Final Report of the Boston Fire Department Review Commission
5 Department Administration
5.1 Introduction
One senior Department official noted that "there is a lack of attention to detail permeating the organization." The Commission's personal
experiences confirm this
observation. The Commission
acknowledges the challenges of
managing and operating a
1,600-person organization with
an annual operating budget of
$115,000,000. Such an
operation requires skilled
managers and technical
knowledge on a wide range of
issues and individuals with
appropriate experience and
education. As such, it is in the
interest of the Department to
identify the best available
individuals to oversee the
management and operations of the Department and to allow the professional
firefighters to focus on their mission of public safety. Therefore, the
management structure of the Department should recognize the strengths and
experience necessary to perform specific functions within the organization.
The Commission finds that in order to achieve these goals, the existing
structure for management of Department operations and administration
should be reorganized for efficiency and accountability.
5.2 Commissioner and Chief of Department
For many years, a civilian commissioner appointed by the Mayor headed the Boston Fire Department. In recent years, a single uniformed member of the Department has held the dual role of Commissioner and Chief of Department. The Commission prefers the organizational model currently utilized by the Boston Police Department and many public safety organizations throughout the country. A civilian commissioner with significant management and leadership experience will bring greater accountability to the Department and professional management expertise to the operations of the organization. This civilian commissioner should not be a political patronage appointment, but a manager with proven ability to operate a large organization and with a commitment to provide progressive and dynamic leadership. While it would be advantageous for the individual to have prior firefighting experience, it is not viewed by the Commission as a necessary qualification for the post. Appointed by and reporting directly to the new civilian Fire Commissioner should be a uniformed member of the Department in the role of Chief of Department with responsibility for the day to day operations of the Department and a similar commitment to progressive leadership. See Section 10 Planning and Implementation.
5.3 Senior Management
The Commission also believes that a more effective organizational structure would allow for greater accountability and experience in the areas of administration, operations and planning and technology. The Commission recommends the creation of three positions appointed by the Commissioner and reporting directly to the Chief of Department The three positions are Chief of Administration (civilian), Chief of Operations (uniformed) and Chief of Planning and Technology (uniformed or civilian). This system will allow for increased civilianization in the areas of Department management that require strong organizational skins, and will allow for professional firefighters to oversee the critical and complex technical aspects of firefighting operations. The Commission further recommends that these three positions be created outside of the existing collective bargaining unit.9 For further discussion and explanation see Section 10 Planning and Implementation.
9 The Commission recognizes that the proposed reorganization raises issues that may require review of and/or changes in local ordinances, state law, and existing labor agreements. The proposed reorganization reflects the Commission's strong belief that the existing management structure is insufficient to properly administer the department in modem times.
5.4 Community Firefighting
Decentralized decision-
making and increased
responsibility at the
station house provides
greater accountability as
well as a sense of community. Although the dangers faced by
firefighters have not diminished, the numbers
of fires have decreased in recent years due to
technological advances and rigorous inspections. As the Department moves
into the new millenium, the focus of the Department will shift from
firefighting to fire prevention and technology. This shift will require more
community interaction and prevention education. Community firefighting
and prevention are the future of fire departments nationwide and the
Commission believes that with the appropriate commitment the Department
can become a national leader in this effort.
5.5 Equipment and Training
The Department has made efforts to properly equip and train the firefighting staff. The Department now has over 600 emergency medical technicians, eight paramedics and four nurses, and each company is equipped with a defibrillator. In addition, eighty firefighters are HAZMAT certified. The technical ability of the Department is excellent. In general, equipment and maintenance are at acceptable levels throughout the Department; however, there are areas that require attention. Many firefighters raised concerns about existing firefighting apparatus and its sufficiency for a growing population. For example, there exists just one aerial tower in the Department. Several firefighters noted the substantial increase in development within the City, particularly in downtown Boston and Back Bay, and the plans for increase usage of the South Boston Waterfront, as evidence of the need to bolster existing capability. The respondents emphasized the need for the Department to keep pace with appropriate equipment.
The Commission recommends that a complete review of existing equipment be commenced as soon as possible with a goal of updating equipment to meet the City's changing needs. In addition, although existing bunker gear is effective, many firefighters maintain that their gear is too hot for summer use. There have been reports of sickness and fatigue in extreme weather conditions. The Commission recommends that a study by the Department be commenced as soon as possible to review all available alternatives to existing bunker gear during warmer weather months. The Commission does not recommend replacement of existing bunker gear until the Department is satisfied that there are appropriate alternatives that meet or exceed existing safety standards. The Commission believes that a comprehensive fitness and training program will lead to a reduction of heat-related injuries, and therefore recommends that the Department institute such a program. Placing aerobic machines in station houses is a good beginning, but it cannot address the concerns of the Commission unless such equipment is part of an overall plan for fitness improvement Department-wide.
5.6 Capital Planning
The existing physical facilities throughout the Department are generally inadequate. Many of the fire stations and firehouses are in various stages of disrepair. The Department must institute a capital plan that includes a comprehensive review of all existing fire stations and fire hydrants for repair, rehabilitation or replacement. In addition, the conditions at Boston Fire Department headquarters are unacceptable. Recently, one worker was injured as the result of problems with outdated electrical outlets. In the aging facility, problems will only increase over time. As part of its overall capital plan, the Boston Fire Department must review options for the construction of a new, state of the art Fire Department headquarters. In addition, a five-year and a ten-year capital plan for the repair, rehabilitation or replacement of existing fire stations should be prepared with the assistance of the City planners.
5.7 Fire Station Inspection and Maintenance
A Department that is at once proud of its distinguished history currently operates in predominately unkempt fire stations that lack any physical evidence of the pride so often mentioned by the members. While many of the problems associated with the existing facilities can be blamed on the age of the facilities, age is not the only problem. The Commission visited other comparable cities that maintain many fire stations of approximately the same age as Boston's, such as Milwaukee, Wisconsin and San Francisco, California. In those cities the station houses were meticulous, the firefighters uniformed and well mannered and the sense of pride in their work clearly evident in their appearance. To the contrary, Commission visits to Boston fire stations confirmed complaints from many firefighters of indifference to station maintenance, firefighters appearing out of uniform, and firefighting equipment in need of attention. Indifference to appearance was repeated throughout the City with some notable exceptions. In addition, numerous complaints from firefighters regarding cigarette smoking in station houses, and more than one source alleging occasional alcohol use at certain stations, further emphasize what appears to be a lack of order and pride in many station houses. There appears to be no concern for reprisal resulting from the poor conditions and unprofessional appearance. Regular fire station inspections by the deputy chiefs have not been conducted for nearly a decade. Although many of the existing firehouses are in need of major repair or replacement, an issue addressed in this report, physical conditions are not an excuse to forego simple cleaning, regular maintenance, and proper personal appearance. Station supervisors must be held accountable for the physical conditions of their stations, and supervisors must hold firefighters accountable for regular maintenance and personal professional appearance. These conditions can be improved immediately and Department management should institute a series of regular inspections with appropriate discipline for failure of a station to pass inspection. The pride of the members should be reflected in every station throughout the city.
5.8 Technology
The Department has made efforts to remain abreast of changes in technology and the Commission applauds their efforts to date. Pass devices, thermal imaging cameras and other fire safety technology are now available to firefighters in most Department companies. In addition, the Commission understands that plans are in place for an upgrade of the existing radio system. However, as one of the nation's oldest firefighting organizations, the Department continues to conduct some operations in an antiquated fashion. As many governmental entities turn to the use of new technologies to support decision-making, improve citizen service and assist in administrative activities, the Department should embark upon a thorough research and planning process to leverage appropriate technologies into its service model. The Commission recommends that the pace of technological implementation increase over the next several months and years. The Department will be well served by a standing committee of firefighters, officers, civilians, and technology professionals whose function it is to review emerging technology and make recommendations for further review and purchase. Among the technology initiatives that should be explored are mapping systems, and ways to create new opportunities utilizing fiber-optic technology. Mapping systems are being successfully deployed in public safety agencies throughout the world. As these technologies have evolved, the levels of integration and the "real time" speed of mission-critical information have increased exponentially. The City of Boston has taken a lead role in technology deployment in its schools and in the Boston Police Department, and the Boston Fire Department should become a part of this vision. Pilot projects with mobile data terminals (MDT's) have been performed and should be fully implemented- Among the functions the Department should consider in a technology strategy are the following:
Fully integrated links to Global Information Systems (GIS)
and Global Positioning Systems (GPS)
"Real-time" access to building information, footprints, and
floor plans in cooperation with other City departments
The ability to tour buildings virtually to minimize the need
for fire personnel to go in during an incident
Road closures and traffic pattern changes linked directly
into a central system so that vehicles can be re-routed
(especially important in downtown Boston during the
completion of the Central Artery Project)
"Real-time" information at the incident site concerning the
location of fire hydrants, power and gas lines, water pipes,
and the location of any hazardous materials
E-91 1 address verification and plotting at dispatch and in
the vehicle
The ability to transfer events to other agencies
automatically
Web-based solutions that will allow decision-makers to
access the system from remote locations through a
password-protected session
The Department should immediately equip the remaining four companies that lack thermal imaging cameras with this technology. PASS device reliability must be constantly assessed for safety and improvements. In addition, the Department should upgrade existing computer systems to keep pace with technological advances. The Commission recognizes that the suggestions contained herein are ambitious and expensive. They should be viewed as part of a long-term strategy on technology, and the Department must work with other City departments to insure that efforts are not duplicated. Further, there may exist state and federal funding opportunities, public/private partnerships and other grant opportunities for the Department to explore. The Chief of Planning and Technology will have direct responsibility to seek out and identify such opportunities for the Department.
5.9 Physical Fitness and Wellness Programs
The Department has begun efforts to improve the health and well being of the fire fighting force. The Commission finds that a fire fighting team in peak physical condition must be a priority of the Department. A significant number of injuries and deaths can be attributed to physical fitness issues. Such injuries contribute to problems associated with the number of injured on duty and disability retirements currently in force in the Department. (See Section 6.4) In an effort to address these issues and with the goal of a healthy, physically fit Department a top priority, the Commission recommends that the Department work with the Union to institute physical fitness programs for all members. In addition, a number of members have commented that prohibitions against smoking in fire stations are unevenly enforced. Smoking prohibitions should be addressed, and smoking cessation programs encouraged and offered by the Department. Also, the Commission recommends that the study conducted relative to the concerns raised by excessive exhaust fumes in station houses be made a priority. Finally, the Commission believes that a wellness program, including nutrition and stress reduction, should be made available to all members of the Department and that participation in the program be encouraged throughout the Department.
5. 10 Equipment Maintenance
The responsibility for maintaining the Department's motor vehicle, electric and fire fighting equipment lies with the Motor Squad. This unit is staffed with fourteen uniformed firefighters on group schedules and eighteen civilians on five day, Monday to Friday schedules. This unit does a significant amount of work in the firehouses, as well as in its base at the rear of the Southampton Street headquarters building. All of the work on the trucks is handled by firefighters; there are no civilian mechanics. Firefighters are responsible for repair of engines and vehicle equipment, preventive maintenance and, when necessary, provision of replacement vehicles while repairs are made. The unit is also responsible for keeping hydrants operational when fires are fought in sub-freezing temperatures. While the unit appears to function effectively, it is not clear that it must be staffed exclusively by firefighters. There may be certain circumstances in which work must be performed at fire scenes, in which case there exists a benefit to having uniformed mechanics. However, civilian diesel mechanics could fill a number of these positions. The civilian personnel deal with the maintenance and testing of equipment and repairs to systems at the stations. Seven of the personnel are electricians who do work on generators, switches and other systems. The remaining personnel* deal with equipment and supplies for use on the trucks. While recognizing that this is subject to collective bargaining, the Commission sees an opportunity for increased civilianization of this unit. In addition, the Commission believes that as part of the Department reorganization, there may be a benefit to consolidate all maintenance tasks within a centralized unit that could include mechanics, electricians and the maintenance functions of the Fire Alarm Unit. Such a consolidation may offer the Department significant savings and is worthy of further review.
5.11 Recommendations
The Commission recommends the appointment of a civilian Fire Commissioner with significant management experience to oversee the Department.
The Commission recommends a reorganization of senior management as set forth in Figure 5. 1.
The Commission recommends that as part of its strategic plan for the future, the Department explore avenues to implement community firefighting citywide.
The Commission recommends that a complete review of existing equipment be commenced as soon as possible with a goal of updating equipment to meet the City's changing needs.
The Commission recommends that a study by the Department be commenced as soon as possible to review all available alternatives to existing bunker gear that meet or exceed current safety standards.
The Commission recommends the institution of a five-year and ten--year capital plan for the Department that will include the construction of a new, state of the art Fire Department headquarters and the repair, rehabilitation or replacement of fire stations throughout the City.
The Commission recommends the reinstatement of regular inspections at station houses.
The Commission recommends that a permanent technology committee consisting of field personnel, supervisors, technological experts, and civilian members of the Department, reporting to the Chief of Planning and Technology, be established to address ongoing technological needs.
The Commission recommends that the remaining four companies without thermal imaging cameras be so equipped.
The Commission recommends that PASS device reliability be constantly assessed for safety and improvements in technology.
The Commission recommends that the Department work with Union representatives to develop physical fitness programs for all members.
The Commission recommends that smoking prohibitions should be addressed, and smoking cessation programs encouraged and offered by the Department.
The Commission recommends that the study conducted relative to the concerns raised by excessive exhaust fumes in station houses be made a priority, and that appropriate remedies be instituted as soon as possible.
The Commission recommends that a wellness program, including nutrition education and stress reduction should be made available to all members of the Department and that participation in the program be encouraged across the City.
The Commission recommends that the Department explore opportunities for civilianization of vehicle maintenance tasks and that it explore the restructuring of all maintenance functions in one unit.
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