Search

Master Plan Nashua Fire Rescue, NH

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.”

ESC) Emergency Services 66
Consulting International

Master Plan Nashua Fire Rescue, NH

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.

fj Emergency Services
ESC) Consulting International 67

Master Plan Nashua Fire Rescue, NH

= 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.

fj Emergency Services
ESC) Consulting International 68

Master Plan Nashua Fire Rescue, NH

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.

fj Emergency Services
ESC) Consulting International 69

Master Plan Nashua Fire Rescue, NH

NFPA 1500: Standard on Fire Department Occupational Safety and Health Program, is the industry standard
for the development and administration of a fire department safety program. ESCI strongly encourages the
Department to ensure all safety committee activities are in alignment with Chapter 4 of NFPA 1500. To be
effective, safety committees must be diverse in their representation from across the department, ensuring
representation by shift, rank, function, and interest, and including representation from non-uniformed and
staff members as well.

The safety committee should meet monthly and include in its mission the raising of awareness and modifying
of member behaviors that will result in a safe work environment. Additionally, the committee should review
all accidents, injuries, near-miss incidents, and workplace safety suggestions. The committee should analyze
the information and report its findings to the Fire Chief. In contrast to being reactionary through the
development of additional rules, ESCI recommends that the committee should work to implement member
safety education programs and encourage members’ safety self-awareness. The committee should maintain
regular and open meeting times and locations; and minutes of the meetings should be recorded and posted
for all members of the department to review.

One issue that was repeatedly brought up to ESCI during the site visit meetings was a strong desire by the
membership to have quiet stations. Nashua Fire Rescue responded to more than 8,000 calls last year. That’s
an average of 21 calls per day. At the time of ESCI’s site visit, firefighters in every station heard the radio
traffic for every call, whether or not the members of that station were assigned to respond.

A study published in the American Journal of Industrial Medicine in 2018 found higher rates of hypertension
and high cholesterol in people who were regularly exposed to loud noises at work. Loud noises were defined
as four or more hours a day, several days a week, when individuals needed to raise their voice or shout to be
heard by someone standing a few feet away. The researchers concluded that as many as 14% of cases of
hypertension and 9% of cases of high cholesterol were potentially a result of noise exposure—possibly due
to the stress of a loud working environment. Nashua Fire Rescue should make it a priority to alert only the
fire station(s) that are dispatched to calls to reduce the constant radio traffic that is currently transmitted to
all of the stations.

Career Development

Article 31 of the collective bargaining agreement between the City of Nashua and Local #789 includes the
following Career Development Benefits:

= The City agrees to provide each station with the following IFSTA manuals: forcible entry, ground
ladder practices, hose, salvage and overhaul, fire streams, apparatus, ventilation, rescue and
protective breathing practices, first aid, inspection, training programs, water supplies, aircraft, fire
department officer, and facilities.

= The City agrees to purchase and make available the textbooks used in firefighting courses, which
textbooks shall be retained by the department after use by individual employees.

fj Emergency Services
ESC) Consulting International 7oO

Master Plan Nashua Fire Rescue, NH

» The City will reimburse employees for one hundred percent (100%) of the total tuition and laboratory
fees paid by employees from their own funds, for the successful completion of job-related courses,
as well as courses leading to the granting of degrees in Fire Science, within the budget allowed.
Successful completion is defined as a grade of "C" or above for undergraduate studies and a grade of
"B" or above for graduate studies. The City shall budget $20,750 for fiscal year 2020 and thereafter
shall increase the budgeted amount by $1,000 each year beginning in fiscal year 2021 if the budget
line for this benefit has a balance of $1,000 or less at the end of each full fiscal year. Courses not
directly related to present job function but are functions performed by other personnel in the
department, the City will reimburse up to 50% of the total tuition and laboratory fees paid by the
employees from their own funds upon successful completion.

While Nashua Fire Rescue has a program in place to provide books and tuition reimbursement for its
firefighters, it is lacking a Professional Development Program. A successful Professional Development
Program will benefit both the employees and the organization they serve. The intent of the Professional
Development Program is to engage employees in identifying gaps in understanding and development that
prepares and enables him or her to be successful in current and future roles. This directly translates to
personal fulfillment and job satisfaction as well as positioning employees for future success within the
organization. A comprehensive Personal Development Program should be developed for each organizational
level: front-line personnel, first-level supervisors, mid-level managers, and senior leaders.

Nashua Fire Rescue should develop a Professional Development Program for all positions within the
organization. The International Association of Fire Chiefs has developed the Officer Development Handbook,
which is intended to function as the foundation for any organization's Professional Development Program.
The handbook provides a foundation and explanation of the basic tenets of a Professional Development
Program upon which an organization can build upon and customize to meet its own needs.

STAFFING

The size and structure of an organization’s staffing are dependent upon the specific needs of the
organization. These needs must directly correlate to the needs of the City of Nashua as a structure that works
for one agency may not necessarily work for another. This section provides an overview of Nashua Fire
Rescue's staffing configuration and management practices.

Fire department staffing can be divided into two distinct groups. The first group is typically recognized by
the citizens and is commonly known asthe operations section; it can be generally classified as the emergency
response personnel. The second group works behind the scenes to provide the support needed by the
operation’s personnel to deliver an effective emergency response and is commonly known as the
administrative section or support services section. Like many fire-rescue organizations, Nashua Fire Rescue
has distinct staff personnel—Chief Officers—who perform specific administrative functions but are also
required to perform operationally if the need arises.

fj Emergency Services
ESC) Consulting International 71

Master Plan Nashua Fire Rescue, NH

While a fire department's evaluation focuses on several factors, staffing is one of the most important. When
reviewing staffing, one must define the expectations of each work unit in addition to the organization's
overall performance. Once the work product (output or outcome) is defined, and performance metrics are
established, senior leadership assumes responsibility in determining appropriate staffing necessary to
accomplish goals and meet performance objectives.

Administrative Staffing

One of the primary responsibilities of the administrative team is to ensure that the operations segment of
the organization has the ability and means to respond to and mitigate emergencies safely and efficiently. An
effective administration and support services system is critical to the success of the Department.

Typical responsibilities of the administration and support staff include planning, organizing, directing,
coordinating, and evaluating the various programs within Nashua Fire Rescue. This list of functions is not
exhaustive, and other functions may be added. It is also important to understand these functions do not occur
linearly and can more often occur simultaneously. This requires the Fire Chief and administrative support
staff to focus on many different areas concurrently.

Figure 54 illustrates the administration and support structure of Nashua Fire Rescue.

Figure 54. Nashua Fire Rescue’s Administrative Staffing

Minoo Hours Worked
Position Title Full-Time Work Schedule
sas per Week
esi edaes
Fire Chief ] 40 M-F
Assistant Chief ] 40 M-F
Executive Assistant ] 40 M-F
Administrative Assistant Il ] 40 M-F
Total Admin & Support 4

Nashua Fire Rescue’s administrative functions are led by the Fire Chief and supported by an Assistant Chief.
ESCI noted that currently, the level of administrative and support staffing function within Nashua Fire Rescue
is comprised of four full-time equivalent (FTE) positions. This represents 2.22% of the Department's total
staffing of 180 full-time positions. It is ESCI’s experience that effective administrative staffing totals for
municipal fire department operations typically range from 12 to 15% of agency totals. After reviewing the
functions and responsibilities assigned to the workgroup, ESCI concluded that the number of full-time
equivalents (FTEs) assigned resides in the extreme lower range of the normally experienced administrative
levels to support the responsibilities of Nashua Fire Rescue’s administration appropriately.

ESC) Emergency Services 2
Consulting International 7

Master Plan Nashua Fire Rescue, NH

ESCI’s surveys and interviews with Nashua Fire Rescue members revealed that two of the biggest concerns
within the organization are morale and a desire for consistent accountability. Morale was identified as a
problem in every one of the interviews that were conducted by ESCI. Members overwhelmingly believe that
communication (or a lack thereof) is the biggest contributor to the department's poor morale. Members also
very directly stated a desire for consistent accountability within Nashua Fire Rescue. They went so far as to
request that chief officers hold the members accountable from the top down while the union holds the
members accountable from the bottom up. There were repeated concerns voiced that not everyone was
being held equally accountable.

The members of the Nashua Fire Administration were acutely aware of the morale and accountability issues.
The members of the administration also agreed that communication was an integral key to fixing these
issues. Challenges exist regarding the current organizational model that allows the Deputy Chiefs to manage
their shifts with very different expectations, management styles, and ways of communication. The Chief and
the Assistant Chief reported regularly coming to work with a list of projects to accomplish for the day, only
to have an entirely new set of immediate issues arise and spend the entire day doing work other than what
they had planned to do. The competing demands of the fire department and city hall, coupled with the
workload and limited staffing of the Administrative Division, are creating a perfect storm that is directly
contributing to the communication challenges, the perception of inconsistent accountability, and the overall
poor morale.

ESCI recommends that Nashua Fire Rescue re-institute the second Assistant Chief Position that was
eliminated some years ago. This Assistant Chief should be charged with the oversight of Uniform
Professional Standards.

Nashua Fire Rescue should evaluate the potential benefits of restructuring the Administrative Division to
include an Assistant Chief of Uniform Professional Standards. This Assistant Chief would report to the Chief
of Department but be tasked with:

= Investigating all internal affairs type activities, thus removing this work from the Chief and
existing Assistant Chief. The single point of contact within the fire department as well as close
collaboration with Human Resources will better position Nashua Fire Rescue to address these types
of issues more consistently and to hold members accountable as appropriate.

= Develop and manage a communications plan for regular and consistent communications with
the Operations Division. Communication has been a critical weakness within Nashua Fire Rescue
for decades that is getting progressively worse. This problem will continue to fester, thus further
negatively impacting morale and the operations of the fire department until such a time that there
are focused resources dedicated to improving this deficiency.

« Manage the recruitment of new firefighters, thus removing this work from the Training and
Safety Division. Training was repeatedly identified as a major weakness within Nashua Fire Rescue.
The reassignment of recruitment duties to the Assistant Chief of Uniform Professional Standards will
allow the Training and Safety Division to focus their efforts on improving the Nashua Fire Rescue
Training Program.

fj Emergency Services
ESC) Consulting International 73

Premier Colors by Lyon®

Our preparation and finishing procedures deliver a superior powder coat
surface, highly resistant to chipping, cracking and corrosion, to create a
lasting impression for your locker installation.

4A Steel Blue 5F Wine Red 78 Sand 77 Stone Gray

6Y Brilliant Blue 3E Green Blue 68 Gray Beige 4B Ocean Biue X2 Antique Vellum

X3 Blue Streak 3N Taupe WV Wood Violet WE Burgundy

EQ Midnight Blue X%6 Marine Blue IN Cosmos CD Minute Man Blue

X7 True Navy H3 Hunter Green 11 Whitewash

KK Vulcan Black 74 Sunshine

BB Wedgewood Blue

#,

9A Sepia Brown B6 Light Beige 7G Monorall Gray YF Red Baron

Note:
® All color chips are reproductions and approximate ® Additional charges apply for custom colors.
the actual color as closely as possible. ® Contact your Lyon representative for specific costs.

Lyon ©2016

Master Plan Nashua Fire Rescue, NH

= Oversight of the Nashua Fire Rescue Training Program. As previously noted, training was
repeatedly identified as a major weakness within Nashua Fire Rescue. Placing the Training Safety
Division under the direction of the Assistant Chief of Uniform Professional Standards will provide the
oversight that is necessary to establish and then achieve simple, manageable, achievable,
reasonable, and timely (SMART) goals to systematically improve the Nashua Fire Rescue Training
Program.

» Manage the promotion process in conjunction with Human Resources. ESCI recommended within
the Promotions Processes Section of this report 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. The Assistant Chief of Uniform Professional Standards would be well-
positioned to facilitate this process on behalf of the fire department.

= Develop, implement, and manage a Professional Development Program for Nashua Fire Rescue.
Officers who fail to learn leadership skills are challenged almost immediately upon promotion. As
detailed in the Career Development section of this report, both Nashua Fire Rescue and its
employees stand to gain from the development and implementation of a Career Development
Program.

Emergency Services Division

lt takes an adequate and properly trained staff of emergency responders to put the appropriate emergency
apparatus and equipment to its best use in mitigating incidents. Insufficient staffing at an emergency scene
decreases the effectiveness of the response and increases the risk of injury to all individuals involved.

Staff Allocation of Various Functions
Nashua Fire Rescue allocates its staff to six fire stations with crew members assigned to engine and ladder

trucks. These stations are located based on the specific geographic requirements and service level needs of
the area.

The following figure depicts the emergency response staffing employed by Nashua Fire Rescue.

fj Emergency Services
ESC) Consulting International 74