Novak Study (Troy Fire Dept. Study, 5/2015)

City of Troy
Part-Time Firefighter Staffing Analysis

Project Report
May, 2015
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The Novak Consulting Group

Strengthening organizations from the inside out.
May 13, 2015

Mr. Patrick Titterington
Public Service and Safety Director
City of Troy
100 S. Market St.
Troy, OH 45373
Dear Mr. Titterington:
The results of our assessment of the City of Troys Fire Department staffing levels are
presented in the enclosed report.
The analysis and recommendations offered therein build upon the work already completed by
the Department to offer cost effective alternatives to enhance fire response and suppression
capacity in the City of Troy.
Thank you for the opportunity to work with the City of Troy. Please do not hesitate to contact us
if we can be of assistance as the City works to implement these recommended improvements.
Sincerely,
Julia D. Novak
President

Table of Contents
Introduction.........................................................................................................................................1
DepartmentSummary..............................................................................................................................2
AnalysisandRecommendations...........................................................................................................5
FrontlineFirefighterStaffingAnalysis.....................................................................................................6
EMSUnitUtilization..............................................................................................................................7
ShiftStaffingCoverageRequirements..................................................................................................8
CurrentDeploymentModel..................................................................................................................9
StaffingAlternativeA............................................................................................................................9
StaffingAlternativeB..........................................................................................................................10
FrontlineFirefighterStaffingConclusions.........................................................................................12
CommandandStaffing...........................................................................................................................13
ShiftScheduleAlternatives.....................................................................................................................19
ISOStandards..........................................................................................................................................20
DiversityRecruitment.............................................................................................................................21
Conclusion.........................................................................................................................................22


City of Troy
Part-Time Firefighter Staffing Analysis
Page 1
Introduction
In April 2014, the City of Troy Fire Department issued an Internal Staffing Analysis at
the request of the Troy City Council. The goal of this analysis was to provide an
overview of the Fire Departments current service standards, the appropriateness of its
current staffing level, and how its staffing level might be enhanced through the
integration of part-time firefighters into the Fire Department.
In February 2015, the City of Troy engaged The Novak Consulting Group (TNCG) to
review and assess the results of the 2014 Internal Staffing Analysis and conduct the
analysis again using more recent data from calendar year 2014. The scope of work for
this project was limited to an examination of the methodology and results of the 2014
internal analysis with consideration of more recent workload data In addition to
assessing the staffing requirements and associated cost implications of implementing a
part-time supplemental staffing plan, TNCG made additional observations pertaining to
the Fire Departments command and supervisory structure, shift staffing structure, and
related training and professional development needs.
As part of the data collection process, interviews were conducted with City leaders,
including the Mayor, Director of Public Service & Safety, and Assistant Director of Public
Service & Safety. TNCG also interviewed the Fire Chief, the Assistant Chiefs, and
representatives from the International Association of Firefighters (IAFF) Troy
Firefighters Local #1638. TNCG also toured the Citys fire stations and the Fire
Departments service area.
The Fire Departments 2014 Internal Staffing Analysis provides a solid foundation for
additional review and assessment, and is generally consistent with the independent
analysis performed by TNCG. The 2014 Internal Staffing Analysis appropriately
examines the Fire Departments call volumes and response times and accounts for both
National Fire Protection Association (NFPA) and Insurance Services Office (ISO)
standards.
One limitation with the Departments internal analysis was that it did not account for
span of control considerations associated with increasing the Fire Departments shift
staffing, as well as the additional administrative and training requirements associated
with adding a part-time employee pool. The following analysis and recommendations
provide an update to the Departments internal analysis using more recent data, and
makes recommendations that address the impact of implementing a part-time firefighter
supplemental staffing plan.

Page 2
City of Troy
Part-time Firefighter Staffing Analysis
Department Summary
The Troy Fire Department operates on a 24/48 hour schedule using three shifts, or
platoons. Each platoon works one 24-hour period and then goes off-duty for the
following 48 hours. The Fire Department currently maintains a minimum staff of eight
firefighters per platoon, including a Platoon Commander. To ensure this eight-person
minimum threshold is met, the Department staffs each platoon with 11 full-time
firefighters (including the Platoon Commander) to provide coverage for leave and
training events. All firefighters are certified paramedics.
The Fire Department operates three fire stations in the City:
Station 1 is located at 19 E. Race St. and was opened in 1966. This station
houses most of the Fire Departments apparatus and staff, fields proportionally
more calls, and contains administrative offices for Command Staff. This station
houses an engine, the Departments aerial tower vehicle, a tanker, a medic, and
a grass truck. A reserve medic, an air trailer, and two rescue boats are also
housed at this station.
Station 2 is located at 1528 N. Market St. and contains an engine, a medic, and
a rescue boat. This station also contains administrative offices for the Fire Chief.
Station 3 is located at Interstate 75 and 40 S. Stanfield Rd. The station houses

an engine and a medic along with a Special Rescue trailer and Miami Countys
Hazardous Materials Response Team (HAZMAT) response vehicle.
Stations 2 and 3 are always staffed with two firefighters per shift. Staffing fluctuates at
Station 1 from four to seven firefighters (including the Platoon Commander) depending
on staff coverage and scheduling.
Table1:CurrentDeployment,2015
Troy Fire Staffing
Platoon Commander
Station 1 Firefighter/Paramedic
Total Firefighters
Minimum per Shift

1
3
2
2
Maximum per Shift

1
6
2
2
11
Total Department staffing consists of 33 firefighters on shift. The Department also

employs two Assistant Chiefs and a secretary, and two administrative fire inspectors
working four 10-hour shifts. The Fire Chief position is currently vacant, with the
Assistant Chiefs fulfilling the Fire Chiefs duties on an interim basis. Overall, the
Department currently employs 38 personnel. The following chart depicts the
Departments current organizational structure:
City of Troy
Part-Time Staffing Analysis
Page 3
Fire Chief
Assistant Fire Chief

Prevention/Inspection
Secretary
Firefighter/EMT-P
Prevention
Firefighter/EMT-P
Inspection

Suppression/EMS
Platoon Commander
Shift 1
Platoon Commander
Shift 2
Platoon Commander
Shift 3
Firefighter/EMT-P
10 Positions
Firefighter/EMT-P
10 Positions
Firefighter/EMT-P
10 Positions
Figure1:CurrentOrganizationalStructure
The Departments budget in FY 2014 was just over $5.1 million, an increase of 17%
over FY 2010 expenditures. Personnel Services accounted for 87.6% of overall
expenditures in FY 2014, down slightly from 90.2% in FY 2010. The following chart
depicts the Departments expenditures over the past five fiscal periods.
150%
$6,000,000
130%
$5,000,000
110%
$4,000,000
90%
$3,000,000
70%
50%
$2,000,000
30%
$1,000,000
10%
10%
FY2010
FY2011
FY2012
FY2013
FY2014
TotalCapitalOutlay
0.3%
0.1%
0.2%
7.6%
2.9%
TotalOtherDisbursements
0.0%
0.1%
0.1%
0.1%
0.1%
TotalServices
6.2%
6.1%
6.2%
7.5%
6.5%
TotalMaterials&Supplies
3.3%
3.6%
3.5%
2.8%
2.9%
TotalPersonnelServices
90.2%
90.2%
90.0%
82.1%
87.6%
TotalFireDept
$4,415,750 $4,607,685 $4,523,861 $5,437,970 $5,158,734

$0
Page 4
City of Troy
Figure2:TroyFireDepartment,ExpendituresFY2010FY2014
The Fire Department is funded primarily through the Citys General Fund and revenues
specifically generated by the Fire Department (including service contracts with the
surrounding Townships) are also deposited there. The Citys Safety-Income Tax Fund
also provides 0.25% of income tax revenues for public safety purposes (including police
and fire); these revenues are transferred to the General Fund prior to being spent by
operating departments.
The following sections detail the methodology and analytical approach used by the
Novak Consulting Group to evaluate the 2014 Internal Staffing Analysis, along with
other recommendations to improve the Fire Departments command structure and
recruitment operations.

City of Troy
Page 5
Analysis and Recommendations

The 2014 Internal Staffing Analysis determined that the Departments current full-time
staffing level was sufficient based on existing service standards, current and anticipated
call volumes, and overall response times. However, the Department recommended
increasing staffing to a minimum of 12 firefighters per shift in order to more closely align
staffing with NFPA Guideline 1710 and improve the Citys ISO rating. To achieve this
staffing increase, the 2014 Internal Analysis recommended hiring an additional 24 parttime firefighters, allocating eight part-time firefighters per shift. It is important to note
that the Departments internal analysis, and as a result, TNCGs staffing analysis,
focused on determining the number of part-time firefighters that would need to be hired
to increase average shift staffing from 8 firefighters per shift to 12 per shift. It was
assumed in both analytical approaches that the Department would continue to
exclusively utilize full-time firefighters to reach its minimum staffing of level of 8 fire
suppression personnel per 24 hour shift, including the platoon commander.
The Novak Consulting Group utilized incident and staffing data from FY 2014 in an
independent methodology to evaluate the 2014 Internal Analysis. Salary and benefits
information was also considered and compared to the estimates discussed in the 2014
Internal Staffing Analysis. By weighing these factors against the Departments goals and
assumptions, TNCG arrived at the following conclusions:
The Departments existing staffing level is appropriate given its service standards
and historical leave usage.
Adding part-time firefighters is the most cost-effective approach to increased
staffing.
Increasing minimum shift staffing will likely have a negligible impact on the Citys
ISO rating. Additional training must also be conducted to positively impact the
Citys ISO rating, and the ISO rating is not a ubiquitous standard across all
insurance agencies.
Increasing minimum shift staffing to 12 persons per shift will positively impact
service times, but will not result in full compliance with NFPA 1710. The
Department will still need to rely on overtime support or mutual aid to meet the
NFPA 1710 standard of 15 firefighters on-scene at a structure fire.
Hiring part-time firefighters, however, has a practical impact on the Department that
must be addressed as part of the overall plan for increased staffing.
While the command structure is adequate to provide appropriate supervision of

current personnel, it is inadequate to allow for appropriate supervision of
additional personnel. The Department should restructure its command staff to
provide for one Fire Chief and one Deputy Chief, two administrative Lieutenants,
three shift Lieutenants while eliminating the two existing Assistant Chiefs. These
positions will provide for improved span of control and administrative capacity
prior to adding any new staff.
Page 6
City of Troy
Hiring, training, apparatus, fleet maintenance management, and administrative

coordination and management all require further attention.
Additional part-time hires should be phased in, beginning with six part-time
positions. This approach will further soften cost impacts and provide ample
opportunity to evaluate the cultural and workload implications of adding part-time
staff.
Although not a part of the original scope of this study, the Department would
benefit from improved training standards and increasing diversity among its staff.
The following table compares the 2014 Internal Staffing Analysis staffing alternative
options to those recommended by TNCG in this report.
Table2:StaffingCostComparisons
Staffing Alternative
Staffing Alternative A: 12Person Target Staffing with
Full-Time Firefighters Only
Staffing Alternative B: 12Person Target Staffing with
Full-Time and Part-time
Firefighters
Recommended Approach:
Restructure Command and
add 12 Part-time
Firefighters
Department Internal
Analysis
Requires 16 additional
full-time firefighters at
a cost of $1.5 million
per year.
Requires 24 part-time
firefighters at a cost of
$532,500 per year.
Not Applicable
TNCG Analysis
Requires 15 additional full-time firefighters at a
cost of $1.4 million per year.
Requires 24 part-time firefighters at a cost of

$561,000 per year.
Requires eliminating Assistant Chief positions
and a 40-hr Fire Inspector position, and adding
a Deputy Chief position and five Lieutenant
positions at a cost of $380,000 per year over
current administrative spending.
Requires six part-time firefighters at a cost of
$140,250 per year.
Total costs estimated at $520,200 per year.
The following sections provide greater detail on the methodology and assumptions used
by TNCG to make the determinations discussed above.

Frontline Firefighter Staffing Analysis
The 2014 Internal Analysis focuses primarily on call volumes and response times to
measure staffing efficiency; TNCGs analysis of the Troy Fire Department primarily
focuses on the Departments coverage requirements and target service standards. The
intent of the Departments internal analysis was to determine the most cost-effective
approach to increase its average shift staffing from eight firefighters to 12 firefighters;
however, the Citys intended policy is to continue with the current minimum staffing
target of 8 firefighters, including the platoon commanders. These staffing targets and
coverage goal served as the primary determining factor in the Citys internal analyses
and TNCGs analysis. In addition, TNCG evaluated EMS Unit Hour Utilization (UHU)
City of Troy
Page 7
rates to determine if workload warranted an alternative shift schedule approach for EMS
response.
EMS Unit Utilization
Unit hour utilization is a calculation that indicates the proportional amount of time an
EMS unit spends responding to an incident. Incidents that take a longer time to address
will pull a unit out of service for a longer period, which puts additional strain on the
Departments available units to respond to new calls. According to industry best
practices, a unit that spends 30% or more of its time responding to calls is in danger of
being over-utilized.
To calculate the unit hour utilization, the time a unit spends responding to incidents is
divided by the total number of available service hours. In 2014, the Troy Fire
Department responded to 4,070 EMS incidents. Response data provided by the
Department indicated that, on average, units spent 30 minutes in the field responding to
calls. Multiplying these values indicates that EMS units spent approximately 2,035 hours
responding to EMS incidents in 2014. Because Fire Department services are provided
around the clock, all year long, each EMS unit is available for approximately 8,760
hours per year. The Troy Fire Department deploys three EMS units each shift, meaning
the total number of available hours for EMS units is 26,280 hours. Dividing hours spent
in the field (2,035) by the number of available hours (26,280) yields an EMS unit
utilization rate of 7.74%.
While the rate above relies on data that suggests the time spent on calls averages 30
minutes per incident, a more conservative estimate of one hour per incident may be
used to account for paperwork and incidental activities related to the call. Performing
the UHU calculation using an assumption of one hour spent in the field per incident
results in a utilization rate of 15.5%.
In both cases, the utilization rate does not reach a threshold which indicates the
Department needs to add capacity. This in turn corroborates findings in the 2014
Internal Staffing Analysis that current staffing levels are sufficient to meet existing call
demand. In terms of responding to EMS calls (which constituted 84% of all incidents in
2014), the number of units is sufficient.
Unit hour utilization calculations are typically applied to EMS units because these units
experience the highest call volumes and need to be available frequently. Consistent
with other fire departments across the country, structure fires in Troy comprise a smaller
percentage (1.5%) of overall call volume. Because the frequency of these calls is lower,
fire departments typically emphasize the importance of turnout numbers for structure
fire calls rather than utilization rates, using NFPA 1710 as a deployment guide. These
deployment guides serve as the primary basis of projected staffing needs.
Deployment will vary based on the specific type of incident. For example, responding to
a car fire or service call will not necessarily require the same apparatus or number of
firefighters as responding to a structure fire. Specifically, the Department could establish
service standards for responding to specific call types and benchmark tracking data
Page 8
City of Troy
against those standards. This data should include the type of call, which units respond
to calls, when the units respond, response times across all districts, and average time
spent on scene.
During the course of fieldwork, the Department indicated it was working to rectify data
quality issues from previous years. Although data from the past two years was reliable,
the Department should continue to practice rigorous data tracking and measurement in
order to more thoroughly assess unit utilization figures.
Shift Staffing Coverage Requirements
The most important measure for evaluating staffing levels involves coverage
requirements and staffing availability. These factors are used to determine the
appropriate number of personnel to assign to each shift. Because full-time staff take
leave, such as personal and sick days, additional staff are required to ensure that
enough firefighters are available to meet minimum coverage standards. Consequently,
even though the Troy Fire Departments current minimum shift staffing is eight
firefighters, the Department must assign more than eight firefighters to work each shift.
In order to determine the appropriate number of firefighters to assign, a staffing factor
analysis is conducted.
A staffing factor represents the number of employees needed to cover each position on
a shift, after accounting for leave (such as sick time, vacations, and scheduled days off).
Data provided by the Troy Fire Department indicates that shift firefighters currently work
approximately 2,920 hours each calendar year. Of these, approximately 739 hours are
used for leave, scheduled time off, and continuing education. This means that on
average, a shift firefighter is available on duty for 2,181 hours each calendar year.
Dividing the number of scheduled hours by the number of hours available on duty yields
a staffing factor: in this case, 1.34 firefighters are required to fill each position on a shift
in order to provide adequate minimum coverage, given historical leave usage.
TNCG applied the Departments staffing factor to the following deployment models or
coverage targets in order to determine the appropriate number of firefighters to assign
to each shift:
Current Deployment Model The number of full-time firefighters needed to

meet current 8-person minimum shift staffing levels.
Staffing Alternative A The number of full-time firefighters needed to reach
target staffing of 12 firefighters per shift.
Staffing Alternative B The number of part-time firefighters needed to reach
target staffing of 12 firefighters per shift.
Specific calculations for each deployment model are discussed in the following sections.


City of Troy
Page 9
Current Deployment Model

As previously stated, the Troy Fire Department currently staffs each platoon with 11
firefighters. To meet minimum staffing levels, each platoon is composed of one Platoon
Commander, three firefighter/paramedics at Station 1, two firefighter/paramedics at
Station 2, and two firefighter/paramedics at Station 3, for a total of eight firefighter
positions. Multiplying each of these positions by the staffing factor (1.34) yields the
number of firefighters needed to provide adequate shift coverage. The following table
depicts a staffing factor calculation for the existing 8-person minimum staffing level.
Table3:CurrentDeploymentStaffingFactor,2015
8-person Minimum Staffing
Platoon Commander
Total Firefighters
Shift
1
3
2
2
Staffing Factor
1.34
4.02
2.68
2.68
Coverage
1
4
3
3
10.72
11
Applying the staffing factor to the current minimum staffing level indicates that 11
firefighters (including the Platoon Commander) are needed to adequately cover each
shift. This is the current number of firefighters allocated to each shift, which suggests
that the Troy Fire Departments current staffing model adequately meets the Citys
needs. The Department provides enough staff at each station and across each shift to
cover absences and does not over- or under-staff its platoons.
Staffing Alternative A
In order to explore how many full-time personnel would be needed to achieve target
staffing of 12 persons per shift, the staffing factor was applied to a new, hypothetical
shift arrangement. Because Station 1 handles the largest volume of calls, an additional
two firefighters would be assigned to cover that station, while Stations 2 and 3 would
each receive an additional firefighter per shift. The addition of these four firefighter
positions raises the overall minimum number of firefighters per shift from eight to 12.
The previous staffing factor of 1.34 firefighters per position was applied to this shift
structure, and yielded coverage amounts as depicted in the table below.
Table4:Target12PersonMinimumFullTimeStaffingFactor,2015
12-person Minimum Staffing
Platoon Commander
Total
Shift
1
5
3
3
Staffing Factor
1.34
6.70
4.02
4.02
Coverage
1
7
4
4
12
16.08
16
Based on this staffing arrangement, the Troy Fire Department would need to modify
staffing coverage from 11 persons per shift to 16 persons per shift an increase of five
full-time firefighters for each shift, or 15 firefighters across all three shifts. The estimated
Page 10
City of Troy
cost of hiring all full-time firefighters to meet this staffing goal is approximately $93,333
per firefighter or $1.4 million per year, as the table below demonstrates.
Table5:AdditionalFullTimeStaffingCosts,20152019
Years
Additional Positions
2015
2016
2017
2018
2019
15.00
15.00
15.00
15.00
15.00
Total Compensation
Costs
$1,063,481.11
$1,221,108.02
$1,438,498.75
$1,505,420.97
$1,539,292.92
Total Ancillary
Costs
$81,081.00
$55,911.00
$24,055.80
$24,462.45
$24,881.25
Grand Total
$1,144,562.11
$1,277,019.02
$1,462,554.55
$1,529,883.42
$1,564,174.17
In the previous table, Total Compensation Costs includes base salary and holiday pay,
plus annual step increases and cost of living adjustments as articulated in the current
labor contract. Total Ancillary Costs includes drug screening, testing, training, and
personal protective equipment (PPE). The average annual compensation cost in this
scenario is $1.35 million per year, while the average for ancillary costs is approximately
$42,000 per year. Together, these average $1.4 million per year in additional expenses.
In contrast, the Departments 2014 Internal Staffing Analysis estimated 16 full-time
firefighters would be needed to achieve a target of 12 firefighters per shift, at an
estimated total annual cost of $1.5 million per year. The difference in costs is largely
attributable to the additional firefighter position outlined in the 2014 Internal Staffing
Analysis.
Staffing Alternative B
Rather than hire full-time firefighters, the 2014 Internal Staffing Analysis recommends
hiring 24 part-time firefighters in order to achieve expanded shift staffing levels. Under
this staffing alternative, the Department would maintain the existing 8-person minimum
staffing level with full-time firefighters, while reaching 12-person staffing using only parttime firefighters.
Because part-time employees do not receive the same benefits as full-time employees,
the staffing calculation changes. Part-time staff would be limited to 1,500 duty hours per
year in order to avoid certain ancillary costs, such as medical insurance premiums.
Given that the number of regular duty hours for a full-time firefighter is approximately
2,920 hours per year, two part-time positions would be required to cover each full-time
position. This means that each part-time employee is equal to half of a full-time
equivalent (FTE) position. Increasing current staffing from an 8-person minimum to 12
persons per shift requires four additional FTEs, or eight part-time employees. Across
three shifts, this results in a need for 24 part-time positions. This is consistent with the
Departments 2014 Internal Staffing Analysis.
Part-time employees would be eligible for regular cost of living increases but not step
increases or holiday pay, and the Department would not be required to purchase
multiple sets of PPE for part-time employees. Although the total number of employees
City of Troy
Page 11
hired in this scenario is greater than in Scenario A, these factors reduce the overall
costs of employing part-time firefighters, as illustrated in the table below.
Table6:AdditionalPartTimeStaffingCosts,20152019
Years
2015
2016
2017
2018
2019
24.00
24.00
24.00
24.00
24.00
Total Compensation Costs
Total Ancillary Costs
Grand Total
$514,800.00
$526,383.00
$538,226.62
$550,336.72
$562,719.29
$89,496.00
$5,760.00
$5,760.00
$5,760.00
$5,760.00
$604,296.00
$532,143.00
$543,986.62
$556,096.72
$568,479.29
The average annual cost for hiring this many part-time firefighters is approximately
$23,700 per firefighter, for a total of approximately $561,000 per year. Drug testing and
PPE costs are assumed to be front-loaded in Year 1. The average annual
compensation cost in this scenario is approximately $538,500 per year, while the
average for ancillary costs is approximately $22,500 per year.
The Departments 2014 Internal Staffing Analysis suggested average annual wage
costs of $510,000 and one-time PPE costs of $80,760 under this scenario. TNCG
assumed part-time employees would receive annual cost of living increases and also
factored drug screening costs for part-time employees into its analysis, which accounts
for much of the discrepancy in cost estimates.


Page 12
City of Troy
Frontline Firefighter Staffing Conclusions

The Fire Departments 2014 Internal Staffing Analysis and cost estimates for front-line
firefighter positions are accurate, and the methodology appears to be sound. Part-time
firefighters would be the most cost-effective approach to achieving 12-person staffing,
should the City elect to pursue that staffing level. The following compares the estimated
costs of staffing scenarios discussed above.
Table7:StaffingCostComparison
Staffing Alternative
Department
Internal
Analysis
TNCG Analysis
Difference
Staffing Alternative A:
12-Person Target
Staffing with FullTime Firefighters
Only
Requires 16
additional fulltime firefighters
at a cost of $1.5
million per year.
Requires 15
additional full-time
firefighters at a
cost of $1.4
million per year.
TNCG Staffing Factor analysis of

2014 data indicates need for one less
firefighter. Results in an annual cost
reduction of $104,000.
Staffing Alternative B:
12-Person Target
Staffing with FullTime and Part-time
Firefighters
Requires 24 parttime firefighters

at a cost of
$532,500 per
year.
Requires 24 parttime firefighters at

a cost of
$561,000 per
year.
TNCG analysis reflects same parttime staffing need as Department's

internal analysis but includes annual
cost of living increases and drug
screening/hiring costs. Results in a
difference of $29,000 per year.
Differences in cost projections are minor and the result of the more detailed
methodology used by The Novak Consulting Group. The 2014 Internal Analysis slightly
overestimates the number of full-time firefighters needed to achieve target staffing
goals, and slightly underestimates the costs of part-time firefighters, which results in the
cost differences described above. On the whole, the conclusions in this report are
consistent with those outlined in the 2014 Internal Staffing Analysis: the Troy Fire
Department is not understaffed to meet its existing service level obligations, and in the
event the City wishes to increase staffing in the Fire Department, part-time firefighters
are a more cost-effective approach.
In the course of performing the comparative staffing analysis described above, other
needs were identified with respect to the Fire Departments command structure and
operations, as discussed in the next section.

City of Troy
Page 13
Command and Staffing

The Departments 2014 Internal Staffing Analysis did not address additional
administrative and supervisory obligations associated with increasing shift staffing
levels, particularly with respect to adding a significant number of part-time employees.
Increasing staffing through the addition of part-time firefighters will not only increase the
fire scene command responsibilities but increase the administrative burden (scheduling,
training, etc.) that Department command personnel must absorb. The Departments
current command structure is not sufficient to take on this additional burden.
The following chart depicts the current command staff structure.
Fire Chief

Prevention/Inspection
Firefighter/EMT-P
Prevention
Firefighter/EMT-P
Inspection
Secretary

Suppression/EMS
Platoon Commander
Shift 1
Platoon Commander
Shift 2
Platoon Commander
Shift 3
Firefighter/EMT-P
10 Positions
Firefighter/EMT-P
10 Positions
Firefighter/EMT-P
10 Positions
Figure3:CurrentCommandStaffStructure
Currently, two Assistant Chiefs split administrative duties, with one Assistant Chief
assigned to the Prevention/Inspection Bureau facilitating prevention/inspection activities
and supervising two administrative firefighter positions. These firefighters work regular
40-hour weeks. The second Assistant Chief is assigned to oversee Fire/EMS shift
operations. The Assistant Chiefs provide coverage for each other in the event of leave
or other absences.
Platoon Commanders are responsible for overseeing and supervising the day-to-day
activities of the firefighters under their command, including scheduling, training, and
responding to incidents. Platoon Commanders currently have a span of control ratio of
1:7 under minimum staffing scenarios, meaning on a typical day they are directly
supervising seven firefighters on a given shift. This ratio may be lower during the 40hour work week, as the Fire/EMS Operations Assistant Chief oversees the shift as well.
Span of control may be higher from day to day depending on leave usage and available
shift coverage. If every platoon firefighter is available for duty on a shift, the platoon
commanders have a supervisory ratio of 1:10.
Page 14
City of Troy
According to the Federal Emergency Management Agency (FEMA) National Incident

Management System (NIMS) guidelines, a typical incident command structure will have
a span of control ranging from 1:3 1:7, with 1:5 being optimal. The Troy Fire
Department, on average, operates with a daily shift ratio of between 1:3.5 (Operations
Assistant Chief and Platoon Commander overseeing seven Firefighters) and 1:10
(Platoon Commander supervising 10 Firefighters). In addition, during peak workload
periods, the other Assistant Chief and the Fire Chief are available to take on additional
supervisory and command duties if necessary. Based on those ratios, the Troy Fire
Department is functioning within the FEMA thresholds and TNCG did not observe
deficiencies to justify additional supervisory personnel under the current minimum
staffing goals. However, while the Department operates effectively under the current
command system, the addition of significant numbers of new hires would require greater
administrative and supervisory oversight, and, thus, necessitate additional supervisory
staff.
RECOMMENDATION 1: Modify the organizational structure to provide an appropriate
commandstructureforadditionalparttimehires.
Step 1: If (and only if) additional front line staff is added, the Department should first
proactively address the organizational structure in order to ensure there is sufficient
supervisory control to appropriately accommodate additional firefighter personnel.
These adjustments will require a two-step process. First, the Department should alter its
command and supervision structure to improve span of control at the administrative and
shift levels and adequately take on the additional duties associated with hiring and
training part-time employees. Second, the Department should begin increasing service
levels by phasing part-time firefighter hires, beginning with an initial hiring phase of six
part-time firefighters. This will allow the Department to increase staffing by one
firefighter per shift.
With respect to command structure, the Department should change existing
relationships both in its administrative staff and in shift command staff. Rather than split
administrative capacity between two Assistant Chiefs reporting to a Fire Chief, the
Assistant Chief positions should be eliminated and replaced with a full-time, second-incommand Deputy Chief. This position will report directly to the Fire Chief and serve as
an intermediary between the Fire Chief and Platoon Commanders.
Under this scenario, the Deputy Chief will effectively assume the responsibilities of both
Assistant Chiefs while delegating work as appropriate to the Platoon Commanders and
Lieutenants under his/her command. These responsibilities include:
Coordinating the Fire Departments hiring efforts.

Managing and overseeing fire prevention and planning activities.
Tracking and evaluating performance measures, such as call data, response
times, and the number of units responding to incidents.
Reporting on the Departments performance and services.
City of Troy
Page 15
Assigning responsibilities for training, apparatus and fleet maintenance, facilities

maintenance, planning, public outreach, and development review to Lieutenants
as appropriate.
Rotating functional duties of Lieutenants to provide professional development
experience.
Providing additional on-scene command capacity in the event of a structure fire.
The Department should also eliminate one of the existing 40-hour Inspector positions
and create five new Lieutenant positions. Three of the new Lieutenants should report to
Platoon Commanders on shifts, and two Lieutenants will serve in a 40-hour per week
administrative capacity. These changes are intended to help the Department absorb the
additional workload demands of larger platoons. If the City decides to refrain from
increasing the current shift size, hiring Lieutenants will not be necessary.
The shift Lieutenants will report to Platoon Commanders and provide additional
administrative and fire scene capacity on individual shifts. Lieutenants will assist
Platoon Commanders with certain responsibilities and shift operations, including:
Supervising Station 1, allowing the Platoon Commander more leverage to

supervise outlying stations more closely and provide additional platoon direction.
Scheduling staff and accommodating leave and other absences as required.
Creating daily workload schedules for their shifts in order to appropriately
address apparatus and fire station maintenance and upkeep needs.
Setting training goals and scheduling training sessions on a regular basis.
Assisting Platoon Commanders with command operations at fire scenes.
Coordinating with Platoon Commanders to ensure quality and appropriate
performance by front line staff, and taking disciplinary action when necessary.
Motivating front-line firefighters and communicating staff concerns to the Platoon
Commander.
The administrative Lieutenants should be divided into two positions: one Lieutenant will
be responsible for safety and prevention activities (through the upgrade of a current
Firefighter in the Inspection bureau), and the second will be responsible for training
(through the downgrade of one of the Assistant Chief positions). Both administrative
Lieutenants will work a regular 40-hour week during typical business hours. This will
make the Lieutenants available to assist whatever shift is currently on duty that day and
provides for easier interactions with outside organizations/entities on plan review and
inspections activities.
Importantly, the Safety and Prevention Lieutenant will also be responsible for
supervising the remaining 40-hour Inspector position. Together, the Inspector and
Safety Lieutenant will handle the bulk of the Citys fire inspections, planning, permitting,
and prevention activities, with broad oversight and guidance from the Deputy Chief.
The Training Lieutenants responsibilities will primarily center on creating overall training
and readiness goals for the firefighters, as well as facilitating firefighter access to
Page 16
City of Troy
training programs and ensuring performance goals are met. This Lieutenant will be
responsible for coordinating with the Deputy Chief to set overall Departmental training
goals and to track compliance, while working with Platoon Commanders to schedule
and perform specific trainings.
The goal of restructuring command staff in this fashion is twofold: it improves the span
of control for each shift by doubling the number of officers who can engage in command
and control activities, and it restructures the Departments administrative staff to provide
additional capacity and a more direct chain-of-command from supervisors to the Chief.
This proposed organizational structure is illustrated in the following figure.
Fire Chief
Lieutenant
Safety and Prevention
Secretary
Deputy Fire Chief
Lieutenant
Training
Platoon Commander
Shift 1
Platoon Commander
Shift 2
Platoon Commander
Shift 3
Lieutenant
Shift 1
Lieutenant
Shift 2
Lieutenant
Shift 3
Firefighter/EMT-P
10 Positions
Firefighter/EMT-P
10 Positions
Firefighter/EMT-P
10 Positions
Part-Time
Firefighter/EMT-P
2 Positions
Part-Time
Firefighter/EMT-P
2 Positions
Part-Time
Firefighter/EMT-P
2 Positions
Firefighter/EMT-P
Inspection
Figure4:ProposedCommandStaffStructure
To make these adjustments, the current Assistant Chief should be promoted to Deputy
Chief (note: one Assistant Chief position is currently vacant due to recent promotion to
Fire Chief), and a selection process should begin to fill the new Lieutenant positions.
The Lieutenants should operate under a separately negotiated contract in order to
minimize overlap between their command positions and the Platoon Commanders. The
estimated cost of providing these positions is approximately $380,000 over current
administrative spending, as shown in the table below.

City of Troy
Page 17
Table8:CommandStaffStructureCostComparison
CurrentPositions
FireChief
AssistantChief
CurrentSalariesSubtotal
ProposedPositions
FireChief
DeputyChief
Lieutenants
ProposedSalariesSubtotal
AdditionalAnnual
Estimated
Salaries
$112,570
$102,760
$215,330
Estimated
Salaries
$112,570
$107,665
$71,972
$292,207
#
Positions
1.00
2.00
3.00
#
Positions
1.00
1.00
5.00
7.00
TotalBase
Benefits TotalCompensation
Salary
Factor
Costs
$112,570
145%
$163,226
$205,520
145%
$298,004
$318,090
145%
$461,231
TotalBase
Benefits TotalCompensation
Salary
Factor
Costs
$112,570
145%
$163,227
$107,665
145%
$156,114
$359,860
145%
$521,797
$580,095
145%
$841,137
$379,906
The estimated salaries shown above represent the top salary for that position as
authorized by the City of Troys 2015 salary ordinance. The top salary for the proposed
Lieutenant position was computed by adding 7% to the current top-level pay for a 1st
Class Firefighter, Step 2. This results in an annual salary that falls between top
firefighters and Platoon Commanders.
Restructuring the Departments Command positions allows for broader organizational
management from the Deputy Chief. Hiring Lieutenants creates additional
administrative capacity for prevention, planning, training, and professional development
needs, as well as augments the Platoon Commanders capabilities on each shift.
Creating these new positions and reallocating functional responsibilities within the
command structure will take a significant investment of time and resources, and both
the City and Firefighters Union will need to work together to effectively adopt these
changes. If the process of change is successfully shepherded, the restructured
command positions will positively impact the Departments service provision and overall
efficiency.
Step 2: After changing the Departments command structure, the Department should
begin to phase in the addition of part-time firefighter staff. A phased approach will
provide the Department with more flexibility than hiring 24 part-time firefighters outright.
Introducing so many new firefighters at one time presents a significant expense and is
also likely to disrupt cohesion among existing shift staff. The cultural pressures of
getting to know and accommodate new recruits will compound the stresses experienced
by tenured staff who also weather a change in command structure. Care will need to be
taken to ensure the pace of change in the Department does not overwhelm tenured
firefighters and new command officers.
It is therefore recommended that the City hire 12 part-time firefighters in the first year of
implementation, in two phases of six firefighters each. This will serve as an initial test
phase of increasing staffing levels using part-time personnel. If the hiring and
assimilation process proves to be successful, the City may wish to add an additional six
Page 18
City of Troy
part-time firefighters in future years.1 Phasing hires in this fashion will allow new staff to
acclimate to the Departments existing culture and practices, reduce disruption to
existing staff, and further reduce up-front costs.
Under this scenario, the Department would assign each shift two part-time firefighters to
provide additional coverage. This will increase available minimum staffing from eight
firefighters per shift to nine firefighters per shift, with part-time firefighters working less
than 1,500 hours per year.
As shown in following table, this phased approach lowers average annual costs for parttime firefighters to approximately $140,250 per year over five years a significant cost
savings in year one over hiring a full complement of 24 part-time firefighters. This will
also allow the Department to evaluate the part-time staffing program make adjustment,
or terminate the program if deemed appropriate.
Table9:PhasedPartTimeStaffingCosts,20152019
Years
2015
2016
2017
2018
2019
Total Compensation Costs
Total Ancillary Costs
Grand Total
6.00
6.00
6.00
6.00
6.00
$128,700.00
$131,595.75
$134,556.65
$137,584.18
$140,679.82
$22,374.00
$1,440.00
$1,440.00
$1,440.00
$1,440.00
$151,074.00
$133,035.75
$135,996.65
$139,024.18
$142,119.82
The average total compensation costs for six part-time firefighter positions is
approximately $135,000 per year, while the average ancillary costs are approximately
$5,600 per year. As in the other staffing scenarios, ancillary costs are likely to be frontloaded in Year 1 when equipment is purchased with new hires.
The phased approach presents a way to begin offering higher levels of service at the
lowest possible cost, and with minimal risk to the Departments existing practices. If
service demands increase in future years and the Department seeks additional
personnel.
As part-time staff are hired, the Department should closely monitor the tenure of its parttime employees, the amount of time and expense involved in hiring them, the quality of
the applicant pool, the ease of recruitment, and their performance relative to other fulltime firefighters. These variables will enable command staff to make more informed
decisions about the relative effectiveness of increasing service levels with part-time
firefighters, and whether the City should continue to increase the number of part-time
firefighters in future years.
Thetotalstaffingtargetrequiredtomeeta12firefighterpershifttargetis12FTE.Eachfirefighteramountsto0.5FTE;asa
result,24parttimefirefighterswouldberequiredtomeetthistarget.However,theaforementionedrecommendationsalso
includerecommendationstoaddthreeadditionalshiftlieutenants.Asaresult,only18parttimefirefightersareneededto
meetthetargetof12firefighterspershift.

City of Troy
Page 19
Shift Schedule Alternatives

In an effort to more fully understand and evaluate the impact of the Troy Fire
Departments current schedule on staffing levels, TNCG examined the impact of
alternative scheduling arrangements on staff availability. Both 10/14 and 12/12
schedules were compared to the Departments existing 24/48 schedule.
Under a 10/14 schedule, a 24-hour period is divided into one 10-hour shift and one 14hour shift. Rotation periods for a 10/14 schedule commonly consist of rotating two 10hour shifts and two 14-hour shifts, or working two 10-hour days, followed by two 14-hour
days, followed by four days off. A 12/12 schedule divides a 24-hour period into two
shifts, usually divided into day and night shifts. Jurisdictions across the country use both
schemes in a variety of shift combinations to maximize staffing efficiency while
achieving compliance with local and Federal labor laws.
In the case of Troys Fire Department, each scheduling alternative requires the same
number of platoons and the same weekly hour coverage as the existing 24/48 schedule.
Changing the shift schedules themselves from a 24/48 to a 10/14 or a 12/12 does not
appreciably impact the availability of the Departments staff or its overall staffing
requirements. Additionally, shorter shift schedules involve firefighters rotating between
day and night shifts and occasionally working a day and a night shift back to back. This
makes shorter shift schedules unpalatable unless other staffing adjustments are made,
which usually increase the Departments staffing factor and make the schedule less
efficient.
Adjustments to the Departments existing shift schedule may be necessary (and would
have the greatest impact) if high EMS utilization rates lead to potential burnout over a
24-hour shift, or if overtime expenses associated with meeting minimum staffing
requirements increase dramatically. As discussed above, the Fire Departments EMS
utilization rate in 2014 was 7.75%, which is well below the accepted threshold of 30%
for evaluating burnout and is insufficient to justify a shift schedule change.
The Department also performs acceptably with respect to overtime spending. In 2014,
short-shift overtime totaled 2,912 hours at a cost of $118,865. This is significantly less
than the cost of hiring additional staff to prevent overtime from being taken. To impact
overtime, the City would have to hire one additional firefighter per shift, at a cost of
nearly $300,000. Therefore, overtime usage is also not sufficient to justify a shift
schedule change.
Based on these calculations, the Departments existing schedule configuration is
appropriate, and no change in shift arrangements is necessary. Should these factors
change in the future, the Department may wish to re-evaluate whether changing shift
schedules would benefit service delivery and staffing levels.

Page 20
City of Troy
ISO Standards
Improving the City of Troys ISO rating was an ancillary goal of the 2014 Internal
Staffing Analysis, which projected improvements to the Citys ISO score if target
minimum staffing is increased. However, the impact of additional front-line staff on the
Citys ISO rating is likely to be less substantial than indicated in the 2014 Internal
Staffing Analysis. The Fire Department itself is responsible for approximately 50% of the
available points when determining the Citys overall ISO score. Other factors include
emergency communications and water supply, over which the Fire Department has little
or no control.
Per its last ISO evaluation, the City barely achieved an ISO rating of 4. This means that
in order to improve its ISO score, the City will need to make significant strides in several
ISO scoring areas. ISO grades fire departments across a wide range of activities,
including staffing, training, and documentation. TNCG applied projected staffing
numbers from the 2014 Internal Analysis to the ISO formulas utilized in the Citys latest
ISO report. This analysis concluded that increasing staffing to a target minimum of 12
firefighters per shift would have a limited impact on the Citys overall ISO rating,
particularly given that the ISO scoring system has changed.
These changes include:
Reduced emphasis on the number of engine/ladder companies.

Increased emphasis on deployment analysis, as an alternative to the old
distance/station standard.
Increased emphasis on response time and performance and additional credit for
those activities.
Credits for community risk reduction efforts.
The number of hours of training required to get credit is reduced BUT the
threshold for documentation and quality is higher.
Notably, under the new ISO methodology, documentation and verification of training
efforts for fire departments is much more important than under the previous
methodology. While a fire departments staffing level is still a component of the ISO
score, other components, such as training efforts, a deployment analysis, and improving
response times account for significant portions of the overall ISO rating. Additionally,
implementing automatic/mutual aid agreements and demonstrating their use will also
contribute to a higher ISO rating under the new system. Focusing efforts on these areas
will likely allow the Department to improve its ISO rating more readily than by simply
increasing staffing.
Future policy decisions using ISO as a foundation should anticipate the new scoring
standards, rather than using previous ISO scores and reports as a model. The Fire
Department should continually evaluate its performance measurement practices in light
of the revised ISO scoring standards. The City should also verify that ISO is
categorizing the Fire Department appropriately as a fire department, not a fire district.
City of Troy
Page 21
While ISO is an important standard and the Department appropriately utilizes it to gauge
its current service delivery, insurance benefits from an improved ISO rating may or may
not have significant financial impacts on the City and its residents. Not all insurers rely
on ISO standards in order to compute insurance rates, and so improvements in scoring
will only impact residents who carry insurance through companies that recognize the
ISO system.
Rather than simply reducing insurance rates, an improved ISO score is likely to have
the greatest impact in terms of reducing fire loss and improving performance with
respect to containing fires to the room of origin. As a result, the ISO system provides a
good basis for improving the Departments service level and overall efficiency, which
may or may not impact actual insurance rates.
Diversity Recruitment
The Troy Fire Department has expressed an interest in improving diversity recruitment
practices, and in attracting more female and minority recruits to the Fire service. This is
particularly important given the Departments interest in potentially expanding shift
staffing; moving forward with hiring a significant number of front-line staff presents a
prime opportunity to implement new recruitment practices designed to engage and
attract diverse applicants.
RECOMMENDATION 2: Validate internal agility tests and utilize International Association of
Fire Fighters (IAFF) and International Association of Fire Chiefs (IAFC) recruitment practices
thatemphasizediversity.
The Department has historically relied on internal testing practices for firefighter recruits,
including an in-house agility test. Rather than utilizing an internally developed test, the
Candidate Physical Ability Test (CPAT), jointly developed by IAFC and IAFF, would
serve as a useful benchmark for validating the Troy Fire Departments internal agility
test.
The Department may also be able to rely on a regional testing consortium, such as the
Miami Valley Fire/EMS Alliance, for external validation services. Additionally, the
Department may also change testing methods from the standard written test/physical
ability model to a model that employs a written test followed by an oral exam, leaving
physical training for the training academy. This approach has been implemented by
cities such as Memphis, TN and Kansas City, MO with some success.2
The IAFC identifies recruiting and testing processes as the most effective ways to
increase workforce diversity. Recruitment efforts should be community-based and utilize
community institutions, such as churches and local agencies.
2
Source:http://www.iafc.org/onScene/article.cfm?ItemNumber=6712

Page 22
City of Troy
The value of recruiting a pool of diverse part-time employees is that they become an
excellent source of candidates for full-time fire service. Hiring part-time firefighters gives
the Department an opportunity to evaluate the firefighters work ethic, cultural fit, skill
quality, performance, and other interpersonal skills. It is our understanding that the
Citys legal staff has found alternative ways to give preference to part-time applicants in
the full-time hiring process in order to allow the Department to recruit known, trained,
qualified full-time firefighter candidates from its existing part-time pool. Within the realm
of management rights, the City should explore all ways to provide such preference.
By adapting its recruitment and testing practices, the Troy Fire Department can help to
ensure that minority candidates who would make excellent firefighters are not turned
away due to subconscious or institutional barriers that may exist in some forms of
testing. Utilizing industry best practices will help to increase the spread and reach of the
Departments recruiting efforts, while taking applicants through certified testing
programs will help to ensure all candidates are testing under appropriate standards.
The Troy Fire Department should utilize its recruitment efforts as a way to engage all
demographics in the Troy community and publicize information about the services the
Department provides every day. By actively seeking out, welcoming, and shepherding
minority candidates through the selection process, the Department can help to ensure
that it reflects the makeup of the wider community.
Conclusion
Overall, The Novak Consulting Groups Analysis is consistent with the Departments
2014 Internal Staffing Analysis. Utilizing part-time firefighters to achieve staffing of 12
persons per shift is the most cost-effective approach, requiring an additional 24 parttime firefighters at an estimated annual cost of $561,000. However, a phased approach
consisting of the addition of six part-time firefighters each in two hiring phases will allow
the Department to attain service gains while still allowing for the real-time evaluation of
the part-time firefighter program. Each six part-time firefighters will cost approximately
$140,250 per year.
Restructuring command positions prior to adding new shift staff will help to increase
efficiencies in the existing platoon structure and create capacity for additional front-line
staff. Increasing command staffing from 1 FTE per shift to 2 FTE per shift, by adding
shift Lieutenants to the 24/48 fire suppression shifts, will provide the necessary capacity
to supervise and manage the additional administrative duties associated with managing
part-time personnel. In addition, converting one Assistant Chief to an administrative
Lieutenant position, as well as converting a fire inspector position into a Lieutenant
position will further strengthen the Departments ability to augment training and manage
part-time employee scheduling, training, recruitment, and retention. The estimated cost
impact of restructuring the Departments command positions is approximately $380,000
per year.
City of Troy
Page 23
Should the Department adopt the staffing recommendations above, estimated annual
costs total approximately $520,250 per year. This cost estimate assumes the cost of
amending the command structure and adding twelve part time firefighters in two six staff
increments. If the Department fully implements the amended command structure and
adds a total of 18 part-time firefighters, the total cost will be approximately $800,750.
These changes also allow the Department to create greater efficiencies in existing
operations and more effectively position the Department for future growth. The Troy Fire
Department will have increased administrative capacity, a dedicated position
responsible for training and education requirements, clear and distinct supervisory roles
in each platoon, and increased staffing and service levels across all platoons.
Under this framework, the Troy Fire Department can continue to provide exceptional,
expanded service and adapt more effectively to staffing and service needs that arise in
the future.


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City of Troy

Part-Time Firefighter Staffing Analysis

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The Novak Consulting Group

May 13, 2015

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The Novak Consulting Group

The Novak Consulting Group

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The Novak Consulting Group

The Novak Consulting Group

Station 3 is located at Interstate 75 and 40 S. Stanfield Rd. The station houses

Minimum per Shift

Maximum per Shift

Total Department staffing consists of 33 firefighters on shift. The Department also

Assistant Fire Chief

Assistant Fire Chief

$4,415,750 $4,607,685 $4,523,861 $5,437,970 $5,158,734

The Novak Consulting Group

The Novak Consulting Group

Analysis and Recommendations

While the command structure is adequate to provide appropriate supervision of

Hiring, training, apparatus, fleet maintenance management, and administrative

Requires 24 part-time firefighters at a cost of

Current Deployment Model The number of full-time firefighters needed to

The Novak Consulting Group

Current Deployment Model

Total Compensation Costs

Total Ancillary Costs

The Novak Consulting Group

Frontline Firefighter Staffing Conclusions

TNCG Staffing Factor analysis of

Requires 24 parttime firefighters

Requires 24 parttime firefighters at

TNCG analysis reflects same parttime staffing need as Department's

The Novak Consulting Group

Command and Staffing

Assistant Fire Chief

Assistant Fire Chief

According to the Federal Emergency Management Agency (FEMA) National Incident

Coordinating the Fire Departments hiring efforts.

Assigning responsibilities for training, apparatus and fleet maintenance, facilities

Supervising Station 1, allowing the Platoon Commander more leverage to

Deputy Fire Chief

The Novak Consulting Group

Total Compensation Costs

Total Ancillary Costs

The Novak Consulting Group

Shift Schedule Alternatives

Reduced emphasis on the number of engine/ladder companies.

The Novak Consulting Group

The Novak Consulting Group

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