 14. "Change the organizational structure of the Department" as described in the Buracker report. The Committee believes that it does not have enough information or standing to comment on what the overall structure of the department should be, except for � those specific items relating to individual issues found in this report. The Citv should respect administrative nero�ative in the or�anization of its devartments. � 15. "Re-evaluate sending the arson investigator to all fires; train additional officers in arson detection." The Committee finds that having fires investigated by captains not trained to the level suggested for fire investigators is not consistent with the intent to � improve investigation. The Denartment should continue assiQnin� fire investi�ators to working fires and when the fire commander otherwise reauests an investiaator. � � � vii � � � FIRE�EMS SERVICES PLAN � INTRODUCTION � This report of the Saint Paul Planning Commission's Fire Plan Evaluation Committee recommends improvements in the City's fire and emergency medical services. It is the latest development in a long-range planning process initiated over a year ago by the City of Saint Paul and its Department of Fire and Safety Services (Fire Department) � administration. The goal of these recommendations is to maintain a high standard of life, health and � property protection in Saint Paul in the face of current and anticipated challenges and constraints. � CONSULTANT REPORT In January 1989, the City hired the public safety management firm of Carroll Buracker � and Associates to develop a "comprehensive master plan". The last fire services plan was adopted in 1976. Since the 1976 plan was done, the service complexion of the Department has changed significantly. There are proportionately far more emergency medical calls � and fire calls of a non-emergency nature than before. The Department has also since taken on inspections and hazardous materials responsibilities. The capital facilities recommendations are completely out of date. In short, the 1976 plan is no longer useful � to the Saint Paul Fire Department, Mayor or City Council. The consultant was asked to propose a 10-year plan covering staffing, facilities, departmental structure, policies and procedures for fire and emergency medical services � (EMS) in Saint Paul. The work of the consultant was monitored by an advisory committee composed of Fire Department and City staff and representatives of the business community, neighborhoods and labor. � The consultant's report, Fire and Safety Services Master Plan (referred to in the remainder of this report as the Buracker report), was delivered to the Mayor and Fire Chief on July 14, 1989. The plan includes nearly 200 recommendations, a proposal for � implementation and a cost estimate and schedule for the highest priority recommendations. � EVALUATION PROCESS � In August 1989, at the Mayor's request, the Saint Paul Planning Commission created the Fire Plan Evaluation Committee to review and advise upon the Buracker report. The Committee included representatives from the community, the Fire Department administration, the Fire Fighters Union, the Fire Supervisory Association and Saint Paul � Ramsey Medical Center. Committee members are listed aC the beginning of this report. The Committee found several of the consultant recommendations to be of a purely � administrative nature and not appropriate for committee input or Planning Commission consideration. Appendix A presents the Fire Department's process for assessing and, where appropriate, implementing those recommendations. This was prepared at the � direction of the Mayor and reported to the Committee at its request. The remaining 120 consultant recommendations were studied and evaluated by the Committee and are the basis of this report. � 1 � � FIRE/EMS SERVICES PLAN COMMITTEE RECOMMENDATIONS � The major issues posed by the Buracker report are in the areas of (1) overall service delivery; (2) communications; (3) facilities; (4) fire fighting operations; (5) inspections; (6) community relations; (7) special service areas and incidents; and (8) human resource �, management. � OVERALL SERVICE DELIVERY The Department of Fire and Safety Services currently performs fire prevention, fire suppression and emergency medical services for residents, businesses and institutions in � Saint Paul. The first responsibility, fire prevention, includes education and inspection activities. The Buracker report found the City's programs in fire education to be excellent and the Committee recommends no changes to them, The Committee reviewed � inspections as a separate issue. (See page 20.) It is the remaining two responsibilities, fire suppression and EMS, which are discussed in this section of the Committee's report. � Existin Situation g � Map 1 depicts the general locations of the 16 fire stations in Saint Paul and the number and type of apparatus housed at each. As shown, there is at least one fire engine at each station. Seven stations have ladder trucks and two house rescue squads. The rescue ' squads also double as hazardous material units. At a minimum, the three closest available fire engines and the closest available ladder truck and rescue squad are dispatched to every structural fire. The district chief and an � arson investigator are also sent. Map 2 illustrates the fire district boundaries. Ten of the fire stations have emergency medical response vehicles stationed at them. Two � of these vehicles are ambulances, which are staffed with emergency medical technicians (EMT's) and equipped to provide "basic life support" (BLS) care to patients. The other eight are paramedic units, which are staffed with at least two paramedics and two EMT's � and equipped to provide "advanced life support" (ALS) care. Having two types of EMS response, BLS and ALS, is known as a "two-tiered" system. Having one type of response, i.e. all-ALS, is known as a "single-tiered" system. Sincc 1973, � the City has been converting to a single-tiered ALS system, which is why there are more paramedic (ALS) units than ambulances (BLS) in Saint Paul. The City's on-going plan has been to eventually convert the remaining two ambulances to ALS paramedic units. � Currently the closest available medical unit is sent to each EMS call, regardless of the apparent nature of the case. Most times the closest available medical unit is the more � advanced paramedic unit. In those cases where it is an ambulance that is closest and therefore the vehicle dispatched, a paramedic unit is also sent as back-up. In addition, if there is a fire engine closer than the nearest available EMS vehicle, it will also be sent. Fire apparatus often are called to assist at EI�IS incidents as well. � In the Saint Paul Fire Department, all of the EMS field personnel (EMT's and paramedics) are cross-trained fire fighters. All newly-hired fire fighters must be trained as EMT's. � Paramedics are fire fighters who have volunteered for and completed advanced training. The training for both EMT's and paramedics is provided through Saint Paul Ramsey Medical Center. � 3 r4AP 1 � SAINT PAUL FIRE STATIONS; APPARATUS � �.��w ,� ---1 � _.�"."._� � �o, �� ; �� R �" ° *, °w ""� � � • """` 1 Engine Company � '� � ; � '`� 23 23 �, 2 � °t 9 ' Ladder Company � � � �' ,� _ � x � �� , tiRfq � / � p ; � ,� � �f � " " � E�� O Rescue Squad/ � 2 � � � 2 � '°" � " � Hazardous Materia� � �,.�.,. 18� ; . � � F ' � n E � � � 4 24 � 2 District Chief � $ �..,� � ,' 14 °a, � 5 E °•��, �� `'�^ .,� � Building Maintenanc � � � � � E ; 4 � q �'s " � � Q Equipment Services � � R� �i +s q�� P �. 8 0 Q i •a 'A A,xao ♦ � arw1aa �E ..9� ��1� �� . � _ � 6� �i �. � � Q Fire Prevention � � � � � � � � � � # ¢ � 10 , __'�___�` � &� ` A --- � �° � Headquarters � � a 1 A �R ;FIRE STATIONS4 � � � �� % 1: 296 W. Seventh 14: i i i N.Snelling .� QT Traiaing Tower \ � �„� �e � 4: 505 Paync 17: 1226 Payne � `; 5: 860 Ashland 18: 681 University `�'�.� �Medic \� � 6: 33 Concord 19: 2530 Edgcumbe 4 �°`� 7: 1038 Ross 20: 2170 University ��e "` ; � \ 8: 100 E. Eleventh 22: 225 Front '�� ' 9: 1624 E. Maryland 23: 1924 Como � DAmbulance 10: 754 Randolph 24: 273 White Bear ,``Q�----•- % � MAP 2 ' SAINT PAUL FIRE DEPARTMENT DISTRi('T BOUNDARIES � � �� y_ +w � �` E Mv NC R � � �� M � �� 2 � m � � 5 � � � � �.. G! VO� p w �r.eww �� g ■ � �c rn s� � r �� .� � s�c.V.a� g f � m � Q wsww r g d !n E � �u�w,o�. b � �° x rt � C ! � � � �� M � � � j ausr � �/� !� � 3L E Rty�� iM'� p Y� y 9 � aW� wf G � � �,� "°° � �4 � ..«.w � � 8 � � ' 'e �,�ow �� 4 � � �� Y a � �' � � �� a � � � � � � � � � � �. � � a 8 6 y 7 a �1 � � �� s � p� � � � �r'D e •" � � � �W� Source: Saint Paui Department of Fire and Safety Services � 4 � � EMT's and paramedics staff a fire engine as well as the EMS unit at the stations where they are assigned. This practice is known as "dual staffing". When the company is out on , a fire call, the EMS unit in that station is left unstaffed. Likewise, when the company is out on a medical call, the fire engine remains behind unavailable to respond to a firc call. � According to �he Buracker report, about a third of the time the fire or EMS unit from the closest station is not available to respond, because the company is out on another call. In these instances, the next closest available unit is dispatched. � Objectives, Issues and Recommendations � OBJECTIVE: To adapt the Department oj Fire and Sajety Services to present and expected - service needs. � Issue: Non-fire and non-emergency incidents are becoming increasingly competitive with actual fire suppression for fire fighter time. While calls for all types of incidents are increasing and calis to actual fires still account for most fire responses, the fastest � growing demands on fire fighters are from EMS-assist incidents and false alarms. According to the Buracker report, between 1984 and 1988, the number of actual fires increased at an average of 10 percent a year. During the same time, the number of firc � company responses to EMS incidents increased about IS percent annually. (These responscs should not to be confused with EMS vehicle responses to EMS calls). False alarms, system malfunctions and other non-emergency calls increased about 20 percent a year between ' 1984 and 1988. In 1988, 38 percent of all fire runs were to actual fires, 30 percent were fire apparatus � responses to EMS calls and 29 percent were for incidents that turned out to not be emergencies. The remainder were service calls (animal rescues, lock-outs, etc.). Recommendations � 1. Continue to fine those alarm systems which malfunction on a regular basis, in accordance with existing procedures. This refers to the systems which automatically � and directly alert the Department. Fining those which regularly malfunction with false alarms provides an incentive for owners to have them repaired, thereby relieving some of the unnecessary fire runs the Department must now make. Existing � procedures appear to be working well. 2. Change the dispatch assignme�t on probable false alarms from three pumpers to two pumpers if the dispatcher receives no other verification of a fire emergency. In many � cases of automatic system cails, the Department's experience with the building's system, and the lack of any human confirmation of the alarm, combine to create a high level of dispatcher confidence that the call is a false alarm. By reserving the � third response vehicle in these very low risk situations, that vehicle's company is kept available for actual emergencies. � Issue: Emergency medical service delivery (EMS) is a major responsibility of the Department. How this function is structured and managed is critical to its success. An all-ALS (paramedic unit) system, which has been the City's goal for years, is not � necessary to meet Saint Paul's emergency medical needs and may underutilize and degrade the paramedic skills needed for critical cases. � According to the Buracker report, ambulance and paramedic unit responses have accounted for about 65 to 75 percent of total annual Fire Department runs in recent years. EMS responses increased about six percent a year between 1984 and 1988. Thesc runs are in addition to EMS-assistance runs made by fire apparatus, discussed above. � 5 �. In terms of personnel time, response to EMS calls accounts for the single largest � commitment of field staff time (28 percent in 1988). The Committee finds that not all EMS calls currently being attended to by ALS units � warrant that level of response. A significant number could be handled by an upgraded BLS response. An upgraded BLS response involves an ambulance equipped with intravenous and defibrillation equipment and supplies and staffed with "EMT/ID's" -- � EMT's who are trained to start IV's and perform defibrillation. The Committee also finds that the current administrative structure does not provide enough management support for EMS. The number of personnel assigned to EMS � management has not kept pace with the increased demand for service. Keeping the EMS service focused on emergency care is an on-going concern. The City's � medical response service is not intended to provide transportation for patients who are not in an emergency situation. If a City EMS vehicle and its medical company provide a ride for a non-emergency case, another vehicle, from further away, may have to be called � to respond to an actual emergency. Such a delay could be critical. The Department's existing non transport policy is intended to avoid such situations. The Department and Committee do recognize, however, that the risk involved in an error in judgment on denying transport is a very serious one. � Recommendations 3. Develop and implement a modified two-tiered EMS system within the city of Saint � Paul. A "modified two-tiered system" means that there would be two tiers of EMS response: BLS for basic life support calls, and ALS for advanced life support calls. The system is "modified" because rather than having all EMS cases receiving a BLS � unit first and then an ALS unit, the decision as to what to send is based on dispatch and medical protocols. The BLS tier is upgraded as discussed above, and therefore able to handle somewhat more serious calls than traditional BLS service. Such a � system will include an adequate number of upgraded ambulance (BLS) units and staff (EMT-I/D's) to respond to BLS-type emergencies, and a reduced number of paramedic (ALS) units which will be reserved for ALS-type emergencies. This will make better � use of limited paramedic staff, maintain their skills for the most critical cases and more fully utilize the capabilities of the EMT's which staff the ambulances. 4. Add two EMS assistants to perform reporting, quality assurance, coordination and � public information responsibilities. This will provide the management support which the EMS function of the Department now lacks. 5. Regularly audit all incidents in which there is no transport to determine proper � application of EMS Guidelines on Patient Transport. The risk of error in denying City transport of patients must be minimized to the extent possible. � Issue: The Fire Department needs to continually maintain and expand its knowledge about new approaches and technologies in fire service and EMS delivery. � Municipalities of a similar size to Saint Paul.generally have dedicated planning and research units within their fire departments to help them keep pace with developments � that can result in cost-effective service improvements. Recommendation 6. Add one planner position to the Fire Department. This would centralize and bolster � the planning responsibilities now being performed by personnel within various operational and administrative areas of the Department. � 6 � � OBJECTIVE: To locate fire stations and deploy personnel and apparatus in a way that ensures adequate response to emergencies and optimal use oj existing resources. � Issu ' How emergency apparatus are staffed is an integral part of determining the number and location of fire stations. As long as there are enough stations to provide back-up, the practice of "dual staffing" fire engines and EMS units makes efficient use of limited field � personnel. There is generally adequate fire coverage provided by the existing location of fire stations. The Buracker report recommends "split staffing" fire engines and EMS vehicles, that is, � assigning a separate company to each vehicle. Doing so would allow the City to close several fire stations and still maintain good response times. However, in order to do so, the City would have to add at least 52 additional field personnel at an annual cost of at � least $2.3 million. The Committee believes that other less drastic steps can be taken to address the problems which the Buracker report attributes to the practice of dual staffing. Ninety-five percent of the city can be reached from the existing fire stations within thc � recommended three-minute travel time for fire response. The gap where the fire engines cannot arrive within three minutes is in the southeast corner of the city. (Map 3) One hundred percent of the city can be reached within five minutes. These travel times � assume that the closest unit is dispatched. There has been a deficiency in the computer-aided dispatch (CAD) system where the closest unit is not always recommended by the system. � In parts of the covered area, there is a significant amount of overlap in three-minute travel areas among stations; however the Committee finds this redundancy to be important for providing back-up for those times when the closest company is out of 1 service on another call. The Committee finds, however, that the Buracker report does not provide enough � information to definitively determine the adequacy of existing station location if dual , staffing is continued as the Committee is recommending. This issue is more fully addressed under the Facilities section on page I5. � Recommendations 7. Continue cross-training of fire fighters in EMS and dual staffing of EMS and fire � apparatus at existing stations. No change in the basic model of service delivery is indicated. � 8. Retain the current number of operational fire stations. The dual staffing approach to EMS/fire service requires the back-up response capacity available in the existing pattern of stations. However, future needs of the Department will dictate � replacement of obsolete stations and possibly new locations for stations in order to continue adequate emergency response service. 9. Realign the response areas for each station so that the closest station is sent on every � fire call. The improved computer capability will allow this to take place. 10. Ensure that the minimum staffing allowed at shift change is: three personnel for � engines, tcucks, paramedic units, and ambulances, and four personnel for squads. These are minimums to allow the vehicles to be kept in service; the administration determines the appropriate number for normal apparatus staffing. � � 7 MAP 3 � SAINT PAUL FIRE DEPARTMENT 3-MINUTE TRAVEL TIME COVERAGE FOR FIRE SUPPRESSION ..�.�,� ---- � .w � , � � ,� � � � � ,�' � � � � � a e ; i i� i "i � > � � •w,�D � � � 1O�Fire Station `� ,Q`:e � ; � �I; �,� � � ; � �'o..__._._._. .: __. � MAP 4 SAINT PAUL FIRE DEPARTMENT 3-MINUTE TRAVEL TIME COVERAGE FOR EMERGENCY MEDICAL SERVICE � �+a4nraw " ��1.-="� ? .. � � � �� n? t . �° �. k ' :�... � i�.-- � 1 � � � ,�,� Y � 2'^'ar � � �;'� " �:.. � � :::.�:�`.•. i � !rr ,� . � ,�� ..t � � � i � .r . £5.�.. y �,Y: s. .F�� q :� � b � � F 1.` �: 3 W �.�: .� 3..'F< � t�' � i � '�� ..r. � 8 i F �1 �' �:. � �'�'�s.� � � i � � � i � �.. . .,,,.c i � , ,, i� ` �: . .. _... __. ... .. ... . _ i . � � � �.. � �� 4❑�EMS Station ',,0 �� ;e � + � � �«::;. ,� � � _..._ : _,. 'Q_.__._._._. .� t. � � � � 8 Source: Carroll Buracker & Associatcs, Inc. � � Issue: There is an EMS service gap in the center of the city. As shown on Map 4 on the previous page, the southeast portion of the city which is outside of the three-minute response area for fire service, is likewise outside the � three-minute response area for EMS, yet within the five minute EMS response area. Given the lower number of EMS calls from this area, the issue of EMS coverage is not a priority at this time. � The other uncovered area, located in the center of the city as shown on Map 4, does have a lot of EMS calls, however. It is also a heavy fire call area; care must be taken to ensure � that adding more EMS response capability here does not downgrade the fire response capability. Recommendations � 11. Put an ambulance in service at Station 18 (681 University Avenue); permanently assign an additional fire company to the second fire district (to be stationed at Station 18) � to provide continuity in fire protection. When new hires become available, replace the reassigaed fire company. This will help alleviate the current gap in EMS service in the center of the city and reduce the heavy EMS work load at Station 22 (225 Front Street), 14 (111 North Snelling Avenue) and 10 (754 Randolph). The newly-added fire � company will cover for those times when the existing fire company, which will now be dual staffing the new ambulance, is out of service on an EMS call. � This action is recommended as a first step in implementing the two-tiered EMS system, discussed on page 6. 12. Put an additional ambulance in service at Station 8 (100 East llth Street) to be dual � staffed by the existing company. This is also to address the EMS needs in the central part of the city and to alleviate the heavy,work load at Stations 4 (505 Payne), 6 (33 Concord Street) and 22. It too is a step in implementing the two-tiered EMS system. � Issue: There needs to be flexibility in the stationing of apparatus and personnel to � respond to the changing needs of the community. Recommendations 11 and 12 above respond to current needs. Demographic and physical � changes in city neighborhoods will indicate what service refinements to make in the future. Recommendation � 13. Conduct an evaluation to determine the workload, type of calls and area of service for the eutire EMS and fire suppression system, before placing any additional ambulances � in service. The Committee recommends an incremental, flexible approach to implementing the two-tiered EMS sytem to ensure that it is responsive to the needs of the community at the time each incremental step is taken. � Issu : The average response time for fires has increased. � In 1988, the fire suppression response time was about three and a half minutes, up from just under three minutes in 1984. The 1988 average response time for EMS was a little over four minutes; figures are not available for 1984. The fire response time appears to � have increased in direct relation to the number of calls. � 9 � Recommendation � 14. Collect and analyze operational times to determine factors that may assist in decreasing the response time. This is intended to make best use of the existing deployment of resources. � Issue: The Fire Department has a severe paramedic shortage. In addition, a two-tiered � EMS system which relies more on BLS service, as recommended by the Committee, must have an adequate number of EMT's and EMT-I/D's. To adequately staff all of the paramedic units the Department now has would require 87 � and preferably 98 paramedics. At this writing, there are 77 who are assigned to EMS units or in the paramedic pool. The hiring freeze which has been in effect since July 1988 and the lack of volunteers for the paramedic service among existing fire fighters � have resulted in too few paramedics to staff the vehicles. Adding to this shortage is the DepartmenYs system which allows paramedics to bid into stations that do not have paramedic units, where they work only as fire fighters. � As the two-tiered EMS system is implemented, there will need to be a full complement of EMT's, as well the recommended number of EMT-I/D's. While there are now enough EMT-trained fire fighters, only about 30 percent of them renew their EMT certification. � Recommendations 1 S. Continue the emergency medical services training program. The program, � characterized by the Buracker report as "excellent", is essential to the quality of thc EMS function in Saint Paul. 16. Implement the following pay differentials: six percent for any EMT who works on � either an ambulance or medic company, eight percent for EMT/I-D's, 10 percent for paramedics and 12 percent for paramedics with greater than five years experience. � These would apply only to assigned and pool individuals, but would continue during vacations, rotating off ambulances, etc. This pay raise should occur irrespective of any other contract negotiations and would apply to base salary. These incentives � should result in EMT's being willing to be trained to the level of EMT/I-D (an EMT who is trained to start IV's and perform defibrillation) which will be needed for the upgraded BLS tier of the EMS system, and should encourage more existing and futurc fire fighters to become paramedics. � 17. Provide paramedic trainees with a bonus of four percent of base salary for the period of time that they are in training. Make payment upon successful completion of the � certification process. As above, the intent is to attract more volunteers to paramedic training. 18. Given adequate staffing, make rotation of paramedics to other apparatus for a � minimum of 15 percent of their work time mandatory. The Buracker report finds that the paramedic shortage is due, in part, to "burnout" from unrelieved assignment to EMS. � 19. Recruit and hire certified paramedics as new fire fighters. Individuals who are already certified as paramedics before being hired would be available for service in � about half the time of those who must go through paramedic training after fire fighter training. � 10 � � . � 20. Require that all curreatly-certified EMT's and new hires maintain EMT certification. Detail or compensate personnel for this training and testing. Particularly with the new greater emphasis on BLS in the proposed two-tiered EMS system, it is important , that the Department have enough properly trained EMT's. COMMUNICATIONS � Effective fire suppression and EMS response begins with an effective communications system. Information-gathering and dispatch must be done quickly, accurately and � dependably. When the system fails or becomes inefficient due to equipment, personnel, policies or procedures, the safety of the community is jeopardized. � Existing Situation In Saint Paul, as throughout the metro area, citizens are instructed to telephone "9-1-1" for � emergencies. The Saint Paul calls are answered by Saint Paul police personnel who determine the nature of the call and route fire and EMS calls to a fire dispatcher. The Police and Fire Departments maintain separate dispatch centers in the same room. � The fire communications center is staffed by uniformed fire fighters. Like station personnel, the dispatchers work 24-hour shifts. During the shift, they rotate off the panel every four hours to rest or do other activities. Currently, dispatchers mainly receive their � training on the job. The 9-1-1 system automatically provides dispatchers the address from which the call is � being made. The current computer-aided dispatch (CAD) system prompts the dispatcher to request specific information from the caller for input to assist in dispatching decisions. The CAD system indicates which fire apparatus and/or medical vehicles to send based on predetermined criteria. The computer terminal screen also displays the status of � apparatus on a zone map of the city. With this information, the dispatchers decide what to dispatch. � For medical calls, the Department has engaged in a practice known as "call-screening". With call-screening, dispatchers determine whether a medically-related call is indeed an emergency requiring City response, or a non-emergency for which the caller should � arrange for a private ambulance. The Department has now limited the screening of calls by dispatchers to a very basic level. The current prime emphasis in EMS dispatch is speedy response. The policy is to dispatch � the closest available EMS unit, and if a fire vehicle is even closer, dispatch it as well. In most cases, the closest EMS unit is a paramedic unit, but when it is an ambulance, a paramedic unit is also sent as back-up. Dispatchers do not now choose between an � ambulance or paramedic unit on the basis of the type of incident. � Objective, Issues and Recommendations OBJECTIVE: To maintain a communication Junction able to promptly and reliably respond to emergency fire and medica! calls with appropriate dispatch and support. � Issue: Aithough the responsibility for fire and EMS dispatch is best kept separate from police dispatch, the Fire Department does depend upon the Police Department for accurate �. and prompt call-taking and forwarding to the fire/EMS communications center. � 11 _ � The Committee does not agree with the consultant proposal for possible combination of � police and fire dispatch. The Committee finds that having a separate fire and EMS dispatch center increases the likelihood that proper responses will be dispatched. The. dispatcher must assess each incident to decide what response to send. This requires a � special knowledge about the nature of fire and medical emergencies. This level of knowledge, as well as consistency with departmental policy, is more likely to be developed and maintained if the fire dispatch function is kept within the Fire Department, separate from the Police Department. � Recommendation 1. Develop stronger,cooperation between fire and police dispatch while maintaining them � as two separate functions. More cooperation will alleviate any procedural problems, especially between the Police telecommunicators, who initially take the 9-1-1 call, and � the Fire Department dispatchers, who must act on them. Issu : The Fire Department communications center is understaffed. � There is high turnover among the staff; few fire fighters request assignment to communications; management responsibilities are numerous. The understaffing causes � stress in the center which potentially interferes with the effectiveness of the function. Recommendations � ?.. Upgrade the communications supervisor to district chief. The nature of the position's responsibilities warrants this level of authority, recognition and compensation. 3. Add an assistant to the dispatch center for training, coordination of shifts and '� assisting in dispatch protocol revision. This is to provide the management capability to implement the necessary improvements of the communications function. � 4. Staff the communications center with a minimum of three personnel (2 dispatchers and 1 supervisor/dispatcher) a� all times and hire staff to support that level. Base adjustments in staffing the shift on workload assessment. This level of staffing is � needed to effectively respond to volume of calls the center receives. 5. Introduce civilian personnel into the dispatch center In 1990 and replace the 24-hour � shift for communications personnel with an alternative work shift, with the provision that present and future injured fire fighters are given priority for jobs. The Committee finds that the full staffing of the communications center is essential and � that this will be very difficult to achieve and maintain using only uniformed personnel. The Committee also feels that it is important to retain the option for continued service to the Department by fire fighters who are no longer able to perform in the field. � 6. Compensate civilians in the dispatch center sufficiently to attract and retain qualified personnel. This is to ensure that the staff quality is not downgraded by the � introduction of civilians. 7. Allow fire fighters currently assigned to dispatch to remain there, provided they � complete a training program certified by the Fire Department. The Committee wants it to be clear that the purpose of hiring civilians is to augment, not displace, the fire fighters assigned to communications; the Committee also feels that consistent training � of all dispatchers is essentiaL � 12 � � 1 8. Train three fire fighters on each shift (preferably assigned to ladder companies) to provide back-up ass[stance as dispatchers. This is also to protect against understaffing of dispatch. Ladder companies are not as busy as engine companies. � I su : The fire communications center is housed in inadequate space. � The corner of the Public Safety Building communications room that is assigned to the Fire Department is large enough for three people, but becomes too crowded when a captain is assigned for orientation training or when additional personnel are assigned to � dispatch. There is insufficient space for any expansion. Recommendation � 9. Provide additional suitable space for the communications center with adequate space for the supervisor and assistant. A less crowded physical space will contribute to a less stressful and more productive work environment. r Issue: There is a lack of community understanding of the different levels of EMS � response, the non-transport policy and the appropriate use of 9-1-1. The directive to call 9-1-1 in emergencies has been very successfully communicated to the public. However, the understanding is in many cases oversimplified. When the public � does not understand or respect that 9-1-1 and the City EMS system are for emergencies - only, it creates problems for the Fire Department co�munications function. Some callers use 9-1-1 for regular business calls to City departments. Other callers apparently assume � that dialing 9-1-1 is adequate to report an emergency and do not stay on the line to provide any information. The City does re-contact the caller in these cases, but doing so takes extra time, which could be critical. Also, if the City cannot make contact, it must � respond to the address without knowing if it is a police, fire, medical or non-emergency incident. Another misunderstanding that some callers have is the expectation that immediate � response will be dispatched to situations that are clearly non-emergency. The Committee finds that it is not appropriate to dispatch City EMS vehicles to calls that the dispatcher can clearly and confidently determine are not medical emergencies. The community does � not thoroughly understand that this call-screening policy is intended to decrease the risk of EMS vehicles being unnecessarily out of service when actual emergencies occur. Finally, as discussed on page 6, the Committee finds that City transport of cases which � the on-the-scene medic has determined is not an emergency, is not advised since it also takes vehicles out of service. The community does not fully understand this "non-transport" policy. � A new misunderstanding appeared to have developed after recent news reports about some individual cases where miscommunication or poor judgment may have been responsible � for an inadequate EMS response. After that report, Department and medical personnel encountered citizens who believed that the City simply would not respond to 9-1-1 calls at a1L � Recommendations • 10. Continue the current policy of "call-screening" (determining whether or not the call is � of a non-emergency nature) by dispatchers. As noted, the Committee finds that sending vehicles without question to all 9-1-1 calls creates more rather than less risk to the community. The Committee recommends, however, that the call-screening � policy be very clear and strict that a response will be dispatched unless the dispatcher 13 . � has total confidence that the call is not an emergency. The Committee also stresses that dispatchers must be thoroughly trained in making such decisions, and monitored � and evaluated to ensure that they are properly applying the policy. 11. Develop and fund a public education program to inform the public of the proper and � correct use of the 9-1-1 system and of the future policy of call-prioritization (see recommendation 12 below). Public education should be conducted in different languages. This is intended to reduce the misuse of the 9-1-1 system that � unnecessarily burdens the dispatch function. It also should realign those community expectations about the City EMS service that have created misunderstandings in the past. � Issue: Dispatchers need more training to make decisions about which level of response (in a modified two-tiered EMS system) to send to an incident. Dispatchers also need training � for giving pre-arrival instructions to the caller. The ability of the dispatchers to know when to send a BLS unit and when to send an ALS � unit is absolutely essential to the success of the modified two-tiered EMS system recommended by the Committee on page 6. If dispatchers do not have this ability, the ALS units will likely be overused (which would undermine the purpose of the two-tiered approach) or, worst case, underused (which would put patients at unnecessary risk). � "Pre-arrival instructions" are directions given to the callers as to what to do while they wait for the medics to arrive. While dispatchers often have enough field experience to � give appropriate instructions, the lack of formal training or policies poses a liability risk for the City when they do so. Recommendation � 12. Institute an effective "call-prioritization" procedure (determining which type of EMS response to send - BLS or ALS) with appropriate protocols for use by dispatchers, in � conjunction with the development of an effective and formalized fire and EMS dispatch training and certification program. This is an essential element of the proposed two-tiered EMS system. The two-tiered system will not achieve its goals if � calls are not sorted and vehicles are not dispatched in this BLS/ALS priority manner; the confidence in the system will only be as good as the dispatchers' ability to make the decision between a BLS and an ALS response. 13. Consult with Ramsey Medical Center to provide emergency medical dispatch (EMD) � basic training and continuing education. Saint Paul Ramsey Medical Center has responsibility for the medical direction of the Fire Department EMS function and it , is critical that dispatch and care be in harmony. 14. Develop a program in which pre-arrival instructions are to be given by emergency � medical dispatchers on appropriate incidents. Such a program would allow the dispatcher to use the contact with the caller to provide preliminary basic help to the patient before the ambulance or medic unit arrives. It would ensure that such help is given in an organized, accountable and medically-sound fashion. � Issue: Changes in communications technology provide opportunities to improve the Fire � Department's operations and management capabilities. Communication equipment updates that are promising include: mohile digital terminals, designed to provide digital information to fire personnel on the scene; and an improved � CAD system that can retain call data for analysis. The current CAD system cannot retain data for an extended period of time. 14 � � � � Recommendations 15. Analyze and fund mobile digital terminals for fire apparatus and ambulances within � three to five years. This technology update will further reduce the risk of communication error and improve operations in the field. 16. Fund a dedicated records management system within two years. Maintaining records , of calls and responses for extended periods will allow better system analysis and planning. � FACILITIES � The facilities which are integral to the fire and EMS functions include the fire stations, administration facilities, auxiliary facilities and the water supply and distribution system. � Existin Situation S � As noted, there are 16 fire stations located throughout the city, 10 of which also house EMS companies. The Fire Department administration is located in the downtown Public Safety Building (Station 8, 100 East llth Street). The Fire Department building � maintenance section is housed in an old fire station (Station 11, 676 Bedford Street). The training office utilizes several trailers for classrooms; the training tower is located on Kasota Avenue in the northwest part of the city. The Department is also responsible for � five underground fuel storage tanks. � All buildings have been surveyed for maintenance purposes. A computerized system is on-line which keeps track of building operating costs and includes a preventive � maintenance schedule. Saint Paul shares its water supply system with several surrounding suburbs. There are approximately 780 miles of water mains within the city, sized from four to 42 inches in � diameter. The water supply for fire extinguishment is made available through the 6,100 fire hydrants now located in Saint Paul. In addition, standpipes and automatic sprinklers provide fire protection to buildings in which they are installed. � Objective, Issues and Recommendations � OBJECTIVE: To ensure the adequate Jacilities to house and support the Fire Department. Issue: Current space allocated for Fire Department administration and related functions is � inadequate for the future. The training storage areas are very limited and the classrooms are small. The trailers � used for training are in poor condition. Station 11, used for building maintenance, is also in poor condition. Recommendations � 1. Conduct a cost and feasibility study of constructing a new administrative facility, including offices, training center and building maintenance division, in time for � submission for the 1992-1993 capital improvement budget. While the Committee agrees with the Buracker report that there is a need to improve the training facility, add administrative space and find new space for the building maintenance function, the � Committee feels that more study is needed. 15 . � 2. Sell old Station 11. This building will be unnecessary if and when the building � maintenance division is moved into a new administrative facility. It is in too poor of condition for re-use by the Fire Department. � Issue: Current Fire Department planning for capital facilities is inadequate and needs to be strengthened. Nevertheless, some needs for immediate rehabilitation are evident. � The Committee does not find the information and recommendations in the Buracker report to be complete for capital improvement planning purposes; however, some needs are clear. Seven of the fire stations are in fair or poor condition. The current � configuration of Station 20 (2179 University) creates a dangerous traffic situation on University Avenue when vehicles respond from or return to the station; Station 6 (33 Concord Street) has little roof insulation and the roof drains are poorly placed; the � existing concrete slab around the training tower is badly deteriorated; 15 of the fire stations have little or no apparatus floor ventilation; many would need at least minor renovation to accommodate female fire fighters; the Environmental Protection Agency (EPA) requires monitoring devices on the Department's underground fuel tanks. � Recommendations 3. Budget for the following improvements: � a. Renovate Station 20 with a new addition on the west side of the building and � installation of two overhead doors on the north side of the building to allow fire apparatus to enter from that side. b. Install a new roof on Station 6. � c. Renovate the training tower during the next five years. d. Install ventilation equipment for apparatus exhausts in the stations which need � them. e. Equip station apparatus bay doors with door closing pre-emption devices which � would reverse their travel shoutd a vehicle or person enter the doorway as the door is closing. f. Adapt sleeping and restroom facilities in all stations to accommodate female fire ! fighters. g. Install monitoring devices on underground fuel storage tanks. � These are the renovations for which there is now the most evident need. 4. Develop an incremental five-year capital improvement plan to begin with the � 1992-1993 CIB planning process. The Committee finds that there is not enough information available to make judgement on some of the capital improvement-related � recommendations of the Buracker report, and that the Department needs to expand upon the efforts of that report. S. Incorporate a vehicle ramp area that is large enough to accommodate fire apparatus � and outside training areas in any future fire station. While new stations are not recommended in this plan, if conditions at some time warrant the construction or major renovation of a station, there will be the opportunity to improve upon past � designs. 16 � � � 6. Repair and upgrade masonry exteriors of buildings as needed. This should be part of an on-going maintenance effort. ' 7. Maintain current maintenance standards for fire stations and establish an auditing program to ensure that standards are met. Although preventive maintenance is very cost-effective in the long run, it often becomes a low priority in annual budgeting. The Committee wishes to stress the importance of maintenance by establishing some � accountability for it. � Issue: The water distributlon system can be improved to better deliver water for fire suppression. Although the City's water utility is subject to the City's legislative code, it is a separate � entity from the City administration and reports to the Board of Water Commissioners. " The Board is responsible for all aspects of the system, including the on-going improvements. The Committee is interested in ensuring that fire protection is an � important consideration in the utility's policies and improvement_ budgets. Recommendations � 8. Develop a program to replace all four-inch water mains on a long-range basis. Four-inch mains do not supply water at the rate desirable for fire fighting. � 9. Encourage more use of standpipes and sprinklers in residences for fire protection purposes. Standpipes and sprinklers have the potential for significantly reducing loss of life and property. � ' � FIRE FIGHTING OPERATIONS For fire fighters to be effective, they must be well-trained, have adequate knowledge about the fire risks they are facing, be guided by sound and clear policies and procedures � and be able to depend upon their apparatus and equipment. � Existing Situation Training is the responsibility of the Department's training officer, aided by two assistant � training officers. Other Department personnel, City employees and outside experts are also used as instructors. Training includes drills, formal training sessions, educational classes and testing. According to the Buracker report, 26 percent of field personnel's on-duty time is spent in training. � Knowledge of fire risks is developed through fire fighter visits to buildings in their first response areas. The Department also performs building inspections; however, these are � done from the perspective of code compliance, rather than to acquaint the fire personnel with the potential of a fire. Currently, the control of departmental policies and procedures exists in the fire fighters' , and supervisors' contracts with the City, the City's civil service rules, the general orders of the Department, the rules and regulations of the bureau of fire protection and the training bulletins. � Fire Department apparatus is maintained in accordance with a computerized preventivc maintenance system. In addition to the regular in-service vehicles, the Department has a , number of reserve units for back-up. 17 � � Objective, Issues and Recommendations OBJECTIVE: To ensure that personnel have adequate training and knowledge, that they are , clearly and consistently guided by policies and that they have access to the necessary equipment and apparatus to perform their fire fighting duties in an effective manner. Issue: The Department has insufficient staff resources to meet its training needs. � Training is one of the most important elements of any fire service. At present the ratio � of training personnel to department personnel is 1/I50. This is proportionally far fewer than several similar-sized departments throughout the United States and compares to the Minneapolis Fire Department ratio of 1/79 and the Saint Paul Police Department ratio of 1/36. � Recommendation 1. Add one clerk typist II and two training officers to the training division. This would t give the Department's training division the needed staffing to implement additional training demands for the 1990's. � Issue: The most important training for the Department to ensure is the practice of basic skills. � The basic transfer of skills and continued maintenance of skills takes place at drills. Manual skills such as hose layouts, hose advancements, ladder raises, knot tying, etc., � degrade very quickly unless practiced in a regular, routine manner. Recommendation � 2. Have the training staff develop operational drills with lesson plans to be conducted by capta�ns on a daily basis. The Committee finds that drills are conducted regularly, and wishes to affirm their importance. , Issue: The capability of the Fire Department to fight fires would be enhanced by more � thorough and organized "pre-fire" planning. Pre-fire planning involves developing tactics and strategies for fighting fires in target hazards based on visits to those buildings and data collection by station personnel. There � is limited structured pre-fire planning currently done by the Department and insufficient staff to devote any more effort to such work. Recommendation � 3. Do more elaborate pre-fire planning including: a. developing a standard format and form for recording pre-plan information � � b. developing a list of all buildings which should be pre-planned, � c. assigning the task of pre-planning in a way that distributes the workload across all shifts and stations, and � d. training captains and district chiefs in the use of pre-plans. 18 � � , The strategic and tactical advantage provided by such pre-fire planning can minimize property damage and risk to fire fighters in the event of a fire. , Issue: Fire Department written policies and procedures are limited and, in some cases, out of date. � Staff limitations have resulted in a relatively low priority for policy/procedure development. � Recommendation 4. Develop comprehensive policies and procedures between stations and shifts, including � general orders, standard operating procedures, informational bulletins and training bulletins, as described in the Buracker report. This is to correct any inefficiencies and confusion caused by the current lack of such guidelines. , 5. Increase staff to accomplish the operational improvements recommended. The Committee feels it is important to be realistic about the staff required to implement the time-intensive activities it is recommending. � Issue: The continued reliability of the Department's apparatus is dependent upon � continued commitment to maintenance. The Fire Department apparatus is reliable and in good condition. The existing preventive maintenance program for apparatus is complete and thorough. � Recommendation � 6. Keep the excellent preventive maintenance program and record-keeping system current. The Committee affirms the importance of the preventive maintenance function to smooth operation of the fire response system. � Issue: Improvements are needed in how the Department's fire investigation function is � organized. The arson investigation function of the Department has recently come under public scrutiny. This report cannot be concerned with specific questions of competence, � improprieties or illegal activities, but is concerned with policy and organizational influences on effective fire investigation. The current administration of the Fire Department has set up a committee to study ways to improve this function and the Fire � Plan Evaluation Committee has reviewed and agreed with the initial recommendations of this group, which deal with organization for fire investigation and which are reported below. � The remaining work of the Fire Department's arson committee will involve improvements in the investigations themselves, and improvements in reporting those investigations. � Recommendations 7. Make fire investigation a section of the fire prevention division. Provide adequate management and clerical support to allow effective transition of arson into fire � prevention. This will provide budget administration, supervision and quality control and clerical support to the fire investigations function. � 19 � 8. Provide one fully-trained and certified fire investigator (earning six percent premium � pay) and two qualified back-up investigators (earning three percent premium pay at all times and six percent premium pay while working in fire investigations) on each shift. At present, the back-up investigator does not necessarily have the minimum amount of training and experience appropriate for the job, nor does that back-up � investigator receive compensation for attaining and maintaining fire investigative techniques. � INSPECTIONS � Part of an effective fire prevention function is a regular inspection of property for hazards in violation of fire code. � Existing Situation In Saint Paul, property is inspected for compliance with building, fire, housing, health � and zoning codes and with any licenses or permits issued. Structures that are up to code receive a certificate of occupancy. This certificate must be renewed annually. Many agencies are involved in inspections, licensing and permitting in the city, including � Building Inspection and Design, Public Health, Licensing, Zoning, the City Attorney and Police, as well as the Fire Department. The major responsibilities of the Fire Department � are certificate of occupancy inspections, complaint inspections and business license inspections. Ob�ective, Issue and Recommendations � OBJECTIVE: To make the inspections, licensing and permitting process as efficient as � possible while protecting the health and safety of the community. Issue: The involvement of several City agencies in property inspection and violation � enforcement results in some perceived and actual inefficiencies. While the fire prevention office of the Fire Department is responsible for certifiying the occupancy of buildings once they are built, the construction of buildings is permitted by � the City's Community Services building division and correction of health code violations is handled by the public health division. Existing cooperative procedures and automation of the code enforcement process has made the system work much better in recent years; � however, there are still cases of missed information or inefficiency. Part of the issue is that the public may not understand the necessity of different � inspections for different purposes (i.e. business licensing, property use permitting, pre-firc planning). , Recommendations � 1. Seriously review the complex arrangemenfs of the four agencies conducting inspections in order to improve coordination of the inspection service and to determine the � posslbility of centralizing the inspections services. Coordination efforts have been on-going and the Committee wishes to encourage continued action to improve efficiency and effectiveness. � 2. Continue cross-training personnel who conduct inspections. This is so that proper referrals can be made when violations are noted. 20 � � COMMUNITY RELATIONS � Communit support for the Fire Department is important to its effectiveness. The main Y basis for satisfaction is the community's perception of how well the Department puts out � fires and treats and transports emergency medical cases. Most citizens assess these services on the basis of second-hand knowledge or general perception, since, fortunately, relatively few citizens have fires or need emergency care. The measures recommended in � previous sections of this report should contribute positively to continued public satisfaction with the Department. � Citizens may also form opinions about the Department if they have experience with the City's inspection program, or if they become familiar with the fire prevention programs presented in the schools and elsewhere. These functions have also been discussed earlier in this report. , � Regardless of their direct experience with the Fire Department's services, the citizens are affected by the day-to-day presence of the stations in the neighborhoods. � Existin Situation g � A 1986 random survey of Saint Paul residents found 93 percent saying they were satisfied or very satisfied with the quality of fire protection provided in their neighborhood. (The survey did not address EMS.) The Department has built good relations in its outreach � programs for schools, seniors and other groups. The station blood pressure check program has also been successful. Recent challenges to community perception about the Department have come from news � reports about the 9-1-1 system and the Fire Chief/arson investigation. The Committee's recommendations regarding these two issues are found, respectively, on pages 11-14 and pages 19-20 of this report. � Objective, Issues and Recommendations � OBJECTIVE: To maintain a strong sense of community ownership of the Fire Department and the services it provides. � Issue: While there is generally a high degree of public satisfaction with fire and EMS services, there is opportunity to increase community interaction by making stations more accessible to the neighborhood. 1 Concerns about the security of fire stations, especially with the medical supplies and expensive equipment kept at them, have led to a policy of keeping station doors closed � much of the time. This may create an image of isolation from the rest of the neighborhood. This is direct contrast to the image the City wishes to promote, that is, that a fire station is a part of the community, and, in particular, a place to come in times � of emergency. Recommendations , 1. Allow fire station doors to remain open at the discretion of the on-duty station commander. The station commander should be able to use judgement as to the proper balance between station security and community accessibility. I2. � Ensure that door bells are installed near the front entrance of all fire stations. In this way, the station staff can be alerted even when the station doors are closed. ' 21 � 3. Ensure that an automatic-dialing emergency telephone directly linked to the central communications/dispatch system is installed near the front entrance of all fire � stations. Having this will allow persons who have come to the station for emergency help, to find it, even when the station company is out on a call or at training. 4. In future internal and external publications, stress the Department's interest in � expanding visits by citizens to stations. Such visits will strengthen relationship between the Department and the community. � SPECIAL SERVICE AREAS AND INCIDENTS � The major constituencies for Fire Department services are Saint Paul residents, businesses and institutions. However, the Department has or can have special arrangements in � addition to its regular service commitments. Although most incidents to which the Department responds involve a limited number of individuals and properties, the City must always be prepared for a major disaster. � Furthermore, such a major emergency situation may be area-wide in nature and outside the direct authority of the City. � Existing Situation Unique major facilities needing fire and EMS protection in or near Saint Paul include the � downtown airport, the University of Minnesota and the State Fairgrounds. Saint Paul has an emergency preparedness coordinator and an emergency plan which is � designed to enable the City to handle a disaster. The emergency plan includes resource lists, procedures and plans for medical disasters, tornado disasters, floods, hazardous materials incidents and aircraft accidents. � Objectives, Issues and Recommendations � OBJECTIVE: To ensure that the services needs of special areas are met but at jair compensation to the City. Issue: The downtown airport has inadequate fire protection. � The downtown airport is a major factor in risk assessment of the city and is projected to � have an increase in flights. There are portions of the downtown airport which cannot be reached in the recommended three-minute travel time from the closest station (Station 6, 33 Concord). � Recommendations 1. Discuss and come to a conclusion with the Metropolitan Airport Commission (MAC) � regarding these options for the fire protection of the downtown airport: a. Full funding and staffing of a fire service facility on airport property by MAC; , b. City staffing of an airport fire service facility built by MAC on airport property, with the staffing funded at some level of MAC; or c. Acceptance by MAC of increased risk of having the airport served by Station 6 � and funding at some level by MAC of staffing at Station 6. 22 � � � , Some arrangement should be made to improve service to this important area. Issue: The City may be undercompensated for the fire protection services for the � University of Minnesota and the State Fairgrounds. 'The last review of the City's contract with the University of Minnesota for providing firc � protection was completed in 1983. It is currently under review again. In 1988, the Fire Department responded to 49 fire calls on the university's property. The contract for the State Fairgrounds is also being reviewed now; it was last considered in 1977. In 1988 the � Fire Department responded to 39 fire calls at the fairgrounds. The Buracker report suggests that the cost incurred may not be covered by these contract amounts. Recommendation � 2. Consider renegotiating the University of Minnesota and State Fairground contracts, basing the cost upon the number of runs, fire risks and population. It is appropriatc � to link compensation with expected demand for service. � OBJECTIVE: To prepare the commu�iity Jor mass casualty and large disaster situntio�rs. Issue: The disaster response capability in the Metropolitan area is suffering from a lack of coordination. � While the Committee finds adequate training for in-city disasters for which the Fire Department has command responsibility, there are questions about the City's role in � reacting to a major regional disaster in view of the lack of inetro-wide disaster planning. Recommendations � 3. Continue to regularly schedule mass casualty and major disaster drills. These drills prepare the Fire Department to cope with any special emergencies which may occur in Saint Paul. � 4. Have the City administration take a lead role in working to establish a metro-wide disaster emergency response plan and capability. This must involve all appropriate � governmental units in order to be effective. � HUMAN RESOURCE MANAGEMENT The key to an effective fire and emergency medical service is the quality of the personncl � in the Department. It is important not only who is hired but also how they are evaluatcd and rewarded once on staff. � Existing Situation The City's Office of Personnel and Labor Relations provides the Fire Department with , human resource management services including recruitment and selection, performance appraisal monitoring and employee assistance. Both entry and promotion positions in thc Fire Department are filled by competitive examination. For each position the job is � studied and the knowledge, skills and abilities needed to perform it are determined. A test is then administered to candidates for the positions to measure their mastery of the knowledge, skills and abilities. Candidates who have resided in the city for one year � prior to the test date may receive five points residency bonus. Veterans preference points 23 � are also available for veterans who meet the criteria. A list of candidates who pass the � test is given to the Department from which they can fill position vacancies. All candidates who are hired by the Department must pass a medical ex�mination. Once hired, the new recruits enter a three-year apprentice program. All employees must pass a probationary period. � The Uniform Guidelines on Employee Selection and Civil Service Rules govern the selection process. The City's Affirmative Action Reach-out policy is used to provide � employment opportunity to racial minorities, women, and the disabled. Recruitment efforts are also targeted at these protected class groups. Test preparation assistance is provided for both the written and physical tests for entry level fire fighters. The last � fire fighter examination was given in May of 1988 and is under litigation. A court decision is expected in the spring of 1990. The City will conduct another job analysis prior to giving the next entry level fire fighter examination. � Promotional testing in the Fire Department uses assessment center techn�ques �n the selection process. Assessment centers consist of a variety of exercises such as in-baskets, role plays and group discussions. A simulation exercise, promotability rating and oral ' interviews are also used. The top three scoring candidates for each vacancy are available for the Department to interview for each position opening. The City is in the process of revising its performance appraisal system. The new system � is tailored to the specific needs of every department. An employee assistance program is available to all City employees and their families. Employees are notified of this service when they are hired and once a year thereafter. There is no citywide suggestion system � although the Fire Department has implemented their own. Objective, Issues and Recommendations ! OBJECTIVE: To recruit, select, treat and promote Department employees in ways that achieve � high quality service while being fair and inclusive. Issue: The City has had difficulty achieving its objectives for hiring females, as well as more minorities, for sworn fire service positions. � At the time of consultant study, 95 percent of the Fire Department employees were male and 91 percent were white. Of fire fighters, none were female and 11 percent were , minority. The Department has not been hiring sworn personnel because of on-going litigation. Recommendations � 1. Develop and implement a recruiting strategy for aggressive hiring of capable and qualified ethnic minorities and females. The strategy will include advertisements in � protected class publications, personal contacts with college physical education programs, health clubs, community organizations, Association of Women in Fire Suppression and other such groups. � 2. Suspend the five point residency bonus for fire fighters for five years or two entrance tests, whichever comes first, to determine if the bonus has an effect on hiring. The Personnel Office should then perform a study and analyze the results. This � suspension should sunset after five years unless action is taken to readopt. The Personnel Office has found that a larger pool of applicants will increase the likelihood of finding qualified female and minority candidates. � 24 � � 3. Continue developing a fire cadet program that is geared for 16-18-year-old students in � Saint Paul public and private schools and focused on minority and female participants. Such efforts have been successful in other fire departments for attracting young minorities and women, as well as other young people, into the � fire/EMS profession. 4. Continue providing reasonable assistance for minority and female applicants in both � the written and physical ability tests. Test tutoring sessions will be provided for applicants for the written exam. The sessions will focus on both test taking skills and review of a study guide. For the physical portion of the examination, training guidance will be given in the form of orientation sessions, handouts and actual test ' practice. 5. Include in the Department's proposed manual of operating procedures a firm policy � statement that racial, ethnic and sexual remarks will not be tolerated in the Department under any circumstances, that sexual remarks will be considered to be sexual harassment, and that appropriate disciplinary actio.ns will be taken for any � violation. In addition to ensuring that the Department encourages fairness and diversity in its hiring, it is important that all employees are treated respectfully and professionally within the Department. � Issue: The City must ensure that fire fighters are physically able to do their jobs. � The physical abilities test for fire fighters is nnder litigation and is not commented upon by the Committee. In addition to the test, hired fire fighters are subjected to an entry medical exam, where any debilitating problems found can be cause for termination. � Recommendation 6. Develop the entry medical examination to be more consistent with the National Fire � Protection Association (NFPA) standard 1001. The NFPA examination itself is extensive and would be costly to conduct. However, the standards can be analyzed and changes made to improve the medical examination in Saint Paul. � Issue: The City needs to increase the perception of professionalism, objectivity and trust in its Fire Department performance evaluation and promotional processes. � The Cit has continually been working to update and improve its personnel evaluation Y and promotion procedures. Still, the Fire Department must overcome the history of ' mistrust betweefl management and ranks which has the potential to undermine the quality of the service. � Recommendations 7. Include the Department of Fire and Safety Services in revision of the City-wide performance evaluation report. The revision of the performance evaluation form by ' the Personnel Office does apply to all departments. The Committee wishes to lend its support to this effort. � 8. Consider expanding the ratings in performance evaluations to five quantified categories (i.e. excellent/good/satisfactory/fair/poor). This is being done. 9. Develop written guidelines or a manual governing the periodic performance evaluation � procedures. This will be handled as part of the development of a revised system for the City. I 25 � 10. Train all raters in the application of performance evaluations. According to the � Buracker report, the existing performance evaluation methods represent respectable approaches "if used fairly and conscientiously and honestly". 11. Coasider the explicit weighting of periodic performance evaluation ratings in future � promotional processes. The Committee found this to be an appropriate linkage between employee performance and promotability. 12. Make every effort to ensure the security and integrjty of the promotional testing , components and processes. The City is committed to this now; however, the Committee wishes to affirm this point in response to the special concerns in the Fire , Department. 13. Enhance the objectivity and fairness in all promotion techniques, especially in the oral interview component. Development and application of the oral interview technique � should embrace the technology inherent in the assessment center method. Because of the inherently subjective nature of scoring an oral exam, these exams are of particular concern to employees who may be suspicious of the promotion process. � 14. Make greater use of the simulation, promotability rating and assessment center techniques in various promotional processes. These techniques are advantageous because they enable multiple ratings to be done on each candidate and for the � candidate to perform on actual tasks that are required for effective performance. Issue: Department personnel do not utilize the Employee Assistance Programs to the � extent expected. Utilization of the Employee Assistance Program by City personnel has been declining � from about five percent in 1985 to less than two percent in 1988. The Buracker report estimates that five to 10 Fire Department employees used the service in 1988. Recommendations � 15. Emphaseze the importance of outreach in immediate plans for the Employee � Assistance Program, including an evaluation of the current lack of utilization. Outreach efforts may cause more employees and their families to use the service. 16. Evaluate the cost-effectiveness of the current EAP after one year of outreach; � consider alternative services. If the outreach does not cause more employees to use the service, it should be analyzed to determine if another type of service might better meet employee needs. � Issue: Employees need encouragement to contribute suggestions for the betterment of the � Department. The Buracker report finds that a department suggestion system exists but apparently is not used to any significant degree. � Recommendations � 17. Revitalize the Department of Fire and Safety Services Suggestion System and incorporate a monetary reward component. It is important to encourage constructive � communication between Fire Department employees and their administration. 26 ' � � FIRE/EMS SERVICES PLAN � CONCLUSION The Department of Fire and Safety Services has a generally good record and reputation � for performing its responsibilities to the citizens of Saint Paul. This report addresses the issues facing the Department as it enters the 1990's. The focus of the Committee's efforts in preparing this document has been on the Buracker ' report. The Committee has found the Buracker report to be thorough in providing useful information and raising pertinent issues. The Committee is in agreement with most of the consultant recommendations. The most significant areas of disagreement are listed in the � report summary. In many cases, where the Committee does not agree with a consultant recommendation, it recommends an alternative. The two-tiered EMS system is the most notable of the alternative recommendations made by the Committee. ' The most important area for which the Committee cannot provide definitive alternative recommendations regards capital facilities. The Buracker report bases its capital recommendations (fire station closings, repairs, etc.) on its recommendation to replace � dual-staffing EMS and fire vehicles with split-staffing those vehicles. The the Committee does not agree with split-staffing, but does not have enough information to devise or evaluate alternative capital improvements. Therefore, it is essential that the Fire � Department develop a capital improvement plan, as the Committee recommends, in order to complete the planning effort begun with the Buracker report. � ' � � � � , ' � , 27 APPENDIX A Memo Re: Fire Department ;.0; Disposition of Administrative -� Recommendations Referred by , CITY OF SAINT PAUL Committee � INTERDEPARTMENTAL MEMORANDUM � September 18, 1989 � TO: Master Plan Evaluation/Implementation Committee � FROM: Gary Trudeau �� Assistant Chief of Administration , SUBJECT: Master Plan Recommendations Documents C and D � � The Master Plan recommendations contained in Documents C and D have been referred to the Fire Administration. We intend to address � these documents as follows: - Document C has the agreement of all represented Fire Department ' groups and will be addressed on an individual basis with status and timetables if necessary. � - Document D has no agreement and will be addressed as a group. The recommendation in Document D will have to be addressed in a meeting between Administration, Fire Supervisors, and Local 21 � representatives. The Fire Administration is confident that a number of the�e proposals will be easily handled and worked ouz at this meeting. We propose such a meeting as soon as the Master Plan � Committee has concluded their scheduled meetings. We should be able to meet and conclude before the end of this year. Issues not resolved at this meeting will have to be examined at scheduled meetings set up by the three groups. � The recommendations in Document C will be addressed now, issue by issue: � IV. 1 . H. Public information function report to chief , This position is an Administrative Assistant and as such reports to the Fire Chief V. 2 . Program to monitor number and types of non-emergency calls ' This program was initiated after the 9-1-1 series. A formal . program will be in place within 30 days. � ' Page Two , Master Plan Recommendations September 18, 1989 9. Training manual for communication center revised � The department polices and procedures manual will contain a � training section for the communications center. This manual will be completed by January 1, 1990. 10. Training simulator for dispatcher training � Projected date for completion is June 1, 1990. 20. Require use of status button on radio equipment � We already require the use of status buttons. A reminder of this � policy will be sent out immediately. 22 . Fund communication upgrades for third voice channel Fundin for additional communication channels have been submitted � 9 and approved through the normal budget process. 25. New CAD system captures all queing t�me on calls ` The new system should capture all queing times. It is being installed at the present time. � 28 . Develop key punch error checking system We will be w�rking with Citywide Informational Systems (CIS) *.o , develop a poiicy for double checking their work. 31 . Redefine activities recorded by CAD system ' Ac�ivity recording will be a part of the new CAD system when it is on line. � 32 . A. Training staff to train officers on ICS B. All district chiefs use ICS � C. Adapt ICS as described in plan � The Training Division started ICS training in the fall of 1988 . A General Order implementing the use of ICS was issued on February 22 , 1989 . Incident Command Procedures will be a part of the � Standard Operating Procedures Manual. ' . . � ' � � Page Three , Master Plan Recommendations September 18, 1989 , 35. Regular visits to stations by executive staff Visits to the stations by executive staff have been on-going for , many years but an attempt to increase the number of visits per month will be made. 37 . Training requirements for all staff � Training requirements for all officers will be evaluated with our � training division using NFPA guidelines. A department requirement � will be implemented after conferring with the appropriate bargaining units. This should be accomplished by January 1, 1990. � 38. Automated records system Training records are being entered into the employees file at the present time and will be put into the automated system by clerical � staff on a monthly basis. 39 . Improve training records �, The Training Officer has established a reporting system to advise - the administration on a monthly basis. Entries will be entered into the automated system when appropriate. � 40. Records for regular testing of apparatus ' Most of the record keeping recommended in this proposal is being done at the present time. Additional testing and record keeping will be added and recorded by January 1, 1990. � 42 . Encourage senior officials to belong to professional . association � All fire officials and supervisory personnel belong and are encouraged to take advantage of any available training. This has been an on-going program for many, many years. , 43 . Five year training plan , The Training Division will accomplish this by June 1, 1990. 46. Inspections - monitor and continue/add scalding program , The Fire Prevention Bureau and pubTic education programs are standards for the nation. We will continue to provide the . excellent programs we now provide and consider additional education � programs if we determine they are needed. ' � Page Four � Master Plan Recommendations September 18, 1989 , 49. A. - D. Written plans for Haz/mat The written plans for all hazardous material policies will be a _ � part of our Policies and Procedures Manual. 52 . Emergency response plan for Haz/mat accidents ' The Emergency Preparedness Coordinator has assured us that the local emergency plan will be completed by January 1, 1990. , 53 . Curriculum to meet NFPA 472 standard Al1 standards and training will be reviewed before the next � hazardous materials course is started. 60. A. Review fire ground operating procedures � B. Insure maintenance of small tools regularly Operations and maintenance will be a part of our Policies and � Procedures Manual. VI.�. 17 . Paramedic recognition , Develop a formal policy by January 1, 1990. " 19 . Shorten paramedic training i Meetings have been held and will continue to be held with our � Medical Directors to determine the appropriate amount of training needed by all of our personnel. ' 22 . One time reentry program - EMT's � This was done back in April, 1989. 23 . No more than 50 percent of paramedics at training � We are currently holding meetings with our Medical Directors. 29 . Close supervision of the EMD � We are in the process of this training program at this time. , VII. 13 . Security and integrating of the testing process ' Maintaining the security and integrity of the testing process is an on-going concern. � � , � � Page Five Master Plan Recommendations � September 18, 1989 24 . Hold regular meeting between Supervisors Association � and Chief Monthly meetings are held now. Additional meetings should be held � whenever either party feels they are needed. 28. Formal awards/recognition program , The City Employee of the Month Program is currently being used. VII. 30. Review human relations consultant report ' 31. Provide support for Human Relations committee ' Fire Administration endorses Local 21's Human Rights Committee and will work with the committee for improvement where needed. ' 32 . Fund training courses related to human relations We agree. � 33 . Policy about racial and ethnic remarks The Policies and Procedures Manual will contain both the City's � racial and sexual harassment policies. ' �IX. l. Appoint safety officer - NFPA 1501 Safety Officer was appointed A�ril 1, 1989 . � 3 . Occupational Safety and Health Committee Committee has been long-standing. , 7 . Continue innovative use of new equipment and fitness program � We agree. , ' 1 . � mm2/master � � , Attachment 1 to � Appendix A .��`"° � CITY OF �11INT pAUI. `F i��t.ru`�'�� s�t, �; • OI'I�ICF nF TI3E �IAl'OR �� i��ii�iii�i: ;:E (?„ nn��_u�tc^= ••,,. _ .`'`. ,^ .{•<:\`` 3�17 CITT IiAI.(. � GEORGIi I.ATIM1iR SAl\1' PAi?7.,MINNI:tiOTA .�.�1<Y.�' MA1'Ult ((il_? 12.t)ti--4:3'._':i � � TO: Dave McDonell and ' Fire Master Plan Implementation Committee FROM: Mayor George Latime � DATE: August 31, 1989 ' I received the 59 recommendations which you referred to me for action. I am delighted to be able to take action on the , consultant 's report and thank you for your work so far. I met with Chief Conroy and his administrative team today and transmitted documents C and D to them. As you requested, I asked , them to report in writing to the committee with timelines on document C. In addition, they agreed to report in writing to the committee the timeline, the process, and who would be involved in � resolving the recommendations on document D. The Chief has agreed to have a report ready for the committee by � September 25. I look forward to receiving your full committee report later this fall . ' GL:bz � cc: City Councilmembers � , ' , ' , � �6��Y.�5 , Attachment 2 to � CITY OF SAINT PAL;L Appendix A �,.,.. �•�� '�� OFFICE OF THE DiAl'OR . � �� , • ^ e . ,... 347 CITY R�i.T. (TEOBOE LATIME$ SAI:TT PAUL,M2N�7ESOTA bS102 � NI�YOE � (612) 298-4323 ' August 30, 1989 , T0: MAYOR GEORGE LATIMER FR: DAVE McDONELL, CHAIR ,�J��..�� `<< �^-.�.C,� � FIRE MASTER PLAN IMPLEMENTATION COMMITTEE RE: RECOMMENDED ACTiON ' At the August 28, 1989, meeting of the Fire Master Plan Implementation Committee, we reached unanimous agreement that 59 , of the recommendations be referred to you for action. Please see attached documents C and D. � Our recommendation is as follows: 1 . We recommend that you transmit document C to the Fire , Administration for implementation. The 41 recommendations ; are agreed upon by the Fire Administration, the Supervisors Association and Local 21 . We further recommend that you direct the Fire Administration to report to the committee in , writing a timeline for when the recommendations will be implemented. ' 2 . We recommend that you transmit document D to the Fire Administration for resolution. These 18 recommendations do not have the agreement of the Administration, the � Supervisors Association and Local 21 . We further recommend that you direct the Fire Administration to report to the committee in writing the process they will , use to resolve each of these items, the timeline by which they will be resolved, and who will be involved in resolving them. , While the committee does not need to have a role in implementing these recommendtions, it is concerned with the process and timing , and wants to be sure that all recommendations are acted upon. The committee did not set a deadline by which the timelines should be reported back to the committee. I suggest no later than September 25 . 1 � , Mayor Lat imer � August 30, 1989 page 2 ' The committee is very pleased to be able to present these 59 , recommendations for action to you. Please call me if you would like to discuss further. DMcD: kh ' cc: Committee Members Jim Christianson, Chair, Planning Commission attachments ' � , , . ' , ' ' , ' , � , � , � � Document C , TOTAL: 41 FIRE MA.STER PI�N RECONIl�IENDATIONS TO BE IMPI��NTED � , IV. 1. H. Public information function report to chief V. 2 . Program to monitor number and types of non-emergency � calls 9. Training manual for communication center revised , 10. Training simulator for dispatcher training , 20. Require use of status buttons on radio equipment 22. Fund communication upgrades for third voice channel � 25. New CAD system captures all queing time on calls 28. Develop key punch error checking system ' 31. Redefine activities recorded by CAD system 32. A. Training staff to train officers on ICS . � B. All district chiefs use ICS ' � ' C. Adapt ICS as described in plan 35. Regular visits to stations by executive staff ' 37. Training requirements for all staff 38. Automated records system ' 39. Improve training records ' 40. Records for regular testing of apparatus 42. Encourage senior officials to belong to professional ' association. 43 . Five year training plan , 46. Inspections - monitor and continue/add scalding � program 49. A. - D. Written plans for Hazmat ' ' Document C � Page Two August 28, 1989 52 . E�r,ergency response plan for Hazmat accidents ' 53 . Curriculum to meet NFPA 472 standard � 60. A. Review fire ground operating procedures B. Insure maintenance of small tools regularly ' VI 17. Paramedic recognition ` 19. Shorten paramedic training 22 . One time reentry program - EMTS ' 23 . No more than 50 percent of paramedics at training � 29. Close supervision of the EMD i VII 13 . Security and integrating of the testing process 24 . Hold regular meeting between Supervisors Association ' and Chief ; • ormal awards reco nition ro ram ' 28 . F / g P g 30. Review human relations consultant report ' 31. Provide support for Human Relations committee 32 . Fund training courses related to human relations ' 33 . Policy about racial and ethnic remarks ' IX 1. Ap,point safety officer - NFPA 1501 ' 3. Occupational safety and Health committee 7. Continue innovative use of new equipment and fitness ' program , ' ' . � , . ' � Document D TOTAL: 18 , FIRE MASTER PLAN RECOMP�NDATIONS TO BE RESOLVED ' Iv 3 . Policy leaving station until relieved , V 18 . Phase out temporary assignment of injured fire fighters , in dispatch 32. D. Identify incident commander - vests, jacket, arm , bands 41. Formal program for evaluating new equipment � 49. E. Hazmat to meet NFPA 471 and 472 � 50. Ha2mat information 54 . Transfer emergency management back to fire ' 61. Consider refueling at commercial stations 62. Recalculate repair charges , • VI 18. Security/accountability procedure for drugs ' 25. EMS chief to attend national courses , VII 25. Future assista nt chiefs from ranks of district and ' deputy 26. Department management play active role. Management , demands contracts ' 27. Disciplinary actions examined ' IX 2. Plan to implement NFPA 1500 4. Physical fitness standards to be completed annually , 5. Verification of actual physical fitness time ' 6. Medical criteria to remain on active duty , APPENDIX B Memo Re: Additional Recommen-, ��t** e, y GITY � OF SAINT PAUL dation Referred by Committee ' �+ ; OFFICE OF THfi MAYOR to Administration '� �ii�i�ii�i o `• " 347 CITY HALL ' "" SAINT PAUL, MINNESOTA 55102 JA�IESSCHEIBEL (612) 298-4323 MAYOR , , T0: Mayor Scheibel FROM: Dave McDonell �c�� `(—C:��{ , Cha3�r, Fire Maste� Plan Implementation/Evaluation Committee DATE: January 29, 1990 , RE: Request for Fire Administration ' The Fire Master Plan Committee is nearing the completion of its task. We expect to submit our final draft plan to you within a couple of weeks. At the beginning of our meetings last August we sorted out recommendations which we as a committee , would review and those which we sent directly to the Fire Department for response. There is one additional recommendation for which we recommend you request a response from the department. ' " The Committee recommends that the Department of Fire and Safety Services conduct sensitivity training for firefighters and their spouses in preparation for the hiring of female firefighters. , This training should be completed before females are hired. " We request that you forward this recommendation to the department now. Please call ' me at 699-1137 if you would like to discuss this or any part of the process. DM/kt , , ' , � , . ' ��aa Printed on Recycled Papu �� f Saint Paul Department of Fire and Safety Services ARSON COMMITTEE REPORT February 16, 1990 Addendum to the January 29, 1990 Fire Plan Committee Report Summary of Recommendations Complete report available from the Department of Fire and Safety Services � Report of the Arson Committee SUMMARY OF RECOMMENDATIONS Recommendation A.1 - Fire Investigations should be a section of the Division of Fire Prevention, consistent with the requirements of the Fire Master Plan. This will provide the fire investigations function: 1. Budget Administration 2. Supervision and Quality Control 3 . Clerical Support Recommendation B. 1 - The Fire Investigations section should be administered by the Fire Marshal, who will be responsible for budgeting, planning and overall quality control. In this situation, the Fire Marshal replaces the role presently performed by the Assistant Fire Chief of Operations. Recommendation B.2 - The Fire Investigators should continue to be under the operation direction of the Deputy Fire Chief, as is the case now. Recommendation B.3 - The Fire Investigations section should be managed by a 40-hour/week "Chief Investigator" who is responsible directly to the Fire Marshal for the operation and quality control of the investigations section. The Chief Investigator would coordinate investigations with police, recruit backup investigators, provide for the training of investigators and maintain the Fire Marshal's quality control measures. Recommendation C.1 - Provide one fully-trained and certified investigator on each shift, earning the six percent premium pay, and two qualified backup investigators on each shift who will receive three percent premium pay at all times and a bump-up to six percent premium pay while actually working in the Fire Investigations section. Recommendation C.2 - The title of "Fire Investigator" shou�ld be tiered as Level 1, Level 2 and Level 3 Fire Investigators. This would mirror Standard #1033 of the National Fire Protection Association (NFPA) entitled "Standard for Professional Qualifications for Fire Investigators" and should be used by the Personnel Office when creating the job specifications and requirements for these various levels. SUNII�ARY OF RECOr�NDATIONS Page Two Recommendation D. 1 - One Clerk-Typist should be added to Fire Prevention to support fire investigations and some fire code enforcement activities, such as the hard-wired smoke detector ordinance. Recommendation E. 1 - The Public Information Officer should provide those photographs that relate to public information and education. Recommendation E.2 - A Fire Aide should be used to support other unrelated duties assigned to fire investigators, such as the microwave checks and photo lab work. Recommendation F. 1 - The committee strongly supports the current method of assigning Fire Investigators to all working structural fires or when the fire commander otherwise requests an investigator. Recommendation F.2 - Fire Captains should receive more formal training from the Fire Department Training Division on the detection of suspicious fires and preservation of the fire scene. This would be in addition to the on-the-job training and experience they already receive when obtaining their rank of Fire Captain. This should help insure that all fires, especially suspicious fires, are referred to a fire investigator for a thorough investigation. Recommendation F.3 - Fire Captains should continue to investigate and report the cause and origin of fires they respond to that are non-structural, non-working and non- suspicious in origin. Recommendation F.4 - The Chief Investigator should review all fire incident reports to insure that all fires required to be investigated are investigated and that Fire Investigators are summoned to all suspicious fires. Recommendation G. 1 - Policies and SOP�s should be crafted, drafted, reviewed and enacted to describe how an investigation should proceed. Recommendation H. 1 - The rank of Fire Captain, for at least two years, should continue to be the minimum requirements for primary and backup investigators. Recommendation H.2 - The promotional examination for the position of Fire Investigator should test for the skills and knowledge required by the NFPA Level 1 national standards for fire investigators. .� M - SUNIlKARY OF RECONIlKENDATIONS Page Three Recommendation H.3 - IAAI Certification, which should be required of primary investigators, requires recertification of those fire investigators every five years based upon continuing education earned and documented. This recertification should be maintained by Saint Paul Fire Investigators. Recommendation I. l - The fire department should provide to the primary investigators, as soon as it is available, the National Fire Academy course in fire investigations as well as the three-part Minnesota Bureau of Criminal Apprehension (BCA) fire investigation series available pursuant to Statute 299F.051. Primarv investigators should be required to become Certified Fire Investigators by the Minnesota Chapter of the International Association of Arson Investigators (IAAI) . Recommendation I.2 - The fire department should provide to the backup investigators, as soon as it is available, the National Fire Academy course in fire investigations as well as the three-part BCA fire investigations training series. (IAAI Certification would be required only of the primary investigators. ) • Recommendation I.3 - Backuu investigators should be required to participate in on-the-job training with the primary investigators for at least five working segments before ever investigating a fire by themselves. At the end of these five segments, the Chief Fire Investigator and the Fire Investigators should make an evaluation to determine if more experience is needed for each individual backup investigator. Recommendation J.1 - The Deputy Fire Chief should have the flexibility to assign the designated on-duty backup investigators to assist the primary investigators. Recommendation J.2 - A backup vehicle with a minimum amount of equipment should be acquired, stationed and maintained. Recommendation K. 1 - Funds should be budgeted for sending materials and evidence to private labs and consultants for analysis and evaluation. Recommendation L. 1 - The lawful duties and responsibilities of the fire department to investigate fires should be researched and included in the SOP's for fire investigations. r � `� y , � SUNII�ARY OF RECOr�IENDATIONS Page Four Recammendation M. 1 - The fire department investigators should be officed with the police department arson investigators, but each should remain under the direction and control of their own departments and supervisors as the roles of each department in the investigation of arson fires are somewhat different and require different resources. Recommendation M.2 - The Chief Investigator should work with police officials to enhance the working coordination with the police department investigators in areas of communication, coordination and history-gathering. Recommendation M.3 - A police department fire investigator should serve on the Fire Department Arson Committee to help draft SOP's for fire investigations. Recommendation N. 1 - In addition to the automatic type of hydrocarbon detector already in use, a manual hydrocarbon detector should also be provided as a backup and as verification of the performance of the automatic device. Recommendation N.2 - An automatic film developer should be purchased to reduce the amount of time investigators have to spend in the fire department's dark room. Recommendation N. 3 - A maintenance schedule should be established for the necessary preventative care of all fire investigators' equipment. Recommendation O.l - The standards of the Minnesota State Fire Marshal's Office should be adopted as our method of reporting fire investigations. These standards include: 1. Policies of the State Fire Marshal's Office for making findings of "undetermined" fire causes. 2. A "checklist" or "tickler" of the minimum information needed to be gathered at a fire scene investigation. 3. Guidelines and training for creating narrative reports of fire investigations. 4 . Guidelines for complying with data practices laws. 5. Conformance to the U.S. Fire Administrations National Fire Incident Reporting System (NFIRS) . .�" �. � j , . SUNII�IARY OF RECOMHIENDATIONS Page Five Recommendation P.l - The fire department�s data processing office should create a user-friendly access menu for fire investigators to access the several data bases available. Recommendation P.2 - The Fire Marshal should further explore the feasibility of creating a method whereby investigators can enter their reports directly into a computer terminal screen, from where target data can automatically be compiled for retrieval. , _ _ . _.__ ___ - - - - �-- ;t C-� �10�/3�° 'j � � ; _ ; �'�•' ' CI'rY OF SAINT PAUL ��. ;,.. Pz„�a Members: , I � , ��.��i��, � � OFFICE OF THE CITY COUNCIL I _ � - Dave Thune. Chair �� . Janice Rettman Roger Goswitz � � ' DAVE THUNE �ECEIVED ! Councilmember !. n�C 191991 Date: December 11, 1991 „�,�4 � RK Date: December 18, 1991 � ''� � , � COMMITTEE REPORT: CiTY CLE _ ,� � ; Time: 2:00 p.m. .r _- Place: Council Chambers j 3rd Floor City H 1 �' NEIGHBORHOOD SERVICES COMMI E 1. Approval of December 4, 1991 meeting minutes. APPROVAL ! 2 . Resolution - 90-1366 - adopting the PLAN FOR FIRianND EMERGENCY MEDICAL SERVICES as part of the St. Paul Comprehensive RECOMMEND APPROVAL AS AMENDED 3. Resolution - 91-1916 - approving six-month extension of time to complete work on vacant building located at 448-450 Stryker. WITHDRAWN BY CHAIR THUNE 4. Resolution - ordering the owner t13rEarleStreetmp1Ifetheeowner�failstto referenced building, located at 2 comply with this resolution, the City will be authorized to remove the building. (Before the City Council : 12/19/91.) RECOMMEND 30 DAYS TO REPAIR OR DEMOLISH 5. Resolution - ordering the owner i�$rAcker StreetpEast.thlfrthe�ownertfails referenced building, located at to comply with this resolution, the City will be author�zed to remove the building. (Before the City Council : 12/19/91.) RECOMMEND 15 DAYS TO REPAIR OR DEMOLISH 6. Resolution - ordering the owner to remove or enueletIfttherowner failseto � referenced building, located at 634 Laurel Av comply with this resolution, the City will be authorized to remove the building. (Before the City Council : 12/19/91.) RECOMMEND SIX MONTHS TO REPAIR OR DEMOLISH CITY HALL SEVENTH FLOOR SAINT PAUL, MINNESOTA 55102 612/298-5679 Q.,�..a6 ��°'�3��✓ A PLAN FOR FIRE AND EMERGENCY MEDICAL SERVICEB RECOMMENDED AMENDMENTS Neiqhborbood Services Committee December 18, 1991 Paqe 14. Revise Recommendation 24 as follows: "Fund a dedicated records management system �r�m—� �s in the next three to five years. " Paqe 15. Delete Recommendation 25 and supporting discussion in their entirety. Paqe 17. Revise Recommendation 34 as follows: "Develop an incremental five-year capital improvement plan to begin with the 1992-1993 CIB planning process, such plan to reflect the direction of Recommendation 8 to retain the current number of operational fire stations. " Paqe 21. Delete Recommendation 42 and supporting discussion in their entirety. Paqe 23. Add an Implementation Schedule as follows: "IMPLEMENTATION SCHEDULE The policies included in this plan are intended to guide public decisions relating to the delivery of fire and EMS services for the next several years. The Fire Department has responsibility for implementation of the Plan. It must do so with available resources and based on continuing assessment of priority needs. The schedule below depicts the expected timing of implementation for the policies found in this Plan. Recommendation Timinct Modified two-tiered EMS system. Targeted for 1992 . Dependent upon budget resources. Strong EMS staffing: On-going. - hiring practices Hiring is an immediate - compensation priority. - management practices. ' �,/��-/3�O� ✓ Fire/EMS Plan - Recommended Amendments Neiqhborhood Services Committee DeCember 18, 1991 Paqe 2 Recommendation Timinct Medical services training program. On-going. Improved fire investigation. Immediate. - hiring - compensation - organization - procedures - management practices. Stronger operational planning On-going. Additional and monitoring. personnel dependent upon budget resources. Fair, inclusive, quality-assuring In process. personnel practices. ' Crossed-training in fire and EMS; On-going. dual-staffing of fire and EMS apparatus. Retention of all working fire On-going. stations. Fire station siting guidelines. As needed. (New stations not planned. ) Addition of ambulance and fire Targeted for 1992 . company to Station 18. Dependent upon budget resources. Addition of ambulance to Station Targeted for 1993 . 8. Dependent upon budget resources and work- load increase in next one to two years. Incremental approach to placing As needed for additional ambulances in service. implementation of two- tiered EMS system. ��0-13G� � Fire/EMS Plan - Recommended Amenclments Neiqhborhoo8 services Committee DeCember 18, 1991 Paqe 3 Recommendation Timinct Improved fire protection for In process. Contingent on Downtown Airport. negotiations with MAC. Disaster drill planning. On-going. City leadership in metro area In process. disaster planning. Improved communications staffing Ongoing. - hiring - compensation - training - management. Stronger police/fire Ongoing. communication cooperation. Improved space for fire Targeted for 1992 . communications. Contingent upon comm center consolidation study. Continued "call-screening". On-going. 911 public education. Targeted for 1992 . Dependent upon budget resources. "Call-prioritization". Immediate. Emergency medical dispatch On-going. training. Mobile digital terminals. 3-5 years. Dependent upon budget resources. Records management system. 3-5 years. �yo-i3�� Fire/EMS Plan - Recommended Amendments Neiqhborhood Services Committee DeCember 18, 1991 Paqe 4 Recommendation Timinct Sale of old Station 11. Dependent upon administration/classroom building. Station 20 renovation. Targeted for 1993-1994. Dependent upon CIB budget resources. Station 6 roof. Immediate. Training tower renovation. Immediate. Ventilation equipment. Immediate. Door closing pre-emption devices. Immediate. Sleeping and rest room facilities Immediate. adaptation for female fire fighters. Fuel tank monitoring devices. In process. On-going five-year capital Immediate. improvement program. Fire station design criteria. As needed. (New stations not planned. ) Water main replacement. On-going, long-term. Standpipe, sprinkler On-going. encouragement. Station maintenance and repair. On-going. � �a-i� � Fire/EMS Plan - Recommended Amendments Neiqhborhood Services Committee December 18, 1991 Paqe 5 Recommendation Timinct Training and support staff hiring. Immediate. Improved pre-fire planning. Targeted for 1992. Dependent upon budget resources. Training personnel needed to implement. Preventive maintenance of On-going. apparatus. Cross-training of inspectors. On-going. Improved accessibility of 2-3 years. Phase-in. stations to neighborhoods - open door policy - emergency telephones - publications. 1 ��'D'�3��0 r : � : : . � : : � : i : 1 A PLAN FOR FIRE AND , : EMERGENCY MEDICAL SERVICES A CHAPTER OF THE COMPREHENSIVE PLAN : , Saint Paul, Minnesota , � ' : � ' � ' June 22, 1990 . . . � Recommendation of the Sa�nt Paul Planning Commission � ' Planning Division, Department of Planning and Economic DevelopmEnt ' � ' ' , � ' � A PLAN FOR FIRE AND EMERGENCY I�fEDICAL SERVICES , A CHAPTER OF THE COMPREHENSIVE PLAN Saint Paul, Minnesota � � � � , � ' June 22, 1990 � Recommendation of the Planning Commission to the Saint Paul City Council � � � , ' ' CREDITS ' SAINT PAUL PLANNING COMMISSION # James Christenson, Chair Gladys Morton ' James Curran Karl Neid Robert Ferderer Gary Park Anne Flaxman Geisser Nancy Tracy Linda K. Hirte Imogene Treichel � Frank Horak Robert Van Hoef Kevin Kajer Mark Vaught Joyce Maddox Samuel O. Verdeja � David McDonell Barbara A. Wencl Earl F. Miller, Sr. � FIRE PLAN EVALUATION COMMITTEE David McDonell, Chair Tina Moreland ' R.J. Frascone Gary Olding Timothy Fuller Lawrence Stanger � Kathryne Haggerty Gary Trudeau Kirk Hayes Jon Walsh David Huisenga Kathy Zieman � STAFF , Administration and Policy Direction , Daniel Cornejo, Director Peggy A. Reichert, Deputy Director for Planning Ken Ford, Principal Planner ' Planning and Research Nancy Frick, Planner � Staff to Flre Plan Evaluation Committee � Ron Kline Kelly Tanzer � � ' , , ' CONTENTS � INTRODUCTION 1 , PROCESS l � THE PLAN 2 � OVERALL SERVICE DELIVERY 2 COMMUNICATIONS 11 � FACILITIES 15 FIRE FIGHTING OPERATIONS 19 ' INSPECTIONS 21 1 CONIMUNITY RELATIONS 22 CONCLUSION 24 � MAPS 25 ' ' ' ' � � � ' 1 ' , � A PLAN FOR FIRE AND EMERGENCY MEDICAL SERVICES: A Chapter of the Comprehensive Plan , June 22, 1990 � INTRODUCTION � The purpose of this plan is to recommend improvements in the City's fire and emergency medical services (EMS). The goal of the recommendations is to maintain a high standard of life, health and property protection in Saint Paul in the face of current and � anticipated challenges and constraints. , PROCESS � This chapter of the Comprehensive Plan is based on the work of public safety consultant Carroll Buracker and Associates and its subsequent evaluation by a committee of community representatives and fire/emergency medical service staff. After careful study of the 10-year plan proposed by the consultant (the Buracker report), the committee � submitted its report (Fire Plan Committee report) to the Saint Paul Planning Commission and community. ' The recommendations in the Fire Plan Committee report pertain to some very specific administrative and personnel-related decisions, as well as to broad service or capital-related issues. ' This chapter of the Comprehensive Plan is intended as a long-range guide for public decisions which directly relate to the delivery of fire and EMS services. In order for the plan to be useful over the next several years, its recommendations must allow for ' sufficient administrative flexibility. For that reason, this chapter of the Comprehensive Plan does not include the Fire Plan ' Committee report in its entirety, but excerpts those portions appropriate for a long-term, flexible plan. The more specific or personnel-related recommendations of the Fire Plan Committee report are consistent with this chapter of the Comprehensive Plan, however; the Comprehensive Plan should not be construed as superseding or invalidating the Fire � Plan Committee report. The Fire Plan Committee report should continue to be used to direct administrative decisions. This chapter of the Comprehensive plan includes additional broader policies intended to encompass the specific recommendations from the � Fire Plan Committee report. � ' ' ' ' � THE PLAN , The major issues addressed in this plan include (1) overall service delivery; (2) � communications; (3) facilities; (4) fire fighting operations; (5) inspections; and (6) community relations. OVERALL SERVICE DELIVERY ' The Department of Fire and Safety Services (Fire Department) currently performs fire ' prevention, fire suppression and emergency medical services for residents, businesses and institutions in Saint Paul. The first responsibility, fire prevention, includes education and inspection activities. The Buracker report found the City's programs in fire education to be excellent and this plan recommends no changes to them. Inspections are reviewed as a � separate issue in this plan. It is the remaining two responsibilities, fire suppression and EMS, which are discussed in � this section of the plan. Existing Situation � Map 1 (attached) depicts the general locations of the 16 fire stations in Saint Paul and the number and type of apparatus housed at each. As shown, there is at least one fire engine ' at each station. Seven stations have ladder trucks and two house rescue squads. The rescue squads also double as hazardous material units. At a minimum, the three closest available fire engines and the closest available ladder , truck and rescue squad are dispatched to every structural fire. The district chief and an arson investigator are also sent. Map 2 (attached) illustrates the fire district boundaries. ' Ten of the fire stations have emergency medical response vehicles stationed at them. Two of these vehicles are ambulances, which are staffed with emergency medical technicians (EMT's) and equipped to provide "basic life support" (BLS) care to patients. The other , eight are paramedic units, which are staffed with at least two paramedics and two EMT's and equipped to provide "advanced life support" (ALS) care. Having two types of EMS response, BLS and ALS, is known as a "two-tiered" system. 1 Having one type of response, i.e. all-ALS, is known as a "single-tiered" system. Since 1973, the City has been converting to a single-tiered ALS system, which is why there are more � paramedic (ALS) units than ambulances (BLS) in Saint Paul. The City's on-going plan has been to eventually convert the remaining two ambulances to ALS paramedic units. � 2 ' � ' Fire EMS Plan / June 22, 1990 ' ' Currently the closest available medical unit is sent to each EMS call, regardless of the apparent nature of the case. Most times the closest available medical unit is the more � advanced paramedic unit. In those cases where it is an ambulance that is closest and therefore the vehicle dispatched, a paramedic unit is also sent as back-up. In addition, if there is a fire engine closer than the nearest available EMS vehicle, it will also be sent. Fire apparatus often are called to assist at EMS incidents as well. � In the Saint Paul Fire Department, all of the EMS fieid personnel (EMT's and paramedics) are cross-trained fire fighters. All newly-hired fire fighters must be trained as EMT's. ' Paramedics are fire fighters who have volunteered for and completed advanced training. The training for both EMT''s and paramedics is provided through Saint Paul Ramsey Medical Center. � EMT's and paramedics staff a fire engine as well as the EMS unit at the stations where they are assigned. This practice is known as "dual staffing". When the company is out on a fire call, the EMS unit in that station is left unstaffed. Likewise, when the company is ' out on a medical call, the fire engine remains behind unavailable to respond to a fire call. According to the Buracker report, about a third of the time the fire or EMS unit from the closest station is not available to respond, because the company is out on another call. In ' these instances, the next closest available unit is dispatched. Objectives and Recommendations � OBJECTIVE: To adapt the Department oj Fire and Safety Services to present and expected service needs. ' Recommendations 1. Develop and implement a modified two-tiered E�1S system within the city of Saint � Paul. Emergency medical service delivery (EMS) is a ma jor responsibility of the ' Department. How this function is structured and managed is critical to its success. An all-ALS (paramedic unit) system, which has been the City's goal for years, is not necessary to meet Saint Paul's emergency medical needs and may underutilize 1 and degrade the paramedic skills needed for critical cases. Not all EMS calls currently being attended to by ALS units warrant that level of � response. A significant number could be handled by an upgraded BLS response. An upgraded BLS response involves an ambulance equipped with intravenous and defibrillation equipment and supplies and staffed with "EM'T/ID's" -- EMT's who are trained to start IV's and perform defibrillation. , � � 3 , ' Fire/EMS Plan June 22, 1990 , A "modified two-tiered system" means that there would be two tiers of EMS , response: BLS for basic life support calls, and ALS for advanced life support calls. The system is "modified" because rather than having all EMS cases receiving a BLS ' unit first and then an ALS unit, the decision as to what to send is based on dispatch and medical protocols. The BLS tier is upgraded as discussed above, and therefore able to handle somewhat more serious calls than traditional BLS service. Such a system will include an adequate number of upgraded ambulance (BLS) units � and staff (EMT-I/D's) to respond to BLS-type emergencies, and a reduced number of paramedic (ALS) units which will be reserved for ALS-type emergencies. This � will make better use of limited paramedic staff, maintain their skills for the most critical cases and more fully utilize the capabilities of the EMT's which staff the ambulances. , 2. Develop and implement hiring, compensation and management policies to ensure an adequate level of staffing to respond to E119S calls and efficiently manage the � service, as well as to continue to provide a satisfactory degree of fire protection. . According to the Buracker report, ambulance and paramedic unit responses have � accounted for about 65 to 75 percent of total annual Fire Department runs in recent years. EMS responses increased about six percent a year between 1984 and 1988. These runs are in addition to EMS-assistance runs made by fire apparatus. � In terms of personnel time, response to EMS calls accounts for the single largest commitment of field staff time (28 percent in 1988). There has come to be problems staffing to meet this demand. The Fire Department ' currently has a severe paramedic shortage. To adequately staff all of the paramedic units the Department now has would require 87 and preferably 98 paramedics. In 1990, there were 77 who are assigned to EMS units or in the � paramedic pool. The hiring freeze which took effect July 1988 and the lack of volunteers for the paramedic service among existing fire fighters have resulted in too few paramedics to staff the vehicles. Adding to this shortage is the � Department's system which allows paramedics to bid into stations that do not have paramedic units, where they work only as fire fighters. In addition to addressing the immediate paramedic shortage, the Department must � prepare for the future. As the two-tiered EMS system is implemented, there will need to be a full complement of EMT's, as well the recommended number of EMT/I-D's. While there are now enough EMT-trained fire fighters, only about 30 � percent of them renew their EMT certification. Recruitment and hiring of certified paramedics as new fire fighters would significantly shorten the time it takes for a new hire to be available for paramedic ' service. Compensatory incentives would attract more volunteers to paramedic and EMT/I-D training. Mandatory rotation of paramedics to other apparatus, given adequate staffing, would provide relief from the "burnout" syndrome, discussed in � the Buracker report. 4 ' � ' Fire/EMS Plan � June 22, 1990 ' The Fire Department administration will be guided by the specific recommendations of the Fire Plan Committee report regarding EMS pay differentials, training bonuses, rotation policies, and EMT certification ' requirements. In addition to the problem of adequate field staff is the need for EMS � management. The number of personnel assigned to EMS management has not kept pace with the increased demand for service. The Fire Department administration will be guided by the specific � recommendations of the Fire Plan Committee report regarding the hiring of EMS management assistants. � 3. Continue the emergency medical services training program. The program, characterized by the Buracker report as "excellent", is essential to the , quality of the EMS function in Saint Paul. � 4. Develop and implement hiring, compensation, organizational, procedural and management policies to ensure adequate attention to fire investigation. , Fire investigation is a critical and sensitive responsibility of the Fire Department. A committee of the Fire Department has recommended that several steps be taken in order to improve the function. This committee's report (Arson Committee report) is an addendum to the Fire Plan Committee report. , The Fire Department administration will be guided by the specific actions recommended in that report as well as the Fire Plan Committee recommendations � regarding staffing and organization of the fire investigation function. � S. Strengthen planning, management and operational monitoring to ensure effective service delivery, continued adaptation to community needs, and upkeep with changing service technology and methods. � While a long-range operational and facilities plan forms the basic structure and direction for efficient, effective service delivery, the Fire Department must make many decisions on a shorter-term basis to effectively implement policies and � respond to changing conditions. Commitment must be made to on-going monitoring of the nature of fire and EMS ' calls, response times, and the application of policies such as the no-transport policy. The information gathered must be tied to administrative decision-making. The Fire Department also needs to continuaily maintain and expand its knowledge about new approaches and techniques in fire suppression and EMS delivery. � , 5 � Fire/EMS Plan ' June 22, 1990 � Municipalities of similar size to Saint Paul generally have dedicated planning and ' research units within their fire departments to help them keep pace with developments that can result in cost-effective service improvements. The Fire Department administration will be guided by the specific ' recommendations of the Fire Plan Committee report regarding response to the trend of more false alarms, the regular audit of the no transport policy, adding a planner to the department, and realignment of response areas. , 6. Develop and implement recruitment, hiring, promotional, evaluation and assistance ' policies that are fair and inclusive and that ensure that the fire/EMS service is made up of highly qualified individuals. The key to an effective fire and emergency medical service is the quality of the � personnel in the Department. At the same time, it is important that public service adhere to the broad community goal of equal access in its personnel practices. The City has had difficulty achieving its objectives for hiring females, as well as more ' minorities, for sworn fire service positions. At the time of the consultant study, 95 percent of the Fire Department employees were male and 91 percent were white. Of fire fighters, none were female and 11 percent were minority. The Department has not been hiring sworn personnel because of on-going litigation. � The Fire Department administration will be guided by the specific recommendations of the Fire Plan Committee report regarding recruitment of � capable and qualified ethnic minority and females, trial suspension of the fire point residency bonus for fire fighters to determine the impact on the pool of qualified applicants, providing assistance in the written and physical ability test, ' and a policy which is intolerant of and disciplines for racial, ethnic and sexual remarks. To foster productive and respectful working relationship among diverse personnel, the Department will be guidcd by the recommendation of the Fire Plan Committee to conduct sensitivity training for fire fighters and their spouses in � preparation for the hiring of female fire fighters. Continuance of sensitivity training aimed at developing and maintaining constructive relationships among staff of both genders and of various ethnic minorities is also recommended. , The Fire Department administration will also be guided by the specific recommendation of the Fire Plan Committee report regarding developing the entry � medical examination to be more consistent with National Fire Protection Association standards, as a way to ensure a qualified staff. It is important not only who is hired but also how they are evaluated and , rewarded once on staff. To ensure that the performance evaluation and promotional processes in the Fire Department advance the objective of a high quality service, the Fire Department will be guided by the specific , recommendations of the Fire Plan Committee report regarding performance evaluation revisions, procedures, training and use, and regarding security, integrity, objectivity and particular techniques for promotional processes. � 6 ' ' � Fire/EMS Plan June 22, 1990 ' , In addition, the Fire Department wiil also be guided by the specific recommendations of the Fire Plan Committee report regarding the Employee Assistance Program and a Fire Department suggestion system. , OBJECTIVE: To locate jire stations and deploy persorrrtel a�:d apparatus in a way that ensures adequate response to emergencies a�id optimal use oj existing resources. rRecommendations � 7. Continue cross-training of fire fighters in EMS and dual staffing of EMS and fire apparatus at existing stations. , How emergency apparatus are staffed is an integral part of determining the number and location of fire stations. As long as there are enough stations to provide back-up, the practice of "dual staffing" fire engines and EMS units makes efficient use of limited field personnel. There is generally adequate fire coverage , provided by the existing location of fire stations. The alternative practice of "split staffing" fire engines and EMS vehicles, that is, 1 assigning a separate company to each vehicle, allows closing of some fire stations, but is much more expensive in stafC requirements and is not recommended. � 8. Retain the current number of operational fire stations. Ninety-five percent of the city can be reached from the existing fire stations ' within the recommended three-minute travel time for fire response. The gap where the fire engines cannot arrive within three minutes is in the southeast corner of the city. (Map 3, attached) One hundred percent of the city can be � reached within five minutes. These travel times assume that the closest unit is dispatched. In parts of the covered area, there is a significant amount of overlap in ' three-minute travel areas among stations; however this redundancy is important for providing back-up for those times when the closest company is out of service on another call. ' 9. If it becomes necessary to add or replace any fire stations, site them in accordance ' with these criteria: a. in accordance with insurance services office standards. 1 b. in the general geographic center of the area to be served. c. not at the bottom of steep or long hills. i 1 ' , Fire/EMS Plan � June 22, 1990 , d. away from major intersections where traffic may back up in front of the ' station. e. away from barriers posed by railroad grade crossing, shopping centers, lakes ' or other man-made or natural features. Future needs of the Department will dictate replacement of obsolete stations and � possibly new locations for stations in order to continue adequate emergency response service. It is important that they be sited to provide quick response to emergencies. � 10. Put an ambulance in service at Station 18 (681 University Avenue); permaaently assign an additional fire company to the second fire district (to be stationed at � Station 18) to provide continuity in fire protection. When new hires become available, replace the reassigned fire company. As shown on Map 4 (attached), the southeast portion of the city which is outside of ' the three-minute response area for fire service, is likewise outside the three-minute response area for EMS, yet within the five minute EMS response area. Given the ' lower number of EMS calls from this area, the issue of EMS coverage is not a priority at this time. The other uncovered area, located in the center of the city as shown on Map 4, , does have a lot of EMS calls, however. It is also a heavy fire call area; care must be taken to ensure that adding more EMS response capability here does not downgrade the fire response capability. ' Adding an ambulance to Station 18 will help alleviate the current gap in EMS service in the center of the city and reducc thc heavy EMS work load at Station 22 � (225 Front Street), 14 (1 ] I North Snelling Avenue) and 10 (754 Randolph). The newly-added fire company will cover for those times when the existing fire company, which will now be dual staffing the new ambulance, is out of service on an EMS call. , This action is recommended as a first step in implementing the two-tiered EMS system. , 11. Put an additioaal ambulance in service at Station 8 (100 East llth Street) to be � dual staffed by the existing company. This is also to address the EMS needs in the central part of the city and to alleviate the heavy work load at Stations 4 (505 Payne), 6 (33 Concord Street) and � 22. It too is a step in implementing the two-tiered EMS system. g i 1 ' � Fir E Plan e/ MS ' June 22, 1990 , 12. Conduct aa evaluation to determine the workload, type of calls and area of service for the entire EMS and fire suppression system, before placing any additional ambulaaces in service. , There needs to be flexibility in the stationing of apparatus and personnel to respond to the changing needs of the community. ' Recommendations 9 and 10 above respond to current needs. Demographic and physical changes in city neighborhoods will indicate what service refinements to make in the future. An incremental, flexible approach to implementing the � two-tiered EMS system is recommended to ensure that it is responsive to the needs of the community at the time each incremental step is taken. � OBJECTIVE: To improve the emerge�tcy respor:se capability Jor existing and potential high 1'IS�C Sl1UQl1011S. , Recommendations I 13. Discuss and come to a conclusion with the Metropolitan Airport Commission (MAC) regarding these options for the fire protection of the downtown airport: � a. Full funding and staffing of a fire service facility on airport property by MAC; b. City staffing of an airport fire service facility built by MAC on airport , property, with the staffing funded at some level of MAC; or c. Acceptance by MAC of increased risk ot having the airport served by � Station 6 and funding at some level by 1�4AC of staffing at Station 6. The downtown airport has inadequate fire protection. The downtown airport is a � major factor in risk assessment of the city and is projected to have an increase in flights. There are portions of the downtown airport which cannot be reached in the recommended three-minute travel time from the closest station (Station 6, 33 Concord). ' In a related issue, the Fire Department will be guided by the Fire Plan Committee report recommendations to consider renegotiation of the University of Minnesota � and State Fairground contracts. 14. Continue to regularly schedule mass casualty and major disaster drills. , Saint Paul has an emergency preparedness coordinator and an emergency plan which is designed to enable the City to handle a disaster. The emergency plan � includes resource lists, procedures and plans for medical disasters, tornado disasters, floods, hazardous materials incidents and aircraft accidents. � 9 , Fire/EMS Plan , June 22, 1990 , In addition, the Department holds drills which prepare it to cope with any special , emergencies which may occur in Saint Paul. In order to protect citizens from the potential health hazard posed by accidents in ' the storage, handling or transport of dangerous chemicals, the Saint Paul Fire Department participates in a multi-county emergency planning committee and has two special hazardous materials response teams on duty at all times. Up to 12 , people trained in identifying hazardous substances and emergency operating procedures are available on each shift to respond to an incident. Local industries are required by law to submit hazardous materials information to the Department � and each facilities which uses or stores such substances has been pre-planned by the Department so that response teams can have access to the appropriate information. From the pre-plans, the Department has also developed affected transportation routes so that evacuations can be safely carried out in the event of � a ma jor accident. To continue to attend to this important community issue, the Fire Department ' administration will be guided by the specific hazardous materials-related recommendations listed in the "Document C" section of Appendix A to the Fire Plan Committee report, to develop written plans for the hazardous materials unit, � to develop a emergency response plan for hazardous materials accidents, and to review and possibly revise the hazardous materials curriculum. I5. Have the City administration take a lead role in working to establish a metro-wide � disaster emergency response plan and capability. The disaster response capability in the metropolitan area is suffering from a lack ' of coordination. Even though the Fire Department is prepared for in-city disasters for which it has command responsibility, there are questions about the City's role � in reacting to a major regional disastcr in view of the lack of inetro-wide disaster planning. ' , � ' � ]0 � ' � Fire/EMS Plan June 22, 1990 � , COMMUNICATIONS , Effective fire suppression and EMS response begins with an effective communications system. Information-gathering and dispatch must be done quickly, accurately and dependably. When the system fails or becomes inefficient due to equipment, personnel, ' policies or procedures, the safety of the community is jeopardized. ' Existing Situation In Saint Paul, as throughout the metro area, citizens are instructed to telephone "9-1-1" for emergencies. The Saint Paul calls are answered by Saint Paul police personnel who � determine the nature of the call and route fire and EMS calls to a fire dispatcher. The Police and Fire Departments maintain separate dispatch centers in the same room. , The fire communications center is staffed by uniformed fire fighters. Like station personnel, the dispatchers work 24-hour shifts. During the shift, they rotate off the panel every four hours to rest or do other activities. Currently, dispatchers mainly receive their ' training on the job. The 9-1-1 system automatically provides dispatchers the address from which the call is being made. The current computer-aided dispatch (CAD) system prompts the dispatcher , to request specific information from the caller f'or input to assist in dispatching decisions. The CAD system indicates which fire apparatus and/or medical vehicles to send based on predetermined criteria. The computer terminal screen also displays the status of ' apparatus on a zone map of the city. With this information, the dispatchers decide what to dispatch. � For medical calls, the Department has engaged in a practice known as "call-screening". With call-screening, dispatchers determine whether a medically-related call is indeed an emergency requiring City response, or a non-emergency for which the caller should arrange for a private ambulance. The Department has now limited the screening of calls � by dispatchers to a very basic level. The current prime emphasis in EMS dispatch is speedy response. The policy is to dispatch ' the closest available EMS unit, and if a fire vehicle is even closer, dispatch it as well. In most cases, the closest EMS unit is a paramedic unit, but when it is an ambulance, a paramedic unit is also sent as back-up. Dispatchers do not now choose between an � ambulance or paramedic unit on the basis of the type of incident. Objectives and Recommendations , OBJECTIVE: To maintain a communicatio�a ji�r:ction able to promptly and reliably respond to emergency jire and medical calls with approprinte dispatch and support. , , I1 , � Fire/EMS Plan June 22, 1990 � Recommendations ' 16. Develop and implement hiring, compensation, training and management policies to ' improve the size, abilities and continuity of the communications staff. The Fire Department communications center is understaffed. 'There is high turnover among the staff; few fire fighters request assignment to communications; , training requirements are timited; management responsibilities are numerous. The understaffing causes stress in the center which potentially interferes with the effectiveness of the function. Commitment must be made to full staffing of the ' communications center. The Fire Department administration will be guided by the specific recommendations of the Fire Plan Committee report regarding upgrade of the rank ! of the communications supervisor, adding an assistant to the dispatch center, minimum staffing of the center, introducing civilian personnel and replacing the 24-hour shift with an alternative, compensation, training, and back-up. ' 17. Develop stronger cooperation between fire and police dispatch while maintaining ' them as two separate functions. Having a separate fire and EMS dispatch center increases the likelihood that , proper responses will be dispatched. The dispatcher must assess each incident to decide what response to send. This requires a spccial knowledge about the nature of fire and medical emergencies. This lcvel of knowledge, as weli as consistency with departmental policy, is more likely to be developed and maintained if the fire ' dispatch function is kept within the Fire Department, separate from the Police Department. 18. Provide additional suitable space for the communications center with adequate � space for the supervisor and assistant. � The fire communications center is housed in inadequate space. The corner of the Public Safety Building communications room that is assigned to the Fire Department is large enough for three people, but becomes too crowded when a � captain is assigned for orientation training or when additional personnel are assigned to dispatch. There is insufficient space for any expansion. 19. Continue the current olic of "call-screenin " determinin whether or not the call � P Y g � g is of a non-emergency nature) by dispatchers. The effectiveness of the City's emergency response is hampered by the lack of � understanding by some members of the public. Some callers to 9-I-1 incorrectly expect that immediate response will bc dispatched to situations that are clearly � non-emergency. It is not appropriate to dispatch City EMS vehicles to calls that 12 � ' ' Fire/EMS Plan June 22, 1990 � ' the dispatcher can clearly and confidently determine are not medical emergencies. The community does not thoroughly understand that this call-screening policy is intended to decrease the risk of EMS vehicles being unnecessarily out of service when actual emergencies occur. , 20. Develop and fund a public education program to inform the public of the proper ' and correct use of the 9-1-1 system and of the future policy of call prioritization. Public education should be conducted in different languages. ' The directive to call 9-1•1 in emergencies has been very successfully communicated to the public. However, the understanding is in many cases oversimplified. As noted above, when the public does not understand or respect that 9 1 l and the City EivIS system are for emergencies only, it creates problems for the Fire � Department communications function. Some callers use 9-1-1 for regular business calls to City departments. Other callers apparently assume that dialing 9-1-1 is adequate to report an emergency and do not stay on the line to provide any , information. The City does re-contact the caller in these cases, but doing so takes extra time, which could be critical. Also, if the City cannot make contact, it must respond to the address without knowing if it is a police, fire, medical or non-emergency incident. It is critical that the public be properly informed of the ' use of 9-1-1. ' 21. Institute an effective "call-prioritization" procedure (determining which type of EMS response to send - BLS or ALS) with appropriate protocols for use by dispatchers, in conjunction with the de��elopment of an effective and formalized , fire and EMS dispatch training and certification program. The ability of the dispatchers to know when to send a BLS unit and when to send an ALS unit is absolutely essential to the success of the modified two-tiered EMS ' system. If dispatchers do not have this ability, the ALS units will likely be overused (which would undermine the purpose of the two-tiered approach) or, worst case, underused (which would put patients at unnecessary risk). tThis is an essential element of the proposed two-tiered EMS system. The two-tiered system will not achieve its goals if calls are not sorted and vehicles are not , dispatched in this BLS/ALS priority manner; the confidence in the system will only be as good as the dispatchers' ability to make the decision between a BLS and an ALS response. Dispatchers need training to make these decisions. , In addition, while dispatchers often have enough field experience to give appropriate instructions, the lack of formal training or policies poses a liability risk for the City when they do so. , The Fire Department administration will be guided by the recommendation of the Fire Plan Committee report to develop a program in which "pre-arrival 1 instructions" are to be given by emergcncy medical dispatchers on appropriate incidents. Such a program would allow the dispatcher to use the contact with the 13 ' ' Fire EMS Plan ' / June 22, 1990 � caller to provide preliminary basic help to the patient before the ambulance or , medic unit arrives. It would ensure that such help is given in an organized, accountable and medically-sound fashion. 22. Consutt with Ramsey Medical Center to provide emergency medical dispatch (EMD) ' basic training and continuing education. Saint Paul Ramsey Medical Center has responsibility for the medical direction of , the Fire Department EMS function and it is critical that dispatch and care be in harmony. � 23. Analyze and fund mobile digital terminals for fire apparatus and ambulances � within three to five years. Changes in communications technology provide opportunities to improve the Fire Department's operations and management capabilities. Digital terminals will , further reduce the risk of communication error and improve operations in the field. , 24. Fund a dedicated records management system within two years. The current CAD system cannot retain data for an extended period of time. , Having the capacity to maintain records of calls and responses for extended periods is necessary for better system analysis and planning. � ' � ' � ' � 14 ' ' , Fire/EMS Plan June 22, 1990 , , FACILITIES ' The facilities which are integral to the fire and EMS functions include the fire stations, administration facilities, auxiliary facilities and the water supply and distribution system. ' Existing Situation As noted, there are 16 fire stations located throughout the city, 10 of which also house , EMS companies. 1'he Fire Department administration is located in the downtown Public Safety Building (Station 8, 100 East 11 th Street). The Fire Department building maintenance section is housed in an old fire station (Station 11, 676 Bedford Street). The � training office utilizes several trailers for classrooms; the training tower is located on Kasota Avenue in the northwest part of the city. The Department is also responsible for five underground fuel storage tanks. ' All buildings have been surveyed for maintenance purposes. A computerized system is on-line which keeps track of building operating costs and includes a preventive maintenance schedule. ' Saint Paul shares its water supply system with several surrounding suburbs. There are approximately 780 miles of water mains within the city, sized from four to 42 inches in ' diameter. The water supply for fire extinguishment is made available through the 6,100 fire hydrants now located in Saint Paul. In addition, standpipes and automatic sprinklers provide fire protection to buildings in which they are installed. , Objectives and Recommendations ' OBJECTIVE: To ense�re the adequate jacilities to ho�sse nnd s:�pport the Fire Department. R�commendations , 25. Coaduct a cost and feasibility study of constructing a new administrative facility, including offices, training center and building maintenance division, in time for submission for the 1992-1993 capital improvement budget. , The current training storage areas are very limited and the classrooms are small. The trailers used for training are in poor condition. , The existing building maintenance building (old Station I1) is also in poor condition. While there is a need to improve the training facility and add administrative space and find new space for the building maintenance function, ' more study is needed to determine how to meet that need. � ' 15 ' Fire EMS Plan ' / June 22, 1990 , 26. Sell old Station 11. , As noted Station 11 is now used for building maintenance. This building will be ' unnecessary if and when the building maintcnance division is moved into a new administrative facility. It is in too poor of condition for re-use by the Fire Department. � 27. Renovate Station 20 with a new addition on the west side of the building and [nstallation of two overhead doors on the north side of the building to allow fire ' apparatus to enter from that side. The current configuration of Station 20 (2179 University) creates a dangerous , traffic situation on University Avenue when vehicles respond from or return to the station. 28. Install a new roof on Station 6. ' Station 6 (33 Concord Street) has little roof insulation and the roof drains are ' poorly placed. 29. Renovate the training tower during the next five years. � The existing concrete slab around the training tower is badly deteriorated. , 30. Install ventilation equipment for apparatus exhausts in the stations which need them. ' Fifteen of the fire stations have little or no apparatus floor ventilation. 31. Equip station apparatus bay doors with door closing pre-emptioa devices which ' would reverse their travel should a vehicle or person enter the doorway as the door is closing. , This is needed for safety reasons. 32. Adapt sleeping and restroom facilities in all stations to accommodate lemale fire ' fighters. Many of the fire stations would need at least minor renovation to accommodate , female fire fighters. � 16 , ' ' Fire EMS Plan / June 22, 1990 ' ' 33. Install monitoring devices on underground fuel storage tanks. The Environmental Protection Agency (EPA) requires monitoring devices on the , Department's underground fuel tanks. 34. Develop an incremental five-year capital improvement plan to begin with the ' 1992-1993 CIB planning process. There is currently not enough information available to make judgment on some of ' the capital improvement-related recommendations of the Buracker report. The Department needs to expand upon the efforts of that report. ' 35. If any fire stations need to be added or replaced, ensure that they are designed with these considerations: ' a. adequate off-street parking for tire service personnel at a ration of four parking spaces per fire company on duty at any given time. ' b. adequate cooking, eating, sleeping, and recreational areas and facilities based on full strength, regardless of present staff level, and planned to accommodate female fire fighters. ' c. additional land area adjacent to the station for possible future site expansion and as a buffer between adjacent land uses. , d. designed in a manner consistent with the scale and character of the surrounding area. ' e. landscape all parking and outside work areas. f. sufficient building setback from the street to allow maneuverability of the largest piece o! equipment without blocking the street. , g. incorporation of a vehicle ramp area that is large enough to accommodate fire apparatus and outside training areas. ' While new stations are not recommended in this plan, if conditions at some time warrant the construction or major renovation of a station, the design should be , functional and compatible with the neighborhood. 36. Develop a program to replace all four-inch water mains on a long-range basis. , Fire protection is an important consideration in the utility's policies and improvement budgets. Four-inch mains do not supply water at the rate desirable , for fire fighting. ' 17 ' Fire/EMS Plan , June 22, 1990 ' 37. Encourage more use of standpipes and sprinklers in residences for fire protection ' purposes. Standpipes and sprinklers have the potential for significantly reducing loss of life ' and property. 38. Maintain attention to the maintenance and repair of fire stations. , Although preventive maintenance is very cost-effective in the long run, it often becomes a low priority in annual budgeting. Maintenance and repair will lengthen ' the useful life of the stations. In particular, the masonry exteriors of buildings often need repair. The Fire Department administration will be guided by the Fire Plan Committee ' report recommendation to establish an auditing program to ensure that standards are met. , ' ' , ' ' ' ' � , 18 , ' ' Fire EMS Plan / June 22, 1990 ' , FIRE FIGHTING OPERATIONS , For fire fighters to be effective, they must be wcll-trained, have adequate knowledge about the fire risks they are facing, and be able to depend upon their apparatus and equipment. , Existing Situation , Training is the responsibility of the Department's training officer, aided by two assistant training officers. Other Department personnel, City employees and outside experts are also used as instructors. "Training includes drills, formal training sessions, educational ' classes and testing. According to the Buracker report, 26 percent of field personnel's on-duty time is spent in training. Knowledge of fire risks is developed through fire fighter visits to buildings in their first , response areas. The Department also performs building inspections; however, these are done from the perspective of code compliance, rather than to acquaint the fire personnel with the potential of a fire. ' Fire Department apparatus is maintained in accordance with a computerized preventive maintenance system. In addition to the regular in-service vehicles, the Department has a number of reserve units for back-up. , Objectives and Recommendations ' OBJECTIVE: To ensure that persorr�ie! hare the c,•ai�ting, k��owledge aitd eqtsipntertt to perJornt their jire Jighting and duties in an eJjectii�e ntn�trter. ' Reeommendations 39. Hire to ensure adequate training and support staff. ' Training is one of the most important elements of any fire service. At present the ratio of training personnel to department personnel is 1/I50. This is proportionally , far fewer than several similar-sized departments throughout the United States and compares to the Minneapolis Fire Department ratio of 1/79 and the Saint Paul Police Department ratio of 1/36. , The Fire Department administration will be guided by the Fire Plan Committee report recommendations regarding specific staff requirements and the types of training which are most important. , � � ' 19 ' Fire EMS Plan ' / June 22, 1990 , In addition to the effect on training, staff limitations have resulted in a relatively ' low priority for policy/procedure development, which is also essential for a well-run operation. The Fire Dcpartment administration will be guided by the Fire Plan Committee report recommendations regarding comprehensive policy and ' procedure development, and staff to accomplish. 40. Do more elaborate pre-fire planning including: ' a. developing a standard format and form for recording pre-plan information, b. developing a list of all buildings which should be pre-planned, ' c. assigning the task of pre-planning in a way that distributes the workload ' across all shifts and stations, and d. training captains and district chiefs in the use of pre-plans. The capability of the Fire Department to fight fires would be enhanced by more ' thorough and organized "pre-fire" planning. Pre-fire planning involves developing tactics and strategies for fighting fires in ' target hazards based on visits to those buildings and data collection by station personnel. There is limited structured pre-fire planning currently done by the Department and insufficient staff to devote any more effort to such work. ' 41. Keep the excellent preventive maintenance program and record-keeping system , current. The continued reliability of the Dcpartment's apparatus is dependent upon , continued commitment to maintenance. The Fire Department apparatus is reliable and in good condition. The existing preventive maintenance program for apparatus is complete and thorough. The � important of preventive maintenance function to smooth operation of the fire response system. ' ' , ' 20 ' ' , Fire/EMS Plan June 22, 1990 ' ' INSPECTIONS Part of an effective fire prevention function is a regular inspection of property for hazards in violation of the fire code. , Existing Situation , In Saint Paul, property is inspected for compliance with building, fire, housing, health and zoning codes and with any licenses or permits issued. Structures that are up to code , receive a certificate of occupancy. This certificate must be renewed annually. Many agencies are involved in inspections, licensing and permitting in the city, including Building Inspection and Design, Public Health, Licensing, Zoning, the City Attorney and , Police, as well as the Fire Department. The major responsibilities of the Fire Department are certificate of occupancy inspections, complaint inspections and business license inspections. ' Ob'ectives and Recommendations J ' OBJECTIVE: To make the inspections, licensi�ig ar:d per»:itting process as ejJicient as possible while protectirrg the health and safet�� oj the contmtutity. ' Recommendations 42. Seriously review the complex arrangements of the four agencies conducting ' inspections in order to improve coordination of the inspection service and to determine the possibility of centralizing the inspections services. The involvement of several City agencies in property inspection and violation , enforcement results in some perceived and actual inefficiencies. While the fire prevention office of the Fire Department is responsible for ' certifying the occupancy of buildings once they are built, the construction of buildings is permitted by the City's Community Services building division and correction of health code violations is handled by the public health division. ' Existing cooperative procedures and automation of the code enforcement process has made the system work much better in recent years; however, there are still cases of missed information or inefficiency. , Part of the issue is that the public may not understand the necessity of different inspections for different purposes (i.e. business licensing, property use permitting, pre-fire planning). ' 43. Continue cross-training personnel who conduct inspections. ' This is so that proper referrals can be made when violations are noted. 21 ' ' Fire/EMS Plan ' June 22, 1990 , COMMUNITY RELATIONS , Community support for the Fire Department is important to its effect�veness. The main basis for satisfaction is the community's perception of how well the Department puts out fires and treats and transports emergency mcdical cases. Most citizens assess these ' services on the basis of second-hand knowledge or general perception, since, fortunately, relatively few citizens have fires or need emergency care. The measures recommended in previous sections of this report should contribute positively to continued public ' satisfaction with the Department. Citizens may also form opinions about the Department if they have experience with the , City's inspection program, or if they become familiar with the fire prevention programs presented in the schools and elsewhere. These functions have also been discussed earlier in this report. Regardless of their direct experience with the Fire Department's services, the citizens are ' affected by the day-to-day presence of the stations in the neighborhoods. Existin Situation ' g A 1986 random survey of Saint Paul residents found 93 percent saying they were satisfied ' or very satisfied with the quality of fire protcction provided in their neighborhood. (The survey did not address EMS.) The Departmcnt has built good relations in its outreach programs for schools, seniors and other groups. ?he station blood pressure check program ' has also been successful. There have been challenges to community perccption about the Department, particularly ' from news reports about the 9-1-I system and the Fire Chief/arson investigation. Recommendations regarding these two issues are found earlier in this plan. Objectives and Recommendations , OBJECTIVE: To maintarn a strong sense of commesfiity ownership of the Fire Department , and the services it provides. Recommendations ' 44. Install improvements and direct policies and puUlicity to make fire stations more accessible to neighborhoods. ' While there is generally a high degree of public satisfaction with fire and EMS services, there is opportunity to inerease community interaction by making stations more accessible to the neighborhood. ' � 22 ' ' ' Fire/EMS Plan June 22, 1990 ' ' Concerns about the security of fire stations, especially with the medical supplies and expensive equipment kept at them, have led to a policy of keeping station doors closed much of the time. 'This may crcate an image of isolation from the rest of the neighborhood. 'This is direct contrast to the image the City wishes to ' promote, that is, that a fire station is a part of the community, and, in particular, a place to come in times of emergency. ' The Fire Department administration will be guided by the Fire Plan Committee reeommendations regarding station door policies, door bells and emergency telephone installations, and content of departmental publications. , , , , ' , � ' ' ' ' ' 23 ' , Fire/EMS Plan ' June 22, 1990 ' CONCLUSION , The Department of Fire and Safety Services has a generally good record and reputation for performing its responsibilities to the citizcns of Saint Paul. This plan addresses the ' issues facing the Department as it enters the 1990's. The most important area for which this plan does not provide definitive recommendations regards capital facilities. The Buracker report bases its capital recommendations (fire � station closings, repairs, etc.) on its recommendation to replace dual-staffing EMS and fire vehicles with split-staffing those vehicles. 'This plan does not propose split-staffing, but does not have enough information to devise or evaluate alternative capital improvements. ' Therefore, it is essential that the Fire Department develop a capital improvement plan, as this plan recommends, in order to complete the fire/EMS planning effort for the 1990's. ' ' ' , ' , , , ' ' , 24 ' ' MAP 1 SAINT PAUL FIRE STATIONS; APPARATUS M ��P� ._6__.�. � . r..o�o�� G � � �x e � . � � ! �' ° 1 . �°'A � f • . ..r � � + , ,,,,,,,o „ 1 Engine Company .r 23 ° 9 ; � � 23 � � � � 2 l" � � � t G � i�� ± Ladder Company � � . � � � • �-�--- � � � � � �� f � O Rescue Squad/ 2 4 � � 2 F � ` � � 5 ` " � , � Hazardous Materjals : � �r.... 18 ,., � p � 4 24 � � � � »� 2 District Chief � ' ,,�; 14 � 5 � "�� '`w "`• .o � Building Maintenance � , � "'° � �► � � ; •�- � � ' t''��° P, ? a e � B � Equipment Services ' ,, M . •. �� ....o. ,� � � �' °� ; � � " r � gF ° � Q Fire Prevention ; g = r r 1 �' t � � e� � ,; � � i Q �F 10: -�__•op'___�. 'g� ; o --- � Headquarters � 5 . 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