HARROGATE, TENNESSEE
FIRE PROTECTION MANAGEMENT REPORT
AND RECOMMENDATIONS
January 2008
Gary L. West, Fire Management Consultant
The University of Tennessee, Institute for Public Service
Municipal Technical Advisory Service
Harrogate, Tennessee
Fire Protection Management Report and Recommendations
In October 2007, Gary L. West, Fire Management Consultant,
with the University of Tennessee’s Municipal Technical
Advisory Service (MTAS) visited the City of Harrogate and the
Harrogate Volunteer Fire Department (VFD). This visit was
made as a result of a request from city council who asked
MTAS to look at the fire department and report if they should
have an ISO review as well as make recommendations on
how the department could be improved. Gary West made a return visit to a council
workshop meeting and provided a brief report on how the Harrogate VFD was doing.
Several questions were asked relating to an ISO review and mutual aid with neighboring
Cumberland Gap. This report is a follow-up to answer those questions and report other
findings about the Harrogate VFD. It is also intended to provide recommendations to
help the city support the fire department in the future.
Introduction
The Harrogate VFD is your typical small city fire department as seen across most rural
areas of Tennessee. It is supported under the local city government and operated by a
small group of dedicated volunteer firefighters. The fire chief, John Adams, is charged
with the operation of the department and it appears that he has done an exceptional job
in basically building a new fire department for the City of Harrogate.
The fire chief is unquestionably the most important position in the modern volunteer fire
department. The vision and direction of the department must be determined and led by
the fire chief. The success or failure of the department or any part of it is the
responsibility of the volunteer fire chief. In summary, the fire chief is accountable for the
volunteer fire department just as the chief executive officer is of any corporation.
Likewise, the city council has a responsibility to be involved by supporting the needs
associated in meeting the goals and objectives of the fire department.
Since the City of Harrogate has only started a volunteer fire department in recent time, it
is suggested that a review of the city ordinances be conducted to assure that the fire
department is properly organized and recognized by the city. The Harrogate ordinances
were not available for review at the time of this report.
Typically the fire department objectives are set through city ordinance and should be
followed specifically. The ordinance not only lists specific objectives that should be
carried out but also describes the power and authority of the fire chief.
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Organization
The fire chief is the head of the Harrogate VFD and is assisted by individuals to
efficiently operate the department. Again, an ordinance setting up the VFD should
place the responsibility for organizing the fire department, developing standard
operating procedures and for keeping detailed records on the fire chief.
MTAS also recommends that the fire chief submit a written report on fire department
activities and calls to the mayor once each month as well as provide a detailed annual
report to the city council.
It wasn’t reported if the VFD had written Standard Operating Procedures (SOP’s), rules
and regulations, or “Guidelines” but if it doesn’t, it is recommended that some written
form of these be adopted for the operation of the fire department. The city should also
have information on every volunteer firefighter or member that has been appointed or
assigned by the fire chief.
It was reported that the city provides a budget of approximately $24,610 annually for the
operation of the fire department and supplemental funding comes from a county fire
allocation and donations. A well-planned budget is necessary to properly operate a
VFD. This budget can be affected by outside influence including the changes in safety
standards and regulations. Some of these are mentioned later in this report; however,
much planning is needed to adequately fund a fire department. All equipment used by a
fire department is very expensive and in many cases like turnout gear, specially tailored
to the individual.
Because city council has to plan for these types of expenditures several years in
advance, MTAS recommends that a five-year plan be submitted each year with the fire
department’s budget request. This also allows to better plan for capital assets
associated with the fire department. The five-year plan should be revised every year
and be realistic and flexible.
Fire Department Resources
The operation of a fire department is always limited by the number, type, and
performance of resources that it has. These resources include three basic components:
1) Manpower Resources
2) Apparatus and Equipment Resources
3) Facility Resources
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The preferred amount of these resources is primarily determined by two factors. First,
what the community needs. With every community being different, every community
has different needs or different levels for service. Conducting risk assessments of the
fire department response area and prioritizing potential problems that could result in
harming people is the first step to establishing the need for services. This risk
assessment is not a one-time procedure; it is a continuing process that must be done on
a regular basis. Every community is different and is always changing. Things like
installing fire sprinklers in buildings reduce community risk whereas the construction of
a hazardous materials storage facility in a community increases risk. It must also be
considered that all three types of resources are connected and when increasing or
decreasing one resource, consideration for increasing or decreasing the other two must
be reviewed.
Secondly, the amount of resources preferred depends on the willingness of customers
to pay for the service. If customers, in this case the taxpayer, are not willing to pay for
the service it will be impossible to provide the service. Sometimes other sources of
funding such as grants can be utilized to initially provide service but after funding is
depleted, the service will also diminish. In basic terms, customers get what they are
willing to pay for.
Membership
An outstanding opportunity exists to recruit new members with the expending of the fire
department into a new fire station and having necessary apparatus to properly respond.
As with most fire departments of this size, the most challenging part for the fire chief is
the recruitment and retention of volunteer firefighters. Most small city fire departments
struggle to maintain memberships and Harrogate is no exception. According to Chief
Adams, Harrogate VFD has 15 active and dependable volunteer firefighters. This is an
excellent number for a city the size of Harrogate.
Retention is even more important than recruitment and selection. After all, you must
stop the bleeding before you can heal the wound. Retention strategies can be classified
into two categories: consistent training and effective communication.
Training is essential for professional job performance and for organizational
development. It is illogical to assume that people will perform effectively without
adequate training. People not adequately prepared to handle new and unsettling
situations often leave the job prematurely, setting into motion a cycle of turnover.
Poor Training = High Turnover = More Recruitment Needed
It is vital for both the fire chief and city leaders to truly understand training and its role in
the volunteer fire department. Training is an ongoing process that improves a
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firefighter’s knowledge, skills, and abilities. It must be continuous and challenging, take
on many forms, and must use a variety of approaches.
Initial orientation training is the best way to establish a strong foundation for the
volunteer firefighter. It is vital that new volunteer firefighters be provided with as solid a
foundation as possible during this phase, which serves to prepare them for job
challenges and to signify their importance to the organization. The other method to
improve retention is through effective communication throughout the volunteer fire
department.
Effective training and communication programs will create the atmosphere to inspire
retention of the right people. The department cannot mandate or demand that
volunteers stay with the organization. All they can do is create the proper conditions,
provide incentives, and invite the right people to stay. Some turnover can be healthy for
organizations and presents a great opportunity to inject new energized talent into the
department. Excessive turnover, however, can be extremely damaging to any
organization, especially those engaged in the business of saving lives. Therefore, great
emphasis must be placed on retaining the right people.
Recruiting, selecting, and retaining the best talent needs to be at the top of every
organization’s list of strategic goals. The reality in today’s knowledge era is that the
difference between mediocrity and greatness lies in the application of human intellect.
Intelligence, enthusiasm, and brainpower are critical assets for success. Harrogate
residents include many talented people, and in a volunteer fire department there are
many jobs besides fighting fires. In fact, the record shows that Harrogate doesn’t have
fires but on rare occasions and there are many other jobs that are needed to be filled in
addition to firefighting.
Apparatus and Equipment Resources
Apparatus and equipment resources are considered the second most valuable resource
of the fire department. Fire apparatus used by the Harrogate VFD includes a fleet of
one fire engine, a water tanker truck, a 50 foot telesquirt engine, and a rescue truck.
One of the most important capital assets of a volunteer fire department is a fleet of
dependable fire apparatus. Firefighters depend heavily on the performance capabilities
of these vehicles when delivering emergency services to protect life, property, and the
environment. If these services are to be provided without interruption, fire apparatus
must be maintained in excellent operating condition. When adequate performance
levels can no longer be certain, apparatus should be replaced promptly. The key to
determining vehicle replacement requires planning and making arrangements before
the apparatus wears out or fails.
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Harrogate Apparatus
Engine 85 – 1985 Pierce “Dash” Fire Engine
This fire engine has a 1,250 gallon per minute (GPM) pump and a 500 gallon water
tank. It is fully equipped with all equipment as specified by NFPA 1901 and ISO. The
truck is considered to be in good condition and is presently kept at Harrogate Station 2.
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Tanker 84 – 1972 Tanker Truck
This tanker truck has a 1,000 gallon per minute (GPM) pump and master stream deck
gun with a 4,000 gallon water tank. It was being repaired during the MTAS survey but
appears to be a very reliable and useful truck.
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Telesquirt Engine – 1977 Pierce 50 foot Telesquirt Engine
The City of Harrogate recently purchased this truck to be housed in the new Harrogate
Station 1. It is a 1977 Pierce chassis that was refurbished completely in 1993. The
engine has a 1,250 gallon per minute pump and a 500 gallon water tank.
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Rescue 87 – Converted Ambulance Chassis to Rescue Truck
The city obtained this truck to offer rescue services to the area. Classified as a rescue
vehicle and support truck by ISO, the truck does not have a fixed fire pump and does
not carry water.
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Maximum Age for Apparatus
The ISO Fire Suppression Rating Schedule (FSRS) does not specify any maximum age
for fire apparatus. ISO uses NFPA standards to define whether or not the apparatus
meets general requirements. In addition, fire engine apparatus must pass a pump test.
ISO will credit a fire engine with its capability (gallons per minute) at a net pump
pressure of 150 pounds per square inch. The older the apparatus, the less likely that it
will continue to pass an annual pump test.
Fire apparatus replacement should be a carefully planned process that is conducted at
regular intervals. The cost involved with the purchase of a single fire apparatus may
appear small when compared to the need to purchase multiple units in a short time
period. Improper planning can place a severe financial burden on the fund balance of
any city regardless of size.
According to recent research, the life span of fire engines subjected to moderate and
heavy use was estimated at 10 to 15 years. Conversely, the life span of fire apparatus
subjected to very light use was estimated at 20 years. Replacement intervals should be
based on the estimated effects of variables such as age, use, and maintenance costs
on the useful life span of fire apparatus as well as account for the time required to
prepare bid specifications, conduct bid processes, and construct and deliver apparatus.
NFPA 1901 – Standard for Automotive Fire Apparatus, 2003 edition, annex D:
“To maximize firefighter capabilities and minimize risk of injuries, it is important that fire apparatus be
equipped with the latest safety features and operating capabilities. In the last 10 to 15 years, much
progress has been made in upgrading functional capabilities and improving the safety features of fire
apparatus. Apparatus built prior to 1991 might have few of the safety upgrades required by the 1991 and
subsequent editions of the NFPA fire department apparatus standards. Because the changes, upgrades,
and fine tuning to NFPA 1901 since 1991 have been truly significant, especially in the area of safety, fire
departments should seriously consider the value (or risk) to firefighters by keeping pre-1991 fire
apparatus in first-line service.”
“It is recommended that apparatus built to meet the 1979 or 1985 edition of NFPA 1901 be placed in
reserve status and upgraded to incorporate as many features of the post-1991 fire apparatus as possible.
Apparatus not built to NFPA apparatus standards or manufactured prior to 1979 (over 26 years old)
should be considered for upgrading or replacement.”
“It is a generally accepted fact that fire apparatus, like all types of mechanical devices, have a finite life.
How long that is depends on many factors. Some of those factors are mileage, quality of the preventative
maintenance program, quality of the driver training program and rules enforcement, quality of the original
builder and components, availability of parts, and custom or commercial chassis to name a few. In the fire
service, there are fire apparatus with 8 to 10 years of service that are just plain worn out. There are also
fire apparatus that were built with quality components, that had excellent maintenance, and that have
responded to a minimum number of runs that are still serviceable after 20 years. Most would agree that
the quality and timeliness of maintenance are perhaps the most significant factors in determining how well
a fire apparatus ages.”
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Equipment
Equipment is defined as the physical resources carried on fire apparatus and used by
firefighters. Equipment should be replaced when its reliability becomes questionable or
when technological improvements make it clearly obsolete. Personnel safety, public
safety, and customer service should be the major considerations in equipment
purchases. The City of Harrogate should strive to provide the very best in firefighting
equipment as it plays a key role in firefighter effectiveness and safety. This equipment
should be purchased on an ongoing basis through the department's operating
equipment replacement budget.
Hose Testing and Apparatus Testing
All fire hose including both supply and attack hose are tested annually and in
accordance with NFPA 1962. For maximum credit with ISO the average interval
between the three most recent tests must be one year. All fire hose is tested and hose
test records are available for review from the past three years.
It is recommended that a firefighter be assigned the responsibility of testing fire hose
and maintaining hose test records. The fire department should keep annual records of
hose testing for the past 3 years on file. All hose testing procedures should meet the
NFPA 1962 Standard.
Annual fire engine pump tests are also required for all apparatus having a pump with a
capacity over 250 gpm although the actual reason to test apparatus is to ensure the
apparatus will actually survive a real fire. According to ISO, a keyword to remember is
testing apparatus every 12 months or less, not every year. If it is more than 12 months,
the department will get docked points on the ISO rating. If the unit is overweight, the
department can expect to lose another 2 to 4 percent credit. Fire engine pump tests
should be coordinated by one firefighter who will also maintain the maintenance files
and testing documentation for the past three years.
Needed Fire Flow
Needed fire flow is the amount of water that should be available for providing fire
protection at selected locations throughout a community. These target areas each have
fire flow requirements; ISO has also assigned a needed fire flow for the community.
The available fire flow for a community is basically achieved by adding the total fire
engine pump capacity as being the basic available fire flow. Compare this available
amount to the needed fire flow to determine any deficiency. The available fire flow is
currently 2,500 gpm.
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Facility Resources
Facilities are the final of the three primary resources and in Harrogate it includes two
multi-bay fire stations located in two remote areas from each other. The fire stations
seem to be adequate to house all of the Harrogate fire apparatus. Station one was still
under construction at the time of the survey and station two had been recently
remodeled. The new station will have an office and meeting room for members to
gather and have training.
The key consideration in determining a fire station location is the maximum total
response time. In fires, response time must be kept short enough to ensure that the
total average time does not exceed the six-to-nine-minute flashover time. Flashover is
the instantaneous eruption into flames, which generates a tremendous amount of heat,
smoke, and pressure, with enough force to push beyond the room of origin through
doors and windows. The combustion process then accelerates because there is an
even greater amount of heat to move to unburned objects.
Harrogate VFD – Fire Station
825 Brunswick Drive
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New Harrogate Fire Station under construction
Response Time
The importance of time: Time is the critical element when an emergency is reported.
Fire growth can expand at a rate of many times its volume per minute. For every
minute a fire burns, it will double in size. Time is the critical factor for the rescue of
occupants and the application of water to minimize the fire loss and conserve property.
The time segment between fire ignition and the start of fire suppression has a direct
relationship to the fire loss. Having firefighters at the fire station to respond quickly to
emergency calls increases the response time tremendously. Firefighters should be
encouraged to hang out or standby at the fire station whenever possible to increase this
response time. Again, the only way the fire department can accomplish this and
preserve the quality of life for its citizens is to respond in a timely manner with adequate
resources.
As seen above, time is a critical factor in any emergency response.
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Fire Department Training
Training is critical in providing basic firefighting capabilities. According to Chief Adams,
the Harrogate VFD has five members trained through the live-burn practical and has 4
additional members soon going for the live-burn training. Chief Adams also sends
several firefighters to the Smoky Mountain Weekend training each year as well as
safety officer courses.
Training is a critical function for any volunteer fire department. As fire service work
becomes more complex and diversified, the knowledge required, government
regulations, and professional standards lead to increases in overall training needs for
the department. Documentation and records management are essential elements of
that process. Maintenance of existing key programs is vital.
Health and Safety
Individuals working in public safety whether paid or as a volunteer, particularly
firefighting personnel perform one of the most physically demanding, and mentally
stressful occupations in the nation. Quite often, fire personnel are subjected to
environments that require rapid physical and mental response with a minimum of
preparation. Health and safety are a major concern for any progressive fire chief.
Harrogate is no exception and Chief Adams understands the necessity to meet these
standards as much as possible.
OSHA Compliance
OSHA 29 CFR 1910 Subpart I - Personal Protective Equipment requires that the
employer (including volunteer fire departments) assess the workplace to determine what
hazards are present to necessitate the use of personal protective equipment. The
employer shall provide each employee with eye and face protection, respiratory
protection, head and foot protection, electrical protective equipment and hand protection
equipment. Not only is the employer required to provide the equipment but also ensure
that everything properly fits and that each employee is properly trained in the use of the
equipment. The law continues with explicit requirements for specific situations. The fire
chief as well as city council should be aware of these requirements and provide all
personnel with the required equipment.
The fire department should also follow the OSHA 29 CFR 1910.1030 – Bloodborne
Pathogens law that requires each volunteer fire department to have an Exposure
Control Plan and provide training and equipment to prevent the exposure to bloodborne
pathogens.
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OSHA 29 CFR 1910.134 – Respiratory Protection Program requires the volunteer fire
department to designate a qualified respiratory protection program administrator to
implement and oversee the program. This law also requires the department to conduct
at least annual fit tests of respirators and requires firefighters to go through an annual
medical evaluation. Again, the employer is responsible for providing the necessary
equipment and training as well as keeping detailed records. Air quality in supplied air
respirators must also be tested on a regular basis, as do the self-contained breathing
apparatus.
In addition, the fire department also needs a written exposure control plan or a written
workplace hazards program. All of this should be made available for firefighters to view
at any time. Many fire departments also provide an annual physical to every member
including the requirements as specified by both OSHA and NFPA. The cost for these
physicals is typically in the range of $150 per person.
Residential and Commercial Building Characteristics
The largest buildings in Harrogate are primarily on the
Lincoln Memorial University campus. In addition, there are
many local businesses associated with the college city
theme although Harrogate seems to be largely residential.
Knowing the building characteristics will provide for a safer
and more effective response. Training and actual visits
should be conducted on a regular basis to all of the city
buildings and in particular to the college campus. This can
be done at fire meetings and through a good preplanning program. A 2002 MTAS study
identified the seven following buildings at Lincoln Memorial University that are more
than thirty-five (35) feet tall:
1)
2)
3)
4)
5)
Avery Hall-three story
J. Frank White Academy-three story
Farr-Chinnock Hall-three story
Grant-Lee Hall-three story
Lafrentz-Poole Hall-four story
6) Liles Hall-four story
7) West Hall-four story
There has been at least one additional building added since the 2002 report was made.
Regardless, ISO requires that a ladder truck be provided when a community has five or
more buildings above five stories. The University has a separate ISO rating (different
from the city) and depending on its insurance coverage, the purchase of a ladder truck
could provide a huge savings to the University. If this savings in insurance is significant,
it is probably worth asking Lincoln Memorial University for help in purchasing a ladder
truck. If the savings in insurance premiums to the University is not significant, then it is
probably not advisable for the town to purchase a ladder truck.
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Pre-Fire Planning
Pre-fire planning is one of the most important tools to improve firefighter safety that a
fire department can do. Preplanning is a primary responsibility of firefighting personnel
and prepares firefighters to adequately respond to any challenges that may arise. Even
in a volunteer fire department, preplanning is vital to an acceptable fire department
response. As a minimum, all target hazards in the community should be preplanned.
Target hazards include large buildings or complexes, buildings with high loss of life
potential, occupancies with hazards that could endanger firefighters or the public, and
buildings with potential of high loss of property value. In addition and as a minimum, all
buildings listed on the ISO “Batch Report” should be preplanned. Preplans should be
stored in notebooks and kept on each fire engine for ease of updating and organizing.
Fire Prevention
Fire prevention is one of the most affirmative activities that a volunteer fire department
can do. It is an integral part of a municipality’s responsibility to provide for the welfare of
the city and its citizens. The results are not always seen immediately but in most cases
can affect generations to come. No number of firefighters, apparatus, or equipment can
save the number of lives or loss of property as well as an educated public. For
example, almost everyone who participated in fire prevention school activities
remembers: “Stop, Drop, and Roll.” Adolescents through adults who learned this basic
maneuver when their clothes catch on fire never forget it. Most will teach their children
even if they are not taught this in school. This is just one example of a life saving
procedure taught by the fire department that is remembered throughout a person’s life.
Insurance Services Office (ISO)
ISO is a nationwide for-profit service organization that provides services to the property
and casualty insurance industry about a community's fire protection services. This
helps establish appropriate fire insurance premiums for residential and commercial
properties. ISO’s Public Protection Classification (PPC) program evaluates
communities according to a uniform set of criteria defined in the Fire Suppression
Rating Schedule (FSRS). This criterion incorporates nationally recognized standards
developed by the National Fire Protection Association and the American Water Works
Association.
Using this information, ISO objectively reviews the fire suppression capabilities of a
community and assigns a Public Protection Classification – a number from 1 to 10.
Class 1 represents exemplary fire protection, and Class 10 indicates that the area’s fire
suppression program does not meet minimum recognition criteria.
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A Class 1 community pays the lowest possible rates and scores 90% or better on
meeting a portion of the national standards in communications, fire department and
water supply. A Class 5 pays medium rates and meets 50 to 60% of the national
standards. A Class 9 is the worst grade for any form of recognized fire protection and
only scores 10 to 20%. There is at least a 62% swing in rates controlled by the rating.
ISO will rate communities every 15 years if their population is fewer than 25,000. In
addition, ISO sends out a questionnaire every 30 months. Depending upon how the
department fills out the form can trigger an audit. Changes in district boundaries,
station locations, automatic aid agreements, number and type of apparatus and many
other changes could also result in an early audit.
When ISO develops a single classification for a community, all of the community’s
properties receive that classification. In many communities, ISO develops a split
classification (for example, 5/9). Generally, the first class, (Class 5 in the example)
applies to properties within a defined distance (5-road miles in most states) of a fire
station and within 1000 feet of a fire hydrant. The second class (Class 9 in the
example), applies to properties beyond 1000 feet of a fire hydrant but within the defined
distance of a fire station. ISO generally assigns Class 10 to properties beyond the
defined distance of a fire station.
According to Chief Adams, the present Insurance Services Office (ISO) for the City of
Harrogate is a class 9. It is recommended that the city request a new review about six
months after the new fire station opens. The fire protection services will have changed
enough by that point to warrant a new ISO survey.
Water Supply
According to a 2002 MTAS report by Management Consultant Ron Darden….
According to Chief Adams and other city officials, the water supply for the city is not
adequate and in spite of several requests to the water system purveyor the city doesn’t
seem to make much headway.
“Water is provided by the Arthur Shawnee Utility District, which is a public utility
operating in North Claiborne County. Approximately 63 percent of the water mains are
two (2) inch and four (4) inch and as such are substandard for fire protection. The
mains consist of:
•
•
•
•
•
41,600 LF of four (4) inch mains
60,000 LF of two (2) inch mains
26,500 LF of ten (10) inch mains
12,500 LF of eight (8) inch mains
20,250 LF of six (6) inch mains
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Note: These are approximate lengths scaled from a map provided by Arthur
Shawnee Utility District.
A ten (10) inch main extends from the water treatment plant located in the
southern part of the city north along highway 25East to a 500,000 gallon water
storage tank. The map did not indicate the location of existing fire hydrants. The
fire chief indicated that there are some two (2) inch and four (4) inch hydrants,
and only one six (6) inch fire hydrant within the city.”
In accordance with ISO and state water regulations, the fire department should
not directly connect to fire hydrants with flows of less than 500 gpm or on mains
less than six inches. This situation is a major concern in providing adequate
water supplies in the Harrogate community. Likewise, water supply is equivalent
to 40% of the ISO rating schedule and can have a huge affect on local insurance
rates for fire insurance. Many water districts claim not to be in the “fire
protection” business but with water supply having such a dramatic influence on
the overall rating, water utility districts are in the fire protection business
regardless.
In perspective, the ISO rating for a community is half fire department and almost
half water department. In the situation where the water department “doesn't
care” about fire protection, the divergence factor may cause the percentage of
responsibility to increase much more than half.
So the question is... does the water utility care about saving the community
thousands of dollars in insurance premiums each year; or are they just worried
about drinking water? In most communities across Tennessee, MTAS tries to
stress the importance of the water department in the ISO rating. The water utility
should look at the ISO rating and be aware of what impact it is making in the
community. Many times the utility board of directors is unaware of what affect it
can have on a community by providing good fire protection.
What is used to measure the effectiveness of the water utility? What
benchmarks exist in the water industry? The answer for the drinking water issue
is state and federal "minimal" water regulations. Regardless of what the water
utility district thinks, a water utility is also benchmarked on its effectiveness in
providing fire protection (water supplies) within all communities. ISO actually
even issues a "relative" score for the water utility as a rating for how well the
water department provides services. The water utility district may not be in the
fire protection business but it is half responsible for the ISO rating given to a
community. There is a need for water utility companies to work close with their
local fire departments and improve the fire protection efforts from a local level.
Our nation has more fire deaths than any other civilized country in the world. Life
safety and fire protection is a role that everyone should accept regardless of the
“business” they are in.
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Providing Fire Service Outside the City
The question was raised by city council about providing mutual aid service to
nearby Cumberland Gap. Tennessee Code Annotated, § 12-9-101, et seq., is
the Interlocal Cooperation Act which authorizes municipalities and other
governments to enter into mutual aid agreements of various kinds.
Tennessee Code Annotated, § 6-54-601 authorizes municipalities (1) To enter
into mutual aid agreements with other municipalities, counties, privately
incorporated fire departments, utility districts and metropolitan airport authorities
which provide for firefighting service, and with industrial fire departments, to
furnish one another with firefighting assistance. (2) Enter into contracts with
organizations of residents and property owners of unincorporated communities to
provide such communities with firefighting assistance. (3) Provide fire protection
outside their town limits to either citizens on an individual contractual basis, or to
citizens in an area without individual contracts, whenever an agreement has first
been entered into between the municipality providing the fire service and the
county or counties in which the fire protection is to be provided. (Counties may
compensate municipalities for the extension of fire services.)
These restrictions limit the response to areas outside the city unless it is under a
mutual aid or “automatic aid” situation.
Automatic Aid
Automatic aid is assistance dispatched automatically by contractual agreement
between two communities or fire districts. That differs from mutual aid or
assistance arranged case by case. ISO will recognize an automatic-aid plan
under the following conditions:
• It
must be prearranged for first-alarm response according to a definite
plan. It is preferable to have a written agreement, but ISO may recognize
demonstrated performance.
• The
aid must offset a need in the community ISO is surveying. For
example, if a community needs a ladder company and the fire department
does not have one, but a neighboring community's ladder company
responds by automatic-aid agreement, credit may be available.
• The
aiding ladder company must cover at least 50% of the needed ladder
company Standard Response District by hydrant count in the community
being graded.
ISO Credit for responding automatic-aid companies depends on the value of the
automatic-aid arrangements, determined by the following criteria:
facilities — the alarm dispatch circuit between the
department communication centers, or between a central communication
• Communication
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center and the aiding fire station, should be the equivalent of the needed
facilities in the community that ISO is surveying.
of alarm — the aiding departments should receive all alarms
from the community being surveyed and dispatch their companies,
according to the dispatch protocol.
• Receipt
training — The communities should conduct the
following interdepartmental training:
• Interdepartmental
Quarterly half-day, multiple-company drills with automatic-aid
companies
o
Semiannual half-day, multiple-company drills with automatic-aid
companies
o
Annual half-day, multiple-company drills with automatic-aid
companies
o
ground communications — the communities should have common
mobile and portable radio-frequency capability.
• Fire
If these recommendations are followed and an automatic aid agreement is
signed between Cumberland Gap and Harrogate, the City of Harrogate could
receive up to 90 percent credit for equipment, apparatus, and manpower for what
Harrogate has available. In the past, Harrogate didn’t have much to offer and
Cumberland Gap still provided mutual aid. Now, the fire services provided by
Harrogate are increasing and their resources could help Cumberland Gap
achieve an even better ISO rating.
In summary, both towns are too small to have the single resources needed to
provide beyond adequate services. Both fire departments will continue to
struggle with volunteer manpower issues and both towns separately will have
many challenges in providing fire protection services. Having an automatic
mutual aid system in place will allow resources to remain separate but respond
when the need arises. Let’s face it; Harrogate does not have enough manpower
to fight an interior fire. Cumberland Gap could also utilize the use of the
Harrogate ladder truck. Both departments together on average respond to less
than 5 structure fires per year. All of this just makes sense and can save both
towns money in providing services and in fire loss.
As an attachment to this report, MTAS has included a sample automatic aid
agreement for city officials to review and consider. The same document is being
provided to Cumberland Gap officials for review and consideration.
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Duel Fire Chief Roles
The final question addressed is the issue of John Adams being fire chief at both
the Cumberland Gap VFD and the Harrogate VFD. Some might view this as a
conflict of interest; however, it is not uncommon in Tennessee for fire chiefs to
serve as chief in more than one VFD. With the towns being so close and even
using the same radio frequencies, it seems to be an asset to have one chief for
both fire departments.
Duel memberships in VFD’s are also common, however Chief Adams reported
that he was the only duel member of the two departments and this was done to
prevent both towns from paying insurance and buying separate turnout gear on
members. Duel membership should probably be allowed since Harrogate VFD
needs them so badly, but the expense of providing equipment and insurance is
understandable. The only caution to Chief Adams is to keep equipment and
expenses separate between the two towns. City officials should provide a means
to limit this from occurring regardless of who is fire chief. Chief Adams has a
huge advantage by being a duel fire chief. He knows the capabilities and
resources available for both departments and commands both to best serve the
entire community.
Report Summary
I would like to first say thanks to Chief Adams and the Harrogate City Council for
their cooperation and assistance in completing this report. In summary,
Harrogate has a small but good volunteer fire department. Fortunately,
Harrogate doesn’t have many fires and the department does a good job with fire
prevention. The need to have a good neighbor (Cumberland Gap) close by is
important and both towns can benefit from working together. Together both
towns can develop an automatic aid agreement for the “big fire” and get credit for
their resources too.
Please continue to support the fire department and utilize possible grant funding
and other innovative funding sources to make future capital purchases.
Harrogate is a great city with wonderful people who deserve good affordable fire
protection. Thanks for allowing me to assist, and please contact me in the future
if the city needs further help.
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MTAS Recommendations for Every Fire Department - Attachment
The following are a summary of fire department recommendations provided to all
city officials attending the MTAS Elected Officials Academy.
MTAS Recommendations for every Fire Department have
1. A great Fire Chief
Progressive, Educated, Experienced, Knowledgeable, Visionary,
Manager, Leader.
? 2. An Ordinance establishing a Fire Department
Your Ordinance Should:
1. Establish a Fire Department that clearly answers to the Elected
Representatives or to the Manager or Administrator they hire.
2. The Chief should be appointed, not elected by the firefighters.
3. The City should provide funding for the Fire Department in the
annual budget. Just because it is volunteer, don’t make them beg.
List the FD Objectives:
� Prevent uncontrolled fires from starting
� Prevent loss of life or property
� Confine fires to their place of origin
� Extinguish uncontrolled fires
� Perform Rescue work
� Provide Emergency Medical Care
� Serve as the Emergency Management Agency of the City
Other ordinance provisions:
� Chief shall organize the Fire Department
� Prepare Budget request, administration
� Maintain discipline – dismiss or suspend
� Training
� Determine degree of fire code enforcement
� Mutual aid
� Provide service outside city – contracts, etc.
3. Your ISO Rating
� With Public Water Supply
– Career Departments - Class 3
– Combination Vol. & Career - Class 4
– All Volunteer – Class 5
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� Without Public Water Supply
– Combination Vol. & Career – Class 5
– All Volunteer – Class 6
? 4. Modern Fire Apparatus
�Apparatus should be reliable.
5. Training is Critical
� Career or Volunteer, they must be trained.
� Volunteers should receive no less than 4 hours of training per month.
� Career Firefighters must have a minimum of 20 hours per month.
� Training is mandatory – no one is exempt.
� If they will not train, they should not be on your list, or allowed to attend
fires.
� State Fire Academy
� National Fire Academy
?6. Standard Operational Guidelines Every Fire Department Needs a
“bible” Standard Operational Guidelines
7. Get, Keep, and Train Policy
� Get
– Recruiting is a year-round job
– Put somebody in charge of recruiting
– Have a Fire Explorer Post
� Keep
– Rewards – going on training trips
– Incentive pay – monthly allowances
� Training
– Every training is TRAINING.
?8. FIVE YEAR MASTER PLAN
� Don’t give the Fire Department a dime until they have one
� Revise it every year
� Turn it in with your budget request
� Make it realistic
� Keep it flexible
?9. Firefighter Equipment Needs
� Every Firefighter needs:
– A pager
– Personal Protective Gear
» Helmet
» Turnout Coat
» Gloves
» Boots
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» Hood
» Individual SCBA face piece
10. Minimum Training
� 16 hour – Introduction to Firefighting before going on first call.
� 240 Basic firefighting during their probationary period.
� Ultimately – Certified Firefighter 2
� EMS First Responder
� Level “B” Hazmat training
� Vehicle Rescue Technician
11. Mutual Aid
�EMERGENCY ASSISTANCE AND MUTUAL AID IN TENNESSEE
�Written Signed Automatic Aid Agreements with every Fire
Department that touches your border.
12. Adoption and Enforcement of Fire and Building Codes
� You cannot afford a fire department as big as the biggest fire you can
have.
� Use built-in fire protection
– Encourage sprinklers
– Mandate sprinklers
� Sell fire and building safety
?13. Pre-Emergency Site Visits
Every building in your community should be visited by the fire department
BEFORE there is an emergency in that facility.
?14. Documentation
� ISO – 50% is a paper work battle
� Hose tests
� Fire Engine Pumper tests
� Annual physicals for the firefighters
� Hydrant tests
� Air quality – bottles, compressor
?15. Water Supply
� Public Water Supply
� No mains less than 6 inch
� No area of town where flows are less than 500 gallons per minute
� Above ground storage
� Hydrant spacing
� Annual testing, flowing, color coding
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?16. Integrated Service Delivery
� Work with other city departments
� Water department
� Police department
� Planning and zoning
� Ambulance authority
� Business community
� Schools
17. Emergency Management
� Your Fire Department is your full service emergency management
department.
� Develop specific plans for:
– Floods
– Tornados
– Ice Storms
– Big Crowds
– The unexpected – plane crash, school bus wreck with mass
causalities, etc.
Page 25
Sample Automatic Aid Agreement – Attachment
Please consider that this is only an example and a final revision of your automatic mutual
aid agreement should be reviewed by your city attorney before adopting or signing.
INTER-LOCAL AGREEMENT FOR
AUTOMATIC RESPONSE OF
FIRE, RESCUE AND EMS SERVICES
Pursuant to T.C.A. §6-54-601, et seq. and T.C.A. §12-9-104 et seq.
THIS AGREEMENT entered as of the______ day of ________, 20____, by and between
the TOWN OF CUMBERLAND GAP, TENNESSEE, hereinafter called
“CUMBERLAND GAP” and the CITY OF HARROGATE, TENNESSEE, hereinafter
called “HARROGATE”.
WHEREAS, Sections 12-9-101 through 12-9-109, Tennessee Code Annotated, authorizes
public agencies of the State to enter into inter-local agreements; and
WHEREAS, the parties hereto desire to avail themselves of the authority conferred by
these laws; and
WHEREAS, the purpose of this agreement is to provide each of the parties through their
cooperation, a predetermined plan by which each might render aid to the other as
needed for firefighting, rescue, emergency medical (EMS), or related technical
support services under specific arrangements as provided herein; and
WHEREAS, it is deemed in the public interest for the parties hereto to enter into an
agreement for Automatic Response with regard to firefighting, rescue, emergency
medical (EMS), or related technical support services to provide aid as needed to
assure each party of adequate depth of protection.
NOW, THEREFORE, pursuant to Tennessee Code Annotated §6-54-601 and §12-9-102,
et seq., and in consideration of the mutual covenants contained herein, the parties agree
as follows:
1. The parties agree to provide automatic response to the specific industrial, commercial
and selected other properties as listed on Exhibit 1 as attached to this document and
further, to provide Automatic Response to certain areas called “Automatic Response
Zones” as the boundaries of such zones are Described in Exhibit 1, attached to this
document. Adding or subtracting specific properties or zones, when agreed to by all the
mayors and fire chiefs of the parties to this agreement may amend Exhibit 1.
2. Automatic Response is defined as the simultaneous dispatch and response of two or
more fire departments to the same property, area, or zone regardless of the actual location
or jurisdiction of the property.
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3. This agreement shall be valid between the signed parties when the mayor and fire chief
of the respective political jurisdictions execute it pursuant to the ordinance/resolution of
each jurisdiction authorizing the mayor to execute it.
4. With the exception of the specific services described in this inter-local agreement, all
other requests for aid or assistance between the parties shall be governed by Tennessee
Code Annotated §58-8-101 et seq.
IN WITNESS WHEREOF, the parties hereto have executed this agreement as of the day
and year written above.
TOWN OF CUMBERLAND GAP
By: ______________________________
Mayor
By:_____________________________
Fire Chief
CITY OF HARROGATE
By: ______________________________
Mayor
By:_____________________________
Fire Chief
Approved as to form:______________________________________________________
________________________________________________________________________
________________________________________________________________________
Town Attorneys
Page 27
Sample Exhibit 1 - Attachment
AUTOMATIC MUTUAL AID
EXHIBIT 1:
Date: ______________________________
Specific Properties:
1. Anytown High School
2. Big Employer Industrial Plant
3. Shady Grove Manufacturing
Automatic Response Zones:
1. Big Bend Industrial Park – All buildings and properties contained therein.
2. Twelve square blocks of Anytown near the County Fire Station #9. This 12 block
boundary is described as follows: On the North, Maple Street, on the East Yellow
Creek Road, on the South the City limits and on the West the Muddy River.