Critical Elements of a Successful Consolidation Plan for the Town...
Transcript of Critical Elements of a Successful Consolidation Plan for the Town...
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)
22
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
23
$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.
24
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).
25
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).
26
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
28
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
32
• 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.
33
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)
62
“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;
63
• 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).
65
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,
67
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
68
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.
69
• 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.
70
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
71
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
72
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
73
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.”
89
• “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.”
90
• “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.”
91
• “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).
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• “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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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.