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R-99-08-12-10B1 - 8/12/1999Mayor Robert A. Stink°, Jr Mayor Pro-km Martha A. Chavez Council Members Tom Nielson Earl M. Hairston Rick Stewart Furl Palmer Jimmy Joseph City Manager Robert L Bennett, Jr. City Attorney Stephan L Sheen CITY OF ROUND ROCK October 7, 1999 Ms. Sarah Hutchinson Watson Wyatt & Company 2121 San Jacinto Street, Suite 2400 Dallas, Texas 75201 -2772 Dear s N' nson: The Round Rock City Council approved Resolution No. R- 99- 08- 12 -10B1 at their regularly scheduled meeting on August 12, 1999. This resolution approves the engagement letter to conduct a Fire Department Management Audit. Enclosed is a copy of the resolution and engagement letter for your files. If you have any questions, please do not hesitate to contact me. Sincerely, Jlfanne Land Assistant City Manager/ City Secretary Enclosures Fax: 512 -218 -7097 1 -800- 735 -2989 TDD 1 -800- 735 -2988 Voice www.ci.round-rock.tx.us 221 East Main Street Round Rock, Texas 78664 512- 218 -5400 ■ o11 • 4 „ Round Rock Fire Department Initial Findings Presented to City Administration September 1999 6..0 Err€ 6. ti..lc La: Ilia lima • Overview of findings • Detailed findings • Supporting observations • Recommendations presented to Fire Administration • Recommendations for implementation 1 Overview of Findings Main "Things Don't Get .Dons • Critical fire fighting equipment not always in top operating condition; live fire training and integrated training inadequate; operating procedures vary among shifts • To "get things done," the department must improve its leadership and management processes 3 Data Collection: • Discussions with city administra • One -on -one interviews • Focus groups — Firefighters — Drivers — Lieutenants • Review of materials 4 Analysis and Reportin * To be done • Briefing with Chief and departme administration * Briefing with city administration * Finalize project 5 Fire Department Return on In y t • Most interesting fact about a fire is that we make a significant investment in the hope that we do have to use it • Round Rock is achieving great success in not using its fire investment to fight fires 6 Investments Buildings Rolling Stock Personnel Costs Other Return on In $4 Million $4 Million $4 Million $1 Million % of Fire Related Calls 4% On average, there is less than one large fire per year in this 4 %. Other calls relate to small events such as rubbish, grass, and vehicle fires 7 Reinventing the Fire D • The next most interesting fact ab department is they have reinvented themselves into a valuable service that is needed everyday • Firefighters have become the community "good guys" re 8 Reinventing the Fire Dep a rti ?fl t 3 % 5 %> 60% OU /0 4% • Rescue /\Ied. Assist _ Haiardous Condition` Serxice Call Round Rock 1999 Calls For Service Ili Fire / Explosion • Good Intent Call' 9 i■1 The Future of the De • The life of firefighters in Round - s not appear to be changing in the immediate future — As the City grows, the Department will grow in step — Even if the number of fires increases, the 4% incident rate will likely remain the same 10 The Future of the D • Limited incidence of fire can be a to factors such as: — New structures built to strong fire codes — An aggressive fire prevention program Low risk of major fire events • Our reading of the 1999 "risk analysis" is that the probability of having "the big one" in Round Rock is low 1 1 The Hig ionic MEd, • Past experience demonstrates — The risk of a major fire event is low — The risk of losing a citizen in a major fire is even lower • Citizens can readily evacuate their homes • The most likely business fires would be arson — If there is a major fire, it will likely be multiple alarms with multiple jurisdictions responding • In this complex response situation, the risk to life is that of the firefighters committed to battle 12 Repor • The context of our work is fire fig operations — Our evidence is that the City is doing everything reasonable to protect citizens from injury in a fire — The Department should be more aggressive in ensuring that leadership and management processes are in place to ensure fire fighting operations are adequately prepared 13 Issue " ' Things Don't Get P , 1� one' Findings Observations Recommendations Overview o Competing Departmental Visions Incomplete SOPs Incomplete "accreditation" Faulty equipment and inventory Inadequate training Develop consensus around the vision Insufficient Management Infrastructure Clarify roles & Accountabilities 14 • Leadership processes — Competing departmental vision(s) • Management processes — Lack of infrastructure 15 16 Finding #1: Leadership Competing Departmenta 17 ■� r.. imE r — — Was MO — two Y■Y — rY — * — amit. Competin The Department has not established an riate balance between two competing visions 771_\_ Service to Citizens itizens _ Internal Operations 18 Without a G r `. Vc iL L..c, • There is no acceptable standard priorities • As a result, many initiatives get launched but are not backed up with sufficient commitment • As initiatives languish, no matter how insignificant, they accumulate into the legend... "Things Don't Get Done" 19 Many Things Di2 • Citizens value the Department — Response times are excellent — Facilities are clean and well maintained — There is a world class fire prevention program • In other words. .. things get done on the "service to citizens" side of the continuum 20 • Firefighters do not disagree with see that operational response is compromised through "trade- offs" that result in inadequate equipment and training — This results in resentment for the fire prevention program and a suspicion of the budgeting and expenditure process — We found neither perception to be well founded 21 Balancing th • A "balanced" vision (created thro leadership) gives firefighters a framework for decision making when it is not feasible to have specific rules, procedures and authority — For example, when returning from a call, if there is an opportunity to help another citizen should this be done rather than quickly returning to the station? 22 Finding # 2: Management 23 What is Mana Management, on the oth is the existence of rules, procedures and authority to cover definable situations 24 Contrasting Management and Management Strategies & Plans Efficiency Authority Information Accountability Getting Results L Leadership Vision & Values Effectiveness Influence Communication Responsibility Without Rules Man 10\ L7: Management can take place wi a clear vision. The only requirement for management is to identify priority issues, allocate the needed resources, and hold people accountable for getting things done. 26 Absence o • On issues that have been identifie Department as needing to get done — Repair the ladder truck, keep rolling stock expertly maintained, finish the SOP manual and accreditation, complete inspection training and live fire training • Since major issues don't get done, it's not surprising to find that minor ones suffer the same fate - Slow repair of Station 2, cabinets not hung, grass not cut on time, trash not always picked up, and routines on shifts vary 27 Widely Held Per • No accountability or discipline • The three shifts are fiefdoms • Only the priority of the day receives attention • The Department Administration has not been adequately trained 28 What Has Been DonetT • A fourth "captain" level position created (Director of Operations) — Roles, responsibilities of position not defined — Those who have rotated through position have brought own special projects to the job, but have not defined it beyond themselves 29 What Has Been Don • Some administrative duties, such as b citizen surveys, have been taken up by the Fire Marshall • Done as time permits • Department could benefit from more in -depth analysis and evaluation of its activities • Because technology is becoming more important to the fire department • A firefighter has been assigned to help out • This causes resentment because the firefighter is perceived as receiving special treatment 30 • Management does not get things because the management roles, processes, and resources have not been defined • If effect, when Administration directs that something get done, the order falls into a vacuum 31 An Underlying Problem: Focus • Chief: Internal v. City Hall v. externa • Captains: "Paperwork and assigned tasks" v. operational management • Training Officer: Record keeping v. training • Office manager: Receptionist and payroll duties v. administrative duties in support of operations • Fire Marshall: Prevention v. inspection • Firefighters: Carpentry and other duties v. operational practice and training 32 The Fire D • Has an 80's mentality when it co resources • May try to be a "budget hero" • Tries to do it all — Procurement — Payroll — Record keeping 33 Management in the D • We recognize that management has no core skill for the Department — People join the Department because of its action orientation, not so they can sit around and prepare management reports • The department has been a small, tightly -knit group of professionals — Unfortunately, times are changing — The Department must put more definition into how things get done 34 1 Observations 35 • This section uses the following e demonstrate the impact of inadequate leadership and management #1: Standard Operating Procedures #2: Accreditation #3: Maintenance and supplies #4: Training Note: We have only taken situations which could have a significant negative impact. We have not highlighted irritant areas such as: whether household supplies are on hand, whether the stations are clean, or whether the grass is cut. Dealing with the major issues will provide the models to deal with the minor issues. 36 Observation #1 • Standard Operating Procedures set ex for team behavior • They become a base line for training to protect citizens and firefighters • The department has been drafting its SOPs for more than a year - It took the positive step of getting a model from another department to avoid re- inventing the wheel — Yet, finalization and approval of the draft drags on 37 • When we asked about significant SOPs, the co Observation #1 was "move- ups," that is, the procedure for station backups — When an engine company is out on a call, which station(s) backs it up? • The fundamental problem here is that the captains do not agree — Captains have different backup procedures — This is a problem because firefighters fill different shifts — In effect, firefighters are being asked to absorb the captains' inability to agree • SOPs are the symptom — The cause is tolerance of divergent behavior by the captains on matters of significance 38 ■=1 - — I— Ira fir[ •101 V.rd • The accreditation issue is similar the SOP Observation #2 Accr • The accreditation program sets criteria for well - performing fire departments • By meeting the criteria, the department, the city, and its citizens can be reasonably assured that the fire department is in good working order 39 Observation #2 Accr • Again the process has been undery more than a year — In its draft form we have heard complaints that some of the documentation is not accurate, but that's the purpose of the process — to document the status quo so it can be challenged by outside experts • The significant part of the process is the improvement initiatives and follow -up required to be accredited 40 Observation #3 Maintenance and • We have several examples of maintenance /supply issues which may compromise fire fighting response 41 �1 W'i mill t ammo - Observation #3 Maintenance and • The ladder truck is the all -encom symbol of "things don't get done" — This is a $600,000 piece of rolling stock which is compromised because its main feature, the ladder, is often inoperative - Although many resolutions have been sought, no one seems to be accountable to "just do it!" 42 ilr INNI r r r ow um l Observation #3 Maintenance and • Vehicle maintenance is another s irritation - It seems to take too long to get service from the central depot — Some of this problem might go away with the planned addition of a mechanic devoted to fire equipment 43 Observation #3 Maintenance and • Vehicle maintenance also highlig . with the Director of Operations position — A lot of requests, scheduling, and complaints go through this position rather than direct contact from drivers to central maintenance • We also hear that mission critical supplies such as safety gloves are not always available 44 Observation #4 • Firefighters must know their jobs {I to perform in multi -alarm and multi - jurisdiction situations; yet, there is little training that prepares them for this — Live fire training is rare and is often scheduled on weekends — Often candidates choose not to go 45 Observation #4 • Similarly, training and seminars with a departments require a sacrifice from firefighters who perceive that they don't get sufficient reimbursement to make the trade -off worthwhile • When firefighters do train, it is often without their captain; therefore, in an actual event the captain may be using different techniques — For example, we hear that roll call procedures may differ. A cynical comment was "... to avoid problems, get to the event before your captain so you can set up command..." 46 iri lair - N w Observation #4 • • Finally, inspector training seems priority — Inspections are an effective way of using firefighters in prevention while informing them what is on -site in case of a fire 47 • Observation #4 • Training is critical to success — Some training must be mandatory — Administration and firefighters have to make mandatory training happen 48 Recommendations to Fire Department Administration 49 ' P P I poi Wig Recomme • Address the leadership issue by c institutionalizing a shared vision — Balance the readiness and service concerns — Provide a foundation for priorities and decision - making — Walk the talk 50 • Address the Management Infras issue — Clarify roles and authorities for all administration jobs — Define critical results areas for all firefighter jobs — Delegate work to lowest possible level — Look to City Hall for assistance with non -core tasks 51 Recommendations or Implem 52 Implemen • The Chief must define a structure th 1 ls vision, then involve the Administration Team in improving and validating the structure • At a mission level, the Administration Team must understand what types of culture it wants to create. • At an operational level, the Administration Team must decide what has to be done the same and where there is flexibility 53 low • The Department does not have the resident address these issues, and the Administration Team needs help • An observation is that some of the firefighter malaise may come from their detachment from the administration • This may have been caused because the Administration does not have the recipe to stay in touch with operations • Administration's lack of management confidence may result in taking the easy way out by becoming engulfed in "administrivia" 54 1” 1 - 1, 0 001 101•1 NM MI MB INN ilMr -Lima Proposed Implementation #1. Structure #2. Shared vision #3. Operational excellence 55 Implementation Activities #1: Objectives of Structure activities — Insert the Chief back into the role of senior operational manager. The time may evolve when an Assistant Chief can take on this role; however, the transition requires hands -on intervention from the Chief — Clarify roles and responsibilities for other jobs as needed — Ensure enough resources to get the job done and abdicate some tasks to the City 56 111MI 11=1 NMI 11=11 MIN 111= Implementation Activities #1: Steps — Get approval in principle from Ci management for a new structure — proposed on the following page — Involve the Chief in a working session to confirm the structure — Involve the Administration in a working session to validate the structure and build the detail — Work with Human Resources to staff the structure and to transition work as needed 57 .�J Battalion Chief p H Shift ITT A B C Arm — - Implementation Activities #1: PROPOSED STRUCTURE CHIEF Fire Marshall Inspectors Training Office Admin Battalion Chief Admin Note; Head count - Current 59 - New station 12 71 - Increase 2 Info Systems $35,000 73 Logistics 35.000 $70,000 Information Systems Logistics 58 Implementation Activities #2: Objectives of Shared Vision activi — Get the team members to see that they each have different ways to contribute to the team — Get the members of the Administration Team to see that they have different understandings of the organization cultures they are trying to create — Work through vision and style differences to create awareness, close gaps, and create tolerance — Develop the Administration Team to the point where they either act in concert, or can support different ways to contribute to the team 59 Implementation Activities #2: Tasks • Provide individual Birkman feedback, then have a team working session that shows how team members contribute in different ways • Hold a second working session to develop a shared vision 60 Implementation Activities #2: Vision Working Session • Each member gives a 15+ minute presentation on how they would run the department as Chief • Build on the presentations to show differences in personal philosophies, paradigms, and beliefs • Consolidate the findings with the Birkman results to show how the team can change to fill the gaps • Conclude with statements that capture — principles of a shared vision, and — the unique contributions available from each member 61 Implementation Activities #3: Operation Objectives of Operational Excellen Activities — Be sure that everyone is working on mandatory items the same way — Explain where flexibility is allowed in the system and that Administration has agreed that it is ok 62 Implementation Activities #3: Operation. Tasks — Pre work • Each team member records, for several shifts, how they are using their time • Write down their top 10 operational activities that they think should be done the same way by everyone 63 Implementation Activities #3: Operation Tasks (continued) — Working session • Examine time allocations to find ways to eliminate work, outsource work, and lower work levels to free up members to spend more time in touch with firefighters • Compare lists of top 10s, sort to a core list where everyone agrees, and define and communicate common procedures 64 RESOLUTION NO. R- 99- 08- 12 -10B1 WHEREAS, the City of Round Rock desires to retain professional services to conduct a Fire Department Management Audit, and WHEREAS, Watson Wyatt Worldwide has submitted an engagement letter to provide said services, and WHEREAS, the City Council desires to approve said engagement letter with Watson Wyatt Worldwide, Now Therefore BE IT RESOLVED BY THE COUNCIL OF THE CITY OF ROUND ROCK, TEXAS, That the Mayor is hereby authorized and directed to execute on behalf of the City an engagement letter with Watson Wyatt Worldwide, to conduct a Fire Department Management Audit, a copy of said engagement letter being attached hereto and incorporated herein for all purposes. The City Council hereby finds and declares that written notice of the date, hour, place and subject of the meeting at which this Resolution was adopted was posted and that such meeting was open to the public as required by law at all times during which this Resolution and the subject matter hereof were discussed, considered and formally acted upon, all as required by the Open Meetings Act, Chapter 551, Texas Government Code, as amended, and the Act. RESOLVED this 12th day of AupatTT 9 ROI A. STLU o Mayor ATTEST: City of Round Rock, Texas E LAND, City Secretary K:\wppocs\ q Watson Wyatt August 2, 1999 Ms. Joanne Land Assistant City Manager City of Round Rock 221 E. Main Round Rock, TX 78664 Dear Joanne: Subject: Fire Department Management Audit The City of Round Rock has begun a process to review its major departments to ensure their capability to deal with the current and projected growth in the City. The first operational review was conducted in the Police Department approximately six months ago. The Fire Department is the subject of the second review. Objective The main objective of the operational review is to ensure that resources of the Fire Department are used efficiently and effectively. The focus is to ensure that the management systems and processes are in place to monitor and report on the performance of the operation. Scope • Policies to ensure there are no bottlenecks in using resources, and Watson Wyatt & Company 2ui«• 2400 7171 s.In )aH to xr, t Dalla.,TX 73201-2772 IA,:phonu 219 979 3400 l'ax 114 978 (22-) Typically such an operational review looks at: • Measures of effectiveness, that is how well the organization is meeting its objectives. (Often published benchmarks from similar organizations are helpful for this determination) • Operational reports showing the efficiency of resource utilization, the amount of inputs required to produce outputs • Operational processes and administrative procedures to ensure that they add value and are supported with appropriate technology • A set of management systems, including organization structure, planning, leadership development, training and performance management. Ms. Joanne Land August 2, 1999 Page 2 Approach In doing this work we use senior people to: • Collect and analyze documents • Interview managers • Conduct employee focus groups • Consolidate and report the results Work Plan The proposed work plan for the operational review of the Fire department is as follows: TASK WEEK OF • Kick -off meeting with City Officials July 19 • Two -day on -site August 16 — Interview Chief — Interview direct reports — Collect data • One day - employee focus groups August 23 • Consolidate data and draft report August 30 • Meet Chief September 6 — Validate facts — Discuss findings and recommendations • Revise draft report September 13 • Brief city officials on report September 20 • Finalize and submit report September 27 Ms. Joanne Land August 2, 1999 Page 3 Professional Fees Estimate of professional fees is There is a 5% administrative change added to professional fees. We also charge out of pocket expenses directly to the City. Summary Joanne, please let us know if you need any other information. Otherwise, if you agree with the terms of this letter please execute both originals and return one signed copy for our files. Sincerely, i f f Sarah Hutchinson Senior Consultant mac c: Bud Taylor $45,000- $50,000 Mayor DATE: August 6, 1999 SUBJECT: City Council Meeting — August 12, 1999 ITEM: 10.B.1. Consider a resolution authorizing the Mayor to execute a management review engagement letter with Watson Wyatt Worldwide. The Management Review of the Fire Department will be the second review conducted by Watson Wyatt Worldwide for the City. This review is consistent with the original plan to review major departments to ensure their capability to deal with the current and projected growth in the City. The review is scheduled to officially begin August 16th with a two -day meeting. The final report is tentatively scheduled to be completed no later than September 27th. Funding for this review was approved in the budget revision for this fiscal year. Staff Resource Person: Teresa Bledsoe, Human Resource Director.