Changing the Shape of the Fire Service Hierarchy

By Jeffrey W. Moran

This article explores a break with traditional management and the implementation of total quality management (TQM) for the local fire service. The continued use of a military hierarchy leadership pyramid for all situations is part of tradition. Most common solutions to problems are short-term, reactive measures (i.e., layoffs, station closings) that have been implemented in the past and, without real changes, will be repeated in the future. Stagnant problem solving fosters the eventual decline of the organization.

TQM necessitates a journey into concepts that are still considered radical by many in the fire service. These concepts encompass a focus on what the public perceives as its wants and needs from the fire service, not what the fire service thinks the public wants and needs. Empowerment of employees allows for the organization’s goals, objectives, and situational leadership to be successfully achieved.

TQM is defined as “the integration of all functions and processes within an organization to achieve continuous improvement of the quality of goods and services. The goal is customer satisfaction.”1 The concept of TQM is that of a systems approach considering quality in all functions of the organization. It “is a start-to-finish process that integrates interrelated functions at all levels.”2

Quality and satisfaction are what the customer perceives them to be.³ Some aspects of quality, such as response times or a reduction in fires, are easily measured by statistics; others are impressions of the customer. The term customer as it relates to the local fire service includes any and all residents, visitors, property and business owners within the response area whether they have interaction with the fire service or not, other agencies, and those within the organization.

Customer Perception of Wants and Needs

Determining what the customer perceives as its wants and needs necessitates two basic actions. First, management must acknowledge that the customer is the authority regarding its wants and needs. Management’s mission is to meet them using the technical skills, knowledge, and resources of the entire organization. These areas must be continually adjusted and fine-tuned to ensure they meet the dynamic demands of the customer.

Second, a continuous research project must be instituted to determine the customer’s wants and needs and to keep this information current. This project may be undertaken internally or externally using standard public opinion or marketing survey techniques. The initial project should be a communitywide undertaking to establish a broad-based opinion of customer wants and needs. An external resource is preferable because of the size and technical nature of the project and to temper claims of prejudice and statistical manipulation. Customer service surveys may be provided to those having contact with the organization as an ongoing informational source in conjunction with a communitywide periodic survey undertaken every two or five years.

Implementing TQM

The initial major step in implementing TQM is full dimensional vertical and horizontal training. This training must include a review of TQM theory, particularly empowerment (discussed later) and management’s support for the system.

Joel Ross, in Total Quality Management, outlines the following as the steps to initiating and sustaining a TQM system:

Understand the need for change.
Develop a vision statement-a clear vision of where the fire department will be once TQM is established.
Tailor the vision to the individual circumstances faced by the department. All initiatives shall focus on customer satisfaction as determined by the customer and measured by verifiable facts.
Establish an infrastructure of management’s strong leadership and support.
With the infrastructure in place, begin the implementation with employee training, including general quality principles, specific quality goals, and possible measurement tools-out-the-door and response times, fire and safety presentations, the number of civilians trained in cardiopulmonary resuscitation, survey service recipients to determine what services they want from the department, for example.
Sustain the effort. Communication is key; “walk the talk”; put into practice and use the tools provided day in and day out.

Starting over, self-assessment with communication is vital to sustaining TQM beyond the initial goals. It is a perpetual process.4

The United States Department of Defense lists the following basic principles for TQM:

Customer focused (what does the public need, want?).
Total employee involvement (all working toward a common goal).
Process-centered (transform inputs, internal and external, into department practices).
Integrated system (all department functions focus on the overall same result).
Strategic and systematic approach (quality is a core component of the department’s vision, mission, and goals).
Continual improvement (review and update on a continuing basis).
Fact-based decision making (collect and analyze data on performance to improve decision-making accuracy, achieve consensus, and allow prediction).
Communications (horizontal and vertical in a timely manner).5

Empowerment

Empowerment is giving the workers the authority and responsibility to act on important business decisions. It assists the leadership in tapping the knowledge, skills, experience, and motivation of every person in the organization.⁶ It is undertaken on an organizationwide basis in which teams are the functional units. The focus of the teams is the development of solutions to problems and continuous quality improvement.

The secret to achieving organizational success lies in releasing the potential of employees at all levels of the organization. With increasing emphasis on downsizing and the efficiency in government today, it is imperative that managers empower their employees to achieve the organization’s goals. This can be difficult for managers who believe power is limited and that giving power to employees means diminishing the managers’ power. Researchers Diane Tracy and William Morrison7 put forth these 10 principles for empowering employees:

Power through responsibility. Employees work harder if their responsibilities are clearly defined. Managers must explain how the employee’s responsibilities and job relate to the overall goals and objectives of the organization. This develops a sense of ownership and importance and increases responsibility.
Power through authority. An employee is powerless without some level of authority. Employees show more initiative and are more successful when given authority to make job-related decisions. Although authority provides the employee with the right to make decisions, managers must make clear the scope, including the limits of authority. When all the decisions are made at the top, growth is impossible because the organization, as well as the employee, is restricted.
Power through standards and excellence. Managers empower their employees by setting standards of excellence, thus enabling them to reach their full potential. Managers must set standards high enough to stretch the employees’ talents and low enough to be attainable. Managers must constantly communicate standards to employees.
Power through training and development. Managers empower their employees by providing confidence and skills to successfully do the job. Managers must train and develop their employees. On-the-job training through trial and error is no longer acceptable. Everyone suffers as desired outcomes are not achieved. Growth of the organization is dependent on the growth of its employees. Training is one of the best methods for building self-confidence.
Power through knowledge and information. Employees need knowledge and information to make decisions associated with their jobs. Without knowledge and information, employees are limited in their ability to fulfill their responsibilities. Managers must encourage their employees to research information on their own, if necessary, and simultaneously anticipate the information needed to accomplish their responsibilities. Sharing information within the organization is critical.
Power through feedback. Performance feedback is an important element in empowering employees. If employees are to have the power to succeed, they must know when and how they need to improve their performance. Employees who do not receive the necessary feedback feel unnoticed and unappreciated. Two-way communication must always be present if there is to be an understanding between the manager and the employees. Provide feedback on a fairly frequent basis for optimum success.
Power through recognition. The most effective tool for building self-esteem and motivation is recognition. The success of employees is dependent on their belief in themselves to do consistent work. Recognition is also critical to the growth and the well-being of the employees. The challenge to managers is to make winners out of their employees. Employees who feel like winners act like winners. Managers must tailor recognition provided to their employees. Employees have different needs and, consequently, need to be recognized in different ways.
Power through trust. Managers empower employees by trusting them. Trusted employees are free to concentrate all their efforts on the job instead of worrying about how they are going to justify their actions. For trust to grow, trust must be part of the organization’s foundation. Managers’ belief that their employees are good people and want to do a good job is a vital element in building trust.
Power through permission to fail. Failure is an integral factor in the success of an organization. Employees given permission to fail take risks and are more creative and innovative. Creating an environment where employees are not afraid to fail is difficult, but it is imperative, particularly when the manager sets high standards of performance. Once employees are given permission to fail, managers may expect greater achievements from their employees, as they are free to take more risks.
Power through respect. Employees want to be treated with dignity and respect. Respect helps build self-esteem. Employees treated with respect demonstrate a greater motivation to perform. To show respect, managers must be sensitive to the employees’ needs.

These 10 principles can build morale and increase organizational performance. They are also keys to leadership success. To be more successful as a leader, focus your efforts on empowering the people who work for you, and remember, “real power flows from the bottom up rather than the top down.” (7)

Blanchard and Randolph, in 3 Keys to Empowerment, list four stages teams pass through on the road to empowerment. They are based on what happens to two key variables that are team analogs to the competence and commitment of individual development situational leadership-productivity, the team’s ability to work together and achieve results, and morale, the team’s motivation, confidence, and cohesion.”8

Stages of Development

The journey to an empowered team is similar to that for individual development. The four stages of development follow9:

Orientation. A period when team members are eager, have unrealistically high expectations, and experience some anxiety about “fitting in”; the trust of other members; and the demands placed on the teams. Typically, the behaviors needed include developing a clear team purpose, establishing clear roles for members, setting goals, and acquiring team skills. The team needs high direction and low support from the leadership at this point.
Dissatisfaction. It appears that the reality of the difficulties of functioning as a team and accomplishing tasks tarnish the initial high expectations. Team members develop conflicts, subgroups form, and polarization of members occurs. Behaviors needed at this point are revisiting the team purpose, learning conflict-resolution skills, soliciting input from all team members, and acknowledging small team accomplishments. The team continues to need high direction; it now also needs high support.
Integration. This stage brings conflict resolution and increased morale, task accomplishment, technical skills, and team productivity. There is increased clarity and commitment to purpose, values, norms, roles, and goals. Members start thinking in terms of “we” instead of “I.” Leadership behaviors that are helpful at this point are encouraging shared responsibility for results, examining team functioning to eliminate obstacles, and encouraging and valuing different perspectives on the task. The team now needs high support but a decrease in direction.
Production. During this final stage, productivity and morale are high, there is team pride, and the primary focus is on performance. Communication is open. Confidence, trust, and respect are the norms. The team is now an empowered team and needs low support and low direction.10

Leadership

Leadership must evolve simultaneously with the development of the team through the stages. Leaders can use situational leadership, leading in a flexible manner, adapted to the employees’ and organization’s development stage, to be able to determine the leadership style appropriate to the situation and apply it.11 The appropriate style will be determined by the followers’ levels of development and the circumstances at hand.12 Situational leadership has four stages that are similar to the stages teams progress through on their way to empowerment. The National Fire Academy presents four leadership styles in the course “Leadership III: Strategies for Supervisory Success.” These leadership styles parallel the stages of team development discussed above. The parallel stages are indicated in parentheses following the leadership style.

Directing (Orientation). The leader tells the follower what, how, where, and when about the task that needs to be done. The leader closely supervises the work. The follower has no involvement with the decision making or problem solving. The behaviors exhibited by the leader are highly directive and minimally supportive.
Consulting (Dissatisfaction). The leader continues to give specific directions. The leader becomes supportive by offering reassurance and encouragement. The leader explains decisions and solicits suggestions and input. The leader exhibits highly directive and highly supportive behavior.
Supporting (Integration). The leader no longer needs to give a great amount of direction. The leader needs to build the follower’s self-confidence and motivation by encouragement and praise. The leader helps the subordinates reach their solutions by asking questions that expand thinking. There is shared responsibility for decision making. Behaviors exhibited in this style are highly supportive and minimally directive.
Delegating (Production). The leader no longer needs to give much direction or support. The leader turns over the responsibility for decision making and problem solving to the follower.

The fire service can enhance its service delivery, efficiency, and image by implementing TQM. This concept will work effectively during nonemergency times; a traditional top-down hierarchy must be used during emergency operations. The top-down emergency operation should not be so rigid that it precludes or unjustifiably discounts the thoughts, observations, of everyone but the incident commander. The process must be streamlined and the time frame compressed for emergency operations vs. nonemergency situations.

A nonemergency situation affords those involved the time to receive, research, dissect, digest, and discuss all aspects of information relative to the situation at hand. An emergency situation, which is fast paced and dynamic, does not permit such time to be taken when making command decisions. The time can and must be taken prior to an emergency. This is done in the development of personnel, when developing and revisiting standard operating procedures, and when developing and updating preplans.

An appropriate span of control is imperative to success when managing an emergency operation. It can be made congruent with the National Incident Management System, which calls for a span range of from three to seven.

Training and competence in all parallel positions and being functionally familiar with the next position above each member in the hierarchy are musts for success in implementing TQM in the fire service. Confidence in the competence of all members must be a two-way street up and down the hierarchy of the department. Commanders at all levels must consistently exhibit leadership. All personnel shall be confident in the ability of those above, on the same level (parallel), and below to learn, teach, communicate, and relate to each other. This will develop the trust necessary to implement TQM for nonemergency situations and to seamlessly transition to a more traditional “top down,” modified TQM for emergency situations. It is considered a modified TQM in that there is trusted input and communication both up and down the hierarchy; the commander makes the decisions in a compressed time frame, with limited discussion and debate.

The fire service can mimic the Marine Corps in implementing an organizational structure that operates with two distinct hierarchical styles and establishes the mechanism to rapidly and seamlessly transition between them as situations dictate.

Situational leadership should be used to develop, nourish, and stimulate people through the follower (growth) stages into leaders. It will give them the tools, skills, and experience to be a leader, not overwhelm them by giving them the tools and asking them to learn to use the tools and complete a job in a day.

A TQM system, when implemented with empowered employees and situational leaders, will be the foundation of an organization that is fluid in structure and dynamic in culture and character. The organization will be proactive in meeting challenges, solving problems, and exceeding customer demands for quality.

Endnotes

1. Ross, Joel E. (1995), Total Quality Management. (Del Ray Beach, Fla.: St. Lucie Press).

2. Ibid.

3. Capezio, Peter and Debra Morehouse. (1995). Taking the Mystery Out of TQM. (Franklin Lakes, N.J.: Cater Press).

4. Ross, Joel E.

5. http://www.asq.org/learn-about/total-quality-management/overview.html.

6. Blanchard, Kenneth; John P. Carlos, and Alan Randolph. (1999) The 3 Keys to Empowerment. (San Francisco, Calif.: Berret-Koehler Publishers).

7. Tracey, Diane and William Morrow (1992). 10 Steps to Empowerment: A Common Sense Guide to Managing People. (New York, NY: William Morrow and Company).

8. Blanchard, et al.

9. Ibid.

10. Ibid.

11. Hersey, P., KH Blanchard, and DE Johnson. (2007). 9th Edition Management of Organizational Behavior: Leading Human Resources. (Upper Saddle River, NJ: Prentice Hall).

JEFFREY W. MORAN, a 34-year veteran of the fire service, is a retired captain/shift commander in the Woodbridge (NJ) Fire Department, where he has served for more than 25 years. Previously, he was an occupational safety professional and industrial fire protection professional in large manufacturing facilities and refineries and an occupational safety consultant, compliance officer for the New Jersey Department of Labor. He is a New Jersey level II fire and fire drill ground instructor, an EMT, an American Heart Association CPR instructor, a certified SCUBA diver and rescuer, and an International Association of Fire Fighters fireground survival program local instructor. He is a member of the IAFF, Professional Firefighters of New Jersey, American Society of Safety Engineers, and International Society of Fire Service Instructors. He has undergraduate degrees in political science, fire science technology, and occupational safety and a master’s of administrative science.

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