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Master Plan Nashua Fire Rescue, NH

Julie Chakraverty recently wrote an article for Forbes.com titled Company Vision and Values: Do They Still
Matter??? In this article, she cited a recent report from the World Economic Forum that found that a “sense
of purpose” in work is the second most important criteria for millennials considering a job, after salary. Ms.
Chakraverty concluded that given that this generation will make up the majority of the workforce in coming
years, it is not difficult to predict that if candidates for employment do not believe or support an
organization’s mission, they will not accept a job offer. This can lead to recruitment challenges. Ms.
Chakraverty’s research further suggested that employees aged between 45 and 54-years-old and 55 to 64-
years-old—not uncommon age groups for management—were the least likely age groups to be able to recite
their organizations’ s mission and vision.

Nashua Fire Rescue’s Mission, Vision, and Organizational Values were last approved on January 8, 2018.
Nashua Fire Rescue’s Mission, Goals, and Values are typically updated annually at the Board of Fire
Commissioners’ organizational meeting in January. ESCl commends Nashua Fire Rescue for its commitment
to this process to ensure that these management components accurately reflect the current organization
and the service demand from the community.

Organizational Planning Processes

Now more than any other time in the history of the United States, fire and emergency services agencies
operate in a rapidly changing environment. Along with improved tools and technologies used to provide
service, there is the increased regulation of activities, new risks to protect, and other challenges that can
quickly catch the unwary off guard. Only through continuous internal and external environmental awareness
and periodic course corrections can an organization stay on the leading edge.

For Nashua to do the best job possible with available resources, the focus must be on improving services
while identifying programs or activities that may no longer serve its changing needs. Through planning, a fire
and EMS department is able to establish a vision, create a framework within which decisions are made, and
chart its course to the future. The quality and accuracy of the planning function determine the success of the
organization.

To be truly effective, an emergency services agency must consider planning on four distinct levels:

22 Attps://www.forbes.com/sites/voicesfromeurope/2018/03/28/company-vision-and-val… 5677b217f.

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Figure 53. Levels of Planning

1. Tactical Planning The development of strategies for potential emergency
incidents.
2. Operational Planning The organization of day-to-day activities, as primarily

outlined by a department's standard operating guidelines
and procedures. This includes the integration of the agency
into other local, regional, or national response network.

3. Master Planning Preparation for the long-term effectiveness of the agency
as the operating environment changes over time.

4. Strategic Planning The process of identifying an organization's mission, vision,
and values and prioritizing goals and objectives for things
that need to be accomplished in the near future.

Without effective planning, it is impossible for any organization to know when it is reaching milestones or
providing exceptional services to its constituency. The National Fire Protection Association has established
NFPA 1600: Standard on Disaster/Emergency Management and Business Continuity/Continuity of Operations
Programs and NFPA 1201: Standard for Providing Fire and Emergency Services to the Public, as standards to
assist fire and EMS departments in establishing and maintaining planning documents and conducting
planning activities.

Tactical Planning in the Organization

Beyond the fire station, the firefighter’s emergency operational work environment is, more often than not,
an unknown environment. Normally, a firefighter’s first visit to a building is when the building is involved in
a fire or another emergency. In the case of a fire, the internal environment is at its worst. Contrary to movie
portrayals, visibility during a fire is at or near zero due to smoke. A lack of familiarity with a building can easily
lead a firefighter to become disoriented or injured by an unfamiliar internal layout, or by equipment or other
hazards that might be encountered.

It is critically important that firefighters and command staff have comprehensive, accurate information
readily at hand to identify hazards, direct tactical operations, and use built-in fire-resistive features. This can
only be accomplished by building familiarization tours, developing pre-fire plans, and conducting tactical
exercises, either on-site or by tabletop simulation.

ESCI recommends that Nashua Fire Rescue purchase a software program that is specifically designed to
make the information that is collected during pre-plans readily accessible to firefighters in an emergency.
Many such programs are on the market including Streetwise, Blazmark, and Raxar, among others.

Operational Planning in the Organization

Operational planning includes the establishment of minimum staffing policies, standardized response plans
or protocols, regional incident command planning, mutual and automatic aid planning (locally and
regionally), resource identification and planning, and disaster planning.

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Within any agency, operational plans should be in place that ensure adequate volumes of the appropriate
types of resources are deployed to an emergency. Doing so involves:

« Identification of potential risk types;
« Determination of resources needed to mitigate an incident affecting the particular risk type; and

«= A methodology of ensuring that adequate resources are dispatched to an incident via 911 center
protocols.

The development and implementation of rules, regulations, and policies have enabled Nashua to move
forward in an organized and effective manner. In the absence of these documents, an organization will tend
to operate in a random and generally ineffective manner. Currently, Nashua Fire Rescue possesses a series
of documented rules, regulations, and policies to be utilized by members at all organization levels.

Nashua Fire Rescue’s Rules and Regulations require a complete review. The current policy of reviewing and
updating by a committee comprised of uniformed members, administration, and the Board of Fire
Commissioners on an “as-needed” basis has resulted in several years passing since the last full review and
revision has occurred. ESCI suggests that rather than leaving the policy review schedule open to
interpretation of “as needed”, that Nashua Fire Rescue set a review schedule that provides for every policy
to be reviewed and updated no less than every three years. This review should also include an annual gap
analysis to identify the need for new rules and regulations. Nashua Fire Rescue would benefit from having
review of all rules and regulations conducted by an independent third-party to assure compliance with
industry standards and best practices.

General Orders are kept on file in the Administration Office and are available for reference by all members
onthe department's intranet.

Master Planning in the Organization

Master or long-range planning is preparation for Nashua Fire Rescue’s future service delivery effectiveness
based on projections of the future service delivery environment. This long-range master plan focuses on the
big picture perspective, distant future needs of Nashua, and is particularly important in an agency
experiencing growth. The need for stronger planning processes is communicated regularly by members of
the fire service and the community members it serves. Fire service organizations that engage in a long-range
master planning process will be able to utilize this valuable information to answer the following three
questions:

1. Where is the organization today?
2. Where will the organization need to be in the future?

3. How will this organization get there?

Nashua Fire Rescue has contracted ESCI to develop a Master Plan. This Master Plan will give Nashua a clear
idea of where it is today based on an evaluation of current conditions. The Master Plan will also project the
future needs of Nashua Fire Rescue, along with providing the strategies to meet them. A master plan is
designed to provide a view of the organization in a 15-year time frame.

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Strategic Planning in the Organization

Strategic planning supports the organization’s mission and sets and prioritizes short-term internal goals. A
strategic plan typically involves a three-to-five-year planning window. Community involvement in the
process is critical as the strategic plan should be customer-oriented while accomplishing the following:

= Development of a mission statement giving careful attention to the services currently provided and
which logically can be provided in the future.

= Development of a vision statement of the agency moving forward.

« Establish the values of the members of the agency.

= Identification of the strengths, weaknesses, opportunities, and challenges of the agency.
= Determination of the community’s service priorities.

» Understanding the community’s expectations of the agency.

» Establishment of realistic goals and objectives for the future.

« — Identifications of implementation tasks for each objective.

= Definition of service outcomes in the form of measurable performance objectives and targets.

Nashua Fire Rescue does not have a current strategic plan in place. Once the Nashua Fire Rescue master plan
is formulated, the list of recommendations, guidance for changes, and new initiatives will provide direction
for developing a new strategic plan, as it is the most effective way to prioritize and plan for implementation
of the master plan’s findings. The strategic planning process would ideally result in a three-to-five-year work
plan, intended to guide the work effort of the entire organization toward a common set of goals and
objectives. The process should include representation from every major interest group in the organization.
Each person in the department should feel that their interests are represented by someone in attendance on
the planning team.

Internal Communications Processes

Internally, Nashua Fire Rescue provides a variety of methods to communicate with staff members. These
include monthly staff meetings where written minutes of the meetings are distributed to those not in
attendance at the monthly meeting. The Department uses email, intranet, and written memorandums to
distribute information within the organization.

Internal communications were repeatedly identified as a major deficiency within Nashua Fire Rescue during
both the member interviews and in the member survey. Members requested more engagement from the
Department leadership. Specifically, members would like to see more of the leadership and have time to talk
with them on both a professional and personal level.

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When asked in the survey what was the best method for communications within Nashua Fire Rescue, the two
most common responses were email and face-to-face communications. Many of the respondents felt that
these two forms of communication were best used in tandem. There were multiple requests for start-of-shift
briefings so that everyone knows what to expect. There was a common theme in the responses that some of
the current Deputy Chiefs regularly visit the station in person more often than others. There was a perception
that the crews who received personal visits from the deputies were better informed than those who only
received emails.

External Communications Processes

Externally, Nashua Fire Rescue maintains a website to provide information to its customers, but it does not
have a formal citizen feedback/input mechanism in place to receive necessary end-user feedback. The
department uses Facebook (2,000 followers) and Twitter (3,000 followers) in an effort to communicate key
information to its customers. Historically, successful fire departments have used a community newsletter to
communicate with the citizens of their jurisdictions. Now, these same agencies have begun to transition to
social media platforms as the customer base has begun to express an expectation of digital communication
and in a more real-time environment.

ESCI recommends that Nashua Fire Rescue continue to develop its social media presence in an effort to
provide information to, and receive information from, its customers. It is also recommended that Nashua Fire
Rescue evaluate the use of a survey tool to collect performance feedback of those citizens who have used the
services of Nashua Fire Rescue. The gathering of information directly from these individuals will allow
Department and City leadership to key in on specific performance issues that allow for intervention in a
timelier manner, as well as highlight those performance issues that customers indicate as being of high value.

Reporting and Recordkeeping

Nashua Fire Rescue uses reporting and recordkeeping processes and procedures generally considered
consistent with the practices observed in most fire departments across the United States. These records
include patient care reports, emergency incident reports, as well as equipment service and maintenance
records. Service records include those conducted internally as well as those completed by external service
providers for critical equipment, including annual ladder testing and self-contained breathing apparatus
(SCBA) units.

Document Control and Security

The Department has established processes and procedures for the security of both digital and hard copy
records. All digital records are backed-up locally as well as off-site.

Nashua Fire Rescue has implemented computers at all fire stations to use in recording incidents, accessing
emails and Department operating procedures, and recording equipment inventories. At the time of this
report, the Department did not have a formal IT management strategy in place.

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Technology is an evolving field and agencies failing to have plans in place to address ongoing changes in
operating systems can be caught in a position of being required to expend significant and finite budget
revenues to update computers no longer supported by manufacturers. As part of its records management
efforts, the Department utilizes Alpine RedNMX RMS® and Windows® based computers to accomplish its
organizational responsibilities. The Department uses the City’s IT services to maintain its computer inventory
and securely store digital records off-site. ESCI recommends that Nashua Fire Rescue work with its IT services
to ensure an effective IT management strategy is in place to address current and future department related
software are operated and maintained in accordance to standards within NFPA 950: Standard for Data
Development and Exchange for the Fire Service and NFPA 951: Guide to Building and Utilizing Digital
Information.

Information Technology (IT) is a challenge within Nashua Fire Rescue. The city currently staffs a central IT
Division that services all city departments with the exception of the police department. In recent years, the
fire department has become increasingly more reliant on computers, laptops and tablets for both routine and
emergency operations more. The fire department should consider staffing a dedicated IT position to support
these applications.

Interviews with various stakeholders indicated that Nashua Fire Rescue sometimes encounters challenges
with ensuring accountability for reading and confirming understanding of the new, or updated, policy when
placed onto the intranet. ESCI recommends that Nashua Fire Rescue implement the use of an online
platform, such as Target Solutions®, as a mechanism to inform individuals when new policies and procedures
are published. This system allows each employee to receive the new documents personally and acknowledge
receipt with an electronic timestamp. The system also enables the Department to require each employee to
answer questions specific to the document's content and ensure the employee receives the desired
information. Since Nashua Fire Rescue is preparing to begin using the Target Solutions® platform in its
Training Program, using the program to track policies and procedures would be a logical next step.

Facility Security

Fire departments have typically been considered to be open environments where residents and visitors from
the community have been allowed access to any part of a fire station with very few limitations. Unfortunately,
the current social environment requires emergency services providers to implement specific security
measures limiting and controlling access to fire department facilities. This is driven by the need to protect
firefighters, expensive equipment, and sensitive data from inadvertently being accessed by individuals
desiring to harm the community.

ESCI recommends that the Department implement video monitoring and recording at exterior entry points
to ensure an increased level of security and awareness as to who is or attempting to enter Nashua Fire Rescue
facilities. The Department should also evaluate the implementation of an access card system that identifies
each fire department member accessing facilities. This evaluation should also include the ability of Nashua
Fire Rescue leadership to change access of a staff member immediately from a central location based upon
a member’s employment status or operational concern.

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PERSONNEL MANAGEMENT

While the purchase of capital equipment can appear expensive when viewed as a one-time expense,
personnel expenses typically account for more than 70% of an organization’s annual expenditures. It is
important that special attention be given to managing human resources in a manner that achieves maximum
productivity while ensuring a high level of job satisfaction for the individual. Consistent management
practices combined with a safe working environment, equitable treatment, opportunity for input, and
recognition of the workforce’s commitment and sacrifice are key components impacting job satisfaction.

In this section, ESCI will review and analyze personnel management related activities of Nashua Fire Rescue.

Compensation

When ESCI conducted the site visit for Nashua Fire Rescue in July 2020, one of the issues that was repeatedly
mentioned as contributing to the morale problem was the lack of a contract. Members of the Nashua Fire
Rescue bargaining unit had been working without a contract for more than a year—since June 30, 2019.
Further contributing to the poor morale was the fact that the Board of Alderman had rejected the proposed
bargaining agreement that had been reached between the union and the City in June.

In November 2020, the Board of Alderman approved a contract with the bargaining unit that included,
among other things:

= Annual cost of living increases (FY20: 3.5%; FY21: 2.5%; FY22: 2%; FY23: 2%)

= 3% increases for certain steps on the payroll and step grids in FY22 and FY23

= The addition of 30+ years step to payroll grids

= Possible 0.5% wage increases in FY22 and FY23 based on health insurance enrollment

The contract is scheduled to go into effect on January 1, 2021, retroactively for July 1, 2019, through June 30,
2023.

Labor-Management Relationships

The City of Nashua recognizes the International Association of Fire Fighters (IAFF) Local #789, as the sole
bargaining agent and sole and exclusive representative of all employees of Nashua Fire Rescue. The Chief,
the Assistant Chief, and Deputy Chiefs are not members of the bargaining unit. The four other civilian
members of Nashua Fire Rescue are represented by the United Auto Workers (UAW).

ESCI’s interviews with both union members and members of the management team revealed that in recent
years, the labor-management within Nashua Fire Rescue relationship had become very contentious. The
union had recently elected a new President, and both labor and management expressed a sincere desire to
work together to improve the labor-management relationship.

Disciplinary Process

Disciplinary Procedures are clearly articulated in Article 9 of the bargaining agreement between the City of
Nashua and IAFF Local #789. The contract specifies that both parties agree “...that the City has the right to
discipline or discharge employees for just cause. Discipline shall be corrective in its nature and progressive in
its severity.”

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The normal order for disciplinary action within Nashua Fire Rescue is as follows:
1. Verbal warning
2. Written warning
3. Suspension without pay
4. Discharge

The City is permitted to deviate from the order above when the occasion or severity of the offense warrants.

The contract further stipulates that “...it is specifically agreed that any employee may be discharged for
reporting to work under the influence of intoxicating liquor or illegal substances, becoming under the
influence of intoxicating liquor or illegal substances while on the job, or offenses involving moral turpitude.
A sobriety test and/or the appropriate testing for substance abuse is mandatory and any employee who
refuses such test(s) may be discharged at the option of the Department.”

Counseling Services

Our nation’s firefighters are faced with emotional needs that are very different and unique to the occupation.
The percentage of firefighters struggling with career-related stress is very high, with suicide rates climbing
each year. These issues manifest themselves through higher divorce rates and addictions such as alcohol,
drugs, or gambling. Frequently seen in recent studies and another major concern is Post Traumatic Stress
Disorder (PTSD). As these symptoms occur, employees need a support system in place that is readily
accessible from someone who is qualified and truly understands his or her circumstances.

Nashua has in the past provided mental health education for its firefighters. In light of the increasing need
across the nation for mental health support for firefighters, the department has also taken the initiative to
add IAFF Center for Excellence as an in-network provider.

Application and Recruitment Processes

Nashua Fire Rescue develops a Recruit Firefighter eligibility list as needed.
Entry-level hiring requirements are as follows:

= 18 years of age
» — High School Diploma or equivalent

= Candidate must hold a minimum of Pro-Board Firefighter II Certification. Candidates holding out of
state certification must provide a letter from the New Hampshire Fire Standards and Training
granting equivalency and/or reciprocity prior to the date of hire.

« National Registry of Emergency Medical Technicians—EMT Basic Certification. Candidates holding
out of state certification must obtain National Registry certification prior to the close of application.
Candidates are required to maintain a current certification throughout the hiring process.

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= Current CPR Certification. Candidates are required to maintain a current certification throughout
the hiring process.

= Must have current (within 26 months of the date of hire) Candidate Physical Abilities Test (CPAT) as
required by the State of NH Division of Fire Standards and Training. For applicants with out of state
CPAT certifications, candidates must submit the certification to the NH Fire Standards and Training
granting equivalency prior to the date of hire.

= Ability to pass Pre-Employment Physical Screening per NFPA 1582: “Standard on Medical
Requirements for Firefighter.”

« Ability to pass Acrophobia Ability Test —- 100’ Aerial Ladder Climb as required by the State of NH
Division of Fire Standards and Training, administrative rule “Part 702.”

» Ability to pass 1.5 mile run in 12:00 minutes or less.

= Candidate must not have been convicted of a felony under federal law, the law of this state or any
other state.

= No more than three (3) points in three (3) years on your Driver's License for moving violations.

= No DWI convictions within seven (7) years.

« No convictions involving the transportation of alcohol or drugs within seven (7) years.

« Ability to pass a comprehensive motor vehicle record check.

= Ability to pass a comprehensive background check.

= NH CDL-B with airbrake (or obtain within three (3) years of hire).
The recruitment process for new firefighters is conducted by the Training and Safety Division.

Promotion Processes

Article 18 of the bargaining agreement between the City and Local #789 outlines the processes for
appointments, promotions, and demotions.

The State of New Hampshire Fire Service Training Division, or an agreed-upon equivalent organization,
conducts and supervises written examinations for available promotions within Nashua Fire Rescue. The
Testing Agency is then required to submit to the Board of Fire Commissioners the names of the candidates
who pass the written examinations for each available promotional opportunity. Nashua Fire Rescue defines
a passing score as 70%. Seniority points are added at this point to determine eligibility to move on in the
promotional process.

The names of all eligible candidates are then submitted to the Deputy Chiefs for their recommendation. The
Deputy Chiefs, acting as one body, then rank the candidates relative to each other. The rankings are then
given in a sealed envelope to the Human Resources Department at the conclusion of the Deputy Chiefs’
review and consideration.

Eligible candidates are then interviewed by a panel that consists of a quorum of the Board of Fire
Commissioners and the Chief of the Department or designee. A representative from the City of Human
Resources assists in this process.

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After all eligible candidates have been interviewed, each panel member ranks the candidates relative to each
other. The Human Resources representative then determines the aggregate score for each candidate and
submits the panel's final rankings to the Fire Commission. It is the responsibility of the Fire Commission to
meet to compile and approve the promotional lists. The Fire Commissioners add the points from the oral
interview and Deputy Chiefs’ rankings to the combined written examination score and years of service
point/in-grade points for each candidate. The candidates are then ranked from the highest overall score to
the lowest overall score, and these shall constitute the promotional lists.

ESCI noted that there is new language related to the promotional process in the contract that was recently
approved for the period July 1, 2019, through June 30, 2023. Article 18, Section AA states that:

Upon signing of this contract, the union and the administration shall establish a joint labor management
committee to review the current promotional processes.

This committee shall have four (4) members from the union, (4) members from administration, and one (1) mutually
agreed upon full voting member, who is not affiliated with either organization. The committee shall review this
Article 18, and propose changes to this Article to the Board of Fire Commissioners and the Union. This committee
shall be formed within 60 days of signing and shall have a report for members to vote on by September 1, 2021.

NFPA 1022 is the Standard for Fire Officer Professional Qualifications. This standard identifies the minimum
job performance requirements (JPRs) for the various ranks of fire officers. ESCl recommends that the joint
labor management committee that reviews the current promotional process evaluates the process in its
entirety to ensure that the test components correlate to the current job descriptions and JPRs established by
the national standard as they relate to the positions within Nashua Fire Rescue. As the ultimate goal should
be to ensure a defensible promotion process in the event of a legal challenge, ESCI also suggests that Nashua
Fire Rescue re-evaluate the merits of including the civilian Board of Fire Commissioners within the
promotional process.

It is ESCI’s suggestion that Nashua Fire Rescue may be able to improve the current promotional process by
allowing the professional human resources and fire department personnel to conduct the entire process,
thereby eliminating the potential political influence that could be introduced by the inclusion of the elected
board.

Safety and Health
Article 12 of the collective bargaining agreement between the city and Local #789 states that:

There shall be established a departmental safety committee, a truck committee, an equipment committee and
other committees as may be mutually agreed upon by the parties, each comprised of one private and one officer
named by the Union and the Chief or designee. The committee shall meet as necessary and will keep minutes of all
proceedings. A copy of the minutes and any reports issued by the committee shall be posted at each station, anda
copy forwarded to the Fire Commission and the Union. There shall be compensation paid for attendance at
committee meetings by members of the bargaining unit unless they are on duty.

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