HomeMy WebLinkAboutReceived during Oral Communications - OCFAResponse to
Orange County Fire Authority
Emergency Command Center
Work Schedule Analysis March 8, 2018
Purpose
This paper is a response to the white paper published by the Orange County Fire Authority
titled Orange County Fire Authority Emergency Command Center Work Schedule Analysis March
8 2j 018. The purpose is to identify portions of the initial report that have left out key information
or are presenting information that is not completely accurate. Each section, table and/or
attachment will be addressed individually. Where a section, table or attachment is skipped, there
appears to be no issue with any statements or data within that item.
Section 1: Introduction- The acknowledgement of the Emergency Command Center as "an
essential component of every OCFA emergency response" (Orange County Fire Authority (OCFA),
2018, p. 2) is appreciated and fully supported. It is also agreed that any failure to adequately staff
the Emergency Command Center can result in "delays in rapidly answering 9-1-1 calls, initiating
emergency response, and coordinating resources" IF. 2).
Serving as the Operational Area Coordinator for the state's mutual aid system brings an
additional workload not required of other dispatch centers. During periods of moderate to heavy
fire activity within the State of California (and often out-of-state), the ECC is tasked with "handling
requests from (the) California Statewide Fire and Rescue Mutual Aid System, dispatching and
tracking of fire and rescue mutual aid resources, and coordinating asset movement' (Orange
County Fire Authority (OCFA), 2018, p. 3) A number of these resources are not a part of OCFA,
placing additional responsibilities on ECC supervisors and dispatch staff during an already active
time of the year. ECC staff performs additional work in the Resource Ordering and Status System
(ROSS) to process requests for resources and personnel to respond to incidents throughout the
state.
Section 1.3- Emergency Activity and Staffing Levels- This section states that "emergency
activity has increased 24%" over the past five years. The data in Table 1- Incident and Phone
Activity to support this statistic includes only 9-1-1 calls. According to the ECC Statistical Summary
issued monthly by OCFA staff, total 9-1-1 calls for 2017 stood at 106,533 versus 106,452 as stated
in the white paper. In addition, there were approximately 77,8691 calls received via the 10 -digit
emergency lines. When both methods of receiving emergency calls is calculated, the increase in
emergency activity over the last five years is closer to 26.5 percent. As noted in Table 1, OCTA
ECC dispatchers have consistently answered over 99 percent of 9-1-1 calls within 15 seconds
(Orange County Fire Authority (OCFA), 2018, p. 4). Also of importance is an understanding that
even though there is a delineation between 9-1-1 lines, 10 -digit emergency lines and business,
'Approximate number of calls in 2017. 10 -digit emergency calls and business line calls were combined for January
2017. Numbers approximated using average of following 11 months percent of 10 -digit emergency calls received.
or administrative, lines, requests for assistance can come in to ECC through any of those three
methods. It is not unusual to receive an emergency call on a business line.
The part-time position that is identified as having been converted to full-time in 2017 was
not actually converted to full-time until 2018. The staffing of the position was not reflected in the
OCFA Staffing program until February 1, 2018. Until that time, the position remained a part-time
position, staffed for 12 hours only.
Incidents Dispatched presented in Table 1 represent only emergency activity. In terms of
incident numbers issued (which represent calls that were entered and had a unit assigned) the
numbers are slightly higher. One possible explanation for this could be the difference between
CAD's issuance of incident numbers (triggered by a dispatcher entering a call location and
incident type) and incidents entered and completed in the Orange County Fire Incident Reporting
System (OCFIRS). For 2015-2017, there were also a number of ADVISED calls entered. These
include such things as street repairs or utility work that affect emergency response routes and
incidents where an inspector is on-site testing an alarm system or OCFA has been advised that a
system is being worked on and will be offline for a period of time. Each of these incidents requires
a dispatcher to enter a call just as if it were an emergency, so that an active call is in the
Computer -Aided Dispatch (CAD) system. This may also contribute to the difference in numbers
in that if an ADVISED call was inadvertently entered as an incident, an incident number would be
generated instead of an ADVISED call notice. Entering ADVISED calls is done to prevent the
inadvertent dispatching of resources to these incidents causing an unnecessary "code three'
response, placing responding units and the public at risk and exposing OCFAto potential liability.
The table below includes the amount of incident numbers issued and the ADVISED call types in
the total number of incidents per year.
Table 1- Incidents per Year
Recalculating the daily statistics based on the numbers shown for 2017 brings the total
incidents dispatched per day to 425 (vs. 389 as stated). In addition to the average 292 9-1-1 calls
answered daily, OCFA dispatchers answered an average of another 213 10 -digit emergency calls
per day and answered or placed an average of 330 business line calls per day. This is a total
average of 835 phone calls answered or placed during a 24-hour period.
2013
2014
2015
2016
2017
Incidents Dispatched. 0 FA
Report
114,354
117,105
3.3%.rcnuue
130,713
11%incrt
136,934
9.9%1-.
141,858
43%i.r,..
Incident Numbers Issued
133,821
139,723
144,610
ADVISED Incidents Entered
10,336
10,596
10,711
Total Incidents
144,157
B.1%..
150,319
4.27%Ircrtaee
155,321
3a2%m nnne
Difference
19.28%
e.7ns
9.49%
Recalculating the daily statistics based on the numbers shown for 2017 brings the total
incidents dispatched per day to 425 (vs. 389 as stated). In addition to the average 292 9-1-1 calls
answered daily, OCFA dispatchers answered an average of another 213 10 -digit emergency calls
per day and answered or placed an average of 330 business line calls per day. This is a total
average of 835 phone calls answered or placed during a 24-hour period.
Section 2.1 -Staffing Level Standards- The bullet point for the Emergency Call Tracking
System (ECaTS) notes the number of call takers required to meet certain benchmarks. It is
important to note that ECaTS is a statistical reporting tool. It is not a standard based on any
recommendations of any professional fire service or telecommunications industry organization.
The stated benchmark 90% of calls answered within 10 seconds is not consistent with the NFPA
1221 standard "Ninety-five (95) percent of incoming 9-1-1 calls shall be answered within fifteen
(15) seconds, and ninety -(nine) (99) percent of incoming 9-1-1 calls shall be answered within
(forty) (40) seconds" noted later in the section (Orange County Fire Authority (OCFA), 2018, pp.
6-7).
Section 2.2 -Shift Schedules -Table 3 shows a side-by-side comparison of the current 24-hour
schedule and one potential schedule for 12 -hour shifts. It is important to note that no schedule
rotation outlining shift hours, start times, staggered schedules, break times, number of
dispatchers per shift, floor coverage, etc. was ever presented to the employee group. There are
a number of options and this is a meet -and -confer item. Any information presented in Table 3
regarding the 12 -hour shift is preliminary and subject to change.
Hours Work at Console- For 24-hour shift, all current break time is included when
calculating hours spent at the console. With 12 -hour shifts, additional break time beyond the
meal hour needs to be considered. Allowing for a fifteen -minute break for each block of time on
either side of the meal hour, hours at the console is closer to 10.5.
Supervisors- For 24-hour shifts, it is noted in the table, and discussed in other portions
of the document, that the supervisor is away from the console from 2 pm to 5 pm daily. During
this time, the ECC staff is supervised by either one of the day staff (Fire Communications
Supervisor or Senior Fire Communications Supervisor) or an identified move -up (or "acting")
supervisor, which is an experienced dispatcher who is responsible for handling the duties of the
supervisor in his/her absence. If need, the supervisor is immediately available to be recalled to
the floor. During the supervisor's sleep hours (0100-0700), there is a move -up supervisor
identified. Again, the supervisor can be recalled immediately to the floor, if necessary.
Strengths- For the 24-hour shift option, it is noted that "Nine (9) dispatchers are
available at all times for unforeseen surges in activity" (Orange County Fire Authority (OCFA),
2018, P. 9). While the timing and frequency of this surge in activity cannot be determined, they
are hardly "unforeseen." As an emergency service provider, OCTA is well -aware of the increased
activity during certain periods. Whether it is holiday weekends or wildland fire season, we
prepare annually for these occurrences. One example: based on our Fire Danger Operating Plan
and Annual Operating Agreement with CALFIRE, OCFA increases resource staffing during times
of high fire danger. This has included additional ECC staff. With 24-hour staffing, two-thirds of
the ECC staff is off-duty during these times and can be used to augment staffing or be placed on-
call to respond if activity warrants. With the 12 -hour option, only one-half of the staff is available
to provide full coverage of any needed positions. One-quarter of the staff is already working and
one-quarter is schedule to cover the next twelve hours and is only available to cover the first four
hours or the last four hours of the overlap (based on a maximum shift length of sixteen hours).
For the 12 -hour shift option, one strength identified is the replenishment of dispatchers
every 12 hours. Later in the report, in the interview with the Ventura County ECC chief, it is stated
that a "common complaint that the ECC staff has expressed since the transition is the 12 -hour
shifts is extended to 16 -hour shifts" (Orange County Fire Authority (OCFA), 2018, p. 11). This
contradicts the statement regarding replenishing staff every 12 -hours.
A weakness identified for the 24-hour shift option is the challenge "to add 24-hour
positions as center operations grow since all start at 7 AM" (Orange County Fire Authority (OCFA),
2018, p. 9). There is no documentation to support this claim. In fact, there have been two full-
time positions added since 2015 with little difficulty. No discussions with the labor group have
occurred to discuss staggering shift start times for staff on the 24-hour shift schedule. The
previous part-time position was a twelve-hour shift from 0800 to 2100 (one unpaid meal hour
break).
One weakness stated for the 12 -hour shift is that calling back additional staff "may be
necessary for unforeseen surges in emergency activity" (Orange County Fire Authority (OCFA),
2018, p. 9). Again, these are hardly entirely unforeseen and it will be necessary to callback
additional personnel to ensure effective ECC operations and service to the public. Please see the
discussion regarding surge capacity later in this document.
One item not addressed in the original report is the consequences of a dispatcher (or
dispatchers) calling in sick, becoming sick during the shift, or suffering an injury. In such a case it
would likely be necessary to force one or more dispatchers to cover the vacancy. With a
maximum shift length of sixteen hour as identified in the report, one dispatcher would be forced
to cover the first four hours of the shift and then another dispatcher forced to come in early and
cover the last four hours of the shift. Depending on what day of the shift cycle this occurs on, the
only option might be to force two dispatchers on the relieving shift. The result is a four-hour
coverage gap. If this happens for both the "day' shift and the "night' shift, the result is eight
hours of missed coverage in ECC in that 24-hour period. The current 24-hour schedule provides
the ability to coverthe entire 24-hour period with one or two dispatchers, depending on the shift
cycle. There are no gaps in coverage and no floor coverage gaps.
Section 2.4- Lessons learned from Ventura County Fire Department- In this section, it is stated
that the Ventura County Fire Department had "plenty of staff" to handle the Thomas Fire. The
fire is one of the largest fires to -date in California history. It is noted that the fire started "around
shift change", which is significant to note. Had it not happened at shift change, there would not
have been any additional staff to holdover. This quite probably would have had a negative effect
on the ability to handle the incident, even in the "Initial Attack' phase. It is impossible to count
on any major incident starting "around shift change' (Orange County Fire Authority (OCFA), 2018,
pp. 10-11) In fact, the Canyon Fire started in the afternoon, and the Canyon 2 fire at
approximately 9:45 am. Neither of these times are current (or proposed) shift change times.
Contact with representatives from the employee group at Ventura County Fire
Department has discovered that one supervisor and four dispatchers have left their employment
with the agency. According to a Service Employees International Union representative, the
employee representation group recently surveyed the dispatchers (the group that had originally
proposed and supported the schedule change to 12 -hours), and 100 percent desire to return to
the 24-hour shift schedule (Personal conversation, March 2018). Also, Ventura County Fire
Department has staffed their ECC with 30 dispatchers (budgeted for 40). Table 2 below presents
a comparison of demographics between Ventura County Fire and OCFA.
Table 2- Comparison of Ventura County Fire Department and OCFA Demographics
Agency
Ventura Co!
OCFA
Difference
Data
Population
480,000
1,800,000
275%
Stations
32
72
125%
2015 Incidents
40,142
133,821
233%
20161 ncidents
41,611
139,723
236%
Budgeted Staff
40
27
-33%
Actual Staff
32
25
-22%
Ventura Co.
OCFA
Difference
2015
1,254.44
5,146.96
310%
2016
1,300.34
5,373.96
313%
Research has indicated that the number of interrupted sleep hours for 2016 was 73 versus
the stated 23 and in 2017 was 130 versus the stated 25. These hours included those from the
Canyon Fire and Canyon 2 Fire, which are not addressed in the original report. It is important to
note here that these numbers are limited to interrupted sleep hours (7 pm to 7 am). While
emergency activity can certainly surge during these hours and create the need to bring additional
staff to the floor, two of the primary incidents that often require immediate assistance from
additional staff are Remote Rescues and Vegetation Fires. Both of these incidents have much
higher occurrences rates during daylight hours. There is no mention of interrupted meal hours,
which are during the day, and would provide a better snapshot of surges in activity that included
these two types of incidents.
2 Ventura County Fire Department 2016 Annual Report (Ventura County Fire Department, 2017)
Surge capacity -
Day -to -day- For day-to-day operations in ECC, the ability to have additional staff available
immediately should not be underestimated. During times of high emergency incident or
emergency call volume, staff needs to be available to respond and assist in answering phone calls,
handling radio traffic, ensuring adequate move -up and cover of vacant stations, or other support
activities. There have been numerous occasions when ECC staff were delayed going, or were
needed to be called back from, meal breaks during hours of the shift. Many of these instances
were not captured in Staffing. When emergency call volume exceeds the capacity of ECC staff on
the floor, help is needed immediately. The statistics provided in the study indicate that, when
staff was recalled from sleep, the duration ranged from 1.25 to 2.5 hours. This indicates the
urgency of the need for assistance. It is not practical to callback staff that may be, at best 30 to
45 minutes away, and wait for them to arrive to handle incident or phone traffic. 9-1-1 calls and
emergencies will not wait that long. It is also reasonable that during times of high call or incident
volume, staff will not be available to place a number of phone calls to contact and confirm the
response of off-duty staff.
During incidents that have multiple units assigned (structure fires, vegetation fires, remote
rescues, etc.), the assigned tactical dispatcher for that division is dedicated to the incident.
Another tactical dispatcher will assume the duties of monitoring the "routine" tactical
frequency(ies) for the division(s) that tactical dispatcher was assigned. In the event of more than
one such incident, it is often necessary to have another dispatcher assist in monitoring the
impacted tactical frequencies. These incidents result in a significant amount of radio traffic and
support needs (calling utility companies, land management agencies, etc.). The ability to recall
staff from breaks provides the capacity to support these incidents.
Extended incidents- Following the Santiago and Freeway Complex fires in 2007 and 2008
respectively, a great deal of research and effort went into the development of the Rapid Attack
and Mobilization Plan (RAMP) for OCFA. Identified after the fires was the need to develop a plan
and process to provide for "surge" capacity for the OCFA to handle a large emergency or
emergencies and continue handling the day-to-day service to our citizens. Apparatus were
inventoried, equipment complements adjusted, staffing policies updated and an organizational
structure based on ICS principles established to stand-up the Department Operations Center
(DOC). A key component in handling a large emergency, or multiple large emergencies, is the
staffing of Expanded Dispatch in ECC. While the study noted the times and incidents where
additional staff was on the ECC floor for local incidents, two major incidents and the impact on
staffing were left out. During the Canyon Fire and Canyon 2 Fire, ECC staff were committed to
Expanded Dispatch in support of these incidents. The number of additional staff needed to
handle the Incidents ranged from a low of two to as many as eleven dispatchers and supervisors.
Expanded Dispatch was staffed around the clock for both of these incidents. The 24-hour shift
schedule allowed additional positions to be staffed and personnel rotated through appropriate
sleep breaks.
While switching to a 12 -hour shift schedule provides a consistent level of staff on the ECC floor,
it eliminates the surge capacity for the inevitable times when additional staff are needed. These
times are during critical incidents and volumes. The inability to support surge capacity will result
in delays in answering phone lines (quite probably including 9-1-1 lines), missed radio traffic, and
an inability to provide the necessary support to Operations staff at the scene of critical incidents
and the normal day-to-day incidents.
The study identifies the number of call takers needed to answer 9-1-1 calls within 10 seconds
ninety percent of the time and also the number of call takers needed to answer 9-1-1 and
administrative lines within 10 seconds ninety percent of the time. While seeming to make sense
and demonstrate the benefits of 12 -hour shifts, a few pieces of information provide a better
picture. The first lies in the performance measure itself. In Table 1 of the report, it is stated that
current staffing is answering over ninety-nine percent of 9-1-1 calls within fifteen seconds. NFPA
1221 uses a fifteen second time benchmark as well. The only mention of a ten -second benchmark
is in the ECaTS discussion. As previously noted, ECaTS is reporting software only and is not any
sort of standard supported by a recognized public safety organization (Orange County Fire
Authority (OCFA), 2018, pp. 4-6, 26-27). This appears to be accepting a lower level of
performance than is currently being provided. Another key point is identifying a "call taker." To
properly handle incident radio traffic volume, ECC staffing from 0700 to 0100 is a minimum of
one primary dispatcher, three tactical dispatchers, and one supervisor. The primary dispatcher
and tactical dispatchers do not have answering 9-1-1 or 10 -digit emergency line calls as their
rima responsibility. They are support to the call takers. Additional staff above four dispatchers
are assigned as call takers. In a situation where staff is recalled from sleep or breaks, there are
additional personnel that can be assigned as call takers to handle the increased call volume and
ensure meeting the call -answering standard. Current staffing of nine dispatchers means the
availability of two dispatchers more than if ECC were staffed with seven dispatchers. This means
two additional call takers available under the 24-hour shift schedule than would be available
during significant time periods of the 12 -hour staffing scenario. As a reminder, the schedule and
coverage presented in the report is only one possible scenario and no conversations regarding
the establishment of a schedule have occurred. Without additional support, tactical dispatchers
will likely be placed in a position of choosing whether to answer the radio or answer the phone.
If the primary dispatcher must be engaged in answering phone calls, errors or delays in resource
assignment to incidents become more probable.
It may seem reasonable to make the statement that answering 9-1-1 or 10 -digit emergency lines
should be a priority for all dispatchers and anything else can wait. However, if the missed radio
traffic from a field unit is related to the safety of the crews at an incident (request for law
enforcement immediately; lost, missing or trapped firefighter; wires down; etc.), the result could
be catastrophic. While few of these incidents have occurred within OCFA, the fact is that this is a
risky business and there are times when unexpected things happen. In these instances, not only
is it imperative to have a dispatcher that can be dedicated to that incident until the situation is
resolved. A lack of available personnel to recall jeopardizes the ability to do so.
Whether discussing day-to-day operations or extended incident operations, the consequences of
a coverage gap due to illness or injury are exacerbated. In addition to an increase inactivity, there
would be fewer personnel to handle the call volume and breaking away to try to call staff back
would be nearly impossible in any rapid or beneficial time frame.
The Standards of Cover adopted bythe OCFA Board of Directors delineates a Total Response Time
standard of 7 minutes and 22 seconds eighty (80) percent of the time and 8 minutes and 30
seconds ninety (90) percent of the time. Included in the Total Response Time is call processing
time by ECC (Orange County Fire Authority (OCFA), 2006, p. 49). The lack of additional
immediately available staff to assist in answering 9-1-1 and 10 -digit emergency line calls has
significant potential to impact the OCFA's abilityto meet the standards set forth by the Board of
Directors. In the scenario of a coverage gap due to illness or injury of one or more dispatchers,
there is almost certain to be a negative impact to this performance standard.
Summary
It is vitally important that OCFA's Emergency Command Center be staffed adequately and
effectively. The number of incidents dispatched by ECC continues to increase year after year. As
to be expected, there is a correlated increase in 9-1-1 and 10 -digit emergency line calls. It must
be ensured that sufficient staff are available to cover the day-to-day operations and the to -be -
expected surges in activity. OCFA's ECC serves as more than just a dispatch center for the OCFA.
As Operational Area Coordinator for the California Statewide Fire and Rescue Mutual Aid System,
it supports local, regional, statewide and national emergencies. It also functions as the
communications hub for major incidents within Orange County, often regardless of jurisdiction.
These responsibilities place additional workload on ECG staff and require staffing considerations
for managing such incidents.
The professionally -trained men and women of OCFA's ECC provide a vital link between
first responders and those in need of emergency assistance. As Emergency Medical Dispatchers,
they provide critical instructions to patients and callers prior to the arrival of emergency medical
personnel. As skilled radio operators, they provide vital support to the Operations Section during
emergency incidents. They proudly serve the OCFA and the citizens who rely on them to be there
in their time of need.
The current ECC work schedule of 24-hour shifts provides significant benefit to the OCFA
in the ability to respond to increased emergency activity, support extended incident operations
through Expanded Dispatch, and ensure full coverage of the shift and full effectiveness in serving
the citizens and supporting the organization. In addition to providing staff needed handle the
day-to-day operations of ECC, a surge capacity is maintained that provides the ability to
immediately meet any increased staffing needs in ECC. A change to a 12 -hour shift schedule
would remove the surge capacity and potentially provide less coverage of ECC on a daily basis.
The potential addition of the City of Garden Grove as a Cash Contract City member of the
OCFA brings seven more fire stations (for a total of 79), a new battalion, several additional
apparatus, and between 14,000 and 15,000 more incidents per year. Initial reviews of the
proposal being considered by the OCFA Board of Directors for submittal to the City of Garden
Grove do not indicate adding any additional ECC staff (Orange County Fire Authority (OCFA),
2018). The potential increase in phone calls, incidents dispatched and other added workload on
current ECC staff further underscores the need for surge capacity.
One final note, had the employee group come forward at the beginning of negotiations
and proposed a change in staffing ECC that resulted in the need to promote and hire additional
staff, could result in a decreased level of staffing in ECC, removed the surge capacity currently
maintained at no additional cost and required an increase in salary and benefit costs that
exceeded half a million dollars, would it still be so vigorously supported by the OCFA and the
Board of Directors?
10
References
Orange County Fire Authority (OCFA). (2006). Standards of Cover. Irvine, CA. p. 49.
Orange County Fire Authority (OCFA). (2018). City of Garden Grove Fire Service Proposal. Irvine, CA.
Orange County Fire Authority (OCFA). (2018). Emergency Command Center Work Schedule Analysis.
Irvine, CA. pp. 1-27.
Ventura County Fire Department. (2017). 2016Annual Report. Camarillo, CA.
11
Orange County Fire Authority
Emergency Command Center
Work Schedule Analysis
March 8, 2018
Purpose
This white paper intends to overview the current work environment in the Emergency Command
Center (ECG) and compare 20 -hour and 12 -hour shift schedules for dispatchers.
Section 1. -Introduction
The ECC is an essential component of every OCFA emergency response. Although less visible to
the community than firefighters, dispatchers are first to make contact with the public, obtain information
about the emergency, and initiate a response. To support the critical and time -sensitive role of the ECC,
adequate staffing is needed 24 -hours a day and 7 -days a week. Without sufficient staffing, there may be
delays in rapidly answering 9-1-1 calls, initiating emergency response, and coordinating resources; all
having the potential to impact public and firefighter safety.
Although staffing and scheduling are often used interchangeably, it Is essential to clarify the
distinction between the two terms. Staffing concerns "the number of employees needed to do the job"
while scheduling assigns "employees to specific time blocks to match the need' (APCO, 2005, p. 67). That
is, staffing Is of critical importance because it determines the number of dispatchers on -hand to address
phone and radio traffic, Decisions about shift lengths, meal and break times, and day on/off patterns are
scheduling considerations and don't speak to staffing needs.
Section L3 - ECC Overview
The ECC Is located at the Regional Fire Operations and Training Center (RFOTC) In Irvine,
California, and operated by 27 shift dispatchers, three shift supervisors, and six administfa[om
(Attachment 1). The ECC provides service to 1.8 million residents of Orange County who live in the 23
cities served and unincorporated areas of Orange County. In coordination with 94.1 centers throughout
the county and state, emergency calls are answered, call nature and location identified, and resources
dispatched. All dispatchers are Emergency Medical Dispatcher (EMO) certified to provide medical advice
and treatment instruction to callers before the arrival of first -responders. Examples of instructions include
Work Schedule Analysis Page 2 of 27
clearing airway obstructions, bleeding control, CPR, and childbirth procedures. Dispatchers also answer
non -emergency phone lines to receive complaints and service -related requests.
The ECC serves as the Operational Area Coordinator for all Orange County fire service agencies,
which provides mutual aid fire and rescue resources throughout the state. This responsibility includes
handling requests from California's Statewide Fire and Rescue Mutual Aid system, dispatching and
tracking of fire and rescue mutual aid resources, and coordinating asset movement.
Section 1.2 - Dispatcher Roles/Responsibilities
The ECC has four key positions that are staffed throughout the workday. Fire Communications
Dispatchers (FCOJ fill the roles of call -taker, primary dispatcher, and tactical radio operator, and one Fire
Communications Supervisor (FCS) oversees and coordinates activities.
• Call -Takers obtain relevant information and inputs into ComputerAided Dispatch; sorts calls using
medical criteria; provides pre -arrival Instructions; calms emotional callers.
• Primary Dispatcher determines and dispatches appropriate personnel and apparatus; maintains
the status of equipment, personnel, and apparatus as to location, availability, and ensures
optimum coverage; serves as a liaison with the public and other public officials for inquiries and
customer complaints.
• Tactical Radio Operators receive and process requests from field personnel over multiple radio
frequencies; track incident and unit statuses; make notifications to assisting partner agencies.
• Shift Supervisors oversee the operabonsand employees,which includes: prioritizingand assigning
work; conducting performance evaluations; ensuring staff is trained; administrative and
disciplinary actions; supervises the disposition of emergency calls and the dispatching of fire
suppression and EMS units.
Work Schedule Analysis Page 3 of 27
Section 1.3 - Emergency Activity and Staffing Levels
Like fire departments across the nation, the OCFA is experiencing a steady annual Increase in
emergency activity and calls for service (National Fire Protection Agency, 2017). In the last five years,
emergency activity has Increased 24% (See Table 1); the expanding oil volume directly affects the
dispatchers as each call requires entry, dispatch, and tracking. In 2012, the ECC was staffed each day with
seven dispatchers and one supervisor on a 24-hour period. Aker partnering with the City of Santa Ana, a
part-time 12 -hour position was added. As call volume continued to grow, one full-time dispatcher was
added in 2016 and the part-time position converted to full-time in 2017. Todays daily staffing of the ECC
includes nine dispatchers and one dispatch supervisor on a 24-hour shift schedule. Forced backfill Is
utilized to maintain daily staffing of eight dispatchers and one supervisor as agreed upon through the ECC
Joint Labor -Management group.
Table 1 - Incident and Phone Activity
I Incident totals for 2017 are under final review by Strategic Services and should be considered
preliminary
In 2017, the ECC dispatched on average 389 incidents and answered 2929-1-1 calls each day. The
number of Incidents per hour was highest between 8 AM and 9 PM (averaging over 16 calls per hour) and
lowest between 1 AM and 6 AM (Attachment 5). Weekdays were roughly 5% busier than weekends, and
Work Schedule Analysis Page 4 of 27
2013
2014
2015
2016
2017
9-1-1 Calls Received
80,977
84,028
93,005
102,171
106,452
mucase
10.7%Increase
9.9%Increase
4.2%Irc:ease
9-1-1 Answered
within 15 -seconds
99.87%
: 99.77%
99.72%
99.66%
99.54%
Incidents Dispatched
114,354
117,105
130,713
136,934
141,858`
2.4%Increase
11%increase
47%increase
3.6%Increases
Dispatchers per
7full-time
7full-time
7full-time
9full-time
gfull-time
24-hour shift
1 part-time
1 part4ime
1 part-time
1 part-time
.
Supervisors per
1 full-time
1 full-time
1 full-time
1 full-time
1 full-time^
24-hour shift
I Incident totals for 2017 are under final review by Strategic Services and should be considered
preliminary
In 2017, the ECC dispatched on average 389 incidents and answered 2929-1-1 calls each day. The
number of Incidents per hour was highest between 8 AM and 9 PM (averaging over 16 calls per hour) and
lowest between 1 AM and 6 AM (Attachment 5). Weekdays were roughly 5% busier than weekends, and
Work Schedule Analysis Page 4 of 27
Friday's statistically had the highest volume of emergency responses (Attachment 6). Seasonally, January
and December were the most active months with on average over 400 responses each day (Attachment
7).
Section 2. - Analysis
While the focus of this paper Is an scheduling differences between 24-hour and 12 -hour shift
schedules, it is first necessary to caiculate'how many' dispatchers are needed In the ECC at any one time
—also known as the staffing level. Having an adequate number of dispatchers at their consoles ensures9-
1-1 calls are answered rapidly, units are dispatched, and radio traffic answered. When there is inadequate
staffing, performance is negatively affected.
Section 2.1- Staffing level Standards
The goal of determining staffing levels Is to figure out "the number of positions needed to
comfortably handle the workload" (APCO, 2005, p. 2). As workload increases so do the needed number of
dispatch personnel. A variety of public safety agencies and associations provide formulas and calculations
for staffing levels although no single formula can be applied to all organizations.
Adequate staffing has its benefits to employees. In a 2005 study, up to one-third of dispatch
centers were chronically understaffed, which was correlated to excessive overtime, employee burnout,
high turnover rates, and empathy fatigue (APCO, 2005; Gendron, 2015). Understaffing and information
overload contribute to stress, lower job satisfaction, and higher tolerance for errors (Pendleton, 2008).
The following bullet points identify a variety of approaches to calculating staffing levels. Part art
and part science, staffing needs are often based on management experience, judgment, and performance
measures. While staffing formulas often focus on the concept of workload to determine needed
personnel, an important caveat requires attention. As a dispatch center approaches maximal efficiency,
the margin to take on additional work diminishes. it is vital for dispatch centers to plan for unanticipated
surges in call activity due to severe weather, natural disasters, and internal disruption. During peak
Work Schedule Analysis Page 5 of 27
activity, every member of the dispatch center contributes and helps maintain critical 9-1-1 answering
times and dispatch center performance.
• California Office of Emergency Services (Cal OES) - Under California's Gwemor of Emergency
Services, serves "the public through effective collaboration in preparing for, protecting against,
responding to, recovering from, and mitigating the Impacts of all hazards and threats."
c CalOES does not have a standard for 9.1-1 center minimum staffing.
0 9-1-1 Calls: Ninety-five (95) percent of Incoming 9-1-1 calls shall be answered within
fifteen (15) seconds
• Emergency Call Tracking System (ECaTS) - Provided by the state of California, ECaTS "is a
statewide 9-1.1 call related data gathering system" which gathers and analyzes data, and
generates reports.
o Based on 2017 phone data, two (2) to three (3) call takers are needed (based on time of
day) to answer 90% of 9.1.1 Calls within 10 seconds, two (2) to four (a) call takers are
needed (based on time of day) to answer both 91-1 calls and administrative lines within
10 seconds (Attachments 12 & 13).
• International Association of Fire Chiefs (IAFC) - Mission "to provide leadership to current and
future career, volunteer, fire -rescue and EMS chiefs, chief fire officers, company officers and
managers of emergency service organizations throughout the international community through
vision, information, education, services and representation to enhance their professionalism and
capabilities."
o IAFC does not have a standard for 9-1.1 center minimum staffing.
• International Organization of Standardization (ISO) - "an independent, non-governmental
international organization with a membership of 161 national standards bodies. Through its
members, it brings together experts to share knowledge and develop voluntary, consensus -based,
Work Schedule Analysis Page 6 of 27
market -relevant International Standards that support innovation and provide solutions to global
challenges."
a ISO points to NFPA 1221 to assess communications center performance
• National Emergency Number Association (NENA) — "As The Voice of 9.1.1" NENA is on the
forefront of all emergency communications issues. The association serves its members and the
greater public safety community as the only professional organization solely focused on 9-1-1
policy, technology, operations, and education issues. With more than 12,000 members in 48
chapters across the United States and around the globe, NENA promotes the implementation and
awareness of 9-1-1, as well as International three -digit emergency communications systems."
o NENA offers a staffing calculator based on 9-1.1 calls and 10 -digit emergency call volume
(Attachment 3). The formulas, dating back to 2003, was designed for dispatch centers
much smaller than the OCFA's; the calculated results of 33.4 needed dispatchers should
be interpreted with the formula's limitation In mind.
• National Fire Protection Agency (NFPA) — "The National Fire Protection Association (NFPA) is a
global nonprofit organization, established in 1896, devoted to eliminating death, injury, property
and economic loss due toflre, electrical and related hazards."
o 'There shall be a minimum of two telecommunicators on duty and present in the
communications center at all times."
o "The Authority Having Jurisdiction (AHJ) shall ensure that there are sufficient
telecommunicators available to effect the prompt receipt and processing of alarms
needed to meet the requirements of section 7.4."
a 9-1-1 Calls: Ninety-five (95) percent of Incoming 9-1-1 calls shall be answered within
fifteen (15) seconds, and ninety-five (99) percent of incoming 9-1-1 calls shall be
answered within fifteen (40) seconds
W ori Schedule Analysis Page 7 of 27
o Alarm Processing: Ninety (90) percent of emergency alarm processing shall be completed
within 64 seconds, and ninety-five (95) percent shall be completed within 106 seconds.
Section 2.1- Shift Schedules
Shift work is a fact of life in dispatch centers. According to APCO, "the shift assignment is the most
critical contributor to employees' feelings of control over. their lives" (2005, p. 20). Most police and fire
communications centers across the nation use 8 -hour shifts (49%) with 10 -hour shifts (10%) and 12 -hour
shifts (3%) less prevalent. The remainder of dispatch centers (38%) utilize combinations of 8, 10, 12, and
24 -four shifts or unique configurations that meet employee of agency needs. Table 2 displays a small
sample of work schedules used by Orange County fire agencies, surrounding counties, agencies previously
recognized in OCEA documents, and like -function centers; the number of entries in each column is not
intended to infer how frequently each schedule is used throughout the state.
Table 2 — Survey of 9-1-1 Center Shift Schedules
12 -hour
12/24 hour
24 hour 48-hour
CalPireJRiveralde
Laguna Potice/Fire
NortF County Fire
Cay of Montedto fire Marin County Fire
CalFire/San Diego
MetmNet nim IDA
City of Stockton Flre
San Diego City
Sacramento Regional
L4 City (sworn FF's)
Hartland (San Diego)
Ventura County Fire
Con" Coma Fire
Coate Mea Pol"Ke/Fire
Verdugo Fire
San Ramon Valley fPD
In Table 3, a side-by-side comparison of 24-hour and 12 -hour schedules are listed, which show
required personnel, costs, schedules, and strengths and weaknesses.
Work Schedule Analysis Page 8 of 27
Table 3 -24-hour schedule vs. 12 -hour schedule
Work Schedule Analysis Page 9 of 27
1.24 -hour shift
12-hourshift
-schedule (current). f
schedule (proposed)
Total Supervisors
3
4
Required
Total Dispatchers
27
28
Required
Total Salaries &
$4,816,098
$5,347,544
Employee Benefits
(11.03% Increase)
7 AM Day Shift
Start Time
-
7 AM
9 AM (1 dispatcher added)
1 PM (I dispatcher added)
7 PM Nip ht Shift._,_.__._.
Shift Cycle
XOXOOXOXO000 j
(%- work day)
y)
IX=workday)
Shift Length
24 -hours
12 -hours
Hours Work at Console
15 -hours
11 hours
Average Shifts
10
IS
per Month
Maximum
48 hours forced overtime
16 -hours voluntary/forced overtime
Shift Duration
72 -hours voluntary overhmn
i
At RFOTC
Day = 9 dispatchers
Day = 7 to 9 dispatchers
I
Night • 9 dispatchers
Night • 5 to 7 dispatchers
i
oAt
ECC Console
Day = 5 to 9 dispatchers
Day - 7 to 9 dispatchers
Night= 3 to 6 dispatchers
Night= 5 to 7 dispatchers
ALRFOTC
1
1
C
5
All hours except
All hours except
At ECC Console
2PM-5 PM (3 hours)
1 PM to 2 PM (1 hour)
&
&
S AM to 7 AM l6 hours
1 A to 2 A )hour I
• Cost-effective
• improved supervisor coverage and
None (9) dispatchers onsite at ail times for
ratio of incidents per dispatcher
1
Strengths
unforeseen surges in activity
(Attachment9)
I
• Meets Staffing Level Standards (Sect 2 1)
• Replenished dispatchers every 12 -hours
---M11-bckk
eets Level Standards
• Supervisors away from ECCfornme(9)
• Call-back of additional dispatchers na heli
ofad may
hours of shift
hours
necessary for unforeseen surges in
Weaknesses
.• Challenging to add 24 hour positions as
emergency activity (Attachment 21
center operations grow since all start at 7
• Requires two adduonal full-time
AM
positions (one FCD and one FCS)
• 15 -hours of focused work per shift :
• 11 -hours of focused work per shift
Work Schedule Analysis Page 9 of 27
Section 2.3 - Financial Considerations (Attachment 4)
Position
Shift Schedule
Salary &
Employee
Benefits
Positions
required
Total
Fire
Communications---------
Dispatcher
12-hour(proposed)
$165,513
28
$4,634,364
24-hour(current)
-----
$158,850
27
---
$4,288,950
Fire
Communications
Supervisor
12-hour(proposed)
-----
$182,795
4
$713,180
24-hour(current)
$175,716
—
3
$527,148
Annual Salaries & Benefits/12-hour schedule
{ $5,347,544
Annual Salaries & Benefits/24-hour schedule
$4,816,098
Cost Increase to move from 24-hour to 12 -hour schedule
' $531,446 I
Section 2.4- Lessons learned from Ventura County Fire Department
The CCC Chief from Ventura County Fire Department (VCFD) was interviewed regarding their
recent transition from 24-hour to 12 -hour shifts. The following was shared with OCFA leadership.
Approximately one year ago, Ventura County Fire Department transitioned their ECC from 24-
hour to 12 -hour shifts. The decision to evaluate shift schedulesoriginilly came at the request of ECC staff
who pointed to fatigue and extended shifts. There was also a monetary reason for looking at an alternate
schedule due to employees being paid for all hours worked and attended training. Although the decision
to look at the staffing options outside of 24-hour shifts was initiated by dispatch staff, the decision to
change to a24 -hour shift was vigorously opposed. After a substantial review period, the Fire Chief decided
to transition the ECC to 12 -hour shifts. Some of the deciding factors were the addition of a Shift Supervisor
in the center at all times, reduction of the extended 36 and 48-hour shifts, and elimination the pay issues
related to 24-hour schedules.
A common argument made by dispatch staff when considering moving away from 24-hour shifts
was the loss of constant staffing in the ECC for a significant event. This was a factor that was considered
when evaluating data for the transition, and it was determined that the surge capacity was very rarely
Work Schedule Analysis Page 10 of 27
used. Since the transition, there have been no Issues with staffing and ability to handle incidents. An
example provided by the VCFD ECC Chief was their staffing for the Thomas Fire (California's largest
wildfire) earlier this year. Because the ECC was already up -staffed for predicted fire weather, and the
event started around shift change, there was plenty of staff to work through the Mal Attack of what was
described as a once In a lifetime incident.
One additional note the ECC Chief shared is that their shifts are 12.5 -hours. The extra half hour
is intended to be a briefing/training period followed by relief. The extra half hour makes shrifts feel longer,
but VCFD modeled the practice afterthe Ventura County Sheriff's Department who also works 12.5 -hour
shifts.
The ECC Chief advised that this was not a popular decision with the ECC staff, and 1 -year later is
still not positively viewed by dispatch staff- The mast common complaint that the ECC staff has expressed
since the transition Is the 12 -hour shifts extended to 16 -hour shifts. The ECC Chief advised that this is a
result of dispatchers not answering the call when there is last minute overtime available. Per the ECC
Chief, this may be avoidable if there were better coordination between dispatchers. The center has a
minimum staffing level established, and they will force employees to extend their hours after they are
scheduled to go home up to 16 -hours or force them to come back for their next shift early.
Finally, there was a lot of discussions that staff would be leaving If the change was made because
some of the staff lives two to three hours away from the ECC. Ventura County Fire Department retained
their dorms and allowed staff to sleep on site if they are working extended days, and at this point, the ECC
has not lost any of their dispatch staff following the change. The ECC Chief recommends that significant
notice is given to the employees if a change in schedule was implemented. Ventura County Fire provided
dispatchers a 6 -month notice, which provided sufficient time for all employees to prepare for the
transition.
Work Schedule Analysis Page 11 of 27
Section 2.5 — Safety Risk?
In open session presentations, the statement has been made that moving from 24-hour to 12.
hour shifts is a public safety risk since there would be fewer dispatchers available to answer sudden surges
in 9-1-1 calls. The assertion is based on the point that with 24-hour shifts, there are nine (9) dispatchers
on duty at all times and that during sleep hours when only three (3) dispatchers are at consoles, the other
six (6) can be awoken from adjacent dorms in a moment's notice. While having nine (9) dispatchers on -
duty is advantageous, data from 2016 and 2017 suggests (Attachment 21 that assistance was required on
few omsions; when help was needed, it was for short durations and involved one or two dispatchers.
During the early morning hours, the proposed 12 -hour shift would provide a minimum of five (5)
dispatchers and one (1) supervisor at all times, and call-back would be required for instances where
unexpected workload exceeded capacity. Based on this Information, the statement that a 12 -hour shift
for dispatchers creates a safety risk for the citizens protected by the OCFA is not supported by call volume
or the number of dispatchers who will be on duty.
Section 2.6 - Dispatcher Perspectives
In December of 2017, OCFA management received 25 letters from dispatchers and supervisors in
opposition to changing shift schedules; a copy of each letter was provided to Board members at the
December 2017, meeting. Letters detailed the negative impressions of a schedule change, which impacted
personal lives and ECC operations. Personal impacts Included an increased commute (frequency, safety,
costs), negative financial impacts, and changes to lifestyle (routine, childcare, happiness). Professional
concerns included dispatcher recruitment and retention, impacts to dispatcher capacity during
unforeseen surges in activity, decreased service delivery, and firefighter safety. Three dispatchers
indicated they would likely leave OCFA if a schedule change were to occur.
Work Schedule Analysis Page 12 of 27
Section 3. - Summary
The ECC plays a critical role in the delivery of fire, rescue, and medical services. In an environment
where seconds count, adequate daily staffing is needed to handle the workload. In addition to operational
benefits, adequate staffing can improve employee health by reducing excessive overtime and dispatcher
burnout.
In comparing the 24-hour (current) and 12 -hour (proposed) work schedules, each meets the
tenets of staffing level standards as identified in section 2.1. The 24-hour shift schedule is desired by
current dispatchers and has the benefit of cost-effectiveness and nine (9) dispatchers continuously on
duty for unforeseen surges in activity. The limitation of the 24-hour shift schedule Is the lack of consistent
supervision throughout the 24-hour period. The proposed 12 -hour shift schedule replenishes dispatch
staff every 12 -hours, has a supervisor and dispatchers at consoles for a greater number of hours of the
workday. The 12 -hour shift schedule is opposed by existing dispatchers, requires two additional positions,
and raises salary costs 11.03%.
Although not addressed in this whitepapeq future research should consider methods to enhance
continuous ECC supervisorial oversight and the potential benefits of mixed shift schedules (8, 10, 12, and
24) to address rising call volume and peak activity during the day.
Work Schedule Analysis Page 13 of 27
References
Association of Public -Safety Communications Officials (APCO). (2005, August). STAFFING AND
RETENTION IN PUBLIC SAFETY COMMUNICATION CENTERS. Retrieved from
https://www.apcointi.org/doc/Conference-documents/panannel-human-factor/283-
project-retainseffectk a practices-guide-2005/Rle.htmI
Gendron, R. (2015, March 11). 9-1-1 Magazine: The Stress at Both Ends of the Phone: Burn Out and
Empathy Fatigue. Retrieved from http://www.9-1-Imagazine.com/Gendron-Stmss-
Both-Ends-Phone
National Fire Protection Agency. (2017, lune). Fire department calls. Retrieved from
https,.//www.nfpa.org/News•and-Research/Fire-statistics-and-reporWFire-
statlstics/The-Ore-service/Fire-department-calls/Fire-department-calls
Pendleton, S. (2008, April). Information Overload and the 9-1-1 Dispatcher. Retrieved from
http://www.9.1-1ma jazine.mm/Information-Overload-and-the-9-1.1-Dispatcher/
Work Schedule Analysis Page 14 of 27
Attachment 1
ECC Organization Chart
lSIS[1
Work Schedule Analysis Page 15 of 27
Attachment 2
24-hour Shift Schedule
Interrupted Sleep Analysis
Below is a synapsis of "Interrupted Sleep" from 2016 and 2017 where dispatchers (on 24-hour shifts) were
required to return from sleep/break to help with center workload.
2016
Dispatchers re -called from sleep break between 7 PM — 1 AM for unanticipated surge of activity (six
dispatchers were on the floor under the current 24-hour schedule)
• 11 Instances of recalled dispatchers
o Most entries Indicate one to two dispatchers recalled
o Duration of time spend on ECC Floor (1.25 to 1.5 hours)
o Three (3) Instances when there was more than seven (7) dispatchers used on ECC floor
o High occurrences between 7 PM at 8:30 PM
Dispatchers recalled from sleep break between 1 AM and 7 AM for unanticipated surge of activity (three
dispatchers were on the floor under the current 24-hour schedule)
• 12 instances of recalled dispatchers
o Most entries indicate one to two dispatchers recalled
o Duration spent on ECC floor (1.5 to 2.5 hours)
o One occurrence (Holy Jim Fre) where seven (7) dispatchers where on the floor 4:30 AM
to 7:00 AM
2017
Dispatchers re -called from sleep break between 7 PM — 1 AM for unanticipated surge of activity (six
dispatchers were on the floor under the current 24-hour schedule)
• Eight (8) Instances of recalled dispatchers
o Most entries indicate one to two dispatchers recalled
o Duration of time spend on ECC Floor (0.5 to 2 hours)
o Brea Fire— nine (9) dispatchers 7:15 PM to 7:45 PM
Dispatchers re -called from sleep break between 1 AM —7 AM for unanticipated surge of activity (due to
(three dispatchers were on the floor under the current 24-hour schedule)
• Seventeen (17) Instances
a Most entries Indicate one to two dispatchers mulled
n Duration of time spend on ECC floor (.5 to 3 hours)
c Three (3) Instance when there was more than five (5) dispatcherson ECC floor
• Cristianitos Fire - seven (7) dispatchers working 1:00 AM to 2:15 AM
• Gypsum Fire -eight (8) dispatchers 1 AM to 2:30 AM
• Fire Baker Canyon —seven (7) dispatchers working 2:45 AM to 4:00 AM
Work Schedule Analysis Page 16 of 27
Attachment 3
National Emergency Number Association (NENAh Stafflng Calouiator
67
can vonmw CA
Busy Hour NomW Blntl9nh
Cdl ydlxee Cab Pry 81171 D Decarada
8-1-I sde 16 S7 108A
7lfOdl9tt amel9ancya 725 5.7 &S
70
71
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70
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Work Schedule Analysis Page 17 of 27
70
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70
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TJ bndne rs dW n E e T
78
V' Enlel numbm of d,v on Per Cde9ory In bbe bebw Migha9htotl C.431
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Work Schedule Analysis Page 17 of 27
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Work Schedule Analysis Page 17 of 27
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Work Schedule Analysis Page 17 of 27
Work Schedule Analysis Page 17 of 27
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