HomeMy WebLinkAboutLarchmont Fire Department Safety and Survival Study 10/7/1996 LARCHMONT FIRE DEPARTMENT
SAFETY AND SURVIVAL
STUDY
Vincent Dunn
October 7, 1996
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This study of safety, health, and emergency response readiness in the
Larchmont Fire Department was requested by the career and volunteer firefighters of
the Department.
The information that this report contains regarding existing conditions and
needs was obtained by the following methods:
1. Interviews were conducted with:
• The Chief of Department and his deputies, all of whom are volunteers
• Career company officers
• Volunteer company officers
• Career firefighters
2. Several surveys were conducted of the area and buildings protected by the
Larchmont Fire Department.
3. The response to and operations at an emergency, by career and volunteer
firefighters, was observed.
The recommendations in this report are based on the 39 years of fireground and
fire management experience of its author, Deputy Chief Vincent Dunn of the New York
City Fire Department. Chief Dunn has documented his study and analysis of hundreds
of actual fire operations in two books, Safety and Survival on the Fireground and
Collapse of Burning Buildings.
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Background
Over the past 20 years in the Larchmont Fire Department, the risks and dangers
of responding and operating at fires and emergencies have been transferred from
volunteer officers and firefighters to career officers and firefighters. Prior to the decade
of the 1980s, the volunteers performed all fire and emergency operations; career
members were limited to driving fire vehicles to the scene.
This changed in the late 1980s. The career officers and firefighters now perform
firefighting and emergency duties alongside the volunteer members. They begin
operations before the arrival on scene of volunteer officers and firefighters. The
Larchmont Fire Department's career members have received training at the New York
State Fire Training Academy. They have also been given updated fire equipment suited
to their expanded fire and emergency duties.
The training and equipment of the Larchmont Fire Department's volunteer
members have not been similarly improved. Some volunteer officers have firefighting
expertise, but most volunteer members do not. The firefighting skill and knowledge of
most of the LFD's volunteer members is substandard. This gap in training between
career firefighters and volunteer firefighters, and between career fire officers and
volunteer fire officers, is creating a morale problem.
The LFD's career members now face the same fireground risks and dangers as
the volunteers, and are better trained and equipped to do so. But there has been no
shift in authority to match the career members' evolution from drivers to first-responding
fire and emergency workers. Career firefighters must accept fireground orders from
volunteer officers who have not been trained in some of the basic firefighting skills that
they have. Career members are prohibited from transmitting calls for mutual aid and
calls instructing volunteer members to respond slowly in nonurgent situations. There is
no designated incident commander until a deputy chief arrives on scene. Without an
incident commander, arriving members operate as determined solely by the officer of
their own company, without coordination or cooperation with the other companies on
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the scene. Instead of a clear chain of command, there is a contest of wills. This is a
potentially lethal situation.
The lack of cooperation is mirrors d in the Department's administrative activities.
The career and volunteer memberships are nearly separate organizations, with mutual
hostility and distrust preventing meaningful communication between them. Volunteers
are organized into three companies for purposes of regular meetings. The Chief of
Department is elected by fellow volunteers, yet the volunteers have created a Fire
Council to sidestep their elected chief and communicate directly with the Village Board.
In sum, the faulty command structure causes disorder, friction, and poor morale,
leading to a breakdown in communication, which in turn has prevented logical
improvements to the Department's functioning. It is a situation that eventually will lead
to injuries and death.
It is also a situation for which there are solutions. Significant safety-related
changes are necessary in personnel, administration / communication, operations, and
capital / equipment budget. The recommendations that follow are organized in these
categories. The most critical items are so indicated.
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Personnel
Increase to four-member crews on duty (critical)
Firefighters entering a burning building wearing self-contained breathing
apparatus (SCBA) should operate as a team. If one of the firefighters becomes
disabled by smoke, heat, fire, explosion, flashover, or collapse, the other firefighters
can assist and rescue that member.
In addition, safety on the fireground requires two other properly trained
firefighters to operate outside the burning building, prepared and equipped to account
for and rescue those firefighters inside the building during an unexpected, life-
threatening event.
Basic training levels (critical)
There must be a basic training level established for all members of the
Larchmont Fire Department. The training of volunteer firefighters must be the same as
that of career firefighters, and the training of volunteer fire officers must correspond to
that of career fire officers. It is a serious safety and health transgression to allow an
untrained firefighter of any rank to respond to a fire emergency; it does not matter
whether that firefighter is a volunteer or a career member.
All volunteer members who respond to fires and emergencies should have basic
training in the following areas:
• Essentials of firefighting
• Engine operations
• Ladder operations
• Initial attack operations
• Rescue and salvage operations
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The training in firefighting essentials should be completed before a member is
allowed to respond to fires and emergencies. All five areas of training should be
completed within three years of joining the Department.
Priority should be given to training the volunteer officers. Once trained and
certified, they can train the volunteer firefighters.
In addition, the training officer of the LFD should conduct in-service training
certification sessions for volunteer firefighters, as follows:
• A 2-hour drill, 4 times a year, on firefighting essentials.
• A 2-hour drill, 4 times a year, on ladder operations.
• A 2-hour drill, 4 times a year, on initial attack operations.
Volunteer firefighters should be required attend 9 out of the 12 training sessions
each year in order to maintain their certification to respond to fires and emergencies.
Performance evaluations
The Chief of the Larchmont Fire Department should direct the deputy chiefs to
institute a program of written, annual performance evaluations, consulting with human
resources experts within or outside the village government to create an evaluation
system that is fair and effective.
The evaluation format should consider performance at fires, emergencies, and
inspections; administrative abilities; apparatus and equipment maintenance; training;
communication skills; attitude, and uniforms. The portions evaluating operational
performance should be written by the Department's training officers.
Once a format is established, each officer should make a written evaluation of
each member at the next lower rank who reports directly to that officer. This evaluation
system will identify members who perform in a superior or inferior manner.
Commanding officers can use the written evaluations as a basis for choosing members
for higher levels of responsibility.
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Volunteer recruitment and retention
As noted, bringing volunteer training up to higher basic standards will create a
greater demand on volunteers' time. Special efforts will be needed to encourage
volunteers to make this commitment. Many, many approaches to this challenge have
been tried in departments around the country, and the right solution vanes on the
makeup and circumstances of the community. It is beyond the scope of this report to
make in-depth suggestions in this area.
An example, however, would be training local Boy Scouts and Girl Scouts in fire
prevention, first aid, and planning fur fire escape in the home; this training could
generate interest among young people in fire department participation. Another
incentive, identified as desirable during interviews with volunteer members of the LFD,
might be to offer free parking permits and discounts to local recreational areas.
In addition, the LFD could establish a mentor system whereby new volunteer
firefighters are matched with a career member who would befriend and counsel the
volunteer. This offers the possibility of improved communication and understanding
between the career and volunteers sides of the Department.
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Administration / Communication
Chief of Operations and Training (critical)
The Chief of Department requires a larger staff to oversee the Department's
training improvements and to effectively manage the career members. The Village
Board should make provision for the Chief to hire a full-time Chief of Operations and
Training who has experience in both a volunteer department and a career department.
This chief would be responsible for writing standard operating procedures and training
methods. This Chief of Operations and Training should come from the ranks of the
Larchmont career officers or from another part-volunteer, part-career fire department of
New York State.
Chief of Department's interaction with the Village Board (critical)
The Chief of the Larchmont Fire Department must be recognized as the ultimate
authority within the Department. The chief should report directly and only to the
Larchmont Village Board and, as appropriate, to the Fire Commissioner. No other
members, volunteer or career, should transmit or receive directives, communications, or
reports from the Larchmont governing body except in instances when the Chief of
Department has designated someone to represent him. The Fire Council, which
currently may bypass the Chief of Department and communicate directly with the
Village Board, should be eliminated. This will strengthen the chief's authority, planning
ability, and decision-making.
The Chief of Department should also be present at salary, contract, and other
negotiations between the Village Board and the Larchmont career firefighters. As the
highest authority within the Department, the chief will represent the interests of the
Department as a whole.
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Chain of command
The chain of command of the Larchmont Fire Department should be the
following:
THE VILLAGE BOARD
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THE FIRE COMMISSIONER
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THE CHIEF OF DEPARTMENT
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THE CHIEF OF OPERATIONS AND TRAINING
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THL DEPUTY CHIEFS
THE VOLUNTEER COMPANY OFFIC RQ THE CAREER COMPANY OFFICERS
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THE VOLUNTEER FIREFIGHTER THE CAREER FIREFIGHTERS
Fireground command would follow the Incident Command System, as detailed
under "Operations," below.
Internal communication (criticao
Communication within the LFD Is in crisis. Within the firehouse tension and
distrust are uncomfortable and draining; when these attitudes spill onto the fireground,
they are life-threatening.
This is an area, again, where mane possible solutions exist, and entire fields of
study have examined such problems. In M» end, the Chief of Department will have to
choose the methods most responsive to the Department's needs, and every member
will have to be self-reflective about their contribution to the problems and the solutions.
Goodwill and an openness to the concerns of fellow members need to be coupled with
clear lines of authority.
Some possible methods of improving the situation:
• The Chief of Department could create an advisory committee consisting of
volunteer and career chiefs, company officers, and firefighters. The committee
would suggest to the Chief ways to improve communication, cooperation, and
effectiveness in delivery of fire and medical services to the community.
• The post of secretary could be re-established to write an LFD newsletter and
perform other administrative duties. The secretary should work for the Chief of
Department only. No other chief, company officer, or firefighter should direct
work to the secretary.
• A Department newsletter could be published each month, with messages in
each issue from the Chief of Department, the deputy chief's rank, the volunteer
company officers, and the career company officers. The messages should focus
on Department activities such as training events and business conducted at
meetings.
• It would be beneficial for the Chief and deputy chiefs to be more accessible to
the company officers and firefighterz. Some firefighters would like the Chief's
office open one or two hours each month, with one chief officer available for
individual conferences during those hours.
• A written agenda should be posted about the planned subjects for discussion at
the general meeting held on the first Wednesday of each month. Discussion
should follow this agenda.
• The career officer and firefighters on duty should attend this first-Wednesday
meeting.
• Members of the Village Board should attend one of the annual dinners or events
sponsored by the Larchmont Fire Department and present an award or medal
for an outstanding act of emergency service or administrative excellence.
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External communications
Each month, a news release could be sent to the local newspaper, stating an
example of the services delivered by members of the Larchmont Fire Department, such
as fire extinguishment, car accident rescue, fire inspection, and medical emergency.
Fire inspections
One career firefighter on duty each tour could be fully trained as a state-certified
fire inspector. This trained inspector could conduct an emergency inspection when a
complaint is received at the firehouse, and would conduct cyclical inspections on a
regular schedule. In addition to its fire prevention benefits, this inspection activity would
improve the LFD's preparedness by increasing building familiarity, a safety factor
during fire operations.
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Operations
Incident Command System (critical)
Clear lines of authority and a sing! ultimate authority are both necessary on the
fireground. The Larchmont Fire Department acts without either in place until a deputy
chief arrives on scene.
The Department should adopt the Incident Command System (ICS) taught at
the National Fire Academy and/or the New York State Fire Training Academy. ICS
provides for designating the first-arriving company officer as incident commander, so
that command is clearly established from the first moment of operations and smoothly
transferred as higher-ranking officers arrive on scene.
The Chief of Department should direct all chief and company officers to receive
training in the Incident Command System.
Accountability (critical)
An improved system of fireground accountability should be instituted in the
Larchmont Fire Department. At present, volunteers arriving on scene place their name
tags on the apparatus of the company of which they are a member. There is no central
tracking of which or how many members are on scene.
Every member arriving on scene should report to the command post first. At the
command post, the reporting firefighters should place their name tags with the officer in
command. When leaving the scene, individual firefighters would retrieve their tags for
reuse at the next incident.
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Standard operating procedures (criticao
The Chief of Operations and Training should develop standard operating
procedures for structure fires, car and truck collisions, hazardous materials incidents,
and medical emergencies:
• The procedure for structure fires should include (but not be limited to)
assignments and positions for the interior attack hose team, the incident
commander's position, and the pump operator's position.
• The procedure for car and truck collisions should include (but not be limited to)
assignments and positions of firefighters doing extrication, firefighters
performing first aid, and a hose team available to stretch hose in case of a
gasoline fire.
• The procedure for hazardous materials incidents should include (but not be
limited to) assignments of an investigation team and a decontamination team.
• The procedure for medical emergencies should include (but not be limited to)
assignments and positions of a CPR team and a stretcher, blanket, and loading
team. It should cover transportation of the injured to the ambulance.
Safety officer
The Larchmont Fire Department should designate a safety officer in the career
rank. Together with the volunteer safety officer, this officer should ensure that
applicable sections of National Fire Protection Association (NFPA) Standard 1500 are
being complied with. On scene, the safety officers would advise the incident
commander. Administratively, the safety officers would advise the Chief of Operations
and Training and would also advise the Chief of Department on purchase of apparatus,
equipment, and uniforms.
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Capital and Equipment Budget
Protective clothing and equipment(critical)
At the response observed in the preparation of this report, some volunteer
members failed to don their protective gear before operating at the scene. Not all
volunteers have bunker gear, and some volunteers wear three-quarter-length boots.
The Chief of Department should ensure that all members who respond to fires
and emergencies are equipped with OSHA-approved protective clothing and masks.
This protective clothing must be worn as requiredat all fires and emergencies.
Cascade air supply
The Larchmont Fire Department would benefit from having a cascade air supply
system for resupplying air to SCBA. The cascade system would allow for more realistic
training in the use of masks. At present, members are reluctant to use their SCBA
masks during training because doing so depletes the air supply and there is a delay in
getting the SCBA refilled.
The cascade air supply system could also be contracted out as a regional
service, responding to surrounding commuri,(ies.
Marine protection
Larchmont has no specific provisions for fire protection along its large shorefront
and boating area. The LFD should be equipped with a 250-gallon-per-minute portable
pump and a small craft to protect life and property in marine-related incidents.
Appropriate training would be required.
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Apparatus purchasing
In recent years, a large purchase of apparatus was required in the Larchmont
Fire Department because no replacement cycle had been planned out. To ensure
safely operating fire apparatus are available to the LFD's members, apparatus
purchasing should be planned for a 20-year replacement cycle.
APPARATUS REPLACEMENT DATE
Engine 35 2001
Engine 33 2006
Engine 34 2011
Rescue 1 2013
Tower Ladder 7 2016
An apparatus, equipment, and uniform committee composed of volunteer and
career fire officers and firefighters should meet and make recommendations about the
purchase of fire vehicles, equipment, and uniforms. Although it is the career members
who drive the vehicles, they currently have no input into apparatus specifications.
Firehouse air quality
Diesel fumes are suspected of causing cancer. The Chief of Department should
request that the Village Board provide a diesel exhaust system in the firehouse to
discharge exhaust fumes from the building to the outer air.
Increased space
The Chief of Department should request that the Village Board increase the
space available to the Fire Department in the building, allowing for safety, health, and
training activities. Necessary and desirably: facilities include a physical fitness training
room, a locker room, a classroom equipped with audio-visual equipment, a work and
tool room to maintain safety equipment, storage space for firefighting and medical
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supplies, and another bathroom. These rooms should be separate from the very
crowded garage area containing the fire vehicles.
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Summary
In the human realm, the Larchmont Fire Department's career members want the
responsibility and trust that befit the skills they've trained in and the risks they face. The
volunteer chiefs want the authority and respect that befit their positions and the
contribution they make to the community `trough their volunteer efforts. A rational
command structure and active, open communication are needed to restore the sense
of dignity that every member, whether career or volunteer, deserves to maintain.
In the operational realm, training and equipment must be brought up to levels
dictated both by experience and by state standards. This will mean an expense for the
Village Board, an additional time commitment by volunteer members, and dedication by
the career members to improving the skills of those volunteers who are willing to make
that commitment.
The time demand raises the need to plan ahead for another potential shift in the
future, more drastic than the career members' move into fireground operations—and
that is in the composition of the Department. The attendance records of volunteers at
training sessions and fire and emergency responses has shown a decline over the past
two decades. The most important characteristic of an emergency service is
dependability; the availability of firefighters to :-,pond when needed cannot be in
question. Unless there is a reversal of this downward trend, the Village of Larchmont
must consider making its Fire Department a fully career-staffed Department.
Larchmont's citizens deserve to have the best emergency service delivery
available. Timely and intelligent improvements to the present staffing, training,
equipment, command structure, and communication levels will provide that edge.
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i An Operations Evaluation of the
Village of Larchmont Fire Department
Larchmont, New York
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Submitted by:
Carroll Buracker & Associates, Inc.
Fire & EMS Management Consultants
101 North Main Street, Suite 110
Harrisonburg, Virginia 22801
(540) 564-1500
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Carroll Buracker & Associates, Inc.
June 14, 1996
Mr. Jim Staudt
McCullough, Goldberger & Staudt
550 Mamaroneck Avenue
Harrison, New York 10528
Dear Mr. Staudt:
I am pleased to submit our Report on an Operational Review of the delivery of fire services
for the Village of Larchmont. We are very pleased with the cooperation from volunteer and
paid firefighters and officers.
If you have any questions, please give me a call.
Sincerely,
Carroll Buracker
President
CB/me
1 North Main Street, Suite 110 Harrisonburg,Virginia 22801 (540)564-1500 fax: (540)564-1538 E-Mail: buracker@shentel.net
NOTE
The use and/or copying of information in this Study without the expressed written
consent of Carroll Buracker & Associates, Inc. and the Village of Larchmont, New
York, is expressly prohibited.
Carroll Baracker&Associates,Inc.
TABLE OF CONTENTS
Page #
ACKNOWLEDGMENTS . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . i
STUDY METHODOLOGY . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . i
STRUCTURE . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . i
STUDY TEAM MEMBERS . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . ii
EXECUTIVE SUMMARY . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . iv
CHAPTER ONE - INTRODUCTION . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 1
VILLAGE OF LARCHMONT PROFILE . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 1
Historical Perspective . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 1
Village Government . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 2
Larchmont at a Glance . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 2
DEMOGRAPHICS OF LARCHMONT . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 3
HousingUnits . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 3
Population of Larchmont . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 4
ANALYSIS FRAMEWORK . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 5
National Accreditation Program . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 6
Standards and Accepted Practices . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 7
TRENDS IN THE FIRE SERVICE . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 9
Concern Over the Environment . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 9
Scientific and Technological Advancements . . . . . . . . . . . . . . . . . . . . . . . 11
Fire/Injury Prevention and Public Education . . . . . . . . . . . . . . . . . . . . . . 11
Fiscal Constraint . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 12
Role of Fire Departments . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 13
SCOPE OF THIS STUDY . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 14
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Carroll Buracker&Associates,Inc.
TABLE OF CONTENTS (Continued)
Page #
CHAPTER TWO - FIRE DEPARTMENT ORGANIZATION
AND MANAGEMENT . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 17
ORGANIZATIONAL PRINCIPLES . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 17
LEGAL AUTHORITY . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 18
Village Law of the State of New York . . . . . . . . . . . . . . . . . . . . . . . . . . . 19
Larchmont Fire Department Code . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 20
Article I - Nonresident Membership . . . . . . . . . . . . . . . . . . . . . . . . 21
Article II - Chiefs and Assistant Chief . . . . . . . . . . . . . . . . . . . . . . 21
THE FIRE DEPARTMENT TEAM . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 22
FIRE DEPARTMENT MISSION AND GOALS . . . . . . . . . . . . . . . . . . . . . . . . 24
Organization Mission Statement . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 24
PROPOSED MISSION STATEMENT . . . . . . . . . . . . . . . . . . . . . 24
ORGANIZATION PHILOSOPHY . . . . . . . . . . . . . . . . . . . . . . . . 25
Department Members . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 25
PROPOSED MEMBER PHILOSOPHIES . . . . . . . . . . . . . . . . . . 26
For the Community: . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 26
For the Department: . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 26
ORGANIZATION STRUCTURE . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 27
FireCouncil . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 28
Unilateral Powers . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 28
Subject to the Approval of the Board of Trustees . . . . . . . . . . . . . 28
To Recommend to the Village Board of Trustees . . . . . . . . . . . . . 29
Establishment of a Board of Fire Commissioners . . . . . . . . . . . . . 29
Officer Structure . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 32
Departmental Officers . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 32
Company Officers . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 34
Paid Officers . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 38
Ex-Chiefs . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 39
Volunteer Officer Eligibility Requirements . . . . . . . . . . . . . . . . . . 39
Chief and deputy chief: . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 40
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Carroll Buracker&Associates.Inc.
TABLE OF CONTENTS (Continued)
Page #
Captain: . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 40
Lieutenant: . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 41
Proposed Requirements for Chief and Deputy Chief. . . . . . . . . . . 41
Proposed Requirements for Captain and Lieutenant . . . . . . . . . . . 42
Day-to-Day Fire Department Direction . . . . . . . . . . . . . . . . . . . . . . . . . . . 42
Advantages of Appointing a Paid Chief. . . . . . . . . . . . . . . . . . . . . 43
Disadvantages of a Paid Fire Chief . . . . . . . . . . . . . . . . . . . . . . . . 44
MEMBER COMPANIES . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 46
Justifications for Multiple Companies . . . . . . . . . . . . . . . . . . . . . . . . . . . . 47
FISCAL OVERSIGHT AND CONTROL . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 50
Village Budget Trends . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 50
Fire Department Budget . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 51
Comparative Data for Westchester Villages . . . . . . . . . . . . . . . . . 51
Overtime Expenditures . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 53
Overtime Defined . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 53
Previous Overtime Use Study . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 54
Village Goals Stated . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 56
Subsequent Actions . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 59
SUMMARY . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 59
RECOMMENDATIONS . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 61
CHAPTER THREE - CONSOLIDATION OPPORTUNITIES . . . . . . . . . . . . . . . . 65
CONSOLIDATION - AN ALTERNATIVE . . . . . . . . . . . . . . . . . . . . . . . . . . . . 65
National Experience . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 65
LEGAL AUTHORITY FOR SHARED SERVICES . . . . . . . . . . . . . . . . . . . . . . 68
New York State Constitution . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 68
General Municipal Law . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 69
Village Law . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 70
Relevance of Statutes . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 70
WESTCHESTER 2000 . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 71
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TheReport . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 71
Fire, Rescue and EMS Implications . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 74
CONSOLIDATION WITH TOWN OF MAMARONECK . . . . . . . . . . . . . . . . . 76
MUTUAL AID . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 80
The Concept . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . ... . . . . . . 80
Benefits of Automatic Mutual Aid . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 81
Legal Basis in Larchmont for Mutual Aid . . . . . . . . . . . . . . . . . . . . . . . . . 81
Mutual Aid Programs in Counties . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 83
Mutual Aid in Westchester County . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 84
Mutual Aid in Larchmont . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 85
DISPATCH AND COMMUNICATIONS . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 85
Overview . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 86
Current Communications Approach . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 87
Enhanced-911 . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 89
Overview . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 89
Computer Aided Dispatch . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 90
Features of CAD . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 92
EMS Call Dispatching . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 93
Service Level Improvements . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 95
SUMMARY . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 96
RECOMMENDATIONS . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 97
CHAPTER FOUR - FIRE DEPARTMENT STAFFING . . . . . . . . . . . . . . . . . . . . . 99
DETERMINING STAFFING . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 99
Firefighter Utilization . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 100
Driver . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 101
Officer . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 101
Third Person . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 101
STAFFING OPTIONS . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 102
LARCHMONT FIRE DEPARTMENT STAFFING . . . . . . . . . . . . . . . . . . . . . 106
Scheduled Paid Station Shift Staffing . . . . . . . . . . . . . . . . . . . . . . . . . . . 106
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Current Apparatus Staffing Approach . . . . . . . . . . . . . . . . . . . . . . . . . . . 107
Feasibility of"Code Two" Staffing Approach . . . . . . . . . . . . . . . . . . . . 108
Volunteer In-Station Standby . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 110
Volunteer Engine/Pump Operators . . . . . . . . . . . . . . . . . . . . . . . . 111
VOLUNTEER RECRUITMENT AND RETENTION . . . . . . . . . . . . . . . . . . . 112
Overview . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 112
Volunteer Participation . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 114
Organizational Background . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 115
Board Support . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 116
Current Volunteer Membership Data . . . . . . . . . . . . . . . . . . . . . . . . . . . 117
Volunteer Members by Classification . . . . . . . . . . . . . . . . . . . . . 117
Level of Volunteer Activity . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 118
Volunteer Recruitment . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 121
Retention of Volunteers . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 122
Attrition of Volunteer Members . . . . . . . . . . . . . . . . . . . . . . . . . . 125
Conflict Within the Fire Department . . . . . . . . . . . . . . . . . . . . . . 126
Public Awareness . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 126
Mentor Program . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 127
Larchmont Recruitment Efforts . . . . . . . . . . . . . . . . . . . . . . . . . . 127
Retention Efforts . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 128
Length of Service Benefit Program . . . . . . . . . . . . . . . . . . . . . . . 128
Requirements . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 128
Benefits . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 129
SUMMARY . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 130
RECOMMENDATIONS . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 131
CHAPTER FIVE - OPERATIONS AND PREVENTION . . . . . . . . . . . . . . . . . . . 134
WORKLOAD ANALYSIS . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 134
Incidents by Month of Year . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 134
FIRE RISKS . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 138
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RESPONSE TIMES . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 138
EMERGENCY MEDICAL SERVICE . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 139
EMS in Larchmont . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 141
APPARATUS RESPONSE ASSIGNMENTS . . . . . . . . . . . . . . . . . . . . . . . . . . 143
Current Apparatus Assignments . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 144
Possible Revised Apparatus Dispatch Assignments . . . . . . . . . . . . . . . . 144
PRE-FIRE PLANNING . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 145
FIRE PREVENTION . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 149
Fire Building Inspections . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 149
Larchmont Fire Inspections . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 151
Public Education . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 153
Public CPR Training . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 155
SUNT ARY . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 155
RECOMMENDATIONS . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 157
CHAPTER SIX - TRAINING . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 159
OVERVIEW . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 159
NATIONAL TRAINING STANDARDS AND PROGRAMS . . . . . . . . . . . . . 161
STATE TRAINING PROGRAMS . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 162
WESTCHESTER COUNTY TRAINING . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 163
LARCHMONT FIRE DEPARTMENT TRAINING . . . . . . . . . . . . . . . . . . . . . 164
Entry Level Recruit Training . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 164
Initial Volunteer Recruit Training . . . . . . . . . . . . . . . . . . . . . . . . 164
Paid Probationary Training Requirements . . . . . . . . . . . . . . . . . . 165
In-Service Training Program . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 165
Paid Staff In-Service Training . . . . . . . . . . . . . . . . . . . . . . . . . . . 165
Company-Based Volunteer Training . . . . . . . . . . . . . . . . . . . . . . 167
Departmental Volunteer Training . . . . . . . . . . . . . . . . . . . . . . . . . 169
Joint Paid-Volunteer Training . . . . . . . . . . . . . . . . . . . . . . . . . . . 171
Mutual Aid Training . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 172
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SUMMARY . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 172
RECOMMENDATIONS . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 173
CHAPTER SEVEN - APPARATUS AND FACILITIES . . . . . . . . . . . . . . . . . . . . 174
GENERAL APPARATUS DESCRIPTION . . . . . . . . . . . . . . . . . . . . . . . . . . . 174
Pumpers . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 174
Aerial Devices . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 175
Rescue Equipment . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 175
NATIONAL FIRE PROTECTION ASSOCIATION . . . . . . . . . . . . . . . . . . . . . 176
VEHICLE AND EQUIPMENT MAINTENANCE . . . . . . . . . . . . . . . . . . . . . . 177
Maintenance Requirements . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 177
Pump . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 177
Chassis . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 177
Engine . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 178
Cab . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 178
Ladders on Trucks . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 179
LARCHMONT VEHICULAR APPARATUS INVENTORY . . . . . . . . . . . . . 179
Justification for Apparatus . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 180
Pumpers . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 181
Tower Ladder . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 183
Patrol Mini-Squad . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 184
Chiefs Cars . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 184
Potential Cost Savings . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 185
Apparatus Replacement Schedule . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 186
FIRE STATION FACILITIES . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 186
General Fire Station Maintenance and Upkeep . . . . . . . . . . . . . . . . . . . . 187
Need for Facility Renovation . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 187
SUMMARY . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 189
RECOMMENDATIONS . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 190
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APPENDIX A - JOB DESCRIPTION FIRE CHIEF
APPENDIX B - FIRE DEPARTMENT WORK PROGRAM
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CHAPTER ONE - INTRODUCTION
Figure 1.1 Village of Larchmont Map . . . . . . . . . . . . . . . . . . . . . . . . . . . . Follows Page 2
CHAPTER TWO - FIRE DEPARTMENT ORGANIZATION AND MANAGEMENT
Figure 2.1 Departmental Officers . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 33
Figure 2.2 Company Op. Officers . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 35
Figure 2.3 Paid Officers . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 38
Figure 2.4 Adopted Budget Appropriations . . . . . . . . . . . . . . . . . . . . . . . Follows Page 64
Figure 2.5 Assessed Valuation . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . Follows Page 64
Figure 2.6 Public Safety Costs as Percent of Village Budget . . . . . . . . . Follows Page 64
Figure 2.7 Fire Services Budgets . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . Follows Page 64
Figure 2.8 Fire Service Salaries . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . Follows Page 64
Figure 2.9 Comparison of Village Fire Expenditures . . . . . . . . . . . . . . . . . . . . . . . . . . . 52
CHAPTER THREE - CONSOLIDATION OPPORTUNITIES
Figure 3.1 Current Apparatus Fleet Larchmont & Mamaroneck FDs . . . . . . . . . . . . . . . 78
Figure 3.2 Projected Life Cycle Cost Savings from Reduced Apparatus Fleet . . . . . . . . 79
Figure 3.3 Larchmont Police 911 Dispatch Console . . . . . . . . . . . . . . . . Follows Page 88
Figure 3.4 Fire Station Alarm Room Console . . . . . . . . . . . . . . . . . . . . . Follows Page 88
CHAPTER FOUR - FIRE DEPARTMENT STAFFING
Figure 4.1 Uniformed Firefighter/Officer Complement . . . . . . . . . . . . . . . . . . . . . . . . 106
Figure 4.2 Volunteer Firefighter/Officer Complement by Classification . . . . . . . . . . . 118
CHAPTER FIVE - OPERATIONS AND PREVENTION
Figure 5.1 Incidents by Month of Year . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 135
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Figure 5.2 Incidents by Incident Type Calendar Years 1994 Through 1996 . . . . . . . . . 136
Figure 5.3 Typical Larchmont Business & Commercial Properties . . . Follows Page 138
Figure 5.4 Possible Village Apparatus Dispatch Assignments . . . . . . . . . . . . . . . . . . . 144
CHAPTER SIX - TRAINING
Figure 6.1 County Training Facilities . . . . . . . . . . . . . . . . . . . . . . . . . . Follows Page 164
Figure 6.2 Staff Hours of Company-based Training for Volunteer Staff . . . . . . . . . . . 168
Figure 6.3 Staff Hours of Department Level Training for Volunteer Staff . . . . . . . . . . 169
CHAPTER SEVEN - APPARATUS AND FACILITIES
Figure 7.1 Pumper Testing Requirements NFPA 1901 . . . . . . . . . . . . . . . . . . . . . . . . . 176
Figure 7.2 Fire Department Apparatus Inventory . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 180
Figure 7.3 Larchmont Fire/Rescue Apparatus . . . . . . . . . . . . . . . . . . . . Follows Page 181
Figure 7.4 Projected Life Cycle Cost Savings from Reducing the Apparatus Fleet . . . 185
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NOTE
The use and/or copying of information in this Study without the expressed written
consent of Carroll Buracker & Associates, Inc. and the Village of Larchmont, New
York, is expressly prohibited.
Carroll Bnracker&Associates Inc.
ACKNOWLEDGMENTS
The Study Team extends genuine appreciation for the assistance and support provided by
Village officials, the fire chief, officers, paid firefighters and volunteer firefighters of the
Larchmont Fire Department and the leadership of the firefighters union for their forthright
participation in this assessment of the Larchmont Fire Department.
STUDY METHODOLOGY
This Study was developed through a process involving interviews, data collection, research,
on-site observation of paid and volunteer fire personnel, meetings, analysis and comparative
evaluation with industry standards and experiences of the Study Team in every region in the
United States.
STRUCTURE OF THE STUDY REPORT
The structure of this Study is quite detailed. The primary reason is that the Study Team
believes that knowledge of state-of-the-art practices and programs in the delivery of fire
services in the United States may help Larchmont officials to understand the fire and
emergency medical services disciplines.
While there are a variety of approaches to fire protection for any community, the science of
fire suppression, emergency medical service (EMS) and prevention do not vary greatly by
region. Combustibles with specific properties burn about the same in any region. The need
for adequate communications and command is universal; the types of apparatus do not vary
by region, since national manufacturers sell to every region; the management and technical
training are taught at the National Fire Academy; the accreditation standards for the fire
service have been established by and for fire personnel.
This Study, then, is an analysis of the fire services in Larchmont, comparisons with industry
standards, management and direction, consolidation, apparatus and equipment, training,
staffing, and other services, to include emergency medical services.
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STUDY TEAM MEMBERS
This Study was conducted by two public safety consultants. Each of the team members has
served as a practitioner in local government public safety. Combined, the team members
have evaluated more than 80 fire departments to include nearby Rye Brook, New York and
Greenwich and Stamford, Connecticut, which are served by paid, volunteer and reserve
firefighters. Very brief credentials include:
Leslie D. Adams
Les Adams served as the lead consultant. As the former Deputy Fire Chief and second in
command of the Montgomery County, Maryland Fire and Rescue Department, he has 28
years of fire management experience. He has served as the operations deputy fire chief of
a fire department that serves 800,000 residents with 1,400 paid and volunteer firefighters. He
has been responsible for all duties of fire services, including personnel management,
planning and research, facilities, apparatus, training, dispatch, administration, operations,
emergency medical services, and management of a combined paid and volunteer fire
department.
Mr. Adams has managed fire operations with 33 fire stations, 818 paid firefighters, 600
volunteer firefighters, 31 engines, 14 trucks, 35 Basic Life Support units, 13 Advanced Life
Support units and 120 paramedics.
Mr. Adams holds a B.S. in Business Administration from the Columbia Union College, and
has completed course work on a Masters degree in General Administration.
He has taught at the National Fire Academy on modern techniques in fire services operations
and has been on the faculty of Montgomery Community College teaching Fire Science
Administration.
Mr. Adams has served as the Chairman of the International Association of Fire Chiefs
(IAFC) Personnel Management Committee.
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STUDY TEAM MEMBERS (Continued)
Prior to joining the fire service, Mr. Adams was a program management auditor with the
United States General Accounting Office. As such, Mr. Adams traveled internationally to
United States Embassies for the U. S. House of Representatives, House Administration
Committee, as part of an effort to evaluate Federal programs.
He is a current volunteer fire chief in Maryland.
Carroll Buracker
Mr. Buracker has served as the corporate project manager for evaluation of more than 80 fire
departments of all sizes. A number of fire studies included multiple fire departments. He
has provided public safety services to more than 85 cities and counties.
Mr. Buracker has 22 years of practical experience in public safety in Fairfax County,
Virginia, a community with 850,000 residents. During his career, he worked with fire
departments in both operational and administrative areas. He was responsible for the
management of a consolidated fire and police dispatch center; project director for installing
mobile digital terminals in 900 public safety vehicles, including fire apparatus and
ambulances; co-chaired the investigation of the Air Florida crash in the Potomac River
relative to fire and police response; and chaired development of a disaster plan for
Metropolitan Washington, D.C., that included 16 jurisdictions. He served as the Chief of
Police for the Fairfax County, Virginia Police Department, the largest municipal police
agency in Virginia.
He has been certified as an expert witness in both state and federal courts on public
safety matters.
The U.S. Department of Housing & Urban Development selected his firm to evaluate
security and safety of public housing residents, to include fire safety, in 10 major U.S. cities.
These cities include Chicago, Los Angeles, Oakland, Boston, Philadelphia, Pittsburgh and
Baltimore. Mr. Buracker holds both B.S. and M.S. Degrees from the American University
in Washington, D.C.
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EXECUTIVE SUMMARY
Fire Service Industry Standards
In conducting this assessment of fire services,the Study Team utilized a number of standards
and accepted practices in the analysis conducted in this Study of the Larchmont Fire
Department. In addition, the Study Team compared the administration and operations of the
Larchmont Fire Department to the accreditation criteria established as part of the
International Association of Fire Chiefs (IAFC) fire department accreditation program.
The accreditation criteria contained in that program covers all areas of fire department
administration and operations, including: governance and administration, community
assessment, goals and objectives, programs, physical resources, human resources, training
and competency, essential resources, and external systems relations. The Study Team
compared the Larchmont Fire Department with the primary IAFC accreditation criteria.
Overview
This Study contains a broad review of the fire protection service in the Village of Larchmont.
The subjects covered by this analysis include: a review of the fire department and its
organization, consolidation opportunities, staffing, operations and prevention, training, and
equipment and facilities.
Village of Larchmont
The Village of Larchmont is located approximately 22 miles northeast of New York City.
Situated in the Town of Mamaroneck, Westchester County, New York, Larchmont is
surrounded on three sides --the West,North and East-- by the Town of Mamaroneck. Long
Island Sound is to the South of the Village.
The Village of Larchmont is primarily a residential community. A small business district
features a mix of retail shops, restaurants, and professional services such as offices for
physicians, attorneys and others. There are no large scale business offices. There is very
little manufacturing or industrial activity.
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EXECUTIVE SUMMARY (Continued)
The land area comprising the Village of Larchmont is 1.07 square miles. According to the
U.S. Census, the population in 1990 was 6,181. The median household income in 1990 was
$77,649. The most recent average home price was $450,000. Average rental prices were:
$775 for a studio; $1,050 for one bedroom; $1,190 for two bedrooms.
Organization and Management
The Larchmont Fire Department is headed by a volunteer chief who is assisted by two deputy
chiefs. These three officers comprise the Departmental officers of the Department. The Fire
Department includes five fire companies as follows:
• Engine Company No. 1 of Larchmont
• Larchmont Fire Company No. 2 (Hose Co.)
• Hook and Ladder Company No. 1
• Ambulance Protective Corps (with no members)
• Larchmont Fire Patrol Company
Each of these companies, except for the Ambulance Protective Corps, is headed by a captain
who is the executive head of the fire company. Each of the captains also reports to the chief
and takes orders from the chief during emergencies. Each of the fire companies has its own
by-laws and rules, and each has its own goals and purpose.
The Fire Department is staffed with 14 paid personnel: 10 firefighters, three lieutenants and
one captain.
The policy and oversight for the Fire Department is provided by a Fire Council. The Fire
Council is comprised of the chief, the two deputy chiefs and two wardens from each of the
four active companies. The Fire Council consists solely of volunteer members of the Fire
Department and includes no Village, public or business representation.
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EXECUTIVE SUMMARY (Continued)
The Fire Department Team
During the course of conducting this assessment, it became exceedingly clear to the Study
Team that the various components of the Larchmont Fire Department (chief officers,
companies and paid staff) do not currently function as efficiently as they could function in
a team approach. A comment from one volunteer member was representative of most input;
he related, "an adversarial relationship exists between the paid and volunteer, the chiefs and
paid and between the volunteers and the chiefs." Others noted that there are impediments
to functioning as a team.
Many different ideas for solutions for organizational change were suggested by Larchmont
firefighters and officers. A number of these recommendations were supported by the Study
Team. These suggested changes focus on the long-term resolution of the redevelopment of
a team approach within the Larchmont Fire Department.
The organizational recommendations include:
A. Adopting the proposed new Mission Statement and goals and
supporting philosophies for the Fire Department and its members.
B. Establishing a Larchmont Board of Fire Commissioners to function as the
governing body of the Fire Department. A seven-member Board of Fire
Commissioners, appointed for tNvo-year terms by the Village Board of
Trustees, is suggested with membership as follows:
1. One member of the Village Board of Trustees
2. One Village resident
3. One Village business representative
4. The Chief of the Fire Department
5. Three other Fire Department representative elected at-large every two
years from the membership
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EXECUTIVE SUMMARY (Continued)
C. Rescinding the policy of including ex-chiefs in the incident chain of command.
D. Establishing a maximum of eight total volunteer company officer positions
within the Larchmont Fire Department.
E. Establishing minimum operational officer experience requirements.
F. Appointing a paid chief due to the crucial need for the day-to-day leader of the
Larchmont Fire Department to be able to help resolve the internal issues
currently facing the Fire Department.
G. Abolishing the Ambulance Protective Corps.
H. Abolishing the four current remaining companies and establishing one new
company to be titled the "Volunteer Fire Company of the Fire Department of
Larchmont, N.Y."
Opportunities for Consolidation
During discussions with Village officials, the Westchester 2000 Report, which called for
consideration of consolidating some services, was referenced. Consolidation of municipal
organizations and resources is viewed as an alternative and potential remedy to a number of
fiscal constraint-related problems facing local governments. Consolidation can also improve
safety of public safety providers and customers by pooling resources.
Historically, consolidations have been studied and implemented for both entire jurisdictions
and specific services, such as police and fire departments, within jurisdictions. There is a
long history of the study and implementation of consolidation of fire departments. Generally,
the primary motivating factors in the consideration of consolidation involve matters of fiscal
constraint, desires to improve the level of service, and efforts to improve and streamline the
management functions.
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EXECUTIVE SUMMARY (Continued)
As is often the case, the degree of success of any consolidation is in "the eyes of the
beholder". However, in reviewing consolidations of fire departments that have taken place,
the Study Team found none that was determined to be unsuccessful. Based on a review of
previous consolidation efforts, the history of consolidation points to very positive and
beneficial results for the fire departments, the municipalities involved, and the citizens
served. In every instance, the benefits to the citizens were very substantial.
It is clear that the New York State legislature, at various times during legislative sessions,
has encouraged municipalities to cooperate in sharing services. A clear supportive statutory
and regulatory framework exists for jurisdictions to work together to provide services,
including fire protection.
While this assessment of fire services was not a consolidation study, the consolidation
recommendations for Larchmont include:
A. Conducting a feasibility study of consolidating fire services with the Town of
Mamaroneck.
B. Implementing those aspects of the Westchester 2000 process that would
improve and/or provide more cost effective services.
C. If feasible, pursuing the full consolidation of the Town of Mamaroneck and
Village of Larchmont fire departments.
D. Implementing automatic mutual aid procedures with area fire departments.
E. Requesting that County Control dispatch all fire and EMS calls in Larchmont.
Staffing
The Study Team considered the following staffing approaches as part of this assessment of
the Larchmont Fire Department:
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EXECUTIVE SUMMARY (Continued)
A. All paid staffing
B. Combination of career and volunteer personnel
C. All volunteer staffing
In a career fire service, the major costs are for personnel. In Larchmont, firefighting services
are performed by a combination of career and volunteer personnel. In this combination
system, the major cost remains salaries, even with the staffing accomplished by the
volunteers. However, the Village of Larchmont is receiving significant financial savings
resulting from the volunteer component of the service. The citizens of the Village of
Larchmont are reaping major benefits from its combination paid/volunteer fire and
rescue system.
The current authorized paid staff complement for the Larchmont Fire Department is 14
uniformed firefighters and officers. This complement of paid staff has been utilized to
provide a minimum of three (3) uniformed personnel (Code Three) 24-hours per day, seven
days per week for a number of years. Paid staff are hired back on overtime to maintain this
three (3) person on-duty staffing level.
The Larchmont Fire Department utilizes a non-standard approach to the staffing of fire
apparatus responding from the fire station on calls. On a planned and scheduled basis, the
three on-duty paid firefighters are each assigned to drive/operate a piece of fire apparatus.
Upon arrival on the scene of the emergency incident, the paid staff on the responding unit/s
form up to serve as the initial attack crew or, as otherwise necessary, begin to mitigate and
deal with the emergency situation. These firefighters would begin to deal with the incident.
Under this Larchmont response approach volunteer members respond directly to the scene
of the incident and provide the additional staffing to handle the incident in cooperation with
the paid staff on the apparatus.
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EXECUTIVE SUMMARY (Continued)
This apparatus staffing and response approach has a number of potential inherent problems.
The most crucial is the fact that there is no way to know how many volunteers will actually
respond to the incident. It is also not known when those volunteers will arrive on the scene.
Additionally, as a result, it is very difficult to form up the attack team/s in an organized,
timely manner and efficient manner.
There is no organized program, such as an in-station stand-by program, in place in the
Larchmont Fire Department to encourage or require volunteers to remain in the fire station.
Volunteer personnel are not trained or checked-out to drive or operate pumps on the fire and
rescue apparatus.
On a comparative basis, the Town of Mamaroneck reportedly utilizes a 'Code Two' staffing
model.
Volunteer Recruitment and Retention
The Study Team's experiences in volunteer fire service reflect various approaches and
reasons for volunteer participation. This experience is useful in explaining some opinions of
volunteer service constraints and benefits.
Nationally, some volunteer fire companies seem to have a continual supply of individuals
who want to volunteer their services. Others, however, have problems trying to recruit
enough volunteers to maintain minimal staffing of units. The key seems to be meeting the
needs or expectations of the volunteers, which are different in many ways from paid
personnel.
The volunteer membership of the Larchmont Fire Department includes approximately 115
members. Of that total membership in calendar year 1994, 38 members responded to 10
percent or more of the emergency incidents and approximately 41 volunteer members
attended at least six company or Departmental training activities. In 1994, of the volunteers
responding on incidents, there appear to have been 31 volunteer members who responded to
over 425 emergency incidents without having taken any training during 1994.
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EXECUTIVE SUMMARY (Continued)
Volunteer recruitment in Larchmont is accomplished on essentially a `word-of-mouth' basis.
Additionally, there appear to be no volunteer retention programs in place in the Larchmont
Fire Department. The Study Team was advised that the Fire Department has been
experiencing a significant decline in volunteer activity in recent years.
The staffing recommendations include:
A. Retaining and strengthening the combination paid and volunteer firefighter
approach to staffing the Fire Department in Larchmont, if there is no
consolidation.
B. Reviewing the issue of potentially untrained volunteers participating in
operational incidents.
C. Establishing of a volunteer in-station standby program.
D. Training and approving volunteers to drive and operate the pumps of fire
apparatus.
E. Developing a comprehensive volunteer recruitment and retention program.
Operations and EMS
The Larchmont Fire Department incident workload for calendar years 1994 and 1995 has
totaled slightly over 700 emergency incidents. Response to EMS first responder calls
comprised the largest single type of incident to which the Fire Department responded each
year. This is consistent with national trends in fire departments providing emergency
medical service. The Larchmont Fire Department responded to 21 actual fire incidents in
1994 and 10 fire incidents in 1995. The Fire Department responds to approximately two
emergency incidents per day throughout the year.
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EXECUTIVE SUMMARY (Continued)
The Fire Department's reported response times to emergency incidents in the Village is under
1.5 minutes from time of call receipt. There is no data to verify the verbal response time
data.
Emergency Medical Services
The delivery of quality emergency medical care is one of the most basic services which a
local government must ensure is available to its citizens. This care can be delivered through
a variety of methods which include: contract service through private ambulance company;
delegate service to a volunteer agency in community; direct service provided through
government employees; or any combination of these.
In some communities, fire departments are the sole source for pre-hospital EMS, while in
others firefighters provide no EMS. In most areas, the pre-hospital EMS is a coordinated
effort of more than one agency. That is the organizational model in Larchmont. The
provision for out-of-hospital emergency medical care is a coordinated effort of paid and
volunteers from the Larchmont Fire Department, as well as the third service, the Volunteer
Ambulance Corps.
The Larchmont Fire Department provides Basic Life Support - First Responder Services.
VAC provides both basic and advanced life support along with transportation services.
Coordination between the two provider agencies appears to be very effective in providing
timely response to medical and trauma emergencies.
In addition to performing cardio-pulmonary resuscitation and basic first aid procedures, most
firefighters have access to and are trained in using Automatic External Defibrillators (AED).
Early application of electrical therapy has been demonstrated to be the most important factor
in successful resuscitation of out of hospital sudden deaths. Having this service available
enhances the EMS available to the citizens of Larchmont.
The operations and EMS recommendations include:
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EXECUTIVE SUMMARY (Continued)
A. Continuing the EMS first responding service with the Automatic
Defibrillator service as a continuation of a state-of-the-art EMS
delivery system.
B. Implementing a revised apparatus dispatch policy to provide, through
automatic mutual aid, an increase in the number of apparatus
responding on certain incidents.
C. Implementing a public CPR training program.
Fire Building Inspections
Historically, many fire department personnel believed that they were simply part of a
"standby" service. They believed their purpose vvas simply "waiting for the big one,"and that
hazardous materials, EMS first responder, fire prevention and other jurisdictional
responsibilities for the welfare of its citizens "was someone else's job."
In recent years, fire departments have been given increasing authority and responsibility to
establish and maintain fire and life safety throughout its jurisdiction. Citizens depend on the
fire department to ensure that they are protected against the dangers of fire,panic, explosions
and other hazardous conditions that may occur within their community. Consistent with that
changing approach, most fire departments have been given responsibility for performing fire
building inspections. National standards have also been developed that recommend that fire
department's handle fire building inspections.
The Village Board authorized a part-time inspector for this function in Larchmont, since
there was an impasse in having the Fire Department perform the function. The Larchmont
firefighters have time to conduct fire inspections.
The fire building inspection recommendations include:
ICarroll Baracker&Associates,Inc. Xiii
EXECUTIVE SUMMARY (Continued)
A. Reassigning the responsibility for fire building inspections to the Fire
Department.
Training
The main objective of the fire service is to prevent injury and loss of life and to protect
property. All personnel providing these services must be fully qualified to successfully,
efficiently and safely perform a wide range of skills and have a broad base of knowledge that
allows them to adjust their activities to any given situation. These skills and knowledge can
only be obtained through an effective training program. Training is the key to successful
emergency operations and organizational effectiveness.
Both the paid and volunteer firefighters receive initial entry level recruit training. Each
Active volunteer Member of the Fire Department must complete the Essentials of
Firemanship, if available, within one (1) year of confirmation as an active member, or as
soon as it is available after such time. The Firefighting Essentials ("Essentials of
Firemanship") course is taught regularly by the Westchester County Fire Training Academy
and includes 39 hours of instruction.
By State mandate, the minimum basic fire training for probationary and non permanent
firefighters consists of 229 hours in approved courses. This probationary training covers 26
primary areas of study.
An essential part of any fire department training program is the on-going in-station training
that is given as part of a planned in-service training program. In-service training is intended
to maintain the skills gained by firefighters and officers who have taken full-length fire and
EMS training courses. In-service training also provides the opportunity for a fire department
to provide training to personnel that is local fire department or area specific, e.g. street
familiarization, risk familiarization and policies and procedures training.
In Larchmont, the paid firefighters follow a set in-service training outline established by the
State. The volunteer members participate in company-based and Departmental in-service
training. The company-based in-service training is generally focused on equipment and
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EXECUTIVE SUMMARY (Continued)
operating procedures of the specific piece of apparatus that the company has been historically
associated with.
The Study Team was advised that the paid and volunteer members of the Larchmont Fire
Department do not participate in joint in-service training. Additionally, it would be desirable
for more mutual aid in-service training to take place.
The training recommendations include:
A. Cross training all volunteer members in all aspects of fire operations.
B. Implementing a joint paid/volunteer in-service training program.
C. Conducting regular comprehensive mutual aid training.
Apparatus
Within the fire service, there are three basic types of fire apparatus:
• Pumpers to deliver water from an internal tank, pressurized system, or static source
(river or pond) to the fire scene
• Aerial devices such as long extension ladders or platforms
• Specialized rescue trucks with equipment for removing individuals from vehicles,
underground entrapment, high locations, entanglement in machinery, and difficult
transportation accidents.
In addition, each of these three functions can be combined into a single vehicle. For
example, there can be a pumper and ladder truck on a single chassis or a rescue squad and
a ladder truck as the same vehicle.
The apparatus fleet of the Larchmont Fire Department includes three pumpers, one tower
ladder, a mini-squad Patrol unit and three chiefs vehicles. The fleet appears to be in good
repair.
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EXECUTIVE SUMMARY (Continued)
The Study Team noted that the need for certain apparatus in the Larchmont Fire Department
relates to the historical organizational structure that includes four volunteer fire companies.
This organization and direct relationship to specific pieces of apparatus currently influences
the perceived need for a certain number and type of apparatus. The relationship between
certain apparatus and a particular fire company is as follows:
Engine 34 - Engine Company
Engine 35 - Hose Company
Tower Ladder 7 - Hook and Ladder Company
Rescue 1 (mini squad) - Patrol Company
(Note: Engine 33 is not assigned to a company.)
The apparatus recommendations include:
A. Reducing the pumper fleet to two pumpers.
B. Not replacing the Rescue 1 mini squad unit.
C. Retaining the three chiefs vehicles in the fleet.
D. Removing a Tower Ladder if consolidation is implemented.
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EXECUTIVE SUMMARY (Continued)
Facilities
Buildings that house fire stations are used 24-hours a day, seven days a week. In addition,
due to the rough nature of the work performed by firefighting personnel in and out of their
fire stations, fire station buildings can receive rougher treatment than average office,
commercial or government building. The amount of maintenance and repair work necessary
to keep fire stations in good condition is generally greater than that normally required in
other municipal buildings.
The Larchmont fire station is a part of the Municipal Building which was originally built in
1923. The Study Team was advised that an addition was placed on the Municipal Building
in 1963 along with some renovation work being accomplished in the building generally.
Apparently, other than painting no further work has been done in the fire station since the
early 1960s.
It is the observation of the Study Team that a higher priority should be placed on the
maintenance, repair and general upkeep of the Larchmont Fire Department station.
The facilities recommendations include:
A. Improving the maintenance and upkeep of the fire station.
B. Renovating the fire station facility (and possibly the Municipal Building
generally) to reallocate space and upgrade the HVAC and other appropriate
components of the fire station.
Fiscal Implications
The fiscal implications of the major recommendations in this Report are noted with two
different staffing models:
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EXECUTIVE SUMMARY (Continued)
Code Three Staffing
If Larchmont retains the Code Three Staffing model (three paid firefighters on duty at all
times), the major fiscal impacts are as follows:
• Paid chief for the Larchmont Fire Department . . . . . . . . . . . . . . . . . . . . . $ 100,000
• Savings from changing captain position to lieutenant . . . . . . . . . . . . . . . . . $ 3,000
• Apparatus modifications to place EMS and rescue supplies on either
the new Tower Ladder 7 or add water supply function to Engine 33 . . . . . . $ 5,000
• Renovation of the fire station building . . . . . . . . . . . . . . . . . . . . . To be determined
• Savings from reduction in apparatus fleet (20 year life cycle) . . . . . . . . . $ 811,000
Includes: Elimination of replacement costs
Elimination of rehabilitation costs
Reduction in the annual cost of apparatus maintenance
Reduction in the annual cost of operating apparatus, e.g. fuel, etc.
• Initial funding for volunteer recruitment and retention program . . . . . . . . . $ 3,000
• Cost for volunteer length of service awards program . . . . . . . . . . To be determined
• Annual revenue for fire building inspections by FD . . . . . . . . . . $ 10,000 - 19,000
• Three-year training cost for fire building inspections by FD . . . . . . . . . . $ 14,000
Code Two Staffing
If Larchmont provides Code Two Staffing (maintaining two paid firefighters on duty with
at least one volunteer firefighter available in the fire station for immediate response), the
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EXECUTIVE SUMMARY (Continued)
major fiscal impacts are as outlined below. The savings from three primary Code Two
staffing options are presented.
• Savings from implementing Code 2 week nights (Monday-Friday) . . . . $ 179,000
• Savings from implementing Code 2 nights and weekend days . . . . . . . . $ 330,979
• Savings from implementing Code 2 24-hours per day . . . . . . . . . . . . . . . $ 443,815
The other fiscal impacts noted under Code Three are applicable under this option.
Summary
The Village of Larchmont has some very dedicated firefighters, both paid and volunteer.
While these personnel are very committed to quality service, the structure of the fire services
is too fragmented to maximize their real potential. Tradition appears to have gotten in the
way of improvements needed in 1996. Although there are various ways of delivering fire and
emergency medical services, this Report represents the best judgment of the Study Team.
A number of the recommendations are based on what seems to be the best approach for
Larchmont; in other municipalities, a different approach may be suggested by the Study
Team.
It should be noted that the recommendations in this Report are not unique to Larchmont. In
similar studies for other municipalities, more recommendations have been suggested.
Therefore, Larchmont has better fire services than some municipalities which employed the
Study Team for an assessment of fire services.
The observations and recommendations in this Report are only advisory in nature. The
Village Board,the proposed Village Board of Fire Commissioners and chief should make the
final decisions relative to the delivery of fire protection and EMS first responder services.
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'EXECUTIVE SUMMARY (Continued)
Implementation Program
This Report contains Appendix B which provides the Village of Larchmont with a suggested
implementation Work Program to assist in monitoring the implementation of
recommendations. This work plan is only a suggested outline; the Village may wish to
restructure the work plan.
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CHAPTER ONE
INTRODUCTION
CHAPTER ONE
INTRODUCTION
This Chapter provides a brief overview of the Village of Larchmont and the surrounding
municipality of the Town of Mamaroneck, both of which are located in Westchester County,
New York.
VILLAGE OF LARCHMONT PROFILE
Historical Perspective
The early history of the Village of Larchmont is virtually the same as the early history of the
Town of Mamaroneck,which today surrounds the Village and is the older government entity.
Both municipalities trace their origins to 1661 when Englishman John Richbell purchased
the land from the Siwanoy Indians of the Algonquin nation. The land was believed to have
been sold to Dutch settlers as well, creating competing claims of ownership. Those claims
lost validity in 1664 when the Dutch surrendered to the English.
Meetinas of residents date from 1697 when an early form of local government was
established, and continued largely unchanged, for more than 200 years.
The name "Larchmont" comes from Peter J. Munro, who purchased land in the area in 1790.
Munro directed his Scottish gardener to plant a grove of larch trees around the "mont" on
which his Manor House stood. The trees were to protect the prestigious hilltop residence
from the dust and noise of traffic on the Boston Post Road.
The Village of Larchmont was incorporated in 1891, partly in response to residents who
wanted their own government agencies. One of the first was a fire department staffed by
nearly 60 volunteers. Because the area served as a luxury resort during the turn of the
century, and a large number of volunteers were listed in the Social Register, the department
was referred to as the "Millionaires' Fire Department."
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INTRODUCTION
VILLAGE OF LARCHMONT PROFILE (Continued)
Village Government
The Village of Larchmont is governed by a Mayor and four Trustees, who together comprise
the Board of Trustees. The Mayor is elected for a two-year term. The Trustees are elected
for two-year terms, with two Trustees running for election every year.
The Board of Trustees appoints department heads, such as the Treasurer and Engineer, who
supervise most government operations, unless otherwise prescribed by law.
The Village of Larchmont operates under the following New York State laws:
A. Ne-vt" York Constitution, Article IX (the Home Rule Article)
B. Village Law
C. General Municipal Law
D. Local Finance Law
E. Statute of Local Governments.
Larchmont at a Glance
The Village of Larchmont is located approximately 22 miles northeast of New York City.
It is situated in the Town of Mamaroneck, Westchester County, New York. Larchmont is
surrounded on three sides --the West, North and East-- by the Town of Mamaroneck. Long
Island Sound is to the South of the Village. Figure 1.1 illustrates the location of the Village
of Larchmont.
The land area comprising the Village of Larchmont is 1.07 square miles.
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Figure 1.1
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Carroll Buracker&Associates,Inc.
INTRODUCTION
VILLAGE OF LARCHMONT PROFILE (Continued)
The Village of Larchmont is primarily a residential community. A small business district
features a mix of retail shops, restaurants, and professional services such as offices for
physicians, attorneys and others. There are no large scale business offices. There is very
little manufacturing or industrial activity.
The Village boasts a number of impressive recreational facilities. Manor Park, a private six-
acre tract on Long Island Sound, was designed in the late 19th century by the same firm that
created Central Park in New York City.
Residents can also enjoy Flint Park,which features baseball fields,tennis courts,picnic areas,
basketball courts.
Prominent private clubs in the area include the Larchmont Yacht Club, the Shore Club, the
Bonnie Briar Country Club, the Hampshire Country Club, the Winged Foot Golf Club, and
the Horseshoe Harbor Yacht Club.
According to the U.S. Census, the population of Larchmont in 1990 was 6,181.
DEMOGRAPHICS OF LARCHMONT
The following sections describe the general demob aphics of the Village of Larchmont from
a housing unit and population perspective.
Housing Units
More than half of the housing units in Larchmont were constructed prior to World War II,
according to data contained in the 1990 Census of Population and Housing provided by the
U.S. Bureau of the Census.
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INTRODUCTION
DEMOGRAPHICS OF LARCHMONT (Continued)
HOUSING UNIT CONSTRUCTION IN LARCHMONT
BY DECADE - THROUGH 1990
Year Constructed Number of Units
1970 to 1990 96 units
1950 to 1969 308 units
1940 to 1949 262 units
1939 and earlier 1,670 units
Additionally, more than half of the housing units in Larchmont are single family dwellings.
TYPE OF HOUSING UNITS IN LARCHMONT
IN 1990
Type of Unit Number of Units
Single family 1. 85
Two to nine 146
Ten or more X93
Population of Larchmont
The population of the Larchmont area, which has been relatively constant over the past 35
years, is projected to decline slightly in the future.
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INTRODUCTION
DEMOGRAPHICS OF LARCHMONT (Continued)
1960 6,789
1965 6.860
1970 7,203
1990 6,181
2000 6,000 (estimated by Westchester County)
2010 5,800 (estimated by Westchester County)
2020 5,750 (estimated by Westchester County)
Demographic data for the Village of Larchmont, as contained in the 1990 Census of
Population and Housing produced by the U.S. Bureau of the Census, is as follows:
A. The number of households: 2,29.
B. The number of persons per household: 2.72.
C. The number of housing units: 2,336.
D. The median value of the housing units: $436.600.
E. There are only 706 total rental-type housing units.
ANALYSIS FRAMEWORK
In conducting this analysis of the fire service delivery system for Larchmont, the Study
Team utilized a proven and consistent approach to conduct and complete fire department
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INTRODUCTION
ANALYSIS FRAMEWORK (continued)
assessment. This methodology incorporates eight (8) distinct but interrelated phases: data
collection; interviews with key individuals; on-site observations in every job environment;
analysis of data; comparative analyses; alternatives and recommendations; submission of a
well-documented written Study; and an oral briefing.
In addition, the following study guides were applied.
National Accreditation Program
The Study Team utilized a modern industry-based framework for this analysis that was
comprehensive and systematic. The framework for this analysis incorporated the model
developed by the Accreditation Committee of the International Association of Fire Chiefs
(IAFC), a program of accreditation for and by fire personnel.
The Commission on Accreditation for Law Enforcement Agencies (CALEA) has previously
developed a police department accreditation process for use by police departments. The
IAFC has had a committee developing a similar analysis model for fire department use on
a voluntary basis. Employing this model in Larchmont provides the reader with information
on the latest thinking in the fire service.
The analysis categories included in this developing model and used as a general guide during
this Study are as follows:
1. Governance and Administration,
2. Community Assessment,
3. Goals and Objectives,
4. Programs,
5. Physical Resources,
6. Human Resources,
7. Training and Competency,
8. Essential Resources, and,
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INTRODUCTION
ANALYSIS FRAMEWORK (continued)
10. External Systems Relations.
Within each of these categories, there are criteria and considerations that were weighed by
the Study Team in conducting this analysis.
As a point of information, each of the categories for the developing fire/EMS model has been
independently tested in several communities. The IAFC has tested the fire department
accreditation model in a number of communities across the United States.
This accreditation model is being utilized on a voluntary basis to analyze an entire fire and
EMS agency or group of agencies.
Standards and Accepted Practices
The Study Team utilized published fire protection standards and information on accepted
principles and practices for the operations and management of fire services as background
and guidelines for the conduct of this Study. Some of the key organizations with standards
and publications that were utilized as part of this Study are the following:
• National Fire Protection Association
• Insurance Service Office (ISO) Commercial Risk Services, Inc.
• International Association of Fire Chiefs
• International Association of Firefighters
• International City Management Association
The National Fire Protection Association (NFPA) located in Boston, Massachusetts, follows
a nationally recognized process for the establishment of many standards that are applicable
to fire protection operations and administration. In many jurisdictions, some of the NFPA
standards have been adopted and fully implemented while other NFPA standards are utilized
as general guidelines for pursuing further improvement in safety and services. The following
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INTRODUCTION
ANALYSIS FRAMEWORK (continued)
list includes some of the kev NFPA standards utilized by the Studv Team to conduct this
Studv for Larchmont.
Name of Standard NFPA Number
Standard for Fire Fighter Professional Qualifications 1001
Standard for Fire Apparatus Driver/Operator Professional Qual. 1002
Standard for Fire Officer Professional Qualifications 1021
Standard for Professional Qualifications for Fire Inspector,
Fire Investigator, and Fire Education Officer 1031
Developing Fire Protection Services for the Public 1201
Public Fire Service Communications Systems 1221
Water Supplies for Suburban and Rural Fire Fighting 1231
Fire Service Training Reports and Records 1401
Fire Department Occupational Safety and Health Program 1500
Fire Department Incident Management System 1561
Pumper Fire Apparatus 1901
Aerial Ladder and Elevating Platform Fire Apparatus 1904
These and other written standards and nationally recognized documents, such as the NFPA
Fire Protection Handbook (Seventeenth Edition), were utilized by the Study Team as
reference materials for this Study.
In addition, in the analysis of various components and programs of any fire and rescue
service system, the Study Team develops a significant amount of customized material,
applicable specifically to a local fire service system. At the same time, there are several
generic components that do not, based on their very nature,vary from one system to the next,
such as, the description of the basic types of apparatus and, and basic apparatus maintenance
guidelines. The Study Team always employs these basic criteria.
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INTRODUCTION
TRENDS IN THE FIRE SERVICE
There are a variety of trends and issues in local government that are requiring municipalities
to consider changes and consolidation as part of an overall strategy to solve a number of
problems. A brief review of several trends and issues are outlined in the next few sections.
More than any period in recent history, changes in local governments are having, and will
continue to have, a significant impact on the fire service. The fire service, known for its
traditionalism, is having to confront change at an unprecedented rate. Certain trends for the
next decade are starting to be apparent. These can be categorized into five general headings:
1. Concern over the environment
2. Scientific and technological advancements
I Fire and injury prevention and public education
4. Fiscal constraint
5. Role of fire departments
Concern Over the Environment
During the 1980s, worldwide concern about the environment impacted every facet of life.
Businesses and industries have had to respond responsibly by adapting their way of doing
business to protect the environment. "Changes in the natural environment may necessitate
revolutionary changes in the fire service", stated Herman W. Brice, Chief Fire Administrator,
Palm Beach County Fire Rescue. Brice referred to water shortages and concern over water
runoff as issues which may force the fire service to develop alternate means of
extinguishment. With a perceived increase in global warming among major scientists, there
may be an increase in the number of natural disasters to which the fire service must respond.
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INTRODUCTION
TRENDS IN THE FIRE SERVICE (Continued)
Part of this attitude towards the environment stems from an overall concern of people
towards their safety. The public is demanding that risks be lowered and that they be shielded
from potential harms. This results in legislation and regulations regarding hazardous
materials and increased pressure for code enforcement.
This concern for personal safety extends beyond the general public. Fire service personnel
who previously showed little concern for their own well-being, especially in emergency
situations, are increasingly aware of the dangers inherent with their work. They are
demanding that their risks of injury and illness be reduced through standards, regulations,
training, safe equipment, and personal protection. These demands are increasing personnel
costs associated with the fire service, and are necessitating changes in the way fire
suppression is conducted. They are also resulting in a refocusing by management on the
employee as a valuable resource.
Concerns for the employee are extending beyond fireground safety issues. Employee
assistance programs, wellness programs, physical fitness programs, and critical incident
stress debriefings (CISD) are emerging as common approaches to employee health and
safety.
There are many changes being predicted in the American workforce, including the fire
service. Increasingly, women and minorities are becoming vital members of the fire service.
While many fire departments have started addressing these overdue workforce changes,
many still have the attitude that "it won't happen to my department". The impact of the
Americans with Disabilities Act still is yet to be fully recognized by the fire service, but
legislation may cause the service to rethink its whole philosophy regarding what it really
requires to be a firefighter in today's world.
The proliferation of regulations is starting to have a significant impact on the fire service.
Occupational safety and health organizations have started enforcing regulations pertaining
to the fire service and other public service agencies. Fairly new regulations regarding
hazardous materials and the recent regulations on blood-borne pathogens have put a
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INTRODUCTION
TRENDS IN THE FIRE SERVICE (Continued)
significant burden on the fire service with regard to training of personnel, providing proper
protection, and providing the resources necessary to fully implement the regulations. The
regulations appear to be just the beginning of the proliferation of regulations that are going
to govern every facet of emergency response operations. The work environment in the fire
service will become more regulated from both outside and inside the fire protection
community.
Scientific and Technological Advancements
The technological trends of the Year 2000 will make the work of persons involved in fire and
life safety easier and vet more challenging. The growing sophistication of electronic
detection and early activating suppression systems will further reduce the risk of devastating
fires. Computer technology will enhance not only notification and dispatch specialties, but
also the response sequence and, finally, maintenance of data. With improved data
management systems brought about by the increased utilization of computers,the fire service
will be able to provide more timely and complete evaluation of community needs and the
appropriate response to meet these community needs.
Improvements in technology may also enhance the ability of fire personnel to perform certain
functions, such as fire inspections, plans reviews and dispatching. Further, technology is
likely to impact the staffing requirements to perform these functions. Overall, improved
technology may help in preventing fires and in providing more efficient work performance.
The end result is an anticipated decrease in the fire service work force.
Fire/Injunr Prevention and Public Education
Fire/injury prevention and public education will emerge as one of the main activities to which
more time, attention, and resources will be devoted in the fire service in the future. Over the
past several decades, the fire service has been very effective in reducing the number of fires,
and losses due to fires, through fire prevention programs and public education. Many fire
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INTRODUCTION
TRENDS IN THE FIRE SERVICE (Continued)
service leaders now feel that the same lessons learned in developing effective public
education programs can be applied to injury prevention programs.
A significant impact can probably be made in reducing the number of injuries. Public
education programs can reduce the number of injuries; moreover, public education should
help individuals become more aware of early warning signs for various illnesses, so that
timely intervention can occur and complications prevented.
Part of the public interest in health has centered around the ability to provide help during a
crisis situation. Fire departments have for a long time been looked upon as a source of public
training for handling emergencies. Self help programs such as citizen CPR, and "What to
Do Before an Ambulance Arrives", are natural programs to be provided by fire/rescue
services personnel. These programs not only serve to enhance the safety of the community
and save lives, but are also excellent methods for fire departments to market their services.
As funding of public agencies continues to be a major constraint on local government, the
fire service must recognize the need for promoting its services to the community in order to
secure community support for relevant funding of the fire service.
One challenge of the next decade in public education and prevention programs will be in
reaching target groups that are experiencing the most significant problems with life safety.
These groups include the very young, the elderly, and low-income and minority populations.
Fiscal Constraints
For the last several years, a significant number of municipalities in all regions of the U.S.
have been experiencing fiscal constraints. The Village of Larchmont and the surrounding
municipalities are no exception. The Village of Larchmont is also experiencing some fiscal
constraints.
In local government, municipal administrators and elected officials have become frustrated
with the loss of revenues and fiscal constraints imposed at the state level. While revenues are
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INTRODUCTION
TRENDS IN THE FIRE SERVICE (Continued)
being reduced, labor costs continue to rise. This has caused significant pressures on
municipalities to reduce other services to an even greater extent.
Increases in legal action and litigation, both as a result of labor disputes as well as other legal
issues, have also negatively impacted the availability of revenues to reward good employee
performance or increase services. Municipal officials indicate that, as fiscal constraints have
increased as a result of decreased revenues, litigation and associated expenses have
increased.
These examples are only a few of the fiscal constraints that are negatively impacting local
governments and causing officials to search for viable alternatives, including consolidation.
Role of Fire Departments
The future of the fire service will include not only an expanded role for departments, but also
a more complex one. Fire service personnel will be required to protect the environment,
promote public safety and education, and become/remain emergency care providers.
Emergency Medical Services (EMS) in the fire service will become more important as the
fire problems decrease and the population in the U.S. becomes older. Fire personnel will
have to market their service in order to ensure continued funding.
Fire service personnel will need to develop excellent interpersonal skills in order to interact
well with the public. Customer service, a key to success in business, is trickling down to the
fire service.
Americans are now looking for satisfaction, not only in consumer products, but also in public
services for which they are paying, such as fire protection. In the future, fire departments
will be held more accountable to the citizens of their community for the services.
This concept of accountability is likely to evolve into a quality assurance program, where a
fire department's performance will be evaluated and measured against standards set by the
'
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INTRODUCTION
TRENDS IN THE FIRE SERVICE (Continued)
community. This public accountability will be a jolt to the fire service community, whose
primary accountability has been internal.
At the National level, progressive fire administrators are recognizing the inevitable changes.
In making predictions about the future of fire service, Chief Brice of Palm Beach, stated that
"due to budget constraints, increased demand for service, and increased levels of training and
certification requirements by state and federal agencies, emergency services providers and
local governments will find it necessary to consolidate smaller departments into
regional service providers to take advantage of broader tax bases."
Chief Brice also stated more cooperation will be required in certain functional areas such as
training and communications, in order to be cost-effective in providing the support services.
While the economy may take an upswing in the next several years, the impact of the past
recession will linger on into the future. The recent financial crisis has forced local
governments to closely examine resources allocated to various services. Managers, including
fire service managers, are being challenged with providing better and more services with
fewer resources. Progressive fire service leaders are accepting this challenge by working
with government and the community in a partnership to provide necessary (and sometimes
expanding) services without an increase in resource allocation.
The trends impacting the fire service today and tomorrow should result in an improved fire
service and safer communities.
SCOPE OF THIS STUDY
The Scope of Services for this Study was to assess the delivery of fire protection service in
the Village of Larchmont. Specifically, the scope of services for this Study included the
following:
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INTRODUCTION
SCOPE OF THIS STUDY (Continued)
A. Review community characteristics, demographic information, mission
of the fire service, and philosophies of fire protection services of
Village officials and citizens of the community.
B. Assess fire risks in Larchmont.
C. Assess the EMS requirements in Larchmont; best arrangement for the
future, the appropriate role of firefighters and the staffing requirements
for the first responder services.
D. Assess the operations of the fire service including, managing fire
operations, distribution of personnel, apparatus staffing, EMS interface,
supervisory requirments, response times and the fire station facility.
E. Assess the fire apparatus utilized by the volunteer and paid firefighters
in Larchmont, including capabilities of surrounding fire departments.
F. Assess current and future needs relative to fire prevention, public
education and safety programs.
G. Assess the training program for firefighters serving Larchmont.
H. Assess current mutual aid.
I. Assess labor/management contract to include, provisions, services,
administration, accountability, funding and opportunities for the future.
The Study Team has experience in reviewing fire service delivery for municipalities ranging
in size from the City of Los Angeles (1995 Study) to communities with a population of
4,000. The lead consultant has served as a Deputy Chief of a major fire/EMS Department
(1,400 personnel) and has served as a volunteer Fire Chief. The firm has also conducted
LN,
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INTRODUCTION
SCOPE OF THIS STUDY (Continued)
assessment of fire services for the Village of Rye Brook, Town of Greenwich and City of
Stamford, which are served by paid, volunteer and reserve personnel.
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CHAPTER TWO
FIRE DEPARTMENT ORGANIZATION AND MANAGEMENT
CHAPTER TWO
FIRE DEPARTMENT
ORGANIZATION AND MANAGEMENT
This Chapter presents the organization of the Larchmont Fire Department and outlines a
number of options and recommendations for possible improvement. While the Study Team
supports the concepts of consolidation of fire services (as noted in Chapter Three), this
Chapter reviews and assesses organizational issues as the department is currently organized.
ORGANIZATIONAL PRINCIPLES
Organizing the fire protection services within a community to provide for the most efficient
and cost effective delivery of quality service is one of the most important functions of local
government. Historically, many fire protection services have been developed and organized
on the basis of local neighborhood need and initiative, rather than community-wide
requirements. In many instances, volunteer fire departments were formed. As communities
have become increasingly urban and workload has increased, especially emergency medical
services as the population ages, the need for better coordination and direction of fire and
rescue services and resources has required a different approach. Unfortunately, politics
(including actions from some volunteers and union personnel) often impede progress that
will better serve the community and make for a safer work environment.
A key fire protection organizational principle relates to the basic responsibility for public
safety within a community. It is widely accepted that fire protection is considered to be a
local government responsibility in most areas in the United States. Local government is
broadly interpreted to include municipalities, such as counties, cities, towns, villages,
boroughs and townships.
To attain the delivery of optimum fire and rescue service, it is essential that local government
recognize, accept and fulfill the responsibility to provide appropriate guidance and direction
in order to:
• Oversee the formation process of the organization of fire protection services
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FIRE DEPARTMENT ORGANIZATION
ORGANIZATIONAL PRINCIPLES (Continued)
• Assure that the fire protection organization reflects the public interest
• Protect the service from undesirable external interference
• Determine basic policies for providing services
• Define the legal duties and responsibilities of service providers
Identification of this authority and responsibility is addressed in Section 3-1 of the National
Fire Protection Association (NFPA) standard 1201, Developing Fire Protection Services for
the Public:
"The government agency responsible for establishment and operation of the
fire department shall adopt a formal statement (bylaw statute) of purpose and
policies for the fire department that includes the type and levels of services that
are to be provided, the area to be served, and the delegation of authority to the
fire chief and other officers to manage and operate the fire department."
The next Section of this Chapter addresses current legal authority to operate fire services in
the Village of Larchmont, current organization and relevant conclusions and
recommendations.
LEGAL AUTHORITY
A key organizational criterion in assessing the proper establishment and organization of a fire
department is the extent to which the organization has been established and defined in law.
The following sections outline appropriate sections of applicable law---State and local.
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FIRE DEPARTMENT ORGANIZATION
LEGAL AUTHORITY (Continued)
Village Law of the State of New York
Article 10 of Village Law of the State of New York specifies the organization of a fire
department within a village.
The fire department would be established under the general oversight of a board of fire
commissioners or fire council. The commissioners, subject to the approval of the village
board of trustees, exercise the following authority:
• Have care, custody and control of all village property of the fire department,
• May purchase such equipment and uniforms for the department and its members, and,
keep the same in good condition and repair,
• May erect and maintain suitable and necessary buildings for the fire department,
• May construct and maintain static water supply,
• May adopt rules and regulations governing fire companies and fire departments
prescribing the duties of members and may enforce discipline. These rules may not
authorize any member to interfere with the duties of the fire chief or the assistant fire
chief,
• May adopt rules for the admission, suspension, removal and discipline of the
members, officers and employees,
• May appoint persons with compensation to take charge of village property
• May employ duty or "call men" to serve on a part-time basis when necessary, and set
their duties and compensation, and,
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FIRE DEPARTMENT ORGANIZATION
LEGAL AUTHORITY (Continued)
• May inquire into the cause and origin of fires occurring in the village and may take
testimony in relation thereto.
Section 10-1006 of Village Law deals with volunteer members of village fire companies.
The volunteer members of a fire company shall be elected and appointed as stated in this
section.
Section 10-1008 states that "the members of all the fire, hose,protective and hook and ladder
companies of a village, organized and maintained in pursuance of law, constitute a
corporation by the name of the 'fire department of...'. The term, fire department of a village,
as used in this chapter, refers to such a corporation."
Regarding the officers of the various fire companies comprising a village fire department
Section 10-1010 states:
"Each of the several companies whose members constitute the fire department of the
village shall hold an annual meeting on the first Tuesday in April of each year. At
such meeting the members of each company shall elect by ballot from their own
number a captain and a lieutenant..."
Section 10-1012 specifies the process for appointment of the village fire department chief
and assistant chiefs. Subject to the process outlined, the board of fire commissioners of the
village consider members nominated and appoint the chief and assistant chief/s. Section 10-
1018 outlines the duties of the chief and assistants.
Larchmont Fire Department Code
Chapter 19 of the Code of the Village of Larchmont is entitled "Fire Department" and
includes the following articles and sections:
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FIRE DEPARTMENT ORGANIZATION
LEGAL AUTHORITY (Continued)
Article I - Nonresident Membership States that the membership of each of the
volunteer fire companies of the Fire
Department may include no more than
thirty (30) nonresident members, and that
non-resident members shall reside within
two (2) miles of the nearest boundary of
the Village. It further states that each
company shall certify to the Village Clerk
any changes to the nonresident list within
thirty (30) days of any changes.
Article 11 - Chiefs and Assistant Chief States the process by which a vacancy in
the office of chief or any of the assistant
chiefs would be filled prior to the end of
the term for which the officer was
appointed.
This Larchmont Fire Department related Code was adopted by the Village Board and
supersedes related sections of State of New York Village Lav previously discussed in this
Section.
The Study Team has assessed the legal framework of a number of fire departments similar
to that of the Larchmont Fire Department. Larchmont's Code, in conjunction with State
Village Law, as the legal framework for the establishment and management of the Fire
Department appears to be complete and consistent with accepted principles and practices of
fire protection services nationally.
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FIRE DEPARTMENT ORGANIZATION
THE FIRE DEPARTMENT TEAM
During the course of conducting this assessment, it became exceedingly clear to the Study
Team that the various components of the Larchmont Fire Department (chief officers,
companies and paid staff) do not currently function as a team. It appears evident that, as
stated well by a volunteer member, "an adversarial relationship exists between the paid and
volunteer, the chiefs and paid and between the volunteers and the chiefs to the extent, for
example, that the chief officers make little or no visits to the firehouse on a daily basis and
have moved their office off-premises from the firehouse and have directed Department mail
to a post office."
The conduct of this Study included extensive interviews of Fire Department personnel
(volunteer and paid), Village officials and members of the public. In addition, the Study
Team conducted a detailed survey of volunteer personnel to gather essential data and provide
a means for direct input to the Study Team. A consistent overriding theme heard by the
Study Team throughout this assessment process was that the Larchmont Fire
Department could improve its team approach.
Some of the specific statements and thoughts expressed by volunteer Fire Department
personnel can be summarized as follows:
• The relations between paid and volunteer ranks and the Village have reached an all-
time low
• The morale of both paid and volunteers has never been worse
• The chiefs have shown that they are following their own agenda
• My strongest recommendation would be for there to be more control within the
Department
• We need much more Department unity
• They don't like us, we don't like them---it was never like that before
• We need strong chiefs and better communications
• There is anger on both sides
• The chiefs are in-charge of the volunteers and the union is in charge of the paid staff
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FIRE DEPARTMENT ORGANIZATION
THE FIRE DEPARTMENT TEAM (Continued)
• The paid captain is not calling the shots for the paid staff
• We need to find a way to get every member, paid and volunteer, to work for one
unified department
• We need to have stronger chiefs
• A paid chief would work better to satisfy both sides---paid and volunteer
• The problems are not financial but adversarial
• Consideration should be given to the idea of hiring a paid chief from the private sector
to run both volunteers and paid with power to discipline all severely
The consistent theme expressed by personnel to the Study Team is that there are serious
organizational and relationship problems within the Larchmont Fire Department. The desire
of all personnel in the various components of the Fire Department seems to be to
redevelop THE TEAM within the Larchmont Fire Department. The Study Team was
impressed by the expression of a strong willingness by all personnel---volunteer and
paid alike---to commit the time and effort to redevelop the team approach.
The opinions regarding appropriate solutions to this major problem within the Larchmont
Fire Department vary widely among the members, paid and volunteer. Many different ideas
for solutions for organizational change were suggested to the Study Team. This Chapter
presents a number of organizational change options for consideration by the Village and its
Fire Department. These suggested changes focus on the long-term redevelopment of a team
approach within the Larchmont Fire Department. The suggestions for organizational
changes made by many members of the Fire Department serve as the basis for a number of
recommendations made in this and subsequent chapters of this report by the Study Team.
The Study Team sincerely appreciates the openness and willingness to provide input by
all members, paid and volunteer, of the Larchmont Fire Department. That input
assisted the Study Team to have a clear understanding of the various issues and
opportunities for potential improvement available to the Village and its Fire
Department.
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FIRE DEPARTMENT ORGANIZATION
FIRE DEPARTMENT MISSION AND GOALS
An organizational mission statement and broad statement of goals may assist in setting a
positive tone and atmosphere for the provision of service by a fire department. Many fire
departments have found that the establishment of mission and goal statements have focused
the efforts of all personnel on the key philosophies that drive the quality of service to be
provided. They have also found that the existence of such philosophical statements assist in
the process of improving internal relationship issues.
For these reasons, the Study Team considers the adoption of a mission statement and set of
general goals to be an essential part of the successful governance and administration of the
Larchmont Fire Department.
Organization Mission Statement
The Study Team was advised by Fire Department officials that a mission statement has not
been adopted for the Larchmont Fire Department. The following mission statement is
suggested for the Larchmont Fire Department:
PROPOSED MISSION STATEMENT
We are committed to preventing and minimizing the loss of
life and property through delivery of the highest quality,
effective, and efficient emergency fire and rescue service,
emergency medical first responder service, hazardous
material emergency first responder service, fire prevention,
and public education service to the residents and businesses
of Larchmont.
We are committed to excellence, professionalism, courtesy,
and devotion to duty.
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FIRE DEPARTMENT ORGANIZATION
FIRE DEPARTMENT MISSION AND GOALS (Continued)
A number of progressive and well-managed fire departments have adopted an organizational
philosophy in conjunction with an overall mission statement. The Study Team suggests the
following organizational philosophy for the Larchmont Fire Department.
ORGANIZATION PHILOSOPHY
As an organization we strive:
1. To be disciplined and accountable for our actions.
2. To gain public input relative to service delivery.
3. To be responsive to community needs.
4. To maximize available resources.
5. To provide organizational support.
6. To be innovative, successful finishers.
These philosophical points are intended to integrate the Larchmont Fire Department's values
with the way the Department serves the community.
Department Members
The Study Team was provided a copy of the Code Of Conduct for the Volunteer Members
of the Larchmont Fire Department. Additionally, the Study Team was provided a copy of
the Rules and Regulations for the Uniformed (paid)Firefighters of the Village of Larchmont
Fire Department. These documents both include a number of specific conduct-related
policies to be followed by members (volunteer and paid) of the Fire Department.
The Study Team noted that there are no general overall philosophies applicable to members.
The Study Team suggests adoption of the following values for members of the Larchmont
Fire Department.
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FIRE DEPARTMENT ORGANIZATION
FIRE DEPARTMENT MISSION AND GOALS (Continued)
PROPOSED MEMBER PHILOSOPHIES
It is the responsibility of each volunteer and paid member of the Larchmont Fire
Department to support the mission and goals of the Fire Department by subscribing
to the following values:
For the Community:
1. Recognize that the community is the reason for our presence.
2. Value the faith and trust of the community, and continually work to gain that
confidence through our attitude, conduct, and accomplishments.
3. Adhere to the principle that lives are more valuable than property.
4. Recognize that the safety of the public is of paramount importance, followed
closely by the safety of our members.
5. Assure that all members of the public are entitled to our best efforts and that
they will be treated as valued customers.
For the Department:
1. Strive for excellence in all our work.
2. Never compromise honesty, fairness, and integrity.
3. Continually develop and implement programs to assure effectiveness,
efficiency, and economy.
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FIRE DEPARTMENT ORGANIZATION
FIRE DEPARTMENT MISSION AND GOALS (Continued)
4. Stress unity and teamwork as necessary to our mutual advantage as individuals
and as an organization.
5. Encourage members to continually improve their skills as individuals and
employees.
6. Assure the free exchange of ideas.
7. Provide professional and courteous service at all times.
8. Remain sensitive to changing community needs.
In consideration of these general philosophies by members in all assignments and
relationships with each other, Village officials and members of the public should assist in
maintaining and improving services to the public as well as further developing a team effort
in the delivery of fire, rescue and emergency medical first responder service.
ORGANIZATION STRUCTURE
The following sections review the current organizational structure of the Larchmont Fire
Department and suggest options and recommendations for Village officials to consider for
the future management and direction of the Fire Department.
As stated in its Constitution and By-Laws, the Larchmont Fire Department is a corporation
created under and pursuant to the Village Law of the State of New York. As discussed in the
remainder of this Section, the Fire Department is managed and directed by the Fire Council
and fire chief.
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FIRE DEPARTMENT ORGANIZATION
ORGANIZATION STRUCTURE (Continued)
Fire Council
The Larchmont Fire Department is generally managed and directed by the Fire Council
which, according to its By-Laws, has the following powers:
Unilateral Powers:
1. Make and prescribe By-Laws for proper management of affairs and
disposition of the funds of the Fire Department
2. Appoint or call all meetings of members and to designate one or more
days in each year for public exercise, inspection and review
Sub-ject to the Approval of the Board of Trustees:
3. Care, custody and control of all property belonging to the Fire
Department
4. Adoption of rules for the admission, suspension,removal and discipline
of the members, officers and employees of the Fire Department and to
prescribe their powers and duties
5. Control and supervision of members, officers and employees of the Fire
Department and direction of their conduct at fires and prescription of
methods of extinguishment
6. Appointment of persons other than members or officers of the Fire
Department to take charge of the property of the Fire Department
7. Inquiring into the cause and origin of fires occurring within the Village
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FIRE DEPARTMENT ORGANIZATION
ORGANIZATION STRUCTURE (Continued)
To Recommend to the Village Board of Trustees:
8. Purchase of fire engines, hose, tools, implements, apparatus and other
equipment and uniforms for active members, and keep the same in
good condition and repair
9. Erection, installation and maintenance of water supply
10. Appointment of not more than twenty (20) duty or"Call Men" and the
fixing of their duties and compensation (It is assumed by the Study
Team that the term `men' includes women.)
11. Fixing of compensation of all members, officers and employees of the
Fire Department and of all persons who may have been authorized to
take charge of the property of the Fire Department
Establishment of a Board of Fire Commissioners
Village Law of the State of New York provides for either a board of fire commissioners or
a fire council to provide overall management and direction of a village fire department.
According to Village Lav, when a separate board of fire commissioners is appointed by the
village board, a fire council cannot function in the village and the board of fire
commissioners has control over the fire department assets.
Further, in a village in which separate fire commissioners are not appointed, the chief, the
assistant, and the wardens of the several companies constitute the fire council of the fire
department. According to Village Law, such a fire council shall have all the powers and be
subject to all the liabilities and perform most of the duties of a separate board of fire
commissioner.
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FIRE DEPARTMENT ORGANIZATION
ORGANIZATION STRUCTURE (Continued)
The Larchmont Village Board of Trustees has apparently chosen to not appoint a separate
board of fire commissioners. Therefore, the Larchmont Fire Department is generally
managed and directed by the Fire Council. In assessing the entire organizational structure
of the Fire Department to identify means for facilitating the re-establishment of a team
approach within the Larchmont Fire Department, the Study Team felt that the reassessment
of the relative benefits of the two available approaches to overall management and direction
of the Fire Department---board of fire commissioners and fire council---was inappropriate.
It appears to the Study Team that one of the major "stumbling blocks" to a team approach
in the Fire Department is the number of different organizational units that comprise the
Larchmont Fire Department. The different units are:
1. Engine Company No. 1 of Larchmont headed by a captain
2. Larchmont Fire Company No. 2 (Hose Co.) headed by a captain
3. Hook & Ladder Company No. 1 of Larchmont headed by a captain
4. Ambulance Protective Corps (no members at this time)
5. Larchmont Fire Patrol Company headed by a captain
6. Paid staff headed by a captain
7. Union headed by a president
8. Departmental chief officers headed by the chief
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FIRE DEPARTMENT ORGANIZATION
ORGANIZATION STRUCTURE (Continued)
Each of these organizational elements is headed by an officer, (captain or above) except for
the union; each has its own by-laws or rules and regulations, and each has its own goals and
purpose for being.
The Fire Council is comprised of the chief, the two deputy chiefs and two wardens from each
of the companies. The Fire Council is made up solely of volunteer members of the Fire
Department and includes no Village, public or business representation. Given this approach
to the selection through election of members for the governing body of the Fire Department
(eight members elected,two from each company by the members of those companies), there
is a strong likelihood that positions taken, votes cast and issues pursued by Fire Council
members may not be from an objective Department-wide approach. The composition and
approach to the selection of members of the governing body of the Larchmont Fire
Department appear to fragment the organization rather assuring a cohesive structure that
promotes decisions on the basis of the overall good of the service and the Fire Department.
Therefore, the Study Team suggests that the Village Board of Trustees consider establishing
a Larchmont Board of Fire Commissioners, as the governing body of the Fire Department.
Such a Fire Commission could have broad representation from the Fire Department with
elections on Department-wide basis,the Village Board,and representation from residents and
businesses of the community. A seven member Board of Fire Commissioners, appointed for
two year terms by the Village Board of Trustees, is suggested with membership as follows:
• One member of the Village Board of Trustees
• One Village resident
• One Village business representative
• The Chief of the Fire Department
• Three other Fire Department representative elected at-large every two years from the
membership
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FIRE DEPARTMENT ORGANIZATION
ORGANIZATION STRUCTURE (Continued)
It is suggested that the chairperson of the Board of Fire Commissioners be elected annually
by the Commission from its membership.
The creation of a Larchmont Board of Fire Commissioners in accordance with Village Law
should be considered by the Village Board of Trustees as an important means of providing
a more cohesive Fire Department structure with Village, resident and business representation
at the highest level of management of the Larchmont Fire Department.
Officer Structure
The Larchmont Fire Department provides service under the supervision of officers selected
or appointed from two different components (company or paid staff) of the Fire Department
following three different selection or appointment approaches as described in the following
sections.
Departmental Officers
The By-Laws establish the Departmental Officers of the Larchmont Fire Department as the
chief, first deputy chief and second deputy chief. (See Figure 2.1) The primary
responsibilities of each of the Departmental Officers is as follows:
The primary duties of the chief are to;
• Be President of the Fire Council and of the meetings of the Fire Department; under
the direction of the Board of Trustees and Fire Council
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FIRE DEPARTMENT ORGANIZATION
ORGANIZATION STRUCTURE (Continued)
Figure 2.1
Departmental
Officers
CHIEF
FIRST DEPUTY
CHIEF
SECOND DEPUTY
CHIEF
• Have exclusive control of the members, at all fires, departmental drills, inspections
and reviews, or other Departmental emergency duty
• Supervise engines, hose and other apparatus owned by the Village for the prevention
or extinguishment of fires and of all property owned by the Fire Department, and of
all officers and employees
• Hold the members, officers and employees of the Department strictly to account for
neglect of duty, and may suspend or discharge them at any time subject to subsequent
approval by the Fire Council
The duties of the first and second deputy chiefs are to serve as second and third, respectively,
in command of the Fire Department, and, in the absence of the chief, perform the duties and
have all powers of the chief.
The Study Team noted that the deputy chief rank is not recognized or mentioned in Village
Law, which establishes the ranks of chief and assistant chief for village fire departments. In
addition, Larchmont Code refers to the rank of assistant chief and not that of deputy chief.
oil
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FIRE DEPARTMENT ORGANIZATION
ORGANIZATION STRUCTURE (Continued)
The rank of deputy chief is referred to in the Larchmont Fire Department's Constitution and
By-Laws, Rules and Regulations for the Uniformed Firefighters,the Code of Conduct for the
Volunteer Members of the Village of Larchmont Fire Department, and in various directives
issued by the chief. Further,the Study Team noted that Village Law(Section 10-1002)states
that the By-laws of a village fire department may not supersede Village Law.
For consistency with Village Law, it is suggested that either the Larchmont Fire Department
revert to use of the rank title of assistant chief or that the Village Board of Trustees pass a
revision to the Village Code adopting the rank of deputy chief.
Company Officers
The company officers, as outlined in the Constitution and By-Laws of the Larchmont Fire
Department, are a captain, a first lieutenant and other officers as determined in each
respective company by-laws. The constitution and by-laws of the individual companies
within the Fire Department state that the officers (operational) of the companies are a
captain, a first lieutenant, a second lieutenant and a third lieutenant. (See Figure 2.2)
Additionally, each company has a secretary and a treasurer for administrative purposes.
The duties and responsibilities of each of the four types of officers may vary slightly among
the various companies in the Larchmont Fire Department. However, the duties and
responsibilities of personnel serving in each of the officer ranks may generally be described
as follows.
The captain is primarily responsible to:
• Preside at all meetings of the company, sign all orders on the Treasurer for payment
of bills, appoint committees and officers not otherwise provided for
• Be in command whenever the company is on duty of any kind
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FIRE DEPARTMENT ORGANIZATION
ORGANIZATION STRUCTURE (Continued)
Figure 2.2
in
Company Op.
Officers
CAPTAIN
FIRST
LIEUTENANT
SECOND
LIEUTENANT
THIRD
LIEUTENANT
• Call upon the company, or any member, for any emergency duty at such times as the
Mayor, Village Trustees, or chief shall order
• Manage the apparatus and everything pertaining thereto, that it is kept in good
condition and repair at all times
• May order drills at his discretion
It appears that each volunteer company captain serves, in essence, as the executive officer
of the company and is in command of the company and calls upon the company, or any
member (of the company) as ordered by the chief during emergencies.
The First Lieutenant has the following responsibilities:
• Ranks second in command of the company and, in the absence of the company
captain, assumes and discharges the company captains duties
• Inspects the apparatus and reports the results to the regular company meeting
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FIRE DEPARTMENT ORGANIZATION
ORGANIZATION STRUCTURE (Continued)
The Second and Third Lieutenants rank third and fourth in command of the company and,
in the absence of company superiors, assume their duties.
A review of the duties and responsibilities of the company officers is appropriate to
determine the extent to which their stated duties and responsibilities contribute to the overall
operation of a unified fire department. In this regard the Study Team noted the following:
• It does not appear that a captain or lieutenant of one company has operational
command over subordinate members of other companies', therefore, it seems that,
based on the constitution and by-laws of the companies, each group of company
officers may command only the members of that company on a given emergency call
• There is no reference in company constitution and by-laws to any non-operational role
that a captain might be directed by the chief to perform
The role of the company officers, as prescribed in each company constitution and by-
laws, appears to contribute to the apparent lack of unity within the Larchmont Fire
Department. The sixteen captains and lieutenants comprising the company officers of the
Fire Department are each elected by one of the companies and carry out the duties and
responsibilities prescribed by the respective company. The company constitution and by-
laws do not address any broader role for the company officers as part of the Larchmont Fire
Department, other than carrying out the orders of the chief during emergency duty and
reporting any apparatus repair information to the chief.
The Study Team also reviewed the duties and responsibilities of company officers prescribed
in the Larchmont Fire Department Constitution and By-Laws to determine if there is a
broader Department-wide role addressed there-in for company officers. Only the duties of
the company captains are noted. These include:
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FIRE DEPARTMENT ORGANIZATION
ORGANIZATION STRUCTURE (Continued)
• Furnish the Council or the chief, upon request, with information respecting the
condition of the company
• Report immediately to the chief any repairs necessary to their apparatus or equipment
• Insure that no part of their apparatus is removed, except by permission
• Report promptly to the Secretary of the Council the names of company members who
fail to answer their names at roll-call after any alarm, upon request of the chief
• Send information relative to changes in company membership to the Secretary of the
Council monthly
There is an overall requirement in the Fire Department Constitution and By-Laws for all
active members of the Department to report immediately to the scene of the fire or place of
the emergency unless otherwise ordered by the chief, deputy chief or other competent officer
of the Department. However, beyond the requirement to report, the company officers'
written duties and responsibilities do not address any overall Larchmont Fire
Department-wide role. The written roles of the company officers are clearly focused only
on company related matters.
The Fire Department Constitution and By-Laws provide the chief of the Fire Department
with broad administrative and operational supervisory authority over any of the 16 company
officers. However, the authority of the chief is not reflected in any listing of company officer
duties and responsibilities. This conflict could be the source of the perceived lack of
cohesion and unity in the Larchmont Fire Department.
The provisions of the various volunteer companies that presently comprise the Larchmont
Fire Department call for the election of a total of 16 company officers, 12 lieutenants and
four captains. In all the fire department assessments it has conducted the Study Team has
not observed anv single station volunteer fire company operation with as many elected
officers. During interviews with members, the Study Team was advised that on most
emergency incidents an excessive number of volunteer personnel on the scene are company
officers when compared to the number of firefighters at the scene.
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FIRE DEPARTMENT ORGANIZATION
ORGANIZATION STRUCTURE (Continued)
The number of company officers appears to be driven by company by-laws, each of which
calls for the election of a captain and three lieutenants. The Constitution and By-Laws of the
Larchmont Fire Department includes provisions for the election of one captain and one
lieutenant per company. If the companies were limited to the total operational officers
provided by the Fire Department By-Laws, a more reasonable number of volunteer
operational company officers would be elected to serve in the one fire station that services
slightly more than a one square mile area. Therefore, the Village Board of Trustees should
consider establishing a maximum of eight total volunteer company officer positions within
the Larchmont Fire Department.
Paid Officers Figure 2.3
Paid Officers
The paid officers of the Larchmont Fire Department are a CAPTAIN
captain and three lieutenants who have been duly selected and
appointed by the Village of Larchmont Board of Trustees
under New York State Civil Service Law and consistent with
the Union Contract with the Larchmont Professional Fire LIEUTENANT
Fighter's Association, Local 895, International Association of
Firefighters. (See Figure 2.3).
The Study Team was advised that there is no Larchmont documentation of the relative roles
and responsibilities of the paid captain and the paid lieutenants. Further, no reference was
found in any of the constitution and by-laws to the existence of paid officers as part of the
Larchmont Fire Department. It would seem to be difficult to foster a team approach in a fire
department where the sheer existence of an important component of the organization is not
referenced.
The Union Contract references the salaries of the various positions, including captain and
lieutenant. And, the Rules and Regulations for the Uniformed Firefighters include the ranks
of captain and lieutenant in the definition of Officer on Duty. However, the relative roles of
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FIRE DEPARTMENT ORGANIZATION
ORGANIZATION STRUCTURE (Continued)
the captain and lieutenant is not outlined in either of these documents. Based on the
observations of the Study Team, the personnel serving in the positions of captain and
lieutenant are utilized similarly as shift officers. The captain does not appear to be given any
additional higher level duties and responsibilities that would normally be commensurate with
such a higher rank.
Ex-Chiefs
The Study Team was advised by Fire Department officials that the incident chain of
command includes ex-chiefs as next in the order of command in the absence of the chief or
any deputy chief. An official role for ex-chief officers in the incident chain of command is
not addressed in any of the constitution or by-laws or rules and regulations. The only
reference found by the Study Team to any incident related authority being given to ex-chiefs
was in a 1993 Directive issued by the chief.
The Studv Team members, who have assessed more than 80 fire departments and become
familiar with a number of other fire department organizations during these assessments, have
encountered no other fire department that continues to give ongoing incident command
authority to chiefs after leaving office. There are no ongoing training requirements for ex-
chiefs; and, further, there is no assurance that ex-chiefs will retain any incident command
proficiency or remain up-to-date on operational issues and procedures. For these reasons,
it is suggested that the policy of including ex-chiefs in the incident chain of command be
rescinded.
Volunteer Officer Eligibility Requirements
An individuals level of competency and ability to lead and perform the job of any fire officer
is determined to a large extent by the experience and training previously received by the
individual. For that reason,the existence of training and experienced-based officer eligibility
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FIRE DEPARTMENT ORGANIZATION
ORGANIZATION STRUCTURE (Continued)
requirements is considered essential to having well qualified officers and leaders within a fire
department.
The following outlines the current requirements for eligibility for election to the various
volunteer officer positions in the Larchmont Fire Department, as outlined in its Constitution
and By-Laws.
Chief and deputy chief:
• Active member of the Fire Department
• Must have served a minimum of eight (8) years as an active member with the
minimum attendance level of fifteen percent (15%)
• Must have served three (3) years as a line officer
There are no training requirements for members of the Fire Department to be eligible to be
elected to the position of chief or deputy chief.
Captain:
• Must have served a minimum of five (5) years as an active member with a minimum
attendance level of fifteen percent (15%)
• Must have served two (2) years as a line officer
Apparently, to be eligible to be elected to captain, members are not required to be an active
member. Additionally, there are no training requirements for members of the Fire
Department to be eligible to be elected to captain.
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FIRE DEPARTMENT ORGANIZATION
ORGANIZATION STRUCTURE (Continued)
Lieutenant:
There are no eligibility requirements listed in the Fire Department Constitution and
By-Laws for the rank of lieutenant.
The Study Team noted that there are also no eligibility requirements for any company
officer position listed in each of the constitution and by-laws of Hose Company No.
2, Hook & Ladder Company No. 1, and the Fire Patrol Company. The Constitution
and By-Laws of Engine Company No. 1 include experience and training eligibility
requirements for each company officer position that exceeds the requirements
outlined in the By-Laws of the Fire Department.
Due to the critical importance of experience and training eligibility requirements to assure
that members placed in leadership positions are, at least minimally, qualified to perform
these essential public safety jobs, the establishment and compliance with volunteer officer
position eligibility requirements is essential. For this reason, the Village Board of Trustees
should consider establishing minimum operational officer experience requirements as
follows:
Proposed Requirements for Chief and Depute Chief:
• Must be, and have been for eight (8) years, an active member with a minimum
attendance of 15 percent
• Must have maintained at least a minimum attendance of 25 percent for the preceding
12 month period
• Must have served at least one year each at the ranks of lieutenant and captain, and for
chief one year as deputy chief
• Must have successfully completed the NYSOFPO training courses required for the
company officer ranks, Incident Command System and the courses for New York
State Firefighter Class I certification, which includes:
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FIRE DEPARTMENT ORGANIZATION
ORGANIZATION STRUCTURE (Continued)
- Ladder Company Operations
- Pump Operator
- Accident Victim Extrication
- Hazardous Materials 1 st Responder Operations
Proposed Requirements for Captain and Lieutenant:
• Must be, and have been for five (5) years, an active member with the minimum
attendance of 15 percent
• Must have maintained at least a minimum attendance of 25 percent for the preceding
12 month period
• For captain, must have served at least one year at the rank of lieutenant
• Must have successfully completed the NYSOFPO training courses required for the
company officer ranks, Incident Command System and the courses for New York
State Firefighter Class II certification, which includes:
- Firefighting Essentials
- Initial Fire Attack
- Fire Behavior and Arson Awareness
It is suggested that these officer eligibility requirements be phased in over a three-year period
with all requirements being effective for the elections of the year 2000.
Dav-to-Dav Fire Department Direction
When considering apparent causes of the lack of a team approach as part of the assessment
of any fire department or organization, the method by which the fire department is directed
on a day-to-day basis should be considered in terms of the need for any improvements.
In New York, Village Law provides basically two options for the day-to-day operational and
administrative direction and oversight of a village fire department. A village board of
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FIRE DEPARTMENT ORGANIZATION
ORGANIZATION STRUCTURE (Continued)
trustees may elect to have this day-to-day oversight by either a volunteer chief or a paid
chief. Through the years, the Larchmont Board of Trustees has chosen to have the function
of chief of the Larchmont Fire Department be a volunteer member.
According to the Constitution and By-Laws of the Larchmont Fire Department:
...the chief, under the direction of the Board of Trustees of the Village, and
the Fire Council, has had exclusive control of the members, at all fires,
departmental drills, inspections and reviews, or other Departmental emergency
duty, the supervision of the engines, hose and other apparatus owned by the
Village, for the prevention or extinguishment of fires, of all property owned
by the Fire Department, and of all officers and employees thereof, elected or
employed by the Council or by the Board of Trustees, if any."
A number of members of the Larchmont Fire Department, including volunteer members,
suggested to the Study Team that the Village Board of Trustees should consider appointing
a paid professional chief. These members suggested this change be considered due to the
changes that have taken place in the Village and in the Fire Department, as well as, the
current internal problems and lack of team a approach.
In assessing the option of a paid chief for the Larchmont Fire Department, the Study Team
considered the potential advantages and disadvantages of such an organizational change.
The advantages and disadvantages appear to be as follows:
Advantages of Appointing a Paid Chief:
1. A paid chief working full-time in the fire station would generally be able to
commit significantly more time to the job compared to a volunteer who would
normally have another full-time career.
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FIRE DEPARTMENT ORGANIZATION
ORGANIZATION STRUCTURE (Continued)
2. A paid chief could be held more directly accountable to the Village Board of
Trustees.
3. The Village could select a fire chief based on specific qualifications.
4. It may be easier for a paid chief to be objective in dealing with and working
toward the resolution of the major issues and problems currently facing the
Village and the Larchmont Fire Department.
5. A paid chief may provide more direct and closer fiscal oversight of the Fire
Department, particularly including the use and expenditure of overtime funds.
6. There should be a significant increase in the level of respect for the chief by
the paid staff which normally results in increased staff supervision and
accountability.
7. A paid chief may assure consistency in implementing changes in the Fire
Department.
8. A paid chief could be tasked with the continuation of the Larchmont Fire
Department as a successful and progressive combination fire department with
a strong volunteer component.
9. A paid chief may provide improved communications among the various
components of the Larchmont Fire Department.
Disadvantages of a Paid Fire Chief:
1. The salary and benefits of a paid chief would be an addition to the Fire
Department budget, if current staffing and apparatus are maintained.
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FIRE DEPARTMENT ORGANIZATION
ORGANIZATION STRUCTURE (Continued)
2. The appointment of a paid chief could serve as a disincentive to volunteers
within the Fire Department.
3. A paid chief, depending on the individual selected, might not have the
institutional knowledge of the Larchmont community.
If the Village Board does not pursue consolidation with the Town of Mamaroneck, the
appointment of a paid chief should be considered by the Village Board of Trustees. The
estimated cost of a paid chief is $100,000 for salary and benefits. With the appointment of
a paid chief, the current paid captain position could revert to the rank of lieutenant as
determined appropriate by the Village Board of Trustees resulting in an estimated annual
savings of $3,000. In this manner each of the four shifts would be headed by a paid
lieutenant reporting to the chief. Therefore the estimated net cost of appointing a paid chief
would be approximately $97,000.
It may be very difficult for a volunteer member who has been part of the organization to
develop the Larchmont Fire Department into a team. The need to improve the team approach
seems to be the most important issue currently facing the Fire Department, particularly the
volunteer component. If the current frictions and strife are not quickly resolved,
effectiveness of the volunteer component of the Fire Department may be diminished
significantly.
A Larchmont Fire Department volunteer leader, who is a long time resident of the
community and has been an integral part of the Fire Department for many years, advised the
Study Team that"if major changes are not made to resolve the internal dissension in the Fire
Department and reverse negative destructive relationships and influences, the volunteers will
likely not exist as a viable part of the organization in three to five years." The Study Team
concurs with this prediction and, therefore, suggests that the Village Board of Trustees
appoint a paid chief for the Larchmont Fire Department. Of course, if consolidation occurs,
this recommendation could be irrelevant.
Nil
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FIRE DEPARTMENT ORGANIZATION
MEMBER COMPANIES
The Constitution and By-laws of the Larchmont Fire Department list the following five
companies as part of the Fire Department:
1. Engine Company No. 1 of Larchmont, organized in 1891
2. Larchmont Fire Company No. 2 (Hose Co.), organized in 1889
3. Hook & Ladder Company No. 1 of Larchmont, organized in 1891
4. Ambulance Protective Corps
5. Larchmont Fire Patrol Company, organized in 192
With the exception of the Ambulance Protective Corps, the companies are organized in a
similar manner. The Ambulance Protective Corp is apparently an inactive company since
it is listed in the Constitution and By-Laws of the Larchmont Fire Department as existing but
without any authorized membership. Each of the four active companies:
• Has its own by-laws
• Has a similar organizational structure of company operational and administrative
officers
• Is comprised of members in similar membership categories
• Hold monthly membership meetings on the same nights
• Are expected to hold training sessions focused on their respective type of apparatus
• Has its own meeting/social room above the apparatus floor in the Village Hall
• Elects officers and members to positions following a similar process
• Elects two wardens to serve on the Fire Council
• Appoints similar types of committees to conduct company business
• Collects and expends or invests funds received
Nationally, it is unusual to find more than one volunteer company housed in and operating
from the same single fire station. To have five volunteer fire companies operating from the
same fire station is very unusual. Apparently, this organizational approach originally
developed when fire protection was provided by means of horse-drawn fire and patrol
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FIRE DEPARTMENT ORGANIZATION
MEMBER COMPANIES (Continued)
apparatus. Each company was formed to support and provide service with a specific type of
apparatus---engine, hose, hook & ladder and patrol. Through the years, even though the
methods of providing service changed greatly (there are now diesel apparatus), this multiple
volunteer company organizational approach was solidified and has remained the same to this
day.
When performing fire department assessments, the Study Team is very sensitive to and
interested in the historical aspects of each fire department. Due to the importance of history
and the traditional nature of the fire service generally, the Study Team is very careful to
consider the historical aspects of organizations. The volunteer companies are the history of
the Larchmont Fire Department and, and although to a lesser extent today, they are an
integral part of the Fire Department, as well as the community.
Considering the major issue facing the Larchmont Fire Department in 1996---the fragmented
nature of the organization and need for better teamwork---the Study Team considered the
extent to which having five fire companies within the same fire department contributes to or
detracts from the critical need for a team approach within the Larchmont Fire Department.
The Study Team noted that, during the interview process, a number of volunteer members
questioned the current need for the continued existence of the five companies as operational
entities within the Larchmont Fire Department.
Justifications for Multiple Companies
There is clearly a justification for at least one volunteer fire company in the Larchmont Fire
Department to support the administrative needs of the volunteer component of the
organization. A number of these administrative needs include:
• Organization to which the volunteers are members
• Processing of membership applications and handling of membership records
• Structure from which members are elected to serve the Fire Department
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FIRE DEPARTMENT ORGANIZATION
MEMBER COMPANIES (Continued)
• Administrative structure for the handling of funds and fund raising
• Provide rules and structure for volunteer members to follow
The next questions then are: what is the justification for the continued existence of multiple
companies within the Larchmont Fire Department and do these multiple companies
contribute to or detract from a team approach within the Fire Department? The Study Team
has considered these questions and believes that, although the multiple companies have
served the community well in the past as part of the Larchmont Fire Department, their
continued existence as separate entities within the Fire Department may not be justified on
any other basis than that of tradition. Moreover, it appears that the existence of multiple
companies within the Larchmont Fire Department results in duplication of effort and lack of
clarity in the organizational structure. The following are apparent results from the existence
of multiple companies:
• An excessive number of company operational officers for a one-station fire
department serving one square mile of service area
• Demand for four individual meeting/social rooms in the Village Hall
• Duplication of effort by the creation of multiple similar committees, e.g., multiple
membership, nominating, auditing, discipline, room, entertainment, uniform and
finance committees
• Duplication of effort by the election of multiple similar administrative officers, e.g.,
multiple treasurers and secretaries
• Compartmentalized training program with each company concentrating their training
efforts on only their type of apparatus rather than on the broad training needs of
firefighters
• Demand for each company to have its own apparatus rather than the determination of
the type and amount of apparatus based on service needs of the community
• Competition between companies for a limited number of volunteers recruited from
the community
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FIRE DEPARTMENT ORGANIZATION
MEMBER COMPANIES (Continued)
• Potential for the dedication and commitment of the volunteer member to be focused
on the company and its administration and needs rather than to the Fire Department
and service to the public
• Unnecessary expenditure of additional and duplicate funds required to support
multiple companies
• Increased difficulty fostering consistent and open communications within the Fire
Department because of increased layers of organizational bureaucracy attributed to
multiple companies
• Misunderstanding and lack of compliance with rules and policies due to multiple sets
of by-laws and rules and regulations, some of which are not consistent
• Potential difficulty for the chief to form a management team due to the multiple
companies and the role that the company officers are required to assume for each
individual company
Based on the apparent problems resulting from multiple companies within the Larchmont
Fire Department, it appears to the Study Team that the multiple companies are a hindrance
rather than a benefit to the effective operation of the Fire Department and the provision of
operational service to the community. Therefore, it is suggested that the Village Board of
Trustees consider taking the following actions to streamline the organization of the
Larchmont Fire Department by reducing its internal complexity and bureaucracy. The
following actions should be considered:
A. Abolish the Ambulance Protective Corps which has no members and
is apparently not an active company.
B. Cause all companies to hold meetings annually with Department
meetings being held monthly for improved communications and
management.
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FIRE DEPARTMENT ORGANIZATION
MEMBER COMPANIES (Continued)
C. Abolish the four current remaining companies and create one new
company to be titled the "Volunteer Fire Company of the Fire
Department of Larchmont, N.Y." This new fire company could be
organized similar to the current companies. The officers of the new
company could be two captains, six lieutenants, a treasurer and a
secretary.
D. If the suggested change in number of companies is not considered
appropriate, refocus the role of the remaining companies to
administrative matters only with all operational officers elected by the
general membership during the Fire Department's annual meeting. All
operational matters, including training and apparatus, could be under
the direction of the chief and the team of operational officers.
These organizational changes should contribute significantly toward the redevelopment of
a team approach to the management and direction of the Larchmont Fire Department.
FISCAL OVERSIGHT AND CONTROL
Village Budget Trends
According to budget data provided by Village officials, the adopted general fund budget for
the Village of Larchmont for the 1995-96 fiscal year is $8,381,815. Figure 2.4 shows the
Village budgets for the last four years. Figure 2.5 shows that the assessed valuation
decreased by 2.03 percent during this period.
The cost of public safety services as a percent of the Village budget has been steadily
increasing. As illustrated in Figure 2.6 , from fiscal 1989-90 through fiscal 1994-95, the cost
of public safety services as a percent of the overall Village budget has increased from 35.8
percent to 37.7 percent.
oil
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FIRE DEPARTMENT ORGANIZATION
FISCAL OVERSIGHT AND CONTROL (Continued)
Fire Department Budget
The adopted budget for the Larchmont Fire Department is $948,225 for fiscal 1995-96. This
budget includes salaries and overtime, equipment and contractual expenses. This most
recently adopted budget is an increase of $23,725, or a 2.6 percent, increase over the
previously approved 1994-95 fiscal Fire Department. It should be noted that the Fire
Department budget does not include debt service or the cost of personnel benefits which is
normally around 35 percent of total salaries and wages.
The per capita cost of the Fire Department is $153.41, not including benefits and debt
service. This is one of the highest per capita cost seen by the Study Team.
The Fire Department budget has increased by$148,462 from fiscal 1990-91 through the most
recently adopted 1995-96 fiscal budget. (See Figure 2.7). This is an 18.6 percent increase
over this six year period---slightly over three percent increase each fiscal year.
Salaries and wages, including overtime expenditures,have also continued to increase steadily
over the last seven years. Figure 2.8 illustrates this trend from fiscal year 1989-90 through
1995-96.
Comparative Data for Westchester Villages
Larchmont's cost of fire protection is usually one of the highest, when compared to fire
department expenditures of other villages in Westchester County, based on reports by the
villages to the State of New York Comptroller annually. Larchmont was second highest in
fire department operating and capital expenditures, according to the State of New York
Comptroller's Special Report on Municipal Affairs issued for fiscal year ended 1990. Again,
for fiscal year ending 1992, the same report indicated that Larchmont had the second highest
fire department expenditures when compared to other villages in Westchester County. (See
Figure 2.9).
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FIRE DEPARTMENT ORGANIZATION
FISCAL OVERSIGHT AND CONTROL (Continued)
Figure 2.9
COMPARISON OF VILLAGE FIRE EXPENDITURES
Fiscal Year Ending 1992
VILL*%GES IN FV 1992 FY 1992 1992
WESTCIIESTFR COUNTY OPERATING CAPITAL TOTAL
ARDSLEY 187.2 25.0 212.2
BRIARCLIFF MANOR 71.0 22.8 93.8
BRONYVILLE 54.0 - 54
BUCHANAN 343.2 ---. 343.2
CROTON-ON-HUDSON 229.3 44.8 274.1
DOBBS FERRY 139.7 681.0 820.7
ELMSFORD 153.7 26.9 180.6
HASTINGS-ON-HUDSON 223.0 7.8 230.8
IRVINGTON 144.7 41.0 185.7
LARCHMONT 1.080.3 276.9 1-357.2
MAMARONECK 272.5 75.4 347.9
NIT.KISCO 264.6 - 264.6
NO.TARRYTOR N 92.4 324.2 416.6
PELHAM 712.9 4.0 716.9
PELHAM MANOR 1,249.7 17.0 1,266.7
PLEASANTVILLE - ---
PORT CHESTER 961.4 173.9 1,135.3
RYE BROOK 501.6 ---
TARRYTOWN 166.5 11.4 177.9
TUCKAHOE --- ---
Source: State of New York, Comptroller's Special Report on Municipal Affairs,
Village Finances, Fiscal Year Ended in 1992
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FIRE DEPARTMENT ORGANIZATION
FISCAL OVERSIGHT AND CONTROL (Continued)
Overtime Expenditures
Control of overtime expenditures is a constant issue requiring careful oversight in most fire
departments. Overtime expenditures can increase significantly in a short period of time if
special effort is not made to project and control overtime expenditures through constant
monitoring and the establishment and compliance with overtime policies and procedures.
The causes of overtime expenditures must be carefully analyzed in order to identify ways to
control and maintain overtime use at a minimum or at projected levels. Careful consideration
must also be given to all decisions to insure that any overtime expenditure are identified and
understood ahead of time.
Overtime Defined
Overtime is defined in Article 8 of the Union Contract between the Village of Larchmont,
NY and the Larchmont Professional Firefighters Association for June 1, 1994 through May
31, 1997, as follows:
"Section 1. Whenever an employee works in excess of his regular work week,
or work schedule, as provided for in Article 7, in addition to any other benefits
to which he may be entitled, his overtime pay for such work shall be at the rate
of two-and-one-half. The forty (40) hour work week as required by State Law
will be the basis used to determine the hourly rate. If an employee works
overtime for a full tour of duty (Day Tour or Night Tour), the number of hours
for such overtime work shall be considered as twelve (12) hours for each such
tour of duty, and further provided that any employee who is called back from
off-duty to perform overtime work for any reason, shall be given a minimum
of four (4) hours of work on each such occasion at the rate of time-and-one-
half. The work week schedule of the employee being irregular(in some cases
less than 40 hours and in some cases more than 40 hours) overtime shall be
oil
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FIRE DEPARTMENT ORGANIZATION
FISCAL OVERSIGHT AND CONTROL (Continued)
paid only for those hours of work that exceed in total time worked an average
of 40 hours a week for the preceding six (6) month period. Rate of pay shall
be set forth in Appendix "A".
Section 2. Any employee who is called back from off-duty to perform
overtime for any reason shall be given a minimum of four (4) hours of work
on each such occasion, at the rate of time-and-one-half'.
This definition and approach to the payment of overtime is typical of the definition of
overtime in many fire departments assessed by the Study Team.
Previous Overtime Use Studv
In late 1993, a study entitled "Schedule Management and Overtime Use in the Larchmont
Fire Department" was completed by, F. Warren Benton, a Village resident. That study,
generally referred to as the ``Benton Study", covered the following:
1. A review of salaries and wages generally
2. How overtime costs are generated
3. Coverage yield: the relationship between the work hours to be scheduled and
the hours that employees actually work given the contractual terms of
employment
3. Leave utilization
4. Schedule demand hours: the total hours of staff coverage required per year
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FIRE DEPARTMENT ORGANIZATION
FISCAL OVERSIGHT AND CONTROL (Continued)
5. Alternative for meeting the schedule demand hours: full-time staff and
overtime
6. Management alternatives
The Study Team reviewed the Benton Study and found it to be a very professional analysis
and a complete iteration of schedule management and overtime issues and alternatives for
the Larchmont Fire Department. Although the cost data may have changed slightly in the
last two fiscal years, the theory and concepts, calculations, conclusions and presentation of
alternatives included in the Benton Study appear to be thorough and applicable in 1996. For
that reason, the Study Team has chosen not to duplicate the work resulting in the Benton
Study. This Study will endeavor to build on the effort expended by Mr. Benton and Village
and Fire Department officials subsequent to the issuance of the Benton Study.
The Benton Study discussed various management alternatives to the most effective use of
the uniformed personnel from a scheduling point of view and also made recommendations
which are summarized as follows:
1. The division of responsibility be clarified, so that supervision of roster
management, and operational determinations as to the payroll implications of
time and leave documentation be made by persons not involved in the day-to-
day operations of the Fire Department.
2. Policy and practice in the area of improved schedule management and
reporting should be reviewed.
3. That the schedule management reports recommended include the day/night
proportion of overtime and that the union contract be modified to have
overtime shifts compensated based on the hours actually worked.
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FIRE DEPARTMENT ORGANIZATION
FISCAL OVERSIGHT AND CONTROL (Continued)
4. Change schedule management to insure that not more than three uniformed
personnel work any given shift.
5. Clarify the policy on mutuals.
Village Goals Stated
Subsequent to the Benton Study, the Mayor and Board of Trustees transmitted to the
Larchmont Fire Department a memorandum dated September 21, 1993, entitled"Larchmont
Fire Department Organization." That memorandum outlined the position of the Village
regarding the organization and management of the Fire Department by setting forth four
goals with specific objectives outlined within each goal. Those goals and objectives are
summarized as follows:
Goal 1: Reorganize the Larchmont Fire Department so that subordinate to the
chiefs, the chain of command includes day-to-day on-site management
of the paid firefighters by a supervisory paid officer who is not assigned
to any permanent shift, but rotates through all of the shifts, thereby
working with and supervising all uniformed staff. The complement of
paid firefighters will not exceed 14 at this time. This supervisory paid
officer will be responsible for carrying out the wishes of the Fire
Council, the chiefs and the Board of Trustees.
Objectives:
1. To seek ways to reduce the costs of operating the Fire
Department.
2. To ensure that the supervisory paid officer, either directly or
through the officer on duty, is responsible for enforcing the
Rules and Regulations.
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FIRE DEPARTMENT ORGANIZATION
FISCAL OVERSIGHT AND CONTROL (Continued)
3. To ensure that the supervisory paid officer is responsible for the
actions of the paid firefighters and works with the chief in the
administering of discipline, as needed.
4. As established in the Rules and Regulations or by Directive, to
have the ranking paid officer be in charge of scheduling,
ordering of supplies, supervising the care and maintenance of
the equipment, supervising the care and maintenance of the fire
house, administering the EMT and fire inspection programs, etc.
5. To ensure that regular communication takes place with the
chiefs, paid firefighters, Board of Trustees and thepublic.
Goal 2: To change the methods of scheduling the paid firefighters to reduce the
amount which must be budgeted for salaries.
Objectives:
1. To incorporate the ideas of the Ned Benton report.
2. To minimize the cost of operating the firehouse with three paid
staff on duty.
3. To immediately eliminate any 4-person shifts scheduled without
a specific purpose acceptable to the Village Board.
4. To consider scheduling in increments of time such as three or
six months rather than year to year until the new system proves
to successfully accomplish the goals and objectives.
5. To develop and routinely issue a monthly report on overtime
utilization and overall personnel costs for fire protection.
Goal 3: That Fire Inspections in the Village of Larchmont be conducted by the
paid firefighters with the optional assistance of the volunteers.
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FIRE DEPARTMENT ORGANIZATION
FISCAL OVERSIGHT AND CONTROL (Continued)
Objectives:
1. That a Fire Inspection Program be designed which trains the
paid firefighters to carry out the inspections and trains them to
do so at a cost the Village Board finds acceptable.
Goal 4: To work with a subcommittee to be appointed by the Larchmont
Village Board to analyze the number of paid firefighters on a shift and
alternative means of getting the rigs to an incident scene.
Objectives:
1. To bring together a group of firefighters, both volunteer and
paid, community residents with relevant experience,
professional consultants and advisors (as needed) to analyze
these issues.
2. To analyze the possibility of 2 paid staff on some shifts.
3. To analyze the possibility of alternative drivers.
4. To analyze and respond to the recommendations on these topics
in the Benton Report.
The Mayor and Board of Trustees stated clearly in this memorandum that it endorses the
current organization, but at "the same time, the Board recognizes the need to reduce costs
substantially and to make basic necessary changes in the daily administration of the paid
firefighters." They stated further that the "Mayor and Board of Trustees have determined
that it can and should meet certain goals and objectives".
In addition to stating the goals and objectives, that memorandum requested that the
Larchmont Fire Department develop a plan related to the goals and objectives to be put into
effect by December 31, 1993.
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FIRE DEPARTMENT ORGANIZATION
FISCAL OVERSIGHT AND CONTROL (Continued)
By that memorandum, the Mayor and Board of Trustees appear to have been stating policy
direction for the Fire Department. That intent seems to have been strongly reinforced by the
further statement by the Board in the memorandum;
"If the LFD is unable to develop a plan which adequately addresses the
Board's goals and objectives, the Board of Trustees with other assistance will
devise and implement a plan because these changes need to (be) made as soon
as possible. At a minimum the plan must include those changes which ensure
cost effective, reliable and efficient day to day management and accountability
for the administration of the paid firefighters."
Subsequent Actions
By memorandum dated November 12, 1993, the Larchmont Fire Department replied to the
Mayor and Board of Trustees by providing their responses. The Study Team was advised
that since that time there has been discussion and further work on a number of goals. This
detailed assessment of the Larchmont Fire Department is intended to further support the
process of working toward the stated goals of the Mayor and Board of Trustees which are
primarily focused on a more cost effective fire protection service and the accountability and
supervision of the paid firefighter staff.
SUMMARY
The organization of the Larchmont Fire Department is a reflection of history but not suited
to the 1990s. There are too many officers and too many fire companies (5) in one building.
The space utilized by the fire companies is excessive.
When horse-drawn fire apparatus served Larchmont, the Village may have needed four fire
companies. In 1996, with a one-square mile municipality, four companies equipped with
diesel fire apparatus seems excessive. Changes, however, will be difficult.
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FIRE DEPARTMENT ORGANIZATION
SUMMARY (Continued)
There are very proud volunteer firefighters and officers in Larchmont. They have the
potential and desire to provide quality services, but their full potential has not been realized.
The fragmentation among volunteers and paid firefighters contributes to. friction and
inefficiencies.
Larchmont spends more on fire services than all but one municipality in Westchester County.
The costs seem excessive based on the Study Team's experiences in other municipalities;the
per capita costs are higher than some cities with populations over 1 million.
While consolidation with the Town of Mamaroneck should be fully explored and seems
entirely appropriate, a detailed assessment of this potential will be needed. If the Village of
Larchmont retains its fire department, it needs consistent leadership accountable to the
Village Board. A `team' approach with volunteers and paid personnel working together
should be the major goal of the current department.
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FIRE DEPARTMENT ORGANIZATION
RECOMMENDATIONS
2.1 The Village Board of Trustees and Fire Council should consider adopting the
proposed new Mission Statement and goals and supporting philosophies for the Fire
Department and its members.
2.2 The Village Board of Trustees should consider establishing a Larchmont Board of
Fire Commissioners to function as the governing body of the Fire Department. Such
a Board could have broad representation from the Fire Department with elections on
a Department-wide basis, the Village Board, and representation from residents and
businesses of the community. A seven member Board of Fire Commissioners,
appointed for two-year terms by the Village Board of Trustees, is suggested with
membership as follows:
• One member of the Village Board of Trustees
• One Village resident
• One Village business representative
• The Chief of the Fire Department
• Three other Fire Department representative elected at-large every two years
from the membership
It is suggested that the chairperson of the Board of Fire Commissioners be elected
annually by the Commission from its membership.
2.3 For consistency with Village Law, the Village Board of Trustees should consider
either the Larchmont Fire Department reverting to the use of the rank title of assistant
chief or the Village Board of Trustees should pass a revision to the Village Code
adopting the rank of deputy chief.
2.4 The chief and Fire Council should consider rescinding the policy of including ex-
chiefs in the incident chain of command.
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FIRE DEPARTMENT ORGANIZATION
RECOMMENDATIONS (Continued)
2.5 The Village Board of Trustees should consider establishing a maximum of eight total
operational volunteer company officer positions within the Larchmont Fire
Department.
2.6 To insure that Fire Department officers are properly qualified, the Village Board of
Trustees should consider establishing minimum operational officer experience
requirements as follows:
Proposed Requirements for chief and depute chief:
A. Must be, and have been for eight (8) years, an active member with the
minimum attendance of 15 percent
B. Must have maintained at least a minimum attendance of 25 percent for the
preceding twelve-month period
C. Must have served at least one year each at the ranks of lieutenant and captain,
and for chief one year as deputy chief
D. Must have successfully completed the NYSOFPO training courses required for
the company officer ranks, Incident Command System and the courses for
New York State Firefighter Class I certification, which includes:
1. Ladder Company Operations
2. Pump Operator
3. Accident Victim Extrication
4. Hazardous Materials 1 st Responder Operations
Proposed Requirements for captain and lieutenant:
A. Must be, and have been for five(5)years, an active member with the minimum
attendance of 15 percent
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FIRE DEPARTMENT ORGANIZATION
RECOMMENDATIONS (Continued)
B. Must have maintained at least a minimum attendance of 25 percent for the
preceding twelve-month period
C. For captain, must have served at least one year at the rank of lieutenant
D. Must have successfully completed the NYSOFPO training courses required for
the company officer ranks, Incident Command System and the courses for
New York State Firefighter Class II certification, which includes:
1. Firefighting Essentials
2. Initial Fire Attack
3. Fire Behavior and Arson Awareness
These suggested officer eligibility requirements could be phased in over a three-year
period with all requirements being effective for the Fire Department elections of the
year 2000.
2.7 If the Village does not consolidate with the Town of Mamaroneck, the Village Board
of Trustees should consider appointing a paid fire chief to assure day-to-day
leadership of the Larchmont Fire Department and to be accountable to the Village
Board.
2.8 The Village Board of Trustees should consider taking the following actions to
streamline the organization of the Larchmont Fire Department by reducing its internal
complexity and bureaucracy. The following actions should be considered:
A. Abolish the Ambulance Protective Corps which has no members and
is apparently not an active company.
B. Cause all companies to hold meetings annually with Department
meetings being held monthly for improved communications and
management.
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FIRE DEPARTMENT ORGANIZATION
RECOMMENDATIONS (Continued)
C. Abolish the four current remaining companies and create one new
company to be titled the "Volunteer Fire Company of the Fire
Department of Larchmont, N.Y." This new fire company could be
organized similar to the current companies. The officers of the new
company could be two captains, six lieutenants, a treasurer and a
secretary.
D. If the suggested change in number of companies is not considered
appropriate, refocus the role of the remaining companies to
administrative matters only with all operational officers being elected
by the general membership during the Fire Departments annual
meeting. All operational matters, including training and apparatus,
could be under the direction of the chief and the team of operational
officers.
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i
Village of Larchmont
Adopted Budget Appropriations
$1055009000
$10001000
$9,500,000
$9,000,000
- - - - - - --$8;381,815 -
$85500,000 $8,0319015
$8,0005000 $7 $7,51- 9,625
-
- - ,321,47 - - - - - -- - - - - -
$7,500,000
$7,000,000
1992/1993 1993/1994 1994/1995 1995/1996
Carroll Buracker & Associates, Inc. Source: Village of Larchmont
Village of Larchmont
Figure 2.5
Assessed Valuation
$4050005000 $39,577,963 $391239,063
$39504908 $38,7905206
$38005000
$361000,000
$3450005000
$32,000,000
$30500000
1992/1993 1993/1994 1994/1995 1995/1996
:%Carroll Buracker& Associates, Inc. Source: Village of Larchmont
Village of Larchmont
Public Safety Costs as Percent of Village Budget
40%
37.7 0
37. 1 %
38%
35.
8% - -35.8% 35.8% - 35.8% - -
j
a•r 4tz} aa' y i
34°
Y N �y
32% :� � , a � 7 a � � ��
A '�`'«+ .fid R � -.•'4 1 2`TSi°t{`g�:thi+�`
F � � jb 3
£_, '` ' ,oo' 3 ��t `•,� k$;=' ii 'S�*, - <?a: • �,.:
30%
1989/1990 1990/1991 1991/1992 1992/1993 1993/1994 1994/1995
Source: Village of Larchmont
Carroll Buracker & Associates, Inc.
Village of Larchmont
Figure 2.7
Fire Services Budgets
FY 1990/1991 - 1995- 1996
$1 ,000,000
A)
$900,000
$800,000
$913,560 $9135560 $9235500 $948,225
$7005000 $8505927
$7999763 - -
$600,000
$500,000
1990/1991 1991/1992 1992/1993 1993/1994 1994/1995 1995/1996
Fiscal Year
Source: Village of Larchmont
Carroll Buracker& Associates, Inc.
Village of Larchmont
rigure z..a
Fire Service Salaries
0Emergency Compensation FISalaries
$1,000,000
$800,000
$600,000
$859,289 $520,635 $628,870 $670,162 $675,412 $722,500 $736,875
$400,000
$200,000
$0
1989/1990* 1990/1991 1991/1992 1992/1993 1993/1994 1994/1995 1995/1996
* Emergency Compensation not listed separately in Budget for 89/90
Source: Village of Larchmont
Carroll Buracker & Associates, Inc.
CHAPTER THREE
CONSOLIDATION OPPORTUNITIES
CHAPTER THREE
CONSOLIDATION OPPORTUNITIES
This Chapter includes a review of a number of aspects of consolidation benefits and
opportunities based on national experience as well as Westchester County consolidation
planning efforts.
The purpose of this Chapter is to discuss the consolidation of municipal services as a viable
alternative for the improvement of services and reduction in the cost of providing those
services. Initially, the National consolidation experience in fire, rescue and emergency
medical services is discussed.
Westchester 2000, the local county/municipality's very progressive effort to seriously
consider consolidation in many areas of government, is outlined. The aspects of Westchester
2000 focused on the fire, rescue and emergency medical services is presented.
This Chapter is presented by the Study Team to the Village of Larchmont due to the
importance of considering various aspects of fire protection related consolidation. The
Study Team believes that consolidation is a viable alternative and should be considered by
the Village of Larchmont.
CONSOLIDATION - AN ALTERNATIVE
Consolidation is viewed as an alternative and potential remedy to a number of fiscal
constraint-related problems facing local governments. Professional administrators and
governing bodies are looking very carefully at this alternative. A review of the National
experiences may acquaint the reader with useful information on this approach in curbing or
reducing costs.
National Experience
In developing background material and preparing for this Study, as well as for the writing
of this Report,the Study Team reviewed the available information on the national experience
involving fire, rescue and emergency medical services consolidation programs. Historically,
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CONSOLIDATION OPPORTUNITIES
CONSOLIDATION - AN ALTERNATIVE (Continued)
consolidations have been studied and implemented for both entire jurisdictions and specific
services, such as police and fire departments, within jurisdictions.
There is a long history of the study and implementation of consolidation of fire departments.
Generally, the primary motivating factors in the consideration of consolidation involve
matters of fiscal constraint, desires to improve the level of service, and efforts to improve and
streamline the management functions.
Several key jurisdictions throughout the United States have studied and/or implemented
consolidation programs, including:
• Phoenix, Arizona
• Belmont, California
• Contra Costa County, California
• San Carlos, California
• Stockton, California
• Fort Collins/Poudre Valley, Colorado
• Dade County, Florida
• Jacksonville/Duvall County, Florida
• Orange County, Florida
• Pasco County, Florida
• Kellog, Idaho
• Montgomery County, Maryland
• Minneapolis - St. Paul, Minnesota
• Clark County, Nevada
• Las Vegas, Nevada
• Washington County, Oregon
Seven of the key types of consolidation that have been implemented by the above-listed
jurisdictions are as follows:
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CONSOLIDATION OPPORTUNITIES
CONSOLIDATION -AN ALTERNATIVE (Continued)
1. Full-service consolidation
2. Communications and dispatch
3. Personnel functions
4. Training functions
5. Joint purchasing
6. Joint response to emergencies
7. Apparatus maintenance
The types of consolidation that are available for consideration by the average municipalities
are discussed in detail in this Study.
In reviewing consolidations programs in other jurisdictions, a significant number of
advantages have been listed as proven benefits. Several key benefits or improvements
resulting from consolidations include:
• Improved efficiency
• Cost reductions
• Lower apparatus replacement requirements
• Enhanced career opportunities
• Specialization in functional areas
• ISO rating improvements
• Fewer fire stations due to larger-scale planning and service coverage
• Faster response times
• Elimination of redundancy
• Improved use of resources
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CONSOLIDATION OPPORTUNITIES
CONSOLIDATION - AN ALTERNATIVE (Continued)
• Improved large fire operations
• Team approach to operations
• Flexibility in use of personnel
As is often the case, the degree of success of any consolidation is in "the eyes of the
beholder". However, in reviewing consolidations of fire departments that have taken place,
the Study Team found none that was unsuccessful. The material available on these
consolidations points to many benefits and opportunities as outlined previously. In addition,
a number of"lessons learned" were identified from previous consolidations.
In summary,based on a review of previous consolidation efforts, the history of consolidation
points to very positive and beneficial results for the fire departments, the municipalities
involved, and the citizens served. In every instance, the benefits to the citizens were very
substantial.
LEGAL AUTHORITY FOR SHARED SERVICES
This section discusses New York State law that provides the legal authority for municipalities
to share services.
New York State Constitution
The New York State Constitution authorizes the sharing of services in Article 8.
Specifically, Article 8, Section 1 provides in part that:
"...nor shall any county, city, town, village or school district give or loan its
credit to or in aid of any individual, or public or private corporation or
association, or private undertaking, except that two or more such units may
join together pursuant to law in providing any municipal facility, service,
activity or undertaking which each of such units has the power to provide
separately."
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LEGAL AUTHORITY FOR SHARED SERVICES (Continued)
This basic authorization is supported primarily by the General Municipal Law, and
secondarily by the Village Law.
General Municipal Law
Article 5-G of the General Municipal Law, which was enacted in 1960, is the guiding
legislation providing the legal authority for shared services. There are basically two forms
of municipal cooperation agreements. These forms are:
- An agreement that establishes one municipality in the role of provider and the other
in the role of receiver: and,
- An agreement where there is a true cooperative approach where several municipalities
join forces, financial and otherwise, to provide a needed service.
This article of the General Municipal Lav has been used on an increasing basis since the
legislation was enacted. According to the New York State Conference of Mayors and Other
Municipal Officials, a survey performed in 1973 showed that 38 percent of responding
municipalities were participating in some form of municipal cooperation. In 1982, a follow-
up survey was performed that found 79.2 percent of local municipalities were involved in
cooperation agreements.
With increased in service demands, cost of personnel, equipment, and real estate revenues
are often decreasing, municipalities must become more creative in finding ways to provide
their residents with the services they expect. Many municipalities have found that
cooperation agreements are a very effective way of providing services in a more cost
effective way.
There are numerous statutory references to municipal cooperation in the General Municipal
Law. The greatest amount of guidance is contained in Article 5-G, Sections 119-m through
119-00.
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CONSOLIDATION OPPORTUNITIES
LEGAL AUTHORITY FOR SHARED SERVICES (Continued)
Section 119-mm provides that this legislation shall apply to municipal cooperation
agreements involving counties, cities, towns, villages and boards of cooperative educational
services and school districts. A municipal cooperation agreement under this section can
generally involve any activity that a municipality is empowered to perform on its own.
Section 1199-oo of the General Municipal Law governs the procedural aspects of municipal
cooperation agreements. Agreements entered into pursuant to the authority of the General
Municipal Law require the approval of each participating locality. Approval must be
provided by means of a majority vote of the full voting strength of each municipality's
governing body. Suggestions are also provided regarding the content of the municipal
cooperation agreements.
Village Law
The Village Law contains provisions relative to the sharing of services. These provisions of
Village Law were enacted prior to Article 5-G of the General Municipal Law and are still in
full force and effect.
Relevance of Statutes
The sections outlined above specify the major references to municipal cooperation or the
sharing of services under New York State Law. It is clear that the New York State
legislature, at various times during legislative sessions, has encouraged municipalities to
cooperate in sharing services. A clear supportive statutory and regulatory framework exists
for jurisdictions to work together to provide services, including fire protection.
Any other further cooperative effort in this regard on the part of the Village of Larchmont
and its surrounding municipalities would, of course, also be consistent with this set of laws.
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CONSOLIDATION OPPORTUNITIES
WESTCHESTER 2000
Westchester 2000 is a public-private organization funded by the Westchester County
Association and County Government established "to find ways and means of bringing about
economies together with greater effectiveness and efficiencies". The County Executive of
Westchester County directed Westchester 2000 to examine and evaluate present and future
trends impacting local governments looking toward the year 2000 in an effort"to devise ways
and means of controlling the anticipated future impacts on governments rather than the future
controlling us".
In directing Westchester 2000 to undertake this assignment, the County Executive believed
that:
it is inevitable that economic, social, and technological trends will by the year
2000 re-shape our systems of governance from the federal level to our local
communities."
Downsizing, restructures and radical changes had all been proposed in the past. The question
to be answered by Westchester 2000 was; "Are these the answers for a resolve to the
problem?".
The Report
As a result of the directive from the County Executive, Westchester 2000 issued a report on
June 13, 1991. That report was titled "Governments at the Crossroads, Conceptual
Examinations - Governmental Structures". The Report covered the following:
• Baseline demographic and geographic information regarding the County and its
municipalities,
• Outline information regarding "power bases" in Westchester County and their
interaction,
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CONSOLIDATION OPPORTUNITIES
WESTCHESTER 2000 (Continued)
• Discussion of County and municipal programs and services in Westchester County.
Each category of service/program is discussed with some fiscal data general thoughts
regarding possible consolidation being presents,
• Legal processes for consolidation and cooperation are presented,*
• Fiscal issues and New York State budget cuts are outlined, and
• Optional proposals for mergers and consolidation are stated.
The Report was an assessment of the state of governmental programs and services in
Westchester County with a look ahead towards: eliminating duplications, closing gaps, and,
identifying the "best" means of developing new programs and services or reorganizing
existing ones.
The Report outlined the next five steps needing to be accomplished subsequent to its
issuance. Those steps are:
1. Organize development teams to test concepts, analyze the raw data, and, submit
comments and recommendations for further study and consideration.
2. Assemble a group of professional advisors to study the concepts and
recommendations for their input and recommendations.
3. Recommendations and comments received from the Development Teams and the
Professional Advisors presented to the Board of Directors and Executive Committee
of Westchester 2000 for their further input, comments and recommendations.
4. The Final Report to be written by the Executive Director/Consultant of Westchester
2000.
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CONSOLIDATION OPPORTUNITIES
WESTCHESTER 2000 (Continued)
5. The Final Report is presented to the County Executive and the Board of Directors of
Westchester 2000 for action.
Subsequent to the issuance of the June 1991 Report, an "Interim Progress Report" was
presented on June 12, 1992 at the 10th Local Government Conference. That report identified
the taxpayer's point of view as the primary consideration in past and future study. Within
that context, Interim Progress Report identified many questions to be answered as
Westchester County and its municipalities will be addressing as work continues toward the
Final Report. Those questions fall into the following categories:
• Public schools,
• Finance research projects - County Government,
• Local Municipalities, and,
• Not-for-profit organizations.
The Interim Progress Report also identified issues that have been identified by more that 300
citizens who have participated in the studies, organizational models submitted for
consideration by numerous groups and individuals, 25 concepts and recommendations to be
considered, and 39 options for savings, including three emergency services options.
Finally, the Interim Progress Report outlined three models for "Criteria for Judgments" that
are being considered for use in selecting consolidation options. It states that "The yardstick
of measurement, undoubtedly, will focus on economies with special emphasis on
effectiveness and efficiencies and equity."
According to the Interim Progress Report, research and development would continue prior
to the Final Report being written. Prior to final publication public hearings would be held
to obtain input, comments and recommendations from interested parties.
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CONSOLIDATION OPPORTUNITIES
WESTCHESTER 2000 (Continued)
The Final Report was submitted by December, 1993.
Fire, Rescue and EMS Implications
This section will identify those items within the June 1991 Report, the Interim Progress
Report and the Final Report that address fire, rescue and/or EMS consolidation subjects.
The June 1991 Report addressed some aspects of municipal governments as "service
providers". Within that context, it reviewed certain basic program areas where it appears that
there is some degree of overlap and duplication. Public safety programs - police, fire and
EMS - are identified as areas where some overlap and duplication may exist. That section
of the report also discusses some areas where the County Government has become a major
service provider. Fire Control (dispatch) and training are mentioned in that regard since the
County provides those County--,vide services to the fire, rescue and EMS services at the
request of municipalities. These are some services that the Report identifies as being more
appropriately handled at a County-wide level.
As previously mentioned there are 6 cities, 19 towns and 23 villages within Westchester
County. The June 1991 Report identifies that with the County and its municipalities, there
are 60 fire departments with 6,185 firefighters (1,227 paid and 4,905 volunteer). Of those
firefighting personnel, the County has 19 paid, 26 volunteer and 8 inspection personnel.
The June 1991 Report identified some options for consideration. Within that section are the
following key points:
"While police jurisdictions match municipal boundaries, fire and EMS service,
especially in the Northern towns, often cut across or overlap municipalities.
Of more serious consequence, is the existence of gaps or mutual aid areas that
are not fully covered by all emergency services. The implementation of E-911
throughout Westchester County will be a step towards improving the
identification of service districts."
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CONSOLIDATION OPPORTUNITIES
WESTCHESTER 2000 (Continued)
Within the Interim Progress Report, "Consolidation - Fire Districts/By Towns or County-
wide" is included in the listing of organizational models submitted for consideration by
numerous groups and individuals. In addition, within the Options for Savings section, the
following is presented:
"Emergencv Services
11. Fire services should be consolidated.
12. Certain administrative functions for emergency services should be
consolidated at the county level, and creation of a county-wide, not-for-
profit ambulance service should be considered."
The Final Report included six very specific fire protection services recommendations:
1. Consolidate Village/Town Fire Districts - Fire Departments within
village/towns should be consolidated into one fire district and share
personnel and equipment.
2. Establish County Training School - The County should establish a
County-wide training school that all new fire chiefs and firemen (paid
or volunteer) would be required to attend. In addition, lower ranking
officers should be required to attend the County training school for
certification.
3. Mandate Standard Operating Procedures for Emergencies - Standard
operating procedures should be mandated by the County government
for emergency procedures on County Maintained roads and properties.
4. Make Arson Investigation a County Responsibility - The arson
investigations being handled by some fire department investigators
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CONSOLIDATION OPPORTUNITIES
WESTCHESTER 2000 (Continued)
should be the responsibility of County government and should include
criminal justice investigators.
5. Standardize Public Safety Policies - Policies governing public safety
(police and fire) should be standardized, with uniformity of procedures
and governance on a County-wide basis.
The Study Team has researched and observed many discussions of and research efforts
leading toward serious governmental consideration of ways to improve services and make
them more cost effective through consolidation and reduced duplication. The Westchester
2000 effort is very complete and very progressive. However, the benefits of such an effort
will only be attained through full participation on the part of all interested municipalities,
organizations and individuals. As such, officials of the Village of Larchmont should
continue the effort to identify areas for reasonable consolidation to insure that the needs and
desires of the officials and taxpayers of the Village of Larchmont to be provided improved
and more cost effective services are satisfied.
The remainder of this Chapter will address possible areas for Larchmont fire protection
service to be improved through functional or complete consolidation.
CONSOLIDATION WITH TOWN OF MAMARONECK
The option of fully consolidating the fire department organizations of the Village of
Larchmont and the Town of Mamaroneck appears as a more cost effective service delivery
option by a number of volunteer and paid members of the Fire Department, as well as some
Village officials. The consolidation of these two fire departments serving very small
geographic areas is consistent with the intent of Westchester 2000 and could provide
improved fire protection services at reduced cost.
Service improvements could be attained through some of the following:
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CONSOLIDATION OPPORTUNITIES
CONSOLIDATION WITH TOWN OF N AMARONECK (Continued)
A. Availability of increased staffing on incidents
B. Availability of an increased number of apparatus and equipment
C. Standard operating procedures being utilized by all personnel
D. Reduced response times to certain areas of both fire department areas
E. Improved communications due to consistent communications and dispatch
procedures
F. Increased promotional opportunities for paid staff
Additionally, the delivery of fire protection service could become more cost effective and
potentially be reduced through some of the following:
G. Reduced apparatus replacement costs due to possible reduction in overall fleet
H. Reduced apparatus maintenance and repair costs due to reduced size of fleet
1. Reduced initial cost of hand tools and equipment, and reduced repair costs due
to a decrease in equipment requirements resulting from less apparatus
J. Reduced fire station space requirements due to possible reduction in apparatus
fleet
K. Cost reductions through joint purchasing
L. Reduced need for overtime expenditures due to more efficient use of paid staff
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CONSOLIDATION OPPORTUNITIES
CONSOLIDATION WITH TOWN OF MAMARONECK (Continued)
An example of possible cost reduction involves the possible reduction of the total apparatus
fleet required to operate a combined two-station operation as compared to two one-station
operations. Current apparatus fleet information provided to the Study Team from the two fire
departments is presented in Figure 3.1.
Figure 3.1
CURRENT APPARATUS FLEET
LARCHMONT & MAMARONECK FDs
Pumper 3 3
Tower Ladder 1 1
Patrol Unit 1 0
Mini Attack 0 1
Pumper
TOTAL 5 5
It is possible that, with both fire departments operating in a combined manner with mutual
responses from both fire stations on certain types of calls, the apparatus fleet could be
reduced while at the same time providing an improved level of service to the public. If that
were to occur significant, cost savings could accrue to both Larchmont and Mamaroneck.
Figure 3.2 illustrates, for purposes of an example, the magnitude of the savings that could
be available simply through the reduction in the apparatus fleet.
nil
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CONSOLIDATION OPPORTUNITIES
CONSOLIDATION WITH TOWN OF MAMARONECK (Continued)
Figure 3.2
PROJECTED VILLAGE LIFE CYCLE COST SAVINGS
FROM REDUCED APPARATUS FLEET
OPERATIONTYPE REDUCED REPLACE REHAB MAINT.&
NUMBER SAVINGS* SAVINGS"
i i year) SAVINGS***
Pumper 2 440,000 250,000 $48,000
Tower Ladder 1 450,000 125,000 30,000
Patrol Unit 0 0 0
Mini Attack 0 0 0
Pumper
TOTAL 3 $ 890,000 $375,000 $78,000
Notes: * Estimate based on replacement cost of$220,000 per pumper/$450,000
for ladder
* Estimate based on rehabilitation cost of$125,000 for pumpers/ladder
*** Estimate based on annual maintenance and operating costs of$1,200
for pumpers, $1,500 for ladders and $600 for light truck
As estimated in the above table, the cost savings in tax funds to residents and businesses
could be as much as $1,343,000 over a 20 year life cycle for the three pieces of fire and
rescue apparatus proposed for reduction in this example. The opportunity for the
attainment of service improvement at a reduced cost to the taxpayers of both communities
appears to justify the more detailed consideration of this consolidation option by the Village
of Larchmont.
In order to potentially improve service to the public on a more cost effective basis, the
Village Board of Trustees should consider pursuing full consolidation of the Village of
Larchmont Fire Department with the Town of Mamaroneck Fire Department. This option
could be initiated by obtaining the conceptual agreement from the Town of Mamaroneck to
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CONSOLIDATION OPPORTUNITIES
CONSOLIDATION WITH TOWN OF MAMARONECK (Continued)
pursue possible consolidation. The next step in considering this consolidation option could
be to conduct a joint fire department consolidation feasibility study to determine the potential
for success and outline a possible implementation plan.
MUTUAL AID
This Section reviews fire department mutual aid conceptually and its use by Larchmont.
"Mutual aid" as discussed in this Section refers to the response of fire and rescue apparatus
across jurisdictional or municipal boundaries. The effective use of mutual aid apparatus
response has become a successful means for the level of fire protection service in
participating jurisdictions without increased financial commitments. During a time when
many municipalities are continuing to deal with severe fiscal constraints,the implementation
of mutual aid--particularly automatic mutual aid--has become an accepted national trend.
The NFPA Fire Protection Handbook states the following regarding the implementation of
mutual aid:
"Every fire department today should have mutual-aid or automatic-aid contracts with
adjoining departments. These reciprocal agreements provide communities with the
ability to share their personnel and equipment to provide sufficient resources to
handle major emergencies in a timely and cost-effective manner."
The Concent
Mutual aid is the means by which one fire department or group of fire departments assists
another either upon request on an incident by incident basis, or on an automatic basis from
the point of initial dispatch. It is virtually impossible for any local government to staff and
equip its fire services to handle every potential major incident. This is especially true for
small municipalities. The cost is prohibitive and unrealistic, especially considering fiscal
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CONSOLIDATION OPPORTUNITIES
MUTUAL AID (Continued)
constraints facing local jurisdictions today. As a result, it is very common for fire
departments to implement mutual.aid agreements with surrounding jurisdictions; and, as a
result, personnel and equipment are dispatched on certain types of major incidents.
There are two types of mutual aid response approaches. One type of mutual aid is referred
to as"special request"mutual aid and involves a request from either the incident commander
or the communications center. The second type of mutual aid is "automatic" mutual aid.
This involves a request for mutual aid from the dispatch center under established protocols
when the apparatus resources of the requesting municipality reach such a low level that
assistance is clearly needed for station fill-in or a incident response.
Benefits of Automatic Mutual Aid
Improved fire protection service to the public can be attained in the following ways through
the use of automatic mutual aid on incidents where mutual aid companies are closer:
A. More timely availability of apparatus on the scene of incidents.
B. Improved firefighter safety as a result of the reduced time necessary for mutual
aid units to arrive on the scene to provided needed assistance on the incident.
C. Decreased response times.
Legal Basis in Larchmont for Mutual Aid
The first sections of this Chapter addressed the mutual cooperation of municipalities for the
provision of services, including fire protection. Mutual aid is in fact mutual cooperation in
its truest sense. Therefore, the legislation outlined in that Section is directly applicable to
mutual aid, since mutual aid is two or more fire departments working together to provide
improved and more cost effective service to the public.
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CONSOLIDATION OPPORTUNITIES
MUTUAL AID (Continued)
Other sections of the General Municipal Law that apply to mutual aid.
Section 209 refers to "Outside service by local fire departments, companies and airport crash
rescue units" and authorizes such mutual aid. It outlines liability as follows:
"While responding to a call for assistance under this subdivision, a city,
village, fire district, town or county operating an airport crash-fire-rescue unit
shall be liable for the negligence of firemen of the city fire department, village
fire department, fire district fire department, town fire department or crash-
fire-rescue unit respectively, occurring in the performance of their duties in the
same manner and to the same extent as if such negligence occurred in the
performance of their duties within the area regularly served an protected by
such departments or units."
Regarding loss or damage Section 209 states:
"Any loss or damage to, or expense incurred in the operation of, fire apparatus
or other equipment answering a call for assistance from outside territory...shall
be charged against and paid by the city, village, fire district, or by the
town...which issued the call for assistance."
Section 209-d provides that no contract may be entered into by a municipality or a fire
district:
"...whereby the services of a volunteer fire department or company are to be
supplied outside of such municipality or fire district to provide (1) fire
protection..., unless such volunteer fire department or company consents
thereto."
Section 209-d addresses funding to volunteer fire departments as follows:
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CONSOLIDATION OPPORTUNITIES
MUTUAL AID (Continued)
"Any such contract may provide for the payment of a portion of the
consideration expressed therein to such volunteer fire department or company
to be expended for fire department or company purposes only. If the
municipality or fire district owns all of the fire apparatus to be used in carrying
out the contract, the portion of the consideration which may be paid to such
volunteer fire department or company shall not exceed thirty-five per
centum..."
That Section of the General Municipal Law, also addresses payments to individual volunteer
firefighters as follows:
"No payments shall be made to individual volunteer firemen as compensation
for rendering such outside service."
When considering cooperative service agreements for mutual aid, municipalities may not
contract with another municipality or fire district without the consent of the volunteer
organization if the service is to be provided by a volunteer fire department or company. If
the municipality owns the fire apparatus a maximum of 35 percent of the funding may be
given to the volunteer fire department or company. And, under such a contract, funds may
not be paid to individual volunteer firefighters.
Finally, the municipality or district issuing the call for assistance is liable for benefits to
firemen injured or killed and for equipment damaged and materials used. And, an
incorporated fire company of a village cannot contract to furnish fire protection outside of
the village independently of the village board of trustees.
Mutual Aid Programs in Counties
Section 209-j of the General Municipal Law authorizes county boards of supervisors in any
county to appropriate and expend funds as deemed necessary and proper for the
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CONSOLIDATION OPPORTUNITIES
MUTUAL AID (Continued)
establishment and maintenance of county mutual aid plans in which the services of firemen
are utilized.
Mutual Aid in Westchester County
Westchester County and its fire services have developed and implemented a framework
within which mutual aid can occur between fire departments. Under this County mutual aid
framework, the responsible fire chief may take a number of approaches in requesting mutual
aid. The local fire chief may:
• Establish no predetermined mutual aid guidelines or procedures for his geographic
area of responsibility. Under this approach, the incident commander requiring
additional resources would request County Fire/EMS Dispatch for number and type
of apparatus needed at the time and the fire department from which the apparatus is
being requested.
• Establish predetermined guidelines for special request mutual aid indicating the fire
department from which apparatus is to be requested once units arrive on the scene of
an emergency and determine that additional resources are needed.
• Establish predetermined guidelines for automatic mutual aid indicating the number
and type of units to be automatically dispatched at the time of initial call receipt and
dispatch.
Each of these three approaches may be selected by the local fire chief. The County through
its County-wide dispatch center and mutual aid coordinators would then insure that the
approach selected by the fire chief, if any, is implemented.
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CONSOLIDATION OPPORTUNITIES
MUTUAL AID (Continued)
Mutual Aid in Larchmont
The Study Team was advised that the Larchmont Fire Department utilizes a limited
combination of special request and automatic mutual aid. For a few selected buildings (less
than five), predetermined automatic mutual aid with a selected fire department is utilized on
fire incidents. For most other buildings in Larchmont, the Larchmont Fire Department
utilizes special request mutual aid and only requests when needed, generally upon arrival at
the scene.
The Village of Larchmont should consider fully implementing automatic mutual aid
procedures initially with the Town of Mamaroneck Fire Department and then with all
surrounding fire departments in order to provide further depth of personnel and apparatus
resources and ultimately improve the level of fire protection service at no additional cost.
The Larchmont Fire Department could establish protocols for the number and type of
apparatus to be dispatched by type of incident and type of property (house, commercial,
multi-family residential apartment building, etc.) and mutual aid units could be automatically
dispatched by the dispatch center at the time the call is received.
DISPATCH AND COMMUNICATIONS
The communications and dispatch function is another important component of the fire and
rescue service where fire departments nation-wide have implemented major cost effective
improvements in service level through functional consolidation. It is the Study Team's
opinion that service improvement could be attained through dispatch consolidation with
Westchester County. This option would allow firefighters to focus on the more traditional
fire protection services and the communications and dispatch function could be provided on
a more consistent and professional basis. In addition, an essential new service---medical pre-
arrival instruction to the public---could be provided to the residents of Larchmont.
This Section includes an overview of standard approaches utilized throughout the United
States for emergency communications dispatch, computer-aided dispatch (CAD), and
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CONSOLIDATION OPPORTUNITIES
DISPATCH AND COMMUNICATIONS (Continued)
Enhanced-911, and plans for the implementation of CAD by Westchester County's "County
Control".
The Study Team provides the reader with a recommended approach for improvement in
emergency dispatch through a transition to County Control providing the emergency fire and
rescue dispatching for the Larchmont Fire Department.
Overview
A fire department's communication system is an integral part of the department's operation,
not an auxiliary function. The effectiveness of the communications system is a critical factor
in the delivery of fire and rescue services. All components of the fire communications
service, including the telephone system, command and control operations, radio frequencies,
and personnel must work properly if the system as a whole is to function efficiently within
the context of the entire fire department service delivery system.
A communications system, including the personnel and equipment, must be as dependable
as possible. The system must provide continuous 24-hour per day operations. It is important
to point out the critical nature of the communications function to the success of the basic
service delivery. A breakdown in the communications function can reduce the effectiveness
of the operation and impair the safety of firefighters. Communications failures or
inefficiency jeopardize service effectiveness and safety in the community by depriving the
community of prompt service. Any interruption in communications, no matter how brief,
might be the moment that an emergency arises, thus causing further problems beyond those
the fire department was already responding.
Dependability should be built into the communications system by:
• Purchasing the most rugged and dependable equipment available
• Instituting an adequate preventative maintenance program
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CONSOLIDATION OPPORTUNITIES
DISPATCH AND COMMUNICATIONS (Continued)
• Maintaining sufficient stand-by equipment
• Carefully selecting, training, and supervising dispatch personnel
These considerations apply equally to the fire department, police department, and EMS
dispatch components.
The placement of communications responsibility in a municipality or set of municipalities
has been a sensitive issue in public safety. Fire personnel may believe that they should
control their own operations,while police personnel may feel that fire personnel cannot relate
to their needs. To address these concerns, municipalities employ various approaches:
separate police and fire dispatch; combined police and fire dispatch; and consolidated fire
and/or police dispatch centers.
Current Communications Approach
The communications and dispatch function is provided by the Larchmont Fire Department.
The paid firefighters at the fire station answer the emergency telephone calls and dispatch
the apparatus. These firefighters have learned how to handle the communications and
dispatch functions essentially "on the job". They have not been provided with any formal
dispatcher training.
When an emergency telephone call is received, the paid firefighter/s at the Fire Station
normally answer the call and make the dispatch.
The Fire Department uses Westchester County radio frequencies for their radio
communications.
The calls for emergency fire department assistance from either the public or the operator are
received in the Fire Station on either the seven-digit telephone number or via 911 from the
Larchmont Police dispatch center. (See Figure 3.3).
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CONSOLIDATION OPPORTUNITIES
DISPATCH AND COMMUNICATIONS (Continued)
The fire dispatch function is not supported by any form of computer-aided dispatch system.
The process is a manual system.
The Study Team noted, during its alarm room visits, (See Figure 3.4), and discussions with
responsible officials, that all paid firefighters engaged in dispatch are very interested in
providing top-quality service to the public. Within the limitations placed upon them within
their own environment, they appear to be making every effort to assure that emergency
incidents are handled in a consistent and quality manner.
The current procedures and technology could be improved.. The enhanced 911 system has
offered major improvements, but organizational and procedural changes will be required to
assure efficiency and management of firefighters.
For emergency fire calls from within the Village of Larchmont, a change needs to be made
in the dispatch location. Instead of firefighters serving on a part-time basis as dispatchers
in the poorly-equipped fire station alarm room, this responsibility should be given to
Westchester County Fire Control as soon as possible. This change should be made for the
following reasons:
• To have the dispatch function handled by trained professional dispatch personnel
• To maintain full control and continuity of the dispatch function during emergency
incidents occurring in the Village of Larchmont
• To afford the opportunity to utilize paid firefighters more fully in their primary role
of firefighter
• To facilitate the implementation of some of the other recommendations contained in
this Study, e.g., automatic mutual aid and standard apparatus dispatch assignments,
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Figure 3.3
40-
OZ
OZ
L�� �ARrrJl i_I*T POLICE 911
�` DISFATtH CONSOLE
FsgureIN :
VC
W 81 ad
.�. ,
4.4
�'�"� -��,�iii s � ' r "'_w-nom. -' ,- .....n�'.�ye• 'ns z ..
.f
I
y a
r� ry F
` FIRE STATION
Photoggraphcd ALARM ROOM CONSOLE
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CONSOLIDATION OPPORTUNITIES
DISPATCH AND COMMUNICATIONS (Continued)
• To provide a properly documented dispatch process with essential data feedback for
legal and planning and research purposes,
• To facilitate the implementation by County Fire Control of a basic life support
medical intervention program for such things as CPR when needed
•
Top rovide more time for firefighters to conduct pre-plans and inspections
Enhanced-911
Overview
Westchester County now has a fully operational 911 system. Enhanced 911 provides a
number of very basic and important improvements to the dispatch process:
• A universal three-digit telephone number to obtain public safety assistance,
• Automatic number identification to provide the dispatcher with the telephone number
of the telephone being used by the calling parry, and
• Automatic location identification to provide the dispatcher with the address of the
telephone being used by the calling party.
Enhanced 911 provides the capability for a caller to place an emergency call by dialing just
three digits (911) and automatically having that call routed to the appropriate agency
responsible for responding to emergencies for that caller. The agency receiving the call is
able to communicate with the caller and have displayed at the answering position, the
telephone number and address of the calling party. Also displayed is the Emergency Services
agencies, e.g., police, fire, ambulance that respond to that location.
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DISPATCH AND COMMUNICATIONS (Continued)
The implementation of Enhanced 911 has had two very important benefits. The first is the
reduction in the rate of errors occurring during the process of taking information from the
calling party. Therefore, the dispatch process becomes more consistent and accurate. The
second major benefit is the measurable reduction in "reporting time" for emergency incidents.
Reporting time is the time required to reach a dispatcher, relay the pertinent incident
information, and for the dispatcher to understand the requirements of the response. The
implementation of Enhanced 911 reduces this time frame by providing immediate on-screen
calling party information in addition to computer menus that help the dispatcher query
incident-specific information from the calling party.
The Public Safety Answering Point (PSAP) for the Village of Larchmont is the Police
Department communications center which is staffed with one officer 24 hours a day. All
emergency callers dialing 911 within the Village of Larchmont are routed initially to the
Police Department. When a call is received the on duty officer/dispatcher asks if it is a
police, firs or emergency medical emergency. Depending on the answer, the
officer/dispatcher will either dispatch the police, advise the Volunteer Ambulance Corps or
take the information from the calling party and provide the information to the Fire
Department via the direct line or transfer the 911 call to the Fire Department which is a
secondary PSAP. The Study Team was advised that the majority of the calls are received
from the police dispatcher via the direct line rather than a transfer of the 911 call.
The Study Team was advised that there are 54 PSAPs and over 15 secondary PSAPs in the
County. According to police officials, there are 42 police departments in Westchester
County. Based on the Study Team's experience, the most efficient 911 systems have one
PSAP with a few secondary PSAPs.
Computer Aided Dispatch
When visiting Westchester County Fire Control, the Study Team noted that the
implementation of a Computer Aided Dispatch (CAD) System was completed. Computer
Aided Dispatch systems are a proven technology that offers significant benefits to the safety
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DISPATCH AND COMMUNICATIONS (Continued)
of field personnel, a decrease in dispatch processing time and the improved accuracy of the
dispatch process. CAD systems have become an essential component of good
communications and dispatch centers in public safety throughout the United States.
With consideration of any consolidation of dispatch functions between two or more
municipalities, serious consideration should be given to supporting that dispatch function
with a CAD system. Therefore, the Study Team has noted the benefits and components of
a CAD system.
In order to effect reductions in the response time components, elicit incident information,
verify the location of the incident, identify potential hazards to public safety personnel, and
determine the available unit(s) most appropriate to respond, automation of at least some of
these processes should be implemented. The primary objectives of Computer Aided
Dispatch systems are to:
A. Increase the speed and accuracy of the dispatch process, thus reducing
response time
B. Increase safety by improving the information that is available to field forces
C. Improve the utilization and management of resources by providing more
information regarding incident locations, and by improved status keeping and
display
D. Collect data concerning calls for service and subsequent responses in support
of management information and resource allocation in Departmental activity
Computer Aided Dispatch systems vary widely in their functions and capabilities. The
reasons for this variance are the individual characteristics and requirements of different
public safety agencies. Particularly, the size of area served and the funding available are key
factors to consider in acquiring a CAD system.
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DISPATCH AND COMMUNICATIONS (Continued)
Features of CAD
CAD provides a number of features for public safety. Several include:
1. Geographic base files
Generally, Computer Aided Dispatch systems have five geographic files which
are utilized in the operational CAD environment. These include the block face
file, the intersection file, the common place name file, the alias/misspelled
street name file and the hazards/premise file. These files are utilized to define
to the CAD the street segments, address range, intersections, etc. that comprise
the geographic aspects of the service area.
2. Location Data
CAD systems can quickly and accurately retrieve specific data from a large
volume of data; routine tasks are performed faster and more accurately than by
persons, thus freeing operators to concentrate on discretionary tasks.
3. Incident Response Recommendation
Based on criteria developed by the police, fire, and first aid squad leadership,
the CAD system would recommend a specific apparatus response assignment
for any given address entered into the system as part of the call-taking and
dispatch process. As apparatus becomes unavailable, the system can reorder
response assignments.
4. Incident Records
The CAD system storage of recent incident records allows for rapid access to
various kinds of incident data for later analysis and study.
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DISPATCH AND COMMUNICATIONS (Continued)
5. Message Capability
Between dispatch consoles and installed station dispatch terminals, stations
(fire,police, and/or first aid squad)can have a message-sending capability that,
for many departments, has become critical to their internal operations. In
addition, both dispatch messages as well as administrative messages may be
transmitted and logged.
The more recent, up-to-date versions of CAD systems include an interface with 911. The
911 telephone number and address data can be transferred into CAD to reduce the number
of keystrokes necessary to carry out the dispatch function. This feature improves accuracy
and speed of emergency dispatch. Countv Control is equipped with this state-of-the-art
functional interface between the 911 system and their CAD system.
Once implemented, the benefits afforded by a CAD system would be available as an
improvement in the emergency dispatch process for handling Village of Larchmont fire and
rescue calls.
EMS Call Dispatching
The Study Team also recommends that emergency medical dispatch be incorporated into both
the Larchmont Fire Department and the Volunteer Ambulance Corps communication system.
Emergency medical dispatch is rapidly becoming the standard of care for EMS
communications centers. Emergency medical dispatch is defined as the practice of having
a trained dispatcher ask callers a preset list of questions that help determine the appropriate
response configuration. The concept also includes the provision of pre-arrival telephone first
aid instructions for bystanders to implement before emergency personnel arrive on the scene.
Dr. Jeff J. Clawson, developer of medical priority dispatching, calls a trained emergency
medical dispatcher the EMS system's "first responder to a medical emergency". Dr. Clawson
developed and implemented the first emergency medical dispatch communications system
back in the late 1970's.
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CONSOLIDATION OPPORTUNITIES
DISPATCH AND COMMUNICATIONS (Continued)
A comprehensive medical priority dispatch program has six components:
1. The caller is questioned to determine the patient's severity and type of injury
or illness.
2. Response resources are identified and dispatched based on the patient's
condition.
3. Pre-arrival instructions are provided to the bystanders when responses from the
caller indicates that they are appropriate.
4. Information is obtained and relayed to responding personnel to prepare the
responders.
5. Data is gathered and transmitted to provide for the safety of bystanders,
patients, and responders.
6. Quality assurance procedures are in effect to monitor the emergency medical
dispatch program's performance.
The United States Department of Transportation has a curriculum for emergency medical
dispatchers. The course, which lasts from 24 to 32 hours, stands as a basis for a national
standard for dispatching of emergency care vehicles. Another very popular program, which
includes pre-arrival instructions, was developed by Dr. Jeff Clawson, Medical Director for
the Salt Lake City, Utah, Fire Department. The program is based on the successful program
utilized in Salt Lake City for over fifteen years. Most jurisdictions involved in emergency
medical dispatching and pre-arrival instructions have developed programs by making minor
modifications to Dr. Clawson's program to conform with local protocols and practices. In
a program of pre-arrival instructions, it is very important that dispatchers receive training and
always adhere to the written protocols and not freelance in providing direction to callers.
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DISPATCH AND COMMUNICATIONS (Continued)
Some municipalities have expressed concern about the liability in having dispatchers provide
instructions over the telephone. Dr. Clawson, who is recognized as a national expert in pre-
arrival instructions, has stated that there has never been a lawsuit against trained emergency
medical dispatchers for using a system of pre-arrival instructions.
Consistent with the transfer of the fire and EMS dispatch function to County Fire Control a
program of Emergency Medical Dispatch and Pre-arrival Basic Life Support Instruction
could be implemented.
Service Level Improvements
The following benefits or possible improvements in the level of service are identified as a
result of implementing CAD, EMD dispatching and County Fire Control dispatching:
A. Improved safety to field fire personnel by more consistent dispatcher
availability
B. Improved fireground command and coordination on incidents requiring
multiple fire department operations through the use of a single dispatch
frequency
C. Reduced time required to dispatch incidents as a result of the consolidated
implementation of 911 and the implementation of a computer aided dispatch
system
D. Improved fire dispatching operations as a result of improved training levels,
increased call load, and possibly the use of dispatch personnel only for fire
dispatch operations.
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CONSOLIDATION OPPORTUNITIES
SUMMARY
The Westchester 2000 Report was an excellent study of potential consolidation of
government agencies. The study has merits for Larchmont. There appears to be a legal basis
for consolidating fire services; however, Larchmont officials should seek legal advice in this
area.
This Study was not a consolidation study for Larchmont and the Town of Mamaroneck.
While there appears to be substantial benefits to this approach for Larchmont, Village
officials should explore this concept with Mamaroneck before making any further decisions.
The role of the volunteers is an important consideration in any changes.
If Larchmont retains its own fire department and wants to have personnel available to
respond with apparatus, paid personnel are essential unless volunteers take a very active
role, e.g., providing mandatory stand-by, maintaining an adequate number of fully trained
personnel.
Automatic mutual aid is an important part of fire services and has become an industry
standard; however, some fire departments are reluctant to employ this approach. For the
future in Larchmont, automatic mutual aid should be a cornerstone of its fire department
services.
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RECOMMENDATIONS
3.1 The Village of Larchmont should consider implementing those aspects of the
Westchester 2000 process that would improve and make its public safety services
more cost effective. In particular consideration should be given to the following:
A. Taking action to develop a feasibility study and implementation plan for the
full consolidation of the Larchmont Fire Department with the Town of
Mamaroneck Fire Department.
B. Taking action to encourage all area fire departments participate fully in mutual
aid to provide the quickest possible fire protection service.
C. Taking action to have fire and EMS dispatch and 911 services handled by
County Control.
D. Take action to insure that fire protection forces serving the Village of
Larchmont are fully trained through available State and County fire training
resources and facilities.
3.2 In order to potentially improve service to the public on a more cost effective basis, the
Village Board of Trustees should consider pursuing the full consolidation of the
Village of Larchmont Fire Department with the Town of Mamaroneck Fire
Department. This option could be initiated by obtaining the conceptual agreement
from the Town of Mamaroneck to pursue possible consolidation. The next step in
considering this consolidation option could be to conduct a joint fire department
consolidation feasibility study to determine the potential for success and identify a
possible implementation plan.
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CONSOLIDATION OPPORTUNITIES
RECOMMENDATIONS (Continued)
3.3 The Village of Larchmont should consider fully implementing automatic mutual aid
procedures initially with the Town of Mamaroneck Fire Department and then with all
surrounding fire departments in order to provide further depth of personnel and
apparatus resources and ultimately improve the level of fire protection service at no
additional cost. The Larchmont Fire Department could establish protocols for the
number and type of apparatus to be dispatched by type of incident and type of
property (house, commercial, multi-family residential apartment building, etc.) and
mutual aid units could be automatically dispatched by the dispatch center at the time
the call is received.
3.4 The Village of Larchmont should consider requesting that County Fire Control
dispatch all fire and EMS calls. As such Fire Control would be the secondary PSAP
for fire and EMS.
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CHAPTER FOUR
FIRE DEPARTMENT STAFFING
CHAPTER FOUR
FIRE DEPARTMENT STAFFING
This Chapter provides an overview of fire department staffing generally, an introduction to
apparatus staffing concepts, a discussion of the approach to overall Larchmont Fire
Department staffing and its staffing of specific apparatus. In addition, appropriate
recommendations and options for improvement are listed.
DETERMINING STAFFING
In a career fire service, the major costs are associated with personnel. In Larchmont,
firefighting services are performed by a combination of career and volunteer personnel. In
this combination system,the major cost remains salaries, even with the staffing accomplished
by the volunteers. However, whether or not salaries are considered, there is a need to fully
and properly staff apparatus which responds to an emergency to ensure that the incident can
be handled.
Depending on which of the various fire service studies is utilized, staffing has been justified
from three individuals per piece of apparatus to as many as six. Through the years, debate
has continued over crew size. The focus of this debate has been the effort by firefighting
groups to develop nationally recognized standards mandating firefighting crew sizes. Such
standards have yet to be established. Crew size decisions remain a local fire department or
municipal decision in order to allow appropriate flexibility to deal with the local
environment. Whether the crew is formed in the fire station and responds to the scene on the
apparatus or is formed at the scene as personnel arrive is also a local decision.
The variables in this crew size decision process involve some of the following:
• Demographics of the community
• Numbers of fires to which the units respond
• Location of the fire stations and distance of travel for back-up
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DETERMINING STAFFING (Continued)
• Availability of mutual aid
• Type and age of buildings in the community
• Type of manufacturing and commerce which exists within the community
• Funding availability for staffing
• General physical condition of firefighters
• Level and type of training provided by the firefighters
• Operational strategies and procedures utilized by the fire department
These are some of the key factors that should be considered by a fire department or
community to determine acceptable crew size. The decision on acceptable apparatus crew
size is a critical decision to be made due to its direct impact on the level of fire and rescue
service provided to the public. The size of the crew determines what life/property saving
evolutions (fire attack, search and rescue and/or exposure protection) can be performed at
the emergency incident and how quickly the evolutions can be completed.
A discussion of some examples of firefighter utilization could assist the reader to understand
what types of functions they must perform and the impact of the crew size.
Firefighter Utilization
One might assume that if there are three personnel on an engine or truck, all three of those
personnel are available for interior fire attack when they arrive on the scene of a working
fire. That perception is not accurate. Most often, the unit driver/firefighter remains with the
unit to operate the pump, or the aerial ladder and set up equipment to support fire fighting
operations.
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DETERMINING STAFFING (Continued)
In a real situation, using engine company operations as an example, these are the functions
initially performed by a crew of three:
Driver
• Remains with the pumper and sets and operates the pump
• Develops water supply
• Provides equipment to part of building
• Relays radio communications
• Guides apparatus placement for incoming units
Officer
• Provides initial incident command
• Sizes up the incident
• Performs circle check of building
• Directs crew of one in interior attack
• Is part of two person interior fire attack crew
• Handles radio communications for crew
• Provides interior command as necessary
Third Person
• Lays out supply line
• Pulls and advances hand lines
• Begins interior fire attack with officer as crew of two
This example presumes there are no immediate incident complexities such as medical or
rescue emergencies. A similar example could be outlined for the staffing of a ladder truck.
Raising ladders for rescue requires two to three firefighters, depending upon the length of
the ladder. Ground ladders longer than 35 feet, such as those carried on an aerial truck,
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DETERMINING STAFFING (Continued)
require as many as four firefighters to raise in place. If a rescue is to be made, then these
ground ladders must be removed from their storage by firefighters, carried to the correct
location and raised in place. Without sufficient personnel, this activity can be delayed
resulting in injury or death to civilians.
The purpose of these examples is to point out the justification for the on-scene staffing of
engines and ladder trucks with three personnel as the absolute minimum. Personnel on units
staffed by one or two personnel cannot function as independent crews on the scene of
emergencies. The firefighters join up with other personnel from other units or await the
arrival of volunteer personnel responding in personal vehicles, after arriving on the scene,
to develop crews for fire attack.
The approach to unit staffing of one or two firefighters can seriously hinder successful fire
attack operations, in addition to creating significant safety risks for firefighter injuries and
liability exposure.
STAFFING OPTIONS
The Study Team was asked about career staffing, volunteer staffing and combined staffing.
To provide the reader with information on which to base opinions, the following information
may be useful. There appear to be three basic alternatives for staffing fire and rescue units
in Larchmont. These are:
A. All paid staffing
B. Combination of career and volunteer personnel
C. All volunteer staffing
Option A - Provide all paid staffing of fire and rescue units
The Larchmont Fire Department is a combination paid/volunteer fire department. If the
combination fire department were to become fully paid, it would entail fully staffing two
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STAFFING OPTIONS (Continued)
pumpers, one ladder truck and the patrol unit with a minimum of three paid firefighting
personnel, including an officer per unit. To staff one position on a 24-hour basis and allow
time off for training, vacations and sick leave and on-the-job injuries requires 5.19*
employees. The number of personnel required for this alternative would be:
• 2 pumpers x 3 staff x 5.19 = 31.1 staff
• 1 ladder trucks x 3 staff x 5.19 = 15.6 staff
• 1 rescue squads x 3 staff x 5.19 = 15.6 staff
• 1 deputy chief x 4 = 4.0 staff
TOTAL = 66.3 staff
If the average cost of personnel, including fringe benefits, is $77,000, the annual personnel
costs would be approximately- 55,105,100.
*The 5.19 figure is calculated as follows:
Total hours in a year: 8,760
Firefighters work 42 hours x 52 weeks = 2,190
Vacation, sick and injury leave - 501
TOTAL HOURS AVAILABLE = 1,689
Number of Employees 8.760 = 5.19
1,689
The significant advantage of this all paid system is that there would be adequate personnel
available at all times to immediately respond to an emergency. In addition, because they are
available in the station, training could be conducted on a continuing basis and pre-planning
could be completed. Officers would be available at all times to supervise the on-duty
personnel.
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STAFFING OPTIONS (Continued)
There are two disadvantages to this system. The most obvious one is the cost for providing
fire and rescue service. The second one is that it would eliminate volunteer involvement in
the system which has provided excellent service.
Option B - Combination of paid and volunteer staffing of units
Under this alternative some paid firefighting personnel would be placed in the fire station to
ensure that there is a rapid initial response to fire calls, with the volunteers supplying the
additional personnel to handle the incident. To ensure continuity of supervision, career
officers would have to be assigned. They would ensure that all station work is performed,
that the career personnel conduct training, that preplanning is completed, that discipline is
enforced and that career personnel conduct the required building inspections.
The advantages of this alternative are:
• Some savings - allows for maintaining part of the major cost savings since volunteers
are utilized
• Ensures a rapid response for some of the fire apparatus
• Allows the career personnel to handle small incidents without having to call out the
volunteers
• Allows the career personnel to do the pre-planning and then train the volunteers
The disadvantages of this alternative are:
• More costly than an all volunteer system
• No assurance that volunteers would be available at any given time to provide
minimum staffing
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STAFFING OPTIONS (Continued)
• The potential conflict between paid and volunteer personnel in the station
• The possible reduced incentive for the volunteers to respond during the day because
they feel the career personnel will handle it
Based on the experience of other similar jurisdictions, this alternative can realistically
continue to work in the Village of Larchmont for the foreseeable future. Larchmont Fire
Department personnel,paid and volunteer, seemed to be unanimous in their statements to the
Study Team during interviews in the feeling that the combination staffing approach was the
best and most realistic staffing approach for Larchmont.
Option C - Provide fire protection with an all-volunteer system
This alternative provides fire protection by only volunteers. Sometimes there will be
volunteers in the stations when a call is received and the initial apparatus will respond
quickly. At other times, firefighters come from home or work to staff the apparatus and take
it to the scene of the emergency.
The advantage of this alternative is that the costs are maintained at a very low level and the
volunteers will maintain their interest in continuing to provide service.
Under this alternative, however. there can be a major disadvantage: the inability to rapidly
respond on a call. The citizens of the community have no assurance that there will always
be a rapid response to a call for help nor that sufficient equipment to handle the incident will
actually respond.
In summary, the citizens of the Village of Larchmont are reaping major benefits from
its combination paid/volunteer fire and rescue system.
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FIRE DEPARTMENT STAFFING
LARCHMONT FIRE DEPARTMENT STAFFING
This Section discusses current Larchmont Fire Department station and apparatus staffing and
outlines some staffing options for consideration.
Scheduled Paid Station Shift Staffing
The current approved paid staff complement for the Larchmont Fire Department is 14
uniformed firefighters and officers. (See Figure 4.1).
Figure 4.1
UNIFORMED FIREFIGHTER/OFFICER COMPLEMENT
RANK COMPLEMENT
CAPTAIN 1
LIEUTENANT 3
FIREFIGHTER 10
TOTAL 14
Source: Village of Larchmont
One of the firefighter positions has been vacant pending completion of this Study and
assessment of Study recommendations by the Village Board of Trustees.
This complement of paid staff has been utilized to provide a minimum of three(3)uniformed
personnel 24-hours per day seven days per week for a number of years. Paid staff are hired
back on overtime to maintain this three (3) person on-duty staffing level. The Study Team
was advised that this three person staffing approach is referred to as "Code Three" locally.
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LARCHMONT FIRE DEPARTMENT STAFFING (Continued)
Current Apparatus Staffing
The Larchmont Fire Department utilizes a non-standard approach to the staffing of fire
apparatus responding from the fire station on calls. On a planned and scheduled basis the
three on-duty paid firefighter staff members are each assigned to drive/operate a piece of fire
apparatus. As illustrative examples,the following are typical apparatus response and staffing
scenarios for four different types of calls:
House fire - Engine 34 driven by the lieutenant
- Tower Ladder 7 driven by a firefighter
- Engine 35 driven by a firefighter
Store fire - Engine 34 driven by the lieutenant
- Tower Ladder 7 driven by a firefighter
- Engine 35 driven by a firefighter
Auto accident - Engine 33 driven by a firefighter
EMS response - Engine 33 driven by a firefighter
When the response assignment calls for one unit response, the other units generally remain
in the fire station with their assigned paid driver/operator/s prepared to handle other incidents
that may occur or to assists the initially responding unit/s if so requested.
Upon arrival on the scene of the emergency incident, the paid staff on the responding unit/s
form up to serve as the initial attack crew or, as otherwise necessary, begin to mitigate and
deal with the emergency situation. Therefore, depending on the type of call and the number
of units responding, the initial staffing at the scene would be between one and three
uniformed paid firefighters. These firefighters would begin to deal with the incident. Under
this Larchmont response approach, volunteer members respond directly to the scene of the
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LARCHMONT FIRE DEPARTMENT STAFFING (Continued)
incident and provide the additional staffing to handle the incident in cooperation with the
paid staff on the apparatus.
This apparatus staffing and response approach has a number of potential inherent problems.
The most crucial is the fact that there is no way to know how many volunteers will actually
end up responding to the incident. It is also not known when those volunteers will arrive on
the scene. Additionally, as a result, it is very difficult to form up the attack team/s in an
organized, timely manner and safe manner.
In a "perfect world" the most desirable approach would be to have the apparatus respond
from the fire station with a qualified team of at least three persons (paid and/or volunteer) on
each apparatus. Due to the small geographic area (1.07 square mile) protected by the
Larchmont Fire Department and the relatively low number of emergency incidents occurring
in the Village, the current response approach appears to be working well for Larchmont at
this time.
The Study Team urges the Larchmont Fire Department to continually review this response
approach to identify ways for improvement. One important way that improvement could be
made would be the implementation of an in-station volunteer stand-by program that would
allow the apparatus to respond immediately upon call with staffing provided by a
combination of paid and volunteer staffing.
Feasibilitv of"Code Two" Staffing Approach
"Code TNvo" staffing is another local term used to describe a staffing approach that involves
hiring paid staff back on overtime to a minimum station staffing level of two rather than the
current three for some part(e.g. night only) or all of a 24-hour day. According to Larchmont
personnel, the Town of Mamaroneck Fire Department staffs at the Code Two level. The
Study Team was asked to discuss the feasibility of implementing Code Two staffing in the
Larchmont Fire Department. Basically, the question revolves around whether the
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LARCHMONT FIRE DEPARTMENT STAFFING (Continued)
implementation of Code Two staffing would result in a reduction in level of fire protection
service to Larchmont.
As previously discussed, Code Three staffing of the Larchmont Fire Department allows the
immediate response from the station of the three critical fire apparatus units (attack engine,
tower ladder and water supply pumper). Currently, with all units in the station, these units
respond, are set-up, and initial attack is initiated with the three paid staff, as volunteers arrive
at the scene, the full staffing necessary to handle the incident should arrive. In addition, if
one unit is already out and committed on an incident, there would remain two paid staff in
the station to respond at least with the attack engine and the tower ladder.
If Code Two staffing were implemented without any other change in operating procedure,
it is likely to result in a reduction in service level. Only two of the fire apparatus units would
be able to respond (attack engine and tower ladder). The water supply pumper would not
respond due to lack of a driver. There would also only be two paid staff on the scene initially
to begin fire attack until the arrival of qualified volunteer personnel. Further, if one unit is
already out and committed on an incident, then there would remain only one paid staff in the
station to respond with one fire unit. In the latter scenario, the attack pumper would likely
respond without the tower ladder or a water supply pumper.
If some key operational changes were made by the Larchmont Fire Department, it appears
to be feasible to implement Code Two staffing without measurable reduction in service level
to the public. If, for example, a volunteer in-station standby program were implemented
and/or volunteer members of the Larchmont Fire Department were trained and checked-out
to safely and effectively drive and operate apparatus and equipment in the Fire Department,
then it could be possible for Code Two staffing to be implemented with little impact. The
volunteers would need to make up the difference, however, if this reduced staffing approach
were to be successful.
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LARCHMONT FIRE DEPARTMENT STAFFING (Continued)
Volunteer In-Station Standbv
There is no organized program, such as an in-station stand-by program, in place in the
Larchmont Fire Department to encourage or require volunteers to remain in the fire station.
Stand-by refers to remaining at the fire station available to respond. A stand-by can include
a sleep-in which refers to staying at the fire station overnight, responding to alarms which
occur during that period.
The fire protection service in the Village of Larchmont covers a developed suburban area
with significant upscale residential and some commercial development. It is the Study
Team's observation that very few fire departments serving developed communities similar
to Larchmont organize their volunteer staffing by planning on the response of volunteers to
the emergency scene in personal vehicles.
The chief should seriously consider implementing a mandatory volunteer in-station stand-by
program to insure proper and consistent staffing levels. However, this may not be possible
at this time in Larchmont. Fire departments across the nation that rely on volunteer
firefighters for partial or full staffing have been experiencing significant difficulty with the
recruitment and retention of volunteers due, in part, to increasing pressures on personal time.
The establishment of in-station stand-by programs improves the consistency of fire station
staffing and provides the opportunity for volunteer members to plan the use of their
available time. Many successful in-station volunteer stand-by programs require each
volunteer to serve on a volunteer crew and remain in the fire station from, for example, 5
p.m. to 7 a.m., one night a week. Each of the seven stand-by crews (Monday night crew,
Tuesday night crew, Wednesday night crew, etc.) would then serve a weekend day shift (7
a.m. to 5 p.m.) on a rotation to cover all weekend hours each week.
Implementation of volunteer Stand-by programs reduces attrition of volunteer members
as a result of the "burn-out" resulting from excessive time expectations. Expecting a
small number of volunteer members to respond on all emergency incidents on a twenty-four
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hour basis every day places significant pressures on individuals. Over a long period of time,
this hind of time demand can result in experienced and trained volunteers leaving the service.
The chief should also consider implementing other programs that encourage personnel to
remain in the fire station on scheduled basis. Some items for consideration include:
• Stand-by food program to supplement the cost of meals for volunteers serving on
stand-by crews
• Upgrading physical fitness equipment in the fire station
• Providing access to computer equipment for study or other uses
• Library and study areas in the fire station
• Upgrading the bunkroom facilities
The objective of any such programs should be to encourage volunteer firefighting personnel
to remain at the fire station to provide immediately available staffing.
Volunteer EngineTump Operators
The Study Team Nvas advised that none of the volunteer personnel are qualified to drive or
operate the pump on the engines. In fact, the Study Team was advised that the volunteer
personnel are not interested in becoming drivers and pump operators. During the interview
process, it became clear that the question of volunteers becoming driver/pump operators is
one of several controversial issues that has faced the Village and the Larchmont Fire
Department. This appears to be as a result of the perception by some paid personnel that
checking-out volunteers to drive the apparatus and operate the pumps on the engines would
be a precursor to and result in the reduction of paid staff.
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The Study Team was asked to give an opinion as to whether it is feasible to train and check-
out volunteer personnel to drive apparatus and operate the pumps on engines.
There are literally thousands of unpaid/volunteer fire and rescue personnel across the nation
who drive all different types of fire apparatus and operate pumps on engines in a very safe,
professional and effective manner. It is the Study Team's observation that there is nothing
inherently different about a volunteer individual that prevents him or her from being trained
to drive and operate pumps. In many municipalities with combination fire departments,
volunteer and paid staff drive and operate pumps interchangeably. In most of the locations,
the paid and volunteer personnel take the same training and follow the same check-out
process to become qualified driver/operators.
So, it is the Study Teams' assessment that it is possible for volunteer members of the
Larchmont Fire Department to be trained and checked-out to safely and effectively drive and
operate all apparatus and equipment in the Fire Department---including pumps on engines.
Due to anticipated opposition to this occurring, it should be approached and implemented in
a positive manner with open communications and understanding.
VOLUNTEER RECRUITMENT AND RETENTION
This Section discusses various aspects of volunteer recruitment and retention.
Overview
The Study Team's experiences in volunteer fire service reflect various approaches and
reasons for volunteer participation. This experience is useful in explaining some opinions of
volunteer service constraints and benefits.
Nationally, some volunteer fire companies seem to have a continual supply of individuals
who want to volunteer their services. Others, however, have problems trying to recruit
enough volunteers to maintain minimal staffing of units. The key seems to be meeting the
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needs or expectations of the volunteers, which are different in many ways from paid
personnel.
When an individual becomes a career firefighter/EMT, his/her initial concerns appear to be
material needs such as salaries, benefits and financial security. The issue of why people
volunteer their services has been raised to the Study Team. Therefore, a review of accepted
principles of motivation may be helpful. As Maslow's "Hierarchy of Needs" states,
individuals are motivated by five levels of needs. These are in order of highest to lowest:
1. Phvsiological needs such as food, water and shelter.
2. Safety needs such as security, order and stability.
3. A sense of belonging, involving friendship, identification and love.
4. Esteem involving prestige, success and self respect.
5. Self actualization needs which involve psychological needs from within.
Maslow said that people must meet their first need before being able to proceed to meeting
the second need. The first need is usually- met through regular employment and in some
cases through a second job. In order to meet this first need, sometimes both spouses must
work.
As employment and salary also provide for the safety and security needs, individuals move
to the third level which involves the need for a sense of belonging. One way to satisfy this
need is by volunteering to provide some level of community services. It is from this pool of
people that volunteers are available for fire fighting and emergency medical services.
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Volunteer Participation
A Gallup poll in March, 1988 found that nearly 50 percent of all adult Americans volunteer
their time. These people average five hours per week. This is roughly equal to 10 million
full-time employees.
These individuals will continue to be active volunteers as long as their higher needs (sense
of belonging, esteem, and self-actualization) are being met. That is, they need to feel that
their work is important; their work is recognized; they can progress; and their psychological
requirements are being met. Once these needs are no longer met, the individual may look
for another place to volunteer.
As part of various study processes, the Study Team asked a sample of volunteers why they
joined. The responses can be summarized as follows:
• Important service for the public
• Friend or relative in the fire company
• Personal satisfaction
• Make good friends
• Great hobby
• Camaraderie of membership
• Outlet to be able to do something different
• Excitement
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Each of the reasons listed above relates, in part, to the three highest needs expressed in
Maslow's theory. In particular, the self esteem and sense of belonging are important factors.
However, the fact that family and friends are also involved indicates that
exposure to the concept of being a fire volunteer encourages the individual to apply.
The recruitment and selection of capable personnel into volunteer public safety organizations
is critical to the quality of services provided to the community. Although state-of-the-art
recruiting and selecting practices will not, in and of themselves, guarantee continued high
performance of personnel over the course of their time as volunteers, these personnel
functions will certainly contribute in a very significant way to the achievement of this
objective.
Essential to the recruiting of high quality public safety personnel is the consideration of
fairness. This key consideration pertains to issues of race/ethnicity and sex. Standards and
procedures need to be "color blind," that is they need to be as free from irrelevant bias and
be as non-discriminatory as possible. Everyone, in other words, should have a fair crack at
being a volunteer and be considered equally with all other applicants.
Organizational Background
Prior to exploring more detailed aspects of volunteer recruitment and retention, the Study
Team refers to two excerpts from a textbook written by a nationally-recognized fire chief,
Chief David B. Gratz. Chief Gratz has had a long and distinguished career as both a career
and volunteer fire chief. Chief Gratz was President of the International Association of Fire
Chiefs and wrote the progressive and complete fire organization management book entitled
Fire Department Management: Scope and Method published by Glancoe Press Fire Science
Series.
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The first excerpt is as follows:
"Traditionally, fire departments have been organized around each individual,
local community. Most fire departments, originally organized as volunteer
groups, were concerned with the safety and welfare of their own little
communities. The result was a spirit of individualism and competition which
still exists to a considerable degree. In some communities fire protection
responsibility is evenly divided among several individual and completely
autonomous organizations."
The second excerpt reads:
"The large majority of fire departments in America had their beginning as volunteer
organizations, with no paid or career firemen. There is considerable justification for
the volunteer fire department in smaller communities. The small community
frequently has neither the need for fire protection, nor the economic base to support
a paid department. As a community begins to grow, the need for fire protection will
undoubtedly increase. A greater incidence of alarms places new burdens on a
volunteer organization, and invariably the need for change becomes evident. How
well the adjustment can be made depends upon how well management has planned."
The Larchmont fire companies were organized along the lines of the traditional American
fire department - as basically volunteer companies. They were organized as a result of the
concern of individual residents for the safety and welfare of their particular community. The
Study Team noted in the fire companies the positive spirit of individualism and competition,
referenced by Chief Gratz.
Board Support
The Study Team believes the Village Board of Trustees clearly supports the continuation of
fire service through appropriate volunteer staffing. From time to time, the Board commends
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the Department for positive actions. During the interview process, some volunteer members
of the Fire Department expressed reservations regarding the extent to which municipal
leadership supported the volunteers and their efforts.
It is suggested, therefore, that the Village Board of Trustees "go on record" explicitly-
supporting
xplicitlysupporting the current combination paid/volunteer staffing approach. This would also serve
to highlight the volunteer nature of the fire service to the public.
The Village Board of Trustees is encouraged to consider a formalized police of support for
the continuation of volunteer participation in the fire and rescue service.
A suggested wording is as follows:
"The Board of Trustees affirms that it is their intent to continue maximum utilization
of volunteers to deliver fire protection and rescue service to the citizens of Larchmont.
In recognizing that the services are critical, the Board supports and encourages the
activities of volunteers."
Current Volunteer Membership Data
The Larchmont Fire Department includes volunteer members as outlined in this Section.
Volunteer Members by Classification
The volunteer membership of the Larchmont Fire Department by member classification is
outlined in Figure 4.2.
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Figure 4.2
VOLUNTEER FIREFIGHTER/OFFICER COMPLEMENT
BY CLASSIFICATION
RANK COMPLEMENT
CHIEF 1
DEPUTY CHIEF 2
CAPTAIN 4
LIEUTENANT 12
SECRETARY 6
TREASURER 6
CLERGY 4
FIREFIGHTER 79
TOTAL 114
Source: Village of Larchmont
It should be noted that volunteer personnel within the Fire Department may hold more than
one position (secretary and firefighter, etc.) in the organization. Therefore, it cannot be
inferred that there are 114 total volunteer members in the Larchmont Fire Department.
Level of Volunteer Activitv
The Study Team was provided with the volunteer Attendance Report for the period of April
1, 1995 through March 31, 1996---the most recent period of activity data utilized for election
qualifications purposes. For that 12 month period, that report contained member specific
data on the following:
• Company based training attended
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• Company meeting attendance
• Departmental training attended
• Specific Departmental activity
• Department meeting attendance
• Fire incident responses
• Total member activity summary
The following summary volunteer activity information was identified by a review of the
Attendance Report:
1. 115 volunteer members were listed
2. 38 volunteer members attained the 15 percent minimum activity requirement
to be eligible to vote in the Departmental election for chiefs
3. 38 volunteer members responded on 10 percent or more of the emergency
incidents as calculated on the Attendance Report
4. 41 volunteer members attended at least six company and/or Departmental
training activities
5. 31 of the volunteer members who responded on over 425 emergency incidents
without having taken any training during that 12-month period
Two primary conclusions appear to be evident from this summary of volunteer activity
information. These conclusions are:
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• There appears to be under 40 minimally active volunteer members of the Larchmont
Fire Department from an operational point of view
• A significant number of members, who are not being required to attend any training,
are being allowed to continue to respond and/or receive credit for responding on
emergency incidents
The apparent practice of allowing a number of volunteer personnel who have not been
receiving training to participate in emergency incident response should be addressed.
For purposes of the safety of the individual volunteer member, fellow firefighters and the
members of the public being served, personnel not participating in a certain minimal amount
of in-station training should not be allowed to respond to and participate in the handling of
emergency incidents.
The chief should review this potential safety issue and consider establishing a policy that
would restrict from operational response involvement personnel not participating in a
minimal amount of in-station training.
The Study Team was advised by a number of Fire Department officials that, over the last
several years, the Fire Department has experience a significant reduction in the number of
qualified active volunteer members. Comparative data on trends in volunteer activity was
not available to the Study Team; therefore, this potentially serious problem cannot be
addressed in this Study. It is suggested that the chief provide the Village Board of Trustees
with quarterly and annual volunteer activity information in summary form in order for any
trends in level of activity to be identified.
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Volunteer Recruitment
Each volunteer for the fire services serves as an ambassador who can encourage individuals
to apply for membership. While incentives, as listed in this section, are very important,
personal recruitment by the current members is vital to the continued success of the volunteer
program.
A number of the ways new volunteers are recruited in many municipalities with volunteer
fire companies are:
•
Word of mouth
• Family tradition
• Distribution of brochures
• Area-,N-ide poster placement in businesses, etc.
• Door to door neighborhood recruitment
• CPR and EMT-A classes open to the public
• Television public service announcements
• Public service announcements by radio
• Speakers sent to community group meetings and high schools
The Study Team observed that the volunteer recruitment process in Larchmont is not
coordinated. In some instances, it was noted that there is some informal recruitment of
volunteer members from one company to another.
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Retention of Volunteers
Clearly, the management of public safety personnel resources is a critical task, since human
resourcesgenerally determine the quality of services delivered to the public.
Volunteers do not respond for a variety of reasons including: days off and away from area;
vacation; sickness; injure; other priorities and time commitments; and time away for training.
Even though they are volunteers, some level of commitment is needed to ensure that
personnel are available for response. For example, if many of the active volunteers are
leaving the community to attend a parade, then sufficient volunteers and paid staff must
remain in the area and be available to respond on calls.
A critical time period for efforts to retain volunteers is the first four years. It has been said
that "if a new member completes the first four years he will most probably remain for many
years." Volunteer programs aimed to retain members during their first four years of
membership should be identified as a priority.
Based upon interviews with volunteer personnel in Larchmont, it seems there has been a
stagnation in some volunteer memberships.
The Study Team was advised by Fire Department leaders that very little effort had been
made in the past to develop programs directly aimed at the retention of volunteer fire and
rescue personnel. The overall philosophy of the leadership of the Fire Department is,
however, consistent with a very important volunteer retention approach. Pride in the
organization and treating the volunteer personnel "right" are important to the leadership.
Volunteers were asked their reasons for remaining volunteers. Their responses included:
• Pride in the organization
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• Once you get a taste of it, you want to continue
• Continuing need to help the public
• Keep up the friendships
• The great personal satisfaction received
• Physical activity
• To continue involvement is an enjoyable activity for those who are career firefighters
in other jurisdictions.
The efforts to retain volunteer personnel seem to vary by fire company. There is no official
program to retain volunteer members. The retention programs for volunteer fire personnel
should be broad-based because the various fire companies may be competing against each
other for a very limited and valuable resource.
Although the leadership openly applauds the outstanding services of its volunteer fire
personnel, there are few incentives to retain volunteers. Funds are not currently earmarked
to help in the recruitment or retention process.
There are many very successful volunteer fire services throughout the U.S.;the basis for their
success varies significantly. However, the Study Team has noted that the more successful
systems expend a considerable effort to retain their volunteer personnel.
Much time and effort is committed to providing training and experience to these personnel.
Retaining trained and experienced personnel is more cost effective than having to constantly
train new volunteers. Of course, trained and experienced personnel also provide better
service.
LtEl"
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Although a number of incentives in other communities do not apply to Larchmont, the
various benefits reflect a community's goal of recruiting and maintaining volunteers. Several
of the programs that have been successful in helping to retain volunteers in other
municipalities include:
1. Comprehensive awards program
2. Social events, such as banquets and dinners
3. Education tuition assistance programs
4. Workers Compensation coverage
5. Length of Service Awards Programs
6. Free training and experience for career preparation in fire, rescue, emergency
medical and other related areas
7. Free passes or tickets to community activities, e.g. theater passes, beach use
passes, and, picnics
8. Physical fitness facilities and equipment
9. Insurance coverage, including medical. dental and life insurance
10. Various compensation programs including:
a. Out of pocket expenses:
- Fuel
Clothing
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- Education and training materials
Meals
b. Hourly rate of pay - "paid on call" volunteers
C. Compensation based on an activity-related point system
11. Reduced sewer and water rates
12. Property tax percentage reduction
Recruitment and retention is of prime importance to the continuation of the volunteer fire
service in the Larchmont Fire Department. Therefore, it is important that the Village and
each of the volunteer organizations work together to develop and implement programs which
maintain a high decree of volunteerism in the system.
Attrition of Volunteer Members
The reasons for members leaving the volunteer services are very similar to those of other
jurisdictions. Family obligations, two-worker families, shift work, training, recertification
requirements and conflict within the Fire Department were stated by members as the major
reasons for leaving.
Attrition becomes a major problem because of the amount of training required to do the job.
When trained volunteers leave the fire department, a void is created until new volunteers can
be trained. Training time for new members (who are not fully "available") can distort the
availability statistics.
There is no debriefing system for collecting exit interview data. If this information were
collected Department-wide, officials would have a better understanding of the reasons why
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people leave. Clearly,no incentive will stop all attrition, but the information should be useful
in efforts to retain some volunteers.
Conflict Within the Fire Department
A number of past and current volunteer members of the Larchmont Fire Department advised
the Study Team during interviews and through the survey forms that a major disincentive to
continuing as a volunteer in the Fire Department is the high level of conflict and strife that
has existed within the Fire Department and with the Village leadership.
The Study Team has taken this into consideration throughout this Study and some
recommendations are focused specifically on attempting to resolve the major issues that exist
through, among other things, organizational change.
Public Awareness
During interviews with the Study Team, a number of the volunteers expressed the concern
that the general public in Larchmont is not fully aware of the nature and organization of the
fire service. The statement was made several times that many of the residents of the Fire
Department's service area moved from other municipalities to this area and still believe that
they are being served by an all-paid fire department.
Most citizens know they have a local fire station but some may believe it is fully staffed with
career personnel.
The Study Team was advised that local newspapers have provided some coverage of
Larchmont Fire Department activities. This coverage has been sporadic and primarily related
to negative issues.
There appears to be a need to educate the Larchmont citizens on the programs and
composition of the Larchmont Fire Department. The Fire Department has apparently
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attempted to deal with this needed education through the fund drive materials that have been
sent out.
Mentor Program
Nationally, many successful volunteer fire departments include a mentor program in their
official member retention efforts.
Generally, a mentor program means that as new members are voted into membership they
are each individually assigned ail experienced member to function as mentor. The mentor
would follow the progress of the new member, provide advice, and assist with any problems
or concerns that the new member may encounter.
Mentor programs serve to make the new member feel "wanted" and supported. In addition,
mentor programs encourage more of a team spirit among the members of the volunteer fire
department.
The chief of the Larchmont Fire Department should consider establishing an official mentor
program for new operational members of the Department. Once established, regular follow-
up should be made with mentors to insure that the program is working as intended. A simple
New Member Status Form could be developed for regular reports on new members to be
made to the chief.
Larchmont Recruitment Efforts
During interviews, Fire Department members indicated that very little is done that could be
considered serious volunteer recruitment initiatives. One officer indicated that they "do not
do much recruitment" and that this is "one of our weaknesses."
Recruitment efforts are primarily `word of mouth' invitations from members. In addition,
the Fire Department has apparently sponsored a block party in front of the fire station in
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recent years where a table was set up and the public was advised of the possibility of
becoming a volunteer member. These appear to be very inconsistent and limited approaches
to volunteer recruitment in Larchmont.
Retention Efforts
The Larchmont Fire Department and its fire companies have initiated various efforts that
impact the retention of volunteer members. Most of these initiatives have been accomplished
on an ad hoc basis and not as part of an officially planned retention program. Some of these
have been:
• Food brought to the fire station
• Larchmont Banquet
Length of Service Benefit Program
Many jurisdictions in the U.S. with either fully volunteer or combination career and
volunteer systems have established a Length of Service Awards Program (LOSAP) for the
volunteer fire personnel. This program has a proven track record of improving volunteer
recruitment and retention. The program provides certain benefits to volunteers who have met
minimum calendar year service requirements for a set number of years. In other words, it
is a volunteer retirement type benefit program.
A number of programs established in other jurisdictions involve the following types of
procedures and benefits:
Requirements
1. Obtain 50 points in a calendar year.
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2. Reach acre 60 and 20 years of certified service.
3. Reach age 55 and 20 years of certified service, with a reduced payment.
4. 1 point for each hour training course - maximum 20
1 point for each drill - maximum 25
1 point for each official meeting - maximum 15
1 point for each call - maximum 40
25 points for elected or appointed office - maximum 25
'/2 point for collateral duties - maximum 25
5 points per month for full-time military service-maximum 50
Benefits
1. 5150.00 per month (age 60 and 20 years)
2. 5100.00 per month (age 55 and 20 years)
3. For each year above 20 years, add $5.00 per month.
4. Maximum benefit is 5200.00 per month.
5. If disabled as a result of incident, then eligible for benefits regardless of age
or length of service.
6. In event of volunteer's death while receiving benefits, spouse receives 50
percent of benefits until death or remarriage.
7. In event of volunteer's death after 25 years of service but before reaching age
60, spouse receives 50 percent of benefits until death or remarriage.
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8. Death in line of duty, burial benefits of$2,500.00.
9. If a volunteer reaches age 70 without achieving 25 years of service, he/she can
receive retirement for years of service at the rate of$4.00 per year of certified
service.
SUMMARY
The Village of Larchmont utilizes a "code three" staffing approach, a three-person staffing
model. The Town of Mamaroneck employees a "code two" staffing model, a two-person
staffing program. While "code two" staffing in Larchmont may be perceived as a reduction
in service levels, the question becomes whether the two-person staffing model is adequate.
The Study Team believes the "code two" staffing could be adequate if there were mandatory
stand-by programs for volunteers and automatic mutual aid.
The cost savings for Larchmont should be substantial; however, if adopted, some of those
savings should be directed toward volunteer recruitment, retention and awards.
The recommendations in this Chapter relate to upgrading the current fire services model.
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RECOMMENDATIONS
4.1 The Village of Larchmont should make every effort to maintain a viable combination
staffing approach to the provision of fire and rescue service to the Village of
Larchmont.
4.2 The chief should provide the Village Board of Trustees with quarterly and annual
volunteer activity information in summary form in order for any trends in level of
activity to be identified.
4.3 The chief should review the potential safety issue of untrained personnel participating
in operational activities and consider establishing a policy that would restrict from
operational response personnel not participating in a certain minimal amount of in-
station training.
4.4 Periodic articles should be placed in local newspapers regarding activities of the
Larchmont Fire Department. These articles could cover the volunteer nature of the
staffing, incident activities, general Fire Department activities of interest to the public,
and the need for additional volunteer personnel.
4.5 The Chief is encouraged to implement volunteer standby programs to ensure that a
minimum level of personnel are available in the station and the first due district.
4.6 The chief should:
A. Develop a standard exit interview form to be completed by volunteer
personnel who are dropping out of the program,
B. Collate this information and analyze any trends and work to establish a
program to reduce the attrition, and
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RECOMMENDATIONS (Continued)
C. Share exit interview data with the proposed Volunteer Recruitment and
Retention Committee for program development use.
4.7 The Village Board of Trustees are encouraged to consider a formalized policy of
support for the continuation of volunteer participation in the fire service.
A suggested wording is as follows:
"The Board affirms that it is their intent to continue maximum utilization of
volunteers to deliver fire protection to the citizens of Larchmont. In recognizing that
the services are critical, the Board supports and encourages all of the activities of
volunteers."
4.8 A comprehensive volunteer recruitment program should be developed. This could be
accomplished by the creation of a Volunteer Recruitment and Retention Committee
to report its recommendations to the Village Board and the Fire Department. The
program should be appropriately funded and include:
A. Develop and propose the LOSAP program.
B. Make recommendations for other volunteer retention programs based on input
received from the exit interview or forms.
C. Develop a budget recommendation for the recruitment and retention programs.
D. Make recommendations for volunteer recruitment programs, such as possible
medical and dental care.
E. A volunteer handbook should be developed which can be given to prospective
members of the fire companies, explaining the benefits and requirements of
becoming a volunteer.
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RECOMMENDATIONS (Continued)
H. Volunteer programs aimed to retain members during their first four years of
membership should be identified as a priority.
An initial funding level of 53,000 should be considered by the Village for the initial
development of a recruitment and retention program.
4.9 The chief should establish a Public Relations Committee to assure the public
understands that volunteers provide fire and rescue service.
4.10 The Village Board of Trustees is encouraged to financially support the volunteer
recruitment and retention efforts in Larchmont.
4.11 The chief should consider establishing an official mentor program for new operational
members of the Department.
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CHAPTER FIVE
OPERATIONS AND PREVENTION
CHAPTER FIVE
OPERATIONS AND PREVENTION
This Chapter addresses operational aspects of the Larchmont fire protection service. An
incident response workload analysis is presented. Also, this Chapter covers response times,
emergency medical first responder service, fire prevention, building inspections and safety
programs. Recommendations related to these subject areas are then made.
WORKLOAD ANALYSIS
The following section of this Chapter provide a "snapshot" picture of Fire Department
incident related workload data.
Incidents by Month of Year
Incidents handled by the Larchmont Fire Department by month for calendar years 1994
through 1996, to 3/96, are illustrated in Figure 5.1.
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WORKLOAD ANALYSIS (Continued)
Figure 5.1
INCIDENTS BY MONTH OF YEAR
s•0 i s 1 s s ,
January 98 68 83
February 52 58
March 61 45
April 46 56
May 51 67
June 60
July 67
August 51 58
September 51 57
October t64
59
November 4 78
December 5 59
Note: Data based on Monthly Reports provided,some Monthly
Reports were not available to the Study Team.
Source: Larchmont Fire Department
Incidents handled by the Larchmont Fire Department by type of incident for calendar years
1994 through 1996, to 3/96, is illustrated in Figure 5.2.
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WORKLOAD ANALYSIS (Continued)
Figure 5.2
INCIDENTS BY INCIDENT TYPE
CALENDAR YEARS 1994 THROUGH 1996
INCIDENT TYPE 1994 1995 1996*
Structure fire 21 10 6
Fire outside a structure(no value) 0 1 0
Vehicle fire 9 4 2
Trees,brush,grass fire 5 4 1
Refuse fire (no value) 1 5 0
Explosion, no after fire 1 0 0
Outside spill, leak with fire 0 0 0
Fire/explosion not classified 1 0 0
Over pressure ruptures(no fire) 1 0 0
Rescue 19 22 5
EMS only 325 328 58
Hazardous conditions 128 135 64
Service calls 59 47 6
Good intent calls 51 44 12
False malicious 2 3 0
False malfunction 35 57 11
False unintentional 51 61 5
Total 709 721 1 170
Note: Data based on Monthly Reports provided,some Monthly Reports were not made
available because they do not exist.
Source: Larchmont Fire Department
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OPERATIONS AND PREVENTION
WORKLOAD ANALYSIS (Continued)
The Monthly Reports and annual Incident Summary Reports provided to the Study Team by
the Larchmont Fire Department do not include a category for "Mutual Aid." The chief
should consider adding the new incident type category of"Mutual Aid" for those calls run
by the Fire Department outside the boundaries of Larchmont.
The Study Team also noted that the incident related workload data maintained and available
for summary analysis was incomplete and in a number of instances maintained only in
handwritten form. The Study Team also noted that the Fire Department has available
computer hardware and software resources as well as very qualified members, paid and
volunteer who are fully capable of developing, maintaining and assessing workload data that
is gathered in various forms. The chief should consider providing the oversight and direction
to insure that workload data is maintained, reviewed and assessed regularly in support of
service related decisions.
Based on the above workload data, the following summary statements and conclusions are
apparent:
• Between one and two actual fire incidents are handled each month
• 45 percent of the workload of the Larchmont Fire Department is emergency medical
calls
• 2 incidents per day is the average number of calls handled throughout the year
• Responses by incident type seem to be typical of a small fire department serving a
small geographic area that is primarily residential in nature
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OPERATIONS AND PREVENTION
FIRE RISKS
The service area of the Larchmont Fire Department is characterized as largely residential.
The Study Team was advised that the percentage of the one-mile service area by land use is
as follows:
Residential/Mixed Use 88.6%
Public Lands 5.9%
Business/Commercial 5.5% (See Figure 5.3)
This distribution of land use is not likely to change in the future. There does not appear to
be any aspect of this land use that presents any significant fire and/or emergency medical
problem. Additionally, as illustrated previously, the Larchmont Fire Department has a
relatively light workload.
RESPONSE TIMES
There are a number of factors that directly affect fire department response time. The primary
influencing factors include:
• Size of service area
• Location of fire station in service area
• Street layout
• Vehicle traffic
• Apparatus staffing approach
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Carroll Smacker&Amociatm Inc 138
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OPERATIONS AND PREVENTION
RESPONSE TIMES (Continued)
The service area of the Larchmont Fire Department,which is 1.07 square miles, is very small
when compared to typical fire station response areas of other fire departments nationally.
Additionally, the fire station is located essentially in the geographic center of the Village and
therefore provides excellent access to all parts of the Village. The streets of the Village are
well laid out for emergency response.
The approach to staffing of apparatus was discussed in detail in Chapter Four of this
assessment Study. The staffing approach provides for essentially immediate response of
apparatus upon dispatch,due to each of the three paid staff responding in appropriate
apparatus upon call receipt.
The Study Team was not provided any statistical response time data because it does not exist.
In fact, there appeared to be no automated means of measuring response times built into the
communications and dispatch system. This deficiency should be resolved by the
implementation of the changes suggested in the Consolidation Alternatives chapter.
The Study Team is of the opinion, however, that the response times of the Larchmont Fire
Department should be excellent---generally 1.5 minutes maximum.The chief should consider
implementing a means of automatically documenting Fire Department response times. This
could be provided through County Control handling the dispatch process.
EMERGENCY MEDICAL SERVICE
The delivery of quality emergency medical care is one of the most basic services which a
local government must ensure is available to its citizens. This care can be delivered through
a variety of methods which include: contract service through private ambulance company;
delegate service to a volunteer agency in a community; direct service provided through
government employees; or any combination of these.
As EMS in the United States has evolved, so have the different models or profiles of
organizational structures for the delivery of the service. In the early 1980s the United States
sm
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OPERATIONS AND PREVENTION
EMERGENCY MEDICAL SERVICES (Continued)
Fire Administration published a document, Fire Service/EMS, A Proogam Management
Guide. This publication identified 28 different profiles for the delivery of EMS. Twenty six
of these structures included participation of the fire department in some aspect of the pre-
hospital EMS system. Each profile has its own particular strengths and weaknesses. The
profiles identified over a decade ago still accurately portray fire service EMS today. The
original profiles identified in the Management Guide are based on five primary variables:
1. Dual-role, cross-trained - "civilian"
2. Career - career/volunteer - volunteer
3. First responder - EMT - paramedic
4. Transporting - non-transporting
5. Engine or ladder company first response - no engine or truck company first
response
These variables can be combined into 52 different ways of EMS delivery and most likely
every one has been tried and is probably in service somewhere in the United States. The
variables can be pieced together as necessary to meet the needs and resources of a particular
area. Many jurisdictions have started out with one profile and changed to another as the
EMS system has grown and resources shifted.
Combination of these variables can be classified into one of four main categories of pre-
hospital emergency medical service delivery:
1. Third service - EMS agency separate from any other public safety agency and
usually holds equal status with agencies such as the fire department and police
department. These services may be career, volunteer or combination services.
Carroll Baracker&Associates,Inc. 140
OPERATIONS AND PREVENTION
EMERGENCY MEDICAL SERVICES (Continued)
2. Hospital-based - EMS delivery is from a medical facility. Personnel are
hospital employees and services are supported by hospital funding.
3. Private services - EMS delivery services are provided for a fee on a for-profit
basis.
4. Fire department based - EMS delivery provided by fire department personnel
(career, volunteer, or combination).
There is a long history of fire service involvement in EMS in the United States. As early as
1928, a few fire departments began providing first aid services to citizens suffering from
heart attack symptoms or having trouble breathing. These services were provided with
equipment that the firefighters carried to treat other firefighters if they became overcome
with smoke. Later in the 1930's fire departments began developing special vehicles to use to
render assistance to citizens in their communities who became ill or injured. These units
included vehicles use for heavy rescue and extrication.
During the 1940s and 1950s many fire departments continued to provide ambulance service
which consisted primarily of basic first aid and transport operations. As pre-hospital care
started to become more sophisticated with the introduction of national standards for training
of Emergency Medical Technicians (EMT) and Paramedics, fire department involvement in
EMS throughout the country grew. In 1996, it is estimated that over sixty percent of the fire
departments in the United States are involved in providing some level of emergency medical
service. In these departments from one-half to three-quarters of the incidents they handle are
EMS related.
EMS in Larchmont
In some communities, fire departments are the sole source for pre-hospital EMS. In most
areas, the pre-hospital EMS is a coordinated effort of more than one agency. That is the
organizational model in Larchmont. The provision for out-of-hospital emergency medical
L
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OPERATIONS AND PREVENTION
EMERGENCY MEDICAL SERVICES (Continued)
care is a coordinated effort of paid and volunteers from the Larchmont Fire Department, as
well as,the third service, Volunteer Ambulance Corps (VAC). Listed below are the various
aspects of out-of-hospital care:
First Responder - Emergency medical services rendered by personnel on rapid
responding units, generally the closest to the scene of an incident. These services are
generally basic first aid in nature and provided by police, firefighters or other
designated trained personnel. First responder services may also be advanced life
support when paramedics staff the units.
Basic Life Support - A level of pre-hospital emergency care which involves
stabilization and non-invasive techniques such as positioning of the body, splinting
of extremities, applying dressings and pressure to bleeding points. It also includes the
recognition of life threatening conditions which may result in respiratory and cardiac
arrest, and the application of life support functions including cardiopulmonary
resuscitation (CPR), and use of adjunctive techniques and procedures.
Advanced life support - A sophisticated level of pre-hospital emergency care which
includes basic life support function and cardiopulmonary resuscitation, cardiac
monitoring, defibrillation, EKG telemetry, administration of antiarrhythmic agents,
intravenous therapy, administration of specific medications, drugs and solutions, use
of adjunctive ventilation devices, trauma care , and other authorized techniques and
procedures.
The Larchmont Fire Department provides Basic Life Support - First Responder Services.
The VAC provides both basic and advanced life support along with transportation services.
Coordination between the two provider agencies appears to be very effective in providing
timely response to medical and trauma emergencies.
In addition to performing cardio-pulmonary resuscitation and basic first aid procedures,most
firefighters have access to and are trained in using Automatic External Defibrillators (AED).
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OPERATIONS AND PREVENTION
EMERGENCY MEDICAL SERVICES (Continued)
Early application of electrical therapy has been demonstrated to be the most important factor
in successful resuscitation of out of hospital sudden deaths. Having this service available
enhances the EMS available to the citizens of Larchmont.
A large percentage of the Fire Department's responses are for medical emergencies. This
is in keeping with national trends. In order to maintain this level of service, the fire
department provides the necessary training and recertification training for their personnel.
As a support to the basic and advanced life support service provided by the VAC, the
Larchmont Fire Department should continue to provide emergency medical first responder
service to Larchmont including the use of the Automatic External Defibrillator as a valuable
state-of-the-art life saving service to the public.
APPARATUS RESPONSE ASSIGNMENTS
Delivering the best possible fire and rescue service to the public requires, among other
things, the proper number and type of apparatus arriving on the scene of emergencies in the
shortest possible time. Regarding standard response assignments NFPA 1201, entitled
Developing Fire Protection Services for the Public, states as follows:
"Standard response assignments and procedures, predetermined by the location and
nature of the reported incident, shall regulate the dispatch of companies, response
groups, and command officers to fires and other emergency incidents."
Apparatus response assignments refers to the number and type of fire and rescue vehicular
apparatus dispatched under pre-established protocols. Consistent protocols that result in the
dispatch of a sufficient number and type of apparatus are a very important part of the
consistent delivery of qualitative and quantitative fire protection services.
L
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OPERATIONS AND PREVENTION
APPARATUS RESPONSE ASSIGNMENTS (Continued)
Current Apparatus Assignments
Current apparatus dispatch assignment can be described as follows:
A. The number of apparatus dispatched to a number of types of incidents may be
insufficient.
B. Where the apparatus is dispatched from varies. There is no policy requiring
the dispatch of the closest apparatus (which may be from an adjoining
municipality) to the scene.
C. The chief determines the number and type of apparatus.
Possible Revised Apparatus Dispatch Assignments
Consideration should be given by the Fire Department to adopt a revised Village apparatus
dispatch policy similar to that illustrated in Figure 5.4.
Figure 5.4
POSSIBLE VILLAGE APPARATUS DISPATCH ASSIGNMENTS
TYPE OF •
LADDER
Commercial 3 2 1 2
Multi-family residential 3 2 1 2
Single family residential 2 1 1 1
Vehicle accident 1 1
Alarm bells 1 1
Note: *Two chiefs desirable for overall command and interior/rear/sector coverage.
all
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OPERATIONS AND PREVENTION
APPARATUS RESPONSE ASSIGNMENTS (Continued)
This example of a minimum Village apparatus dispatch should be considered by the chief for
implementation, with appropriate changes and additions based on Larchmont's specific
needs. Implementation of some aspects of this apparatus dispatch plan would require mutual
aid response from, preferably, the closest mutual aid fire station. The adoption of a standard
apparatus dispatch assignment for Larchmont could:
• Provide for the delivery of a consistently adequate number of minimum
apparatus to the incident
• Facilitate the implementation of team based tactics at major incident scenes
• Make the dispatch process more efficient and error free
• The response of excessive numbers of apparatus could be reduced
The transition to dispatch by County Control could facilitate the implementation of revised
dispatch assignments as outlined above.
PRE-FIRE PLANNING
One of the major job responsibilities of fire station personnel is to conduct pre-fire planning
programs for target hazards within their first-due response area. Chief William Clark, in his
textbook entitled, Firefighting Principles and Practices, discusses pre-fire planning in the
following manner:
"When a fire department is acquainted with the potential of a fire before it
occurs, that department has an advantage over the fire, provided that it makes
preparation in keeping with the need shown by the advanced study. It is of
little use to identify and isolate fire fighting problems if nothing is done to
offset them. The elements of a pre-fire plan should not only pinpoint needs but
provide for meeting them. Target hazards and their peculiar features should
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OPERATIONS AND PREVENTION
PRE-FIRE PLANNING (Continued)
be identified. The requirements for combating a fire in any of them should be
studied and plans should be prepared."
The Study Team was told that only minimal structural pre-fire planning is conducted by the
Larchmont Fire Department. To remedy this situation, firefighting personnel should visit the
target hazards in their area, tour each facility, prepare drawings and lists of hazards, and
then, upon return to the station, develop the tactics and strategy for handling incidents at this
particular facility. The drawings and information should then be shared with all personnel
through training programs. The pre-planning documents should be kept readily available for
the officer to refer to while en route to the incident. In addition, the officer should conduct
regular station refresher drills utilizing this material.
The essential elements of a pre-fire plan suggested for the Larchmont Fire Department
should include the following:
1. Special Hazards:
Structural faults, cracked walls, over-loading, hazardous materials, man-traps
(locations, amounts, 704M class, etc.).
2. Entry and Access:
Types of doors and windows, recommended entry, how to force entry if
necessary, stair location, access to roof, basement, storage and utilities.
3. Special Apparatus Assignment:
Recommended revisions to the standard apparatus assignment based on one or
more unique aspects of the structure and/or contents.
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OPERATIONS AND PREVENTION
PRE-FIRE PLANNING (Continued)
4. Life Safety:
Need for evacuation, number of people, how to evacuate, where people are
concentrated or potentially trapped, exit travel and operational restrictions.
5. Exposure:
Buildings and/or material in vicinity of,distance from,type of occupancy,type
of construction, means of fire spread, combustibility.
6. Confinement:
Possible fire and smoke travel (within or without), fire fighting openings, fire
walls, compartmentation, automatic dampers, fire doors.
7. Protection Systems:
Sprinklers, automatic extinguishing systems, standpipe, internal alarm,
emergency lighting, and location of valves, controls, etc.
8. Ventilation:
Building features, building equipment, location of controls, roof, wall,
basement openings.
9. Occupancy and Fuel Load:
Location, type or class, amount and concentration of combustibles.
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OPERATIONS AND PREVENTION
PRE-FIRE PLANNING (Continued)
10. Water Supply:
Location of fire department connections, valves, hydrant locations, main sizes,
location and quantity of auxiliary sources.
11. Salvage:
High value areas, stock susceptible to spike/water damage, water removal
methods, location of drains and sumps.
12. Utilities:
Location of HVAC controls and switches, location of Knox box, location of
elevator keys, location of trash room/s.
Location of controls and valves for electricity, gas (inside and outside), and
water (inside and outside).
13. Construction:
Building specifications, type of construction, class type, construction of roof,
interior walls and floors, false ceilings and shafts.
14. Personnel Needs:
Personnel needs required to deliver the estimated fire flow and their
recommended locations around the facility.
Additional personnel requirements which would require additional alarms and
mutual aid response.
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OPERATIONS AND PREVENTION
PRE-FIRE PLANNING (Continued)
15. Additional Agencies:
Any additional agencies from within the County or the State for handling an
incident at this facility.
FIRE PREVENTION
This Section discusses current fire prevention building inspection and public education
programs and assesses future needs in these areas.
Fire Building Inspections
Regarding the conduct of building inspections and the role of fire department personnel in
fire prevention and code enforcement activities, NFPA Standard 1201, states:
"The enforcement of fire and life safety codes shall be one of the major focus areas
for a fire department," and, "Where needed to ensure a thorough and sufficiently
frequent inspection enforcement schedule, the fire chief shall utilize fire suppression
personnel by incorporating fire prevention duties into fire company activities."
Historically, many fire department personnel believed that they were simply part of a
"standby" service. They believed their purpose was simply "waiting for the big one,"and that
hazardous materials, EMS first responder, fire prevention and other jurisdictional
responsibilities for the welfare of its citizens "was someone else's job."
The fire department is given authority and responsibility to establish and maintain fire and
life safety throughout its jurisdiction. Citizens depend on the fire department to ensure that
they are protected against the dangers of fire, panic, explosions and other hazardous
conditions that may occur within their community. NFPA Standard 1201, Chapter A-14-
5.2.1 states, in part:
ZZ
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OPERATIONS AND PREVENTION
FIRE PREVENTION (Continued)
".At is imperative that all fire department personnel recognize that fire safety
education and prevention is a major part of the fire fighter's responsibilities." and,
"The concept of utilizing fire companies for fire prevention inspection duties has been
used widely in the fire service for the past several decades. This practice has allowed
the fire department to maintain an acceptable level of fire and life safety in a broad
range of critical occupancies.
The advantages of utilizing in-service fire department personnel are numerous. Most
importantly:
• Pre-fire plans are established or updated
• Fire department personnel identify and become familiar with risks they may have to
deal with
• Public relations are improved
• Street and geographical files are updated
• Mandated inspection frequencies are met
• Fire department personnel can also be utilized to check after hour occupancies for
locked/blocked exits, overcrowding and other violations
A study involving eleven cities in the United States entitled "Fire Code Inspections and Fire
Prevention: What Methods Lead to Success?" was conducted by the Urban Institute and the
National Fire Protection Association in 1978 with funding provided by the U.S. Fire
Administration and the National Science Foundation. The following findings regarding fire
safety code inspection programs pertinent to Stamford were cited in the report:
L,wnl
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OPERATIONS AND PREVENTION
FIRE PREVENTION (Continued)
"Summary of Conclusions and Recommendations on Fire-Code Inspection Practices:
1. Fire rates appeared to be substantially lower in cities that annually inspected
all or nearly all public buildings...
2. Cities that used fire-suppression companies for a large share or their regular
fire-code inspections appeared to have substantially lower fire rates than cities
that used full-time fire prevention bureau inspectors exclusively. The probable
reason is that cities using full-time inspectors exclusively often did not have
sufficient personnel_ to make annual inspection of all inspectable properties...
3. Cities that assigned inspection responsibility by geographical districts
appeared to be more successful in covering all inspectable properties. We
recommend that fire departments use geographic areas of responsibility to
assign inspections, and that they use a systematic block-by-block or street-by-
street check off approach, to ensure that all inspectable properties are covered.
4. There was no evidence that differences in fire rates are sensitive to other
differences in inspection practices examined: (a) techniques used to prepare
inspectors. (b) techniques used to assure thorough inspections, (c)techniques
used to persuade owners and managers to comply, (d) techniques used to
enforce compliance when voluntary compliance is not possible, or (e)
techniques used to control building features..."
Larchmont Fire Inspections
One of the primary goals and objectives of Village Board of Trustees stated in 1993 was as
follows:
"Goal 3: That Fire Inspections in the Village of Larchmont be conducted by the paid
firefighters with the optional assistance of the volunteers.
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OPERATIONS AND PREVENTION
FIRE PREVENTION (Continued)
ObJectives:
1. That a Fire Inspection Program be designed which trains the paid
firefighters to carry out the inspections and trains them to do so at a
cost the Village Board finds acceptable."
Subsequent to the delineation of this Village goal and objective, the chief of the Fire
Department transmitted a memorandum to the Mayor and Board of Trustees outlining a plan
for the full implementation of a fire inspections program by the Fire Department. The Study
Team has been advised that an impasse then developed regarding the level of training and
associated cost of that training for the paid staff who were to conduct the fire inspections.
The Village then employed a building inspector whose additional responsibility, for an
additional compensation of around $5,500, was to perform fire inspections for the Village.
The Study Team was advised by the Village Fire Inspector that there are 380 inspectable
commercial properties in the Village of Larchmont. At the time this data was provided, 17
of those properties were vacant. The Fire Inspector advised the Study Team that during
calendar year 1995, a total of 219 commercial establishments were inspected. It appears that
the fire inspection workload in Larchmont is beyond the time availability of the building
inspector conducting fire inspections on a part-time basis. Even if the inspector could
complete these inspections, the Fire Department should be responsible for this program.
The Village has an established fee schedule that, if followed,provides between$50 and $100
in revenue for the Village from fire inspection permits issued. The Study Team was advised
that this fee schedule could provide revenues to the Village in the amount of between
$10,000 and $19,000. According to data provided by Village officials, less than $1,000 was
collected during 1995 for fire inspection permits.
In order to conduct a more complete fire inspection program, to facilitate building
familiarization by firefighters and to more effectively utilize the on-duty time of the
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OPERATIONS AND PREVENTION
FIRE PREVENTION (Continued)
uniformed firefighters, it is suggested that the Village Board of Trustees consider reassigning
the responsibility for fire inspections to the Fire Department consistent with Goal 3, as
originally established in 1993. Initially, fire inspections could be conducted following
inspection orientation training for all personnel who will be conducting fire inspections by
qualified personnel within the Fire Department. The paid lieutenants should receive Codes
1 training within the first 12 months of initiation of the program. And, all personnel
conducting fire inspections should complete the Codes 1 and 2 training programs within 36
months of initiation of the fire inspections program.
This phase-in approach to the provision of fire inspection related codes training appears
realistic and should allow the immediate implementation of the program. The Study Team
was advised that this approach to training for firefighters to conduct fire inspections is similar
to that beinc,utilized in the New Rochelle, Pelham Manor and White Plains fire departments.
Public Education
An effective fire department should develop and implement a life and fire safety education
program for the public which is focused on a sensitivity to awareness and attitudes that
reduces the fire and injury risk in the community.
With the exception of fire station visits scheduled for school students, the Larchmont Fire
Department has no formal fire and life safety education program.
NFPA Standard 1201 states the following:
"13-1.1 Fire Safety education shall be considered a major component of fire
protection management.
A13-1.1 Fire officials recognize that public fire safety education is the most
effective way to reduce fire incidence. The majority of fire and fire-
related deaths and injuries occur in residential occupancies, which are
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OPERATIONS AND PREVENTION
FIRE PREVENTION (Continued)
more difficult to inspect because of social resistance and constitutional
protection. Education brings safety attitudes into the home.
13-1.2 Fire safety education objectives shall focus on providing citizens with
information to help them to protect their lives and their property from
fire."
The chief should consider establishing a Life and Fire Safety Education Committee to
develop and implement a fire safety education program in Larchmont. The committee
approach to life and fire safety education has proven effective in many jurisdictions. While
providing third party analysis and recommendations to Fire Department officials, it can also
provide enormous fiscal and professional resources throughout a community for reaching
educational objectives. This standing life and fire safety committee, under the oversight of
the fire department, would be utilized to accomplish the objectives of a comprehensive life
and fire safety education program.
Activities that the Life and Fire Safety Education Committee should undertake include but
are not be limited to the following:
• Programs to address the local fire problems
• Introduction of NFPA's prepackaged program "Learn Not to Burn" into the public and
private schools in the Village
• Promotion of residential fire sprinkler and smoke detector programs
• Education of private sector firms and organizations employees emphasizing the use
of exit facilities, fire department notification and fire drills.
• Fire Prevention Week campaigns
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OPERATIONS AND PREVENTION
FIRE PREVENTION (Continued)
• Holiday and seasonal life and fire safety education programs
Public CPR Training
As a public service, many fire departments nationally offer cardio-pulmonary resuscitation
training to the public. The training of the public in CPR goes hand-in-hand with progressive
municipal emergency medical service programs with Medical Pre-Arrival Instructions being
provided by professional dispatch personnel (recommended for Larchmont through County
Control) and EMS first responder service currently provided by the Larchmont Fire
Department. Training the public in CPR may provide that life support medical care to
someone having a heart attack pending the arrival of the Larchmont Fire Department EMS
first responder and the VAC basic or advanced life support ambulance.
A number of Larchmont firefighters are trained in CPR and can teach CPR. Therefore, there
is an opportunity to offer CPR training to the public at no additional expense, other than
possibly a few disposable supplies. The chief should consider implementing a public CPR
training program to further supplement the state-of-the-art emergency pre-hospital medical
care being provided to people in Larchmont.
SUMMARY
The workload data for the Larchmont fire Department over the past years is incomplete.
Additionally, the workload data does not include mutual aid calls.
The Study Team was not provided with response time data to evaluate responses for the Fire
Department to fire or EMS calls. These data should be collected and utilized.
The Larchmont Fire Department provides Basic Life Support - First Responder Services.
Coordination between the Fire Department and the Volunteer Ambulance Corps seems very
good.
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OPERATIONS AND PREVENTION
SUMMARY (Continued)
The apparatus dispatch policy could be improved. A suggested policy is included for
consideration by the chief.
Since fire department personnel should conduct pre-fire planning, a suggested plan is
recommended.
Although there ,vas a Village Board initiative to implement a fire inspection program, there
,,vas an impasse that resulted in the employment of a Village Building Inspector to conduct
fire inspections on a part-time basis. Fire inspections should be assigned to the Fire
Department.
�j
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OPERATIONS AND PREVENTION
RECOMMENDATIONS
5.1 The chief should consider providing the oversight and direction to insure that
workload data is maintained, reviewed and assessed regularly in support of service
related decisions.
5.2 The chief should consider adding the new incident type category of"Mutual Aid" for
those calls run by the Fire Department outside the boundaries of Larchmont.
5.3 The chief should consider implementing a means of automatically documenting Fire
Department response times.
5.4 As a support to the basic and advanced life support service provided by the VAC, the
Larchmont Fire Department should continue to provide emergency medical first
responder service to Larchmont including the use of the Automatic External
Defibrillator as a valuable state-of-the-art life saving service to the public.
5.5 The chief should consider implementing a revised Village apparatus dispatch policy
to provide, through mutual aid, an increase in the number of apparatus responding on
certain incidents and a limitation in the number of apparatus responding on other less
complex incidents.
5.6 The chief should consider implementing a comprehensive pre-fire planning program
where the firefighting personnel visit the target hazards in the Village, tour each
facility, prepare drawings and lists of hazards, and then, upon return to the station,
develop the tactics and strategy for handling incidents at this particular facility.
5.7 The chief should incorporate the review and familiarization of completed pre-fire
plans and related facilities into the Fire Department's training program.
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OPERATIONS AND PREVENTION
RECOMMENDATIONS (Continued)
5.8 The chief should consider implementing a public CPR training program to further
supplement the state-of-the-art emergency pre-hospital medical care being provided
to people in Larchmont.
5.9 The Village Board of Trustees should consider reassigning the responsibility for fire
inspections to the Fire Department consistent with Goal 3, as originally established
in 1993. Initially, fire inspections could be conducted following inspection
orientation training provided to all personnel who will be conducting fire inspections
by qualified personnel within the Fire Department. The paid lieutenants should
receive Codes 1 training within the first 12 months of initiation of the program. And,
all personnel to be conducting fire inspections should complete the Codes 1 and 2
training programs within 36 months of initiation of the fire inspections program.
5.10 The chief should consider establishing a Life and Fire Safety Education Committee
to develop and implement a fire safety education program in Larchmont.
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CHAPTER SIX
TRAINING
CHAPTER SIX
TRAINING
This Chapter presents information regarding national training standards and programs, State
of New York training programs, Westchester County training programs and Larchmont Fire
Department training issues. Additionally, opportunities for improvement through mutual aid
training and joint paid/volunteer training are discussed along with other appropriate options
and recommendations for upgrading the Larchmont Fire Department and its training
programs.
OVERVIEW
The main objective of the fire service is to prevent injury and loss of life and to protect
property. All personnel providing these services must be fully qualified to successfully,
efficiently and safely perform a wide range of skills and have a broad base of knowledge that
allows them to adjust their activities to any given situation. These skills and knowledge can
only be obtained through an effective training program. Training is the key to successful
emergency operations and organizational effectiveness.
Training in the fire service over the past decade has undergone a revolutionary process
because of the changing environment in which it exists. There have been changes in
technology and science resulting in significant improvements in equipment for the fire
service as well as increasing the complexity of fire, rescue and emergency medical situations
that emergency personnel may encounter. The past decade has also seen changes in society
with the emphasis on environmental concerns which also posses a challenge to these
emergency services and their approach to fire and hazardous situations. Personnel safety has
become a primary concern and technology has evolved so as to provide firefighters and EMS
staff with more effective protective clothing and equipment. New safety-directed training
standards have been developed. All these changes require the personnel within the fire
service and new personnel be provided with the training and information required to cope
with these advancements.
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OVERVIEW (Continued)
Fire service personnel receive their training and education in many different ways and from
many different sources. Training in the fire service generally falls into one of three
categories: training courses, drills or in-service training, and formal educational classes.
Training courses are structured, planned classes conducted by an individual skilled in the
educational process. Training classes usually cover a specific and entire subject. Many
training courses have to be taken in a sequential manner since one course may build upon
previous training. Examples of subjects which are covered in training courses for fire
personnel include recruit fire fighting, sequential fire fighting courses, emergency medical
technician courses, pump operations, rescue techniques, hazardous materials, emergency
drivers training and officer ship training courses.
The reinforcement and maintenance of skills and updating of new information usually occurs
via in-service training or drills. These are planned, organized practice sessions, usually
conducted by a company officer, covering a single, specific topic or practice of a
manipulative skill. Included in drills would be the practice of hose layouts, ladder raises,
knot tying,use and placement of salvage covers,the use of forcible entry tools,the advancing
of hose lines, taking of vital signs, application of splints, and practice of assessment skills.
Because so much of a firefighter's practice requires manipulative skills, it is necessary to
regularly reinforce these skills to ensure that they are performed effectively, efficiently and
safely each time an emergency occurs.
Formal education classes are the responsibility of community colleges and other institutions
of higher learning. Here, the classes involve academic subject areas which will assist fire
personnel in performing their job and professional development and advancement. Fire
science degree programs are available from the Associate to Masters degree levels. There are
several universities that have bestowed Doctorate degrees in these areas of study.
With the increasing demands being placed on emergency services to increase the level of
training of personnel, movements began back in the early 1970s to provide structure and
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TRAINING
OVERVIEW (Continued)
organization to the process. The efforts resulted in development of standards to serve as the
basis for training programs. Processes for standards development were established for the fire
service.
NATIONAL TRAINING STANDARDS AND PROGRAMS
In 1972, the Joint Council of National Fire Service Organizations appointed a committee to
develop a standards process and to determine a means of ensuring a nationwide coordinated
effort of implementation.
As these standards were developed, they were reviewed, edited, and updated by the fire
service population throughout the United States. These safety standards were submitted
through the National Fire Protection Association's (NFPA) standards making process, where
all were adopted.
These standards serve as the basis for certification programs at local, state and national
levels.
To fill a need for training of fire service officers and support of state and local training
programs,the National Fire Academy(NFA)was established in Emmitsburg,Maryland. The
Academy, which is part of the National Emergency Training Center, offers a wide range of
training programs in fire service technology, fire incident management, and fire service
organizational management designed to improve fire service personnel's ability to protect
their communities from the threat of fire. The NFA delivers courses both on campus and
through an extensive outreach program. To facilitate attendance at the on-campus courses
in Emmitsburg, a stipend is available to all students accepted into courses. The stipend
covers travel expenses and lodging on campus. Students or their sponsoring agency must
pay for meals. Meals tickets can be purchased at a reasonable price for the period of the
course.
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TRAINING
NATIONAL TRAINING STANDARDS AND PROGRAMS (continued)
The NFA has a four-year program for the development of senior fire officers. The Executive
Fire Officer (EFO) program consists of four two-week on-campus programs: Executive
Development, Strategic Analysis of Fire Department Operations, Strategic Analysis of Fire
Prevention Programs, and Strategic Analysis of Leadership. Following each course, the EFO
candidate must submit an original research paper before being allowed to take the next
course. Upon completion of the four year program, the EFO is invited to attend an annual
conference which focuses on the latest trends in the fire service.
The NFA also offer courses at the college and university levels for staff and command
officers, technical specialists, and executive fire officers. To reach the mass of the fire
service population, the NFA has developed a "train-the-trainer" program to hand off their
training courses to state and local programs.
A wide variety of complete training programs have been developed by the National Fire
Academy. The packages are available from the NFA for a nominal fee and each consist of
all of the slides, video tapes, audio tapes, overhead transparencies, instructor manual and one
copy of the student manual. The topics covered by the ready made programs include safety,
strategy and tactics, and supervisory, fire service management and command level training.
STATE TRAINING PROGRAMS
The Department of State, Office of Fire Prevention and Control, Division of Training and
Education provide the following training related functions within and for the State of New
York fire/rescue services:
• Plans, coordinates and provides training to paid and volunteer firefighters and related
officers,
• Initiates certain training and instructor development for minimum standards,
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STATE TRAINING PROGRAMS (Continued)
• Operates the Senator Frederick L. Warder Academy of Fire Science in Montour Falls,
New York,
• Develops and revises training courses,
• Develops and delivers programs to combat arson,
• Maintains training record, a film library, student work books, instructor
development programs and a library participating in the New York Library Loan
System.
The training is offered in two categories; Outreach and Residential Programs. The types of
Residential Programs and the main Outreach Programs offered by the Division of Training
and Education are listed below.
Outreach Programs
- Aircraft Fire and Rescue
- Firefighting Essentials
Types of Residential Programs - Fire Behavior and Arson
- Fire Inspection Pract.
- Conferences and Seminars - Fire Police
- Workshops - Ladder Company Ops.
- Fire and Arson Courses - Officer Training
- Maintenance Training - Pump Operator
- FEMA Courses - Radiation Safety for FF
- Initial Fire Attack
- Grass, Brush and Forest
- Fire Dept Mgt and Ops
WESTCHESTER COUNTY TRAINING - Rescue Skills and Tech.
The Westchester County Fire Training Academy
offers most of the State Office of Fire Prevention and Control Fire Service Outreach
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TRAINING
WESTCHESTER COUNTY TRAINING (Continued)
Programs. (See Figure 6.1.) A course listing provided to the Study Team consists of 21
courses, including the following "train-the-trainer" type programs:
• Emergency Vehicle Operator Course
• Mask Confidence
• Firefighter Safety & Survival / Company Officer
• Incident Command
The Studv Team was advised that this training is provided by State Fire Instructors and
Countv instructors both on and off site.
LARCHMONT FIRE DEPARTMENT TRAINING
Entre Level Recruit training
This Section outlines the training required of recruit volunteer and paid firefighters.
Initial Volunteer Recruit Training
According to the Constitution and By-Laws of the Larchmont Fire Department:
"Each Active Member of the Fire Department must complete the Essentials of
Firemanship, if such a course is available, within one (1) year of confirmation
as an active member, or as soon as it is available after such time."
The Firefighting Essentials ("Essentials of Firemanship") course is taught regularly by the
Westchester County Fire Trainina Academy and includes 39 hours of instruction.
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TRAINING
LARCHMONT FIRE DEPARTMENT TRAINING (Continued)
Paid Probationary Training Requirements
By State mandate, the minimum basic fire training for probationary and non permanent
firefighters consists of 229 hours in approved courses. This probationary training covers 26
primary areas of study. The Study Team was advised that all paid firefighters have taken this
required course material, with the exception of one senior officer who was hired long before
the State mandated training.
In-Service Training Program
An essential part of any fire department training program is the on-going in-station training
that is given as part of a planned in-service training program. In-service training is intended
to maintain the skills gained by firefighters and officers who have taken full-length fire and
EMS training courses. In-service training also provides the opportunity for a fire department
to provide training to personnel that is local fire department or area specific, e.g. street
familiarization, risk familiarization and policies and procedures training.
Paid Staff In-Service Training,
The Study Team was advised that the paid uniformed staff participates in regular in-service
training that is focused on the State in-service fire training requirements. The State in-
service training requirement and major subject areas to be covered are:
"Permanently appointed firefighters below company grade shall annually receive a
minimum of 100 contact hours of in-service training in the following areas:"
1. Fire protection and organization . . . . . . . . . . . . . . . . . . . . . . . . . . 1 '/2 hours
2. Fire behavior . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 3 hours
3. Extinguishers . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 1 hours
4. Fire Prevention . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 6 hours
5. Personal safety and protective equipment . . . . . . . . . . . . . . . . . . . . 13 hours
LE",
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TRAINING
LARCHMONT FIRE DEPARTMENT TRAINING (Continued)
6. Ropes and knots . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 2 '/z hours
7. Tools and equipment . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 9 hours
8. Ground ladder practices . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 4 hours
9. Hose practices . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 3 hours
10. Forcible entry . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 1 '/2 hours
11. Ventilation . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 3 hours
12. Rescue . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 6 hours
13. Salvage and overhaul . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 6 hours
14. Communications . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 1 '/2 hours
15. Fire pumps . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 1 '/z hours
16. Aerial ladders and elevated devices . . . . . . . . . . . . . . . . . . . . . . . . 1 '/2 hours
17. Fire streams and hydraulics . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 4 '/2 hours
18. Hazardous materials and radiation . . . . . . . . . . . . . . . . . . . . . . . . . 4 '/z hours
19. Natural cover firefighting . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 1 '/z hours
20. First aid . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 5 hours
21. Arson - cause and origin investigation . . . . . . . . . . . . . . . . . . . . . . . 2 hours
22. Detection, notification and suppression systems . . . . . . . . . . . . . . . . 2 hours
23. Apparatus - driving, operation and maintenance . . . . . . . . . . . . . 16 '/2 hours
24. Optional alternatives . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . Up to 40 hours
a. Hydrant locations and special information
b. Hydrant inspection and testing
C. Water systems and fire flows
d. Hazardous materials and their locations
e. Preplanning for life hazards
f. Preplanning for conflagrationsiheavy fire
g. Critique of recent operations
h. Disaster planning
I. Certified first responder
The required subjects list appears to be very complete in terms of the full range of skills and
abilities that should be refreshed regularly by all firefighters.
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TRAINING
LARCHMONT FIRE DEPARTMENT TRAINING (Continued)
Company-Based Volunteer Training
Part of the in-service training is provided to volunteer personnel under the auspices and
direction of officers in each of the four companies. The Study Team was advised that
company-based training focuses almost exclusively on the specific company piece of fire
apparatus and its functions. Therefore:
• The Engine Company members train on the equipment and engine operating
procedures
• The Hook and Ladder members train on the ladder toxver, its equipment and operating
procedures
• The Hose Company members train on their pumper, its equipment and operating
procedures
• The Patrol Company members train on the patrol unit (Rescue), its equipment and
operating procedures
Figure 6.2 provides a summary by month of the staff hours company based in-service
training that, according to documents provided, took place in calendar year 1994.
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TRAINING
LARCHMONT FIRE DEPARTMENT TRAINING (Continued)
Figure 6.2
STAFF HOURS OF COMPANY-BASED TRAINING
FOR VOLUNTEER STAFF
Calendar Year 1994
MONTH HOOK : HOSE ENGINE PATROL
LADDER
January 14 11 10 30 65
February 25.5 24 12 20 81.5
March 17.5 13 9 20 59.5
April 21 27 13.75 20 81.75
May 14 10.5 0 24 48.5
June 14 7 12 10 43
July 28 9 6 16.5 59.5
August 24 12 24 4 64
September 26 5 8 0 39
October 13 12 12 * 37
November 7 9 13.5 11 40.5
December
Total 204 139.5 120.25 155.5 619.25
Note: No data provided on the Monthly Report
Source: Larchmont Fire Department- Monthly Report
It is difficult to arrive at any conclusion/s from this company-based volunteer in-service
training data. However, it appears that in calendar year 1994, the training varied
significantly from month to month and among the companies. It also appears that, at least
during some periods of time, a very limited amount of company-based training took place.
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TRAINING
LARCHMONT FIRE DEPARTMENT TRAINING (Continued)
Company-based training is the responsibility of the appropriate officer of each of the four
companies. The Study Team was advised that this training is not under the control of the
chief.
Departmental Volunteer Training
Another part of the in-service training provided to volunteer personnel is Departmental
training that is under the auspices and direction of the chief. Figure 6.3 provides a summary,
by month, of the staff hours of Departmental in-service training that, according to documents
provided, took place in calendar year 1994.
Figure 6.3
STAFF HOURS OF DEPARTMENT LEVEL TRAINING
FOR VOLUNTEER STAFF
Calendar Year 1994
MONTH TOTAL
January 97.5
February 121
March 96
April 58
May 44
June 63
July 50
August 40
September 48.9
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LARCHMONT FIRE DEPARTMENT TRAINING (Continued)
MONTH •
HOURS
October 136
November 64
December
Total 1 818.4
Note: * Data not provided on the Monthly Report
Source: Larchmont Fire Department-Monthly Report
Apparently, the original concept that justified the decentralized approach to in-service fire
training for volunteers is intertwined with the history of the companies when there was a
significant amount of specialization within each company. Generally, there were sufficient
members of each company for the personnel to be. essentially compartmentalized
operationally on incident scenes. Working as a team of apparatus units staffed by specialized
company members, the emergency incidents were mitigated effectively.
The operations of the Larchmont Fire Department have changed significantly. On-scene
operations and unit utilization is no longer efficient by compartmentalizing the personnel by
company, particularly, due to the few number of volunteer personnel, the quicker more
effective operations and the new attack team approach to fighting fires currently utilized by
the Fire Department. As volunteers arrive on the scene, they are assigned as needed to the
most pressing emergency work that needs to be performed. There is a significant amount of
"crossing the line" on the fire ground with Patrol Company members utilized for interior fire
attack, and Hose Company members utilized for ladder work, etc. ,depending on the work
that the incident commander deems most pressing at the time. The Study Team was advised
that this necessary approach to personnel assignment on the scene during emergency
operations has been hindered by the compartmentalized nature of a significant amount of the
training received by volunteer personnel.
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TRAINING
LARCHMONT FIRE DEPARTMENT TRAINING (Continued)
A number of members advised the Study Team that they considered it time for the Larchmont
Fire Department to fully cross train all volunteer personnel to perform all tasks of the Fire
Department rather than just those limited to their particular company.
The chief should consider a policy change that would provide for all volunteer personnel to
be cross trained on all apparatus, equipment and operating procedures. Consideration should
be given to abolishing "company-based" training with all training focused on a broad cross
section of skills and abilities that should be covered during in-service training for all
volunteer members. The subjects to be covered should be similar to those required of in-
service training for the paid staff.
Joint Paid-Volunteer Training
The Study Team was advised that the paid and volunteer firefighters do not train together.
There are times that a paid staff member "goes along" due to the fact that a piece of
apparatus is to be used as part of the training session and the paid staff are the only drivers
and pump operators. However, there seemed to be a consensus among those interviewed by
the Study Team that the paid and volunteer personnel do not jointly participate in in-service
training sessions.
In order for a team to truly exist and function as one on the scene of emergency incidents
personnel must train together regularly. Training together regularly helps each member of
the team to accept the others and understand their capabilities. The Study Team considers
the initiation of regular joint in-service training as one of the important actions that need to
be taken to "break down perceived barriers" and re-establish a team approach in the Fire
Department. Preferably,the paid staff should be involved as active and positive participants
in all Departmental in-service training sessions.
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LARCHMONT FIRE DEPARTMENT TRAINING (Continued)
Mutual Aid Training
The Study Team was provided with varied information regarding the nature and amount of
training that is conducted with personnel from mutual aid fire departments annually. The
Study Team was advised that, at the most,joint training is held twice yearly with mutual aid
fire departments.
Regular and consistent training is essential for efficient fire operations to take place during
major incidents involving mutual aid fire departments. For improved mutual aid operations,
the chief should mandate regular (at least quarterly) substantive fire training involving,
appropriate mutual aid companies and all Larchmont Fire Department active operational
personnel, paid and volunteer.
SUMMARY
The training of fire service personnel is critical to the safety of firefighters and customers.
The Larchmont Fire Department personnel, paid and volunteer, receive some training;
however, more automation is needed to track the training records,joint training is needed,
and cross training is essential.
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CHAPTER SEVEN
APPARATUS AND FACILITIES
CHAPTER SEVEN
APPARATUS AND FACILITIES
This Chapter describes, fire and rescue apparatus, NFPA standards and general maintenance
requirements. The current inventory of vehicular fire and rescue apparatus is presented in
detail and proposed changes suggested, including a 25-year proposed apparatus replacement
schedule.
This Chapter also addresses the condition of the fire station facility.
GENERAL APPARATUS DESCRIPTION
Since the lay reader may not be familiar with the differences in fire equipment, a brief review
is provided.
There are three basic types of fire apparatus:
• Pumpers to deliver water from an internal tank, pressurized system, or static source
(river or pond) to the fire scene
• Aerial devices such as long extension ladders or platforms
• Specialized rescue trucks with equipment for removing individuals from vehicles,
underground entrapment, high locations, entanglement in machinery, and difficult
transportation accidents.
In addition, each of these three functions can be combined into a single vehicle. For
example, there can be a pumper and ladder truck on a single chassis or a rescue squad and
a ladder truck as the same vehicle.
Pumpers
In order to deliver water to the fire scene, a pumper has to connect to a water source and
function to develop pressure into the hose lines. The amount of water which a pumper
delivers is measured in gallons per minute (gpm). The smallest size pumper currently made
is 500 gpm, while the largest standard pumper is 2,000 gpm.
Liz,
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APPARATUS AND FACILITIES
GENERAL APPARATUS DESCRIPTION (Continued)
Pumpers also carry various size hose and nozzles to get the water to the scene and apply it
to the fire. The various hose sizes and the maximum reasonable flow are shown in the table
below. In addition, the amount of water flowing determines the number of personnel on the
incident who are required in order to stretch the hose line. There are large flow devices
known as master stream nozzles which require a large number of personnel to set up, and a
few individuals to see that the flow continues.
Aerial Devices
Aerial devices carry an elevating ladder or basket, which extends normally to at least 75 feet
in length with a maximum height of 200 feet. A ladder truck has an extension ladder fixed
to the chassis, while a platform has a basket which can extend from ground level to its
maximum height. Several manufacturers also make a combination of a platform and a ladder
truck.
In addition to the fixed extension device, ladder trucks also carry fixed and extension ladders
in varying lengths (12, 14,20, 24, 28, 35,40 and 50 foot). Other responsibilities of personnel
assigned to this type of apparatus might require that entry,ventilation, and salvage equipment
also be carried.
Rescue Equipment
As indicated, the emergency service becomes involved with the rescue of individuals in very
difficult situations. These rescues can involve heights,below-grade problems, entanglements
in machinery, entrapment in vehicles, and exposure to chemicals. Each of these problems
requires that specialized equipment be carried. The type of apparatus and equipment will
vary with the specific needs of an municipality.
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APPARATUS AND FACILITIES
NATIONAL FIRE PROTECTION ASSOCIATION
NFPA Standard 1901 deals with the design, equipping, and testing of fire apparatus. The
ISO Grading Schedule references this standard and requires that the apparatus and equipment
in a fire department be tested yearly and that proper records of the test be kept.
NFPA 1901 requires that pumpers be tested from draft (pond, tank, lake) and meet the levels
of performance detailed in Figure 7.1:
Figure 7.1
PUMPER TESTING REQUIREMENTS
NFPA 1901
PUMP FLOW DURATIONOF • PRESSURE
100% of Capacity 20 150
70%of Capacity 10 200
50%of Capacity 10 250
100% of Ca acity i 5 165
Another required test is known as the dry prime measurement. This procedure requires that
all valves and drains be closed, the primer operated until a reading of 22 inches of mercury
is obtained on the master intake gauge, and the motor shut down. At the end of 10 minutes,
this gauge must still read at least 12 inches of mercury.
The calculations for net pump pressure necessary for conducting the tests, the test layout, the
test equipment, and the test procedure can be found in "Fire Service Pump Operators
Handbook" by the late Chief Warren E. Isman.
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APPARATUS AND FACILITIES
VEHICLE AND EQUIPMENT MAINTENANCE
Maintenance Requirements
Both the ISO Grading Schedule and NFPA Standard 1901 require that a complete
maintenance and preventive maintenance program be in place. Items which need to be
included in this plan are:
Pumn
• Clearance rings
• Packing
• Primer oil reservoir
• Primer rotary vane or gear clearance
• Impeller balance
• Impeller waterway clearance
• Valve gaskets and controls
• Transfer valve changeover equipment
• Gauges for accuracy, needle deflection, and fluid levels
• Relief valve equipment
• Clean intake screens
Chassis
• Braking system
• Air brake adjustment and air reservoir system
• Tire pressure
• Tire tread
• Springs
• Lubrication points
• Steering linkages
• Attachment points
• Clutch linkages
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APPARATUS AND FACILITIES
VEHICLE AND EQUIPMENT MAINTENANCE (Continued)
• Gear boxes and pump transfer case
Engine
• Enaine oil and filter
• Transmission oil
• Coolant condition
• Coolant fluid level
• Auxiliary cooling equipment
• Leaks from any lines
• Radiator and cooling system
• Engine oil
• Transmission oil
• Belts
• Joints, flanges, and hose condition
• Electrical system
• Battery fluid level
• Battery connection
• Alternator
Cab
• Switches and gauges
• Warning devices
• Safety equipment
• Horns
• Windshield wipers and washers
• Parking brake
• Inside lights
• Outside lights, including high beams
• Back-up lights and audible warning device
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VEHICLE AND EQUIPMENT MAINTENANCE (Continued)
• Rust or worn parts on the cab or cabinetry
Ladders on Trucks
• Hydraulic level in the system
• Leaks in the hydraulic system
• Condition of the hydraulic lines
• Operation of the controlling valves
• Extension, elevation, rotation
• Ladder locks
• Hydraulic closure systems
• Manual override systems
• Cracks in ladder and base
• Remote starter device
• Pressure gauges
Maintenance work covering these items that must be performed on typical fire and rescue
apparatus is illustrated in order for the reader to have an understanding of the complexity and
extensive maintenance requirements of this type of specialty vehicular apparatus. Most fleet
maintenance staffs are not trained or experienced to handle this type of work.
LARCHMONT VEHICULAR APPARATUS INVENTORY
The following figures provide specific information and pictures of the inventory of fire and
rescue apparatus at the fire department. (See Figures 7.2 and 7.3).
� -
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APPARATUS AND FACILITIES
LARCHMONT VEHICULAR APPARATUS INVENTORY (Continued)
Figure 7.2
FIRE DEPARTMENT APPARATUS INVENTORY
TYPE OD . .
Pumper- Engine 34 Pierce Arrow, 1750 GPM pumper 1992
Pumper- Engine 33 Seagrave, 1250 GPM pumper 1993
Pumper- Engine 35 Mack, 1000 GPM pumper 1965
Tower Ladder 7 * Mack 75' Aerialscope 1975
Rescue - Patrol Emergency One, mini squad 1982
Chiefs cars(3) Chevrelet. sedan 1991,2 & 3
Note: * A replacement for Tower Ladder 7 is due for delivery in 1996.
Source: Larchmont Fire Department
Justification for Apparatus
This Section discusses the justification for the apparatus in the Larchmont Fire Department
fleet and suggests possible efficiencies. In considering possible efficiencies in the
Larchmont apparatus fleet, some of the following factors were considered:
• Need to develop a team effort during operations of the Fire Department
• Extreme cost of purchasing and maintaining fire apparatus
• Limited number of actual fire incidents occurring in Larchmont
• Possibility of implementing automatic mutual aid
• Possibility of implementing full consolidation with the Town of Mamaroneck FD
• Fire Station space requirements for apparatus
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APPARATUS AND FACILITIES
LARCHMONT VEHICULAR APPARATUS INVENTORY (Continued)
• The decreasing number of active volunteer members
• Organization of the Fire Department
The Study Team noted that the need for certain apparatus in the Larchmont Fire Department
relates to the organization structure that includes four volunteer fire companies. This
organization and direct relationship to specific pieces of apparatus currently influences the
perceived need for a certain number and type of apparatus. The relationship between certain
apparatus and a particular fire company is as follows:
Engine 34 - Engine Company
Engine 35 - Hose Company
Tower Ladder 7 - Hook and Ladder Company
Rescue 1 (mini squad) - Patrol Company
(Note: Engine 33 is not listed since it is not assigned to a company.)
In previous chapters of this Study, suggestions have been made regarding the restructuring
of the Fire Department to form one volunteer fire company and to cross train all volunteers
in order to be able to more effectively utilize the apparently decreasing number of volunteer
members. These suggested improvements are also considered in the following sections that
discuss the justification for the number and type of apparatus.
Pumpers
The Larchmont Fire Department currently operates three pumpers. (See Figure 7.3). These
pumpers are generally utilized as follows as part of Fire Department incident operations:
i
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Figure 7.3
LARCHMONT FIRE/RESCUE APPARATUS
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LARCHMONT FIRE/RESCUE APPARATUS
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Carroll Buracker&Associates,Inc.
APPARATUS AND FACILITIES
LARCHMONT VEHICULAR APPARATUS INVENTORY (Continued)
Engine 34 - Initial attack pumper
Engine 35 - Water supply pumper to support Engine 34 as needed
Engine 33 - EMS first responder and auto accident pumper
At the present time, the paid staff drive and operate the engines and the tower ladder. Each
of the three is assigned to drive and operate one or two pieces of apparatus. Two
firefighter/officers are assigned to drive and operate each Engine 34 and Tower Ladder 7.
And one firefighter is assigned to alternate between Engine 35 and Engine 33, depending on
the type of call being dispatched. If the incident is an auto accident, the firefighter takes his
protective clothing and equipment with him and drives Engine 33 to the incident. If, on the
other hand, the incident dispatched is a house fire, that same firefighter takes his protective
clothing and equipment and drives Engine 35 to function as a water supply unit, if needed.
Many fire departments observed by the Study Team have placed the EMS first responder and
auto accident supplies and equipment on either the water supply pumper or tower ladder.
With appropriate modification in compartmentation, the Larchmont Fire Department has two
similar viable options as follows:
• Modify Engine 33 to carry the equipment and supplies serve as water supply, EMS
first responder and auto accident/extrication unit
• Modify the new Tower Ladder unit to include the equipment and supplies to also
provide EMS first responder and auto accident/extrication service
Either approach would provide the opportunity for safer and more efficient operations could
provide the Village with the opportunity for cost savings through the reduction in the pumper
fleet to two units. The cost of making appropriate compartment changes to either Engine 33
or the new Ladder Tower is estimated to be $5,000. The savings to the Village could be
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APPARATUS AND FACILITIES
LARCHMONT VEHICULAR APPARATUS INVENTORY (Continued)
$200,000 for the replacement of Engine 35 and an estimated savings of$1,500 annually in
operation and maintenance cost for the third pumper.
The Village Board of Trustees should consider reducing the pumper fleet of the Larchmont
Fire Department to rivo pumpers.
Tower Ladder
Aerial ladder units such as tower ladders provide a number of important functions on fire
incidents including:
• Search
• Rescue
• Salvage and overhaul
• Ventilation
• Forcible entry
• Reconnaissance
• Access with ladders
These are important functions that are essential to successful firefighting operations. Under
current response procedures, it appears that the continuation of a tower ladder in the
Larchmont Fire Department fire apparatus fleet may be necessary.
Previous chapters of this Study suggest that the Village consider implementing automatic
mutual aid with nearby fire departments and/or full fire department consolidation with the
Town of Mamaroneck Fire Department. If either one of those options were implemented,
the Village of Larchmont Board of Trustees could choose to delete the Larchmont tower
ladder from its fleet of apparatus. Under either option---automatic mutual aid or full
consolidation---an aerial unit from either the Town of Mamaroneck or New Rochelle fire
departments could provide these typical ladder truck functions in an adequate and timely
manner,particularly considering the fact that the Village comprises only one square mile and
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APPARATUS AND FACILITIES
LARCHMONT VEHICULAR APPARATUS INVENTORY (Continued)
that there have been no more than 10-20 actual working fire incidents in the Village annually
according to Fire Department records.
Patrol Mini-Squad
The Patrol Company unit is a mini-squad type unit that is referred to as Rescue 1. The Study
Team was advised that this unit is currently used on a limited basis primarily to transport
Patrol members to the incident scene, to provide fire/police traffic control and fire operations
functions as determined by the incident commander.
The Patrol unit is currently supplied with minimal equipment, some of which appears to
duplicate equipment carried and functions performed by the tower ladder. It carries lighting
and generator equipment, a folding ladder, a winch, fire extinguishers, 8 SCBA (self
contained breathing apparatus), hand tools, turn out gear, traffic control equipment and some
salvage supplies.
The Village Board of Trustees should consider not replacing Rescue 1 in light of the limited
use of this unit, the fact that its equipment duplicates much of that already carried on the
tower ladder, and the need to restructure the Fire Department and make better and more
complete utilization of the decreasing number of active volunteer.
Chiefs Cars
The Village provides three sedan-type vehicles to the three chief officers for official Fire
Department business use. The chiefs utilize these vehicles for emergency incident response,
for command post purposes at emergency incidents and to travel to Fire Department
meetings and other events in the Village and the County. In this capacity, these vehicles
appear to be justified. The Village Board of Trustees should consider retaining the three
chiefs vehicles in the apparatus Fleet of the Fire Department for purposes of incident
command coverage and response and other official Fire Department business.
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APPARATUS AND FACILITIES
LARCHMONT VEHICULAR APPARATUS INVENTORY (Continued)
Potential Cost Savings
The potential cost savings, to the Village that could result from the reduction in the fire and
rescue apparatus fleet as outlined in this Section is from:
• Elimination of replacement costs
• Elimination of rehabilitation costs
• Reduction in the annual cost of apparatus maintenance
• Reduction in the annual cost of operating apparatus, e.g. fuel, etc.
The following table project possible life cycle (20 years) cost savings for the units proposed
for reduction from the fire and rescue apparatus fleet. (See Figure 7.4).
Figure 7.4
PROJECTED LIFE CYCLE COST SAVINGS
FROM REDUCING THE APPARATUS FLEET
TYPE NUMBER REPLACE i
SAVINGS OPERATION
i year) SAVINGS**
Pumper-E35 1 $220,000 $24,000
Tower ladder 7* 1 450,000 30,000
Mini squad-R1 1 75,000 12,000
TOTAL 3 $ 745,000 $ 66,000
Notes: * Estimate based on annual maintenance and operating costs of,51,200 for pumpers,$1,500
for ladders and 5600 for light truck
* Assuming automatic mutual aid and/or full consolidation
As estimated in the above table, the cost savings in tax funds to Larchmont residents
and businesses could be as much as $811,000 over a 20 year life cycle for the three
pieces of fire and rescue apparatus suggested for possible reduction.
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APPARATUS AND FACILITIES
VEHICLE AND EQUIPMENT MAINTENANCE
Apparatus Replacement Schedule
The Study Team was advised that the Village has approved a Fire Department apparatus
replacement schedule for its current fleet. That schedule would result in the replace of
apparatus as follows:
Unit Year
• Engine 35 - 2005
• Engine 34 - 2015
• Engine 33 - 2020
• Tower Ladder 7 - 2019-24
This schedule should be adjusted as appropriate based on decision made by the Village Board
of Trustees regarding the composition of the apparatus fleet of the Larchmont Fire
Department.
FIRE STATION FACILITIES
Buildings that house fire stations are used 24 hours a day, seven days a week. In addition,
due to the rough nature of the work performed by firefighting personnel in and out of their
fire stations, fire station buildings can receive rougher treatment than average office,
commercial or government building. The amount of maintenance and repair work necessary
to keep fire stations in good condition is generally greater than that normally required in
other municipal buildings. If this work is not performed as required, the buildings remain
in a state of continual disrepair, present a very poor image to the public, will not adequately
support the work performed by the firefighting personnel, and may become a safety or health
hazard to the firefighters and officers.
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APPARATUS AND FACILITIES
FIRE STATION FACILITIES (Continued)
This Section addresses two primary issues involving the Larchmont fire station noted by the
Study Team during this assessment process.
General Fire Station Maintenance and Upkeep
It is the observation of the Study Team that a higher priority should be placed on the
maintenance, repair and general upkeep of the Larchmont Fire Department station. The
Study Team noted some of the following key examples of the dire need for an increased
maintenance effort on the part of the officers and members of the Fire Department:
• Floors needing vacuuming or mopping
• Trash cans not emptied regularly
• Equipment left out and not properly stored
• Significant amount of dust on furniture and equipment
These are just a few of the primary items noticed by the Study Team that indicated that a
higher level of awareness and effort should be committed to the cleanliness and upkeep of
the Fire Station facility. The Chief should consider reviewing appropriate policy and
procedures to insure that all personnel contribute to maintaining a clean and healthy fire
station environment for all to take pride in.
Need for Facilitv Renovation
The Larchmont fire station is a part of the Municipal Building which was originally built in
1923. (See inside front cover). The Study Team was advised that an addition was placed on
the Municipal Building in 1963 along with some renovation work being accomplished in the
building generally. Apparently, other than painting, no further work has been done in the fire
station since the early 1960s.
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APPARATUS AND FACILITIES
FIRE STATION FACILITIES (Continued)
The Study Team was advised by Village and Fire Department officials that numerous
discussions have taken place regarding the need to renovate the Municipal Building,
including the Fire Department facilities. Further, various written materials were provided
to the Study Team that outlined some of the past building fire station related renovation
considerations.
During a "walk through" of the fire station area, the Study Team noted the following
examples of potential justification for a general renovation of the Fire Department facilities:
• Apparent problems with inadequate insulation of the building evidenced by old
windows, doors and engine room doors with open space between window/door and
wall or j am
• Inadequate locker facilities
• Inadequate heating, air conditioning and ventilation
• Broken plumbing fixtures
• No toilet/locker facilities adjacent to bunkroom area
• Unsafe main entrance access to the fire station
• Insufficient office space
• Inefficient use of building space with significant space allocated to rooms that receive
very little use---company meeting rooms
• Inadequate exhaust system for engine exhaust in engine room
• Worn stairs on staircase
These are only a few of the indicators noted by the Study Team of the need for a general
renovation and upgrade of fire station area. The Study Team also noted a number of
instances of inefficient space allocation given the needs and requirements of the paid and
volunteer staff and the significantly different operational approach taken today as compared
to 1923 when the fire station area was originally designed. There appears to be no service-
based justification for each of the active fire companies and the Fire Council to have
individual meeting rooms (five rooms). One meeting room with scheduled use by those
needing space to meet should be adequate. The other four rooms should reallocated for use
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APPARATUS AND FACILITIES
FIRE STATION FACILITIES (Continued)
by the Village of Larchmont. Additionally, a number of organizational changes have been
suggested in this Study.
The Village Board of Trustees should consider developing and implementing a plan to
conduct a renovation of the fire station to upgrade and make the fire station portion of the
building more efficient and to appropriately reallocate space.
SUMMARY
In the judgment of the Study Team, the Village of Larchmont has excess fire apparatus. The
Village Board should consider reducing the pumper fleet to two pumpers and not replacing
Rescue 1.
The maintenance of the fire station could be substantially improved. There seems to be
some dichotomous thought relative to the responsibilities for keeping the facility, apparatus
and equipment clean. Across the nation, firefighters, paid and volunteer, assist in keeping
the facility, fire apparatus and equipment clean. Larchmont officials should assure that this
is the standard for fire services.
The facility needs major renovations. As part of the suggested changes, the Village Board
should reallocate the space currently occupied by the fire companies.
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APPARATUS AND FACILITIES
RECOMMENDATIONS
7.1 The Village Board of Trustees should consider reducing the pumper fleet of the
Larchmont Fire Department to two pumpers.
7.2 The Village Board of Trustees should consider not replacing Rescue 1 in light of the
limited use of this unit, the fact that its equipment duplicates much of that already
carried on the tower ladder and the need to restructure the Fire Department and make
better and more complete utilization of the reducing number of active volunteer.
7.3 Concurrent with the implementation of automatic mutual aid and/or full consolidation
with the Town of Mamaroneck Fire Department the Village Board of Trustees should
consider the continued justification for a tower ladder in the Fire Department Fleet.
7.4 The Village Board of Trustees should consider retaining the three chiefs vehicles in
the apparatus Fleet of the Fire Department for purposes of incident command
coverage and response and other official Fire Department business.
7.5 The apparatus replacement schedule should be adjusted based on decisions made by
the Village Board of Trustees regarding the composition of the apparatus fleet of the
Larchmont Fire Department.
7.6 The Chief should consider reviewing appropriate policy and procedures to insure that
all personnel contribute to maintaining a clean and healthy fire station environment
for all to take pride in.
7.7 The Village Board of Trustees should consider developing and implementing a plan
to conduct a renovation of the fire station to upgrade and make the fire station portion
of the building more efficient and to appropriately reallocate space.
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APPARATUS AND FACILITIES
RECOMMENDATIONS (Continued)
7.8 The Village is encouraged to assign one of the five rooms currently used by the four
fire companies and Fire Council as a joint-use meeting room. The remaining four
rooms should be reallocated by the Village Board.
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APPENDIX A
JOB DESCRIPTION FIRE CHIEF
APPENDIX A
JOB DESCRIPTION
FIRE CHIEF
DEFINITION OF CLASS:
This is command-level, managerial and administrative work providing overall direction of
a fire department. Personnel contacts are with the designated members of the governing
bodies of the jurisdictions represented to plan and coordinate work and exchange
information; other jurisdictional fire and rescue personnel to provide work direction,
supervision and guidance; personnel of other emergency service agencies to coordinate fire
fighting, rescue, and emergency medical operations, and with the public to provide
information and emergency assistance as needed. An employee in this class is responsible
for management of all operations of the fire department. Work involves supervision of staff,
planning and coordinating work programs, budget procurement, personnel administration,
development and implementation of policies and procedures,and responsibility for buildings,
grounds, and equipment. Work is performed in accordance with established administrative
policies and procedures. Assignments require initiative, analysis, assessment, and evaluation
or consideration of a broad-range of issues, and judgement in deciding upon appropriate
course of action. Services and programs affect the safety and well-being of a substantial
number of people, and the preservation of structures and other physical property. Most work
is performed in an office environment. However, an employee in this class is occasionally
exposed to the risk of serious injury requiring the use of protective clothing, and the strict
observance of safety precautions and procedures. Work requires periods of light physical
effort and involves some exposure to heat, dirt, and other unpleasant conditions.
EXAMPLES OF DUTIES: (ILLUSTRATIVE ONLYQ
Analyzes the fire problems and risks in the communities afforded protection by the fire
department.
Plans, organizes, directs, and evaluates fire suppression, fire prevention, rescue, and
emergency service programs.
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APPENDIX A - JOB DESCRIPTION / FIRE CHIEF (Continued)
Supervises, directly or through subordinate supervisors, all employees of the department.
Monitors the training and field performance of department personnel.
Publishes, prepares and/or disseminates and audits goals, objectives, policies, procedures,
rules and regulations for the operation of the Department.
Develops, supports,justifies, and monitors the annual Department budget.
Directs preparation and analysis of records and reports to secure efficient operation and to
meet demands.
Exercisespurchasing budgetan- control: reviews and approves specifications for new
equipment and apparatus.
Represents the Department before civic groups and others having interest in fire, rescue and
emergency response programs.
Attends national, regional, state, and local conferences to keep abreast of modern fire
fighting theory, methodology, and techniques.
Supervises the maintenance of required operational,training, and personnel records and files.
Ensures that fire prevention laws and rules are observed at places of public gathering.
Supervises investigation and disposal of fire hazards and violations.
MINIMUM QUALIFICATIONS
Experience:
Completion of four years career experience as a chief officer in the Department.
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APPENDIX A - JOB DESCRIPTION / FIRE CHIEF (Continued)
Must have achieved satisfactory performance evaluations for the last two years.
Education:
Possession of a four-vear degree from an accredited college or university with course work
in fire science, or an equivalent level of training and experience.
Training:
Certification as Firefighter III and training equivalent to NFPA 1021 Officer Level 5.
Knowledge. Skills and Abilities:
Thorough knowledge of the principles and practices of modern fire department
administration and fire science.
Thorough knowledge of principles, practices, procedures, equipment, and apparatus used in
modern firefighting and the protection of life and property from fire.
Thorough knowledge of principles of organization, administration, and personnel
management.
Thorough knowledge of ordinances and statutes affecting the operation of the Department.
Practical knowledge of the principles, practices, procedures, equipment, and apparatus used
in providing emergency life support.
Ability to plan, implement and direct programs, operations, and activities, including
employee training and development and fire prevention and investigation activities.
Ability to express ideas clearly, both orally and in writing.
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APPENDIX A - JOB DESCRIPTION / FIRE CHIEF (Continued)
Ability to establish and maintain effective working relationships with civic and official
groups and the public, as well as the ability to command and hold the respect and discipline
of subordinates.
License:
Appointee will be required to possess and maintain a driver's license valid in New Jersey to
operate a vehicle necessary to perform the essential duties of the position.
Medial Examination:
NFPA 1001
Successful completion of most recent physical examination and drug screening.
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APPENDIX B
FIRE DEPARTMENT WORK PROGRAM
APPENDIX B
FIRE DEPARTMENT WORK PROGRAM
VILLAGE OF LARCHMONT
TASK MANAGER TARGET STATUS
ORGANIZATION
2.1 Adopt the new Mission Statement and
goals and supporting philosophies for
the Fire Department and its members.
2.2 Establish a Larchmont Board of Fire
Commissioners to function as the
governing body of the Fire
Department.
2.3 Revert to the use of the rank title of
assistant chief or the Village Board of
Trustees pass a revision to the Village
Code adopting the rank of deputy
chief.
2.4 Rescind the policy of including ex-
chiefs in the incident chain of
command.
2.5 Establish a maximum of eight total
operational volunteer company officer
positions within the Larchmont Fire
Department.
2.6 Establish minimum operational officer
training and experience requirements.
2.7 Appoint a paid chief.
2.8 Take the following actions to
streamline the organization:
A. Abolish the Ambulance
Protective Corps.
B. Cause all companies to hold
meetings annually with
Department meetings being
held monthly.
C. Abolish the four current
remaining companies and
create one new company to
be titled the"Volunteer Fire
Company of the Fire
Department of Larchmont,
N.Y."
D. If the suggested change in
number of companies is not
considered appropriate,then:
refocus the role of the
remaining companies to
administrative matters only.
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APPENDIX B
TASK MANAGER TARGET STATUS
CONSOLIDATION
3.1 Implement those aspect of the
Westchester 2000 process that would
improve and make its public safety
services more cost effective.
3.2 Pursue the full consolidation of the
Village of Larchmont Fire Department
with the Town of Mamaroneck Fire
Department.
3.3 Fully implement automatic mutual aid
procedures initially with the Town of
Mamaroneck Fire Department and then
with all surrounding fire departments.
3.4 Request that County Fire Control
dispatch all fire and EMS calls.
STAFFING
4.1 Make every effort to maintain a viable
combination staffing approach.
4.2 Provide the Village Board of Trustees
with quarterly and annual volunteer
activity information.
4.3 Establish a policy that would restrict
from operational response personnel
not participating in a certain minimal
amount of in-station training.
4.4 Place articles periodically in local
newspapers regarding activities of the
Larchmont Fire Department.
4.5 Implement volunteer standby
programs.
4.6 Develop and standard volunteer exit
interview process.
4.7 Adopt formalized policy of support for
the continuation of volunteer
participation in the fire service.
4.8 Implement a comprehensive volunteer
recruitment program.
4.9 Establish a Public Relations
Committee to assure the public
understands that volunteers provide
fire and rescue service.
4.10 Financially support the volunteer
recruitment and retention efforts in
Larchmont.
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APPENDIX B
TASK MANAGER TARGET STATUS
4.11 Establishing an official volunteer
member mentor program for new
operational members of the
Department.
OPERATIONS AND PREVENTION
5.1 Provide the oversight and direction to
insure that workload data is
maintained, reviewed and assessed
regularly in support of service related
decisions.
5.2 Add the new incident type category of
"Mutual Aid'for those calls run by the
Fire Department outside the boundaries
of Larchmont.
5.3 Implement a means of automatically
documenting Fire Department response
times.
5.4 Continue to provide emergency
medical first responder service to
Larchmont including the use of the
Automatic External Defibrillator.
5.5 Implement a revised Village apparatus
dispatch policy to provide. through
mutual aid. an increase in the number
of apparatus responding on certain
incidents and a limitation in the
number of apparatus responding on
other less complex incidents.
5.6 Implement a comprehensive pre-fire
planning program.
5.7 Incorporate the review and
familiarization of completed pre-fire
plans and related facilities into the Fire
Department's training program.
5.8 Implement a public CPR training
program.
5.9 Reassign the responsibility for fire
inspections to the Fire Department.
5.10 Establish a Life and Fire Safetv
Education Committee to develop and
implement a fire safety education
program in Larchmont.
Carroll Baracker&Associates,Inc.
APPENDIX B
TASK MANAGER TARGET STATUS
TRAINING
6.1 Require that,on an individual basis,in-
service fire training taken is monitored
to insure that all paid staff members
meet this mandate every year, as a
minimum.
6.2 Change policy to provide for all
volunteer personnel to be cross trained
on all apparatus, equipment and
operating procedures.
6.3 Insure that the paid and volunteer
personnel participate in joint in-service
training on a regularly scheduled basis.
6.4 Mandate regular (at least quarterly)
substantive fire training involving
appropriate mutual aid companies and
all Larchmont Fire Department active
operational personnel, paid and
volunteer.
APPARATUS AND FACILITIES
7.1 Reduce the pumper fleet of the
Larchmont Fire Department to two
pumpers.
7.2 Do not replace Rescue 1.
7.3 With the implementation of automatic
mutual aid and/or full consolidation
with the Town of Mamaroneck Fire
Department consider the continued
justification for a tower ladder in the
Fire Department Fleet.
7.4 Retain the three chiefs vehicles in the
apparatus Fleet.
7.5 Adjust the apparatus replacement
schedule based on decisions made
regarding the composition of the
apparatus fleet.
7.6 Review appropriate policy and
procedures to insure that all personnel
contribute to maintaining a clean and
healthy fire station environment.
7.7 Develop and implement a plan to
conduct a renovation of the fire station
to upgrade and make the building more
efficient.
7.8 Assign one of the rooms used by the
fire companies and Fire Council as a
joint-use meeting room.
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y
d
Carroll Buracker & Associates, Inc.
Fire & EMS Management Consultants
101 North Main Street, Suite 110
Harrisonburg, Virginia 22801
(540) 564-1500