HomeMy WebLinkAbout2022-02 Hawaii Fire Department Performance AuditCounty of Hawai'i Seal
County of Hawai'i
Office of the County Auditor
Hawai'i Fire Department Performance Audit '
R
Report No. 2022-02
March 21 , 2022
Air-Rescue, Fire, Paramedic, Hawaii County Fire Department, Founded 1888.
Picture of fire personnel loading an injured person into air medivac helicopter,
picture of fire personnel jumping off rescue helicopter into the ocean, picture
of brush fire with rescue helicopter in flight in the background, picture of
Wildland Fire Truck, picture of fire personnel in Hazmat suits, picture of fire
personnel fighting a structural fire, picture of a warehouse on fire, picture of
two fire personnel and fire captain fighting a fire.
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Tyler J. Benner County of Hawaii
County Auditor Office of the County Auditor
County of Hawai'i 120 Pauahi St., 309
Office of the County Auditor Hilo, HI 96720
Ph 808.961.8386 F 808.961.8905
www.hawai`icounty.gov
March 21, 2022
Honorable Maile Mederios David, Council Chair
and Members of the Hawaii County Council
Hawaii County Council
25 Aupuni Street
Hilo, Hawaii 96720
Dear Chair David and Council Members,
In accordance with generally accepted government auditing standards and the Hawaii
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.
Hawaii County is an Equal Opportunity Provider and Employer
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,
Tyler J. Benner
County 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
Table of Contents
Executive Summary.................................................................................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
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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 AC 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 N FPA 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
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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.
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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.
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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.
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Chapter 1
Introduction
Objectives
1. Is the Hawaii Fire Department internal control system suitably designed and operating
effectively to ensure compliance with applicable laws, National Fire Protection
Association (NEPA) standards, and County policies and procedures?
2. Is the Hawaii 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 departments internal control system, processes,
practices, and document flow.
• Reviewed the departments written policies and procedures.
• Observed monitoring and safeguarding practices.
• Conducted site visits.
• Noted any exceptions and identified opportunities/areas for improvements.
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• 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.
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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.
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Chapter 2
Hawaii Fire Department Organizational Chart.
The top is:
Office of the Fire Chief,
Administrative Services.
Below the Office of the Fire Chief is Emergency Operations Division, Fiscal Section, Human Resources and Support Services Division.
Emergency Operations Division has Two Active Battalions, two Volunteer Battalions, and Ocean Safety.
Battalion 1: Station 1 Central, Station 2 Waiakea, Station 3 Haihai, Station 4 Kaumana, Station 5 Keaau, Station 8 Honokaa, Station 10 Pahoa, Station 11 Kau, Station 17 Laupahoehoe, Station 18 Paradise Park, and Station 19 Volcano.
Below Battalion 1 is
Battalion 1 Volunteers: East Hawaii, Volunteer Station 1A Pepeekeo, Volunteer Station 5B Hawaiian Acres, Volunteer Station 5C Fern Forest, Volunteer Station 5D Fern Acres, Volunteer Station 8A Paauilo, Volunteer Station 10D Ainaloa, Volunteer Station 11A Naalehu, Volunteer Station 11C Discovery Harbour, Volunteer Station 11D Pahala, Volunteer Station 18A HPP, and Volunteer Station 19A Volcano.
Battalion 2: Station 6 Captain Cook, Station 7 Kailua, Station 9 Waimea, Station 12 Keauhou, Station 14 South Kohala, Station 15 North Kohala Station 16 Waikoloa, Station 20 Ocean View, and Station 21 Makalei.
Below Battalion 2 is
Battalion 2 Volunteers: West Hawaii, Volunteer Station 6B Kona Paradise, Volunteer Station 7B Kalaoa
Volunteer Station 9A Waikii, Volunteer Station 9B Kanehoa, Volunteer Station 14A Kohala Ranch, Volunteer Station 16B Puuanahulu, and Volunteer Station 20A Ocean View.
Ocean Safety: East Hawaii, Onekahakaha, Carlsmith, Leleiwi, Richardson, Honolii, Ahalanui, Isaac Hale, and Punaluu.
West Hawaii: Kahaluu, Laaloa, Hapuna, and Spencer.
Next is Fiscal Section which has A/P, Payroll.
Human Resources is by itself.
Under Support Services Division is Fire Prevention Bureau, Medical Services Bureau, Auxiliary Services Bureau, and Training Bureau.
Under Auxiliary Service Bureau is
Maintenance Section, Communication, and Logistics.
Under Training Bureau is Protection Training, and Volunteer Training.
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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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Chapter 2
Hawaii County Fire Department Demand for Service
First graph is on the amount of incidents and hours total for those incidents.
Second is a picture of where all the calls came from.
Third is the break down of the incidents.
Fourth picture is on a graph showing the number of and type of incidents and how much each fire station handled those different incidents.
Breakdown of those incidents in each year.
2017: Assist 4305, EMS 17467, Explosion 6, False 294, Fire 841 , Hazardous Material 211, Other 8, Service 1926, Weather 4, Total 25062
2018: Assist 4292, EMS 17716, Explosion 8, False 378, Fire 755, Hazardous Material 204, Other 2, Service 1833, Weather 35, Total 25223
2019: Assist 4632, EMS 18785, Explosion 3, False 379, Fire 860, Hazardous Material 225, Other 3, Service 1954, Weather 3, Total 26844
2020: Assist 4102, EMS 17285, Explosion 4, False 323, Fire 1014, Hazardous Material 220, Other 6, Service 1990, Weather 9, Total 24953
2021: Assist 3823, EMS 19718, Explosion 1, False 354, Fire 1023, Hazardous Material 312, Other 5, Service 2098, Weather 14, Total 27348
2017-2020 Grand Total: Assist 21154, EMS 90971, Explosion 22, False 1728, Fire 4493, Hazardous Material 1172, Other 24, Service 9801, Weather 65, Total 129430
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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.
Row Labels: Station Name, Assist, EMS, Exp, False, Fire, Hazard, Other, Service, Weather, & Grand Total.
Kailua Fire Station, Assist 4535, EMS 11444, Explosion 4, False 313, Fire 295, Hazardous Material 69, Other 3, Service 1537, Weather 3, Total 18203.
Central Fire Station, Assist 2549, EMS 12371, Explosion 4, False 233, Fire 360, Hazardous Material 110, Other 2, Service 1464, Weather 13, Total 17106.
Pahoa Fire Station, Assist 1999, EMS 9141, Explosion 0, False 82, Fire 786, Hazardous Material 211, Other 2, Service 1138, Weather 7, Total 13366.
Haihai Fire Station, Assist 1166, EMS 8039, 0 Explosion, False 95, Fire 140, Hazardous Material 66, Other 4, Service 751, Weather 4, Total 10265.
Keaau Fire Station, Assist 1228, EMS 6609, Explosion 1, False 81, Fire 433, Hazardous Material 77, Other 1, Service 500, Weather 4, Total 8934.
Hawaiian Paradise Park, Assist 1036, EMS 5748, Explosion 2, False 82, Fire 460, Hazardous Material 91, 0 Other, Service 615, Weather 2, Total 8036.
Waiakea Fire Station, Assist 1022, EMS 4490, Explosion 1, False 64, Fire 156, Hazardous Material 44, Other 4, Service 392, Weather 3, Total 6176.
Kaumana Fire Station, Assist 647, EMS 4399, Explosion 1, False 73, Fire 72, Hazardous Material 37, Service 480, Weather 8, Total 5717.
Waimea Station, Assist 601, EMS 4151, Explosion 3, False 112, Fire 141, Hazardous Material 43, Other 1, Service 303, Weather 2, Total 5357
Keauhou Station, assist 1016, EMS 3221, 0 Explosion, False 79, Fire 80, Hazardous Material 56, 0 Other, Service 300, 0 weather, Total 4752.
Captain Cook Station, Assist 751, EMS 3141, Explosion 0, False 73, Fire 141, Hazardous Material 79, Service 366, Weather 4, Total 4555.
South Kohala Station, Assist 812, EMS 3244, Explosion 3, False 123, Fire 116, Hazardous Material 25, 0 Other, Service 138, Weather 2, Total 4463.
Ocean View Station, Assist 947, EMS 2753, Explosion 1, False 16, Fire 406, Hazardous Material 31, 0 Other, Service 282, Weather 1, Total 4437.
Makalei Station, assist 903, EMS 2570, 0 Explosion, False 91, Fire 153, Hazardous Material 34, 0 Other, Service 368, 0 Weather, Total 4119.
Honokaʻa Fire Station, Assist 421, EMS 2472, Explosion 1, False 37, Fire 149, Hazardous Material 72, Other 5, Service 213, Weather 6, Total 3376.
Volcano Station, Assist 360, EMS 1820, Explosion 1, False 41, Fire 105, Hazardous Material 23, Other 0, Service 165, Weather 1, Total 2516.
Waikoloa Station, Assist 307, EMS 1725, 0 Explosion, False 45, Fire 89, Hazardous Material 12, Other 0, Service 249, Weather 1, Total 2428
North Kohala Station, Assist 278, EMS 1536, Explosion 0, False 35, Fire 112, Hazardous Material, Other 30, Service 264, Weather 2, Total 2257.
Ka’u Fire Station Pahala, Assist 401, EMS 1358, 0 Explosion, False 39, Fire 237, Hazardous Material 47, Other 0, Service 168, Weather 0, Total 2250.
and
Laupahoehoe Fire Station, Assist 175, EMS 738, 0 Explosion, False 14, Fire 62, Hazardous Material 15, Other 2, Service 108, Weather 2, Total 1116.
Grand Total, Assist 21154, EMS 90971, Explosion 22, False 1728, Fire 4493, Hazardous Material 1172, Other 24, Service 9801, Weather 65, Total calls by station by type: 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.
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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
# Actions Yes No N/A
1 Assess risks and develop long-range plans, 0 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 responces. 8 16 2
50 71 10
Graph of Self-Assessment Matrix
1 Assess risks and deveIop Iong-ra...
2 EvaIuate fire department perform...
3 Promote public awareness of fire...
4 Ensure fire code enforcement.
5 Develop effective com m u nica#io...
6 Prepare a competent work force...
7 Plan for ori-scene responses.
Yes No N/A
Source:Compiled Courtesy OCA
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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 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 progress).
Picture Groundbreaking Combined Communications Center,2021 Courtesy,Office of Management
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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:
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• 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/DocumentCenter/View/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
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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 aself-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.
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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/SOC15.p d f
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 Page
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. Pursuing the accreditation process will serve as the
foundational building block to help HFD meet the department's performance, mission, and public
expectations.
CFAI
Accountability Respect Integrity Safety Excellence
Internationally Accredited Agency
2019-2024
Logo for illustrative purposes only
19 Page
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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 1 Page
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 N F PA 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 Page
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
collect data in a fashion that allows it - x
to analyze downtime efficiency, or
lifetime maintenance costs.
Additionally, the department's fleet isnotalwaysalways optimized to work in the -
geography to which it is assigned.
During site visits, staff explained some
of the challenges the faced including g Y g
two-wheel drive ambulances that
could not access the terrain on assist, . N
a new pickup with body damage
because of ground clearance, engines . - .
New vehicle,body damage.Needed additonal ground clearance—Courtesy County
Auditor
231Page
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
241 Page
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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.
-
�- - 5lAYIOL 9 Ea,676
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.
29
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
Repair and Mai n to na rice Capital Improvements Source:I RS.gov
Fiji ng: R-encivati ng a n e roti re roo mi(fo r exa ampler k-Itc-he r
An existing AC unit Instal ling central air conAitionirq.a new pfurnbi ncl
sterni etc,
Painting Additions,suchas a deck,additonal rnnrn,etc.
Costs incurred for
Ike piaei ng:
A broken pipe
A cabinet door
Afew planks or tiles on efloor
Afew shingles on a roof
A faucet or toilet
Inspection,or cleaning part of the building
st ru ctu re a nd/-o r building system
Replacing broken of wom-out p a its with
comparable parts
HFD Work Orders Source:DPW Building Division
DATE SUBMITTED REQUEST DESCRIPTION STATUS RERRED 70 PROJECT R&M REPAIR
DESIGN/REVIEW /,MANAGER estimate COST
1/29/2021 new outlet 1/29/2021 x x N.Kohala fire
11/24/2017 new outlet 11/24/2017 x x Captain cook fire
211812021 Solar panel replacement 2/16/2021 x x Kailu a fire station
2020 Hose tower roof(hatch metal 2020 x x Captain cook fire
cover
6/20/2020 New sink/faucet}drain 6/20/2020 x x Central fire
6/24/2019 Outlet/Generator 5/24/2018 x x Central fire
6/29/2021 Post and Pi er po rc h and ste ps 6/29/2021 x x Kaha I u u Station 21
6/6/2021 I me ri or/Exterio r pa i nti ng 6/16/2021 x x N.Kohala fire
7/1 2J 2021 A p paratu s floor roll u p door 6/15/2021 x x Pa hoa fire
replacement
7/14/2020 G e n erator cc nd e ns er 7/14/2020 x x Kaumana fire
9/18/2018 New outlet for AC 9/16/2018 x x Hon oka'a fire
10/19/2021 Vater leak from toilet piping Pending/availability under R&M Central fire
10/18/2021 make out drain Pending/availa b i l ity under R&M Hon oka'a fire
10/26/2021 Bathroom sink leak Pending/availability under R&M Central fire
10/26/2021 Replace pivot rod I urinal Pending/availa b i I ity under R&M Idea u hou fire
10/30/2021 Replace toilet lever and tank Pending/availla b i I ity under R&M flea u hou fire
cover
10/31/2021 Replace toilet assembly Pending/availa b i I ity under R&M Idea u hou fire
11/1/2021 Kitchen drain slow Pending/availability under R&M S.Kohala fire
11/4/2021 Toilet not functioning properly+ Pending/availability under R&M Central fire
11/8/2021 Toilet handle leaks where flush Pending/availability under R&M Central fire
11/8/2021 Lamps and ballast replacement Pending/availability under R&M N.Kohala fire
9/17/2021 Capt.shower head leak Parts on order 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 1 Page
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 AC installs
• Roof repairs
• Overhead door repairs
• Exhaust systems
• Generator installs
• Review lease agreements to verify landlord obligations regarding facilities
maintenance.
321Page
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3. Determine and meet NFPA standards for staffing requirements.
Audit Activity
We interviewed staff, reviewed NFPA standards H FFA 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 1 Page
Five largest categories of overtime:
Position Hours AmcUnt Perntn q e
OT -WORKED ON HOLIDAY DD 11 01400.5 $1:1736.019-94 22.24%
OT-WIC DISI DAY OFF RANK FOR RANK 40744.0 $270193315.06 25_STalo
DT--WORKED ON DAY OFF 67640.0 $ .5677885.46 32.89%
OT-WORKED OVER 8!DAY 1.5 5414.65 2203987-43 2-83%
SCHEDULED OVERTIME DIFF UN $ 706.007.06 9-81%
ALL OTHERS 57302.3 $ 407.200.73 0_3T%
Grand Total 252507.15 778067982.28
Six positions account for over 88% of the overtime:
Position Hours AmoUnt Percentage
BATTAL101-] CHIEF 6621.76 $ 347.569.62 5.02%
FIRE C�.PTAI11 34321.70 $ 1.576.486.62 22.79%
FIRE EQUIPI-JE1IT OPERATOR 46271.86 $ 1.427.268.89 20.63%
FIRE FIGHTER 82726.45 $ 1.671.304.78 24.16%
FIRE RESCUE S'PECrIALI T 11360.86 $ 393.111.65 5.68%
FIFE/ElvIS SPECIALIST II 36081.30 $ 1.501.078.69 21.70%
Grand Total 216373.90 699169810.25
HFD paid $1.6 million in earned sick and $2.5 million in earned vacation time in FY 2021.
Position Hours Amount Percentage
SICK 60302.03 $ 1.014.011.60 38.86%
V -nON 00000.00 $ 2.540.502.52 01.14%
Grand Total l 140 171.72 4J559374.08
Source:Eden pyActHstSumDet Time Period 07/01/20 to 06/30/21.Compiled Courtesy County Auditor
36 1
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 H FFA 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.
371Page
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
381Page
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 $ 1,693,518.75
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 $ 1,891,233.00
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 11 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 11 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.
391 Page
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 11 $ 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 N FPA 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.
401Page
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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 1 Page
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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.
441 Page
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:
• H 125 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
• BM E 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.
451Page
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 1 Page
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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.
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Cause and condition
HFD has outdated policies and procedures that are not reviewed annually.
Effect
HFD'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
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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 asingle-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.
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NFPA Benchmarks
Benchmark I st Tier 2nd Tier
Alarm An six er 10- Sec 90", of the time 4 0 'ec % of the time
Alarm P roc ess i ng 164 Sec 9 0% of the time 10 6 S ec 9 5% of the time
E M S Turn out 60 Sec
Fire T urn out 80 Sec
First Engine Due 240 Sec (4) Min 90% of the time
r rritia i Full AI arm
H i h Hazard 610 Sec aOmin 10 se c) 90 of the time
Low/Medium Hazard 480 Sec (0 min) 90% of the time
ec and E ngine D Lie 6-60 S ec (6) Min 90% of the ti me
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
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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 1 Page
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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 Solutions0 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 1 Page
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
531Page
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 Page
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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.
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■
Conci usion
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 Page
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 Hawaii Fire Department's unrestricted
access to sites, information, personnel, and coordination throughout the audit. The cooperation
was exceptional.
571 Page
Management Response
Mitcha'll D.Rathf - I uo B-IL L.Todd
rqw firer Cid
Lee E.Lo7d ', - � Eric H,batter
kram!elz"Mrn-j l r JO rkrT!FW r W
P ar
KAWAYI FHZE DEPARTMENT
15.%Upu■i-sirml a SENe 15@1 a HBO.]IrrLA i 9672G
(RN)SL32-2900*Fax i8UR 1 932-29n
)March 11,2022
Mf-Tyler Bciiner
Hawai'i County Auditor
120 Pauahi SL,Shite 309
H iloa F{awai+i 96720
RE; CHIEF'S RE SPOMSE TO AUDIT
Aloha Mr.Benner--
Thank
enn r--
Tha k you for the time arid effort in conducting this thorough analysis of our department's
services and processes. I thunk this report is wet I thought out,and while I wish it went into inn re
dietail in certain arms,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 he working,towards or]avie
achieved accreditation and be following most if not all of the.processes noted in the.
reccmr ir,er dations-That said,1 believe that the Hawai'i Fire Npartir ent has done the best Joh it
could leading ups to this point-Most of the.co npatahle departments within this.docunwnt am
excellent comparison s based on their depanment size.and the population they serve.(p:g.38)_
However,when we examine the data the. majority of these comparable.fire departments have
access to resources such as:
1- Mom administrative staffing(5 of 5)
I Smaller respmse was(5 of 5)
I Less lire stations to mmnage and fund(5 of 5)
4- Mom faire fighters per station and&hi d(5 of 5)
5- No voltmteers fire stations to furl(5 of 5)
6- No EMS services provided(4 of 5)
7- No Ocean Safety services provided(5 of 5)
9- Larger percentage.of operating capital to their perso ne I costs(4 of 5)
9- A Luger budget to provide and manage fire.services(5 of 5)
10.A huger percentage of the.counties to-tal budget(5 of 5)
idcring the current lin itations of ing.,equ ipine�I'aciliti�, and fundi n-P I anti not
confident ca how much headway we.will he able.to achieve towards theme
VW4.9
0 rawae'e Cm"i f mi i rqLLw r Opporf rrnby ArmVer m,i d E mplayrr.
581 Page
recoinirienad.ations-As noted in this report_the.previous ministration had put together a
strategic plan to address many of the above noted weas_Also as noted, not much,was achieved
over the course of that platy pEriCd Making the.strategie plats low inuch like a Wish list
The Hawai`i Fire Depa.rttnent has a Iona road to travel to become an
aocreditied puhlie service organization..While.we can have the hest
ideas and plans in the.world,they are ultimately just really nice
dreams on paper w itltout the resources to achieve them- To give an � -
r -
example of what I mean,let's say we recognize an issue that needs f
attention.After a nal is,we.define our problem as the apartment r
Ewxt der to us i&on fire_ We create a plat to u se water to put out �
the Fire_We thea take action by gnickly applying water on the#ire.
However if'the process we use is a small grater bucket,we arc ®AxuJ zcd Ptoblern
ultimately not going to he successful_Cu resources to meet the. m Creawd a Ran
needs of the planned solution are not adequate.. While the m Appikeid Action
recorniiner dations in this docLurnent are exoellenta the Hawai'i Fire 9
0
Mpartment is currently liir iced in our available.resour-ces to achieve.
then]Within a practical ti naei'r33tne_
1 n sumnixy,l agree with the.recommendations and believe that the public deserves a department
that is performing among its peers rationally_ L be]-eve that we.must meet a consensus standard
for providing ci-nergency response and safety,while being:i wal Iy responsible to the public and
its taxpayers. Thank you for the timeand effort spent writing this document_We will do our best
to implement these recommendatians and to produce the best possible Hawai'i Fire Department
for the Com mty of Hawai"i. please refer to the attached follow up document ori the sped fie
response to each recommendation with details on our time fra me and cr l mitations on expected
implemertat ic3t.
Sincerely,
C 9
xir
KAZUO S.I _L_TODD
Fire Chief
CC: Honorable Mai le Mederi09 David,Council Chair
a31d Menabers of the. Hawaa"i County Council
591 Page
mitcheil D.Rathry� r haus S.K_LI Todd
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lie RL Lord - 1 ark HL.Dollar
Vanuting fairri-ew ,; DLyari f'bq 13W
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Co 11 n tv of foatual Jr i
WJIiI FIRE DEPARTMENT
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MANAGE M ENT"S IBES PONS E TO AT 1 DIT ILEI=OM M EN DATION S
Recon mend ation I
We recoimminend HFD develop a nuswr plat.
lieLcommend ation 2
We mcom mend HFD work toward C FAI accreditat'Lon as f eponed in the if Ha i{i Fire
Delmni-nent Strategic Mar,2015-2020-
Management ltesponse to Rerommen d,-1tiGBS I & 2
We concur with these reconinmidatiotis w'Ldi rcservat-lons-
Managumnt is in ful l agreement with these recommendations,but the following circumstances
could affect the inipleme station. The fire depanment has I irnited.free staffing or funs inn to
a]locate tows achieving either of these recom mndations. To achieve thew recommendations
we.recommend the fbilowing:
I. Hire an external organizatilon through co-operatiwe procurement to work with the Fire
Department to put together a master plan.,community risk assessments and strategic plan
which meets eons esus state. Initial research has sho%m this to nim approx i nately
14311 9 .
1 Mi Prof the Hawaii police I partment and create.a section who manages accreditation_
Police has a full time staff of one.lieutenant,two sergeants,and one clerk I]I to maintain
their accreditation status_In discussions with HIT they also teed to borrow several staff'
members fTona other sections when accreditntic n renewal comes up. To this
with-m HFD we would reconimmnd the creat ion of one fire captain positlGii,one program
managey position.and two clerk[II PcsiticM+Estilmated total cost is$266,500 annually
based oto med-Cut Plage fbr these positions-
3- Prc urcrrJent of' training for our chief officers at the Center%s fir clic Saf'ty
Quality l tnprovement for the Fire and Enmrgency Services worksh (20 held per year).
Three day course with costs is antic ipated to be S49,200-
1
9 00-1 n-pleinentation ye-r would cost$459,500 0 to start the process,with a cor ti tau i :g COAs Of
$2667500 annually thereafter_The. fire departt w t will I try to complete this process as effectively
as we cats_We anticipate. -Implementing of the.fol lowing docuincnts her;
w� -
r
0 iaC ri ri C.,rr1 v 6:mi i rqLLw a art urj i"Pkeider m i LY E i rrp fm1 r.
601 Page
FiLeded Iespo■mitle Fast t Infuod-ed l&spansa-ble
Jm lemma taticin Party I m pLemcnLation narg
10 year Lang Juni 21)n Cant-actor& S&5..450 June 2 cheer Todd
RangeNtasicr H.FD StEL f
Flan LRAI R
SLAndAJAN Of Scp4ember n Contra Mr& $4.2010 luat 2027 c'hicrTacid
Co)'-Cr(.S0<:)& HFD staff' J$78..000 if
Community Fisk Barak fmm
Asscwnent LRNIF)
:S v-ear Dtcembrr n Contractor& S]050 lure 2 C111orT
t_'Ommunity HFD staff
Centered
Recommendation 3
We recommend HYD develop and implien-lent a coinprchiensive vehicle profile for each of-its
apparatus_
Recommendation 4
W c further recommend HYD develop and irnpl-erne t a nwintenance and replacenient plea to
ensure safe and co st-effect-we operat Lons based on evidence_The plea should include the.
f'ollowingI
+ Establish a comprehiensive.vehicle. list
Trach age,mileage.,and condition
Deterinjine wh-Ich Yehiclies are appropriate for what terraifl
* Establishing replaocimer t targets(age.,rnilicage.i lifetinm nuLir tienance costs,class of
vehlic Ie,etc,)
+ Regular it aeon of lie-P h-risk vehicles
+ Assign apparatus ftom K;;i lnolu e.stations to low Volume status to extend the.useable
life
] Inn ag-ement R-espon se to Recommcndntio ns 3& 4
We coitcur with these recnninwndat-Ions wifli reg -al-Ions_
M g nt is in Full agement with these recoini endat-Ions,but the fbIl -ing circutrstances
could affect the implementation-The fire department has l iiir,-Ited free staffing and fundi rig to
al locate tows ach-leviing either of'these recomnwndati ..To ach'Leve them recojtnit cndatior s
WV.FFDp4ZGe the follGWIng:
1_ Creation of a Clerk l[I posit ion to work wilth the inechan-Ics shop to start the process of
traeLng vehicle repairs,maintenance,and status. Esti Crated cost is $43,500 hasedl on
rnedian wage of the.position. (this can also be found on supplenwntal request#7 for FY
2V23)
I Creation of a Clerk III position ifl Aux]I'Lary Services to support the wareliou w and free
up Battal ion Chief Hara from clerical work to pursue.thiese initiatives. Esti fated cost is
611 Page
3a10D based ca median.wage of t]1e Po sition-(this can also be foul on supplemantal
request#3 for FY 22123)
I Replacement of'the.record rnanagment system to allow for the.tracking of vehicle
statuses}repairs}and maintenance.New RMS system is estimated to run$45,f a yew-
Current budgeted legacy syste rri is$19,000 a year,so an increase of S26,MO a year for
wf ware is heeded_
Total costs of implementation off'recurnrnendati 3&4 is$113,500 added to the fiscal budget-
Banal-Ion
udget_Ban l-Ion Chief Vern Hare w ill N responsible f'or implementation and policy deployment_We.
anticipate implumntation to be completed by lwte of 2023 with adequate funding-
Recommendation
undi g_Recommendation 5
We recommend HF D work with its Fire Captains to develop a system to compile and inainta-In a
master list of work order items_Where appropriate,HFD should leverage its ecoaomy of scale
into CIP pro,-ectsa including but not 11m Lied to:
+ Central C installs
+ Roof repairs
Overhead door repairs
* Exhaust systents
Generator installs
Review]ease agreements to verify landlord oh]igati ns regaling facii Iities rrl3 it tenance.
Minna meet response tG Recomimendations 5
We concur with these recommandat-lons-
Management is In f'u]I agreement with these recoininendation&It should be noted t]tat the Hawaii
Fire Department has in the past subna-Itted econoiny of wale projects,regular projects_ small
PrDi ects�and even very large progects to the Department of Public Works-The build Lngs we
reside in 24 how a day and respond from are owned and nuintained for the most part by DPW.
As an example the Paliala Fire Station roof was identified in 20017 as needing replacement by
DPW. Since theft the cowlty has spent over$200,000 in p1win Lng the process of char ging the
roof for the stat-kon,but has yet to actually replace the roof.Fire personnel currently sleep ire a
build-Ing With buckets to catch rant water,and large sections of'the roof rusted array_
The Hawaii Fire Deparune t has m ininul control or ahil ity to effect repairs on the structures we
currently inhabit. That said,we axe in agreement that we should have a bettor tracking system for
al I of our repairs and work orders. Batta]ion Chief Vern Hara is cu rrently in charge of th-1 s. He is
a]so its charge of orderin&contracts,procurement,distribution,niaintenance,dispatch- records,
and our mechanics. Rehas no clen'Cal staff'to assist h inti In theme duties.To achieve this
recornrncnAation.we. recons ien.d the foil -Ing:
1_ Creatioa of a Clerk l E pcs it ion in Auxi I iar�Services to support the w house and f�ee
up Battalion Chief Hara from clerical work to pursue.these i nitia-1ves. Est inuted cwt is
$43,50D based on median wage of t]ie position_(this is a duplicate of out above
recommendation,and can also be found on supplumntal request 43 for Fri'2 2)23)
621 Page
Th is would allow hirn to free.up tirne currently being spent on c Ierical work-Total costs of
implementation of reco.mmiendation 5 is$43,500 added to the fiscal budget. Battal-ion Chief Vern
Hara will he respo nsihle for implementatica and policy deplDyMent We anticipate
implementation to be completed by April of 2023 with adequate fund-Ing.
Recommendation 6
We recommend HFD pilot a relief pool program to control ovcrti me expenditures while better
rneeti rig constant staffing needs_
Management Response to Ruommendntion 6
We concur with rig this recommendation.
Flaying taken a cursory look at the data provided we think that this reoommendation proyides
Ycry interesting potential to provide sting and potentially reduce costs_At thus time we mot
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 Chiief Moller will in the.lead on this}with Distance from Assistant Chlief
Ok-Inaka.He has no clerical staff to assist h-Min in these duties_To achieve this reconuniendation
we.propose the following=
1_ Creation of a Clerk l E pos ition i n Admin to snppo rt the.Assistant CIS ief-and free him up
from clerical work to pursue these initiatives.Estimated cost is$43,500 based on median
wage of'the.p061tiotk_(this can also be found on supplemental request P3 for FY 22/23)
rumen-end atrnn 7
We further rncoinmend HFD follow and enforce internal controls to limit ranlr-for-rte overtime
to ninety-six Flours for each qua&_1Me5teL
Reconirn v nd atio n 8
We further riecoininer d HFD follow and enforoe the.nm-emiergen r overtime policy_
Management response to Rerom nien datio n s 7& 8
We concur wiLh these recommandations_
e will I start enfoTcing-internal control limits on rank,for-raELk overtime,and enforce the non-
emergency overti me pol ley. Dart of the difficulty of this is our current tracking of data is on
paper timesheets,and pull-Ing statistics i.a the past has been 1-1 United by available fin a to manually
compile data_ a will Heed sorne help from the County Auditor's Office ire setting up automatic
data analysis on payroll statistics,or consider alternative systems or programs that can track this
data in real tip_Assistant Chief Darwin Okinaka.will he responsible for this,and will I have his
operational battal ion chiefs enforoe this pol ley. We.believewith some assistance the County
Auditor's ofTios on automating our data,we can have this implemented by July of 2022_To
aohieye.these recoininendations we.propose the follovn'rg=
631 Page
I_ Creation of a CIS III position in Adni-in to support the.Assi$tar1t CIS ieh and free him up
fronn clerical work to pursue these initiatives. Fstilmated cast is$43.500 based an median
wage of the pos itio n_(this is a duplicate of our above recommendation,and can also be
found on supplemental request##3 for FY 2 23)
Recd mme nd titin n 9
We recoinr; d HFD develop budgeting bench mar#m to assist county management 4 s
understand-Ing of eget requests_
J im2gemen t response to Recommendstian 9
We emcur w-Ith thus recommendation_
]r1 nagenwnt is iu Full� rrti t ith this re ornrra r� tiorL This is son-wthing we are currently
work-hig on when th-ne permit$_ It is noted that we bel i e P000m endatiot�s 1,2 are highly tied
Lntn th,is request_To give the best i11fonm ion on what the.department should he budget-Ing fbr,a
Sta.ndards of Cover(SOC),a Community Centered Strategic Plan.,mid a Community Risk
sessiment are critical.Thee d ui-amts lay out the expected level of'servicc mud are critical to
bas'Lng budget goals and benchniar"_
To h,-leve this recon nendation we propose the following:
1_ Creatioa of a Business Manager position iii Admin.to support the Fire Chiu'is his pursuit
of this recommendation..F-stinaated cost is$1041652 based on inn ian wage of the
position_(this can a]so be found on supplen-tental request�,3 for FY 2=)
I Fund-]ng for recotr m-cildat'Lons 1 &2(.459,500)
Chile f Todd is responsible.for th is reccmrnmmaroon. We.will seer a carnplete and thorough
accounting for each fiscal year in September to present for the budgetary cycle_
recommend ation 10
We recommend HFD evaluate its volunteer program to:
+
Enhance the incentive for participntiO31
+
Develop orgaluizational structure and support roles
+ Invest into Volunteer infrastructinea especially those servic'Lng rural communities who
often reFre-eat the first Dile of defense.
Mimagemen t Respon she to Recommendstian 10
We emc ur with these ronin-midations with comments..
Management is i n ful I a Bement with this recommendation, but it should be noted that
inipleine tatiOn of any evaluation find-Ings,will probably run into-a funding wall. While
administration can produce a report after evaluating the volunteer program, the largest issue 15
that there i$ainnost no f nid-ing to support the 19 Yo]ur teer fire stations_realistically to fund and
replace vehicles build up proper-infrastructure,and to handle adln istrative paperwork we can
roughly estilmate that th is section heeds a budget of at least several million dollars and the
641 Page
addition of support staff positions_To achieve thlese recommendatio n we reemu end the
foIIOw-Ing=
]_ Approval of supplemental budgetary request 49A for FY 22J23 f6r$455,000 to fwd
add itiona I positions to support the Yolur teer senors of the fire department.
_ Approval of supplemental budgetary request 090 for FY 22J23 for$1200.,000 to find
operating capita]expenditures to support the volunteer wetions of the firs department-
The
epartme t_The total ecosts of these reeonunendatlolls are $1-6537000. Management will evaluate.the
voluntaff program to rneet the goal s of the.reeonunendafwFL..Volunteer Commander Bertsch and
the Two Fig Captains,assiVied to the volunteer section will work on Nis-An analysis and him I
report will be completed and submitted by September 2122_
Recommend ntion 11.
We recommend HF D can-nark a set number of training hours annually for each employee based
on their position,title and trainting needed to main taint profie iency.
Recommend at"On 12.
We further recommend HFD develop a tracki rig"Chan'LSM to]r e3sure=
+ Participation
+ Certifications held
* Renewal dates
Nlan agement response to Reeom nien d atio ns i 1 & 12
We concur with these reeoninviidat-lons%v 1 di res tiofls_
M nagement is its f'u]I agNement with these rccornmendatiors,but the following circumstances
could affect the implementation. The fire department believes that haying adequate i rr+�nt
and aeeour tabi lity of the trai n-1 n-P is essential to ma it ta-in-Ing safety of our personnel and to
pfcmiuee the hest outcomes for die public..It should be Noted that there are currently only three
salaried pens.on tel in the training branch to handle the tr3'ning of 4D flee firefighter reeru its each
year,and manage co stir ued training and cern ficatien of over 400 employees who]aye an
average of 5 cern fieat'Lens and or licenses that reed n.'Ln ir,:g,and documentation_The training
bTanch has no clerical staff.
Mgement will earma k a set number of training hours,and produee a plan to track the hours
properly for oertifieatio n held by person nel. Battalion,Chief Pair-Ick Spriager will be in charge of
this_A repeTt will be completed by September 2.022_The.success of any reeotnmendat ion from
this report wi-11 probably highly rely on.finding support_To achieve these reeonin-wndat-ions we
prise the following:
3_ Creation of a Clerk l E position in the Train-Ing Sect ion to support Battalion Chief
Springer and handle clerical work so that he can pursue these Est-linated cost i9
$437500 based on med-ian wage of the po sition-(this can a]so be found on supplemental
request 03 for FY 22123)
651 Page
4- Creation o t Four(4)recruit training officer positi011s to suPpOrt tra Ln Ln!g Operations for
firefightier recruits.Thew pos it iO»are-currently being fm1ded through overt]Me-
Expected cost are$27:9,803 annually to fLnd the.base salzries for these positions(this Ca
also he found on supplemental request 09E for EY 22J23)
5- Approval of supplenwntal budgetary request#9F for 1FY 22J23 for$300-000 to fund
training and maintenanoo of certifications for the fire dcpartment.
T w total cost of thew :eco tntnendations are $622,3 03 annually-
RecGmu md atio n:M 13.
It is recommend HFLA work with Finance to revise the.County's Vehicle Use policy,specifically
the refill gas section,to include provisions for electrically powered vichielies.
Manag-ement Response to Recommend2tinnS 13
We concur with this reoorr mendation-
Meconnae t is in full agreement with this recommendation. A policy has been developed,
cLe rly stab rig the issues and consequences of util ming Employer provided services without
eornpensation or authoriZation- This policy is required to he consulted ori- The. Policy will be
put iltto effect following the consultation pmosss-
Additionally, Management feels that With the increased emphasis on Electric Vehicles and the
potient ial transfer of the County Flet to non.fossil fuel vehicles,fee driven Electric Power
Recharging Stations at al I Eire Dcpartment Facilities would be.a positive initiative-
The.fire deparnent gill try to complete this process as score as we.cats- We antic ipate
implenienfl rig an E�naployer Provided Services Standard Operating Guide by June 2022
Deputy Eire C hied'Mollier will be responsible for uriplemettit-Ing the recommendation for policy
develcpnw rpt and triennial re-view-
661 Page
County of Hawaii � ��
Office of the Count Auditor 1-
i _ F
County Auditor ti
120 Pauahi St., 309 �� F•I
Hilo, HI 96720
808.961.8386 •
www.haws i icou ntygov
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:
https://www.hawaiicounty.gov/our-county/legislative/office-of-the-county-auditor/audit-reports