By LARRY RADTKE
Despite the availability of many excellent firefighter safety programs, line-of-duty deaths (LODDs) number more than 100 annually. The National Institute for Occupational Safety and Health (NIOSH) LODD investigations seem to make the same recommendations to improve accountability, communication, and training to prevent more deaths and injuries. Most fire departments take these recommendations into consideration and strive to improve their organizations to prevent such tragedies to their personnel.
The Blue Lake Township (MI) Fire Department (BLTFD) reviewed the NIOSH reports’ information and suggestions to determine how to reduce LODDs and critical injuries (CIs). After reading about and viewing videos on other fire departments’ LODD experiences, especially on the fireground, the BLTFD realized that the possibility exists for having its own LODD or CI and decided to plan ahead.
EVOLUTION OF THE GUIDELINE
The BLTFD’s first action was to review the Public Safety Officer Benefits (PSOB) packet from the United States Department of Justice (DOJ). We received this packet in January 2007; it remained unopened at the fire station. After a few months, it was apparent that either nobody was familiar with what the packet contained or nobody cared to open it.
Being somewhat familiar with the DOJ’s PSOB program, I reviewed the packet’s material and explained it to the other BLTFD members. A few months later, another BLTFD member and I attended a presentation given by the Michigan chapter of the National Fallen Firefighter’s Local Assistance State Team (LAST) at the Michigan State Fireman’s Association Summer Conference. From this presentation, we realized that the BLTFD would be overwhelmed if faced with an LODD or a CI. We presented this concern at the next monthly mutual-aid association meeting [Muskegon Area Fire Chief’s Association (MAFCA)], to which the BLTFD belongs, to see if it had any plans in place. This organization did not have any specific plans to handle either an LODD or a CI. After we discussed this at the next BLTFD officers’ meeting, we formed a five-member PSOB Committee that would be open to officers and firefighters.
The PSOB Committee’s first goal was to develop a personal information packet (PIP) that would be given to each firefighter to complete. The requested information was based on the form suggested by the LAST. On completion, BLTFD officers would review the PIP. Because some of the requested information was personal, the committee decided that the packet would be returned in a sealed envelope with the firefighter’s name on the envelope over the seal. The envelope would then be placed in a locked file cabinet along with the firefighter’s personal records. After this packet was completed, the PSOB Committee recommended that the BLTFD write a standard operating guideline (SOG).
After considering what a department must do in an LODD/CI scenario and the subsequent emotional states of its members, the BLTFD determined that its personnel could not adequately focus on ensuring the fallen or severely injured firefighter’s family that the BLTFD did everything possible on the family’s behalf after the incident and that outside assistance would be necessary.
On completion, the BLTFD reviewed and forwarded the SOG to the Blue Lake Township’s trustees and the township’s attorney for review (trustees must review and approve any new SOG). The LODD/CI SOG was put into effect on June 9, 2009.
The LODD/CI SOG is divided into two sections: the guideline and an appendix.
The SOG begins with an introductory section stating the guideline’s purpose and the acknowledgment that the BLTFD would not be emotionally focused in the event of an LODD/CI; the SOG will focus on their thoughts and actions. The appendix contains a blank copy of the PIP and a list of MAFCA members who will volunteer their help to the BLTFD in the event of an LODD/CI.
LINE-OF-DUTY DEATH
The guideline’s first major section begins with an LODD definition and includes the necessary actions to deal with in an LODD specifically.
At the Scene. If the LODD occurs at an emergency scene, this prioritized activity list of the incident commander’s (IC’s) responsibilities helps mitigate the incident and recover the fallen firefighter’s body. It includes a reminder for the IC to observe any on-scene BLTFD personnel for any emotional behavior that may affect their performance at the incident. If necessary, we will replace BLTFD personnel with mutual-aid personnel. The BLTFD must also notify central dispatch of the possible LODD and secure a copy of the tape of the incident. This notification puts an approximate time on the LODD. If an LODD occurs in a nonemergency situation, this section would not be applicable. The list concludes with securing the fallen firefighter’s turnout gear and self-contained breathing apparatus for the NIOSH investigation.
Within the First 24 Hours. This section lists in some priority what the BLTFD must do during the first 24 hours following an LODD; a chief or other officer (working down the chain of command if a chief is not available) must implement this section of the SOG.
First, he will open the fallen firefighter’s PIP to determine which two BLTFD members the fallen firefighter has listed to contact his immediate family. In addition, one BLTFD Firefighters’ Association (FA) member will accompany the other two members. The BLTFD FA’s membership consists of all firefighters, their spouses or significant others, and any Blue Lake Township residents who volunteer their time and expertise to the fire department. Because the BLTFD’s present membership is all male, the department felt that a female would add a compassionate element to the LODD notification. Three FA women volunteered for this duty and include the BLTFD chaplain’s wife, a nurse practitioner, and the FA vice president (who has previously been involved in such LODD and CI notifications).
Also, the PIP includes information regarding insurance policies, wills, organ donation, personal information necessary for making funeral arrangements, and all relevant contact information (i.e., phone numbers). The BLTFD must also contact central dispatch to set up an auto-aid (second alarm) response to handle all emergency calls until further notice.
Because of all of the activities that must be dealt with during the first 24 hours, the officer in charge of activating this SOG must delegate some of these responsibilities to other BLTFD officers. This section of the SOG also requires requesting assistance from the MAFCA for two chief officers or other personnel trained to deal with an LODD situation.
Appendix B. This section lists the volunteers to contact in an LODD situation. On their arrival at BLTFD Fire Station 1, these individuals will receive a list of all necessary federal, state, and local government agencies and other necessary organizations to contact. After making these contacts, the two MAFCA members may be asked to assist in other matters that must be addressed during the first 24 hours.
The two BLTFD firefighters chosen by the fallen firefighter to contact his immediate family will remain with and assist the family. At least one of these firefighters will accompany the family to the hospital and act as a liaison between the hospital and the BLTFD and explain to the family what the hospital must do in an LODD (e.g., an autopsy) and why the steps must be done. Toward the end of the first 24-hour period, the BLTFD will prepare a press release and schedule a media briefing.
Sometime during the first 24 hours, the LAST representatives will arrive; they are spread throughout the state of Michigan so they can guarantee arrival within approximately six hours after notification.
After the First 24 Hours.This section deals with the required actions from 24 hours after the LODD to the day of the funeral. During this time, the BLTFD will assess its firefighters’ ability to respond to emergency calls and cancel the auto-aid response, if possible. BLTFD representatives and LAST members will also meet with the fallen firefighter’s family to explain what outside organizations are doing to assist the family, to make funeral arrangements, and to offer any immediate support the family may need. If a firefighter funeral is requested, the LAST will handle the funeral’s logistics. Information included in the fallen firefighter’s PSOB packet will greatly assist when making these preparations.
Ongoing Support. This section lists the services the BLTFD will provide to the family for as long as the family requests those services. The section’s first item is a reminder for the BLTFD to “Only promise what the fire department can actually do. Keep all promises.” BLTFD members can accomplish all of the other items in this section only if there is a total commitment on their part.
Other items in this section deal with updating the family on their PSOB benefits and other insurance benefits and informing them of any LODD survivor memorial programs that may interest them (e.g., the National Fallen Firefighters Memorial Weekend). Also, the BLTFD should include the family in future events and social activities, reminding family members that they are still considered part of the BLTFD.
CATASTROPHIC INJURY
This section begins with a definition of a CI. The At the Scene section activities are similar to those for an LODD, the exception being that the IC deals with a rescue and not a body recovery.
Likewise, the Within the First 24 Hours section is similar to the LODD’s section. An auto-aid response will be set up, and certain contacts must be made. The LAST and two MAFCA members will be called on for duties similar to those in an LODD scenario. The BLTFD will contact and provide the same assistance to the family as it would in an LODD and arrange a media briefing.
The After First 24 Hours section is also similar to the LODD’s section. The BLTFD can cancel the auto-aid response and assist the family with the care of the family’s home. However, instead of assisting with funeral arrangements, the BLTFD will coordinate visitation time for the family and the injured firefighter at the hospital. If the injured firefighter is transferred to a specialized hospital out of the local area, the BLTFD will contact that local fire department to provide a representative to act as a liaison between the family and the hospital. Also, the BLTFD will offer to organize the family’s medical bills and future claims files.
The Ongoing Support section begins with the “Only promise …” reminder from the LODD section and runs through many of the same concerns that the family will have, as discussed in that same section.
THE PERSONAL INFORMATION PACKET
This packet is a preplan that each firefighter should make for the firefighter’s funeral if he is killed in the line of duty. A blank PIP is included in the LODD/CI SOG (Appendix A) for reference if necessary.
The first section explains the PIP’s purpose, how to remove the burden of the stressful decisions the firefighter’s family would have to make, and the forms that the PIP includes. Because there is much personal information, members must place this PIP in a sealed envelope in a locked file cabinet with their personnel records; the packet will be made available to them at the end of each year for their review and to make any necessary changes if there is a significant change in their lives, such as marriage, divorce, change of beneficiary, or any other reason they feel they should change their information.
Finally, this introductory section reminds firefighters that program participation is completely voluntary; if they do not wish to participate, they should indicate this at the end of the introductory section by printing and signing their name and dating the designated portion of this section. If there is no PIP in their personnel file, the BLTFD will consider this as a wish not to participate. In this case, the BLTFD will still follow the LODD/CI SOG but will leave the decisions regarding the funeral arrangements up to the family.
Employee Emergency Contact Information. This section is divided into the following subsections:
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Personal Information includes the firefighter’s name, address, and telephone number.
- Contact Information provides space for both home and work information for the individuals the firefighter wants contacted if an LODD/CI occurs, a list of his children’s names and ages, and the names of the two BLTFD firefighters that he requests accompany a senior fire officer when notifying the family of an LODD/CI.
- Optional Information lists the firefighter’s religious preferences, funeral preferences [e.g., military funeral (if a veteran) or fire service funeral], the status and location of the firefighter’s will, life insurance information, any organ donor information, and the date when this information was last updated.
The form is then placed in an envelope and sealed with the firefighter’s signature over the sealed portion of the envelope, which is then placed in the firefighter’s locked personal file.
The final PIP section contains copies of two forms that are part of the DOJ’s PSOB program: Report of a Public Safety Officer’s Death and Claim for Death Benefits. These two forms are for the firefighter’s use only and are not to be turned into the BLTFD with the rest of the PIP. Although most of the information requested on these forms cannot be filled in without an LODD, copies of these forms are included for several reasons. First, the contact and personal information such as date of birth and social security numbers (SSNs) for the firefighter’s spouse, cohabitant, children, and beneficiaries are requested. The Surviving Children section requests the information on the firefighter’s natural children; those out of wedlock, adopted, or posthumous; and stepchildren at the time of the LODD. The DOJ will request paperwork for each of the firefighter’s surviving children, which includes certified copies of birth certificates or adoption papers; DNA results or other parent-child evidence may be requested, if necessary. The BLTFD encourages each firefighter to gather this information, complete the appropriate sections on these forms, keep updated information, and put the forms in a safe place known to both the firefighter and his spouse, cohabitant, or parent/guardian.
Second, there is a chance that the stress of the situation may cause the firefighter’s family to submit the forms incompletely, which would likely delay the family’s request for federal death benefits.
Third, by gathering all this information in one place, the family may use it for other personal business, if needed.
Fourth, the need for the forms made both the firefighters and their spouses realize the reality of the dangers firefighters face and the importance of safety and preparedness when doing their jobs.
MAFCA LODD/CI ASSISTANCE LIST
This list makes up Appendix B of the LODD/CI SOG and includes the names and contact numbers of chief officers and other trained MAFCA members who volunteered their help to the BLTFD. The BLTFD LODD/CI SOG requires that the department contact two of these members. The Within the First 24 Hours section in the LODD and CI SOGs describes the duties these members are expected to perform.
The BLTFD feels comfortable with these SOGs. If an LODD or a CI occurs, the BLTFD officers feel that this SOG will guide them to do a very thorough and efficient job in handling these situations and do what the fallen or injured firefighter would want them to do for his family.
As with all SOGs, training for all officers is necessary so they become familiar with the SOG’s application. The BLTFD blocks out time at the end of all monthly officer meetings for officer training and uses the tabletop scenario where a second-floor structural collapse at a BLTFD fire kills an interior firefighter. One officer is incident command and applies the At the Scene section of the SOG. Another officer is charged with implementing the SOG, thereby delegating duties to the other officers. Time was sped up so the department could cover the entire LODD section. During this time, the officers’ duties changed, as they would during the SOG procedure, giving them the opportunity to act on what they would do in these different assignments.
The PSOB Committee will deal with any future questions or comments regarding the SOG or PIP, make the PIPs available to the BLTFD firefighters for changes at each year’s final training session, provide regular refresher training to the officers on the SOG’s application, and make any necessary LODD/CI SOG revisions.
Hopefully, this SOG will never have to be used. However, if an LODD or a CI does occur, the BLTFD feels very confident that it will do a respectable job in handling the situation.
Editor’s note: To see the Blue Lake Township (MI) Fire Department SOG in its entirety, go to http://emberly.fireengineering.com/index/webxtra.html.
LARRY RADTKE is a six-year member and training division captain with the Blue Lake Township (MI) Fire Department, is a six-year member of the Muskegon County Hazardous Materials Response Team, and teaches part time at the Department of Homeland Security Hazardous Materials Training Center in Lansing, Michigan. He was a 21-year member of the Frankfort (IL) Fire Department, serving as assistant chief for the past eight of those years. He founded and then was chief of the Will County (IL) Hazardous Materials Response Team for 18 years. He is also a State of Michigan-certified fire instructor and teaches various classes for firefighters and fire officers.
