Study Aids Minneapolis F.D. Effort To Improve Operations, Management

Study Aids Minneapolis F.D. Effort To Improve Operations, Management

Tragedy struck the Minneapolis Fire Department for the second time in two years in 1979 when a fire fighter lost his life in a basement fire. As so often occurs, some people use tragedy as a motivation to improve their conditions and build a better environment. This was the case in Minneapolis.

Local 82 of the International Association of Fire Fighters and Chief Clarence Nimmerfroh of the Minneapolis Fire Department used this crisis as leverage to achieve programs that they had pursued unsuccessfully for many years. Their proposals were well received by both the city coordinator and the City Council and the support they had been seeking unsuccessfully now materialized.

Following the adage that a man is never a prophet in his home town, it was decided at the beginning of the program that a consultant in fire protection administration might be useful in underscoring the needs of the department. John T. O’Hagan, the former commissioner of the New York Fire Department was engaged. A four-month study was made of the Minneapolis Fire Department and an extensive report prepared, citing the strengths and requirements of the department.

Results of survey

Among the findings were:

1. That although the fire experience in Minneapolis was very favorable in terms of fire incidence, severity and loss of life and property, there was a significant fire potential. For example, new high-rise buildings under construction and on the drawing boards can be measured in terms of billions of dollars.
2. The amount of revenues committed to public fire protection in relationship to population was low compared with cities of similar size.
3. The men available for fire fighting on a daily basis was marginal, given the risks that were responsible for protecting. The contractual agreement for minimum manning with organized labor was not being honored.
4. There was no administrat ive support to engage in the necessary analysis. research, planning and development that is so essential to the management of an urban fire department. As a result, vital areas were being neglected including:
1. Fire fighter safety,
2. Management development,
3. Management planning,
4. Engineering,
5. Training and
6. Research and development.
5. Even though a disproportionate amount of resources was devoted to line management, there was no continuity in the direction of the line units. The traditional scheduling of three deputy chiefs on a rotational basis to direct the operations of the line resulted in a lack of direction and inconsistencies in policies relating to fire control operations. This overcommitment and inefficiency was being supported at the expense of the loss of critical administrative services.
6. Although there was sufficient talent among the officers of the department to provide effective management, their skills were not being properly utilized. Instead, in the absence of a management system that would have encouraged the use of their initiative, experience and abilities, they were relegated by past practices to the performance of routine functions well below their capabilities and the responsibilities of their rank.
7. The personnel function which impacts directly on the efficiency and effectiveness of the department as well as on the welfare of the men was also neglected due to the lack of administrative staff.
8. Clerical personnel were also found to be in short supply, thereby inhibiting or abort ing efforts by the existing staff to fill the administrative void.

Correction encouraged

All these shortcomings were known to the leadership of the department, but attempts to correct them met with strong opposition from sources within, as well as without, the department. However, now that they had been identified by an independent authority and cited in a report, their existence was finally acknowledged. Encouragement to procede to correct these deficiencies was soon forthcoming.

During the analysis of the department, it was recognized that given the extent to which the existing practices were impregnated into the fabric of the department, the necessary change would be assisted if the consultant was retained to act as a catalyst. This was agreed to and the program proceeded.

The first objective was to develop a management system within the department. A system of people, goals, responsibilities, authority, relationship information requirements, policies, procedures and accountability was developed.

Officer profiles prepared

The organization to synchronize the system was developed by the senior officers of the fire department. Each officer prepared his own responsibility profile, listing his functions, managerial responsibilities, relationships and level of authority. From that, a management guide was developed, providing direction for the operation of the organization.

The senior officers of the department were all interviewed, evaluated and offered new assignments within the administration. Changes were made, including promotions and voluntary reductions in rank. The administrative positions were filled and a two-day retreat was scheduled away from the city. The purpose was to take a fresh look at the department and consider its future without the distraction of the day-today interruptions and responsibilities imposed by the management of the department.

The first phase of the retreat was devoted to a review of the basic principles on which a management system is based, i.e., the identification of mission, definition of objectives, measurement of performances, accountability, etc. This was followed by a discussion of the management processes of planning, organizing, leading and controlling. With the group now able to communicate in the same language, we proceeded to plan for the coming year.

We examined the current status of the department and where it should be going. We developed programs to get there, schedules, responsibilities and commitment of resources. The priorities were established in two groups on the basis of criticality and progression. The priorities selected are listed below:

First

1. Creation of a labor-management safety committee,
2. Improved utilization and
3. Risk analysis of the fire hazards in Minneapolis.

Second

1. A review of fire fighting strategy and tactics,
2. The establishment of a formal fire critique program,
3. Review of the department training program and
4. Development of a data system.

A brief discussion of the experiences involved in pursuing each priority will offer some insights into the achievements of the program.

Safety committee formed

An impasse had been reached between management and labor regarding the composition of the safety committee, its function, the chairmanship and its interrelationship with the administration of the department. The management orientation of the new department administration provided a more enlightened perspective toward controversial issues and as a result, a dialogue was established. Safety to the fire fighter was recognized as a legitimate concern for both management and labor. It was also conceded that if management and labor pooled their efforts, they could improve safety conditions on the fireground.

The threshold issue was to overcome the reluctance of management to engage in a program that it perceived as a risk in surrendering one or more perogatives. Management was also concerned with consensus solutions resulting in recommendations that were impractical. With labor, the reluctance was to accept a program that would be dominated by management, unproductive and protective of the status quo.

A proposal was developed that met with the approval of both groups. The city coordinator, David Niklaus, agreed to be the chairman. Three members from labor and three members from management completed the committee. The arrangement has worked very well and the committee has made a positive contribution to the performance of the department.

Risk analysis of grain elevators

As a result of the committee’s interest, the Minneapolis Fire Department has conducted a risk analysis of grain elevators from a fire control perspective following a close call at an explosion and fire in an elevator. The findings have served as a guide for formulating strategy and tactics and as a basis for improved training. The results were favorable enough to warrant the sharing of the knowledge with other fire departments in Minnesota and neighboring states.

Another accomplishment was the development of an oversight procedure whereby near misses on the fire scene that are not reported through official channels can be reviewed at the request of labor to avoid accidents by taking preventive action in advance. Incidents involving toxic chemicals, malfunctioning electric and power systems and similar hazards have been subjects of discussion before the committee and the object of policy directives to reduce the risks.

Preventive programs involving issues, such as hearing loss due to apparatus noises, have also been developed. Perhaps one of the major benefits has been the contribution that the interchange has made in improving overall labor relations. The committee not only provides a forum, but practically mandates that issues which require exploration receive the necessary attention.

Based upon the premise that the best way of reducing hazards associated with fire fighting was to improve the understanding we have of the factors that contribute to the risk, we organized a program for analyzing these factors. The Minneapolis Fire Department has a program for pre-fire planning. It was standard and lists the basic information regarding a building or premise as well as special information that can influence fire spread or life safety, such as unprotected shafts, location of the handicapped or storage of flammable solvents, etc. We decided to improve on this approach.

Limited types of construction

Buildings or structures are often the principal ingredients in any fire risk. Their design, structural components and systems impact directly on the fire risk and safety to life. The threat posed by a particular building component depends upon its function, the type of construction, the workmanship, and its relationship with the remainder of the building. Furthermore, if you survey the building stock of any community, you will discover that there are a limited number of types of construction that are related to a particular type of occupancy.

For example, supermarkets generally have cement block bearing walls with the roof support structure designed to give the maximum open space for the least cost. The fire protection requirements in codes for the wood truss, unprotected metal truss, steel girders or wood jcists are minimal. To be fully prepared to cope with a fire in a building of this type, it is not sufficient to list the height, area and construction of the building. What should be done is to identify the prevalent types of roof construction in the community for this type of occupancy. The effect of fire on this type of construction should be recorded as well as the manner in which the roof and its supporting members can be predicted to react.

If you describe the effects of fire on a common type of construction and occupancy, you can more effectively analyze the appropriate strategies and tactics for controlling fires in these buildings. They can be evaluated in the calm of a conference room or training center on a risk-benefit basis. It is a much more effective way to prepare for a fire situation than making spot decisions on the scene—often without sufficient information or time to decide about making a particular commitment. A more precise analysis of the principal risk factors in advance increases the odds of your making a correct one.

It also provides a means for considering in advance if, in a given situation, the exposure of fire fighters is warranted in terms of the life or property loss to be avoided. This can be considered a risk-benefit evaluation—a process we could use more of in the fire service.

Analysis leads to policies

There are several benefits to be realized from this system of analysis. It is a means of developing policies regarding fire fighting risks for the guidance of all members of the department. It is a means of evaluating the department’s actual performance at a fire against the strategies developed during the evaluation. It is a means of focusing the combined experience of the department on a solution to a particular fire fighting problem and, in the process, arriving at better results. It is an effective training medium for members of all ranks.

This program requires a good deal of effort. First attempts may be discouraging, and organizing the information in a concise format requires a great deal of time. For a chief officer, there is no better way to contribute to his subordinates’ preparedness, his own effectiveness and the safety of his mission.

The Minneapolis Fire Department is in the process of finalizing its risk analysis of its largest high-rise building. The understanding of the problems that it faces is probably one of the highest in the country. Given the limited amount of manpower available to the department in comparison with the size of the fire potential, this knowledge is essential.

Once the in-depth understanding of the fire risks associated with a particular type of risk is understood, it can be applied to specific buildings for a more effective pre-fire planning program. In Minneapolis, fire case studies are constructed for each risk evaluated. Simulated strategies are tested and evaluated, and preferred strategies are described. Policies to guide all the members of the department in critical situations are corollaries of the process. This moves the art of fire fighting toward a more structured procedure and away from rash, aggressive seat-of-the-pants approaches.

In conjunction with the risk-analysis program, the fireground command procedures of the Minneapolis Fire Department were also examined. It was found that the basics of an effective system were provided for in an operations manual. However, the procedures were not uniformly adhered to and the communications protocol was weak. To ensure that all members of the department were on the same wavelength in their discussion of their roles on the fireground, we went back to basics.

We started by restating the responsibilities of the chief officer, company officer and fire fighter on the fireground. We reinforced the role of the first company officer to arrive as the fire commander until the arrival of a chief officer and assigned him responsibility for organizing the initial attack. Communications networks were established to ensure better coordination and exchange of information.

To measure the effectiveness of the overall program, a system was developed for collecting information relative to the effectiveness of the fire operation. A formal debriefing and review procedure was established, including a review of the adequacy of existing policies and programs. A report of the findings of the review is prepared and disseminated to the department. The lessons learned are incorporated into the strategies of the department and, when warranted, form the basis of a policy statement. The program has been constructive, informative and popular with the rank and file.

Personnel data improved

Due to the absence of an adequate administrative staff, the data on manpower utilization and absenteeism was unreliable. Serious doubt existed regarding delays in examinations for fire fighters injured on duty or with serious injuries from off-duty incidents. The amount of time lost and causes of injuries could not be pinpointed. There was no means available for determining that the manpower was being employed effectively.

The construction of historical references were difficult, but finally through the establishment of an effective personnel division, we were able to establish that time lost was less than originally estimated. We also were able to identify where savings could be realized and to actually reduce the losses. Moreover, we established to the satisfaction of city officials that current manpower levels had to be increased.

The pension division now provides a continuing appraisal of all employee benefits, manpower utilization and safety programs. It has a computerbased program for monitoring injury trends and initiating prevention programs. In the future, it will address issues such as physical fitness, employee development, breathing apparatus usage guidelines and other areas related to the welfare and morale of department personnel.

Training staff increased

The training effort in Minneapolis also suffered from a staff reduction. Every innovation generated a training component and thereby involved every member of the department. Outside consultants were engaged to enrich management seminars. The training school staff was increased, and visual aids, simulations and role-playing were introduced to encourage employee involvement in the introduction of changes. Contributions and comments from the rank and file were incorporated in the planning process.

The planning and program management during the development and introduction of the program was the responsibility of the research and planning division. To ensure an orderly process, clearly defined objectives, proper direction and timely performance program planning forms, action planning forms and performance schedules were developed. Accountability was enforced and in general programs were kept on schedule. In addition, the planning and research division investigated and reported on issues impacting on every segment of the department. This division developed a management information system, researched the bibliography on grain elevator incidents, and tested and made recommendations for improving the fireground communications system. It kept the program on schedule and provided the adhesive that held it together.

The reorganization and initial program introduction is complete. This, however, is really the beginning, not the end. What we have created is a system fpr managing the department. The challenge is to continue it as an effective mechanism for progress and the delivery of a high level of service. The baton is where it belongs, with the leadership of the Minneapolis Fire Department.

Vision, inquisitiveness, energy, interest, innovation and a desire to improve are some of the ingredients necessary for continued success. The talent is there and we are sure that the results will be, too.