CRITICAL ELEMENTS OF A SUCCESSFUL CONSOLIDATION PLAN FOR THE TOWN OF COVENTRY FIRE DISTRICTS

EXECUTIVE DEVELOPMENT

BY: Robert W. Seltzer, Chief Central Coventry Fire District

Coventry, Rhode Island

An applied research project submitted to the National Fire Academy as part of the Executive Fire Officer Program

February 2003

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Abstract

The problem was that the Coventry fire districts needed to identify the critical elements

of a successful consolidation plan. The purpose of this research project was to identify the

critical elements necessary for a successful consolidation plan for the Coventry fire districts. This

was an evaluative research project. The research questions were:

1. What are the experiences of other communities that have gone through fire department

consolidations?

2. What are the critical elements of a successful consolidation plan?

3. What are the elements that are important to the staff of the Coventry fire districts to

insure a successful consolidation plan?

The procedures involved a review of materials related to experiences of communities that

have gone through fire department consolidations. Also reviewed were materials related to the

critical elements of successful consolidation plans and materials related to the town of Coventry

Comprehensive Plan. A survey was also used. The survey was a convenience sample of the staff

of the Coventry fire districts to gather information on the critical elements important to them for

a successful consolidation plan.

The research results indicated that fire department consolidations can be successful. The

results indicated that the critical elements of a fire department consolidation plan can be

identified. In addition the results indicated that the staff of the Coventry fire districts have

identified critical issues that they feel should be addressed in a consolidation plan.

The recommendation of this research was that the Coventry Fire Districts’ Consolidation

Study Committee adopt the list of critical elements of a successful consolidation plan as outlined

by this research project. Further, it was recommended that a survey for public input concerning a

consolidation plan be devised and distributed to the residents of Coventry.

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Table of Contents

Abstract 2

Table of Contents 3

Introduction 4

Background and Significance 4

Literature Review 8

Procedures 44

Results 49

Discussion 71

Recommendations 77

References 80

Appendix A Survey Instructions 84

Appendix B Survey Form 85

Appendix C Survey Results 86

Appendix D Recommendation to the Town of Coventry Fire Districts 93

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Introduction

The problem is that the Coventry fire districts need to identify the critical elements of a

successful consolidation plan. The purpose of this research project is to identify the critical

elements necessary for a successful consolidation plan for the Coventry fire districts. This is an

evaluative research project. The research questions are:

1. What are the experiences of other communities that have gone through fire department

consolidations?

2. What are the critical elements of a successful consolidation plan?

3. What are the elements that are important to the staff of the Coventry fire districts to

insure a successful consolidation plan?

Background and Significance

The town of Coventry, Rhode Island (RI) is located approximately in the center of the

state of RI. It is directly accessible from interstate route 95. The town covers an area of 64 square

miles of land and water, making it one of the largest towns in the northeast (BRW, Inc., 1992, p.

B.1-1). The eastern portion of the town is characterized by typical urban and suburban

development. The western portion of the town is characterized by rural development. The

population of the town currently stands at 33,668 (U.S. Census Bureau, 2000).

Fire protection in the town of Coventry is provided by seven private, non-profit fire

districts, which maintain service for all areas of the town. This system of fire protection has been

the subject of some criticism over the past years because of the duplication of services and the

need for expensive fire apparatus for seven different fire districts (BRW, Inc., 1992, p. B.8-9).

The Coventry fire district system evolved from a time when people lived and worked in villages

within walking distance of their homes. Employers often let employees leave work to fight fires

and the system revolved around volunteers in the community. Today people work miles from the

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community in which they live and generally live busy lives that lack the availability of time to

volunteer on fire departments. This has eroded the volunteer firefighter system. As this lack of

volunteer firefighters continued, the fire districts in the town of Coventry were forced to hire

career firefighters to maintain service levels to the community, and have become combination

fire departments.

The seven fire districts protecting the town are as follows. The Western Coventry Fire

District located on route 117, in Greene, RI, predominantly serving the western end of Coventry

(BRW, Inc., 1992, p. B.8-10). The Central Coventry Fire District located at 2847 Flat River

Road, serving the center of town (BRW, Inc., 1992, p. B.8-10). The Washington Fire District

located at two Station Street, serving the center to mid-eastern end of town (BRW, Inc., 1992, p.

B.8-10). The Hopkins Hill Fire District located on Hopkins Hill Road, covering part of the south,

eastern portion of town (BRW, Inc., 1992, p. B.8-10). The Tiogue Fire District located at 240

Arnold Road, also covering part of the south, eastern portion of town (BRW, Inc., 1992, p. B.8-

11). The Anthony Fire District located at 571 Washington Street, covering the eastern portion of

town (BRW, Inc., 1992, p. B.8-10). The Harris Fire District located at 701 Main Street, covering

the north, eastern portion of town (BRW, Inc., 1992, p. B.8-11).

In 1989 and 1990 the Coventry Merger Study Committee, composed of members from

each fire district, prepared a draft study examining the merger of the seven fire districts into one

operating entity. The major findings of the Coventry Merger Study Committee regarding the

existing fire district system were levels of service are inconsistent throughout the town; the

majority of fire districts have experienced a decline in the number of available qualified

volunteers; the initial manpower response level in most districts is not in accordance with the

minimum recommendations of the National Fire Protection Association (NFPA); mutual aid is

provided by most districts to overcome shortages in manpower or apparatus at any given time,

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but is also viewed as an instrument to place a disproportionate tax burden on the aiding districts;

location of fire stations was predicted on a build as needed basis, but has not been reassessed

with the growth of the town; advanced life support is not provided to all residents; fire

prevention activities vary from district to district; administrative services are duplicated; training

is not consistent; and older, built-out fire districts have no way to increase revenue other than

raising taxes (BRW, Inc., 1992, p. B.8-11). This researcher was one of the members of the

Coventry Merger Study Committee, and was involved with the presentation of the committee’s

findings to the governing boards of the fire districts. Not only were the findings presented, but a

basic course of action for a consolidation plan was also presented to the governing boards. Upon

conclusion of the presentation there was a lack of commitment to further pursue an actual

consolidation. The Coventry Merger Study Committee dissolved and no further action was taken.

In 1992, during the comprehensive plan study conducted by the town of Coventry, six of

the seven fire chiefs had expressed interest in consolidating the existing district system into one

system that would remain a public service provided by an entity outside of the Coventry town

government (BRW, Inc., 1992, p. B.8-9), for example staying as an independent fire district. The

major justification for consolidation included many considerations that were expressed in

interviews with the fire chiefs, many of which reflected the findings of the Coventry Merger

Study Committee (BRW, Inc., 1992, p. B.8-11). However, no action was taken to further

investigate the possibility of a consolidation.

In 1999 the seven fire chiefs held meetings for a few months to discuss the possibility of

consolidating fire marshal services into one, as well as taking another look at the possibility of

merging the fire districts. Neither action was taken and no further discussions took place.

In March of 2001, the consolidation of the town of Coventry fire districts surfaced once

again. As presented by this researcher (Seltzer, 2002), a management innovation presentation

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given at the National Fire Academy (NFA), Executive Development class, titled Coventry

Emergency Services, a Fire District Alliance, the following events unfolded. The chief of the

Washington Fire District and the researcher, the chief of the Central Coventry Fire District,

decided it was time to start working together more as one department. Both chiefs met with their

respective union presidents who also agreed the time had come to work more as one. In the

meantime, the Tiogue Fire District combined administration with the Washington Fire District,

saving the Tiogue Fire District $30,000 by this functional consolidation. In April of 2001 a

meeting was held to discuss the concept of working together as one with other interested

districts. The Central Coventry Fire District, Harris Fire District, Tiogue Fire District and

Washington Fire District agreed to work together while the other three districts made no

commitment at that time. From this was born the Coventry Emergency Services, an alliance

between the Central Coventry Fire District, the Harris Fire District, the Tiogue Fire District and

the Washington Fire District. The alliance was formed for the purpose of providing the most

efficient and cost effective emergency services to the taxpayer; combining resources to eliminate

duplication of services and equipment; taking down the traditional barriers of district boundary

lines and operating as closely as possible as a single entity; establishing one set of standard

operational guidelines; combining fire and rescue training programs together as one; and sharing

ideas and interests for the betterment of the fire service in Coventry. As the alliance continued to

develop, the Central Coventry Fire District, Harris Fire District, Tiogue Fire District and

Washington Fire District, in June of 2002, agreed that it was time to plan a complete

consolidation of the four. However, as part of this consolidation it was agreed that all seven

districts should be involved and preferably make one town-wide fire district. Regardless of the

participation of all seven, the four alliance departments would still move forward with

consolidation planning. In July of 2002 a meeting of all seven districts took place. The Central

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Coventry Fire District, Harris Fire District, Hopkins Hill Fire District, Tiogue Fire District and

Washington Fire District decided to be involved with a planning committee to see if

consolidation is the right thing to do. The Anthony Fire District and Western Coventry Fire

District decided not to participate at that time, but would consider participation.

In September of 2002 all seven fire districts agreed to be part of the planning committee.

The committee was officially named the Coventry Consolidation Study Committee and has

remained active since its inception to the date of this research project. The committee is studying

the feasibility of consolidating the fire districts as well as identifying a successful consolidation

plan. However, the committee has not identified the critical elements necessary for a successful

consolidation plan for the Coventry fire districts.

This Applied Research Project relates to the terminal objective for unit one, Working As

a Team, the objectives for unit four, Managing Creativity and the objectives for unit seven,

Organizational Culture, of the Executive Fire Officer Program (EFOP) Student Manual (1998),

for the Executive Development class. This research project relates to United States Fire

Administration (USFA) operational objective to promote within communities a comprehensive,

multi-hazard risk-reduction plan led by the fire service organization (Applied Research

Guidelines, 2002, p. II-2).

Literature Review

This researcher has reviewed pertinent literature from various sources to identify the

critical elements necessary for a successful consolidation plan for the Coventry fire districts.

Three research questions need to be addressed. First, what are the experiences of other

communities that have gone through fire department consolidations? Second, what are the

critical elements of a successful consolidation plan? Finally, what are the elements that are

important to the staff of the Coventry fire districts to insure a successful consolidation plan?

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Question 1: What are the experiences of other communities that have gone through fire

department consolidations?

Analysis of a proposed four fire district merger in Ada County, Idaho (ID). In his

Executive Fire Officer (EFO) research paper, Curry (1999) identifies:

The primary finding contained in this analysis was that major benefits to taxpayers in

increased service levels were possible with no increase in costs. Those service benefits

were identified as an increase in staffing and a shift toward specializing chief officer

responsibilities. The analysis further revealed that obstacles to the merger from the

politicians, chiefs, and others were predictable and must be considered and dealt with

through consistent communications. The analysis identified organizational areas that

would be impacted and displayed a portrait of the merged organization. (p. 2)

Curry (1999) goes on further to identify indicators for cooperative efforts from the book

Making the Pieces Fit as “duplication of services, either by function or by geographic location”

(p. 12) and “cost comparisons that illustrate a drastic difference in total costs of fire protection

for providing similar services” (p. 12).

Curry (1999) also cites from the book other elements that may be present indicating

potential merger advantages as:

Services or service levels that are drastically different between agencies; potential loss of

revenue through statewide referendums (or other sources); lack of community support;

threat of a “hostile” takeover either by another government agency through annexations

or the privatization of fire service operations; retirement of a key administrator or chief

officer; change of elected officials; labor issues; concerns over ISO ratings; service

deficiencies; and long response times. (p. 12)

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Carrie Furnace fire and rescue. The Swissvale and Rankin volunteer fire departments of

Maryland (MD), chose to pursue a consolidation of their two departments into a new

organization called the Carrie Furnace Fire and Rescue (Swissvale FD Web Page, Press Release,

September 17, 2002).

The press release reports (Swissvale FD Web Page, Press Release, September 17, 2002) a

steering committee comprised of officers from both departments were working together since

June 24, 2002 on ideas and a vision for the new organization. It goes on to say that both

departments have had a loss of manpower and income over the last 15-20 years, while both

experienced an increase in demand for services.

Both departments had approved the progression of the steering committee’s work as well

as allowed the steering committee to file official paperwork for the consolidation. The steering

committee’s plan will not increase any cost to either community and it will provide for better fire

protection than what each volunteer department could provide on their own (Swissvale FD Web

Page, Press Release, September 17, 2002).

Consolidations a’ la carte. In his article Consolidations a’ la carte, in Fire Chief

Magazine (Jensen, 2000), Jensen points out that there were very few fire department

consolidations prior to 1990, but during the ‘90s the political and economic climate changed so

emergency services providers had to seek alternatives to provide services (Jensen, 2000, p. 102).

During these days of consolidations, “What does matter is that egos are being set aside and

decisions are being made with the end user in mind” (Fire Chief, February, 2000, p. 105).

Consolidation of fire protection services in Central Penobscot County. In his EFO

research paper, Ellis (2000) looks at consolidation in the Penobscot County area in Maine (ME).

Ellis (2000) reports:

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Consolidation of fire protection and emergency medical services has been discussed in

great detail, however, little or no action has resulted despite the fact that “If the average

citizen, taxpayer, was aware of the duplication and high cost of fire service, they would

be pushing for consolidation” (Lahaie, 1994, p. 15) (p. 5).

He further goes on to say “As we enter the twenty-first century “traditional methods of

providing fire and life safety services to communities are being replaced with innovative service

delivery methods. One of the most common methods utilized is regional consolidation”

(Boomgaarden, 1996)” (p. 6).

Ellis (2000) goes on to identify successful consolidations. In 1995 the City of Thornton,

Colorado (CO) merged with the West Adams County Fire Protection District, saving $300,000 to

$500,000 per year beginning in 1996. On January 1, 1998, the fire departments of Toronto, North

York, Scarborough, Etobicoke, York, and the Borough of East York in Canada, were merged

into the Toronto Fire Services (Ellis, 2000).

On the down side, Ellis (2000) reports:

Unfortunately, not all consolidations are successful. Individual circumstances need to be

carefully considered before a final decision as whether to consolidate or not is made

(Haney, 1998). In California “after almost a year of studying the possibility of

consolidating the fire services of Los Altos, the Los Altos County Fire Protection

District, Mountain View and Palo Alto, the conclusion is that it’s feasible but not

practical” (Domingue, 2000). There were not enough money incentives to gain public

support for the consolidation. (p. 22)

““While there are countless success stories, there are unfortunately a few failed attempts.

Tragically, most failures are the result of some form of personal sabotage. For this reason, it’s

important to proceed cautiously and objectively” (Jensen, 2000)” (Ellis, 2000, p. 16).

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Feasibility of consolidation between the Sterling Park rescue squad and the Sterling

volunteer fire department. In her EFO research paper, Walter (1999) reported on the feasibility

of consolidating the Sterling, Virginia (VA) Fire Department and Rescue Squad. In her research

she reviewed what occurred with other fire and emergency service agencies involved in a

consolidation. Walter’s (1999) findings were as follows:

The present-day Tualatin Fire and Rescue Department near Portland, Oregon (OR), is the

product of several consolidations of smaller fire and rescue agencies, and has studied the

consolidation of other agencies extensively (Tualatin Valley Fire and Rescue [TVFR],

1995, p. ii). The department cites many challenges they experienced in the planning and

implementation phases of consolidation, including the merging of administrative staff,

the feelings of the department members, political obstacles, differences in operational

procedures, changes in organization names, and issues dealing with authority and

responsibility (TVFR, 1995). The department also struggled with issues of

standardization of equipment, philosophical differences and who will lead the agency

after the consolidation (TVFR, 1995). While there were many challenges in the

consolidation efforts encountered by Tualatin Valley Fire and Rescue, the agency

concluded that the consolidations were very beneficial and published materials to assist

other departments in effective consolidations (TVFR, 1995). (p. 7)

Walter (1999) also reported on the Lexington Fire Department and EMS:

The Lexington, Missouri (MO), Fire Department and Emergency Medical Services

(EMS) Department investigated the possibility of a consolidation in 1991 (Fischer, 1991).

The Lexington agencies noted that a major obstacle in consolidation of the fire and EMS

agencies is the attitude of non-cooperation between members of the two agencies

(Fischer, 1991). The conclusion of the study of the possible consolidation between the

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Lexington Fire Department and the Lexington EMS Department was that a consolidation

would benefit the organizational and operational efficiency of the departments and the

service delivery (Fischer, 1991). (p. 8)

In 1994, the Fernridge Rural Fire Department in Veneta, OR examined the possibility of

consolidation with other departments (Walter, 1999). “The study also found that consolidation of

the smaller fire departments would be beneficial, although the researcher identified many critical

challenges that would have to be overcome” (p. 8).

Walter (1999) also reported that a 1995 study was performed of fire districts in Collier

County, Lee County and Manatec County, Florida (FL), reviewing the effects of non-economic

factors in consolidations of fire and emergency service organizations. The study found that:

Members of departments facing potential consolidations had negative perceptions

concerning cohesion of the groups, standardization of policies and procedures,

communications, department loyalty and satisfaction of the department members

(Latessa, 1995). The study concluded that many department members believed that

increasing the size of an agency through consolidation would provide greater rewards and

benefits for members (Latessa, 1995). Lastly, the study noted that there were no negative

perceptions present in the department members concerning fairness of treatment, decision

making ability and the level of authority within the consolidated departments (Latessa,

1995). (p. 9)

Finally, Walter (1999) reported on the Edmonton Emergency Response Department in

Canada, which had researched consolidation within their agency. According to the study:

Some of the EMS leaders within the EMS department felt that the consolidation was

more like a “hostile takeover” or acquisition than a traditional cooperative consolidation,

which was not beneficial to the working relationships post-consolidation (Williams,

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1995). The creation of a new name for the consolidated organization in Edmonton was

perceived as helpful in the merger implementation, however, the organizations were

missing tangible actions toward a coordinated and combined agency after the

philosophical implementation of the consolidation, resulting in poor perceptions of

department members (Williams, 1995, p. 133). (p. 10)

Walter’s (1999) recommendation in her research report was “It is recommended that the

Sterling Park Rescue Squad and the Sterling Volunteer Fire Department not actively participate

in consolidation efforts at present, however, if financial or other circumstances change in the

future, it may be a beneficial step for the agencies” (p. 3).

Feasibility study of consolidation for the Southwest Council of governments. In his EFO

research paper, Haney (1998) recognizes:

The fire service today is facing many of the same problems that challenge private

industry. The cost of providing services or manufacturing a product must be kept

at a minimum while quality and productivity must increase. Taxpayers are

demanding accountability from their city leaders while desiring an increase in the

quality of life in their neighborhoods. (p. 5)

Haney (1998) further goes on to explain that the Southwest Council of Governments was

formed by eight cities in the Ohio (OH) region in 1973, with the intent of coordinating public

safety services and functions among the member cities. One of their concerns was that none of

the member cities had enough resources on their own to form special teams within one

department. With the incidents of hazardous materials activities and the threat of terrorism, it

was felt that a regional approach to incident planning would benefit all. He reported that a

regional hazardous materials team was formed and served the area very well.

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The results of Haney’s (1998) research paper concluded:

The majority of the fire chiefs believed there would be expanded opportunities to expand

services in their communities and that it would be more cost effective to consolidate. The

mayors anticipated improved services following a consolidation. The literature review

indicated that the majority of authors were of the opinion that consolidation would

increase the depth of services and resources available to the cities in the consolidated fire

district. At the same time, they felt that these services could be provided with a cost

savings or, at a minimum, with no increase in cost. (p. 19)

Further, Haney (1998) concluded “The majority of fire chiefs felt that the morale of their

respective organizations would benefit from a consolidation effort” (p. 20). He made additional

note that “The literature review and the chiefs’ survey essentially supported the concept of

consolidation of fire departments” (p. 24).

Fairfield fire and ems. Both the Fairfield Community Fire Company and the Fairfield Am

Vets Community Ambulance Service are located in Adams County, Pennsylvania (PA), about

eight miles northwest of the NFA (Sachs, 1999). On July 10, 1999, the Fairfield Community Fire

Company and the Fairfield Am Vets Community Ambulance Service concluded 18 months of

planning and consolidated into a single organization called Fairfield Fire & EMS (Sachs, 1999).

As Sachs (1999) identified in his article:

The mission of the new, combined Fairfield Fire & EMS is “protect the lives, property

and environment in Fairfield and surrounding areas through prevention, public education,

emergency response and non-emergency services. We will maintain the highest level of

response readiness to deliver firefighting, emergency medical and rescue services in a

safe, competent and caring manner, wherever and whenever requested.” This

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encompasses what the new organization will do for the community, for focusing on either

fire or EMS. (p. 2)

Sachs (1999) reported that about six months after the merger, signs of success were very

obvious. The merger committee expected a 20% overall budget savings by the end of 1999.

From a service standpoint, EMS personnel and firefighters began cross training, which resulted

in more personnel available to do firefighting duties and more personnel available to do

emergency medical care duties.

Sachs (1999) further reports that at the end of the first fiscal year, the results of the

merger continued to be positive. Financially, the savings enabled the new organization to build a

new community hall as well as meet all of their fire and EMS operational needs.

Fire department consolidation – why & how to do it …right. In the book published by

VFIS, Fire Department Consolidation –Why & How To Do It …Right (VFIS, 1994), several

examples of successful consolidations are cited. For example, in Contra Costa County, California

(CA), a consolidation resulted in an immediate reduced tax rate and the addition of a 10% capital

improvement program (VFIS, 1994).

Another example is Orange County, FL where a consolidation in the mid-1970s resulted

in a successful venture. However, there was no real planning and no working group to work out

details (VFIS, 1994). Because of the lack of planning it took years to finalize the consolidation

and much stress on the staff (VFIS, 1994). With proper planning “the Orange County fire

consolidation could have been easier and more efficient;” (VFIS, 1994, p. 21).

The Poudre Fire Authority, CO is another example of a successful consolidation (VFIS,

1994). The process actually began in 1980 in the Fort Collins area between Fort Collins and

Poudre Valley Fire Protection District (VFIS, 1994). In 1981 the decision was made to proceed

with a full consolidation at which time the legal basis was in place (VFIS, 1994). It was reported

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that the major concerns of both sides was the best interest of the citizens they protect and neither

side wanted the agreement to fall apart from a lack of political support (VFIS, 1994). The

transition to the new department went smooth and planning was reportedly a critical element in

the successful consolidation (VFIS, 1994).

The book also points out two failed consolidation attempts. Downey/Santa Fe Springs,

CA and Columbia/Boone County, MO (VFIS, 1994). It was the intent of both locales to pursue a

successful consolidation. Local interests and egos took over. Failure ensued as indicated by the

following:

However, in both locales, such local interests became subordinated to a different set of

interests brought to the fore by employee groups and exacerbated by inadequate support

among certain local government officials, shifting the focus of public discussions. (VFIS,

1994, p. 33)

Fire services, a best practices review. In the 1997 report funded by the Minnesota (MN)

Legislature, Fire Services – A Best Practices Review (Minnesota [MN] Legislature, 1997), the

authors reported on a consolidation of the Crystal and New Hope Fire Departments (p. xv).

In mid-1998, the on-call fire departments in the adjoining cities of Crystal and New Hope

began operating as a single department called the West Metro Fire – Rescue District (MN

Legislature, 1997, p. xv). In creating a joint fire district, Crystal and New Hope intended to meet

their communities’ expectations for service without raising property taxes.

Because of the merger, fire and rescue responses are now based on proximity to the three

fire stations, not to city boundary lines. Improved first responder service is available

because fire fighters equipped and trained to use defibrillators respond when needed by

residents of either city. Fire prevention work, including code enforcement in building

inspections and fire-safety education, are consistent throughout the district. For the first

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time in either city, a vehicle replacement program is in place. Cost reductions resulted

from unfilled turnover in fire fighter positions, but more significant savings are expected

over time as the fire department avoids the costs of replacing three pumpers while

maintaining its ISO rating. (MN Legislature, 1997, p. xv)

Fort Lauderdale combined service area alternative. In his EFO research paper, Earle

(1998) identified the areas that could benefit from a consolidation or merger as:

Potential for a better Insurance Services Organization rating

Analysis and revised perspective on department and service delivery

Economies of scale for purchases

Philosophy that less government is better government

Elimination of artificial service boundaries

Stronger internal programs such as training

Eliminates duplication of effort

Better utilization of resources

Cost savings

Affords the opportunity to offer expanded or specialized services (p. 16)

Earle (1998) identified successful consolidations in his paper, one of which was Cobb

County, Georgia (GA), which until 1971 was serviced by eight independent fire departments.

They had realized several advantages through consolidation, one of which was the reduction of

their ISO rating from 10 to seven. This benefited homeowners by a 40% reduction in home

insurance premiums.

Hutchinson and Reno County fire departments. In his EFO research paper, Frazier (1998)

researched the feasibility of consolidating two Kansas (KS) fire departments. Frazier (1998)

finds that:

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The findings of this research on the feasibility of consolidation between the City of

Hutchinson Fire Department and Reno County Fire District #2 reveal that one

consolidated fire/rescue department would be more efficient and cost effective although

there are some barriers that need to be addressed. The means are available and in place to

provide this service provided both governing bodies can reach an equitable interlocal

government. Past indifferences, lack of trust, and control issues must be put aside by all

involved persons and organizations and must look to the future to what is best for the

citizen. (p. ii)

Frazier (1998) also identified factors prompting consolidation. He says that “In the book,

Managing the Fire Service, the author sites the following reasons as the most influential catalysts

for change by cities and counties considering changing the way they provide fire service

(I.C.M.A., 1998, p. 418)” (p. 10).

These factors that Frazier (1998) quoted are:

1. Growth in demand for service, especially ambulance and rescue services.

2. Municipal budget constraints and/or contractual labor demands.

3. Not enough volunteers during daylight hours.

4. Pressure to improve the productive use of paid firefighter “downtime”.

5. The complexity of modern firefighting and the length of training volunteers required

to meet community fire-safety standards.

6. Economies of scale (some cities are served by as many as six fire departments). (p.

10)

Frazier (1998) also reported that the Orlando, FL region in 1981, combined 16 fire

districts into one county fire department named the Orange County Fire and Rescue. Reasons

cited for the need to consolidate were the loss of efficiency, cost savings, quality enhancement

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and more effective service. It was further noted that the Orlando, FL region needed to balance

the citizen’s demand for increased service against the demand by the same citizens for reduced

cost of government.

Frazier (1998) also cited the Portland, OR metropolitan area that formed a merger

between three departments in 1989, after taking a hard look at their operation. The merged

department is called the Tualatin Valley Fire and Rescue Department. Duplication was apparent,

managers at the middle level were in triplicate and property taxes for fire protection was

different throughout the area. In fact, the property tax before the merger was described “by the

cities involved as exorbitant” (p. 11).

Frazier (1998) reported on the Miami Valley Fire/EMS alliance:

Although a full departmental consolidation is not always the end result due to political

conditions, regional efforts in some areas of the country such as the Miami Valley

Fire/EMS alliance formed in 1995 with 30 Ohio departments, have been developed with

good success (Alexander, 1996, p. 92). Joint purchasing savings, programming, and

increased efficiency has been some of the benefits of the melding of all the agencies into

one large organization, but in this case without the loss of community or department

identity. (p. 17)

Frazier (1998) reported on the five-district merger in 1981 in Pasco County, FL:

This service was once fragmented into separate municipalities and districts. In 1980-81

the commission adopted a countywide mill rate for the first time which made it possible

for high growth areas or struggling sparsely areas to get necessary equipment and capital

improvements needed (Doyle, 1982, p. 321). Over $500,000 in savings was realized as a

result of the merger in 1980 alone. This was a result of bulk purchasing, centralized

training, flexibility in manpower and equipment, less administrative costs, and other

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factors. Most of the savings resulted from the reduction in chief officers salaries, and

equipment savings. A reduction in fire service ratings was also obtained reducing rates

for thousands of residents and commercial customers (Doyle, 1982, p. 38). (p. 19)

Finally, Frazier (1998) identified the benefits of a consolidation of his department and

Fire District #2:

Benefits in service which have proven effective in other departments involved in a

consolidation which should also prove effective here would be an increased response

capability for Fire District #2 patrons, increased efficiencies for both departments through

standardization of training, operating guidelines, and equipment, and the possibility of

lowered ISO rating resulting in decreased insurance premiums for residents in Fire

District #2. The City of Hutchinson would benefit specifically by having additional

flexibility in resources to use during multi incidents and the increased response

capabilities for the northern part of the city. (p. 36)

Identifying potential strategies to optimize fire protection services within Florence

Township, New Jersey. In his EFO research paper, Kensler (2000) recognized the increased

demand on the fire service today:

“With the threat of domestic terrorism and the need for urban search and rescue and other

specialized teams, in addition to the standard fire, EMS, and hazmat response, the roles

being assumed by the fire service are more unpredictable and less stable” (Rielge, 2000,

p. 52). “ “Because of their limited resources, small organizations are having difficulty

meeting state and federal mandates” (Jensen, 2000, p. 102) “Whether consolidation is

carried out for reasons of economy, efficiency or both, you’re certain to experience a

period of organizational uncertainty following such transition” (Giorgio, 2000, p. 106).

(p. 11)

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Finally, Kensler (2000) reports:

Although consolidation efforts do focus on saving money, Jeff Weltz, Co-Executive

Director, North Hudson Regionalized Fire & Rescue notes, “the number one charge that

we had in putting this (regionalization of the North Hudson Fire & Rescue Department)

together is not how much money it was going to save, but will it save lives and provide a

better fire protection to our citizens (Eldred, 2000). (p. 15)

Livermore-Pleasanton fire department. The Livermore and Pleasanton Fire Departments,

located in CA, formed a Joint Powers Authority (JPA) to oversee their consolidation (JPA, “Staff

Summary Report,” November 21, 1997). The JPA (November 21, 1997) report stated the

following:

In the first year of consolidation the department had two goals – meet the approved goals

of consolidation in the sharing of headquarters staff and resources; and fully integrate the

two prior departments into one seamless organization. Staff master planned these goals at

the first of the year and identified 293 tasks in ten theme areas that would have to be done

to completely meet our consolidation goals. Of course, these tasks were in addition to on-

going operations. (p. 1)

The JPA (November 21, 1997) staff report also identified the core purpose of the

consolidation as “To make our community safe for all citizens to live and work through the

protection of life, property and the environment” (p. 4). It further goes on to identify core values

as commitment to caring, dedicated to safety, dignity and respect for all, integrity and pride,

provide solutions, value tradition and evolve with innovation (JPA, November 21, 1997, p. 4).

Menlo Park fire district. Menlo Park Fire District Officials reported pursuing joining

forces with the Redwood City Fire Department (Jeffris, 1994). Both departments are in CA.

“Such a merger, fire Chief Rick Tye estimated, could save the two departments a total of up to

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$725,000 annually” (Jeffris, 1994, p. 1). Chief Tye also went on to say “Losing local control,

that’s the most difficult thing in a lot of areas to overcome” (Jeffris, 1994, p. 1). In a report Chief

Tye made to the fire district directors, he reported that a merger would enable both departments

to relocate stations to provide better fire protection to the city’s they serve (Jeffris, 1994).

North Shore fire department. “In 1994 the North Shore communities of Bayside, Brown

Deer, Fox Point, Glendale, River Hills, Shorewood and Whitefish Bay agreed to consolidate

their separate, independent fire departments into a single entity that would serve all seven North

Shore Communities” (Village of Bayside Web Page, “Relocation of a North Shore Fire

Department Station to Bayside”, April, 2002, p. 1). These communities are all located in

Wisconsin (WI). The article identified the joint effort as the largest consolidation of fire

departments in the state and has been used as a model for shared services for other government

entities to follow. It also goes on to say “The unified fire department serving all seven

communities has eliminated redundancy in capital equipment and facilities and has upgraded the

qualifications of firefighters” (Village of Bayside Web Page, “Relocation of a North Shore Fire

Department Station to Bayside”, April, 2002, p. 1).

People management: the crucial aspect of mergers and acquisitions. Julie Anderson’s

(1999) book People Management: The Crucial Aspect of Mergers and Acquisitions discusses the

human aspects of mergers, and if they are not addressed properly, can lead to a failure of the

merger. Anderson (1999) goes on to say “Human resources (HR) activities are increasingly being

held responsible for merger and acquisition failure” (p. 1).

Anderson (1999) indicates the HR weaknesses commonly found in a typical merger

process can be grouped as follows:

1. Neglect of psychological issues. The psychological effects of change on people are not

given adequate consideration when companies are integrated.

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2. Inadequate communications throughout the merger process. Employees are not kept

informed during the integration process. Although people fear that their jobs are at stake,

they typically have very little reliable information on which to base decisions.

3. Culture clashes between the two organizations. Employees with different values and

work styles are frequently required to work together with no structure for resolving

differences.

4. Ambiguous company direction and unclear roles and responsibilities. Senior

management is typically slow in articulating the vision and mission of the new merged

organization. (p. 1)

Potential for consolidation of the Muskegon Township fire department with neighboring

jurisdictions. In his EFO research paper, Marentette (1999) describes the potential for the

Muskegon Fire Department, in Michigan (MI), to consolidate with neighboring departments. In

Marentette’s (1999) research he describes the feasibility study of a neighboring township:

In 1996, the City of Rockford, Michigan and neighboring Plainfield Township hired the

Emergency Services Consulting Group of York, Pennsylvania to do a feasibility study on

consolidation of their fire departments. The result of the study was the creation of the

Rockford-Plainfield Fire Department. The introduction of the Rockford-Plainfield report

states, “Many communities like yours have come to realize that the review of

administrative and operational programs in the public sector is as essential as it is with

private manufacturing or financial programs. Considering alternatives to the traditional

approaches is a natural extension of good government”. (p. 12)

Marentette (1999) also points out “Fiscal considerations have historically been, and

continue to be, one of the primary motivations for exploring some type of cooperative effort” (p.

15).

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Sacramento metropolitan fire district. The American River Fire District and the

Sacramento County Fire Protection District, both of CA, received approval on March 21, 2000 to

finalize their consolidation into the Sacramento Metropolitan Fire District (SMFD) (SMFD Web

Page, “SMFD Emerges”, 2000). The merger became official on December 1, 2000. This

consolidation was a success story, after two earlier unsuccessful attempts to accomplish the

consolidation (SMFD Web Page, “SMFD Emerges”, 2000).

Cited in the article SMFD Emerges (SMFD Web Page, “SMFD Emerges”, 2000), the

merger effort was recognized in a CA commission study:

In a recent study of over 2,200 special districts in California, the Little Hoover

Commission (Commission on State Government Organization and Economy) singled out

American River and Sacramento County Fire Districts as an exemplar case where local

government mergers not only make good functional sense, but also result in an “annual

savings of $500,000 in administrative costs” (Sacramento Bee, 5/4/2000). Also noted in

the study, are the efforts to increase public awareness by implementing a citizen’s review

task force, airing public meetings on TV, regular newsletters, and initiating public

Saturday strategy meetings. (SMFD Web Page, “SMFD Emerges”, 2000, p. 3)

The consolations of consolidation. In his article, The consolations of consolidation

(Giorgio, 2000), Assistant Chief Robert Giorgio reports on the status of a six independent fire

district merger that took place on January 1, 1994. The department is the Cherry Hill Fire

Department of Cherry Hill, New Jersey (NJ). After six years of operation, the department has

seen a broad range of benefits such as uniform operations of forces, certification-based training,

reduction of the overall age of the fleet, a new maintenance facility, streamlined purchasing

procedures and an improved fire prevention bureau that has been active in improving the level of

public education (Giorgio, 2000).

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Specific improvements for the Cherry Hill Department include stronger incident

command; higher staffing levels; first responder EMS; an expanded role for volunteers;

certification-based training; improved training facilities; a streamlined organization; a newer

apparatus fleet; savings on day-to-day supplies; and centralized record keeping (Giorgio, 2000).

Lastly, Giorgio (2000) points out “The true measure of our success is the performance

and commitment of our department’s members” (p. 115).

Question 2: What are the critical elements of a successful consolidation plan?

A needs assessment of the U.S. fire service. In the report A Needs Assessment of the U.S.

Fire Service (USFA, 2002) it is stated:

It is likely that every fire department will need to have some familiarity with every type

of fire and every type of emergency, if not as part of protecting their own community,

then at least in their role as a source of mutual aid or a component of regional or even

national response to a major incident. (p. 5)

The report further goes on to say “Some of the greatest value delivered by the US fire

services comes in activities that prevent fires and other emergencies from occurring or that

moderate their severity when they do occur” (USFA, 2002, p. 49).

Change of fire protection delivery in the Manitowoc fire department, Wisconsin. In his

EFO research paper, Rusboldt (1998) identified factors important to making change work. He

concluded that operational changes must come from the top down and the fire chiefs have the

means to make or break the process. “Without their full cooperation any agreement is doomed

before it starts” (p. 9). He states that egos must be set aside. “Chief officers must look on the

people under them, paid and volunteer, as an asset and not a threat” (p. 9).

Durango fire and rescue authority. The Durango Fire Department, Animas Fire

Department, Hermosa Cliff Fire Department and Mercy Ambulance, all of CO, are working

27

towards a consolidation (HCFD Homepage, January 13, 2003). In the Durango Fire and Rescue

Authority meeting minutes of January 8, 2001, it was reported that the first combined trainings

have been organized; officer’s meetings have been combined into one; a timeline had been

identified to implement the consolidation plan; rumors were starting to occur and the department

must provide accurate information to stop the rumor mill; and the accountants of all four

agencies have come together to crunch the budgets (Durango Fire & Rescue, January 8, 2001).

In their March meeting minutes (Durango Fire & Rescue, March 12, 2001) it was

reported that a patch and logo had been finalized. Also, a web page had been designed and would

need approval to post it on the internet. It was further reported that there was a need to

communicate with the public in a better fashion. It was agreed to hold press conferences and

provide a press release to newspapers once a month.

In their April meeting minutes (Durango Fire & Rescue, April 9, 2001) it was reported

that each department had comprised a list of human resource concerns; the pension fund was

being examined to determine the best fund for the combined organization; existing bond debt

needs to be considered and how it will be treated; and it will also be necessary to identify the

function of the new district board.

Feasibility of consolidation between the Sterling Park rescue squad and the Sterling

volunteer fire department. In her EFO research paper, Walter (1999) looked at some of the

factors that must be considered in evaluating a consolidation. Walter’s (1999) findings were as

follows:

One key consideration is that any agencies contemplating a consolidation or merger

should understand that interests of the public who are being served must be the basic

motivation for the consolidation, for example, improved service delivery and financial

efficiency (VFIS, 1994). Studies on consolidation also suggest that legal counsel be

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consulted very early in the consolidation discussions to ensure the protection of the

agencies involved and the citizens served (VFIS, 1994).

The VFIS research includes the following set of factors which contribute to the

success of a consolidation effort between fire and emergency service agencies:

agencies that have agreements, cooperative ventures or other relationships with

one another; agencies that foster an atmosphere of completely honest

communication concerning the consolidation effort; sufficient time for planning

prior to consolidation; an effective strategy and implementation of a

communications plan for informing the authority having jurisdiction and the

community itself of the consolidation; and the support of the agency leaders

involved (VFIS, 1994). (p. 11)

Fire department consolidation. On the internet site Fire Department Consolidation

(Geocites, “Fire Department Consolidation”, December, 2002), the authors reviewed several fire

department consolidations which occurred around the country. They put together all of the

information on a 39 page internet site which contains highlights, elements, topics, views,

findings and opinions of these consolidations. Following are several topics, issues and findings

taken from the report relating to the critical elements of a consolidation plan.

“Each time there comes a point of dispute or indecision, you must ask yourself the

question ‘What’s best for the public?’” (Geocites, December, 2002, p. 1).

“Keep all employees informed of what is being done and why.” (Geocites, December,

2002, p. 2).

“Chiefs need to establish ‘Task Forces’ whose job it is to develop master plans for each

division and sub-division within the proposed consolidated agency.” (Geocites, December, 2002,

p. 2).

29

“Develop an organizational chart so all involved can better understand relationships and

organization structure.” (Geocites, December, 2002, p. 2).

“From the beginning, invite the press, radio, TV, whichever is available to you, to attend

board meetings or workshops that address the subject of consolidation or merger.” (Geocites,

December, 2002, p. 2).

Some of the most important service level issues are:

1. The amount of time it takes fire units to respond to fires and medical emergencies

2. Provision of advanced and basic life support services

3. Number of firefighters and paramedics who respond to a call

4. How costs will be shared

5. Response by “back-up” units

6. Equipment at fire stations

7. Minimum training levels (Geocites, December, 2002, p. 2)

“How would costs of a consolidated fire department be split among residents?”

(Geocites, December, 2002, p. 3).

“Need protocols to provide answers to issues raised by unions and elected officials.”

(Geocites, December, 2002, p. 4).

“Develop an operations guide for a shared facility to guide the day-to-day operation and

answer ‘who, what, where, why, and how.’” (Geocites, December, 2002, p. 4).

“Clearly evaluate the public’s expectation of their fire and rescue services, so the new

department can include these in its long term planning.” (Geocites, December, 2002, p.

6).

“Firefighter safety” (Geocites, December, 2002, p. 6).

30

“Provide continuous dialogue to diminish rumors and maintain the right focus.”

(Geocites, December, 2002, p. 6).

“Identify transitional goals that are realistic, evaluate productivity and measure

achievement.” (Geocites, December, 2002, p. 6).

One section identified critical topics and issues as:

• Effectiveness and productivity

• Distribution of costs and benefits

• Fire Insurance

• Evaluating fire protection investments

• Management/labor relations

• Computer deployment analysis

• Target hazard areas

• Building and equipment maintenance

• Projected population growth

• Community expansion

• Water supply

• Demographics

• Training deficiencies

• Physical fitness of personnel (Geocites, December, 2002, p. 8)

“What curriculum would form the backbone of our firefighter training programs?”

(Geocites, December, 2002, p. 12).

“Assist employees who may feel that they have lost ‘status’ through the change.”

(Geocites, December, 2002, p. 27).

31

“Change the name of the new organization. Expensive? Yes. Worthwhile? Absolutely.

You have the opportunity for a ‘fresh start’.” (Geocites, December, 2002, p. 27).

“Identify all the key stakeholders and include them in the planning process from the

beginning.” (Geocites, December, 2002, p. 30).

Fire department consolidation – why & how to do it …right. In the book published by

VFIS, Fire Department Consolidation –Why & How To Do It …Right (VFIS, 1994), a

consolidation model is presented to help guide fire departments through consolidations. This

model consists of nine chronological steps as follows:

1. Determine feasibility

2. Form and activate advisory group

3. Identify key needs, issues, requirements and constraints

4. Develop goals and objectives

5. Establish criteria for selecting programs and approaches

6. Develop and analyze alternative programs and approaches

7. Formulate an action plan

8. Implement the plan

9. Monitor implementation (VFIS, 1994, p. 36)

Key personnel issues are also identified in the VFIS text. The issues are:

• impact bargaining;

• differences in compensation and workloads;

• consolidation of unions and civil service/personnel systems;

• selection of key staff for the new department;

• possible loss of job status for some employees;

• social, economic, philosophical and cultural differences; and

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• personal problems. (VFIS, 1994, p. 12)

Fire services, a best practices review. In the 1997 report funded by the MN Legislature,

Fire Services – A Best Practices Review (MN Legislature, 1997), the authors identified seven

actions for successful fire department management (p. xiv). The seven actions are:

1. Assess risks and develop long-range plans.

2. Evaluate fire department performance and use resources cost-effectively.

3. Promote public awareness of fire safety.

4. Ensure fire code enforcement

5. Develop effective communications systems.

6. Prepare a competent work force and support safe operations.

7. Plan for on-scene response. (MN Legislature, 1997, p. xiv)

Hutchinson and Reno County fire departments. In his EFO research paper, Frazier (1998)

identified operational issues that need to be addressed:

Operational issues that need to be addressed may involve areas such as station locations

and manpower, standard operating procedures, rules and regulations, response guidelines,

communications system, promotional and hiring practices, equitable rank and manpower

issues, mutual aid agreements, standardization of equipment and testing, health and safety

standards, and uniform training standards, and uniform code enforcement, and a

transition period where changes that effect the organization’s effectiveness and

employees are as minimized as possible. (p. 26)

Frazier (1998) also pointed out that opponents to consolidation come in all forms. They

could be elected officials, city mangers, citizens, firefighters or fire chiefs themselves. He also

pointed out that trust is very important in a consolidation.

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Frazier (1998) cites John Kotter, a professor of leadership at Harvard Business School,

“that successful cases of a change process are contingent upon many issues. However, eight

major factors are consistent with change processes that fail” (p. ).

Frazier (1998) goes on to list them as:

1. Not establishing a great enough sense of urgency.

2. Not creating a powerful enough guiding coalition.

3. Lacking a vision.

4. Under communicating the vision.

5. Not removing obstacles to the new vision.

6. Not systematically planning for and creating short-term wins.

7. Declaring victory too soon.

8. Not anchoring changes in the organization’s culture. (p. 31)

Finally, Frazier (1998) points out:

Timing and open communication, are two other factors that may have an important

impact on the success of a consolidation effort. If communication to all involved parties

is not successful, a lack of trust will quickly develop and many people such as the media,

elected officials, employees, and citizens, may become opponents. (p. 41)

Livermore-Pleasanton fire department. The Livermore and Pleasanton Fire Departments

identified in their November Staff Summary Report (JPA, November 21, 1997) the following

administrative elements to their consolidation plan. They were development of personnel rules;

development of an employer-employee relations policy; implementation of a career development

guide; core purpose and values development with chiefs and captains; entry level hiring

procedure development; creation of a department newsletter; joint records management system;

and a station location study.

34

Prior to this report, in 1996, the staff identified critical areas that needed to be addressed

to continue with the consolidation (City of Pleasanton, “Staff Report 6F”, February 20, 1996).

The critical areas were radio systems; paramedic training; joint testing; vehicle maintenance;

apparatus specifications; joint response agreements; joint response plans; dispatch services; EMS

coordination; training; EMT recertification; shift alignment; regular staff meetings; team

problem solving; and duty chief coverage (City of Pleasanton, “Staff Report 6F”, February 20,

1996, p. 4).

Prior to the 1996 report, and at the very beginning of the consolidation process, the basis

for the consolidation and its goals were identified in a 1995 staff report (City of Pleasanton,

“Staff Report 10F”, January 17, 1995). The 1995 staff report identified three general goals:

1. To establish a single system for emergency fire safety response within the Twin Valley

area that includes a single regional response plan and common standards for emergency

response service. This goal is based on several considerations including (a) recognition

that fire departments already must rely heavily upon one another during major

emergencies, and (b) catastrophic incidents are not constrained by jurisdictional borders.

2. To maximize cost effectiveness and efficiency in the provision of service by:

a. minimizing duplication of personnel, equipment and facilities;

b. active sharing and joint use of resources (e.g. personnel, facilities and

equipment) and consolidating specific service activities where practical. This

goal recognizes that fire departments are expensive public safety enterprises

that are comprised of “standby resources” that can be effectively shared.

3. Retention of control over community service levels by jurisdiction. This goal

acknowledges each jurisdiction’s responsibility to ensure that an adequate level of fire

protection is provided to its residents and businesses. Under this plan:

35

a. Each existing fire department would continue to be the primary provider of

fire and emergency medical services within their respective community. The city

council’s of each community would retain control over service levels and funding, and

would be fully accountable for both the quality and quantity of services.

b. Through a system of operating agreements, the critical emergency and

support services of the separate fire departments would be organized into a

more fully integrated fire protection system. (p. 4)

Making mergers work. In his book Making Mergers Work, Pritchett (1987) states that “At

the risk of oversimplifying things, there are three basic laws for successful mergers” (p. vii). The

first is “Give the people good reasons for wanting it to work.” (p. vii), second “Show the people

how to make it work.” (p. vii) and third “Check to see if it is working.” (p. vii). Pritchett (1987)

emphasizes that “When these laws are violated, it tears organizations apart.” (p. vii).

Pritchett (1987) points out the following:

Mergers are very destabilizing events, and they create a phenomenal opportunity for

change and performance improvement in organizations. But the upheaval must be

managed astutely.

Employees need to understand what the predictable merger dynamics are so they

can flow with them. Managers at all levels need to know what’s happening, what

top executives have as a game plan, so they can manage the situation. Finally,

everyone needs to know how they personally will be affected so they can begin to

adjust as quickly as possible. (p. vi)

NFPA 1201 standard for developing fire protection services for the public. The NFPA

has developed a guideline entitled Standard for Developing Fire Protection Services for the

Public, otherwise known as NFPA 1201 (2000). This standard contains requirements for the

36

structure and operation of organizations providing public fire protection. Further, it identifies the

specific areas that should be addressed with appropriate guidelines and how to implement them

(NFPA 1201, 2000).

According to NFPA 1201 (2000), fire departments shall have the following.

1. Strategic (Master) Planning

2. Organizational Structure of the Fire Department

3. Financial Management and Budgeting

4. Human Resources Management

5. Training

6. Organization for Fire Suppression

7. Emergency Scene Management

8. Emergency Medical Systems

9. Community Relations

10. Public Fire Safety Education

11. Code Enforcement

12. Fire Investigation

13. Communications

14. Equipment and Buildings

15. Management of Water for Fire Protection

16. Hazardous Materials Response

17. Major Emergency Management

18. Management of Reports and records

NFPA 1500 standard on fire department occupational safety and health program. The

NFPA has developed a guideline entitled Standard on Fire Department Occupational Safety and

37

Health Program, otherwise known as NFPA 1500 (2002). This standard contains minimum

requirements for a fire service related occupational safety and health program. The purpose of

the standard “shall be to specify the minimum requirements for an occupational safety and health

program for a fire department” (NFPA 1500, 2002, p.5). “This standard shall specify safety

requirements for those members involved in rescue, fire suppression, emergency medical

services, hazardous materials operations, and related activities.” (NFPA 1500, 2002, p. 5).

NFPA 1710 standard for the organization and deployment of fire suppression operations,

emergency medical operations, and special operations to the public by career fire departments.

The NFPA has developed a guideline entitled Standard for the Organization and

Deployment of Fire Suppression Operations, Emergency Medical Operations, and Special

Operations to the Public by Career Fire Departments, otherwise known as NFPA 1710 (2001).

This standard contains minimum requirements relating to the organization and deployment of

emergency services provided by substantially all career fire departments. The standard calls for

such things as a fire department organizational statement identifying the services and basic

organization of the department (NFPA 1710, 2001). Criteria for fire suppression services, criteria

for emergency medical services, criteria for special operations, criteria for wildland fire

suppression and criteria for intercommunity organization, such as mutual aid plans, must all be

clearly defined (NFPA 1710, 2001). Other important elements identified in the standard are

staffing of apparatus, deployment of fire companies, initial alarm assignments, response times to

an incident, additional alarm assignments, service delivery of EMS and an overall quality

management program to assure the success of meeting the standard (NFPA 1710, 2001). Other

elements include the need for a safety and health program, an incident management system,

appropriate training systems, a reliable communications system, and requirements to perform

pre-incident planning (NFPA 1710, 2001).

38

North Shore fire department. In a fire station relocation article, the author identifies the

two major reasons for consolidating seven community fire departments into the North Shore Fire

Department. The first was to improve the quality of service and the second was to achieve

economies of scale (Village of Bayside Web Page, “Relocation of a North Shore Fire Department

Station to Bayside”, April, 2002).

People management: the crucial aspect of mergers and acquisitions. Julie Anderson

(1999) discusses the importance of the people of an organization during a merger. Anderson

(1999) states:

• The companies should provide a realistic merger preview and communicate openly

and regularly with employees. All employees must be aware of what the merger is

meant to achieve, why it is important, and how they will be affected. When

employees are fully aware of what to expect, they are less likely to suffer from stress

and resist change. But if the companies fail to communicate openly, they will

probably experience reduced employee morale, declining productivity, and increased

turnover and absenteeism.

• Managers should be familiar with and prepared to deal with the ‘merger syndrome,’

in which employees initially react to the merger announcement with denial, fear,

anxiety, and anger, but learn in the end – if the transition is properly managed – to

recognize new opportunities in the new organization and become committed to it.

• Employee assistance programs should be used to reduce stress and help employees

cope with the change. Counseling will help employees distinguish the real from the

imagined effects of the merger and clarify their own career choices. (p. iii)

Sacramento metropolitan fire district. “Appropriate levels of service and rapid response

times are critical components to meeting the essential mission of the fire service. That mission is

39

to save lives and protect property and the environment, arising from emergency incidents”

(SMFD Web Page, “SMFD Emerges”, 2000, p. 2). The author further states that a department

must have an adequate level of human and mechanical resources that are placed within a

community in such a way to minimize response times and maximize the correct equipment for

the job. The article points out that:

In such a time of rapid expansion it is incumbent upon the District’s administrators and

policy making body to carefully examine the service delivery aspects of the organization

to ensure that they support the stated values within the Mission Statement and provide for

continually increasing levels of quality in both process and outcome. (SMFD Web Page,

“SMFD Emerges”, 2000, p. 3)

Strategies for marketing your fire department today and beyond. In the book Strategies

for Marketing Your Fire Department Today and Beyond (USFA, 1998), the authors identify the

vision of the fire service:

To keep pace with society, the fire service must review its current mission and determine

if that mission will indeed meet the demands of the next century. The old mission of

simply “saving lives and protecting property” may no longer have the depth or scope

necessary to meet the expectations of the public. If, indeed, the mission must change, that

change should come from within the fire service. This will require innovation, courage,

and the commitment of fire service leaders at all levels, both career and volunteer. In fact,

change may be the single greatest challenge facing the fire service in the next century. (p.

6)

The book goes on further to indicate that public information, public education and public

relations must be understood and be part of the functions of fire departments (USFA, 1998).

Specifically, these functions are defined as:

40

Public information is the process of informing the public about the operations of and

actions taken by the fire department during emergencies.

Public education is the process of changing people’s attitudes and behavior related to

safety, as most fires and injuries can be prevented with changed behavior.

Public relations is the process of developing a positive public perception about the fire

department, its members, its programs, and its services. (USFA, 1998, p. 7)

Strategies for Marketing Your Fire Department Today and Beyond points out that “Fire

departments must now demonstrate the need for services, and must clearly show that they are

doing everything possible to provide the services and programs effectively and efficiently.”

(USFA, 1998, p. 15).

The book goes on to state:

In the future, every fire service organization will have to work to identify customer needs,

and then do everything possible to meet those needs. This will not be simply a fad and

then fade; it will become an expected level of performance. Anything less will not be

tolerated by the customer. In short, serving the community through effective, quality

customer service will be an essential part of the fire service. (USFA, 1998, p. 21)

Finally, the book points out: “Leadership is something much different from effective

management” (USFA, 1998, p. 26). “Leaders work with people: the men and women of the fire

service. The fire service is going to need leaders who can pick up the banner and lead the change

into the next century.” (USFA, 1998, p. 26).

The consolations of consolidation. In his article, Giorgio (2000) identifies considerations

for consolidation as:

• It’s important for fire service leaders to circulate the most accurate financial picture

possible.

41

• Ownership issues will arise during any consolidation. To help in your planning, have

a clear understanding of the ownership of all facilities and equipment.

• Clearly evaluate the public’s expectations of their fire and rescue services, so the new

department can include these in its long-term planning.

• Make immediate changes that will enhance the level of service you can provide to the

public with your current resources.

• Firefighter safety is a paramount concern that should always be considered in every

decision.

• Continuous dialogue will go a long way toward diminishing rumors and maintaining

the right focus.

• Select the right person for the right job.

• Identify transitional goals that are realistic, evaluate productivity and measure

achievements. (Giorgio, 2000, p. 108)

Giorgio (2000) goes on to discuss managing a consolidated agency:

• Continually evaluate and consult with other organizations.

• Be up front and honest with your people.

• Leaders must be willing to make critical decisions when they arise.

• Regardless of how embattled things become, the personnel who exhibit

professionalism, maintain a positive outlook and keep the public in mind usually

come out in front.

• Ensure that the rules are applied equally, and that your actions are stable enough to

withstand the most in-depth scrutiny. (Giorgio, 2000, p. 110)

42

Question 3: What are the elements that are important to the staff of the Coventry fire districts to

insure a successful consolidation plan?

Coventry comprehensive community plan. The Coventry Comprehensive Community

Plan (BRW, Inc., 1992) reported the findings of the 1989 through 1990 Coventry Merger Study

Committee. The Merger Study Committee, composed of members from each fire district,

prepared a draft study examining the merger of the seven fire districts into one operating entity.

The major findings of the Coventry Merger Study Committee regarding the existing fire district

system were levels of service are inconsistent throughout the town; the majority of fire districts

have experienced a decline in the number of available qualified volunteers; the initial manpower

response level in most districts is not in accordance with the minimum recommendations of the

NFPA; mutual aid is provided by most districts to overcome shortages in manpower or apparatus

at any given time, but is also viewed as an instrument to place a disproportionate tax burden on

the aiding districts; location of fire stations was predicted on a build as needed basis, but has not

been reassessed with the growth of the town; advanced life support is not provided to all

residents; fire prevention activities vary from district to district; administrative services are

duplicated; training is not consistent; and older, built-out fire districts have no way to increase

revenue other than raising taxes (BRW, Inc., 1992, p. B.8-11).

In 1992, during the comprehensive plan study conducted by the town of Coventry, six of

the seven fire chiefs had expressed interest in consolidating the existing district system into one

system that would remain a public service provided by an entity outside of the Coventry town

government (BRW, Inc., 1992, p. B.8-9), for example staying as an independent fire district. The

major justification for consolidation included many considerations that were expressed in

interviews with the fire chiefs, many of which reflected the same findings of the Coventry

Merger Study Committee (BRW, Inc., 1992, p. B.8-11).

43

The Coventry Comprehensive Community Plan (BRW, Inc., 1992) recommended the

following measures should be implemented to provide improved fire service throughout the town

of Coventry:

Reassessment of the location of existing stations, and possible closure or relocation if

warranted.

Standardization of recruitment and hiring practices be implemented according to state

and federal requirements.

A comprehensive update and coordination of the dispatch systems, and standardization of

communications between districts.

Establishment of consistent training and operational procedures for all fire districts.

Development and maintenance of consistent criteria for response times, type of

equipment responding and the qualifications of personnel responding to calls. Response

times may be different for urban and rural areas of the town.

Recognition that different districts should provide special equipment and service for

industries or rural areas, as necessary. (p. D.5-7)

It was further noted that the consolidation of fire districts appears to reduce redundancy

and provides a more efficient organizational structure. However, it will be necessary for the fire

districts to prepare a detailed analysis of the consolidation proposal (BRW, Inc., 1992, p. D.5-8).

Summary of the literature. The objective of this research is to identify the critical

elements necessary for a successful consolidation plan for the Coventry fire districts. The

literature review gave credence to this research. There are several communities around the

country who have completed successful consolidations by utilizing organized and comprehensive

consolidation plans. Most of these consolidation plans were comprised of elements necessary to

address all of the concerns of the parties involved with the consolidation. These elements that

44

were critical to these successful plans are identifiable through the research and can be applied to

the development of a successful consolidation plan for the Coventry fire districts. In addition, it

is clear from the literature review that the elements that are critical to the staff of the Coventry

fire districts can be identified, as well as be applied to a successful consolidation plan for the fire

districts.

Procedures

Research Methodology

The desired outcome of this research is to identify the critical elements necessary for a

successful consolidation plan for the Coventry fire districts. The research project utilized

evaluative research methodology to understand the experiences of several communities around

the nation that have gone through fire department consolidations, as well as identifying critical

elements of a successful consolidation plan, and identifying the elements that are important to

the staff of the Coventry fire districts to insure a successful consolidation plan.

The on-line card catalog of the Learning Resource Center (LRC) at the NFA was used to

search for materials pertaining to fire department consolidations and mergers. Further, the search

engine www.Google.com was utilized also to search for materials pertaining to fire department

consolidations and mergers.

All research information from online internet sources was obtained from computers

located at the student computer lab at the NFA, computers located at the Coventry Public Library

in Coventry, RI, and computers located at the Central Coventry fire station in Coventry, RI.

NFPA standards were printed in their entirety from NFPA Online, which is NFPA’s

internet based reference service. The printed standards from this internet reference service are

equivalent in content to the published text distributed by NFPA.

45

A copy of the Coventry Comprehensive Community Plan was provided to the researcher

from the Coventry planning department personnel at the Coventry Town Hall, Coventry, RI.

A copy of the textbook Fire Department Consolidation, Why & How To Do It …Right

(VFIS, 1994) was received by publication request from VFIS in York, PA.

EFO papers were printed in their entirety from the online LRC database.

Books printed by the USFA were picked up on the campus of the NFA from the USFA

publications distribution center located on the campus.

All other textbooks used for this research were loaned from the Coventry Public Library

or borrowed on inter-library loan through the Coventry Public Library.

To understand the experiences of several communities around the nation that have gone through

fire department consolidations. Information for question number one was taken from seven

online internet sources, two textbooks, two articles from a fire service trade magazine, and eight

EFO research papers. The seven online internet sources used were the Swissvale FD Web Page

(“Press Release,” September 17, 2002), Fairfield Fire & EMS: United They Stand (Sachs, 1999),

Fire Services – A Best Practices Review (MN Legislature, 1997), Livermore-Pleasanton Fire

Department Staff Summary Report (JPA, November 21, 1997), Menlo Park (Jeffris, 1994),

Relocation of a North Shore Fire Department Station at Bayside (Village of Bayside Web Page,

April, 2002), and SMFD Emerges (SMFD Web Page, 2000). The two textbooks were Fire

Department Consolidation –Why & How To Do It … Right (VFIS, 1994) and People

Management: The Crucial Aspects of Mergers and Acquisitions (Anderson, 1999). The two

articles were Consolidations a’ la carte (Jensen, 2000) and The consolations of consolidation

(Giorgio, 2000). The eight EFO research papers were Analysis of a Proposed Four Fire District

Merger in Ada County, Idaho (Curry, 1999), Consolidation of Fire Protection Services in

Central Penobscot County (Ellis, 2000), Feasibility of Consolidation between the Sterling Park

46

Rescue Squad and Sterling Volunteer Fire Department (Walter, 1999), Feasibility Study of

Consolidation for the Southwest Council of Governments (Haney, 1998), Fort Lauderdale

Combined Service Area Alternative (Earle, 1998), Hutchinson and Reno County Fire

Departments (Frazier, 1998), Identifying Potential Strategies to Optimize Fire Protection

Services within Florence Township, New Jersey (Kensler, 2000) and Potential for Consolidation

of the Muskegon Township Fire Department with Neighboring Jurisdictions (Marentette, 1999).

Identifying critical elements of a successful consolidation plan. Information for question

number two was taken from eight online internet sources, seven textbooks, one article from a fire

service trade magazine, three EFO research papers and one report. The eight online internet

sources used were the Hermosa Cliff Fire Department Homepage (HCFD Homepage, January

13, 2003), Fire Department Consolidation (Geocites, December, 2002), Fire Services – A Best

Practices Review (MN Legislature, 1997), Livermore-Pleasanton Fire Department Staff

Summary Report (JPA, November 21, 1997), Livermore-Pleasanton Fire Department Staff

Report (City of Pleasanton, “Staff Report 6F”, February 20, 1996), Livermore-Pleasanton Fire

Department Staff Report (City of Pleasanton, “Staff Report 10F”, January 17, 1995), Relocation

of a North Shore Fire Department Station at Bayside (Village of Bayside Web Page, April,

2002), and SMFD Emerges (SMFD Web Page, 2000). The seven textbooks were Fire

Department Consolidation –Why & How To Do It … Right (VFIS, 1994), Making Mergers Work

(Pritchett, 1987), NFPA 1201 Standard for Developing Fire Protection Services for the Public

(NFPA, 2000), NFPA 1500 Standard on Fire Department Occupational Safety and Health

Program (NFPA 2002), NFPA 1710 Standard for the Organization and Deployment of Fire

Suppression Operations, Emergency Medical Operations, and Special Operations to the Public

by Career Fire Departments (NFPA, 2001), People Management: The Crucial Aspects of

Mergers and Acquisitions (Anderson, 1999), and Strategies for Marketing Your Fire Department

47

Today and Beyond (USFA, 1998). The one article was The consolations of consolidation

(Giorgio, 2000). The three EFO research papers were Change of Fire Protection Delivery in the

Manitowoc Fire Department (Rusboldt, 1998), Hutchinson and Reno County Fire Departments

(Frazier, 1998), and Feasibility of Consolidation between the Sterling Park Rescue Squad and

the Sterling Volunteer Fire Department (Walter, 1999). The one report was A Needs Assessment

of the U.S. Fire Service (USFA, 2002).

Identifying the elements that are important to the staff of the Coventry fire districts to

insure a successful consolidation plan. Information for question number three was taken from

one study and one survey. The study was the Coventry Comprehensive Community Plan (BRW,

Inc., 1992). The survey that was used is described below.

Survey

A convenience sample was used to gather information on the critical elements important

to the staff of the Coventry fire districts for a successful consolidation plan. Respondents to the

survey were from the seven fire districts in the town of Coventry. The total estimated number of

active firefighters in the town of Coventry is 115. These active firefighters include career

firefighters, call firefighters and volunteer firefighters. The survey was designed to identify

topics that the respondents felt were critical elements necessary to develop a successful

consolidation plan for the town of Coventry fire districts. All of the topics listed on the survey

form were a result of the literature review as well as the researcher’s personal knowledge of the

operation of the Coventry fire districts. See Appendix A for a sample copy of the survey

instructions that were distributed with the survey form. See Appendix B for a sample copy of the

survey form.

48

Analysis of the Survey

All of the results of the sample survey were collected and separated based upon the

response to question number one and question number two. Responses to question number one

were tabulated to determine the number of respondents to each individual topic. Responses to

question number two were recorded in their entirety.

Limitations and Assumptions

This convenience sample represents a limited but representative cross section of the

firefighters of the town of Coventry fire districts.

It is assumed that all respondents answered honestly.

Definition of Terms

Combination Fire Department: A fire department staffed by both career and volunteer

firefighters.

Consolidation: The act of combining to one body or entity.

Fire District: A political subdivision chartered to provide fire protection services.

Functional Consolidation: Separate fire departments are retained, but one or more duties

normally performed by one department are assigned to employees of another department.

ISO: Insurance Services Offices

Joint Powers Authority: Intergovernmental agreement with authority granted to assume

specific powers jointly.

Merger: The combining of two or more governmental agencies through a legal process

with the output being a single entity.

Mutual Aid: An agreement between fire departments to provide assistance as requested

on an incident-by-incident basis (Marentette, 1999).

49

Survey Respondent: Active firefighters from the seven Coventry fire districts. They

include career firefighters, call firefighters and volunteer firefighters.

Results

Answer to Question 1: What are the experiences of other communities that have gone through

fire department consolidations? The following experiences of communities around the nation

were identified in the literature review.

Curry’s (1999) findings are that there are major benefits to the taxpayer in increased

service levels with no increase in cost.

The Swissvale and Rankin volunteer fire departments of Maryland reported:

“The steering committee’s plan will not increase any cost to either community and it will

provide for better fire protection than what each volunteer department could provide on their

own.” (Swissvale FD Web Page, Press Release, September 17, 2002)

Jensen (2000) points out that during these days of consolidations, “What does matter is

that egos are being set aside and decisions are being made with the end user in mind” (Jensen,

2000, p. 105). This is a very important observation because it signifies that consolidations are

working and obstacles such as egos that were prevalent in earlier years are being overcome.

Ellis (2000) identifies a successful consolidation in 1995, when the City of Thornton, CO

merged with the West Adams County Fire Protection District, saving $300,000 to $500,000 per

year beginning in 1996. Ellis (2000) also reports that on January 1, 1998, the fire departments of

Toronto, North York, Scarborough, Etobicoke, York, and the Borough of East York in Canada,

were merged into the Toronto Fire Services, which was deemed a success story.

On the down side, Ellis (2000) reports:

Unfortunately, not all consolidations are successful. Individual circumstances need to be

carefully considered before a final decision as whether to consolidate or not is made

50

(Haney, 1998). In California “after almost a year of studying the possibility of

consolidating the fire services of Los Altos, the Los Altos County Fire Protection

District, Mountain View and Palo Alto, the conclusion is that it’s feasible but not

practical” (Domingue, 2000). There were not enough money incentives to gain public

support for the consolidation. (p. 22)

At the conclusion of her research, Walter’s (1999) recommendation was “It is

recommended that the Sterling Park Rescue Squad and the Sterling Volunteer Fire Department

not actively participate in consolidation efforts at present” (p. 3).

Walter (1999) reported the present-day Tualatin Fire and Rescue Department near

Portland, OR, is the product of several consolidations of smaller fire and rescue agencies. While

there were many challenges in the consolidation efforts encountered by Tualatin Valley Fire and

Rescue, the agency concluded that the consolidations were very beneficial and published

materials to assist other departments in effective consolidations (Walter, 1999).

Walter (1999) also reported on the Lexington Fire Department and EMS:

The Lexington, Missouri, Fire Department and Emergency Medical Services Department

investigated the possibility of a consolidation in 1991 (Fischer, 1991). The conclusion of

the study of the possible consolidation between the Lexington Fire Department and the

Lexington EMS Department was that a consolidation would benefit the organizational

and operational efficiency of the departments and the service delivery (Fischer, 1991). (p.

8)

In 1994, the Fernridge Rural Fire Department in Veneta, OR, examined the possibility of

consolidation with other departments (Walter, 1999). “The study also found that consolidation of

smaller fire departments would be beneficial” (p. 8).

51

Walter (1999) also reported that a 1995 study of fire districts in Collier County, Lee

County and Manatec County, FL found “there were no negative perceptions present in the

department members concerning fairness of treatment, decision making ability and the level of

authority within the consolidated departments (Latessa, 1995)” (Walter, 1999, p. 9).

Haney’s (1998) research paper concluded that consolidation of the member departments

of the Southwest Council of Governments was feasible and “The majority of the fire chiefs

believed there would be expanded opportunities to expand services in their communities and that

it would be more cost effective to consolidate. The mayors anticipated improved services

following a consolidation” (p. 19).

Of the Fairfield Community Fire Company and the Fairfield Am Vets Community

Ambulance Service consolidation, Sachs (1999) reported that after about six months after the

merger, signs of success were very obvious. The merger committee expected a 20% overall

budget savings by the end of 1999. From a service standpoint, EMS personnel and firefighters

began cross training, which resulted in more personnel available to do firefighting duties and

more available to do emergency medical care duties.

Sachs (1999) further reports that at the end of the first fiscal year, the results of the

merger continued to be positive.

In Contra Costa County, CA, a consolidation resulted in an immediate reduced tax rate

and the addition of a 10% capital improvement program (VFIS, 1994).

Another example is Orange County, FL where a consolidation in the mid-1970s resulted

in a successful venture (VFIS, 1994).

The Poudre Fire Authority, CO is another example of a successful consolidation (VFIS,

1994). The process actually began in 1980 in the Fort Collins area between Fort Collins and

Poudre Valley Fire Protection District (VFIS, 1994). In 1981 the decision was made to proceed

52

with a full consolidation. The transition to the new department went smooth and planning was

reportedly a critical element in the successful consolidation (VFIS, 1994).

The book also points out two failed consolidation attempts, Downey/Santa Fe Springs,

CA and Columbia/Boone County, MO (VFIS, 1994). It was the intent of both locales to pursue a

successful consolidation. However, local interests and egos took over, causing failure of the

consolidation attempt (VFIS, 1994).

Fire Services – A Best Practices Review (MN Legislature, 1997), reported on the

consolidation that formed the West Metro Fire – Rescue District.

Because of the merger, fire and rescue responses are now based on proximity to the three

fire stations, not to city boundary lines. Improved first responder service is available

because fire fighters equipped and trained to use defibrillators respond when needed by

residents of either city. Fire prevention work, including code enforcement in building

inspections and fire-safety education, are consistent throughout the district. For the first

time in either city, a vehicle replacement program is in place. Cost reductions resulted

from unfilled turnover in fire fighter positions, but more significant savings are expected

over time as the fire department avoids the costs of replacing three pumpers while

maintaining its ISO rating. (MN Legislature, 1997, p. xv)

Earle (1998) identified successful consolidations in his paper, one of which was Cobb

County, GA, which until 1971 was serviced by eight independent fire departments. They had

realized several advantages through consolidation, one of which was the reduction of their ISO

rating from 10 to seven.

Frazier (1998) researched the feasibility of consolidating two KS fire departments.

Frazier (1998) finds that:

53

The findings of this research on the feasibility of consolidation between the City of

Hutchinson Fire Department and Reno County Fire District #2 reveal that one

consolidated fire/rescue department would be more efficient and cost effective although

there are some barriers that need to be addressed. The means are available and in place to

provide this service provided both governing bodies can reach an equitable interlocal

government. Past indifferences, lack of trust, and control issues must be put aside by all

involved persons and organizations and must look to the future to what is best for the

citizen. (p. ii)

Frazier (1998) also reports that the Orlando, FL region in 1981, combined 16 fire districts

into one county fire department named the Orange County Fire and Rescue. It was noted that the

Orlando, FL region needed to balance the citizens’ demand for increased service against the

demand by the same citizens for reduced cost of government (Frazier, 1998). The combination of

the16 fire districts met the citizens’ demands.

Frazier (1998) also cited the Portland, OR metropolitan area that formed the Tualatin

Valley Fire and Rescue Department, a merger between three departments in 1989 after taking a

hard look at their operation. The merger eliminated duplication, reduced managers at the middle

level, and created a fair, single property tax for fire protection (Frazier, 1998).

Frazier (1998) reported on the Miami Valley Fire/EMS alliance:

Although a full departmental consolidation is not always the end result due to political

conditions, regional efforts in some areas of the country such as the Miami Valley

Fire/EMS alliance formed in 1995 with 30 Ohio departments, have been developed with

good success (Alexander, 1996, p. 92). Joint purchasing savings, programming, and

increased efficiency has been some of the benefits of the melding of all the agencies into

54

one large organization, but in this case without the loss of community or department

identity. (p. 17)

Frazier (1998) reported on a five-district merger in 1981 in Pasco County, FL, “Over

$500,000 in savings was realized as a result of the merger in 1980 alone. This was a result of

bulk purchasing, centralized training, flexibility in manpower and equipment, less administrative

costs, and other factors” (p.19). “A reduction in fire service ratings was also obtained reducing

rates for thousands of residents and commercial customers (Doyle, 1982, p. 38)” (Frazier, 1998,

p. 19).

Finally, Frazier (1998) identified the benefits of a consolidation of his department and

Fire District #2:

Benefits in service which have proven effective in other departments involved in a

consolidation which should also prove effective here would be an increased response

capability for Fire District #2 patrons, increased efficiencies for both departments through

standardization of training, operating guidelines, and equipment, and the possibility of

lowered ISO rating resulting in decreased insurance premiums for residents in Fire

District #2. The City of Hutchinson would benefit specifically by having additional

flexibility in resources to use during multi incidents and the increased response

capabilities for the northern part of the city. (p. 36)

In his EFO research paper, Kensler (2000) reports:

Although consolidation efforts do focus on saving money, Jeff Weltz, Co-Executive

Director, North Hudson Regionalized Fire & Rescue notes, “the number one charge that

we had in putting this (regionalization of the North Hudson Fire & Rescue Department)

together is not how much money it was going to save, but will it save lives and provide a

better fire protection to our citizens (Eldred, 2000). (p. 15)

55

The Livermore and Pleasanton Fire Departments formed a JPA (JPA, “Staff Summary

Report,” November 21, 1997) that reported:

In the first year of consolidation the department had two goals – meet the approved goals

of consolidation in the sharing of headquarters staff and resources; and fully integrate the

two prior departments into one seamless organization. Staff master planned these goals at

the first of the year and identified 293 tasks in ten theme areas that would have to be done

to completely meet our consolidation goals. (p. 1)

The JPA (November 21, 1997) staff report indicated success in forwarding their goals

and accomplishing their 293 tasks.

Menlo Park Fire District Officials reported pursuing joining forces with the Redwood

City Fire Department (Jeffris, 1994). “Such a merger, fire Chief Rick Tye estimated, could save

the two departments a total of up to $725,000 annually” (Jeffris, 1994, p. 1). In a report Chief

Tye made to the fire district directors, he reported that a merger would enable both departments

to relocate stations to provide better fire protection to the city’s they serve (Jeffris, 1994).

“In 1994 the North Shore communities of Bayside, Brown Deer, Fox Point, Glendale,

River Hills, Shorewood and Whitefish Bay agreed to consolidate their separate, independent fire

departments into a single entity that would serve all seven North Shore Communities” (Village of

Bayside Web Page, “Relocation of a North Shore Fire Department Station to Bayside”, April,

2002, p. 1). The article identified the joint effort as the largest consolidation of fire departments

in the state and has been used as a model for shared services for other government entities to

follow. It also goes on to say “The unified fire department serving all seven communities has

eliminated redundancy in capital equipment and facilities and has upgraded the qualifications of

firefighters” (Village of Bayside Web Page, “Relocation of a North Shore Fire Department

Station to Bayside”, April, 2002, p. 1).

56

Julie Anderson (1999) discusses the human aspects of mergers and if they are not

addressed properly, can lead to a failure of the merger. Anderson (1999) goes on to say “Human

resources (HR) activities are increasingly being held responsible for merger and acquisition

failure” (p. 1).

Anderson (1999) indicates the HR weaknesses commonly found in a typical merger

process can be grouped as follows:

1. Neglect of psychological issues. The psychological effects of change on people are not

given adequate consideration when companies are integrated.

2. Inadequate communications throughout the merger process. Employees are not kept

informed during the integration process. Although people fear that their jobs are at stake,

they typically have very little reliable information on which to base decisions.

3. Culture clashes between the two organizations. Employees with different values and

work styles are frequently required to work together with no structure for resolving

differences.

4. Ambiguous company direction and unclear roles and responsibilities. Senior

management is typically slow in articulating the vision and mission of the new merged

organization. (p. 1)

Marentette (1999) describes the potential for the Muskegon Fire Department, in MI, to

consolidate with neighboring departments. In Marentette’s (1999) research he describes the

feasibility study of a neighboring township:

In 1996, the City of Rockford, Michigan and neighboring Plainfield Township hired the

Emergency Services Consulting Group of York, Pennsylvania to do a feasibility study on

consolidation of their fire departments. The result of the study was the creation of the

Rockford-Plainfield Fire Department. (p. 12)

57

The American River Fire District and the Sacremento County Fire Protection District

consolidated into the Sacramento Metropolitan Fire District (SMFD Web Page, “SMFD

Emerges”, 2000). The merger became official on December 1, 2000, this being a successful

consolidation after two earlier unsuccessful attempts (SMFD Web Page, “SMFD Emerges”,

2000).

Also cited on the SMFD web page in the article SMFD Emerges, the merger effort was

recognized in a CA commission study.

In a recent study of over 2,200 special districts in California, the Little Hoover

Commission (Commission on State Government Organization and Economy) singled out

American River and Sacramento County Fire Districts as an exemplar case where local

government mergers not only make good functional sense, but also result in an “annual

savings of $500,000 in administrative costs” (Sacramento Bee, 5/4/2000). Also noted in

the study, are the efforts to increase public awareness by implementing a citizen’s review

task force, airing public meetings on TV, regular newsletters, and initiating public

Saturday strategy meetings. (SMFD Web Page, “SMFD Emerges”, 2000, p. 3)

Giorgio (2000), reports on the status of a six-fire district merger that formed the Cherry

Hill Fire Department of Cherry Hill, NJ. After six years of operation, the department has seen a

broad range of benefits such as uniform operations of forces, certification-based training,

reduction of the overall age of the fleet, a new maintenance facility, streamlined purchasing

procedures and an improved fire prevention bureau that has been active in improving the level of

public education (Giorgio, 2000).

Giorgio (2000) points out “The true measure of our success is the performance and

commitment of our department’s members” (p. 115).

58

Question 2: What are the critical elements of a successful consolidation plan? The following

critical elements of successful consolidation plans were identified in the literature review.

In the report A Needs Assessment of the U.S. Fire Service (USFA, 2002) it is made clear

that all fire departments around the nation will have to be familiar with every type of emergency

because of the regional and sometimes national responses the fire service is encountering. This

thought process should be kept in mind during the review of the results since overall success

today has to be measured on a much larger scale than it was just a few years ago.

Rusboldt (1998) concluded that operational changes must come from the top down and

the fire chiefs have the means to make or break the process. He states that egos must be set aside

(Rusboldt, 1998).

The Durango Fire Department, Animas Fire Department, Hermosa Cliff Fire Department

and Mercy Ambulance, have been working towards a consolidation (HCFD Homepage, January

13, 2003). Critical elements of their consolidation effort were identified in the minutes to their

meetings.

In the Durango Fire and Rescue Authority meeting minutes of January 8, 2001, it was

reported that the first combined trainings have been organized; officer’s meetings have been

combined into one; a timeline had been identified to implement the consolidation plan; the

department must provide accurate information to stop the rumor mill; and the accountants of all

four agencies have come together to crunch the budgets (Durango Fire & Rescue, January 8,

2001).

In their March meeting minutes (Durango Fire & Rescue, March 12, 2001) it was

reported that a patch and logo had been finalized and a web page had been designed. It was

further reported that there was a need to communicate with the public in a better fashion. It was

agreed to hold press conferences and provide a press release to newspapers once a month.

59

In their April meeting minutes (Durango Fire & Rescue, April 9, 2001) it was reported

that each department had comprised a list of human resource concerns; the pension fund was

being examined to determine the best fund for the combined organization; existing bond debt

needs to be considered and how it will be treated; and it will also be necessary to identify the

function of the new district board.

Walter (1999) identified factors that must be considered in evaluating a consolidation.

Walter’s (1999) findings were as follows:

One key consideration is that any agencies contemplating a consolidation or merger

should understand that interests of the public who are being served must be the basic

motivation for the consolidation (VFIS, 1994). Studies on consolidation also suggest that

legal counsel be consulted very early in the consolidation discussions (VFIS, 1994).

The VFIS research includes the following set of factors which contribute to the

success of a consolidation effort between fire and emergency service agencies:

agencies that have agreements, cooperative ventures or other relationships with

one another; agencies that foster an atmosphere of completely honest

communication concerning the consolidation effort; sufficient time for planning

prior to consolidation; an effective strategy and implementation of a

communications plan for informing the authority having jurisdiction and the

community itself of the consolidation; and the support of the agency leaders

involved (VFIS, 1994) (p. 11).

On the internet site Fire Department Consolidation (Geocites, “Fire Department

Consolidation”, December, 2002), the following topics, issues and findings were reported:

“Each time there comes a point of dispute or indecision, you must ask yourself the

question ‘What’s best for the public?’” (Geocites, December, 2002, p. 1).

60

“Keep all employees informed of what is being done and why.” (Geocites, December,

2002, p. 2).

“Chiefs need to establish ‘Task Forces’ whose job it is to develop master plans for each

division and sub-division within the proposed consolidated agency.” (Geocites, December, 2002,

p. 2).

“Develop an organizational chart so all involved can better understand relationships and

organization structure.” (Geocites, December, 2002, p. 2).

“From the beginning, invite the press, radio, TV, whichever is available to you, to attend

board meetings or workshops that address the subject of consolidation or merger.” (Geocites,

December, 2002, p. 2).

Some of the most important service level issues are:

1. The amount of time it takes fire units to respond to fires and medical emergencies

2. Provision of advanced and basic life support services

3. Number of firefighters and paramedics who respond to a call

4. How costs will be shared

5. Response by “back-up” units

6. Equipment at fire stations

7. Minimum training levels (Geocites, December, 2002, p. 2)

“How would costs of a consolidated fire department be split among residents?”

(Geocites, December, 2002, p. 3).

“Need protocols to provide answers to issues raised by unions and elected officials.”

(Geocites, December, 2002, p. 4).

61

“Clearly evaluate the public’s expectation of their fire and rescue services, so the new

department can include these in its long term planning.” (Geocites, December, 2002, p.

6).

“Firefighter safety” (Geocites, December, 2002, p. 6).

“Provide continuous dialogue to diminish rumors and maintain the right focus.”

(Geocites, December, 2002, p. 6).

“Identify transitional goals that are realistic, evaluate productivity and measure

achievement.” (Geocites, December, 2002, p. 6).

One section identified critical topics and issues as:

• Effectiveness and productivity

• Distribution of costs and benefits

• Fire Insurance

• Evaluating fire protection investments

• Management/labor relations

• Computer deployment analysis

• Target hazard areas

• Building and equipment maintenance

• Projected population growth

• Community expansion

• Water supply

• Demographics

• Training deficiencies

• Physical fitness of personnel (Geocites, December, 2002, p. 8)

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“What curriculum would form the backbone of our firefighter training programs?”

(Geocites, December, 2002, p. 12).

“Assist employees who may feel that they have lost ‘status’ through the change.”

(Geocites, December, 2002, p. 27).

“Change the name of the new organization. Expensive? Yes. Worthwhile? Absolutely.

You have the opportunity for a ‘fresh start’.” (Geocites, December, 2002, p. 27).

“Identify all the key stakeholders and include them in the planning process from the

beginning.” (Geocites, December, 2002, p. 30).

In the book published by VFIS, Fire Department Consolidation –Why & How To Do It

…Right (VFIS, 1994), a consolidation model of nine chronological steps was presented as:

1. Determine feasibility

2. Form and activate advisory group

3. Identify key needs, issues, requirements and constraints

4. Develop goals and objectives

5. Establish criteria for selecting programs and approaches

6. Develop and analyze alternative programs and approaches

7. Formulate an action plan

8. Implement the plan

9. Monitor implementation (VFIS, 1994, p. 36)

Key personnel issues are also identified in the VFIS text as:

• impact bargaining;

• differences in compensation and workloads;

• consolidation of unions and civil service/personnel systems;

• selection of key staff for the new department;

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• possible loss of job status for some employees;

• social, economic, philosophical and cultural differences; and

• personal problems. (VFIS, 1994, p. 12)

Fire Services – A Best Practices Review (MN Legislature, 1997), the authors identified

seven actions for successful fire department management (p. xiv). The seven actions are:

1. Assess risks and develop long-range plans.

2. Evaluate fire department performance and use resources cost-effectively.

3. Promote public awareness of fire safety.

4. Ensure fire code enforcement

5. Develop effective communications systems.

6. Prepare a competent work force and support safe operations.

7. Plan for on-scene response. (MN Legislature, 1997, p. xiv)

Frazier (1998) identified operational issues to consider:

Operational issues that need to be addressed may involve areas such as station locations

and manpower, standard operating procedures, rules and regulations, response guidelines,

communications system, promotional and hiring practices, equitable rank and manpower

issues, mutual aid agreements, standardization of equipment and testing, health and safety

standards, and uniform training standards, and uniform code enforcement, and a

transition period where changes that effect the organization’s effectiveness and

employees are as minimized as possible. (p. 26)

Frazier (1998) also points out that trust is very important in a consolidation.

Frazier (1998) cites eight major factors that are consistent with change processes that fail.

Frazier (1998) goes on to list them as:

1. Not establishing a great enough sense of urgency.

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2. Not creating a powerful enough guiding coalition.

3. Lacking a vision.

4. Under communicating the vision.

5. Not removing obstacles to the new vision.

6. Not systematically planning for and creating short-term wins.

7. Declaring victory too soon.

8. Not anchoring changes in the organization’s culture. (p. 31)

Finally, Frazier (1998) stresses that “Timing and open communication, are two other

factors that may have an important impact on the success of a consolidation effort” (p.

41).

The Livermore and Pleasanton Fire Departments November Staff Summary Report (JPA,

November 21, 1997) identified the following administrative elements. Development of personnel

rules; development of employer-employee relations policy; career development guide

implementation; core purpose and values development with chiefs and captains; entry level

hiring procedure development; creation of a department newsletter; joint records management

system; and a station location study.

In 1996 the staff identified critical areas that needed to be addressed to continue with the

consolidation (City of Pleasanton, “Staff Report 6F”, February 20, 1996). The critical areas were

radio systems; paramedic training; joint testing; vehicle maintenance; apparatus specifications;

joint response agreements; joint response plans; dispatch services; EMS coordination; training;

EMT recertification; shift alignment; regular staff meetings; team problem solving; and duty

chief coverage (City of Pleasanton, “Staff Report 6F”, February 20, 1996, p. 4).

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The 1995 staff report (City of Pleasanton, “Staff Report 10F”, January 17, 1995)

identified three general goals:

1. To establish a single system for emergency fire safety response within the Twin Valley

area that includes a single regional response plan and common standards for emergency

response service.

2. To maximize cost effectiveness and efficiency in the provision of service by:

a. minimizing duplication of personnel, equipment and facilities;

b. active sharing and joint use of resources (e.g. personnel, facilities and

equipment) and consolidating specific service activities where practical.

3. Retention of control over community service levels by jurisdiction. This goal

acknowledges each jurisdiction’s responsibility to ensure that an adequate level of fire

protection is provided to its residents and businesses. (p. 4)

Pritchett (1987) states that “At the risk of oversimplifying things, there are three basic

laws for successful mergers” (p. vii). The first is “Give the people good reasons for wanting it to

work.” (p. vii), second “Show the people how to make it work.” (p. vii) and third “Check to see

if it is working.” (p. vii). Pritchett (1987) points out:

Managers at all levels need to know what’s happening, what top executives have as a

game plan, so they can manage the situation. Finally, everyone needs to know how they

personally will be affected so they can begin to adjust as quickly as possible. (p. vi).

NFPA 1201 (2000) identifies the specific areas that should be addressed along with

appropriate guidelines about how to implement them.

According to NFPA 1201 (2000), fire departments shall have the following.

1. Strategic (Master) Planning

2. Organizational Structure of the Fire Department

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3. Financial Management and Budgeting

4. Human Resources Management

5. Training

6. Organization for Fire Suppression

7. Emergency Scene Management

8. Emergency Medical Systems

9. Community Relations

10. Public Fire Safety Education

11. Code Enforcement

12. Fire Investigation

13. Communications

14. Equipment and Buildings

15. Management of Water for Fire Protection

16. Hazardous Materials Response

17. Major Emergency Management

18. Management of Reports and records

NFPA 1500 (2002) calls for minimum requirements for a fire service related occupational

safety and health program. “This standard shall specify safety requirements for those members

involved in rescue, fire suppression, emergency medical services, hazardous materials

operations, and related activities.” (NFPA 1500, 2002, p. 5).

NFPA 1710 (2001) calls for such things as a fire department organizational statement

identifying the services and basic organization of the department. Criteria for fire suppression

services, criteria for emergency medical services, criteria for special operations, criteria for

wildland fire suppression and criteria for intercommunity organization, such as mutual aid plans,

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must all be clearly defined (NFPA 1710, 2001). Other important elements identified in the

standard are staffing of apparatus; deployment of fire companies; initial alarm assignments;

response times to an incident; additional alarm assignments; service delivery of EMS; and, an

overall quality management program to assure the success of meeting the standard (NFPA 1710,

2001). Other elements include the need for a safety and health program; an incident management

system; appropriate training systems; a reliable communications system; and, requirements to

perform pre-incident planning (NFPA 1710, 2001).

In an article of a fire station relocation, the author identifies the two major reasons for

consolidating, one, to improve the quality of service and two, to achieve economies of scale

(Village of Bayside Web Page, “Relocation of a North Shore Fire Department Station to

Bayside”, April, 2002).

Anderson (1999) discusses the importance of the people of an organization during a

merger: “The companies should provide a realistic merger preview and communicate openly and

regularly with employees. All employees must be aware of what the merger is meant to achieve,

why it is important, and how they will be affected” (Anderson, 1999, p. iii). She goes on to say:

Managers should be familiar with and prepared to deal with the ‘merger syndrome,’ in

which employees initially react to the merger announcement with denial, fear, anxiety,

and anger, but learn in the end – if the transition is properly managed – to recognize new

opportunities in the new organization and become committed to it. (p. iii)

Finally, she emphasizes that “Employee assistance programs should be used to reduce

stress and help employees cope with the change” (Anderson, 1999, p. iii).

As reported on the Sacramento Metropolitan Fire District. “Appropriate levels of service

and rapid response times are critical components to meeting the essential mission of the fire

service. That mission is to save lives and protect property and the environment, arising from

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emergency incidents” (SMFD Web Page, “SMFD Emerges”, 2000, p. 2). The author further

states that a department must have an adequate level of human and mechanical resources that are

placed within a community in such a way to minimize response times and maximize the correct

equipment for the job (SMFD Web Page, “SMFD Emerges”, 2000).

In the book Strategies for Marketing Your Fire Department Today and Beyond (USFA,

1998), the authors identify the vision of the fire service “To keep pace with society, the fire

service must review its current mission and determine if that mission will indeed meet the

demands of the next century” (p. 6).

Public information, public education and public relations must be understood and be part

of the functions of fire departments (USFA, 1998).

“Fire departments must now demonstrate the need for services, and must clearly show

that they are doing everything possible to provide the services and programs effectively and

efficiently” (USFA, 1998, p. 15).

“Leadership is something much different from effective management” (USFA, 1998, p.

26). “Leaders work with people: the men and women of the fire service. The fire service is going

to need leaders who can pick up the banner and lead the change into the next century” (USFA,

1998, p. 26).

Giorgio (2000) identifies considerations for consolidation as:

• It’s important for fire service leaders to circulate the most accurate financial picture

possible.

• Ownership issues will arise during any consolidation. To help in your planning, have

a clear understanding of the ownership of all facilities and equipment.

• Clearly evaluate the public’s expectations of their fire and rescue services, so the new

department can include these in its long-term planning.

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• Make immediate changes that will enhance the level of service you can provide to the

public with your current resources.

• Firefighter safety is a paramount concern that should always be considered in every

decision.

• Continuous dialogue will go a long way toward diminishing rumors and maintaining

the right focus.

• Select the right person for the right job.

• Identify transitional goals that are realistic, evaluate productivity and measure

achievements. (Giorgio, 2000, p. 108)

Giorgio (2000) goes on to discuss managing a consolidated agency:

• Continually evaluate and consult with other organizations.

• Be up front and honest with your people.

• Leaders must be willing to make critical decisions when they arise.

• Regardless of how embattled things become, the personnel who exhibit

professionalism, maintain a positive outlook and keep the public in mind usually

come out in front.

• Ensure that the rules are applied equally, and that your actions are stable enough to

withstand the most in-depth scrutiny. (Giorgio, 2000, p. 110)

Question 3: What are the elements that are important to the staff of the Coventry fire districts to

insure a successful consolidation plan? The following elements important to the staff of the

Coventry fire districts were identified in the literature review

The Coventry Comprehensive Community Plan (BRW, Inc., 1992) reported the findings

of the 1989 through 1990 Coventry Merger Study Committee.

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Also in 1992, six of the seven fire chiefs were interviewed and had expressed interest in

consolidating the existing district system into one system (BRW, Inc., 1992, p. B.8-9). The major

justification for consolidation included many considerations that were expressed in interviews

with the fire chiefs, many of which reflected the same findings of the Coventry Merger Study

Committee (BRW, Inc., 1992, p. B.8-11).

The Coventry Comprehensive Community Plan (BRW, Inc., 1992), recommended the

following measures should be implemented:

Reassessment of the location of existing stations, and possible closure or relocation if

warranted.

Standardization of recruitment and hiring practices be implemented according to state

and federal requirements.

A comprehensive update and coordination of the dispatch systems, and standardization of

communications between districts.

Establishment of consistent training and operational procedures for all fire districts.

Development and maintenance of consistent criteria for response times, type of

equipment responding and the qualifications of personnel responding to calls. Response

times may be different for urban and rural areas of the town.

Recognition that different districts should provide special equipment and service for

industries or rural areas, as necessary. (p. D.5-7)

Survey results. Elements important to the staff of the Coventry fire districts were also

identified in the sample survey. The sample population of the survey was 115 potential

respondents. The actual number of respondents was 40. This resulted in a 35% return rate.

Question number one asked the respondents to circle all topics that they considered should be

addressed in a consolidation plan. Further, the researcher considered that all topics that were

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selected by more than 50% of the respondents represent the most critical issues to the staff of the

Coventry fire districts. A total of 82 topics were listed under question number one for the

respondents to select from. Of the 82 topics, 63 topics were selected by more than 50% of the

respondents. These 63 topics were considered in the recommendation of this researcher to the

Coventry fire districts. The complete set of results to question number one may be found in

Appendix C.

Question number two of the survey asked respondents to identify in their own words

what they considered the most important elements of a successful consolidation plan. Out of the

40 respondents, 31 answered question number two. Comments by these 31 respondents ranged

from elements that they felt were critical to the consolidation process as well as general

comments and suggestions on how to achieve a successful consolidation. The comments by these

31 respondents were considered in the recommendation of this researcher to the Coventry fire

districts. The complete set of results to question number two may be found in Appendix C.

Discussion

The research results showed that fire department consolidations can be successful. The

results also showed that the critical elements of a fire department consolidation plan can be

identified. Further, it was shown that the staff of the Coventry fire districts does have critical

issues that they feel should be addressed in a consolidation plan. These stated findings are similar

to the findings found in other communities around the nation.

Examples of successful consolidations were very obvious throughout the literature

review. Curry’s (1999) findings were that there are major benefits to the taxpayer in increased

service levels with no increase in cost.

The Swissvale Fire Department web page identified that “The steering committee’s plan

will not increase any cost to either community and it will provide for better fire protection than

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what each volunteer department could provide on their own.” (Swissvale FD Web Page, Press

Release, September 17, 2002).

Ellis (2000) identified a successful consolidation in 1995, when the City of Thornton, CO

merged with the West Adams County Fire Protection District, saving $300,000 to $500,000 per

year beginning in 1996.

Walter (1999) reported the present-day Tualatin Fire and Rescue Department near

Portland, OR, is the product of several consolidations of smaller fire and rescue agencies. While

there were many challenges in the consolidation efforts encountered by Tualatin Valley Fire and

Rescue, the agency concluded that the consolidations were very beneficial and published

materials to assist other departments in effective consolidations (Walter, 1999).

Haney’s (1998) research paper concluded that consolidation of the member departments

of Southwest Council of Governments was feasible and “The majority of the fire chiefs believed

there would be expanded opportunities to expand services in their communities and that it would

be more cost effective to consolidate. The mayors anticipated improved services following a

consolidation” (p. 19).

The Poudre Fire Authority, CO is another example of a successful consolidation (VFIS,

1994). The process actually began in 1980 in the Fort Collins area between Fort Collins and

Poudre Valley Fire Protection District (VFIS, 1994). In 1981 the decision was made to proceed

with a full consolidation. The transition to the new department went smooth and planning was

reportedly a critical element in the successful consolidation (VFIS, 1994).

Similar findings were evident in the MN Legislature report of the West Metro Fire-

Rescue District:

Because of the merger, fire and rescue responses are now based on proximity to the three

fire stations, not to city boundary lines. Improved first responder service is available

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because fire fighters equipped and trained to use defibrillators respond when needed by

residents of either city. Fire prevention work, including code enforcement in building

inspections and fire-safety education, are consistent throughout the district. For the first

time in either city, a vehicle replacement program is in place. Cost reductions resulted

from unfilled turnover in fire fighter positions, but more significant savings are expected

over time as the fire department avoids the costs of replacing three pumpers while

maintaining its ISO rating. (MN Legislature, 1997, p. xv)

The Cherry Hill Fire Department of Cherry Hill, NJ was the result of a successful

consolidation. After six years of operation, the department has seen a broad range of benefits

such as uniform operations of forces, certification-based training, reduction of the overall age of

the fleet, a new maintenance facility, streamlined purchasing procedures and an improved fire

prevention bureau that has been active in improving the level of public education (Giorgio,

2000).

Examples of critical elements of a fire department consolidation plan were also very

obvious throughout the literature review. Several examples follow.

Walter’s (1999) findings were as follows:

One key consideration is that any agencies contemplating a consolidation or merger

should understand that interests of the public who are being served must be the basic

motivation for the consolidation (VFIS, 1994).

Fire Department Consolidation (Geocites, December, 2002) identified several examples:

“Keep all employees informed of what is being done and why.” (Geocites, December,

2002, p. 2).

74

“Chiefs need to establish ‘Task Forces’ whose job it is to develop master plans for each

division and sub-division within the proposed consolidated agency.” (Geocites, December, 2002,

p. 2).

“Develop an organizational chart so all involved can better understand relationships and

organization structure.” (Geocites, December, 2002, p. 2).

“Need protocols to provide answers to issues raised by unions and elected officials.”

(Geocites, December, 2002, p. 4).

“Clearly evaluate the public’s expectation of their fire and rescue services, so the new

department can include these in its long term planning.” (Geocites, December, 2002, p.

6).

“Firefighter safety” (Geocites, December, 2002, p. 6).

“Identify transitional goals that are realistic, evaluate productivity and measure

achievement.” (Geocites, December, 2002, p. 6).

“Identify all the key stakeholders and include them in the planning process from the

beginning.” (Geocites, December, 2002, p. 30).

In his EFO research paper, Frazier (1998) identified operational issues:

Operational issues that need to be addressed may involve areas such as station locations

and manpower, standard operating procedures, rules and regulations, response guidelines,

communications system, promotional and hiring practices, equitable rank and manpower

issues, mutual aid agreements, standardization of equipment and testing, health and safety

standards, and uniform training standards, and uniform code enforcement, and a

transition period where changes that effect the organization’s effectiveness and

employees are as minimized as possible. (p. 26)

75

The NFPA guideline entitled Standard for Developing Fire Protection Services for the

Public, NFPA 1201 (2000), identifies the specific areas that should be addressed along with

appropriate guidelines about how to implement them (NFPA 1201, 2000).

The NFPA guideline entitled Standard on Fire Department Occupational Safety and

Health Program, NFPA 1500 (2002), was developed “to specify safety requirements for those

members involved in rescue, fire suppression, emergency medical services, hazardous materials

operations, and related activities.” (NFPA 1500, 2002, p. 5).

The NFPA guideline entitled Standard for the Organization and Deployment of Fire

Suppression Operations, Emergency Medical Operations, and Special Operations to the Public

by Career Fire Departments, NFPA 1710 (2001), calls for such things as a fire department

organizational statement identifying the services and basic organization of the department

(NFPA 1710, 2001).

As reported on the Sacramento Metropolitan Fire District. “Appropriate levels of service

and rapid response times are critical components to meeting the essential mission of the fire

service. That mission is to save lives and protect property and the environment, arising from

emergency incidents” (SMFD Web Page, “SMFD Emerges”, 2000, p. 2).

The critical issues important to the staff of the Coventry fire districts were evident in the

survey results. Question number one asked the respondents to circle all topics that they

considered should be addressed in a consolidation plan. Of the 82 topics, 63 topics were selected

by more than 50% of the respondents. These 63 topics were considered in the recommendation

of this researcher to the Coventry fire districts.

Question number two of the survey asked respondents to identify in their own words

what they considered the most important elements of a successful consolidation plan. Out of the

76

40 respondents, 31 answered question number two. The comments by these 31 respondents were

considered in the recommendation of this researcher to the Coventry fire districts.

At the onset of the research, this researcher was unclear to the many success stories

associated with fire department consolidations. This researcher had heard of successful

consolidations, but did not realize that these success stories included such a large number of fire

departments across the nation. In fact, very few failed consolidations were evident from the

research.

In reviewing the documents pertaining to the numerous consolidations, it is clear that fire

department consolidations can lead to better and more efficient delivery of emergency services to

the public. To achieve this success, consolidating fire departments must understand that the

public being served should be the primary motivating factor for the consolidation. Further, at all

times, the consolidation should assure that “Appropriate levels of service and rapid response

times are critical components to meeting the essential mission of the fire service. That mission is

to save lives and protect property and the environment, arising from emergency incidents”

(SMFD Web Page, “SMFD Emerges”, 2000, p. 2).

It also became apparent from the research that the majority of the successful

consolidations were the result of extensive planning and a well developed implementation plan.

These implementation plans consistently were comprised of critical elements that led to the

successful consolidation. It was apparent that the same critical elements found their way into

consolidation plans in many communities across the nation. The only differences that became

apparent in the plans were addressing local needs that are particular to each community.

The research particularly sparked the interest of this researcher when it came to the

results of the survey. The survey results indicated a genuine interest in the consolidation

planning of the Coventry fire districts. Although this researcher would like to have seen a higher

77

return of surveys, it is believed that the number returned is a good cross section of opinions of

the staff. The topics in question number one that were selected by more than 50% of the

respondents and the responses received for question number two were all considered in the

recommendation formulated by this researcher. It became apparent from the comments on the

survey that there is a genuine interest to serve the public through a professionally managed fire

department.

The implications of the results for the Coventry fire districts are that a consolidation

would result in a successful unified fire service in the town of Coventry. In addition, the critical

elements identified in the research can be implemented in a town of Coventry consolidation plan.

Finally, the staff of the Coventry fire districts has a genuine interest in formulating a

consolidation plan that is professional and sensitive to providing the best service to the residents

of the town of Coventry.

Recommendations

This research project identified several communities located throughout the nation that

have experienced successful consolidations. In fact, there have been very few consolidation

failures, indicating that consolidation attempts typically result in a success story.

The research also identified that the successful consolidations were typically the result of

a well-designed consolidation plan. As part of those well designed consolidation plans, critical

elements were identified and implemented in order to achieve a successful consolidation.

Further, in this particular research project, the survey conducted of the staff of the

Coventry fire districts was able to identify the elements that the staff felt were critical to a

successful consolidation plan for their town.

The research results showed that fire department consolidations can be successful. The

results showed that the critical elements of a fire department consolidation plan can be identified.

78

In addition, the results showed that the staff of the Coventry fire districts does have critical issues

that they feel should be addressed in a consolidation plan.

As a result of this research project, the researcher has compiled a list of critical elements

of a successful consolidation plan for the town of Coventry fire districts. This list includes

critical elements that should be part of a consolidation plan; action items for accomplishing the

critical elements; considerations while developing and implementing a consolidation plan; and,

attributes of the consolidation plan.

This researcher recommends that the town of Coventry Fire Districts’ Consolidation

Study Committee adopt the list of critical elements of a successful consolidation plan as outlined

in Appendix D of this research project. It should be noted however, that the consolidation

process is a dynamic process and new critical elements of a consolidation plan may be uncovered

as the process evolves. Therefore, it is recommended that any new critical elements of a

consolidation plan that are identified during the consolidation planning process, be included in

the consolidation plan and appropriate action items be undertaken to address the new critical

elements.

It is further recommended that a survey similar to the one given to the staff of the

Coventry fire districts be devised and distributed to the residents of Coventry. This would allow

for public input and their perception of what would be the critical elements of a fire department

consolidation plan.

For future readers, the list of critical elements of a successful consolidation plan as

outlined in Appendix D could be applied to other communities around the nation. However, to

delineate the differences between Coventry and other communities, this researcher recommends

that any interested community survey their respective organizations as was done in Coventry.

79

Specifically, a survey should be distributed to the staff of the fire departments involved in the

consolidation as well as consider a survey of the public to receive their input.

80

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department (Applied Research Project). Emmitsburg, MD: National Fire Academy.

Sachs, G. (1999). Fairfield fire & ems: United they stand [Electronic version]. Emergency

Medical services, retrieved January 13, 2003 from http://www.emsmagazine.com/

issues/fairfield.html

83

Seltzer, R. W. (2002, August). Coventry Emergency Services, a fire district alliance. Presented at

the National Fire Academy, Executive Development class, Emmitsburg, MD.

Sacramento Metropolitan Fire District Web Page. (2000). Sacramento metropolitan fire district

emerges as a regional leader. Retrieved December 24, 2002, from

http://www.smfd.ca.gov/smfd_emerges.htm

Swissvale Fire Department Web Page. (2002, September 17). Press release. Retrieved

December 31, 2002, from http://www.swissvalevfd.org/press.htm

United States Census Bureau (2000). Geographic comparison table. Retrieved February 5,

2003, from http://www.census.gov/

Village of Bayside Web Page. (2002, April). Relocation of a North Shore fire department

station to Bayside. Retrieved January 12, 2003, from http://www.village.bayside.wi.us/

Agendas%20&%20M…/relocation_of_a_north_shore_fire.ht

Walter, A. A. (1999, June). The feasibility of consolidation between the Sterling Park rescue

squad and the Sterling volunteer fire department (Applied Research Project).

Emmitsburg, MD: National Fire Academy.

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Appendix A

CENTRAL COVENTRY FIRE DISTRICT 2847 Flat River Road Coventry, R.I. 02816

To: Chief of the Department From: Chief Robert W. Seltzer Re: National Fire Academy Applied Research Project Dear Chief, The enclosed survey is being distributed to you for an applied research project that I am completing for my studies in the National Fire Academy’s Executive Fire Officer Program. This survey is being sent to all seven fire districts. I am asking the assistance of you and your personnel, career, call, and volunteer, to assist by completing the survey. Instructions for the survey are as follows. The survey form is anonymous. For question #1, please circle all listed topics that apply, as asked for in question #1. For question #2, write down in the space provided any additional topics as asked for in question #2. Please return surveys by February 12, 2003. They can be sent by mail or by fax to: Mailing address: Chief Robert Seltzer Fax #: 392-9001 Central Coventry Fire District 2847 Flat River Road Coventry, R.I. 02816 So that you can see the results of the survey, a copy of the research project will be forwarded to your department upon its completion. Thank you for your assistance with this project. Sincerely, Robert W. Seltzer Chief

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Appendix B

National Fire Academy, Executive Fire Officer Program - Applied Research Project

Survey Form

If a consolidation of fire services were to occur in the town of Coventry, the following research question would be considered: What are the elements that are important to the staff of the Coventry Fire Districts to insure a successful consolidation plan? Question #1: From the topics listed below, which ones should be addressed in a consolidation plan, so that the Coventry Fire Districts would have a successful consolidation plan? Please circle all that apply. Achievement of Economies of Scale Insurance Station Locations Adequate Staffing ISO Rating Strategic Master Plan Apparatus Placement Job Descriptions Street Lighting Applying Professional Standards Job Placement Support Services Board of Directors Makeup Long Range Planning Tax Collection By-Laws Mission Statement Tax Rate Charter Name of Organization Time Line Code Enforcement NFPA 1500 Total Number of Firefighters Communications NFPA 1710/1720 Town Ambulance Operations Consistent Direction Operational Guidelines and Orders Training Program Employee Contracts Organizational Structure/Chart Transitional Goals Education Ownership of Facilities & Equipment Union Consolidation Eliminating Redundancy Pay for Call Personnel Water Management for Emergency Medical Services Pay Scales for Career Personnel Suppression Employee Assistance Program Personnel Benefits & Retirement WMD/Terrorism Response Employee Rules & Regulations Personnel Input Written Mutual Aid Equipment & Buildings Plan for On-Scene Responses Agreements Existing Debt Progress Reports of Consolidation Written Goals and Objectives Financial Management & Budgeting Promotion Policies Fire Alarm Operations Public Education Program Firefighter Safety Public Input Fire Investigation Program Purchasing Policies Fire Prevention Program Quality Management Program Betterment of Fire Service Fire Suppression Reports & Records Management Fairness Fleet Maintenance Program Selection of Chief/Command Personnel Honesty Human Resources Management Selection of Tax Collector Quality Oriented Implementation Plan Selection of Treasurer Service Oriented Incident Command System Service Delivery Trustworthy Include All Stakeholders in the Process Shift Operations Inclusion of Local Legislatures Special Operations/Haz-Mat/Water Ops. Question #2: In your own words, please list in the space provided what you consider to be the most important elements of a successful consolidation plan? You can choose topics from the list above or other topics that are not listed. __________________________________________________________________________________________________________________________________________________________________________________________ _____________________________________________________________________________________________ _____________________________________________________________________________________________ _____________________________________________________________________________________________ _____________________________________________________________________________________________ _____________________________________________________________________________________________ _____________________________________________________________________________________________ Please fax this survey to: 392-9001 or return to: Central Coventry F.D., 2847 Flat River Road, Coventry, R.I. 02816

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Appendix C

National Fire Academy, Executive Fire Officer Program - Applied Research Project

Survey Form - Results

If a consolidation of fire services were to occur in the town of Coventry, the following research question would be considered: What are the elements that are important to the staff of the Coventry Fire Districts to insure a successful consolidation plan? Question #1: From the topics listed below, which ones should be addressed in a consolidation plan, so that the Coventry Fire Districts would have a successful consolidation plan? Please circle all that apply. Achievement of Economies of Scale [ 16 ] Personnel Benefits & Retirement [ 34 ]* Adequate Staffing [ 37 ]* Personnel Input [ 27 ]* Apparatus Placement [ 32 ]* Plan for On-Scene Responses [ 22 ]* Applying Professional Standards [ 24 ]* Progress Reports of Consolidation [ 26 ]* Board of Directors Makeup [ 24 ]* Promotion Policies [ 31 ]* By-Laws [ 25 ]* Public Education Program [ 23 ]* Charter [ 25 ]* Public Input [ 21 ]* Code Enforcement [ 21 ]* Purchasing Policies [ 20 ] Communications [ 23 ]* Quality Management Program [ 25 ]* Consistent Direction [ 20 ] Reports & Records Management [ 23 ]* Employee Contracts [ 34 ]* Selection of Chief/Command Personnel [ 31 ]* Education [ 27 ]* Selection of Tax Collector [ 17 ] Eliminating Redundancy [ 24 ]* Selection of Treasurer [ 16 ] Emergency Medical Services [ 29 ]* Service Delivery [ 18 ] Employee Assistance Program [ 18 ] Shift Operations [ 24 ]* Employee Rules & Regulations [ 23 ]* Special Operations/Haz-Mat/Water Ops [ 24 ]* Equipment & Buildings [ 30 ]* Station Locations [ 29 ]* Existing Debt [ 18 ] Strategic Master Plan [ 29 ]* Financial Management & Budgeting [ 26 ]* Street Lighting [ 13 ] Fire Alarm Operations [ 26 ]* Support Services [ 20 ] Firefighter Safety [ 33 ]* Tax Collection [ 19 ] Fire Investigation Program [ 21 ]* Tax Rate [ 22 ]* Fire Prevention Program [ 25 ]* Time Line [ 24 ]* Fire Suppression [ 25 ]* Total Number of Firefighters [ 34 ]* Fleet Maintenance Program [ 23 ]* Town Ambulance Operations [ 21 ]* Human Resources Management [ 22 ]* Training Program [ 33 ]* Implementation Plan [ 22 ]* Transitional Goals [ 22 ]* Incident Command System [ 27 ]* Union Consolidation [ 33 ]* Include All Stakeholders in the Process [ 20 ] Water Management for Suppression [ 18 ] Inclusion of Local Legislatures [ 17 ] Written Mutual Aid Agreements [ 21 ]* Insurance [ 23 ]* Written Goals and Objectives [ 27 ]* ISO Rating [ 17 ] WMD/Terrorism Response [ 17 ] Job Descriptions [ 27 ]* Job Placement [ 24 ]* Long Range Planning [ 27 ]* Mission Statement [ 19 ] Name of Organization [ 18 ] Betterment of Fire Service [ 30 ]* NFPA 1500 [ 28 ]* Fairness [ 28 ]* NFPA 1710/1720 [ 27 ]* Honesty [ 30 ]* Operational Guidelines and Orders [ 24 ]* Quality Oriented [ 25 ]* Organizational Structure/Chart [ 25 ]* Service Oriented [ 25 ]* Ownership of Facilities & Equipment [ 16 ] Trustworthy [ 26 ]* Pay for Call Personnel [ 26 ]* Pay Scales for Career Personnel [ 37 ]*

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Notes for Question #1: 1) Items in bold indicate data collected 2) Asterisk (*) indicates selected by more than 50% of respondents 3) Total number of respondents = 40 Question #2: In your own words, please list in the space provided what you consider to be the most important elements of a successful consolidation plan? You can choose topics from the list above or other topics that are not listed.

• “Everyone involved must want to achieve the same goal.”

• “Adequate Staffing - Apparatus Placement”

• “Firefighter Safety - Apparatus Placement”

• “To be able to provide top quality services for the Town of Coventry.”

• “Getting everyone to work together.”

• “Long Range Planning – Training/Education – Fire Alarm Operations – Emergency

Medical Services”

• “Best interest of the people you are servicing.”

• “All of the above should be equally important.”

• “Station Locations – Tax Rate – Fire Alarm Operations – Fire Prevention – Job

Placement – Employee Rules & Regulations”

• “Station Locations – Eliminating Redundancy – Employee Contracts – Public Input –

Financial Management & Budgeting”

• “Firefighter/Public Safety – Training – Station Placement – Battalion?? – More Paid

Guys”

• “Getting all personnel to work as a team and for everybody to consider what’s best for

consolidation and not for themselves.”

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• 1. Time line – must set a timetable of complete consolidation and strictly adhere to it.

2. “Choose a ‘district board’ and ‘upper management team’ to answer to and report to

the public. This board will be the only one responsible for the progression or digression

of the consolidation concept.”

3. “All departments should immediately begin to ‘freeze’ all promotions and non-

essential staffing vacancies. No further ‘good ole’ boy’ promotions or jobs should be

made.”

4. “FF’s should be informed of progress on a monthly townwide FF meeting. This

meeting should also be a meeting at which FF’s can give their input.”

• “Certain people need to realize that with multiple departments coming together as

‘one’, there needs to be sacrifice, and people need to give ‘stuff’ up, also pride and

selfishness to be put aside. A compromise cannot be one sided!!!!”

• “To make sure the paid volunteers and volunteers get to stay and kicked out or forced

out by the people who think they are better than them or just don’t like the fact that

they are volunteers.”

• “All of the above is important. My suggestion is a tax plan, strategic station placement,

manning, budget are the most important right now. Later on as the taxpayers agree

upon consolidation then you can start consolidating unions and rank positions,

contract and personnel issues.”

• “Appropriate placement of stations and manpower. Educate the public of the

requirements, rules and regulations that are put on the fire service.”

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• “All of these issues must be addressed to fully and properly implement a consolidation

plan. Due to the obvious complexities of the many issues involved, it may be well

advised to start small. A merger between two districts at a time would limit the

complexity of the process, and limit the number of parties in negotiation. Above all,

this process should be taxpayer driven not driven by a few vocal individuals. Fire chiefs

must be committed to the process. Labor must realize that they do not drive the process,

but actively participate.”

• “All of the above seem equally important. The most important things right now seem to

be station & apparatus placement, adequate manpower and providing the tax-payer

with the consolidated fire dept. that would be most beneficial to them & the Town of

Coventry in the longterm.”

• “The most important element of a successful consolidation plan would be to provide a

cost effective and efficient customer service that the taxpayers, citizens, and members

of the ‘Department’ could be proud of. All of the items that are listed are important to

the department and the taxpayers, but the majority of the items listed are items that

would not mean anything at all to the taxpayers. Bottom line is that the taxpayers

receive proper and adequate service when it is required.”

• Not having power – hungry people trying to run the whole show. Communication is the

key. Keeping everyone informed so the rumor mill does not deter people from

consolidation.”

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• “As in incident response & mitigation, the most important aspect of a consolidation is

preparation, preplanning, identifying goals & objectives. Several issues that will be

addressed during a consolidation process cannot be accomplished or will be poorly

addressed without proper guidance/plan. You can’t buil a palace without a proper set

of blueprints.”

• Adequate staffing of the proper equipment located into strategic places in order to man

equip. safely/properly in order to give public best service while doing it in a cost

effective fashion.”

• “I feel in order for the Town of Coventry to have one fire dept. we need to have all

chiefs and fire personnel at the same levels including pay, benefits, responsibilities,

and scheduling. I feel it is important to give those already working the right to stay at

the stations they were hired at unless they choose to go to another part of town, then

implement the bid system but allow town seniority to fall where it may. It is imperative

that all firefighters have the same minimum qualifications for safety of all and

operating procedures to be reliable. Overtime should stay within stations as is done

now by a rotating list, then moved to other stations by seniority. *All should be treated

fair, equal, and the same – no special promotions, - testing should be applied by outside

board.”

• “Ability to have an agreed upon contract. For people already on the job not to loose

their jobs, or benefit packages already in place. Also a plan as to how apparatus

placement will most effectively not disrupt response times and cover to the outer areas

of the district. Mainly be fair to everybody that is already involved in the existing

districts.”

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• “Operational Guidelines are important so everyone knows how the job is to be done. It

would take the redundancy right out of the equation. A pay scale for all staff paid and

call. This would take fairness out of the equation.”

• “Adequate Staffing, Administration – including taxing, banking, etc. Union

Consolidation – At least in principle. Payscale, Insurance, Apparatus

Placement/Replacement, Consistent Direction, Safety. Include all stakeholders in

process.”

• “contracts, union merge, Initiate a plan & follow thru. It has been talked about for

years, but always falls apart. Everyone needs to give a little, to get a little. People must

be willing to bend. The outcome could be great. If the entire town doesn’t want to be in

on it, leave them out and continue with the rest. A little is a start.”

• “This list seems to be a very comprehensive list and addresses all aspects that I feel

need to be addressed. Some of the most important issues in my opinion are. 1) Tax rate

2) Staffing 3) Including all stakeholders in the process 4) Job Description 5) Station

locations 6) training & standards & education 7) fairness 8) Contract and related

issues (pay scale, promotions) 9) Selection of Chief & Command Personnel”

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• “I believe that all of the above issues are very important and that all need to be

addressed adequately. I circled the ones that I believe are the most crucial. There are a

few big issues that I feel need to be addressed that are lacking at this time. One is

informationaly – all the members from call personnel to paid and officers need to be

kept informed and utilized. All the work and input is coming from the top. Many lower

level personnel have significant resources and knowledge to contribute. Fairness and

Qualifications need to be used when promotions and initial appointments upon

consolidation. Fairness and Equality ‘must’ be used when taking pay and benefits into

consideration.”

• “Strong Administration Presence – Structure, Fair/Equitable Policies & Procedures,

Adequate Staffing on every truck, Engine, Rescue, Sp. Haz., Less Trucks more men per

Truck! Testing/minimum requirements for Promotional – Even if we don’t use them

for initial setup lets have them in place for FUTURE promotions. Long Term plans –

Today, tomorrow, 2 yrs. 5 yrs. Ten (10) yrs. From now. With options of growth to be

constantly reviewed, annually. Let’s keep looking to the needs now and in the Future.”

Note for Question #2: Quoted items in bold indicate data collected

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Appendix D

Recommendation to the town of Coventry Fire Districts:

CRITICAL ELEMENTS OF A SUCCESSFUL CONSOLIDATION PLAN FOR THE TOWN OF COVENTRY FIRE DISTRICTS

• Critical elements that should be part of a Consolidation Plan.

• Action items for accomplishing the Critical Elements.

• Considerations while Developing and Implementing a Consolidation Plan.

• Attributes of the Consolidation Plan.

BY: Robert W. Seltzer, Chief Central Coventry Fire District

Coventry, Rhode Island

This recommendation is the result of an applied research project submitted to the National Fire Academy as part of the Executive Fire Officer Program.

February 2003

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Critical Elements that should be part of a Consolidation Plan:

1. A clear understanding of the ownership of all facilities and equipment.

2. A response plan for emergency calls.

3. A timeline to implement the consolidation plan.

4. Active sharing and joint use of resources.

5. Plan for building and equipment maintenance.

6. Plan for community expansion.

7. Plan for demographics.

8. Plan for projected population growth.

9. Determine feasibility of continued town ambulance operations.

10. An effective strategy and implementation of a communications plan for informing the fire

districts and the community itself of the consolidation.

11. Answers to human resource concerns.

12. Apply professional standards where applicable.

13. Clearly evaluate the public’s expectation of their fire and rescue services, so the new

department can include these in its long term planning.

14. Consistent criteria for response times, type of equipment responding and the

qualifications of personnel responding to calls.

15. Determine feasibility of the plan.

16. Include and analyze alternative programs and approaches.

17. Determine effective communications systems.

18. Written goals and objectives.

19. Ensure fire code enforcement.

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20. Ensure that the rules are applied equally, and that actions taken are stable enough to

withstand the most in-depth scrutiny.

21. Equipment and apparatus placement at fire stations.

22. Establish criteria for selecting programs and approaches.

23. Follow NFPA 1500, Standard on Fire Department Occupational Safety and Health

Program, to ensure firefighter safety.

24. Follow NFPA 1201 (2000), Standard for Developing Fire protection Services for the

Public.

25. Follow NFPA 1710 (2001), Standard for the Organization and Deployment of Fire

Suppression Operations, Emergency Medical Operations, and Special Operations to the

Public by Career Fire Departments.

26. Formulate an action plan.

27. Guideline outlining how the costs of a consolidated fire department will be split among

residents.

28. Identify key needs, issues, requirements and constraints.

29. Identify the total number of firefighters needed.

30. Identify transitional goals that are realistic, evaluate productivity and measure

achievements.

31. Include written mutual aid agreements

32. Keep all employees informed of what is being done and why.

33. Key stakeholders should be included in the planning process from the beginning.

34. Management/labor relations.

35. Maximize cost effectiveness and efficiency in the provision of service.

36. Mechanism to monitor the implementation of the consolidation plan.

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37. Membership of the new board of directors.

38. Method to evaluate fire department performance and the use of resources cost-effectively.

39. Minimize duplication of personnel, equipment and facilities.

40. Minimum training level standards.

41. Mission statement and vision for the organization.

42. New By-Laws.

43. New Charter.

44. Plan for financial management and budgeting.

45. Plan for tax collection.

46. Policy for street lighting.

47. Prepare a competent work force and support safe operations.

48. Procedure to hold press conferences and a provide a press release to newspapers on a

regular basis.

49. Protocols to provide answers to issues raised by unions and elected officials.

50. Provide the most accurate financial picture possible.

51. Selection of key staff for the new department.

52. Should provide for consistent direction.

53. Team problem solving.

54. Utilize all personnel, management and staff, as resources to accomplish the consolidation

tasks.

Action Items for accomplishing the Critical Elements of a Consolidation Plan:

1. Be up front and honest with the people of all organizations involved.

2. Bring in legal counsel early in the consolidation discussions.

3. Bring treasurers/accountants together to crunch the budgets.

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4. Chiefs need to establish ‘Task Forces’ whose job it is to develop master plans for each

division and sub-division within the proposed consolidated agency.

5. Computer deployment analysis.

6. Continually evaluate and consult with other organizations.

7. Create a newsletter to keep all personnel from each district informed of the progress of

the consolidation plans.

8. Design a patch and logo.

9. Design an overall quality management program to assure the success of meeting the

NFPA 1710 (2001) standard.

10. Design the organizational structure of the fire department.

11. Determine deployment of fire companies/apparatus.

12. Determine differences in compensation and workloads.

13. Determine existing bond debt and how it will be treated.

14. Determine feasibility of the consolidation plan.

15. Determine health and safety standards.

16. Determine how to manage reports and records.

17. Determine if there are alternative approaches to the consolidation.

18. Determine improvement or reduction in the ISO rating.

19. Determine initial alarm assignments and additional alarm assignments.

20. Determine plan for provision of advanced and basic life support services.

21. Determine response times to an incident.

22. Determine staffing of apparatus.

23. Determine station locations.

24. Determine the criteria for emergency medical services.

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25. Determine the criteria for fire suppression services.

26. Determine the criteria for intercommunity organization, such as mutual aid plans, which

must all be clearly defined.

27. Determine the criteria for special operations.

28. Determine the criteria for wildland fire suppression.

29. Determine the name of the new organization.

30. Develop a charter.

31. Develop a code of ethics.

32. Develop a community relations program.

33. Develop a curriculum that will form the backbone of the firefighter training programs.

34. Develop a guideline for how cost sharing will be split amongst districts/tax collection.

35. Develop a mission statement and a vision.

36. Develop a plan for human resource management.

37. Develop a plan to select key staff personnel.

38. Develop a policy for street lighting.

39. Develop a safety and health program.

40. Develop a Strategic (Master) Plan.

41. Develop a training program with uniform training standards.

42. Develop a web page.

43. Develop action plans to implement the consolidation.

44. Develop agreements for equitable rank and other staffing issues.

45. Develop an apparatus and equipment maintenance program.

46. Develop an incident management system.

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47. Develop an organizational chart so all involved can better understand relationships and

organization structure.

48. Develop by-laws.

49. Develop financial management planning and a budget.

50. Develop protocols to provide answers to issues raised by unions and elected officials.

51. Develop rules specific to personnel and human resource issues.

52. Develop standard operating procedures, rules and regulations, response guidelines,

promotional and hiring practices.

53. Develop testing/minimum requirements for promotions.

54. Develop written mutual aid agreements.

55. Educate the public of the requirements, rules and regulations that are put on the fire

service.

56. Establish a timeline of events for the consolidation process.

57. Examine the pension fund to determine the best fund for the combined organization.

58. Identify an employee assistance program.

59. Identify and involve all key stakeholders.

60. Identify any training deficiencies.

61. Identify goals and objectives for a successful consolidation.

62. Identify ownership of all facilities and equipment.

63. Identify standardization of equipment and testing.

64. Identify target hazard areas.

65. Identify the function of the new district board.

66. Identify transitional goals that are realistic.

67. Perform a station location study.

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68. Plan for code enforcement.

69. Plan for communications and fire alarm operations.

70. Plan for consolidation of unions.

71. Plan for fire investigations.

72. Plan for hazardous materials response.

73. Plan for major emergency management.

74. Plan for management of water for fire protection.

75. Plan for public fire safety education.

76. Split tasks amongst staff members.

77. Understand that public information, public education and public relations must be

understood and be part of the functions of the consolidated fire department.

Considerations while Developing and implementing a Consolidation Plan:

• “All fire departments around the nation will have to be familiar with every type of

emergency because of the regional and sometimes national responses the fire service is

encountering.” (United States Fire Administration [USFA], 2002).

• “Appropriate levels of service and rapid response times are critical components to

meeting the essential mission of the fire service. That mission is to save lives and protect

property and the environment, arising from emergency incidents. A department must

have an adequate level of human and mechanical resources that are placed within a

community in such a way to minimize response times and maximize the correct

equipment for the job.” (SMFD Web Page, “SMFD Emerges, 2000. p. 2).

• “Assist employees who may feel that they have lost ‘status’ through the change.”

(Geocites, December, 2002, p. 27).

101

• “At the risk of oversimplifying things, there are three basic laws for successful mergers”

The first is “Give the people good reasons for wanting it to work.”, second “Show the

people how to make it work.” and third “Check to see if it is working.” (Pritchett, 1987).

• “Each time there comes a point of dispute or indecision, you must ask yourself the

question ‘What’s best for the public?’” (Geocites, December, 2002, p. 1).

• “Fire departments must now demonstrate the need for services, and must clearly show

that they are doing everything possible to provide the services and programs effectively

and efficiently.” (USFA, 1998).

• “From the beginning, invite the press, radio, TV, whichever is available to you, to attend

board meetings or workshops that address the subject of consolidation or merger.”

(Geocites, December, 2002, p. 1).

• “Initiate a plan & follow through. It has been talked about for years, but always falls

apart. Everyone needs to give a little, to get a little. People must be willing to bend. The

outcome could be great.” (Anonymous 1, 2003).

• “Mainly be fair to everybody that is already involved in the existing districts.”

(Anonymous 2, 2003).

• “Operational changes must come from the top down and the fire chiefs have the means to

make or break the process.” (Rusboldt, 1998).

• “Provide continuous dialogue to diminish rumors and maintain the right focus.”

(Geocites, December, 2002, p. 6).

• “Timing and open communication, are two other factors that may have an important

impact on the success of a consolidation effort” (Frazier, 1998).

• Allow sufficient time for planning prior to consolidation.

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• Have a transition period where changes that effect the organization’s effectiveness and

employees are as minimized as possible.

• Communicate the vision.

• Continuous dialogue will go a long way toward diminishing rumors and maintaining the

right focus.

• Do not declare victory too soon.

• Do not forget the importance of the people of an organization during a merger.

• Establishing a great enough sense of urgency.

• Have the support of the agency leaders involved.

• Monitor for effectiveness and productivity

• One key consideration is that any agencies contemplating a consolidation or merger

should understand that interests of the public who are being served must be the basic

motivation for the consolidation.

• Regardless of how embattled things become, the personnel who exhibit professionalism,

maintain a positive outlook and keep the public in mind usually come out in front.

• Systematically plan for and create short-term wins.

Attributes of the Consolidation Plan:

• “Adequate staffing of the proper equipment located into strategic places in order to man

equip. safely/properly in order to give public best service while doing it in a cost effective

fashion.” (Anonymous 3, 2003).

• “Fair/Equitable Policies & Procedures” (Anonymous 4, 2003).

• “Getting everyone to work together.” (Anonymous 5, 2003).

103

• “The most important element of a successful consolidation plan would be to provide a

cost effective and efficient customer service that the taxpayers, citizens, and members of

the ‘Department’ could be proud of.” (Anonymous 6, 2003).

• Betterment of the Fire Service.

• Egos must be set aside.

• Firefighter safety oriented.

• Foster an atmosphere of completely honest communication concerning the consolidation

effort.

• Honesty in all aspects of the consolidation.

• Must provide accurate information to stop the rumor mill.

• Quality Oriented.

• Service Oriented.

• Trustworthy.

104

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105

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department (Applied Research Project). Emmitsburg, MD: National Fire Academy.

106

Sacramento Metropolitan Fire District Web Page. (2000). Sacramento metropolitan fire district

emerges as a regional leader. Retrieved December 24, 2002, from

http://www.smfd.ca.gov/smfd_emerges.htm

Village of Bayside Web Page. (2002, April). Relocation of a North Shore fire department

station to Bayside. Retrieved January 12, 2003, from http://www.village.bayside.wi.us/

Agendas%20&%20M…/relocation_of_a_north_shore_fire.ht

Notes: 1) The references identify all of the sources that were used as reference

materials to develop the recommendations.

2) Items in the recommendation that cite references in parenthesis directly

after a quote are material quoted from the source.