North Kitsap-Poulsbo efficiency study
-
Upload
sunnews820 -
Category
Documents
-
view
220 -
download
0
Transcript of North Kitsap-Poulsbo efficiency study
-
8/4/2019 North Kitsap-Poulsbo efficiency study
1/369
Opportunities for Collaborative Efforts
Feasibility Study
August 2011
Emergency Services ConsultingInternational25200 SW Parkway Ave. Suite 3 Wilsonville, Oregon 97070
www.ESCI.us 800-757-3724
-
8/4/2019 North Kitsap-Poulsbo efficiency study
2/369
North Kitsap Fire & Rescue andKitsap County Fire District #18, WA
Opportunities for Collaborative EffortsFeasibility Study
Prepared By:
Jack Snook, President & Chief Operating OfficerMartin Goughnour, Senior Vice President
Lane Wintermute, Senior AssociateDon Stewart, Associate
Steve Trunck, AssociateDon Bivins, AssociateRob Strong, Associate
-
8/4/2019 North Kitsap-Poulsbo efficiency study
3/369
-
8/4/2019 North Kitsap-Poulsbo efficiency study
4/369
North Kitsap Fire & Rescue Kitsap County Fire District #18, WAFeasibility Study
i
Table of Contents
Letter of Transmittal .................................................................................................................... v
Acknowledgements ................................................................................................................... vii
Executive Summary .................................................................................................................... 1
Purpose and Methodology ...................................................................................................... 10
Strengths, Weaknesses, Opportunities, and Challenges (SWOC) .......................................... 10
Organizational Strengths ...................................................................................................... 10Organizational Weaknesses ................................................................................................. 11Opportunities ........................................................................................................................ 12Challenges ........................................................................................................................... 13
Evaluation of Current Conditions ............................................................................................... 17
Survey Table 1: Organization Overview .................................................................................. 17
Survey Table 2: Management Components ............................................................................ 27
Survey Table 3: Staffing and Personnel Management ............................................................ 44
Survey Table 4: Service Delivery and Performance ................................................................ 55Survey Table 5: Support Programs Emergency Services Training ....................................... 58
Survey Table 6: Support Programs Life Safety Service Fire Prevention ............................... 63
Survey Table 7: Support Programs Emergency Communications ........................................ 68
Survey Table 8: Emergency Medical Services Support and System Oversight ....................... 74
Survey Table 9: Haz-Mat Services Support and Response Capability .................................... 77
Survey Table 10: Capital Assets, Capital Improvement, and Replacement Programs ............. 79
Analysis of Emergency Service Delivery and Performance ..................................................... 96
Service Distribution, Demand, and Concentration ................................................................ 96Comparable ........................................................................................................................ 125
Fiscal Analysis ...................................................................................................................... 131Economic Indicators ........................................................................................................... 131Historical Financial Review of Kitsap County Fire District #18 ............................................ 136Forecast Financial Future of Kitsap County Fire District #18 .............................................. 138Historical Financial Review of North Kitsap Fire & Rescue ................................................. 140Forecast Financial Future of North Kitsap Fire & Rescue ................................................... 143
Processes for Collaboration .................................................................................................... 147
General Partnering Strategies .............................................................................................. 147
Status Quo ......................................................................................................................... 147Administrative Consolidation .............................................................................................. 148Functional Consolidation .................................................................................................... 148
Operational Consolidation .................................................................................................. 149Full Merger ......................................................................................................................... 150Regional Fire Authority ....................................................................................................... 151
Strategies for Efficiency ........................................................................................................ 155
Overarching Strategy 1 Administrative Consolidation ...................................................... 165Overarching Strategy 2 Functional Consolidation ............................................................ 172Overarching Strategy 3 Operational Consolidation .......................................................... 180Overarching Strategy 4 Full Merger ................................................................................. 186
-
8/4/2019 North Kitsap-Poulsbo efficiency study
5/369
North Kitsap Fire & Rescue Kitsap County Fire District #18, WAFeasibility Study
ii
Overarching Strategy 5 Regional Fire Authority ............................................................... 196Strategy A Develop a Joint Support and Logistics Services Division ............................... 207Strategy B Develop Uniform Pre-Incident Plans .............................................................. 213Strategy C Provide for Joint Staffing of Fire Stations and Apparatus ............................... 217Strategy D Provide Regional Incident Command and Operations Supervision ................ 221Strategy E Purchase and Implement an Electronic Staffing Program .............................. 224
Strategy F Develop Standard Operating Guidelines ........................................................ 227Strategy G Shared Specialty Teams ................................................................................ 229Strategy H Provide Joint Standards for Service Delivery ................................................. 231Strategy I Implement the Use of Peak Activity Units (PAUs) ............................................ 236Strategy J Develop Deployment Standards ..................................................................... 239Strategy K Shared Public Education/Public Information ................................................... 241Strategy L Shared or Common Records Management System ........................................ 242Strategy M Shared Intern Program .................................................................................. 244Strategy N Combine Volunteer Services .......................................................................... 246Strategy O Combine Administrative Services .................................................................. 248Strategy P Implement North Kitsap Benefit Package ....................................................... 250Strategy Q Align Operational Staffing Schedules ............................................................. 252
Strategy R Adopt Dropped Border Response .................................................................. 255Strategy S Adopt Criteria-Based Dispatch ....................................................................... 256Strategy T Implement a Computerized Training Records Management System .............. 258Strategy U Develop Mutual Training Strategies ............................................................... 261Strategy V Develop an Annual Shared Training Plan ....................................................... 264Strategy W Consolidate Training into a Single Training Division ...................................... 267Strategy X Develop and Adopt Training Standards .......................................................... 270Strategy Y Create a Shared Training Manual .................................................................. 272Strategy Z Develop a Shared Fire and EMS Training Facility .......................................... 275Strategy AA Implement and Cooperatively Use a Video Conferencing System ............... 278Strategy BB Develop a Single Apparatus Refurbishment/Replacement Plan ................... 281Strategy CC Continue with the County AVL and MDC or MDT Project ............................ 284
Strategy DD Develop a Regional Fire Safety Education Coalition.................................... 289Strategy EE Develop a Regional Juvenile Fire Setter Intervention Network ..................... 291Strategy FF Create a Unified Occupational Medicine Program ........................................ 293Strategy GG Create a Unified Wellness and Fitness Program ......................................... 296Strategy HH Develop Uniform Fees for Service ............................................................... 299Strategy II Develop a Model Labor Agreement for Both Departments .............................. 302Strategy JJ Provide for Shared EMS Supervision ............................................................ 306Strategy KK Provide Joint EMS Supply Purchasing and Logistics Services ..................... 309Strategy LL Provide for Medic Unit Surge Capacity During Major Incidents ..................... 312Strategy MM Establish System-Wide Guidelines for EMS Response .............................. 314Strategy NN Establish System-Wide Deployment of Paramedics .................................... 316Strategy OO Implement Centralize EMS Billing Practices................................................ 318
Strategy PP Relocate Fire Station No. 73 ........................................................................ 320Strategy QQ Future Joint Staffed Fire Station Location ................................................... 323
Findings and Recommendations ............................................................................................. 327
Findings ................................................................................................................................ 327
Strategic Recommendations ................................................................................................. 330
Moving Forward .................................................................................................................. 331Overarching Recommendation ........................................................................................... 331Functional Cooperation Recommendations ........................................................................ 335
-
8/4/2019 North Kitsap-Poulsbo efficiency study
6/369
North Kitsap Fire & Rescue Kitsap County Fire District #18, WAFeasibility Study
iii
Appendices ............................................................................................................................. 339
Appendix A: Table of Figures ................................................................................................ 339
Appendix B: Summary Table of Organizational Kudos .......................................................... 343
Appendix C: Summary of Recommended Actions (Current Conditions) ................................ 344
Appendix D: Cost Allocation ................................................................................................. 347
Cost Allocation Options ...................................................................................................... 347
Appendix E: Summary Table of Stakeholder Interviews ........................................................ 357
-
8/4/2019 North Kitsap-Poulsbo efficiency study
7/369
-
8/4/2019 North Kitsap-Poulsbo efficiency study
8/369
North Kitsap Fire & Rescue Kitsap County Fire District #18, WAFeasibility Study
v
Letter of Transmittal
August 29, 2011
Commissioner Steve Neupert Commissioner James A. IngallsBoard Chair Board ChairNorth Kitsap Fire & Rescue Kitsap County Fire District #1826642 Miller Bay Road 911 Liberty RoadKingston, WA 98346 Poulsbo, WA 98370-8573
Dear Commissioners:
Enclosed please find the final report in response to your request to conduct anOpportunities for Collaboration Feasibility Study for Kitsap County Fire District #18 andNorth Kitsap Fire & Rescue. The associates of ESCI have appreciated the opportunity to
work with the communities, the employees and staff of both districts in preparing thisstudy.
We have presented this report in five major sections: current conditions, deployment andperformance of each agency, comparison with similar agencies and best practices,external customers expectations, and processes for collaboration with fiscal analysis.Contained within the processes for collaboration section are 43 individual strategies toconsider. A number of appendices are also attached that will provide helpful informationfor the two agencies. Two are particularly noteworthy. Appendix B: Summary Table ofOrganizational Kudos summarizes the many positive attributes of the districts. AppendixC: Summary of Recommended Actions provides items to consider as part of evaluatingcollaboration opportunities with and between the agencies.
It is our intent to meet and exceed your expectations and to be available to you after theproject is complete. Should you have questions do not hesitate to contact me at ourheadquarters office in Wilsonville, Oregon, at (503) 570-7778. It has been our pleasureto work with the professional and highly dedicated staffs of Kitsap County Fire District#18 and North Kitsap Fire & Rescue.
Sincerely,
Jack W. SnookPresident, COO
-
8/4/2019 North Kitsap-Poulsbo efficiency study
9/369
-
8/4/2019 North Kitsap-Poulsbo efficiency study
10/369
North Kitsap Fire & Rescue Kitsap County Fire District #18, WAFeasibility Study
vii
Acknowledgements
Emergency Services Consulting International (ESCI) would like to acknowledge that without the
assistance and support of the administrative staff and personnel of Kitsap County Fire District#18 and North Kitsap Fire & Rescue this project could not have been completed.
Board of Fire Commissioners
For North Kitsap Fire & Rescue:
Steve Neupert, Board ChairWill Stewart, Commissioner
Gillian Gregory, CommissionerFernando Espinosa, Commissioner
Patrick Pearson, Commissioner
For Kitsap County Fire District #18:James A. Ingalls, Board Chair
C. Conrad Green, CommissionerMartin D. Sullivan, CommissionerDavid Ellingson, Commissioner
Darryl Milton, Commissioner
Fire Chiefs
Dan Olson, Kitsap County Fire District #18Dan Smith, North Kitsap Fire & Rescue
Steering Committee
C. Conrad Green, KCFD #18Gillian Gregory, NKFR
Martin D. Sullivan, KCFD #18Steve Neupert, NKFRDan Olson, KCFD #18
Dan Smith, NKFR
Fire Department Command Staff
Assistant Fire Chief Wayne Kier, NKFR
Administrative Services Manager Lise Alkire, KCFD #18
Professional Fire Fighters of Kitsap County, Local 2819
Scott Trueblood, NKFR Unit Vice-PresidentCraig Becker, Poulsbo Unit Vice-President
-
8/4/2019 North Kitsap-Poulsbo efficiency study
11/369
-
8/4/2019 North Kitsap-Poulsbo efficiency study
12/369
North Kitsap Fire & Rescue Kitsap County Fire District #18, WAFeasibility Study
1
Executive Summary
Emergency Services Consulting International (ESCI) was engaged by Kitsap County Fire
District #18 (KCFD #18) and North Kitsap Fire & Rescue (NKFR) to evaluate the feasibility ofmore efficient cooperation between the two agencies, up to and including strategies of
consolidation. This report is the culmination of that evaluation.
ESCI thanks the staff of both KCFD #18 and NKFR for their outstanding cooperation in the
preparation of this report. All involved were candid in their comments and provided an
enormous amount of information.
The study took into account the critical issues facing the two fire districts and how such matters
affect the effort to construct a model for efficient service. Those issues identified were analyzedand specific recommendations can be found in the section titled, Appendix C: Summary of
Recommended Actions.
Evaluation of Current Conditions
An analysis of current conditions of the two fire districts is catalogued in ten survey tables
presented in a side-by-side table for simplicity of comparison. Each of the tables provides the
reader with general information about that element as well as specific observations and an
analysis of any significant issues or conditions that are pertinent to the topic discussed.
Observations are supported by data collected during the information gathering process, through
analysis of the collected data, and from the collective emergency services experience of the
ESCI project team. Current conditions also encompassed emergency service delivery and
performance and fiscal analysis. This snapshot in time was the basis for developing the
collaborative strategies for the two Districts.
Current conditions are presented in survey tables. Tables include an evaluation of each
organizations management, governance, staffing and personnel management, service delivery
and performance, training programs, fire prevention programs, communications, Emergency
Medical Services (EMS), hazardous materials, capital facilities and apparatus, and fiscal health
and practices.
Criterion used to evaluate the Districts has been developed over many years. These gauges
include relevant guidelines from national accreditation criteria, the National Fire Protection
-
8/4/2019 North Kitsap-Poulsbo efficiency study
13/369
North Kitsap Fire & Rescue Kitsap County Fire District #18, WAFeasibility Study
2
Association (NFPA) standards, federal and state mandates for fire and EMS systems,
recommendations by various organizations such as the Center for Public Safety Excellence
(CPSE), and generally accepted best practices within the Fire and EMS industry.
LeadershipBoth fire districts have a customer service ethic that stands out in the eyes of the consulting
team. This ethos pervades the culture of both districts; although the two agencies approach
service delivery differently, they do so with a sharp focus on doing the right thing for their
respective constituents. The leaders of the two districts, the fire chiefs, are resolute in their
desire to serve the community with distinction and have leveraged their resources to the
greatest benefit of the community. The administrative teams of both districts are stretched thin,
with KCFD #18 holding administrative vacancies open to act as a fiscal buffer for current and
forecast projected economic challenges. While these efforts at fiscal prudence are a laudable
effort for legitimate reasons, it is not sustainable long term.
Agency Comparisons
In general, ESCIs review found that the districts are performing comparably to other fire
departments of similar size, population served, and character. In some cases, KCFD #18 and
NKFR exceed what one would expect for the area served and tax levy rate. The number of
calls for service experienced by KCFD #18 and NKFR is nearly identical to the average (132
incidents per 1,000 population) of the eight fire districts in Washington that ESCI used as
comparable. The population served by KCFD #18 is 96 percent of the eight-district average of
24,511. Both districts are near the average of fire stations (0.269) and pumpers (0.197) per
1,000 population. KCFD #18 and NKFR have a greater number of career firefighters per 1,000
residents than the eight comparator districts. This is expected given that KCFD #18 and NKFR
provide advanced life support (ALS) and EMS transport services.
Service Delivery
KCFD #18 has established response time standards for the various emergency services it
provides. In 2010, all emergency response time standards were met for suburban areas withthe exception of turnout time. Turnout time is the interval, measured in minutes and seconds,
between alarm notification and actual response of the appropriate response unit(s). Rural
response time standards were met with the exceptions of turnout time, arrival of the first
response unit to a Priority 1 or 2 event, and response time to a medical incident with the
appropriate medically certified personnel (advanced life support paramedics).
-
8/4/2019 North Kitsap-Poulsbo efficiency study
14/369
North Kitsap Fire & Rescue Kitsap County Fire District #18, WAFeasibility Study
3
NKFR has informal performance objectives that its personnel measure themselves against;
however, the District is in the process of developing a formalized standards of cover (SOC) at
the time of this report. Results will be published and reported to the board and the community
annually, pursuant to Revised Code of Washington (RCW) 52.33.
The population distribution of the area served by the agencies is predominantly rural (less than
500 persons per square mile over 65 percent of the combined service area), with pockets of
suburban (between 500 and 1,000 persons per square mile), and few urban pockets (over 1,000
persons per square mile). Urban pockets are located in the City of Poulsbo (Fire Station No.
71), with smaller clusters in Kingston (Fire Station No. 82) and Suquamish (Fire Station No. 84).
Sizeable suburban clusters exist in the Indianola area (between Fire Station Nos. 84 and 85)
and in Fire Station No. 77s area. Predictably, call volumes tend to follow population density, so
the urban and suburban areas have a higher frequency of emergency service demand.
Fire stations are well located to provide reasonable response time intervals. GIS analysis
indicates that 85 percent of KCFD #18 incidents and 75 percent of NKFR incidents are within six
minutes travel time of an existing fire station. There is a noticeable donut hole on the
northeastern edge of KCFD #18 where it butts up against the southwestern boundary of NKFR.
This gap is typical, since a facility investment by either agency would have significant overlap in
service area to the other agency. Additionally, there is the recognized need to adjust the
location of Fire Station No. 73 (Keyport). Originally built in 1944, it is poorly located to serve the
District, has a significant coverage overlap with the Naval Installation fire station, is non-ADA
compliant, and has very limited space. KCFD #18 is aware of the need and has planned for its
relocation in 2017 or when financially feasible.
Emergency apparatus were found to be modern and well maintained. The Districts have
apparatus replacement plans but lack adequate reserve funds to replace apparatus according to
the schedule but have identified potential funding mechanisms. Between the two agencies, they
maintain three reserve ambulances for eight front line ambulances and three reserve engines
for a fleet of eight front line engines. This is more than is required by the Washington Surveyand Ratings Bureau (WSRB). WSRB requires a 5:1 ratio of reserve to front line to receive full
credit. Efficiency can be recognized by a shared fleet of reserve apparatus.
Staffing levels and distribution of resources in the districts is very similar. Each uses two-person
companies, with some fire stations cross-staffing an engine and a medic unit. Both rely on
-
8/4/2019 North Kitsap-Poulsbo efficiency study
15/369
North Kitsap Fire & Rescue Kitsap County Fire District #18, WAFeasibility Study
4
volunteers to supplant career personnel. KCFD #18 and NKFR use volunteers in a variety of
configurations, traditionally responding to the station, resident volunteers who live at some
stations, and interns who pull shifts alongside career firefighters. Expansion of the intern
concept is an excellent opportunity to augment existing staffing levels without appreciably
increasing costs.
KCFD #18 and NKFR respond to EMS calls for service differently in one significant way. KCFD
#18 sends a medic unit with paramedic staffing to all EMS call types while NKFR sends either
an ALS or a BLS unit based on Criteria-Based Dispatch protocols. While there can be no
argument that sending an ALS unit to all EMS calls is the safest response configuration, it is not
viewed as the most effective given a finite number of resources. Using Criteria-Based Dispatch
protocols, there is a better fit between demand and resource. ESCI recommends that Criteria-
Based Dispatch protocols be adopted and used by KCFD #18.
Financial Status
Given that the Districts receive the majority of their revenue through property taxes (both regular
property taxes and the voter-approved EMS Levy), there is a direct correlation between their
financial health and the growth or decline of the TAV (taxable assessed value). As the taxable
assessed value of property goes down, the tax rate per $1,000 goes up in an effort to maintain
the revenue at historic levels, subject to the 1 percent growth cap (Initiative 747) and the $1.50
per $1,000 junior taxing district maximum cap (not including any proration). Both Districts have
seen their taxable assessed value plateau in 2009, drop in 2010, and drop again in 2011. The
tax rate adjusts upward until it hits the $1.50 cap, which it did for KCFD #18 this year and will
likely for NKFR next year.
The Districts have prudently curtailed expenditures to the extent possible and are maintaining a
fund balance in anticipation of leaner economic times. The fund balances will dwindle if current
spending rates are continued as they are used to bridge the gap between property tax revenue
and expenditures. This strategy is not sustainable long term. KCFD #18 is projected to have a
64.5 percent reduction of its ending fund balance by 2016. NKFR is projected to have anegative ending fund balance of approximately $500,000 in 2016.
-
8/4/2019 North Kitsap-Poulsbo efficiency study
16/369
North Kitsap Fire & Rescue Kitsap County Fire District #18, WAFeasibility Study
5
Opportunities for Collaboration
This section of the report evaluated the resources, services, proximity, demand, and
opportunities for KCFD #18 and NKFR to reduce costs, increase efficiency, or enhance service
delivery through collaboration.
This report cites 43 separate strategies through increased collaboration to generally build an
improved system by more closely aligning the Districts. Some of the strategies require strategic
investments to implement. There is an assumption that the Districts are able to fund the
investments that later pay-back economically, through service improvement or efficiencies
gained in internal operations. For KCFD #18 and NKFR it is not a safe assumption that monies
will be available to finance or invest in any new activities. In fact, both agencies face significant
fiscal challenges in the near term with no return to normal expected over the next several
years, if ever. Thus, the first order of business has to be to establish a fiscal equilibrium beforeconsidering many of the strategic investment opportunities.
Individual Strategies not requiring an investment beyond soft costs and yielding economic or
operational efficiencies can and should be considered for implementation. Those strategies
include:
Strategy B Develop Uniform Pre-Incident Plans
Strategy D Provide Regional Incident Command and Operations Supervision
Strategy F Develop Standard Operating Guidelines
Strategy K Shared Public Education/Public Information
Strategy N Combine Volunteer Services
Strategy O Combine Administrative Services
Strategy P Implement North Kitsap Benefit Package
Strategy Q Align Operational Staffing Schedules*
Strategy R Adopt Dropped Border Response
Strategy S Adopt Criteria-Based Dispatch
Strategy U Develop Mutual Training Strategies
Strategy V Develop an Annual Shared Training Plan
Strategy X Develop and Adopt Training Standards
Strategy Y Create a Shared Training Manual
Strategy BB Develop a Single Apparatus Refurbishment/Replacement Plan
Strategy HH Develop Uniform Fees for Service
-
8/4/2019 North Kitsap-Poulsbo efficiency study
17/369
North Kitsap Fire & Rescue Kitsap County Fire District #18, WAFeasibility Study
6
Strategy II Develop a Model Labor Agreement for Both Departments*
Strategy LL Provide for Medic Unit Surge Capacity During Major Incidents**
Strategy MM Establish System-Wide Guidelines for EMS Response
Strategy NN Establish System-Wide Deployment of Paramedics*
Strategy OO Implement Centralize EMS Billing Practices
Strategy PP Relocate Fire Station No. 73
*Impact bargaining is required, thus the fiscal effect is subject to the results of negotiations**Some elements of this recommendation are implementable without cost, but the strategy would have to bemodified to make it cost neutral.
In addition to the above strategies, there are five overarching strategies that address
organizational structure and governance:
Administrative Consolidation
Functional Consolidation
Operational Consolidation
Full Merger
Regional Fire Authority
An administrative consolidation has a net first year cost avoidance of $20,000, and a functional
consolidation shows a net cost avoidance of $15,000 in the baseline year. As proposed, an
operational consolidation would have an increased annual cost of $70,000. The full mergerstrategy reduces the revenue shortfall of both agencies by a combined $500,000 by 2016 when
compared with their separate fiscal trajectories. This is reduction in their individual shortfalls
from $6.4 million to $5.9 million. A regional fire authority strategy essentially has the same
economic effect as a merger.
The exception with an RFA (Regional Fire Authority) is the authoritys ability to establish a
benefit charge as its funding mechanism. With a benefit charge, the effective revenue can go
as high a $1.60 per $1,000 of taxable assessed value. This would generate $9,676,216 from
fire levies and benefit charges for the combined agencies. Coupled with the current EMS levies
(which would also have to be part of the RFA formation), an RFA generates a combined
$12,700,033 in EMS levies and benefit charges, or approximately $1 million more in revenue
than the two agencies take in currently from fire and EMS levies.
-
8/4/2019 North Kitsap-Poulsbo efficiency study
18/369
North Kitsap Fire & Rescue Kitsap County Fire District #18, WAFeasibility Study
7
Formation of an RFA with a benefit charge may be a difficult obstacle in the current economic
environment. This funding mechanism would increase costs to sometaxpayers of both Districts
(based on a complicated formula of risk versus benefit for each property in the service area). A
supermajority of 60 percent voter approval is required for passage of a benefit charge initiative.
This voter threshold would exist anyway because an EMS levy would have to be part of the
economic equation, which also requires a supermajority voter approval of 60 percent.
Recommendations and Conclusions
Options for the Districts are somewhat limited given the forecast financial future under the
current funding model. As stated earlier, many of the strategies presented in this report require
a strategic investment to implement with a return on investment longer than the Districts likely
can afford. This does not mean that there arent opportunities. The opportunities require
difficult and even painful choices. However, for the long-term viability of the Districts, ESCIprovides the following recommendations.
Reduction in Force (RIF)
ESCI recommends an RIF to stop the downward fiscal trajectory of the Districts. Reductions of
the Districts combined work force, includes:
Three shift battalion chief positions
One fleet maintenance supervisor
One public information officerOne administrative services manager/director
One receptionist
These combined cuts result in a cost avoidance is approximately $725,500 in the first year.
Administratively Merge and Reorganize
ESCI recommends that KCFD #18 and NKFR enter into an Interlocal Cooperation Agreement
that combines the two administrations. Upon implementation of the Interlocal Agreement, anRIF must be implemented. Recommended reduction and changes include:
Reassign one of the two incumbent fire chiefs to the position of assistant chief ofadministration and support.
Reassign the incumbent assistant chief to operations with responsibility for duties oftraining chief.
-
8/4/2019 North Kitsap-Poulsbo efficiency study
19/369
North Kitsap Fire & Rescue Kitsap County Fire District #18, WAFeasibility Study
8
Reassign the current training battalion chief to a position as the administrative battalionchief (40-hour workweek). It is envisioned that this position would superviseadministrative duties presently handled by the shift battalion chiefs.
A single public information officer would become responsible for the community outreachand marketing for both Districts.
A single fleet manager would supervise the fleet maintenance mechanics at NKFR.Maintenance and repair of KCFD #18s fleet is incorporated into their responsibilities andabsorption of the associated work.
A single administrative services manager/director would have responsibility for humanresources, outsourced IT services, and supervision of clerical support staff.
A single receptionist would provide services at the headquarters station.
A sample organizational chart can be found in the Findings and Recommendations section of
this report.
Suquamish Tribal Partnership
ESCI recommends that the Districts partner with the Suquamish Tribe. While the Suquamish
Tribe does not own fire suppression assets, it has access to financial opportunities not available
to either fire district. Exploration of the formation of a fire authority that includes the tribe is
considered a viable alternative to the current system. Additionally, the formation of a port
district by the tribe could provide revenue that could be beneficial for the entire region. Further,
the tribe is anxious to play a larger role in regional services and is approachable on the subject
of partnering. State statutes allow tribal governments to join regional fire authorities as a full
partner, and intergovernmental agreements could also be negotiated between the parties.
Form an RFA (Regional Fire Authority)
ESCI recommends that KCFD #18, NKFR, and the Suquamish Tribe pursue the formation of an
RFA with an EMS levy and benefit charge as the funding mechanism. Establish an exploratory
committee made up of internal and external stakeholders who determine the plausibility of such
an endeavor by determining the level of community support. If the committee reports back
favorably on the RFA concept, the two boards and tribe formally establish a planning committee
to set service level standards, funding mechanisms, governance, and the remaining obligations
as listed in RCW 52.26. Formation of an RFA will be an extended process, likely taking up to
two years to complete. The preceding actions will provide temporary financial relief until this
long-term solution is implemented.
-
8/4/2019 North Kitsap-Poulsbo efficiency study
20/369
North Kitsap Fire & Rescue Kitsap County Fire District #18, WAFeasibility Study
9
The option of a merger also has the option of a benefit charge; however, since neither District
has a benefit charge in place, a merger would need to occur before the charge can be
implemented. If the benefit charge is rejected by voters subsequent to a merger vote, the
Districts would need to grapple with a lower tax base than is necessary to support the current
operations.
-
8/4/2019 North Kitsap-Poulsbo efficiency study
21/369
North Kitsap Fire & Rescue Kitsap County Fire District #18, WAFeasibility Study
10
Purpose and Methodology
Strengths, Weaknesses, Opportunities, and Challenges (SWOC)
The study takes into account the many shared critical issues that face the two fire departments
and how such matters affect the effort to construct a model for efficient service. These issueswere identified and analysis and specific recommendations are offered in the section titled,
Appendix C: Summary of Recommended Actions.
Organizational Strengths
It is important for any organization to identify its strengths in order to assure it is capable of
providing the services requested by customers and to ensure that strengths are consistent with
the issues facing the organization. Often, identification of organizational strengths leads to the
channeling of efforts toward primary community needs that match those strengths. Programs
that do not match organizational strengths or the primary function of the business should be
seriously reviewed to evaluate the rate of return on precious staff time. In the course of ESCIs
stakeholder interviews, the strengths of the Kitsap County Fire District #18 (KCFD #18) and
North Kitsap Fire & Rescue (NKFR) were identified. They are listed below, as stated by those
interviewed.
Organizational Strengths
Kitsap County Fire District #18 North Kitsap FR
Good facilities Good community outreach
Chief is well respected Strong chief, respected
Thinks about what is best for the community Positive relationships with neighbors
Pride in facilities and equipment Honesty and integrity of the fire chief
Good communications, but room for improvementCulture and mindset toward doing the best for the
public
Recent training improvements Effective fire station locations
Strong, capable administrative support Positive labor/management relationships
Same EMS (emergency medical service)protocols as neighbors
Resident program is valuable
Strong EMS program Labor and administration work well together
Good incident review practices Strong, respected resident/volunteer program
Strong board with good relationships, staysfocused at the policy level
Family oriented organization
Good numbers of well trained personnel High morale, positive attitudes
Strong medic program Positive leadership
Excellent training officer Professionalism
Diverse and experienced workforce Service above self ethic
-
8/4/2019 North Kitsap-Poulsbo efficiency study
22/369
North Kitsap Fire & Rescue Kitsap County Fire District #18, WAFeasibility Study
11
Organizational Strengths
Kitsap County Fire District #18 North Kitsap FR
Not resident/volunteer dependent Good medic program
Chief is focused on administrative needs Good relations between paid and volunteers
Were a family, though less so recently People are flexible, accommodating to needs
Strong volunteer program
Management commitment to the citizens andservice
Visibility, school programs
Resident program = hiring pool
Good training program
Organizational Weaknesses
Performance or lack of performance within an organization depends greatly on the identification
of weaknesses and how they are confronted. While it is not unusual for these issues to be at
the heart of the organizations overall problems, it is unusual for organizations to be able to
identify and deal with these issues effectively on their own.
For any organization to either begin or to continue to move progressively forward, it must not
only be able to identify its strengths but also those areas where it does not function well. These
areas of needed enhancements are not the same as challenges, but rather those day-to-day
issues and concerns that may slow or inhibit progress. As with the strengths (listed previously),
ESCI asked stakeholders to list organizational weaknesses in their respective organizations.
They are listed below, as reported by the interviewees.
Organizational Weaknesses
Kitsap County Fire District #18 North Kitsap FR
Too few personnel in administration Internal communications could improve
No impact fees charged by KCFD #18 Not adequately staffed
KCFD #18 equipment maintenance is lacking Lacking administrative staffing, support
Loss of fire marshal resulting in piece mealapproach to prevention
High ratio of officers to line personnel
Not enough boots on the street Lower population densities
Union is demanding Lack of commercial property (development)
Most hiring has been lateral in recent years, aneed to bring in outside people
Need more career personnel
Running out of money, bargaining unit isholding to maintenance/increases
Succession planning future replacement for firechief and assistant chief will be difficult
Low staffing levels on engines Financial vulnerability
Weak volunteer program Lack of focus on long range planning
-
8/4/2019 North Kitsap-Poulsbo efficiency study
23/369
North Kitsap Fire & Rescue Kitsap County Fire District #18, WAFeasibility Study
12
Organizational Weaknesses
Kitsap County Fire District #18 North Kitsap FR
Loss of positions, concern about job loss Spread thin due to vow to not close a station
Disconnect with elected officials recently Treating service like a business is difficult
Declining finances Minimum operational staffing adjustment
Declining morale Enforcement of policies, procedures is casual
Union has to protect jobs Lack of support for outside training
We tend not to finish a project Reduced manpower due to EMS transport
Training was poor, improving some Need to plan better, be more proactive
Sense of family and purpose declining
People are out for themselves
Minimum staffing levels
Attitudes
Officer assignments
Opportunities
The opportunities for an organization depend on the identification of strengths and how they are
built upon and in what way weaknesses are diminished. The focus of opportunities is not solely
on existing service but on expanding and developing new possibilities both inside and beyond
the traditional boundaries of business as usual.
Because the questions posed to stakeholders by ESCI were presented in the context of a
cooperative efforts feasibility study, most responses were provided in that frame of reference.Because of the collaborative focus of answers, the opportunities identified are applicable to both
Districts.
-
8/4/2019 North Kitsap-Poulsbo efficiency study
24/369
North Kitsap Fire & Rescue Kitsap County Fire District #18, WAFeasibility Study
13
Opportunities
Opportunity to work together between the two agencies
Finding ways to work more closely together will serving the community better
To share the mature resident firefighter program
To share training programs
To continue and enhance EMS program management
To strengthen volunteer and resident programs
To work more closely, cooperatively with Central Kitsap F&R
To reopen fire station on the south end
To share facilities and vehicle maintenance
To share training
To contract some non-emergency KCFD #18 services out to NKFR
To share resources between neighboring agencies
To reduce dependence on residents that is perceived to be too high
To address low minimum staffing
To accommodate regional training delivery
Challenges
To draw the strong suit and gain full benefit of any opportunity, the challenges to the
organization, with their new risks and threats, must also be identified. By recognizing potential
challenges, an organization can greatly reduce the potential for future setbacks.
As with opportunities and the context in which the questions were posed to the interviewees,
responses tended to be in effect applicable to both organizations. In some instances the
challenges may affect the outcome of collaborative efforts between KCFD #18 and NKFR.
-
8/4/2019 North Kitsap-Poulsbo efficiency study
25/369
North Kitsap Fire & Rescue Kitsap County Fire District #18, WAFeasibility Study
14
Challenges
May be fewer commissioners and senior staff/administrative positions if consolidated
Large differences in Collective Bargaining Agreements (CBA) between the two agencies
Differences in staffing methodologies between the two agencies
Acceptance of NKFR resident personnel by KCFD #18 personnel
Labor issues between very different bargaining units
It will be difficult to replace Chief Smiths financial skills and AC Kiers training abilities when they retire
Keeping up with increasing call volumes
Maintaining financial stability, sustainability
Maintaining high morale in the future
Fire-based transport is a significant manpower drain
Apparatus is aging and replacement funds are not available
Union differences
Cultures differ greatly
Meeting service demands with dwindling financial resources
Addressing the impending retirement of the operations chief
After discussing core services, organizational strengths and weaknesses, and the opportunities
and challenges posed by the current environs, ESCI asked stakeholders to identify the critical
issues they perceive each Fire District is facing. The following reflect the critical issues that the
respondents felt pose the greatest risk today, as well as on the success of cooperative service
delivery initiatives.
-
8/4/2019 North Kitsap-Poulsbo efficiency study
26/369
North Kitsap Fire & Rescue Kitsap County Fire District #18, WAFeasibility Study
15
Critical Issues
First Critical Issue:Financial Needs
Financial needs and declining fiscal resources were the most frequentlylisted issue, mentioned 14 times by stakeholder interviewees. Many
respondents expressed concerns about declining taxable assessed value,declining revenue, and increasing expenditures.
Second Critical Issue:Cultural Differences
The second most frequently identified issue (in nine instances), was thesignificant cultural and functional differences between the two collectivebargaining units. In the context of future cooperative efforts, this was viewed
to be a major obstacle.
Third Critical Issue:Collective Bargaining
Issues
Seven of those interviewed discussed CBAs (labor agreements),labor/management relations, and pay and benefit issues as critical. Concernwas articulated that in some cases, labor is not on the same page as policy
makers and administration. Uneasiness was expressed regarding combiningtwo very different CBAs under a consolidation.
Additional issues raisedby interviewees
The following were listed by one or more stakeholders:
KCFD #18 needs to fully utilize volunteers, value residents
There are too many officers
Staffing shortages
Keeping stations open
Communications with management
Maintaining the value of the volunteers
Balancing politics and egos internally
Staffing levels
Labor/management differences
Differing management styles
Loss of identity
-
8/4/2019 North Kitsap-Poulsbo efficiency study
27/369
-
8/4/2019 North Kitsap-Poulsbo efficiency study
28/369
North Kitsap Fire & Rescue Kitsap County Fire District #18, WAFeasibility Study
17
Evaluation of Current Conditions
Survey Table 1: Organization Overview
The feasibility study involves North Kitsap Fire & Rescue (NKFR) and Kitsap County Fire District #18 (KCFD #18). The service area
of KCFD #18 includes the incorporated city of Poulsbo, Washington.
Data provided by the participating fire agencies was combined with information collected in the course of ESCIs field work and used
to develop an overview of the subject organizations. The purpose of the following organizational overview is two-fold; first, it verifies
the accuracy of the baseline information and ESCIs understanding of each agencys composition the foundation from which the
feasibility analysis is developed. Secondly, the overview serves as a reference for the reader who may not be familiar with the
details of each agencys operations.
Survey ComponentOrganization Overview Observations
Kitsap County Fire District #18 North Kitsap Fire & Rescue Recommended Action
1. Responsibilities and Lines ofAuthority
A. Governance
Five-member board of firecommissioners serve a six-year
term. Board member positions areelected in staggered order in oddyears
Five-member board of firecommissioners serve a six-year term.
Board member positions are elected instaggered order in odd years
i) head of governing body Commissioner Jim Ingalls, Chair Commissioner Steve Neupert, Chairii) key employee of governing
bodyLise Alkire (Board Secretary) Cindy Moran (Board Secretary)
-
8/4/2019 North Kitsap-Poulsbo efficiency study
29/369
North Kitsap Fire & Rescue Kitsap County Fire District #18, WAFeasibility Study
18
Survey ComponentOrganization Overview Observations
Kitsap County Fire District #18 North Kitsap Fire & Rescue Recommended Action
iii) meetings
2nd & 4th Wednesdays of eachmonth plus special meetings withNorth Kitsap Fire & Rescue andBainbridge Island FD quarterly
2nd & 4th Mondays of each month plusspecial board meetings with KCFD #18and Bainbridge Island FD boards on a
quarterly basis
Both Agencies: Considersetting regular meeting dateson the same cycle to facilitatejoint meetings without calling
for a special meeting1
B. Elected official authoritydefined
RCW 52.14 RCW 52.14
C. Fire chief position Chief Dan Olson Chief Dan Smithi) hired by contract Yes Yes
ii) term of contract Continuous, at will contractThree year contract, termination forcause only, wages and benefits are
negotiable
iii) periodic performanceevaluation
Annual by board (oral conducted inexecutive session)
Annual by boardKCFD #18: Reduce fire chiefperformance evaluations to
written form2
D. Fire chief/authority defined Yes, policy and job description Yes, in job descriptionE. Policy and administrative rolesdefined
Yes, governance policies are inplace for board
Yes, governance policies are in placefor board
2. Attributes of SuccessfulOrganizations
A. Rules and regulationsmaintained
Code of conduct and table ofoffenses only
Yes, ERS (Emergency ReportingSystem) on-line fire and EMS RMS
(records management system)
KCFD #18: Establish rules ®ulations
i) process for revision provided No Schedule identified in policies
KCFD #18: Develop schedulefor review and revision toensure conformity with
legal/organizational changesB. Legal counsel maintained Yes, Brian Snure Yes, Brian Snure & Joe Quinn
1With regular board meetings of both agencies coinciding with each other, joint meetings are facilitated more easily without incurring the expense
or cost with calling for a special meeting or additional meeting. These simultaneous but separate meetings can then be easily converted to jointmeetings as the need arises to allow for better dialogue at the policy level as the two agencies continue to explore efficiencies by working moreclosely together.2
By creating a written performance evaluation, complete with explicit goals, the board and the fire chief are clear on expectations, areas ofexcellence or needing improvement, and future oriented expectations of the board. This provides continuity as changes occur within the board orwith the fire chief.
-
8/4/2019 North Kitsap-Poulsbo efficiency study
30/369
North Kitsap Fire & Rescue Kitsap County Fire District #18, WAFeasibility Study
19
Survey ComponentOrganization Overview Observations
Kitsap County Fire District #18 North Kitsap Fire & Rescue Recommended Action
i) consultation available Yes Yes
ii) labor counselSummit Law Group, Rod Yonkers &
Kristin AngerJohn Silk
C. Financial controls Yes Yes
i) financial control system
The District uses the Countysfinancial system (JD Edwards). TheDistrict has the authorization to enter
data and run reports. No on-linereview for department. County
generates payroll and AP checks.County doesnt charge for services
The District uses the Countys financialsystem (JD Edwards). The District hasthe authorization to enter data and run
reports. On-line review for financialreporting (finance only). County
generates payroll and AP checks.County doesnt charge for services
KCFD #18: Review the merit
of having on-line access tofinancial reporting
ii) financial review
Financial review monthly with boardat a summarized level. Detail
reviews are completed by the chiefand the individual responsible for the
specific line item. CommissionerGreen is the board financial
representative. In this capacity hereviews/approves all payment
vouchers.
Financial review to the board ofcommissioners is during the first
meeting of the month. Report showscash and investment, revenue andsummary expenses. District staffreceives a detailed monthly report.
Commissioner Patrick Pearson is theboard financial representative. In thiscapacity he reviews and pre-approves
all payment vouchers.
iii) auditor
Audits are conducted by the Stateauditors every two years on the oddyears. The last audit was for 2007
and 2008. The report generated wasissued on November 4, 2009. No
material weaknesses were identifiedin the audit. The audit of 2009 and
2010 is scheduled for 2011.
Audits are conducted by the Stateauditors every two years on the odd
years. The last audit was for 2007 and
2008. The report generated wasissued on December14, 2009. No
material weaknesses were identified inthe audit. The audit of 2009 and 2010
is scheduled for 2011.iv) frequency of review Every two years on odd years Every two years on odd years
-
8/4/2019 North Kitsap-Poulsbo efficiency study
31/369
North Kitsap Fire & Rescue Kitsap County Fire District #18, WAFeasibility Study
20
Survey ComponentOrganization Overview Observations
Kitsap County Fire District #18 North Kitsap Fire & Rescue Recommended Action
D. Governing body minutesmaintained
Yes Yes
i) availability of minutesYes, electronic and on District
websiteYes, electronic and in a binder
NKFR: Consider postingboard minutes on website for
better transparency toconstituency
3
3. Organizational Structure
A. Structure type Very flat hierarchical Very flat hierarchical with significantempowerment to positions
B. Descriptions of all jobsmaintained
Yes, in 2005 (need to be updated) Yes, non-uniform might need review
Both Agencies: Consider ajoint committee to review/
update job descriptionstogether, aligning functions
where possible, andfacilitating future integration4
i) job descriptions updated In 2012 operational plan Yes, recently reviewed
C. Employment agreementsNon-represented contractsRepresented have CBAs
Yes, non-uniformed CBA; uniformedCBA; Administrative Contract (7)
4. Chain of Command
A. Unity of command Yes Yes
B. Span of control
5:1 administrative2:1 for operations
Appropriate for staffing and EMStransport
5:1 administrative1:1 for operations
Appropriate given two person staffingand EMS transport services
C. Hiring/Firing authority Fire chief Fire chief5. Formation and History
A. Organization formed 1936 1948
B. History maintainedYes, preparing for 75th anniversary
celebrationYes
i) individual or groupresponsible
Appointed committee, ChairCommissioner Sullivan
Michele Laboda
3Uploading board meeting minutes, once approved, provides for greater transparency for interested citizens.
4 By working together to align job descriptions as much as possible, especially when the need for review and revision are recognized andimminent, opportunities for efficiency can be discovered.
-
8/4/2019 North Kitsap-Poulsbo efficiency study
32/369
North Kitsap Fire & Rescue Kitsap County Fire District #18, WAFeasibility Study
21
Survey ComponentOrganization Overview Observations
Kitsap County Fire District #18 North Kitsap Fire & Rescue Recommended Action
6. Fire Department Overview
A. Agency type Fire District Fire District
B. Area, square miles 54 square miles
45 square miles (District) plus twosquare miles by contract with Port
Gamble SKlallam (renegotiated everysix years)
C. Headquarters
911 Liberty Rd NE
Poulsbo, WA 98370Station 71
Paul T. Nichol Headquarters:
26642 Miller Bay Rd NEStation 81
D. Fire stationsFour, two manned and one flexibly
manned and one unmanned atKeyport
Four manned and one unmanned
E. Other facilitiesTraining facility connected to Fire
Station No. 7733787 NE Eglon Rd (storage)
F. Emergency vehiclesi) engine 4 4ii) engine, reserve 1 2iii) ladder truck 0 0iv) ambulance 4 4
v) ambulance, reserve 2 1
Both Agencies: Considerpooling reserve ambulances
between the agencies,potentially reducing the needfor one reserve (maintenance
record verification ofreliability)
5
vi) command 1 (4 staff & support vehicles)1 (2 staff vehicles 3 fleet maintenance,1 facilities maintenance, 4 motor pool)
NKFR: Evaluate need for fourmotor pool vehicles, verify
reliability throughmaintenance records
6
vii) boat 1 (17 foot SafeBoat) 1 (29 foot LifeTimer)
5Maintenance records may reveal an opportunity for a pooled fleet of reserve ambulances to reduce the need for three units, thus reducing costs.
6 Evaluate the cost effectiveness of a motor pool versus reimbursement for required travel by district personnel performing non-emergencyservices work.
-
8/4/2019 North Kitsap-Poulsbo efficiency study
33/369
North Kitsap Fire & Rescue Kitsap County Fire District #18, WAFeasibility Study
22
Survey ComponentOrganization Overview Observations
Kitsap County Fire District #18 North Kitsap Fire & Rescue Recommended Action
viii) tenders 2 (3,000 gal.) 3, 1@3500 gal., 1@3000, 1@1000ix) brush 0 1
G. WSRB rating4 in the city of Poulsbo, 5 in the
District, (7 for unhydranted areas)5 (6 for unhydranted areas)
Both Agencies: Considerconducting an informal re-rateanalysis to determine whethera Class 4 is possible for both
agencies7
i) date of most recent rating 1991 1991ii) maximum fire department
deficiency points possible5,000 5,000
iii) relative classification n/a n/aiv) divergent reduction n/a n/av) total deficiency points 2,236 2,068
H. Total fire departmentpersonnel, uniformed and civilian
43.33(Includes 0.33 FTE facilities
maintenance position. NKFR is theemployer of the position shared
equally with KCFD #18 and BFD)
45.00(Includes 1.0 FTE facilities
maintenance position. NKFR is theemployer of the position shared
equally with KCFD #18 and BFD)
i) administrative and supportpersonnel, full-time
7 1/3 fulltime filled positions, 5approved positions are vacant.
Facility maintenance position is split1/3 each for KCFD #18, NKFR and
Bainbridge Island.
12
ii) operational personnel, full-time
36 33
KCFD #18: Considerexpanding the administrative
and support volunteerprogram
iii) operational personnel,volunteer
2518
14 to 16 interns and 2 tender operators
7Training and Large Fire Operation are the two areas of greatest deficiency within the fire department, according to the Washington Surveying &
Rating Bureau in 1991. While this evaluation is 20 years old for both departments, they are also areas where the fire districts have significantcontrol. An informal evaluation of the circumstances today might reveal an opportunity to drop a rate classification for both agencies. Waterdistribution is the single greatest number of total deficiency. Active involvement with the local water departments and developers in improvingmain distribution, hydrant placement, pumps, and looped systems provide significant benefit to the fire districts from a rate classificationperspective.
-
8/4/2019 North Kitsap-Poulsbo efficiency study
34/369
North Kitsap Fire & Rescue Kitsap County Fire District #18, WAFeasibility Study
23
Survey ComponentOrganization Overview Observations
Kitsap County Fire District #18 North Kitsap Fire & Rescue Recommended Action
7. Finance Overview
A. Designated fiscal yearCalendar year January 1st through
December 31st
Calendar year January 1st throughDecember 31
st
B. Assessed property value, FY2011
Fire $3,303,787,872EMS $3,308,285,482
Fire $2,743,847,365EMS $2,745,732,697
C. Revised 2011 generaloperating fund budget, fire
department
The 2011 budget is $6,983,674. This
includes EMS costs.
The 2011 budget is $6,042,161.
This includes EMS costs.D. General fund property tax,District levy FY 2011
Fire $4,955,681EMS $1,654,142
Fire $3,923,070EMS $1,372,866
i) levy rate (FY 2007 through2010)
Fire2010 1.4573692009 1.3367842008 1.3048882007 0.886593
EMS2010 0.5000002009 0.5000002008 0.3022672007 0.321288
Fire2010 1.3094302009 1.1864192008 1.1588632007 1.285388
EMS2010 0.5000002009 0.5000002008 0.5000002007 0.338834
ii) general fund levy collectionrate FY 2010
Property taxes collected in 2010were $6,806,626. This amount
represents 100.003% of thebudgeted amount.
Property taxes collected in 2010 were$5,334,795. This amount represents
99.91% of the budgeted amount.
E. Bonds, fire department Annual $189,407.50 Annual $490,000
i) levy rate$2,040,000 @ average interest rate
of 4.572373%Bond levy rate $0.248095
F. Other tax levy, public safety EMS EMS
i) levy rate$0.50/1,000 of the assessed value
(AV)$0.50/1,000 of the assessed value
(AV)8. Demographics
A. Population, 201023,500
(client provided)18,418 plus 682 by contract
(client provided)i) population history (2000
2010)Not requested Not requested
ii) percent urban/suburban 35% Not provided
-
8/4/2019 North Kitsap-Poulsbo efficiency study
35/369
North Kitsap Fire & Rescue Kitsap County Fire District #18, WAFeasibility Study
24
Survey ComponentOrganization Overview Observations
Kitsap County Fire District #18 North Kitsap Fire & Rescue Recommended Action
iii) percent rural 65% Not providedB. Total residential units, 2010 Not provided 8,000C. Businesses, 2010 Not provided 400
9. Alarms, Calendar YearA. Fire 60 54
i) value of property exposed tofire, 2010
Not tracked Not tracked
Both Agencies: Considerobtaining property value from
county assessor on line, addcontents estimate for total
value of property exposed tofire
ii) value of property lost to fire,2010
$538,992 Not tracked
Both Agencies: Consideramending NFIRS report withinsurance information once
claim is settledB. Rupture or explosion n/a 7C. EMS/rescue 2,052 1,586D. Number of EMS transports 1,567 (740 BLS, 827 ALS) 1,015 (536 BLS, 479 ALS)E. Hazardous condition 85 164F. Service call 410 115G. Good intent call 372 342H. False call 169 163I. Severe weather n/a 5
J. Other 30 44K. Total 3,178 2,480
Comments:
43 percent of the mutual aid responses KCFD #18 receives are from NKFR (43 percent NKFR, 32 percent NRNW, 21 percent CKFR, 3percent BIFD, and 1 percent JCFR#3).
With approximately 17 percent of all calls for service being classified as good intent or false calls, KCFD #18 and NKFR should considerthe causes and implementing a public education campaign aimed at reducing the number of these incidents. As a second proactive ideato reduce the frequency of nuance calls, the Districts should adopt and enforce the Kitsap County false alarm ordinance that gives fireservice agencies an enforcement tool (Kitsap County Code Chapter 6.10 Emergency Communications Systems).
-
8/4/2019 North Kitsap-Poulsbo efficiency study
36/369
North Kitsap Fire & Rescue Kitsap County Fire District #18, WAFeasibility Study
25
Figure 1: NKFR Organizational Chart
Citizens
Board of
Commissioners
Fire Chief
Operations
Section
EmergencyServices
Support
Services
Training &
Safety
CommunityServices
Fleet Services
Administration
Section
Finance
Administrative
Support
Human
Resources
Planning
Section
StrategicPlanning
Labor
Management
Budget &
Finance
Healthcare
-
8/4/2019 North Kitsap-Poulsbo efficiency study
37/369
North Kitsap Fire & Rescue Kitsap County Fire District #18, WAFeasibility Study
26
Figure 2: KCFD #18 Organizational Chart
Pub Ed/PIO
Fleet/Facil i t ies
Training/Safety
Fire Marshal
Deputy Chief Adm in
Volunteer BC
B C C
B C B
B C A
Deputy Chief O perat ions/EMS
Finance
H R
IS
Off ice Mgt
Adm instrat ive S erv ices Mgr
Fire Chief
Board of Fi re Com missioners
Cit izens of Kitsap Co unty Fire District 18
-
8/4/2019 North Kitsap-Poulsbo efficiency study
38/369
North Kitsap Fire & Rescue Kitsap County Fire District #18, WAFeasibility Study
27
Survey Table 2: Management Components
Fire department management coupled with organizational growth is a common challenge for fire service leaders. NKFR and KCFD
#18 are not immune to having adequate management to meet current conditions. The modern fire department must address
management complexities in areas that include the consistency and adequacy of response, maintenance of competencies, and
recruitment of a qualified and diverse workforce. A forecast of continued population growth and response activity workload will
necessitate changes in staffing to meet anticipated service demand. A correlated increase in organizational infrastructure is required
to support operational personnel. This section examines each departments efforts to manage the organization and measures that
are being taken for the future.
Survey ComponentManagement Components Observations
Kitsap County Fire District #18 North Kitsap Fire & Rescue Recommended Action
1. Mission, Vision, StrategicPlanning, Goals andObjectives
A. Mission statement adopted Yes (needs to be updated) Yes
i) displayedNot currently, when updated, it will
be displayedOn website and in annual report
ii) periodic review Due in 2012 No set schedule
B. Vision established andcommunicated
Due in 2012(Strategic goals adopted by the
Board)
Both Agencies: Adoptorganizational guiding principles
or values for all personnel8C. Values of staff established Due in 2012 No
i) organizational focal points Due in 2012 No
D. Strategic or master plan Due in 2012 NoBoth Agencies: Establish a
synchronous five-year strategicplanning cycle for both agencies
i) adopted by elected officials n/a n/aii) published and available n/a n/aiii) periodic review n/a n/a
8 Personnel who exercise independent decision making naturally make better decisions when they understand the principles and values of theorganization. Decisions are then made with the leaders intent clearly understood.
-
8/4/2019 North Kitsap-Poulsbo efficiency study
39/369
North Kitsap Fire & Rescue Kitsap County Fire District #18, WAFeasibility Study
28
Survey ComponentManagement Components Observations
Kitsap County Fire District #18 North Kitsap Fire & Rescue Recommended Action
E. Agency goals and objectivesestablished
Operational goals and objectivesare drawn from strategic goals
directed annually by thecommission.
Yes
i) date developedFirst developed in 2009, annual
review and adjustment2008
ii) periodic review Annually Annually
iii) tied to division/personnelperformance statements/plans Yes Yes
iv) objectives linked toprograms
Yes Yes
v) performance objectivesestablished
Yes Yes
F. Code of ethics established Yes, in policy manual Yes, in policy manual2. Availability of SOPs, Rules
and Regulations, Policies
A. Copies of rules provided On server, hard copy in office In ERS libraryi) last date reviewed n/a Schedule on ERS library
B. Copies of SOGs or guidelinesavailable
Outdated, being revised Yes
i) regular update n/a
As needed, changed by WAC(Washington Administrative Code),
L&I rulings, county-widestandardizations
KCFD #18: Establish an SOGduring the revision that
establishes a review/reviseinterval9
ii) process for development ofnew SOGs
Prioritized risks, program managerand training chief develops draft,presents to leadership team, chief
adopts
See above, process underdevelopment
iii) SOGs used in trainingevolutions
Yes Yes
C. Policy manual available Yes Yes
9Current Standard Operating Guidelines are important for continuity of action by crews in the field. As the SOGs are revised, establishing a new
SOG that sets the review/revision frequency of the entire set of SOGs helps the organization police itself in terms of changing practices or newtechnologies/processes.
-
8/4/2019 North Kitsap-Poulsbo efficiency study
40/369
North Kitsap Fire & Rescue Kitsap County Fire District #18, WAFeasibility Study
29
Survey ComponentManagement Components Observations
Kitsap County Fire District #18 North Kitsap Fire & Rescue Recommended Action
i) reviewed for consistency Yes, annuallyYes enhanced procedure under
developmentii) reviewed for legal mandates Sent for legal review When reviewed for revision needsiii) training on policies provided Yes Yes
3. Critical Issues
A. Critical issues are identified Not formally identified Yes, identified in annual reporti) first critical issue n/a See annual report
ii) second critical issue n/a See annual reportiii) third critical issue n/a See annual report
4. Challenges of the Future
A. Challenges are identified Not formally identified Yes, identified in annual reporti) first challenge n/a See annual reportii) second challenge n/a See annual reportiii) second challenge n/a See annual report
5. Internal and ExternalCommunications
A. Internal communicationsFace to face, quarterly with crews,meeting with an individual monthly,
weekly updates via e-mail
E-mail, weekly flash (electronicnewsletter), Twitter, Facebook
KCFD #18: Consider adding aregular electronic internal
department newsletterdistributed to all personnel.
NKFR: Consider face-to-facecrew meetings
i) regularly scheduled staffmeetings (fire department)
Yes, leadership team meetingstwice a month
Yes, monthly B/C, quarterly alluniformed officers. Admin. Staff as
needed
ii) written staff meeting minutesNot lately (personnel reductionshave minimized staff availability.
Yes, of B/C and uniformed officermeetings
iii) memosDirectives and administrative
memorandumsAs needed
iv) member newsletter Yes Yes, weekly flash
v) member forums YesYes, electronically and
anonymouslyvi) open door policy Yes Yes
vii) bulletin board Yes, not used regularlyYes, electronically and
anonymously
-
8/4/2019 North Kitsap-Poulsbo efficiency study
41/369
North Kitsap Fire & Rescue Kitsap County Fire District #18, WAFeasibility Study
30
Survey ComponentManagement Components Observations
Kitsap County Fire District #18 North Kitsap Fire & Rescue Recommended Action
viii) vertical communicationpath clearly identified
No YesKCFD #18: Consider clarifying
communication path via chain ofcommand
ix) e-mail Yes Yesx) employee mail boxes Yes Yes
xi) voice mailAnyone with an extension has a
voicemailAnyone with an extension has a
voicemail
xii) issues taskforce Yes, stakeholders pulled together toaddress problem As needed if appropriate, not inwritingB. External communications
i) community newsletterYes, annually, exploring a quarterlycolumn written by fire chief, seeking
neighborhood associations
Yes, monthly articles in communitynewsletters
ii) website Yes Yes
iii) advisory committee(s)Yes, budget and flex staffing for
Fire Station No. 72As needed
Both Agencies: Consider jointcitizen advisory committee in
this feasibility effort10
iv) complaint process No, outdated policy on complaints Yes, in policiesKCFD #18: Establish a written
citizen complaint process
vi) emailFacebook and e-mail follow up from
community meetingsFacebook updates and/or e-mail as
neededvii) community survey No As needed
viii) local community planning
organizationsYes, city of Poulsbo
Yes, county citizen advisorycommittees in Kingston, Hansville,
and Suquamish communities
ix) focus groupsCommunity Budget Review
Committee (CBRC)As needed
10The policy makers of KCFD #18 and NKFR have taken a huge step toward discovering efficiencies with a closer working relationship. The next
logical step is to include community leaders (external stakeholders) to listen to concepts and provide guidance and feedback for the policy makersto consider.
-
8/4/2019 North Kitsap-Poulsbo efficiency study
42/369
North Kitsap Fire & Rescue Kitsap County Fire District #18, WAFeasibility Study
31
Survey ComponentManagement Components Observations
Kitsap County Fire District #18 North Kitsap Fire & Rescue Recommended Action
6. Decision Making Process
A. Preferred managementmethodology of the fire chief
Decisions made at the lowestappropriate level (if they are
prepared and equipped to). Seekdivergence of opinion, and then
make a decision.
Seek input, empower asappropriate
B. Management process identified
Decisions made at the lowest
appropriate level (if they areprepared and equipped to). If theyarent, training provided.
Decisions at the lowest appropriatelevel
C. Decision making processestablished
See above See above
7. Document Control
A. Process for public recordsaccess established
Yes Yes
B. Hard copy files protected Yes YesC. Computer files backed up Yes Yes8. Security
A. Building security Yes YesB. Office security Yes YesC. Computer security Yes YesD. Vehicle security Yes YesE. Capital inventory maintained Yes Yes
i) asset security system used Yes Yes
ii) inventory interval Yes, annuallyYes, annual for small and attractive
assetsF. Monetary controls used Yes Yes
i) cash access controls No petty cash
No petty cash; however, thedepartment does maintain a small
balance checking account foremergency payments
-
8/4/2019 North Kitsap-Poulsbo efficiency study
43/369
North Kitsap Fire & Rescue Kitsap County Fire District #18, WAFeasibility Study
32
Survey ComponentManagement Components Observations
Kitsap County Fire District #18 North Kitsap Fire & Rescue Recommended Action
ii) credit card controls
Fire chief and office manager withcredit limits. Three generic cardsare available to be signed out to
personnel if needed. Assigned cardholders must sign an agreement to
be responsible for unauthorizedcharges.
NKFR has issued many creditcards to various individuals.
Control on these transactions isthrough the use of approved POS(point of sale) and the review byCommissioner Pearson, the fire
chief and the administrative
services manager.iii) purchasing controls
Department procedure #2003current date is 12/28/2010
Audited by Cindy and Kathy
9. Reporting and Records
A. Records kept by computer Yes Yesi) type of platform IBM IBM
ii) operating system Microsoft WindowsMicrosoft compatible Windows; if
data base it is on Sequel with ERSmanaging incident reports
B. Periodic report to electedofficials
i) financial report Yes, monthly Yes, monthlyii) management report Yes, chiefs report Yes, verbal and written as needediii) operational report Yes, contained in chiefs report Yes, contained in chiefs reportiv) distributed to others No No
C. Annual report produced Yes, most recent is 2009 Yes, most recent is 2009
i) distributed to others Yes, on website
Yes, on website, in stations and in
local public librariesii) analysis of data provided Yes Yes
D. Required records maintainedi) incident reports Yes Yesii) patient care reports Yes Yes
iii) exposure recordsYes, separated medical records in
personnel fileYes, separated medical records in
medical fileiv) SCBA testing Yes Yes, internally performedv) hose Yes Yes, internally performedvi) ladder Yes Yes, contractedvii) pump Yes Yes, contractedviii) breathing air Yes Yes, contracted
-
8/4/2019 North Kitsap-Poulsbo efficiency study
44/369
North Kitsap Fire & Rescue Kitsap County Fire District #18, WAFeasibility Study
33
Survey ComponentManagement Components Observations
Kitsap County Fire District #18 North Kitsap Fire & Rescue Recommended Action
ix) vehicles YesYes, (also provide contract
maintenance for other agencies,37% of 86 vehicles are NKFRs)
x) gas monitors Yes Yes10. Budgetary Controls
A. Designated fiscal year Calendar year Calendar yeari) budget cycle Annual Annual
B. Budget officerAdministrative services manager
oversees the budgets in conjunctionwith fire chief in the review process
Director of administrative servicesoversees the budget in conjunction
with the fire chief in the reviewprocess
C. Budget development processBudget process is established in
department procedure #4004issued 9/23/2009
No written budget procedure hasbeen established.
NKFR: Establish a writtenbudget process
i) governance
Process starts in early June withLine Item Managers submitting
requests. Requests collated by mid-July. Leadership Team reviews all
requests and prioritizes draftapprovals. In September, first
Commissioner review withadjustments. October-Community
Budget Review Committee reviewsand provides strategic direction.
Budget finalized and adopted byBOFC in November.
NKFR budget committee consists ofthe fire chief assistant chief and two
commissioners. The budgetcommittee reviews the budget
requests submitted from informationcollective and summarized by staff.Reports are submitted to the entire
board for review and approval.
ii) administrationAdministrative services prepare
worksheets for review.Administrative services prepare
worksheets for review.
iii) managementStaff and administrative service
managerStaff, budget committee and
administrative service directoriv) staff Only responsible line item holders Only responsible line item holders
-
8/4/2019 North Kitsap-Poulsbo efficiency study
45/369
North Kitsap Fire & Rescue Kitsap County Fire District #18, WAFeasibility Study
34
Survey ComponentManagement Components Observations
Kitsap County Fire District #18 North Kitsap Fire & Rescue Recommended Action
v) community
Public hearing first board meeting inNovember. In 2010, communitybudget review committee was
established to providerecommendations for the budget
process.
Public hearing first board meeting inNovember.
No community involvement otherthan at board meeting todiscuss/approve budget
D. Budget adoption process
Public hearing is the first
commission meeting in November.Budget is adopted at the second
meeting in November.
Open hearing for revenue sources
as soon as information is receivedfrom KC Assessor and documentsare prepared (no later than second
meeting in November)
i) budget approval Last meeting in NovemberNo later than last meeting in
Novemberii) funding approval Last meeting in November Last meeting in November
E. Financial control officer Administrative Services Manager Administrative Services Director
i) financial reportReporting is provided by hard copyto the fire commissioners monthly
for review at a high level
Reporting is provided by hard copyto the fire commissioners monthly
for review at a high level
ii) financial review
The financial review/control ismonitored by the fire chief,
administrative service manager andFire Commissioner Green
The financial review/control ismonitored by the fire chief,
administrative service director andFire Commissioner Pearson
F. Basis of accounting Cash basis Cash basis
G. PurchasingDepartment procedure #2003
current date is 12/28/2010.
NKFR follows the RCW (Revised
Code of Washington) and DistrictSOP 601
i) purchasing policy Yes Yes
ii) credit cards
Chief and office manager with creditlimits. Three generic cards are
available to be signed out topersonal if needed. Assigned cardholders must sign an agreement to
be responsible for unauthorizedcharges.
NKFR has issued many credit cardsto various individuals. Control onthese transactions is through the
use of approved POS (point of sale)and the review by Commissioner
Pearson, the fire chief and theadministrative services manager.
-
8/4/2019 North Kitsap-Poulsbo efficiency study
46/369
North Kitsap Fire & Rescue Kitsap County Fire District #18, WAFeasibility Study
35
Survey ComponentManagement Components Observations
Kitsap County Fire District #18 North Kitsap Fire & Rescue Recommended Action
iii) purchase orders Used for non-credit card purchasesAll items except overhead items
(electricity, water, natural gas etc.)must have a PO (purchase order)
iv) open accounts Yes, office supplies, vehicles Gasoline (on vehicles), Costcov) petty cash accounts No petty cash Checking petty cash account
vi) central supplies/logistics
Yes, supplies are purchased and
maintain at headquarters. Stationsmust come to headquarters to pick
up from general supply.
Yes, supplies are purchased andmaintain at HQ. Stations requisition
supplies from HQ.
Both Agencies: Considerestablishing a centralized
warehouse, staffed by aninventory control specialist whoorders, receives and deliverssupplies for both agencies
11
vii) joint agreements/venturesState co-op for state contracts.
Kitsap County vendor listState co-op for state contracts.
Kitsap County vendor listviii) JPAs Currently none open now. Currently none open now
ix) biddingAdvertise for bid over $10K. Three
bids.Follow state guidelines.
x) leasesCopier for headquarters and Fire
Station No. 77Four copier leases
11. Planning
A. Strategic/Master planning No Noi) plan period n/a n/aii) periodic review n/a n/aiii) goals n/a n/aiv) funding n/a n/a
B. CIP Capital improvement plan Yes, for apparatus and facilities Yes, for apparatus
i) plan periodFleet through 2022, facilities
through 2024Fleet through 2024
ii) periodic review Annually Annuallyiii) projects 0 0
11Inventory management can be an expensive, time-consuming, and tedious responsibility; and both agencies are managing the function
independently. The Washington State Auditors Office routinely checks for such controls in its annual or bi-annual audits. Establishing a centralwarehouse for small equipment, uniforms, and supplies makes inventory control a focused task, frees up expensive space being utilized for thatpurpose in fire stations, and lends itself to just -in-time delivery of supplies and equipment. A requisition process allows for easy tracking ofusage and replenishment of inventory. These tracking systems facilitate easy identification of over-use situations, where remedial action may betaken. Expense of this program can be partially offset by the savings that may be realized in inventory usage and storage.
-
8/4/2019 North Kitsap-Poulsbo efficiency study
47/369
North Kitsap Fire & Rescue Kitsap County Fire District #18, WAFeasibility Study
36
Survey ComponentManagement Components Observations
Kitsap County Fire District #18 North Kitsap Fire & Rescue Recommended Action
iv) funding
Community budget reviewcommittee recommends multiple
strategies, external funding soughtfor improvements above $300,000.Not funded in 2011. Budget only
when needed. Example budget re-chassis of medic unit in 2011
budget.
Capital fund ($1 million), mayborrow if interest rate
advantageous.NKFR has decided to finance the
purchase of all vehicles.
12. Budget
A. Service level defined Yes, Policy #1004
The Board of Commissioners ofNorth Kitsap Fire & Re