Final Report of the Boston Fire Department Review Commission
4 Supervision and Training
4.1 Introduction
The Commission finds that the Boston Fire Department is among the finest technically trained fire fighting operations in the country. Almost without exception, critics and supporters agree that the quality of the Boston Fire Department as a fire fighting organization sets the pace for technical ability, and its excellent record in the field is a source of pride among its members. However, the Commission also finds that management and supervisory level training within the Department does not support the excellent training displayed in the field. In fact, management training at all supervisory levels of the Department is virtually nonexistent. The Commission finds that the Boston Fire Department Fire College is a credible program; however, a one -day annual management training initiative is insufficient for a 1,600 person, $115 million dollar budget organization. Exacerbating the lack of management training are a number of practices and customs - many of which are governed by the existing collective bargaining agreement - that interfere with the efficient operation and management of the Department. One of the best examples of such customs is the Departments current practice utilizing the "acting list." This practice of "on the job training" invites inexperienced and untrained members to assume supervisory and management roles in the Department on a rotating basis. Without adequate training, this awkward and expensive process invites neglect and abuse of Department procedures and the Department suffers from cultural and professional inconsistencies that can have a negative impact on its primary functions: fire prevention and public safety. Similarly, long-standing past practices such as "swapping" of shifts by members affect the continuity of the Department and its effectiveness in the field. Combined with the acting list, swapping leaves the Department with little control over the proper allocation and distribution of personnel in the most efficient manner possible, and aggravates the lack of continuity complained of by many members of the Department. Each should be addressed immediately within the confines of the collective bargaining process.
4.2 Supervision
To properly supervise an operation such as the Department, it is necessary for supervisors and managers to establish continuity. The lack of continuity in the Department can be corrected by addressing at collective bargaining the issues raised relative to certain long-standing past practices.
4.2.1 The "Acting List" and Acting Out of Grade
The Departments current practice for replacement for vacancies and absences among the supervisory levels is a convoluted structure known as the "acting list," also referred to as acting out of grade. The acting list consists of individuals eligible to fill Department vacancies by virtue of their place on the promotional list or by seniority. Each Department vacancy must be filled by a member
from the level of the Department immediately below that of the
absent member.* This bumping procedure continues for every vacancy at every level on any given
day on every shift. See Figure 4. 1. As a result, according to senior Department sources, as many as
30% or more of the Department on any shift may be in "acting"
capacities in their positions. In all
but the very few highest levels, the
acting officer has had no
supervisory training in the role he assumes for the shift. For example,
an acting officer may be expected to administer discipline without any
knowledge or training in the process
of progressive discipline. Further, with so many positions in an acting capacity at any one time, there exists little in the way of continuity. The
process breaks continuity for the firefighters when one of their company
must fill the acting role at the station level, and the problem is multiplied
throughout the various levels of the Department. In addition, the resulting
increase in differential pay at the various levels, including the overtime for
the firefighter who must fill the vacancy at the station level, makes an
ineffective management practice an unnecessarily costly one as well.
4.2.2 Schedule
In addition to the confusion and lack of continuity that results from the "acting list," there is a widespread practice among firefighters of swapping shifts. In fact, the practice has become so common that it is not at all unusual to have an entirely different group of members of the same company from the group scheduled to be present on the shift. The station commanders may not be aware of who will be on their team for a particular shift, and as a result they cannot properly assess the strengths and weaknesses of their team prior to the shift. This practice is in direct conflict with management's emphasis on the need for cohesive teams. For example, the week of December 5, 1999, there were approximately 7,200 personnel hours of "swaps," the majority of which did not reflect one-time changing of shifts, but were the result of "permanent" swaps between members. That is, members have established permanent arrangements of swapping scheduled shifts with other members that allow them to establish their own schedules independent of the structured schedule of the Department. The consequence of this long-standing management practice is that there now exists virtually no supervision over swapping of shifts, and the Department schedule is of little value. (See Rule 18.5 1, Rules and Regulations of the Boston Fire Department). Without adequate procedures in place and enforced regarding this practice, the lack of continuity complained of by many in the field can be expected to continue indefinitely. While there may be occasions when managerial flexibility is necessary, the current practice is neither appropriate nor beneficial to the Department as a cohesive organization. Due to the prolonged practice of management approval of swapping, the Department must now address this issue within the collective bargaining process.
*This procedure does not apply in certain cases relative to the Senior Firefighter.
4.3 Training
The Commission finds that there exists little in the way of formal management and supervisory training within the Department. The Commission also finds that the above-described practices directly impact the ability of the Department to institute effective management and supervisory training for its personnel. Due to the use of the "acting list," members who are pulled from a shift to attend training must be backfilled from the next lowest level. Rather than replace a single member off a shift, the bumping procedure results in the absurd "structure" illustrated in Figure 4. 1. As such, the expense of removing a member from the field has been a deterrent for the Department to institute widespread training for its supervisory personnel. The Commission finds that this deterrent is insufficient justification to forego proper management training. The effect of a lack of proper management training is reflected in the complaints of members that such critical management processes as discipline are mishandled. Proper training of supervisors at all levels in the procedures for discipline, as well as methods for accountability, would assist in addressing this ongoing concern. (This subject is discussed in more detail in Section 3.) The Department needs to identify existing resources within the organization to address its current training needs, as well as to project for future training as part of an annual fiscal review. Adequate resources dedicated to training must be made a priority of the Department.
4.3.1 Senior Management Training
The Commission's review of management practices in the Department suggests that senior level members of the Department would benefit from more intensive and effective management training in a variety of capacities. Such training is offered by many universities and private companies in the Boston area, and by the City of Boston, and is readily available to senior managers in the Department. In addition, National Fire Academy programs, training with the Massachusetts Department of Fire Services, executive training programs such as Senior Managers in State and Local Government at Harvard's Kennedy School, and the City of Boston's Leadership 2000 management training program are examples of existing programs currently underutilized by the Department. Further, in addition to regular technical training, officers and supervisors should receive in-service training focused on management and leadership issues.
4.3.2 Supervisory and Station Level Training
Specific training regarding management practices is necessary to develop and maintain a good sense of order and fairness among members in the field. Toward that end, the Department must assume responsibility that all members of the Department who will exercise any form of supervisory authority are properly trained as to their roles and responsibilities. In addition, successful organizations must identify future leaders from within their ranks. These future leaders will need to be more than just excellent firefighters; they will be required to address complicated issues in a changing organization. Station Commanders must recognize potential leaders from within their ranks and assist in the formal and informal training of future supervisors. They can be supported by the establishment of a future leaders program within the Department that will promote mentoring and focus on the skills necessary for a successful new generation of leaders. The Department should assist the station level supervisors in developing proper supervisory habits and practices that are consistent from station to station. Proper training and centralized oversight of station practices will assist the Department in assuring that all members have an equal opportunity at career success and future advancement. Based on our review, the Commission finds that the initial promotion from firefighter to lieutenant involves the greatest degree of change in responsibilities, and recommends that increased efforts be concentrated on proper training at that level. However, all members of the Department, particularly those who will be the leaders of the future, would benefit from early and continuous management and leadership training.
4.4 Recommendations
The Commission recommends that the "acting list" be abolished in favor of vacancy replacements within grade.
The Commission recommends that one schedule be negotiated, adopted, and enforced for the entire Department.
The Commission recommends that the practice of "swapping" be addressed immediately within the collective bargaining process.
The Commission recommends that a formal level of management training be instituted at each level of management within the Department prior to or immediately after promotion of any individual into a supervisory level position.
The Commission recommends that the Department take advantage of all federal, state and local management training opportunities, including private sector training and executive programs at local universities.
The Commission recommends that current in-service training be expanded to include management and leadership issues.
The Commission recommends that the promotion from firefighter to lieutenant be identified with intensive training on all facets of management, leadership, and supervision issues and concerns, including formal and informal discipline.
The Commission recommends that the Department develop a program for identifying and training future leaders within its ranks.
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