HomeMy WebLinkAboutCOM 0733.000 2020-2022 3 County of Hawaii
Office of the County Auditor
County Auditor 120 Pauahi St., 309
County of Hawaii Hilo, HI 96720
Office of the County Auditor F 808.961.8905
Ph 808.961.8386
March 21, 2022
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Honorable Maile Mederios David, Council Chair ��
and Members of the Hawaii County Council
Hawai'i County Council o�
25 Aupuni Street
Hilo, Hawaii 96720
Dear Chair David and Council Members,
In accordance with generally accepted government auditing standards and the Hawai'i
County Charter Section 3-18(d)(2), the Office of the County Auditor conducts or causes
to be conducted: Performance and/or financial audits of the funds, programs, services,
and operations of any county agency, executive agency, or program, as set forth by the
county auditor in an annual audit plan that shall be transmitted to the county council and
the mayor and filed with the county clerk as a public record.
We have completed our performance audit of the Hawaii Fire Department (HFD) Report
No. 2022-02. The objective of this audit was to determine if HFD was providing services
in an economical efficient and effective manner, and whether goals and objectives were
being achieved.
Observations and evidence concluded while the department generally delivers an
adequate "all-hazards" response to fires, medical emergencies, rescues, hazardous
material incidents, natural and manmade disasters, it is subjecting itself and by extension
the public, to undue risk, because it lacks the fundamental building blocks necessary to
support best practices.
We reviewed the Hawaii Fire Department 2015-2020 Strategic Plan. While many small
achievements were accomplished early, most were never acted upon, or dissolved over
time. We attribute the failure primarily to the inability to secure plan resources prior to
identifying the department's needs and the lack of a master plan.
Additionally, we identified both deficiencies and opportunities, which led us to make a
total of thirteen (13) recommendations.
Comm. N
Hawaii County is an Equal Opportunity Provider and Employer Ref.To: C
Ref. Date A 4 2022
In response to a draft of this report, the Fire Chief expressed general agreement with our
audit results. A copy of management's complete response can be found at the end of this
report.
We would like to express our sincere appreciation for the Hawaii Fire Department
unrestricted access to sites, information, personnel, and coordination throughout the
audit. The cooperation was exceptional.
If you have any questions or concerns about the status of findings and recommendations
discussed, please feel free to contact me at 961-8386.
Respectfully,
i bmw
Co my Auditor
County of Hawaii
cc: Mitchell Roth, Mayor
Lee Lord, Managing Director
Jon Henricks, County Clerk
Fire Commission Board
Todd Kazuo, Fire Chief
Eric Moller, Deputy Fire Chief
Deanna Sako, Finance Director
Fire Commission
Robert Lee, President, Hawaii Fire Fighters Association
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Report No. 2022-02
March 21 , 2022
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Table of Contents
ExecutiveSummary.................................................................................1
AboutUs.................................................................................................5
Chapter 1 Introduction..................................................................6
Objective
Scope and Methodology
Chapter 2 Organization................................................................8
Background
Organizational Chart
Demand for Services
Chapter 3 Strategic Plan Overview................................................14
Chapter 4 Assessment and Planning ............................................17
Chapter 5 Essential Resources ......................................................20
Vehicles
Facilities
Staffing
Chapter 6 Financial Resources ....................................................41
Chapter 7 Governance and Administration....................................47
Chapter 8 Human Resources..........................................................49
Chapter 9 Training and Competency..............................................52
Chapter 10 Waste, Fraud, and Abuse.............................................55
Conclusion.................................................................................56
Chapter 11 Management Response..............................................58
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Executive Summary
Background
The purpose of the audit was to determine if services are being provided: effectively, efficiently,
comply with relevant governance, and whether resources in their current allocations, contribute
or limit program success. To achieve our objective, we reviewed the Hawaii Fire Department
2015— 2020 Strategic Plan.
We determined the number of projects in the strategic plan could not be reasonably obtained in
the plan timeline. As a result, the plan largely devolved into a wish list of whatever could be
salvaged rather than a unidirectional improvement tool.
Based on the audit's objectives and the evaluation of various performance categories, we made
thirteen recommendations as follows:
We make the following recommendations
General
1. We recommend HFD develop a master plan.
• A master plan may require a third-party consultant.
Accreditation
2. We recommend HFD work toward CFAI accreditation as reported in their Hawaii Fire
Department Strategic Plan 2015-2020.
Vehicles
3. We recommend HFD develop and implement a comprehensive vehicle profile for each of
its apparatus.
4. We further recommend HFD develop and implement a maintenance and replacement
plan to ensure safe and cost-effective operations based on evidence. The plan should
include the following:
• Establish a comprehensive vehicle list
• Track age, mileage, and condition
• Determine which vehicles are appropriate for what terrain
• Establishing replacement targets (age, mileage, lifetime maintenance costs,
class of vehicle, etc.)
• Regular inspection of high-risk vehicles'
• Assign apparatus from high volume stations to low volume stations to extend the
useable life
1 �
Facilities
5. We recommend HFD work with its Fire Captains to develop a system to compile and
maintain a master list of work order items.
Where appropriate, HFD should leverage its economy of scale into CIP projects, including
but not limited to:
• Central A/C installs
• Roof repairs
• Overhead door repairs
• Exhaust systems
• Generator installs
• Review lease agreements to verify landlord obligations regarding facilities
maintenance.
Staffing
6. We recommend HFD pilot a relief pool program to control overtime expenditures while
better meeting NFPA Standards.
7. We further recommend HFD follow and enforce internal controls to limit rank-for-rank
overtime to ninety-six hours for each quadrimester.
8. We further recommend HFD follow and enforce the non-emergency overtime policy.
Financial
9. We recommend HFD develop budgeting benchmarks to assist county management's
understanding of budget requests.
Deployment
10. We recommend HFD evaluate its volunteer program to:
• Enhance the incentive for participation
• Develop organizational structure and support roles
• Invest into volunteer infrastructure and training, especially those servicing rural
communities who often represent the first line of defense.
Training
11.We recommend HFD earmark a set number of training hours annually for each employee
based on their position title and training needed to maintain proficiency.
12. We further recommend HFD develop a tracking mechanism to measure:
• Participation
• Certifications held
• Renewal dates
21
Waste, Fraud, Abuse
13. We recommend HFD work with other departments to revise the County's Vehicle Use
Policy, specifically refueling, to include provisions for electrically powered vehicles.
Conclusions
When our recommendations are implemented, in good faith, the department can expect the
following benefits:
General
1. The implementation of a master plan will help HFD establish a long-term vision. Adherence to
the schedule can turn HFD's visions into reality.
Accreditation
2. Pursing accreditation will serve as the foundational building block to help HFD meet the
department's performance, mission, and public expectations.
Vehicles
3. A vehicle profile will give HFD data on every vehicle and help them to understand the age,
condition, and input costs associated with maintenance of it's fleet.
4. Vehicle replacement targets will help HFD better understand when it is no longer cost-effective
to maintain vehicles while providing budget justification.
Facilities
5. A master list of facility needs will help HFD gain a holistic understanding of what is broken,
what is breaking, and how long it is taking to fix things. HFD can prioritize projects and leverage
similar items into more cost-effective repairs.
Staffing
6. A relief pool will provide HFD with a more flexible staffing model to help balance the everyday
needs of the department with the fluctuations that are incurred as a result of callouts.
7. Enforcement of the HFD's internal controls will require management to take a more assertive
role in the approval process related to delegated overtime.
8. Enforcement of HFD's existing non-emergency overtime policy will drive costs down by
reducing instances of overtime.
Financial
9. Using fair and consistent analysis provides decision-makers with assurance that funding is
approriately supported by evidence.
3 �
Human Resources
10. Updating all relevant documents governing HFD's operations will provide staff with assurance
that the administration is leading them by example and not just managing them through crisis.
Deployment
11. Managing HFD volunteer companies like an organization with structure, roles, and
expectations creates opportunities and engagement that can break the bonds of budget
constraints.
Training
12. Determining how many hours remain after accounting for sick, vacation, and training, will help
HFD plan for what staffing is needed to ensure no interruption in service.
Waste, Fraud, Abuse
13. Addressing the improper use of resources at County facilities, will build public trust.
We would like to express our sincere appreciation for the Hawaii Fire Departments unrestricted
access to sites, information, personnel, and coordination throughout the audit. The cooperation
was exceptional.
4 �
About us
Mission
It is our mission to serve the Council and citizens of Hawaii County by promoting accountability,
fiscal integrity, and openness in local government. Through performance and/or financial audits
of County agencies and programs, the Office of the County Auditor examines the use of public
funds, evaluates operations and activities, and provides findings and recommendations to elected
officials and citizens in an objective manner. Our work is intended to assist County government
in its management of public resources, delivery of public services, and stewardship of public trust.
Audit Authority
Hawaii County Charter §3-18 establishes an independent audit function within the Legislative
Branch through the Office of the County Auditor (OCA).
Purpose
The purpose of this audit is to determine if services are being provided effectively, efficiently,
and economically, comply with relevant governance, and whether resources in their current
allocations contribute or limit program success.
Performance Audit Definition
Performance audits provide objective analysis, findings, and conclusions to assist management
and those charged with governance and oversight with, among other things, improving program
performance and operations, reducing costs, facilitating decision making by parties responsible
for overseeing or initiating corrective action, and contributing to public accountability.
51
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Chapter 1
Introduction
Objectives
1. Is the Hawai'i Fire Department internal control system suitably designed and operating
effectively to ensure compliance with applicable laws, National Fire Protection
Association (NFPA) standards, and County policies and procedures?
2. Is the Hawai'i Fire Department internal control system suitably designed and operating
effectively to deliver an array of fire protection services adequately?
3. Evaluate key performance indicators such as demand for services, best practices,
public expectations, and outcomes to determine if current resources contribute or limit
department success? Has the department established adequate internal controls to
ensure applicable operational procedures were completed and adequately enforced?
Scope
The audit used trend data for a period ranging from FY2017 to FY2021. Demand for service data
ranged from January 2017 to December 2021. Single-year data considered FY2021. The audit
referenced HFD's 2015-2020 strategic plan. We reviewed Ocean Safety and Fire Inspections in
a limited capacity. The audit began in November of 2021 and concluded in March 2022.
Methodology
To accomplish our objectives, we:
• Traced performance outcomes achieved against the 2015 - 2020 strategic plan.
• Interviewed appropriate staff and management to assess their understanding of and
compliance with relevant internal controls, County policies and procedures, and
applicable standards.
• Reviewed applicable documents relating to operations.
• Developed an understanding of the department's internal control system, processes,
practices, and document flow.
• Reviewed the department's written policies and procedures.
• Observed monitoring and safeguarding practices.
• Conducted site visits.
• Noted any exceptions and identified opportunities/areas for improvements.
6 �
• Was mindful of potential fraud, waste, and abuse during the audit.
We conducted this performance audit in accordance with generally accepted government auditing
standards. Those standards require that we plan and perform the audit to obtain sufficient,
appropriate evidence to provide a reasonable basis for our findings and conclusions based on our
audit objectives. We believe the evidence obtained provides a reasonable basis for our findings
and conclusions based on our audit objectives.
Chapter 2
Organization
Background
The County of Hawaii Fire Department (HFD) has grown and evolved its workforce since
beginning operations in 1888 as a volunteer group of citizens who organized themselves into the
Hilo Volunteer Fire Department. HFD is an "all-hazards" department consisting of twenty career
and eighteen volunteer stations. All hazards mean the department responds to an array of
incidents whose categories include but are not limited to fire protection, rescue, hazmat, EMS and
Ocean Safety.
HFD has a workforce of approximately 570 individuals consisting of paid firefighters, volunteers,
administration, and specialty roles, covering a service area of 4,028 square miles and protecting
the lives and property of 200,528 residents.
When fire or EMS services can't or aren't administered correctly, people can perish, and property
is put at risk of destruction. Nationally, in 2020, direct fire damage was estimated to have caused
$ 21.9 billion in property damage and caused 3,500 civilian deaths. One hundred forty firefighter
fatalities were reported. Departments across the country are adapting to increasing volumes of
EMS calls and other threats, including increased natural disasters and acts of terrorism.
Consequently, decision-makers need tools to determine the optimal alignment of resources with
the service commitments required for the adequate protection of citizens.
Chapter 2
Hawaii Fire Department
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Stn061ionakaa Stn 145 Koh ala
Stn 10 Pahoa Stn 15 N Kohala
Stn 11 Kau Stn Ifs Waaikoloa
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9 � Page
The Fire Chief and administrative staff coordinate department resources and activities. The
department recognizes two distinct divisions, emergency operations and support services.
Emergency operations include eleven eastside fire stations (Battalion 1) and nine westside fire
stations (Battalion 2). Special Operations units also conducts search and rescue, hazardous
material response, and ocean safety. Ocean Safety exists independently from battalion
command. The stations respond to a full array of public emergencies, including fire suppression,
hazardous materials incidents, rescue operations, and emergency medical operations.
Support Services Division provides essential services to the public and emergency response
personnel that support the mission of HFD. They include the Fire Prevention Bureau, Training
Bureau, Emergency Medical Services Bureau, and the Auxiliary Services Bureau.
• Fire Prevention Bureau provides:
o Public fire education programs
o Inspections
o Investigations
o Maintains current codes
o Conducts plan reviews
• Training Bureau provides:
o Education
o Training
• Emergency Medical Services Bureau provides:
o Mobile advanced life support service
■ Definitive treatment of trauma and fall prevention assessment
■ Community paramedicine programs
• The Auxiliary Services Bureau consists of:
o Communications section
o Apparatus and equipment repair section
o The warehouse/logistics section
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Demand for Services
Over the last five years, HFD averaged 25,886 calls per year. Between the calendar years 2017
to 2021, approximately 70% of incidents HFD responded to were requests for emergency medical
services (EMS). Fire calls represented about 3.5% of the overall volume. Daily call volumes tend
to climb beginning at six am, peaking at the eleven to twelve o'clock hour, and remains steady
throughout the day, declining beginning about six pm.
Calls by Station by Type
StationName Assist EMS Exp False Fire Hazard Other Service Weather Total
Kailua 4535 11444 418203
313 295 69 3 15�r 537
Central Fire Station 2549 12371 4 233 360 110 2 1464 13 17106
Pahoa Fire Station 1999 9141 82 786 211 2 1138 7 13366
Haihai Fire Station 1166 8039 95 140 66 4 751 4 10265
Kea'ea Fire Station 1228 6609 1 81 433 77 1 500 4 8934
Hawaiian Paradise Park 1036 5748 2 82 460 91 615 2 8036
Waiakea Fire Station 1022 4490 1 64 156 44 4 392 3 6176
Kaumana Fire Station 647 4399 1 73 72 37 480 8 5717
Waimea 601 4151 3 112 141 43 1 303 � 5357
Keauhou 1016 3221 79 80 56 300 4752
Captain Cook 751 3141 73 141 79 366 4 4555
South Kohala 812 3244 3 123 116 25 138 2 4463
Ocean View 947 2753 1 16 406 31 282 1 4437
Makalei 903 2570 91 153 34 368 4119
Honoka'a Fire Station 421 2472 1 37 149 72 5 213 6 3376
Volcano 360 1820 1 41 105 23 165 1 2516
Waikoloa 307 1725 45 89 12 249 1 2428
North Kohala 278 1536 35 112 30 264 2257
Ka'u Fire Station Pahala 401 1358 39 237 47 168 2250
Laupahoehoe Fire Station 175 738 14 62 15 2 108 2 1116
1
Total 21154 90971 22 1728 4493 1172 24 9801 65 129430
Data Source:Provided by HFD Calls for Service 2017—2021.
EMS calls represent an ever-growing portion of the workload for HFD. EMS workloads should be
a primary consideration for long-term planning, and stations may need to regularly accommodate
multiple EMS vehicles and their personnel at a single station. HFD may also see an outsized
benefit of continuing to recruit employees who can serve the dual Fire/EMS roles.
121Page
Performance Self-Assessment
To gain understanding, we interviewed HFD management to determine how they perceived their
current level of performance. We asked 131 questions in seven categories. We corroborated with
management and determined ten do not apply to their operations. Of the remainder, management
determined they were incorporating approximately 41.3% of the performance measures into their
operations and were not achieving about 58.7%. We determined HFD was accurately reporting
their performance.
Self-Assessment Matrix
# Action Yes No N/A
1 Assess risks and develop long-range plans. a 8 1
2 Evaluate fire department performance and use resources cost-effectively 12 5 1
3 Promote public awareness of fire safety. 7 10 1
4 Ensure fire code enforcement. 6 7 3
5 Develop effective communications systems. 6 3 0
6 Prepare a competent work force and support safe operations. 11 22 2
7 Plan for on-scene responses.. 6 _16 2
50 71 10
1 Asess-i4:s and de,elop long-ra..
Evaluate fire oepa tment perform,.
romote public av a-eness of fire..
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5 Develop effect ve cornmunicatio...
6 prepay=a competent,,.-orkforce
Plan for o^-scene responses.
•Yes •No •N!A.
Source:Compiled Courtesy OCA
131 Page
Chapter 3
Strategic Plan Overview
In 2015, HFD produced the Hawaii Fire Department Strategic Plan (Plan) 2015-2020. While not
every item from the plan is addressed in our audit, we determined some deliverables identified in
the plan to be more critical to the successful operations of a prudently run department. The ten
key performance criteria include:
Performance Categories
1. Assessment and Planning
2. Essential Resources
3. External System Relations
4. Financial Resources
5. Goals and Objectives
6. Governance and Administration
7. Human Resources
8. Physical Resources
9. Planning
10. Training and Competency
Within the ten performance categories, HFD identified milestones and activities that it needed to
achieve to support the plan.
In total, the plan included 203
items that ranged from activities
as small as advocating for new
positions to as large as
completing major capital ,,_ K
improvement projects.
Significant accomplishments
included some of the proposed
capital projects, such as the
replacement of the Kawailani =
Station (completed), the
Combined Communications
Center (in progress), and the
aerial Chopper 2 replacement (in Picture Groundbreaking Combined Communications Center,2021
progress). Courtesy,Office of Management
141 Page
Initially, several policies were created which aligned with the plan. However, over time, most of
the items in the plan were not achieved, and some of the items that were initially developed were
not maintained. Some deliverables could not be substantiated.
Because the strategic plan was described as dynamic and subject to periodic review, failure to
implement an item in and of itself does not constitute a failure of the plan. We noted that current
HFD leadership had no ownership of the plan, and attestation relied on the current leadership's
familiarity with historical activity.
A master plan creates a vision and should encompass a ten-year timespan.
A strategic plan identifies a subset of items from the master plan that can be achieved in a much
shorter three-to-five-year time frame.
Masterplan Overview
Masterplans also referred to as growth management plans, match the current level of services
being provided with the anticipated growth of the communities they serve. In short, the masterplan
answers three questions:
• Where are we now?
• Where will we need to be in the future?
• How do we get there?
The plan life is expected to be relevant for ten years and, because of the complexity, usually
requires a third-party consultant. The masterplan assesses the current conditions, the
department, and the environment it operates in. Fire department masterplans often incorporate
Insurance Services Office (ISO) statistical and actuarial information to educate the department
and community of the risks they face because of the fire organization's distribution of resources
and fire service performance.
The sophistication of plans varies, but it is generally assumed agencies that service populations
greater than 100,000 residents will use more robust data capture methods. Elements of a
masterplan address a wide range of issues depending on the mission, where the department is
at, and what it still needs to accomplish.
This may include organization charts, procedures, recordkeeping, staffing, service delivery,
performance, training, and future delivery system models.
Master plans take time, planning, and resources. If the department does not possess the
internal skills or software to gather and analyze its own data, then it should expect to outsource.
We found simple plans ranging from $ 78,000 for a department the size of HFD with larger
masterplans costing approximately $ 144,000, including modules that address:
15 1
• Communications
• EMS support and oversight
• Hazmat support and response
• Technical rescue support and response
• Strategic plans to compliment the master
A masterplan can be finalized in as little 6 months from project initiation to completion.
An example masterplan can be found at:
https�//www modestogov com/DocumentCenterNiew/10867/Modesto-Fire-Department-Master-
Plan-Final-Report-PDF
Cause and Condition
Without a master plan, HFD's strategic plan loses its purpose, and the vision diminishes over
time.
Effect
Stakeholders who cannot clearly see the vision, do not understand why it is important.
Recommendation
We recommend HFD develop a master plan.
"If you fail to plan, you plan to fail."
Benjamin Franklin
161PGge
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Chapter 4
Assessment and Planning
HFD defined the assessment and planning section as "A process by which the Hawaii Fire
Department can evaluate the progress and success in department programs, activities, and
services by utilizing established plans identifying goals, strategies, and tactics."
HFD's plan model stated that it would pursue four deliverables in the assessment and planning
category. We evaluated one item:
• Achieve accreditation as a fire department through the Commission on Fire Accreditation
International (CFAI).
Results
• HFD did not achieve accreditation.
Audit Activity
We reviewed the County's Final Program Objectives and proposed operating budget, including
program highlights from FY 2015-2020. We benchmarked and found that the Honolulu Fire
Department was accredited in 2000 by the CFAI and re-accredited in 2005, 2010, 2015, and
2020. As of February 2022, the Hawaii, Kauai, and Maui County Fire Departments are not
accredited.
Accreditation Overview
Accreditation is the process of officially recognizing the organization as having a particular status
or being qualified to perform a particular activity and is important to the public interest because it
provides assurance that the organization has methodologies to review all aspects of operations.
Accreditation is a multi-step process.
Accreditation requires a self-assessment of present performance, past performance, defined
objectives, and it aids plan creation. Supporting documents and exhibits validating quantitative or
qualitative statements are required.
A community risk analysis must be performed to assess buildings and infrastructure and classify
them into risk categories. This helps the department align its equipment and apparatus to the
needs of a potential incident.
17
HFD does not have standards of cover. An applicant seeking accreditation must develop
standards of cover, a comprehensive evaluation of the community including demographics,
population density, land or infrastructure limitations, and seasonal impacts on resources. It also
evaluates staffing, deployment, and performance, including total response times, call processing,
dispatch, turnout, and travel times.
Data points work together to create baseline measurements. Baselines are then used to establish
objectives and goals. This drives the department's placement of people and resources and helps
to identify future needs.
An example of standards of cover can be found at:
https //www.scottsdaleaz.gov/Assets/ScottsdaleAZ/Fire/SOC1 5.pdf
Accreditation sometimes fails because of misunderstandings of the approach to adoption,
conformance to consensus standards, and cost.
Approach
Accreditation is an ongoing process, not a start-stop project which can be delegated to someone
or implemented with strict deadlines. Management should consider field employees' feedback
when developing its data.
Consensus Standards
One misconception for agencies seeking accreditation is that they must fully comply with Chapter
4, Section 4.1.2.1 response standard of the National Fire Protection Association (NFPA) 1710,
Standard for The Organization and Deployment of Fire Suppression Operations, Emergency
Medical Operations, and Special Operations to the Public by Career Fire Departments.
Accreditation evaluates the departments past performance and sets the direction for the future. It
also considers best practices and standards, creates benchmarks, sets goals, and compels the
department to make incremental improvements.
Accreditation does not require compliance with all standards. Accreditation certifies that the
department has adequate means to continually self-improve. A prudently run department may
use accreditation as justification for resource requests.
Cost
Accreditation has associated expenses. Estimates indicate a department should secure an
average of approximately fifteen thousand dollars annually and thirty thousand dollars every five
years to support fees, member accreditation, training, travel, site visits, clerical support, and
18 1
application with the commission. An investment toward accreditation should be weighed against
operational impacts, including systems, processes, people, communication, and performance.
Cause and Condition
HFD was unable to commit ongoing resources to achieve accreditation.
Effect
HFD is not proactively developing internal methods to improve service delivery in the communities
it is expected to serve and protect.
Recommendation
We recommend HFD work toward CFAI accreditation as reported in their Hawaii Fire
Department Strategic Plan 2015-2020. Pursing the accreditation process will serve as the
foundational building block to help HFD meet the department's performance, mission, and public
expectations.
OEM
Logo for illustrative purposes only
19
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Chapter 5
Essential Resources
HFD defined the essential resources section as "The identification of department equipment,
supplies, personnel positions, facilities and programs necessary for the efficient delivery of
emergency and non-emergency services to Hawaii County."
HFD's plan model stated that it would pursue six deliverables in the essential resources
category. We evaluated three items:
1. The development of a vehicle replacement program based on NFPA standards.
2. The provision of facilities maintenance to ensure an efficient, useful life.
3. Determine and meet NFPA standards for staffing requirements.
Results
1. HFD did not develop guidelines to target vehicle replacement through an official process.
2. HFD did not clearly define its facility maintenance responsibilities from those belonging to
the Department of Public Works.
3. HFD does not meet NFPA standards for staffing requirements.
Audit Activity
Vehicles Replacement Schedules
We interviewed the Fire Chief and found this schedule does not exist. We interviewed the Chief
Mechanic and found the out-of-service vehicle list and repair and maintenance records were
incomplete. Personnel said physical repairs are a priority, and there is no clerical support.
NFPA Overview
The NFPA "is a global non-profit organization established in 1896, whose stated mission is to
eliminate death, injury, property, and economic loss due to fire, electrical and related hazards.
NFPA delivers information and knowledge through more than 300 consensus codes and
standards, research, training, education, outreach, and advocacy."
NFPA codes and standards are supported by a rigorous development process.
20
NFPA standards may be legally enforceable when they are predicated on OSHA standards or
when incorporated into code. For example, Hawaii County Code Chapter 26 includes the
adoption of the state fire code, which incorporates NFPA 1, the Uniform Fire Code. Although not
all standards are attainable for every department, there are numerous benefits to adopting
achievable NFPA standards. NFPA standards tend to represent evidence of what a reasonably
prudent fire department should be doing.
Applicable NFPA reference standards
• NFPA 1900 is currently being revised to incorporate the following standards:
o NFPA 1901 Standard for Automotive Fire Apparatus
o NFPA 1906 Standard for Wildland Fire Apparatus
o NFPA 1917 Standard for Automotive Ambulances
o NFPA 414 Standard for Aircraft Rescue and Fire-Fighting Vehicles
• NFPA 1911 Standard for the Inspection, Maintenance, Testing, and Retirement of In-
Service Automotive Fire Apparatus
• NFPA 1912 Standard for Fire Apparatus Refurbishing
NFPA 1911
• NFPA Chapter 5 Retirement of Emergency Vehicles 5.1.1 states, "The fire department
shall consider safety as the primary concern in the retirement of vehicles."
• NFPA Chapter 5 Retirement of Emergency Vehicles 5.1.2 states, "Retired emergency
vehicles shall not be used for emergency operations."
The standard includes a guideline (Annex D, 2017 edition) which offers general guidance. It's
important to note that while the standard does not include mandatory replacement schedules,
other criteria, including apparatus design, or elements such as seatbelt warning signals, or anti-
lock brakes, are required safety features that may be missing from older vehicles. In 2009 major
additions were added, including rollover stability, tire pressure sensors, extended seatbelts to
accommodate fully dressed firefighters, and new restraint system requirements.
The annex suggests that apparatus more than fifteen years old but properly maintained be put
into reserve status but should be upgraded according to NFPA 1912 standards. It further indicates
that vehicles unable to meet the criteria, and where retro fitment exceeds the salvage value, and
those apparatus over twenty-five years old, should be replaced. It also points out that some
vehicles may wear out in as little as eight to ten years, whereas quality vehicles treated well, and
maintained properly, may still be serviceable as a reserve vehicle at twenty years.
21 1
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Vehicles tend to follow similar stages in their economic life cycles:
• Initial purchase
o Acquisition
o Licensing
o Preparation/commissioning into the fleet
• Depreciation —A sharp depreciation in the value of the vehicle in the first years followed
by a leveling out over time (salvage value)
• Vehicle Repair and Maintenance
o Repairs include component failures such as alternators, air compressors, fans,
radiators, and similar components that fail prematurely
o Repair costs tend to be manageable until primary drivetrain components fail
o After the initial productive years of vehicle life, repair costs tend to increase over
time
o Maintenance includes sparkplugs, brakes, batteries, hoses, belts, filters, fluids,
and similar work needed to be done to ensure efficient operation
o Warranty costs typically cover most unforeseen premature failures for the first
three to five years.
o The period when repair and maintenance costs are low and the vehicle is
performing adequately is referred to as its optimal age range
• Vehicle Disposal
o Vehicles should be retired when the depreciated value, also known as salvage
value, approximately equals the lifetime repair and maintenance costs or when the
vehicle reaches a predetermined target of either mileage or age or some
combination of all the above.
HFD continues to work with -- --��
fragmented vehicle lists and does not jr
collect data in a fashion that allows it
to analyze downtime, efficiency, or
lifetime maintenance costs.
Additionally, the department's fleet is "
not always optimized to work in the
geography to which it is assigned.
During site visits, staff explained some
.
of the challenges they faced, including
two-wheel drive ambulances that
could not access the terrain on assist,
a new pickup with body damage ;
because of ground clearance, engines
New vehicle,body damage.Needed additonal ground clearance—Courtesy County
Auditor
23
that were too large to access the incident sites, and vehicles that were too heavy for the bridges
they were expected to traverse over.
Cause and Condition
HFD is not able to determine if lifetime repair and maintenance costs exceed the vehicle's
value.
Effect
HFD's resources are primarily focused on out-of-service apparatus rather than preventative
maintenance.
Recommendation
We recommend HFD develop and implement a comprehensive vehicle profile for each of its
apparatus.
We further recommend HFD develop and implement a maintenance and replacement plan to
ensure safe and cost-effective operations based on evidence. The plan should include the
following:
• Establish a comprehensive vehicle list
• Track age, mileage, and condition
• Determine which vehicles are appropriate for what terrain
• Establishing replacement targets (age, mileage, lifetime maintenance costs, class of
vehicle, etc.)
• Regular inspection of high-risk vehicles
• Assign apparatus from high volume stations to low volume stations to extend the
useable life
24
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2. The provision of facilities maintenance to ensure an efficient, useful
life
Audit Activity
We gained an understanding of HFDs' Capital Improvement Project (CIP) allotments from 2017
to current. We reviewed and compared outstanding work order items to observations made during
site visits. We interviewed staff and management. We reviewed policies and procedures to identify
responsible parties.
Facilities Maintenance Overview
HFD operates twenty fire stations island-wide. Fire stations are owned by State, County, and
private entities. Fire station's age and conditions vary widely.
Additionally, HFD manages 18 volunteer sites. Sites range from vehicles parked at homeowner
residences under tents to industrial garages. Sites with structures have electricity, no sleeping
quarters, and plumbing varies. HFD has agreements with neighborhood associations to provide
different degrees of maintenance.
ALL
Compile Courtesy County Auditor
We reviewed HFD's Rules and Regulations Section 7. That states the Fire Captain, "Supervises
station activities, including the maintenance, and upkeep of facilities, grounds, and equipment."
Based on the department's current definitions, it is the Fire Captain's responsibility to manage
maintenance issues affecting the station.
Elements of facilities maintenance can be charged to operating budgets or, if appropriate, added
as projects in the capital improvement budget.
Repair and maintenance are defined as preventative and routine upkeep and/or the preservation
or restoration of an existing element, space, building, or facility.
291 Page
Capital improvements are any addition or alteration to real property that:
• Substantially adds to the value of the real property or prolongs its useful life
• Becomes part of the real property or is permanently affixed
• It is intended to become a permanent installation
Examples of repair and maintenance versus capital improvements:
R&M versus CIP
Source:IRS.gov
Repair and Maintenance Capital Improvements
A faucet or toilet Replacing 30%or more of a major structural
component,such as a roof.
Fixing: Renovating an entire room(for example,kitchen)
An existing AC unit Installing central air conditioning,a new plumbing
system,etc.
Painting Additions,such as a deck,additonal room,etc.
Costs incurred for:
Replacing:
A broken pipe
A cabinet door
A few planks or tiles on a floor
A few shingles on a roof
Inspection,or cleaning part of the building
structure and/or building system
Replacing broken or worn out parts with
comparable parts
HFD Work Orders Source:DPW Building Division
DATESLI8MIFTE-� REOLSTDESCRIPTION STA.TLS ERRED-C PROJECT R&M REPAIR CIF LOCATION
DESIGN/REVIEVu MANAGER estimate COST
1/29/2021 new outlet 1/29/2021 x x N.Kohala fire
1124/2017 new outlet 11/24/2017 x x Captain cook fire
2/18/2021 Solar panel replacement 2/18/2021 x x Kailua fire station
2020 Hose tower roof hatch meta 2020 z x Captain cook fre
cover
6/20/2020 New sink/faucet/drain 6/20/2020 x x Central fire
6/24/2018 Outlet%Generator 5.124/2018 x x Central fire
6/29/2021 Post and Pier porch and steps 6/29/2021 x x Kahaluu Station 21
6/6:2021 Interior'_+terio,painting 6!16/2021 X x N.Kohala fire
7/12/2021 Apparatus floor roll up door 6/15/2021 x x Pahoa fire
replacement
7/14/2020 Generator sonde-ser 7114./2020 x x Kaumana fire
9/18/2018 New outlet for AC 9/18/2018 x x Hort a fire
10/18/2021 'Alater teak from t''et piping Pending/ava,ability under R&M Central fire
10/18/2021 Snake out drain Pending/availability under R&M Honoka a fire
1026%20'_1 Eathroom sink leak Pending/ava.abilit;- under R&M Central fire
10.%26/2021 Replace pivot rod/urinal Pending/availability under R&M Keauhou fire
10/30.2021 Replace toilet lever and tank Pending/avai:abili y under R&M Keauhou f re
cover
10./31/2021 Replace toilet assembly Pending;'availability under R&M Keauhou fire
11%12021 Kitchen dra^-1oa Pena-no'avaabilitp under R&M S.Kohala f-,t
11/4/2021 Toilet not functioning property Pending:'availability under R&M Central fire
11%8.2021 Toilet handle leaks when.flush Penc�ng;'avaliabihty under R&M Central fire
11/8/2021 Lamps and ballast replaceme,,t Pending/availability under R&M N.Kohala fire
911 7: Capt.shower head,eal: Parts on orcer under R&M Central fire
30Page
We requested a comprehensive maintenance work order list from Department of Public Works
Building Division. We found the work order list to be incomplete, and some items, especially
those identified as CIP, are not being repaired in a timely fashion.
During site visits, we observed instances of occupational and health, and safety hazards, placing
employees in harm's way. Health and safety concerns should be addressed immediately.
Some examples were observed during our site visits:
• Plymovents that extract vehicle exhaust from apparatus bays do not function at any
stations.
Conditions varied from:
■ Couplers that do not seal on apparatus
■ Burnt motors
■ Corrosion
■ Electrical surges
■ Compressors
• Inoperable overhead doors at stations:
o Kaumana
■ Missing glass panes
o Waimea
o Waiakea
o Keaau
■ Broken Motors
o Pahala
■ Fasteners falling out of the tracks
• Corrosion or leaking roofs:
■ Kaumana
■ Keaau
■ Waiakea
■ Pahala
During our site visit, we observed that the Kailua Station was using a mobile generator as a
substitute because the station's generator died. We also observed several of the station's
generators are in use well beyond their useful life. We also observed missing smoke detectors
and out-of-service fire alarm systems in county facilities that are occupied twenty-four hours a
day.
The lack of a complete and comprehensive work order list is contributing to poor facilities
maintenance. Additionally, "big ticket" repairs such as overhead doors at multiple stations are not
being aggregated together into a single project where leveraged bargaining power will deliver the
most cost-effective repairs.
31
Cause and Condition
HFD has no formal process to compile, monitor, or manage outstanding work orders to make
informed decisions.
Effect
Repair and maintenance work is not performed timely.
Recommendations
We recommend HFD work with its Fire Captains to develop a system to compile and maintain
a master list of work order items.
Where appropriate, HFD should leverage its economy of scale into CIP projects, including but
not limited to:
• Central A/C installs
• Roof repairs
• Overhead door repairs
• Exhaust systems
• Generator installs
• Review lease agreements to verify landlord obligations regarding facilities
maintenance.
32
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3. Determine and meet NFPA standards for staffing requirements.
Audit Activity
We interviewed staff, reviewed NFPA standards HFFA CBA agreements, examined calendar
schedules and payroll activity reports.
Staffing Overview
HFD's staffing standard includes six personnel at most stations. A typical company is comprised
of a Captain, Equipment Operator, Fire-EMS Specialist II, and three Firefighters.
Staffing consists of three shifts, A, B, and C. All members assigned to a station regardless are
defined as a company. Shifts begin at 8 a.m. and run for twenty-four hours until 8 a.m. on the
following day. Staffing is grouped into work periods. Work periods include all shifts worked inside
of a nine-day window. Uniformed staff work twenty-four hours on shift, then are relieved to rest
and recuperate for twenty-four hours before coming back on shift. This cycle is repeated a total
of three times, and uniformed staff then go on a four-day, ninety-six-hour relief period.
NFPA 1710
NFPA 1710, Section 5.2.3 identifies the units as companies by function and establishes staffing
relative to the function.
Engine companies and ladders require minimum staffing of four members. High incident zones
and geographically challenging areas can require five to six on-duty members as determined by
the authority having jurisdiction.
Where EMS services are being provided, minimum staffing consists of two personnel trained to
deliver basic life support.
HFD's primary concern is to provide sufficient staffing to maintain operational readiness. Needs
are affected by absences, operations, and incidents. The department has the discretion to backfill
absences in an overtime capacity—this practice results in significant overtime expense. The goal
of the department should be to actively minimize and preserve unanticipated budget capacity for
large or prolonged events.
Some overtime is expected. The total number of hours worked during a nine-day period is
seventy-two. By (CBA) agreement, uniformed staff is entitled to four hours of overtime, over and
above sixty-eight worked in a work period, a minimum of four hours of overtime if all hours are
worked as scheduled. This creates a category referred to as scheduled overtime which can be
anticipated and budgeted; however, HFD is incurring millions of dollars over and above the
budget. In FY2021, the County paid over $ 7.8 million in overtime wages.
35
Five largest categories of overtime:
Position Hours Amount Percentage
OT -WORKED ON HOLIDAY BU11 91496.5 $ 1.736.019.94 22.24910
OT-WK ON DAY OFF RANTS FOR RANK 40744.8 $2.019.315.06 26.87%
OT -WORKED ON DAY OFF 57548.9 $2.567.885.46 32.89%
OT-WORKED OVER 8!DAY 1.5 5414.65 $ 220.887.43 2.83%
SCHEDULED OVERTIME DIFF LINK $ 765.607.66 9.81%
ALL OTHERS 57302.3 $ 497.266.73 6.37%
Grand Total 252507.15 $ 7,$06,9$2.28
Six positions account for over 88% of the overtime:
Position Hours Amount Percentage
BATTALION CHIEF 6621.75 $ 347-569.62 5 02%
FIRE CAPTAIN 34321.70 $ 1.576.486.62 22.79%
FIRE EOUIPIM1El-,JT OPERATOR 45271.85 $ 1-427.258.89 20.639,o
FIRE FIGHTER 82726.45 $ 1.671.304.78 24.16%
FIRE RESCUE SPECIALIST 11350.85 $ 393.111.65 5.68%
FIRE/EMS ,SPECIALIST II 36081.30 $ 1.501.078.69 21.70%
Grand Total 216373.90 $ 6,916,810.25
HFD paid $1.6 million in earned sick and $2.5 million in earned vacation time in FY 2021.
Position Hours Amount Percentage
SICK 59302.63 $ 1.614.811.56 38 86%
VACATION 80869.09 $2.540.562.52 61.14°x0
Grand Total 140171.72 $4,155,374.08
Source:Eden pyActHstSumDet Time Period 07/01/20 to 06/30/21.Compiled Courtesy County Auditor
361 -
We highlight these figures because, under the existing framework, sick and vacation hours are
costs that must be covered through backfill and overtime. HFD currently has no mechanism to
backfill these absences without paying a premium. However, the premiums have little
correlation to incidents. They are a result of required delegation as described in the CBA. Rank-
For-Rank (RFR) requires employees of equal rank to have the first opportunity to backfill in the
event of an absence.
It is the policy of HFD to look within the station to provide the backfill. An FTE from a different shift
in the company is called in on a day off and is paid a premium to stand in. According to the HFFA
contract, uniform employees are to be offered twelve shifts per year of RFR or 288 hours.
HFD has policies to contain costs. Section 656.01 Procedures Manual states, "Non-Emergency-
Overtime (79-2) is strictly prohibited without the prior authorization of the Fire Chief or Deputy Fire
Chief. Requests shall be initiated through the organizational chain of command of the Fire
Department with justification for work to be accomplished." Quota-based overtime is contrary to
this department policy, and the department is not able to demonstrate that it is actively enforcing
this procedure. We corroborated with HFD and found pre-authorization of overtime is not
generally followed or enforced.
Chief's Memorandum No. 2019-036 Section H. states that ninety-six hours shall be allowed every
four months (quadrimester, quad), July 1 - Oct 31, Nov 1 - Feb 28, Mar 1 - Jun 30) Section I.
"Each employee is responsible for the total amount of rank-for-rank worked, and Battalion Chiefs
are responsible for the tracking of the hours and the equitable distribution. Employees who go
over their allotted hours shall be subject to corrective action."
For FY 2021, we tested RFR hours and found that seventeen employees went over in Quad one
ranging from between 96.5 to 192 total hours, Quad two found eighteen employees went over
from between 103.5 to 192 total hours, and Quad three found thirteen employees went over from
between 108 to 192 total hours.
The proper delegation of overtime is essential to manage because employees hired prior to July
1, 2012, fall under grandfathered collective bargaining agreements where premium payments are
part of a calculation that averages the three highest-earning years and pays lifetime pensions
based on those earnings, with limited exceptions. Not correctly monitoring and delegating violates
the HFFA agreement, HFD policy, and contributes to long-term pension obligations. As of
November 2021, approximately 240 active employees belonged to grandfathered programs.
HFD is not meeting its constant staffing needs or enforcing its cost control procedures related to
payroll. However, adding personnel in the existing framework to achieve minimum staffing will not
reduce its overtime burden because those employees will be assigned to a shift and called back
in an overtime capacity just as existing staff. Straight-time substitution can be achieved in a few
ways. HFD could add excessive overcapacity so that a callout would not affect minimum staffing.
37 1
In this scenario, HFD is paying premium costs to maintain constant staffing. Alternatively, HFD
could add a relief pool without a designated station assignment.
Some benefits of a relief pool:
• Reduces employee burnout
• Reduces costs related to callbacks
• Reduces costs related to scheduled leave
Analysis of FY2021 data shows potential cost savings through the addition of a relief pool.
Relief Pool Calculation
One full-time equivalent (FTE) employee
Total Hours Available Hours
Total Annual Hours Available 2,920
Less Hours
Contractual Scheduled Overtime 160
Contractual Rank-for-Rank 288
Net Hours Available Hours
2,472
Sick and Vacation Leave (S&V) Average Hours Leave Total Average Hours (AH)
10 Battalion Chief 427 4,270
59 Fire Captains 340 20,060
66 Equipment Operators 391 25,806
18 Fire Rescue Specialists 382 6,876
42 Fire/EMS Specialists II 342 14,364
141 Firefighters 263 37,083
Grand Total 108,459
Where costs are:
Average Compensation Hourly Average x Fringe = True Hourly x (AH) = Cost
Battalion Chiefs $ 45.18 41% $ 63.71 4,270 $ 272,041.70
Fire Captains $ 36.27 41% $ 55.37 20,060 $ 1,110,722.20
Equipment Operators $ 31.03 41% $43.75 25,806 $ 1,129,012.50
Fire Rescue Specialists $ 28.25 41% $ 39.84 6,876 $ 273,939.84
Fire/EMS Specialists II $ 32.12 41% $45.29 14,364 $ 650,545.56
Firefighters $ 24.11 41% $ 34.00 37,083 $ 1,260 822.00
Grand Total $ 4,697,083.80
38 1
And where these costs must currently be covered by over time backfill at 1.5x.
Average Compensation Cost Overtime Multiple Overtime Cost
Battalion Chiefs $ 272,041.70 1.5x $408,062.55
Fire Captains $ 1,110,722.20 1.5x $ 1,666,083.30
Equipment Operators $ 1,129,012.50 1.5x $ 1,69,3518.75
Fire Rescue Specialists $ 273,939.84 1.5x $410,909.76
Fire/EMS Specialists II $ 650,545.56 1.5x $ 975,818.34
Firefighters $ 1,260,822.00 1.5x $ 1,891,233
Grand Total $ 7,045,625.70
And where a relief pool would have the following availability to substitute:
Position Net Annual Less Avg S&V = Remaining
Battalion Chiefs 2,472 - 427 2,045
Fire Captains 2,472 - 340 2,132
Equipment Operators 2,472 - 391 2,081
Fire Rescue Specialists 2,472 - 382 2,090
Fire/EMS Specialists II 2,472 - 342 2,130
Firefighters 2,472 - 263 2,209
And where the pool composition needs are as follows:
Position S&V Hours /Avail per sub = (Rounds down) Staff Needed
10 Battalion Chiefs 4,270 2,045 2
59 Fire Captains 20,060 2,132 9
66 Equipment Operators 25,806 2,081 12
18 Fire Rescue Specialists 6,876 2,090 3
42 Fire/EMS Specialists II 14,364 2,130 6
141 Firefighters 37,083 2,209 16
Grand Total 48
Despite calculations, modeling suggested cost savings up to a break-even point of about 24
personnel. We advise a slow, phased approach to implementation.
39
Estimated Cost Savings
Adding a one-year pilot relief pool program consisting of twelve employees could:
Lower Employee Cost Model
Cost County taxpayers: Provide: Create:
Position S&W Substitution Hours Save Net Savings
12 Firefighters $ 1,105,177.74 26 508 $ 1,351,908 $ 246,730.26
Grand Total $1,105,177.74 $246,730.26
Alternatively:
Higher Employee Cost Model
Cost County taxpayers: Provide: Create:
Position S&W Substitution Hours Save Net Savings
2 Battalion Chiefs $ 324,605.97 4,090 $ 390,881.30 $ 66,275.33
9 Fire Captains $ 1,319,865.35 19,188 $ 1,593,563.40 $ 273,698.05
1 Fire/EMS Specialist II $ 124 821.96 2,090 $ 141 994.60 $ 17,172.64
Grand Total $ 1,769 293.28 $ 357,146.02
Cause and condition
HFD backfills all absences with overtime.
Effect
HFD historically exceeds its budgeted salary and wages for overtime.
Recommendations
We recommend HFD pilot a relief pool program to control overtime expenditures while better
meeting NFPA Standards.
We further recommend HFD follow and enforce internal controls to limit rank-for-rank overtime
to ninety-six hours for each quadrimester.
We further recommend HFD follow and enforce the non-emergency overtime policy.
40 1
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Chapter 6
Financial Resources
HFD defined the financial resources section as "An analysis of the financial condition of an
agency to determine its ability to fund operational priorities, its effectiveness in serving the
community needs and its prognosis for long-range quality of service."
HFD's plan model stated that it would pursue five deliverables in the financial resources
category. We evaluated one item.
Audit Activity
We benchmarked HFD's FY 2021' expenditures against five comparable fire departments based
on criteria of 20% plus or minus population variance.
Financial Resources Overview
HFD said that it is underfunded relative to its industry peers. HFD has several unique aspects
which make benchmarking difficult. For example, the vast area it responds to sets it apart from
industry peers.
We identified seven common benchmarks:
• EMS services
• Average cost per employee to the taxpayer
• Cost of department per capita
• Cost per station
• Ratio of sworn staff to civilian
• Percentage salary and wages to budget
• Percentage of the budget
Financial Resources Overview
We compared HFD's funding to other municipals serving communities of similar size. When
considering EMS services as part of the department's offerings, the relationship changes.
HFD receives revenues from the State and County.
Area State County
EMS 100% 0%
Operations 0% 100%
Ocean Safety 34% 66%
42
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Cost per employee to the taxpayer
The Cost per Employee to Taxpayer (CET) is HFD's total budget divided by the number of
employees. This measure is important because a CET too high from the median can mean poor
economy to the taxpayer, and a CET too low, and after accounting for the salary portion of wages
can indicate underinvestment in an expense category for the department. The average comp cost
per employee in this comparison is $ 153,580. HFD is $97,890. Because the department average
CET is lower than its comps, and the percentage of wages is higher than its comps, our analysis
indicates that the department is underfunded in some or all categories of expenses.
Average cost per capita
The Cost per Capita (CC) is HFD's total budget divided by the population of the island. This CC
is the second measure of the economy to the taxpayer and accounts for the department's level of
infrastructure. The average CC was $ 226. HFD was slightly higher at $ 234. Our analysis
indicates HFD's per capita cost is slightly higher than average to its comps. This is likely because
HFD has more stations to maintain.
Cost per station
The Cost Per Station (CPS) is the total budget divided by the number of (paid) fire stations. This
measure is not meant to indicate how many dollars are supporting each station. Instead, a CPS
too high from the median may indicate a bloated budget. However, infrastructure carries fixed
costs, and CPS too low from the median may indicate a lack of financial support. The average
CPS was $ 3.4 million. HFD's is $ 2.1 million. Our analysis suggests HFD budget in aggregate
equivalent to its comps; however, with so much more infrastructure to support, it is operating with
significantly fewer resources.
Ratio of sworn employees to civilian
The ratio of Sworn staff to Civilians (S:C) measures the number of production staff (sworn) to the
number of support (civilian) personnel. This is important to measure because a low ratio of S:C
may indicate an organization is failing to use technology or is structured in an inefficient manner.
A high S:C ratio may indicate an efficient use of technology but also may indicate that production
personnel is being misused. The average S:C in our analysis was 13.06:1. HFD's average ratio
is 29.9:1. We determined that HFD is not using technology solutions to achieve its high ratio. HFD
said that they lacked support staff. During our site visits, we observed uniformed staff members
carrying out the functions of clerical employees. Uniform employees are being paid substantial
salaries but are regularly performing low-impact work.
44
Percentage of salary and wages (S&W) to budget
Percentage of Salary and Wages to Budget (SWB) measures department compensation to staff
divided by its overall funding. The SWB is important because a percentage too high may indicate
the department is overcompensating through premium wages and/or underfunding other areas of
its budget. The average SWB was 83.3%. HFD's SWB is 85.9%. Our analysis indicates that HFD
could achieve a lower ratio by increasing other areas of its budget, decreasing payroll expenses,
adding support staff who typically do not require the same level of premium compensation, or by
a mix of these proposals.
Percentage of Budget
The Percentage of Budget (PB) measures the department's budget allocation compared to the
total general fund. The PB is important because while the aggregate dollars will be vastly different,
the percentage provides a more stable indicator of what proportion of revenues should fund
departments performing specialized functions. The average PB was 19.9%. For HFD, it is 10.6%.
HFD ranked lowest among its comps.
HFD said they depend on charitable donations. Historically, HFD accepted donated equipment to
enhance its inventory, such as:
• Fire nozzles
• Extraction tools
• Life jackets
• Training
• Occasional utility terrain vehicle (UTV) or light-duty apparatus
In 2020, average donations significantly increased, including:
• H125 medical helicopter valued at $ 5 million
• Engine truck valued at $ 1.1 million
• 4x4 big dog valued at $ 524 thousand
• 4x4 big dog valued at $ 453 thousand
• 4x4 truck valued at $ 401 thousand
• BME Xtreme fire truck valued at $ 235 thousand
While partnerships with charitable organizations are beneficial, it is the responsibility of the County
to ensure HFD has the tools it needs to perform its duties adequately. Philanthropic contributions
should enhance the value of making good great.
45 1
Cause and condition
Analysis indicates HFD is underfunded relative to its peers.
Effect
HFD is not able to acquire the items they need and depends on charitable organizations.
Recommendation
We recommend HFD develop budgeting benchmarks to assist county management's
understanding of budget requests.
46 �
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Chapter 7
Governance and Administration
HFD defined the governance and administration section as "The recognition of the authority that
allows an organization or agency to operate legally. In fulfilling its responsibility, the legal entity
that oversees this formation process reflects the public interest, protects the agency from
undesirable external interference, determines basic policies for providing services, and interprets
the agency's activities to its constituency."
HFD's plan model stated that it would pursue six deliverables. We evaluated five items:
• Review and revise, as necessary, HFD's Procedures/Rules and Regulations Manual
• Review and revise, as necessary, all Standard Operating Guidelines
• Review and update the HFD Helicopter Emergency Medical Systems Guideline
• Review and update the Continuity of Operations Plan
• Ensure compliance with Hawaii County Rules and Regulations and other regulations by
department staff
Audit activity
We compared statements made by HFD in both its Final Status Report on Program Objectives
for FY 2015-2016 and Final Status Report on Program Objectives for FY2018-2019.
HFD said all policies, procedures, rules, regulations were up to date and being maintained. We
found several items were not updated.
We reviewed the current version of policies, procedures, standard operating guidelines, rules,
and regulations. Although dated November 2021, large portions of the material contents were
from the 1980s and 1990s.
Formal documentation ensures the department has thoroughly reviewed its operation and has a
good handle on control of the most common issues. The practice of leading with complete and
organized documentation sets a tone at the top. It is a best practice to review documentation
annually.
471 Page
Cause and condition
HFD has outdated policies and procedures that are not reviewed annually.
Effect
RFD's staff said roles and expectations are not clearly defined.
Recommendation
We recommend HFD update and clearly distinguish SOP's, SOG's, MOA's, MOU's, policies,
rules, and regulations.
Elements the department should include but not be limited to:
• A standard format
• Annual review
• Version control
• Distribution
48
Chapter 8
Human Resources
HFD defined the Human Resources section as, "The identification of the significant asset of the
Hawaii Fire Department, its personnel, and the necessary programs to maintain our workforce. "
HFD's plan model stated that it would pursue seven deliverables. We evaluated one item:
• Provide proper staffing at emergency worksites.
Deployment Overview
Deployment is the movement of forces within operational areas and is very different than fire
staffing.
Where staffing refers to the number of personnel readily available to accompany an apparatus,
deployment refers to the total number of personnel needed to attend to an incident as established
by the NFPA.
Deployment Requirements:
• Single-family dwelling of typical size requires a minimum of sixteen members (2020
edition) + One if aerial vehicles are used.
• Commercial single level requires twenty-eight
• Multi-unit apartment or townhome requires twenty-eight
• High-rise requires forty-three
To meet standards, assuming four-person companies, a house fire will require a response from
four stations, while a single-level commercial complex will require seven stations.
We identified two factors affecting service levels unique to Hawaii County. HFD uses both paid
firefighters and unpaid volunteers. The hybrid model is referred to as a combination department.
EMS personnel that must stay in their district is a second contributing factor.
49
NFPA Benchmarks
Benchmark 1st Tier 2nd Tier
Alarm Answer 15 Sec 95% of the time 40 Sec 99%' of the time
Alarm Processing 64 Sec 90% of the time 106 Sec 95% of the time
EMS Turnout 60 Sec
Fire Turnout 80 Sec
First Engine Due 240 Sec (4) Min 90% of the time
Initial Full Alarm
High Hazard 610 Sec (1 Orrin 10sec) 90% of the time
Low/Medium Hazard 480 Sec (8 min) 90% of the time
Second Engine Due 360 Sec (6) Min 90010 of the time
Source NFPA compiled courtesy OCA
We look at company size compared to operational effectiveness. The National Institute of
Standards and Technology (NIST) conducted a series of side-by-side field experiments in 2010
to assess two, three, four, and five-person performance outcomes. Among the results (on
average):
Low Hazard Structure Fires:
• Four-person teams completed all initial deployment tasks 25% faster than three-person
and 30% faster than two-person.
• Four-person teams competed in all groundfire tasks 25% more than three-person teams.
Time to Water on Fire:
• Five-person teams are 22% faster than two-person teams and 12% faster than three-
person, and 6% faster than four-person teams.
Ground Ladders and Ventilation:
• Four-person teams completed laddering, and ventilation tasks completed 30% faster than
two-person teams and 25% faster than three-person teams.
Primary Search:
• Five-person and four-person crews started and completed a primary search in the same
amount of time. They were 6% faster than the three-person crews and 30% faster than
the two-person crew. Three-person crews were 25% faster than two-person crews. (A
10% difference was equivalent to just over one minute
50 1 -
Hose Stretch Time:
• Two-person versus three-person crews took 57 seconds longer to stretch a line.
• Two-person versus four-person crews took 87 seconds longer to complete the same
tasks.
• Two-person versus five-person crews produced a difference greater than 2 minutes (122
seconds) difference in task completion time.
When evaluating whether the NFPA 1710 "industry standard could be achieved," time started
from the first engine arrived at the hydrant and ended when fifteen firefighters were assembled
on the scene.
An effective response force was assembled by the five-person crews three minutes faster than
the four-person crews. Two and three-person crew scenarios were unable to assemble enough
personnel to meet this standard. Results show a tangible benefit between people and
performance.
Until such time as the County can fully fund HFD with paid firefighters, volunteers create value by
increasing the total number of on-scene responders. HFD experiences low recruitment and an
enthusiasm gap for participation on the east side of the island. Average volunteer company size
ranges from about four to six on the eastside and nine to twelve on the westside. Volunteers are
not issued a breathing apparatus and cannot enter structure fires which limits how and where
they can deploy on-scene. There is minimal incentive to participate.
HFD has limited resources to scale operations. Volunteers offer a low-input, high return on
investment opportunity. Volunteers can serve roles aside from firefighting. Volunteers can take
on support roles, helping the department to coordinate the logistics of personnel and resources,
enhancing community outreach, etc., as determined by management.
Cause and condition
HFD has not capitalized on the important support role that volunteers can play.
Effect
Volunteer participation suffers, and the department finds itself unable to meet NFPA 1710
standards of deployment.
Recommendation
We recommend HFD evaluate its volunteer program to:
• Enhance the incentive for participation
• Develop organizational structure and support roles
• Invest into volunteer infrastructure and training, especially those servicing rural
communities who often represent the first line of defense.
51
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Chapter 9
Training and Competency
HFD defined the training and competency resources section as "The development and utilization
of tools to verify that personnel is achieving the necessary requirements to be successful and
contribute to the organization's mission, vision, and core values."
HFD's plan model stated that it would pursue five deliverables. We evaluated all of the items:
• Develop a cadre of certified Fire Instructors
• Provide training opportunities to maintain accepted department certifications
• Provide leadership and professional development training for personnel
• Provide for proper staffing of the Training Bureau
• Provide for leadership development of existing and eligible officers throughout all levels of
leadership in HFD
Results — HFD's Final Program Objectives FY 2017-2018 state that due to assignment changes
and staffing, the curriculum was not initiated. In FY 2018-2019, they provided an update stating
the program had been developed but could not be supported because of staffing and fiscal
challenges, alluding to overtime.
Final Program Objectives FY 2015-2016 noted the procurement of Target Solutions® to offer e-
training modules and provide user-defined curriculum and early warning systems to trigger
remedial training and to keep certifications current. By FY 2018-2019, program objectives
reported the full and successful implementation of online documentation and management as the
primary management tool.
In FY 2019-2020, HFD reported having added all vehicle endorsements and personnel
credentials. It further stated that its record management had been cleaned and organized in FY
2019-2020. We asked for verification of these materials and were told the information was not
available as represented.
The Training Bureau noted in Final Program Objectives FY 2015-2016, 2017-2018, 2018-2019
that staffing constraints due to budget had prevented proper staffing at the bureau.
52
Audit Activity
We reviewed Final Program Objectives FY 2015-2020, HFD procedures manual, conducted
interviews with the Training Battalion Chief, the Volunteer Coordinator, and both volunteer training
Captains, and conducted site visits at all paid and volunteer stations. We reviewed training
materials provided by the training group related to the subject matter. We corroborated with
management.
Training Overview
HFD sees training as an opportunity to provide three tangible benefits:
1. Preparing operational units
2. Protect the County against liability
3. Provide for the safety of personnel
To prepare operational units, HFD categorizes training into four levels:
1. Task level —Training based on acquiring knowledge related to basic competence.
2. Tactical level -Training to develop situational awareness and conditions-driven thought
processing.
3. Strategic level —Training focuses on determining resource capacities and deploying them
to create the most effective impact, often as part of a mutual aid (multi-agency,
deployment).
4. Operations specific level - Training that focuses on evaluating the deployment
performance, coordination of multiple companies, and full-scale exercises.
HFD's method of training includes:
1. Initial Certification
• Recruit Academy
• Technical Rescue
• Fire Apparatus Driver Operator
2. Re-certification
• Captain-Led Training
• Online Assignment
• Incumbent Programs
• Multi-Company Drills
• Full-Scale Exercises
3. Operations-Specific Program
• Battalion Chief-Led Training
• Company Performance Standards
• Multi-Company Standards
• Multi-Agency Standards
• Fire Officer Program
53 1
HFD`s methods of training delivery include:
1. Online Assignments
2. Captain-Led Training
3. Certification
4. Incumbent Training Programs
5. Multi-Company Drills
6. Full-Scale Exercises
HFD's program updates led stakeholders to believe that training could be achieved and
maintained online. While some of the training can and should be done between calls for service,
other training requires hands-on, field simulation, and multi-company cooperation.
HFD cited challenges including:
1. Staffing
2. Budget
3. Training Program Inabilities
• Offer
• Deliver
• Evaluate
• Maintain
4. Guiding Documents
5. Records
6. Leadership
Cause and condition
HFD did not clearly acknowledge the gap between of online management and field training.
Effect
Stakeholders expect training and certification should be achievable online and during downtimes
at the station.
Recommendation
We recommend HFD earmark a set number of training hours annually for each employee based
on their position title and training needed to maintain proficiency.
We further recommend HFD develop a tracking mechanism to measure:
• Participation
• Certifications held
• Renewal dates
541
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Chapter 10
Fraud, Waste, and Abuse
Audit standards require that we remain mindful and document all instances of waste, fraud, and
abuse.
We noted specific issues that we communicated directly to HFD`s management. We appreciate
their commitment to resolving these matters.
During fieldwork, we observed two occasions where personal electric vehicles were charging off
fire stations. HFD installed solar panels at multiple stations in 2015 as part of an initiative to reduce
energy costs. We corroborated with the Chief. He said the activity was unauthorized and had
denied the one and only request that was presented to him.
HFD Rules and Regulations, Station Commander duties and responsibilities Sub Section 2.
"Officers shall not knowingly allow County property to be used for individual personnel benefit not
associated with official duties."
Cause and condition
Vehicle use policy is not followed or enforced.
Effect
The department is using taxpayer resources inappropriately.
Recommendation
We recommend HFD work with other departments to revise the County's Vehicle Use Policy,
specifically refueling, to include provisions for electrically powered vehicles.
551
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Conclusion
The Office of the County Auditor has concluded its audit with the County of Hawaii Fire
Department. Our review of functional areas led us to make thirteen (13) recommendations.
When our recommendations are implemented, in good faith, the department can expect the
following benefits:
General
1. The implementation of a master plan will help HFD establish a long-term vision. Adherence to
the schedule can turn HFD's visions into reality.
Accreditation
2. Pursing accreditation will serve as the foundational building block to help HFD meet the
department's performance, mission, and public expectations.
Vehicles
3. A vehicle profile will give HFD data on every vehicle and help them to understand the age,
condition, and input costs associated with the maintenance of its fleet.
4. Vehicle replacement targets will help HFD better understand when it is no longer cost-effective
to maintain vehicles while providing budget justification.
Facilities
5. A master list of facility needs will help HFD gain a holistic understanding of what is broken,
what is breaking, and how long it is taking to fix things. HFD can prioritize projects and leverage
similar items into more cost-effective repairs.
Staffing
6. A relief pool will provide HFD with a more flexible staffing model to help balance the everyday
needs of the department with the fluctuations that are incurred as a result of callouts.
7. Enforcement of the HFD's internal controls will require management to take a more assertive
role in the approval process related to delegated overtime.
8. Enforcement of HFD's existing non-emergency overtime policy will drive costs down by
reducing instances of overtime.
561
Financial
9. Using fair and consistent analysis provides decision-makers with assurance that funding is
appropriately supported by evidence.
10. Updating all relevant documents governing HFD's operations will provide staff with assurance
that the administration is leading them by example and not just managing them through crisis.
Deployment
11. Managing HFD volunteer companies like an organization with structure, roles, and
expectations create opportunities and engagement that can break the bonds of budget
constraints.
Training
12. Determining how many hours remain after accounting for sick, vacation, and training will help
HFD plan for what staffing is needed to ensure no interruption in service.
Waste, Fraud, and Abuse
13. Addressing the improper use of resources at County facilities will build public trust.
We would like to express our sincere appreciation for the Hawai'i Fire Department's unrestricted
access to sites, information, personnel, and coordination throughout the audit. The cooperation
was exceptional.
571
Management Response
Mitchell D.Roth .'. Kazuo&�L.Todd
Lee E.Lord '• Eeie H.Koller
W..N.p r i-- `� ,. �.� rltp.n F:.rurr
Comm) of 3L)awal'l
HAWAII FIRE DEPARTMENT
B."upti i Street*Suitt 2901•IIBu.Ir.nii'i%'20
A03)932-2900e F■i("81931-2929
March 11.2022
Mr.Tyler Benner
Hawai'i County Auditor
120 Pauahi St.Suite 309
Hilo,Hawaii 96720
RE: CHIEF'S RESPONSE TO AUDIT
Aloha Mr.Benner:
Thank you for the time and effort in conducting this thorough analysis of our department's
services and processes.I think this report is well thought out.and while I wish it went into more
detail in certain areas.I realize that it needed to be a report and not a book.
There is no disagreement with any of the recommendations put forth within the concept of this
document. I agree that all emergency response departments should be working towards or have
achieved accreditation and be following most if not all of the processes noted in the
recommendations.That said,1 believe that the Hawaii Fire Department has done the best job it
could leading up to this point.Most of the comparable departments within this document are
excellent comparisons based on their department size and the population they serve(pg.38).
However.when we examine the data the majority of these comparable fire departments have
access to resources such as:
1. More administrative staffing(5 of 5)
2. Smaller response areas(5 of 5)
3. Less fire stations to manage and fund(5 of 5)
4- More fire fighters per station and shift(5 of 51
5. No volunteers fire stations to fund 15 of 5)
h. No EMS services provided(4 of 5)
7. No Ck-ean Safety services provided(5 of 5)
8_ Larger percentage of operating capital to their personnel costs(4 of 5)
9. A larger budget to provide and manage fire sen•ices(5 of 5)
10.A larger percentage of the counties total budget(5 of 5)
Considering the current limitations of staffing.equipment facilities.and funding.I am not Aughal
confident on how much headway we will be able to achieve towards these w�F
fLr�m':inunty i>,vL,�uuV 4?1*}nrtvn;ty f"nriftr mpf i:rttrnlmnr.
581 Page
recommendations.As noted in this report.the previous administration had put together a
strategic plan to address many of the above noted areas.Also as noted.not much was achieved
over the course of that plan period making the strategic plan look much like a wish list.
The Hawaii Fire Department has a long road to travel to become an
accredited public service organization. While we can have the best
ideas and plans in the world_they are ultimately just really nice
dreams on paper without the resources to achieve them. To give an
example of what 1 mean,let's say we recognize an issue that needs
attention.After analysis,we define our problem as the apartment
next door to us is on fire. We create a plan to use water to put out
the fire.We then take action by quickly applying water on the fire.
However if the process we use is a small water bucket_we are 2 Analyzed Problem
ultimately not going to be successful.Our resources to meet the Z Created a Plan
needs of the planned solution are not adequate. While the L Applied Action
L
recommendations in this document are excellent,the Hawai'i Fire L ,,oh.@,, d$;-4e
Department is currently limited in our available resources to achieve
them within a practical timeframe.
In summary,I agree with the recommendations and believe that the public deserves a department
that is performing among its peers nationally. l believe that we must meet a consensus standard
for providing emergency response and safety.while being fiscally responsible to the public and
its taxpayers. Thank you for the tone and effort spent writing this document. We will do our best
to implement these recommendations and to produce the best possible Hawaii Fire Department
for the County of Hawaii. Please refer to the attached follow up document on the specific
response to each recommendation with details on our time frame and or limitations on expected
implementation.
Sincerely.
KAZUO S.K_L_TODD
Fire Chief
cr. Honorable Maile Mederios David,Council Chair
and Members of the Hawaii County Council
591 Page
'd Kazuo S.K.L.Todd
Mitchett U.Rath Fire Czi/
I1nw
Lee E. Lord Erie H, Koller
Han-emg D,-9w Drpw,Fie[ikf
Coi ntv of —Apb iI j
HAWAII FIRE DEPARTMENT
25.tupuni Strep•wile:501 a 1hkL laMwai'i 90.10
IRU)932-2900•Fos 48")93M929
MANAGEINENT'S RESPONSE TO AtTDIT RECOMMENDATIONS
Recommendation 1
We recommend HFD develop a master plan.
Recommendation 2
We recommend HFD work toward C'FAI accreditation as reported in their Hawaii Fire
Department Strategic Plan 2015-2020.
Management Response to Recommendations 1 & 2
We concur with these recommendations with reservations_
Management is in full agreement with these recommendations.but the following circumstances
could affect the implementation. The fire department has limited free staffing or funding to
allocate towards achieving either of these recommendations. To achieve these recommendations
we recommend the following:
I. Hire an external organization through cooperative procurement to work with the Fire
Department to put together a master plan.community risk assessment.and strategic plan
which meets consensus standards. Initial research has shown this to run approximately
S143.900.
2. Mirror the Hawaii Police Department and create a section who manages accreditation.
Police has a full time staff of one lieutenant,two sergeants.and one clerk III to maintain
their accreditation status.In discussions with HPD they also need to borrow several staff
members from other sections when accreditation renewal comes up. To implement this
within HFD we would recommend the creation of one fire captain position.one program
manager position.and two clerk III positions. Estimated total cost is$266,500 annually
based on median wage for these positions.
3. Procurement of initial training for our chief officers at the C'enter's for Public Safety
Quality Improvement for the Fire and Emergency Services workshops(20 held per year).
Three day course with costs is anticipated to be$44?00.
Implementation year would cost $459.500 to start the process.with a continuing costs of
$266,500 annually thereafter-The fire department will try to complete this process as effectively
as we can_ We anticipate implementing of the following documents by.
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601 Page
Funded Responsible Cost I nfunded Responsible
Implementation Part Implementation Paro
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Recommendation 3
We recommend HFD develop and implement a comprehensive vehicle profile for each of its
apparatus.
Recommendation 4
We further recommend HFD develop and implement a maintenance and replacement plan to
ensure safe and cost-effective operations based on evidence. The plan should include the
following:
• Establish a comprehensive vehicle list
• Track age.mileage.and condition
• Determine which vehicles are appropriate for what terrain
• Establishing replacement targets iage. mileage. lifetime maintenance costs,class of
vehicle, etc.)
• Regular inspection of high-risk vehicles
• assign apparatus from high volume stations to low volume stations to extend the useable
life
Management Response to Recommendations 3& 4
We concur with these recommendations with reservations.
Management is in full agreement with these recommendations.but the following circumstances
could affect the implementation. The fire department has limited free staffing and funding to
allocate towards achieving either of these recommendations. To achieve these recommendations
we propose the following:
1_ Creation of a Clerk III position to work with the mechanics shop to start the process of
tracking vehicle repairs,maintenance.and status. Estimated cost is 543,5110 based on
median wage of the position. (this can also be found on supplemental request#7 for FY
21,23)
2. Creation of a Clerk III position in Auxiliary,Sm ices to support the warehouse and free
up Battalion Chief Hara from clerical work to pursue these initiatives. Estimated cost is
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S43,500 based on median wage of the position.(:this can also be found on supplemental
request#3 for FY ?'�3►
3. Replacement of the record management system to allow for the tracking of vehicle
statuses.repairs. and maintenance. New RMS system is estimated to run 545.000 a year.
Current budgeted legacy system is S 19.000 a year,so an increase of 526.000 a year for
software is needed_
Total costs of implementation of recommendations 3&:4 is$113.500 added to the fiscal budget_
Battalion Chief Vem Hara will be responsible for implementation and policy deployment_ We
anticipate implementation to be completed by June of 2023 With adequate funding.
Recommendation 5
We recommend HFD work with its Fire Captains to develop a system to compile and maintain a
master list of work order items.Where appropriate.HFD should leverage its economy of scale
into CIP projects, including but not limited to:
• Central XC installs
• Roof repairs
• Overhead door repairs
• Exhaust systems
• Generator installs
• Review lease agreements to verify landlord obligations regarding facilities maintenance.
Management Response to Recommendations 5
We concur with these recommendations_
Management is in full agreement with these recommendations. It should be noted that the Hawaii
Fire Department has in the past submitted economy of scale projects,regular projects.small
projects,and even very large projects to the Department of Public Works.The buildings"e
reside in 24 hours a day and respond from are owned and maintained for the most part by DPW.
As an example the Pahala Fire Station roof was identified in 2007 as needing replacement by
DPW. Since then the county has spent over S200,000 in planning the process of changing the
roof for the station,but has yet to actually replace the roof. Fire personnel currently sleep in a
building with buckets to catch rain water.and large sections of the roof rusted away.
The Hawaii Fire Department has minimal control or ability to effect repairs on the structures we
currently inhabit. That said,we are in agreement that we should have a better tracking system for
all of our repairs and work orders. Battalion Chief Vern Hara is currently in charge of this. He is
also in charge of ordering,contracts,procurement.distribution, maintenance.dispatch.records.
and our mechanics. He has no clerical staff to assist him in these duties.To achieve this
recommendation we recommend the following:
1. Creation of a Clerk 111 position in Auxiliary Services to support the warehouse and free
up Battalion Chief Hara from clerical work to pursue these initiatives. Estimated cost is
543.500 based on median wage of the position_(this is a duplicate of our above
recommendation.and can also be found on supplemental request#3 for FY 22,23)
621 Page
This would allow him to free up time currently being spent on clerical work_Total costs of
implementation of recommendation 5 is$43.500 added to the fiscal budget. Battalion Chief Vern
Hara will be responsible for implementation and policy deployment. We anticipate
implementation to be completed by April of 7023 with adequate funding.
Recommendation 6
We recommend HFD pilot a relief pool program to control overtime expenditures while better
meeting constant staffing needs.
Management Response to Recommendation 6
We concur with investigating this recommendation.
Having taken a cursory look at the data provided we think that this recommendation provides
very interesting potential to provide staffing and potentially reduce costs_At this time we cannot
say whether it is entirely feasible with DHR and HFFA_We will start the investigation of this
recommendation.and put together a report by September 2022 for discussion with the relevant
departments_Deputy Chief Moller will take the lead on this.with assistance from Assistant Chief
Clkinaka. He has no clerical staff to assist him in these duties. To achieve this recommendation
we propose the following:
1. Creation of a Clerk III position in Admin to support the Assistant Chief and free him up
from clerical work to pursue these initiatives. Estimated cost is$43.500 based on median
wage of the position_(this can also be found on supplemental request#3 for FY 22'23)
Recommendation 7
We further recommend HFD follow and enforce internal controls to limit rank-for-rank overtime
to ninety-six hours for each quadrimester.
Recommendation 8
We further recommend HFD follow and enforce the non-emergency overtime policy.
Management Response to Recommendations 7& 8
We concur with these recommendations_
We will start enforcing internal control limits on rank-for-rank overtime.and enforce the non-
emergency overtime policy. Part of the difficulty of this is our current tracking of data is on
paper timesheets,and pulling statistics in the past has been linvted by available time to manually
compile data. We will need some help from the County Auditor's Office in setting up automatic
data analysis on payroll statistics,or consider alternative systems or programs that can track this
data in real time.Assistant Chief Darwin Okinaka will be responsible for this.and will have his
operational battalion chiefs enforce this policy. We believe with some assistance the County
Auditor's office on automating our data. vve can have this implemented by July of 202-1. To
achie,-e these recommendations we propose the following:
631
1. Creation of a Clerk III position in Admin to support the Assistant Chief and free him up
from clerical work to pursue these initiatives. Estimated cost is$43.500 based on median
wage of the position.(this is a duplicate of our above recommendation,and can also be
found on supplemental request#3 for FY 21'23)
Recommendation 9
We recommend HFD develop budgeting benchmarks to assist county management"s
understanding of budget requests.
Management Response to Recommendation 9
We concur with this recommendation.
Management is in full agreement with this recommendation. This is something,,ve are currently
working on when time permits. It is noted that we believe recommendations 1.2 are highly tied
into this request. To give the best information on what the department should be budgeting for.a
Standards of Cover(SOC I. a Community Centered Strategic Flan.and a Community Risk
Assessment are critical. These documents lay out the expected level of service and are critical to
basing budget goals and benchmarks.
To achieve this recommendation we propose the following:
I. Creation of a Business Manager position in Admin to support the Fire Chief in his pursuit
of this recommendation. Estimated cost is$104.652 based on median wage of the
position.(this can also be found on supplemental request#3 for FY 2-11,213)
?. Funding for reconunendations 1 &2 (5459,500)
Chief Todd is responsible for this recommendation-We will seek a complete and thorough
accounting for each fiscal year in September to present for the budgetary cycle.
Recommendation 10
We recommend HFD evaluate its volunteer program to:
• Enhance the incentive for participation
• Develop organizational structure and support roles
• Invest into volunteer infrastructure,especially those servicing rural communities who
often represent the fust line of defense.
Management Response to Recommendation 10
We concur with these recommendations with comments.
Management is in full agreement with this recommendation. but it should be noted that
implementation of any evaluation findings,will probably run into a funding wall. While
administration can produce a report after evaluating the volunteer progran-L the largest issue is
that there is almost no funding to support the 18 volunteer fire stations.Realistically to fund and
replace vehicles. build up proper infrastructure,and to handle administrative paperwork we can
roughly estimate that this section needs a budget of at least several million dollars and the
641 Page
p
f
I
addition of support staff positions_To achieve these recommendation we recommend the
following.,
1. Approval of supplemental budgetary request". A for FY 2223 for 5455.000 to fund
additional positions to support the volunteer sections of the fire department.
2_ Approval of supplemental budgetary request#96 for FY 22 23 for S1.200,000 to fund
operating capital expenditures to support the volunteer sections of the fire department.
The total costs of these recommendations are 51.655.000. Management will evaluate the
volunteer program to meet the goals of the recommendation. Volunteer Commander Bertsch and
the Two Fire Captains assigned to the volunteer section will work on this_ An analysis and final
report will be completed and subnutted by September 2022.
Recommendation 11.
We recommend HFD earmark a set number of training hours annually for each employee based
on their position title and training needed to maintain proficiency.
Recommendation 12.
We further recommend HFD develop a tracking mechanism to measure:
• Participation
• Certifications held
• Renewal dates
Management Response to Recommendations I1 & 12
We concur with these recommendations with reservations.
Management is in full agreement with these recommendations.but the following circumstances
could affect the implementation. The fire department believes that having adequate inventory
and accountability of the training is essential to maintaining safety of our personnel and to
produce the best outcomes for the public. It should be noted that there are currently only three
salaried personnel in the training branch to handle the training of 40 new firefighter recruits each
year.and manage continued training and certification of over 400 employees who have an
average of 5 certifications and or licenses that need training. and dociunentation. The training
branch has no clerical staff.
Management will earmark a set number of training hours.and produce a plan to track the hours
properly for certification held by personnel. Battalion Chief Patrick Springer will be in charge of
this. A report will be completed by September 2022_ The success of any recommendation from
this report will probably highly rely on funding support.To achieve these recommendations we
propose the following:
3_ Creation of a Clerk III position in the Training Section to support Battalion Chief
Springer and handle clerical work so that lie can pursue these initiatives. Estimated cost is
543.500 based on median wage of the position.(this can also be found on supplemental
request ti3 for FY 1'23
651
4. Creation of four(4)recruit training officer positions to support training operations for
firefighter recruits. These positions are currently being funded through overtime_
Expected cost are. $276,803 annually to fund the base salaries for these positions(this can
also be found on supplemental request#9E for FY 22213)
5. :'Approval of supplemental budgetary request#9F for FY 22 213 for 5300.000 to fund
training and maintenance of certifications for the fire department.
The total cost of these recommendations are 5622.303 annually.
Recommendation# 13.
It is recommend HFD work with Finance to revise the County's Vehicle Use Police.specifically
the refill gas section.to include provisions for electrically powered vehicles.
Management Response to Recommendations 13
We concur with this recommendation.
Ntanagement is in full agreement with this recommendation. A policy has been developed,
clearly stating the issues and consequences of utilizing Employer provided services without
compensation or authorization. This policy is required to be consulted on. The Policy will be
put into effect following the consultation process.
Additionally. Management feels that with the increased emphasis on Electric Vehicles and the
potential transfer of the County Fleet to non-fossil fuel vehicles,fee driven Electric Power
Recharging Stations at all Fire Department Facilities would be a positive initiative.
The fire department will try to complete this process as soon as we can. We anticipate
implementing an Employer Provided Services Standard Operating Guide by June 2022.
Deputy Fire Chief Moller will be responsible for implementing the recommendation for policy
development and triennial review_
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(�//�,�/ County of Hawai'i
7> Office of the County Auditor
County Auditor
120 Pauahi St., 309 �•
Hilo, HI 96720
808.961.8386 ;+f•,,. ..•.r`r
www.hawaiicounty.gov
The Office of the County Auditor is tasked with promoting accountability, fiscal integrity, and openness in
local government. Our work is intended to assist County government in its management of public
resources, delivery of public services, and stewardship of public trust. Copies of this audit report can be
obtained by contacting the Office of the County Auditor or visiting our website:
httl)s//www hawaiicounty_gov/our-county/legislative/office-of-the-county-auditor/audit-reports