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SUMMARY & FINDINGS REPORT
2023 Community Risk Assessment & Standards of Cover
Executive Summary | Facilities | Apparatus | Findings | Recommendations
Oshkosh Fire Department
Oshkosh, Wisconsin
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Contents
Executive Summary ...................................................................................................... 4
Acknowledgments ........................................................................................................ 5
Administrative Considerations ...................................................................................... 6
Mission Statement Performance Measurement ........................................................... 6
Fire Code Enforcement & Risk Reduction ................................................................... 7
Operational Response Considerations ........................................................................ 10
EMS Unit Cross Staffing ........................................................................................... 10
EMS Utilization & Response Area ............................................................................. 11
Current Facilities ........................................................................................................ 20
Facilities ..................................................................................................................... 20
Station #14 ............................................................................................................. 23
Station #15 ............................................................................................................. 25
Station #16 ............................................................................................................. 26
Station #17 ............................................................................................................. 27
Station #18 ............................................................................................................. 28
Station #19 ............................................................................................................. 29
Apparatus & Equipment.............................................................................................. 31
Apparatus Maintenance Program ............................................................................. 32
Replacement Schedule ............................................................................................ 33
Equipment & Supplies ............................................................................................. 34
Recommendations ...................................................................................................... 36
Firefighter Safety, Health, & Wellbeing ..................................................................... 36
Community Risk Reduction ..................................................................................... 37
Administrative Efficiencies ...................................................................................... 38
Operational Efficiencies ........................................................................................... 40
Operational Performance & Deployment .................................................................. 41
Appendix A Facilities Best Practices ............................................................................ 43
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Automatic Sprinkler Protection ................................................................................ 43
Cancer Prevention Engineering ................................................................................ 43
Back-In Bays ........................................................................................................... 44
Facility Security ....................................................................................................... 44
Separate Administrative and Operational Areas ....................................................... 46
Separated Sleeping Quarters ................................................................................... 46
Heart Safe Alert Tones ............................................................................................ 47
Decontamination Area............................................................................................. 47
Estimate Square Foot Per Function .......................................................................... 48
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Executive Summary
Emergency Services Consulting International (ESCI) is pleased to present the findings
and recommendations from our comprehensive Community Risk Assessment (CRA) and
Standards of Cover (SOC) project conducted for the Oshkosh Fire Department (OFD).
This project aimed to enhance the effectiveness and readiness of OFD by addressing
key aspects of their emergency response services and community risk assessment.
Below is a summary of the key project components and outcomes.
The project began with the development of an innovative Community Risk Assessment
Hub. This innovative tool centralizes critical data on community risk, demographics,
incident response, department deployment, and emergency response system
performance. The Hub provides OFD with insights into evolving risks, enabling them to
allocate resources more efficiently and respond effectively to emerging challenges.
ESCI has crafted a comprehensive SOC document for OFD. This document establishes
benchmark performance standards categorized by risk and classification. It covers a
wide range of emergency response services, including fire suppression, emergency
medical response, hazardous materials response, dive and water rescue, and technical
rescue. These standards serve as a foundation for optimizing OFD's operational
strategies and resource allocation.
In addition to the SOC, ESCI consultants prepared a detailed Summary and Findings
document. This document offers a holistic assessment of OFD's facilities, apparatus,
and a deeper exploration into performance measurement, administrative staffing, and
EMS unit staffing and deployment. It provides actionable recommendations to enhance
OFD's operational efficiency and service delivery.
Throughout this project, ESCI has worked collaboratively with OFD to gain a deep
understanding of their unique challenges and needs. Our recommendations are
tailored to align with OFD's mission to safeguard the Oshkosh community through
skillful emergency services and risk reduction.
ESCI is proud to have partnered with the Oshkosh Fire Department in this endeavor,
and we believe that this project's outcomes will empower OFD to continue providing
the highest level of service to the community.
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Acknowledgments
Oshkosh Fire Department
Mike Stanley | Fire Chief
Dr. Kerry Ahrens | Medical Director
MJ VanGompel | Management Analyst
John Holland | Public Education Specialist
Brian Bending | Assistant Chief
Greg Stelter | Assistant Chief
Aaron Droessler | Division Chief
Tim Heiman | Division Chief
Drew Jaeger| Battalion Chief
Jack Clark | Captain
Zach Beatty | Lieutenant
Brian Auxier | Equipment Operator
Emergency International Team
Joe Powers | Project Manager & Managing Director
Chris Truty | Senior Consultant
Jeff Stone | Senior Consultant
Katie Yeloushan | GIS Project Manager
Shauna Murrell | Proofing & Branding
CJ Wedell | Captain
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Administrative Considerations
Mission Statement Performance Measurement
The City of Oshkosh Fire Department's commitment to its mission is commendable,
and their proactive use of Key Performance Indicators (KPIs) to measure their progress
in achieving it demonstrates their dedication to the community's safety and well-being.
Their mission statement, which emphasizes being a highly trained team that adds
value through emergency services, risk reduction, and leadership during crisis, serves
as a guide for their operations.
The City of Oshkosh Fire Department is a highly trained team that adds value to our
community by providing a wide range of emergency services with skill and
compassion. We advocate risk reduction through prevention and education, and we
provide leadership in times of crisis.
The department's choice of KPIs is both strategic and purposeful. By conducting
monthly standardized Company Performance Drills, they are not only ensuring their
team's continuous improvement, but, also, setting a baseline for measuring their
readiness for fire suppression operations. Furthermore, their focus on reviewing EMS
incidents, customer satisfaction surveys, and fire inspections highlights a
comprehensive approach to serving the community. These KPIs align with their
mission, reflecting their commitment to being highly trained, adding value to the
community, demonstrating skill and compassion, and actively promoting risk reduction
and prevention.
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Table 1: Key Performance Indicators for the OFD Mission (OFD Table)
Mission Statement Indicator Measurement
Highly Trained
Monthly standardized Company
Performance Drills will be conducted
in 2023 to create a baseline
measurement of the time needed for
performing tasks required to support
an effective fire suppression
operation.
Type of Drill
90% completion time
Adds value to our
community
Review EMS incidents where CVA was
the primary impression to determine
the number of times the patient was
not transported to a stroke center
within 15 minutes of the first OFD
unit's arrival.
Total # of CVA calls
Measure scene time
% under 15 minutes
Skill & Compassion
Survey a valid sample size of
Oshkosh residents who have received
service from the fire department in
the previous month to establish a
baseline for customer satisfaction in
2023.
Total # of calls
# of Surveys sent out
# of Surveys returned
Score on questions 3-6
Community Risk
Reduction
Fire inspections conducted in 2023
will be reviewed to identify
commercial occupancies with fire
code violations to create a baseline
measurement of the number of re-
inspections that should be completed
to achieve fire code compliance.
Total # of fire inspections
How many require re-
inspections?
How many did we re-inspect?
Fire Code Enforcement & Risk Reduction
Within the Oshkosh Fire Department (OFD), the Fire Prevention Bureau plays a pivotal
role in safeguarding the community by enforcing fire codes, conducting inspections,
and promoting fire safety education. However, a series of interviews and reviews have
revealed significant staffing challenges that hinder the bureau's ability to effectively
carry out its responsibilities.
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The Fire Prevention Bureau is presently staffed by an Assistant Chief (Fire Marshal), a
Fire Captain (Deputy Fire Marshal), and a civilian public educator/PIO. The Assistant
Chief and Captain are mainly tasked with conducting fire inspections and code
enforcement. However, the challenges emerge when we delve into the additional
responsibilities placed upon these two key positions.
In addition to fire inspections, the Assistant Chief and the Captain shoulder
supplementary duties. These responsibilities include assisting with fire training
academies, managing OFD facilities, community outreach initiatives, new construction
inspections, fire investigations, third-party system testing, monitoring controlled
burns, and other duties as assigned. This diverse array of tasks, while important, often
diverts their attention and resources away from core fire prevention activities.
Operations crews within OFD also conduct fire code inspections, conducting
approximately 2,300 inspections annually. However, the Fire Prevention Bureau's
Captain alone conducted around 900 inspections last year. The sheer volume of
inspections, coupled with the myriad of other responsibilities, creates an immense
administrative burden, limiting the Bureau's ability to follow up effectively on
inspections.
One notable challenge faced by the Fire Prevention Bureau is the time commitment
required for re-inspections. Fire code compliance mandates re-inspections for
properties with violations, which are labor-intensive processes that consume
substantial time and resources. Unfortunately, due to the competing demands on the
Assistant Chief and the Captain's schedules, re-inspections often go unaddressed,
potentially compromising community safety.
The state of Wisconsin imposes stringent requirements on OFD, mandating fire code
inspections for nearly every multi-family and commercial occupancy in the city. While
this is a crucial aspect of fire prevention, the existing staffing constraints have made it
increasingly difficult for the Fire Prevention Bureau to comprehensively meet these
legal obligations.
To assist with code compliance in the City of Oshkosh, specifically third-party
inspection follow-up, the Bureau has implemented Brycer's "The Compliance Engine"
(TCE). Third-party inspections include fire alarm, commercial cooking hood, and fire
sprinkler inspections conducted by non-city inspectors, typically a trained contractor.
OFD partnered with TCE to allow third-party inspectors to submit violations directly to
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TCE for initial follow-up. If initial follow-up, usually through form letters, does not
achieve the intended result, the TCE process pushes the follow-up to OFD. However,
the utilization of TCE has brought forth an additional administrative workload that
further strains the Captain's capacity to manage inspections effectively. Coordinating
TCE data with other responsibilities has proven challenging and time-consuming.
The Fire Prevention Bureau of the Oshkosh Fire Department faces substantial staffing
challenges that hinder its ability to fulfill its mission of ensuring fire safety within the
community. Addressing these challenges will be crucial to meeting state requirements,
reducing fire risks, and enhancing the overall safety and well-being of Oshkosh
residents. Immediate attention and solutions are required to better allocate resources
and streamline processes within the Fire Prevention Bureau to improve its efficiency
and effectiveness.
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Operational Response Considerations
EMS Unit Cross Staffing
Under the current deployment model, OFD provides three ambulances that are staffed
full-time to the total response area population. Four additional ambulances are
available for deployment; however, OFD utilizes a cross-staffing model. Cross-staffing
in the fire service means that to provide trained personnel to deploy a cross-staffed
unit, another in-service unit must provide the staffing. When cross-staffing occurs, the
donor unit is marked out of service and is no longer available to provide emergency
services and resources to an area.
As an example, if Medics 15, 16, and 17 are committed to medical calls, OFD may opt
to deploy one of the additional four transport ambulances. In this case, the staff from
Engine 14 could move to Medic 214 and responds to the call for service. Engine 14
provides first-response paramedic and fire suppression services to a population of
7,215, and to 3,516 households across approximately eight square miles. Once Medic
214 is deployed, Station 14’s area will experience a decrease in response performance
because Engine 14 is no longer in-service.
The table below shows the current ambulance staffing models.
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Table 2: Available EMS Transport Resources
Unit Type Station Daily Staffing
Medic 15 ALS Ambulance Station 15 2
Medic 16 ALS Ambulance Station 16 2
Medic 17 ALS Ambulance Station 17 2
Medic 214 Crossed Staffed by Engine 14 Station 14 0
Medic 216 Crossed Staffed by Engine 16 Station 16 0
Medic 218 Crossed Staffed by Engine 18 Station 18 0
Medic 219 Crossed Staffed by Engine 19 Station 19 0
The table below shows the cumulative number of hours a cross-staffed ambulance was
used which subsequently placed the affected fire engine out of service.
Table 3: Cumulative Hours of Cross-Staffed Ambulance Use by Calendar Year
Calendar
Year
Medic 214
(Engine 14)
Medic 215
(Engine 15)
Medic 216
(Engine 16)
Medic 217
(Engine 17)
Medic 218
(Engine 18)
Medic 219
(Engine 19)
2018 N/A 57.9 51.8 N/A 33.4 28.9
2019 N/A 61.1 44.0 13.8 45.3 47.3
2020 N/A 54.8 53.6 N/A 56.1 47.9
2021 N/A 51.1 55.7 N/A 46.3 39.6
2022 N/A 73.6 72.2 N/A 66.9 62.8
EMS Utilization & Response Area
The Oshkosh Fire Department responded to 40,295 medical calls for services (300-
series NFIRS) between 2018 and 2022. Predictably, the majority of those incident
responses (83.2%) occurred within the city limits of Oshkosh. The figure below shows
that of the city responses, the highest concentration occurs in the downtown corridor
and is aligned with the concentration of the population and commerce.
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Figure 1: In-City EMS Response Map
Also, the City of Oshkosh Fire Department responds to all emergency and non-
emergency medical calls within communities that are part of an Inter-Governmental
Agreement. These communities include the following cities, townships, and villages:
• City of Omro
• Town of Algoma
• Town of Black Wolf
• Town of Nekimi
• Town of Omro
• Town of Poygan
• Town of Rushford
• Town of Van Dyne
• Town of Winneconne
• Village of Winneconne
• Town of Utica
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The following table, based on the 2023 projected population, shows that OFD is
responsible for providing emergency medical transport services to more than 90,000
people, 38,190 households, over a 233 square mile area. For context, Winnebago
County is 434 square miles.
Table 4: Population & Households by EMS Area
Area Population Daytime
Population Households Area (in Sq.
Miles)
EMS Area - Outside of City 26,507 19,171 10,590 205.87
EMS Area - Inside City 65,351 74,167 27,600 27.67
Total 91,858 93,338 38,190 233.54
OFD’s response outside of the city limits is important to discuss. As visualized in the
figure below, responses into the Inter-Governmental Agreement are not evenly
distributed. The call volume density is in three different areas. Additionally, more than
half of all EMS responses outside the city occur more than ten miles from the city’s
boundary.
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Figure 2: Outside-City EMS Response Points & Distance
Although EMS responses in this area account for 16.8% of all EMS responses, the travel
distance and reflex time back to the city should be considered. On average, OFD
ambulances travel more than 10 miles away from the city’s nearest boundary 2.15
times per day.
To clarify the figure above, the shaded area labeled “City of Oshkosh 10 Mile Buffer”
represents the collection of incident responses between five and ten miles from the
city boundary. Furthermore, the communities of Omro and Winneconne are within this
catchment. Although the areas are 5-10 miles, the typical travel time to both these
communities are 18-19 minutes.
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Based on the figure below, the fire department’s ambulance coverage provides baseline
coverage to the city response area using 4-minute and 6-minute travel-time
performance benchmarks. However, when ambulances leave the primary service area,
they become unavailable for city responses as they are committed to other
communities.
Figure 3: OFD Ambulance Travel Time Capacity
Additionally, responses outside of the city have a greater commitment time (time
between dispatch and return-to-service) than the city incidents. Responses outside of
the city have longer travel times and without the OFD resources to assist ambulance
crews in patient mobilization and care, ambulances are less efficient in routine
transports. Medical calls in the city, in many cases, also have three OFD fire engine
personnel available to assist in moving the patient from the incident location to the
ambulance and assisting with patient care prior to transport. The two figures below
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visualize commitment times. Interestingly, the data shows that 32% of outside-city EMS
calls and 15% of in-city calls show unit commitment exceeding sixty minutes.
Figure 4: Ambulance Commitment Outside the City
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Figure 5: Ambulance Commitment Inside the City
Effective Response Force Limitations
ESCI evaluated the limitations within the OFD’s current system through an evaluation of
the effective response force (ERF). The term "Effective Response Force" as noted by the
National Fire Protection Association (NFPA) generally refers to the number and type of
fire service resources needed to handle an emergency effectively. This includes
personnel, apparatus, and equipment that are required to respond within an
appropriate time frame to control a specific type of incident.
The NFPA sets various standards and guidelines to help fire departments determine the
necessary size and composition of an effective response force. For example, NFPA
1710 establishes standards for the organization and deployment of fire suppression
operations, emergency medical operations, and special operations to the public by
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career fire departments. This standard includes guidelines for the minimum number of
personnel and types of apparatus that should respond to different types of incidents.
The concept of an Effective Response Force is crucial for ensuring that fire
departments are adequately prepared and equipped to handle emergencies, thereby
protecting both the public and firefighters. It also serves as a benchmark for evaluating
the performance and capabilities of fire departments.
The following two figures illustrate the current limitations by the specific number of
firefighters available to respond in four and eight minutes respectively. In the map
showing the ERF by four-minute travel time, 25% of the city is limited to no-more than
three firefighter arriving within four minutes. In the map showing ERF by eight-minute
travel time, 18% of the city is limited to no-more than sixteen firefighters arriving
within eight minutes.
Figure 6: ERF, 4-Minute Travel Time
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Figure 7: ERF, 8-Minute Travel Time
In alignment with NFPA 1710, OFD deploys 18 firefighters to a structure fire. However,
OFD is limited to only 11% of the city for ERF performance in 28 firefighters arriving
within the 8-minute travel time response goal. 25 firefighters, however, can arrive at a
structure fire within the performance goal in 44% of the city.
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Current Facilities
Fire stations play a critical role in the delivery of emergency services for several
reasons. A station's location will dictate, to a large degree, response times to
emergencies. A poorly located station can mean the difference between confining a fire
to a single room and losing the structure. Fire stations also need to be designed to
house equipment and apparatus, as well as meet the needs of the organization and its
personnel.
Appropriately designed, maintained, and adequately located facilities are critical to a
fire department's ability to provide services in a timely manner. At a high level, ESCI
evaluated the six fire stations of the OFD. The following figure assigned an overall
rating to each fire station using the criteria.
Note: ESCI provides an appendix to this report titled, “Facility Best Practices.” Refer to
the appendix for details regarding facility best practices and industry standards.
Facilities
ESCI conducted an overview evaluation of the Oshkosh Fire Department fire Stations
and reviewed an independent fire department facilities evaluation and concept
planning study that was conducted in April of 2022. These evaluations looked at the
location response efficiency, functionality, overall health and well-being of the staff,
expansion and upgrade needs, and possibilities. Standards and recommendations are
based on those in the Commission on Fire Accreditation International (CFAI) for fixed
facilities. Through a Community Risk Assessment, the station should provide efficient
and adequate response capabilities for the variety of calls for service in its
jurisdictional area.
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Figure 8: 4-Minute Drive-Time Analysis
ESCI visited and provided a high-level review of each facility and by referencing the
2021 SEH facilities report produced the following assessments.
At the time of construction, facilities adhered to all federal, state, and local codes and
regulations. The OFD designates an assistant chief to oversee facilities maintenance.
This chief identifies essential safety upgrades and addresses them as resources permit.
Items requiring more extensive attention are incorporated into the agency's long-term
capital improvement plan, which covers aspects such as fire alarm systems, sprinkler
systems, seismic considerations, vehicle exhaust systems, and asbestos abatement.
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Several fire stations need updates, renovations, and/or replacement. Unfortunately,
OFD’s past practices did not support new facilities and expansion. OFD leadership is
currently working closely with city leadership to secure land and funding for future fire
station replacement and renovation.
The following facility overviews are a combination of the consultant’s direct
observations and the review of the City of Oshkosh’s Facilities Evaluation and Concept
Planning produced by S.E.H, a national municipal facility consulting firm. The S.E.H.
report is dated April 15, 2022.
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Station #14
2050 Knapp Street
Station #14 primarily serves Wittman Regional Airport and the surrounding district.
Owned by Winnebago County and managed cooperatively with the City of Oshkosh, the
station is pivotal, especially during the EAA's annual Air-Venture event which attracts a
significant influx of air traffic and visitors.
The current building, while in fair condition, faces multiple challenges. Structurally,
there's inadequate space for the response units, poor moisture barriers, and
deteriorating concrete. Aged components like single-pane windows and rusting doors
indicate deferred maintenance. Inside, the kitchen and bathrooms are outdated, not
conforming to modern fire station standards or being gender neutral.
Operational efficiency is compromised. The layout lacks dedicated spaces for essential
activities, including report writing and gear decontamination. Accessibility is an issue,
particularly in the kitchen, and the dormitory doesn't provide sound privacy, impacting
personnel sleep and subsequently, their effectiveness. The lack of facilities
accommodating female firefighters is also a recruitment challenge.
From a health and safety perspective, the station misses decontamination areas and
proper exhaust filtering, risking firefighter exposure to carcinogens. The outdated
alerting systems can abruptly wake personnel, leading to potential health issues.
Furthermore, concerns about lead and asbestos, given the building's age, suggest
additional hazards.
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The building's energy inefficiency, marked by insufficient insulation, also requires
attention. Retrofitting or expanding the current station might be challenging, making
the case for a potential new facility. Assessing the cost and benefits of refurbishment
versus building anew is critical. The station's significance, especially during large events
like the Air Venture, calls for urgent action. Additionally, modernizing the station could
help in attracting and retaining a diverse workforce, important in the face of declining
interest in public safety jobs.
Table 5: Station 14 Apparatus Assignments
Unit ID Apparatus Type Year Staffing /Shift
E-14 Engine/Pumper 2006 3
M-214 Ambulance 2016 Cross-Staffed
CRASH 1 ARFF R.I.V. 2016 Cross-Staffed
CRASH 2 ARFF Oshkosh T1500 1986 Cross-Staffed
CRASH 3 ARFF Stryker 2009 Cross-Staffed
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Station #15
101 Court Street
Station 15, located in the heart of the city, stands as the operational hub of the
Oshkosh Fire Department (OFD). Not only does it house an array of emergency vehicles
but it also functions as the Fire Department Headquarters.
Externally, the building carries a masonry/brick finish. Internally, the structure's core is
mostly in fair to good condition. However, signs of age manifest in the foundation,
windows, and plumbing. The roof's life expectancy is pinned at 6-10 years, while the
boiler and water heater, replaced in 2008, perform satisfactorily, albeit with
temperature irregularities common in older constructions.
The facility's layout presents some challenges. The limited space restricts traffic flow,
forcing vehicles to back into the station. Additionally, the large employee density poses
an "obstacle course" risk during emergencies. The dormitory, positioned on the second
floor, elicits mixed feelings among crew members who crave personal space. The
current setup also complicates the laundering of soiled Personal Protective Equipment
(PPE), which must be transported through communal areas.
Health and safety issues further accentuate Station 15's operational problems. While
the building boasts a sprinkler system, the outdated alerting systems used by OFD's
six stations have a jarring effect on the sleeping personnel. Staff members also voiced
security concerns with community members sometime able to access secure areas.
With the city's Comprehensive Plan Update pointing to a significant rise in residential
units within Station 15's area, there's an impending need for equipment and personnel
expansion. As Station 15 nears its half-century mark, critical decisions loom regarding
its future role in OFD's expanding community.
Table 6: Station 15 Apparatus Assignments
Unit ID Apparatus Type Year Staffing /Shift
M-15 Ambulance 2019 2
E-15 Engine/Pumper 2021 3
L-15 Ladder 2016 3
C-15 Command 2017 1
Boat 15 & Tow Inflatable Boat 2018 0
C-14 Reserve 2007 0
RM-1 Reserve ambulance 2016 0
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Station #16
711 South Washburn Street
Station 16, currently housing Engine 16, Medic 16, and other specialized units is facing
numerous challenges. Originally set up as a temporary emergency operations facility, its
physical condition is deteriorating, with structural concerns arising from proximity to an
Oshkosh Water tower. On some occasions, ice from this tower has damaged the station's
roof. The station lacks appropriate mechanical ventilation, presenting health hazards
from harmful gases. Electrical systems, while operational, would require updating with
any facility expansion.
The station's design restricts efficient operations. All apparatus, except for Engine 16,
need to be backed in from Washburn Street. With inadequate space for the crew and
equipment, it is struggling to manage daily operations effectively. Living quarters are
cramped, lacking modern amenities and gender-specific facilities, making staff
recruitment challenging.
Further, the station's location near major roads poses operational and safety risks. A
significant percentage of fire-related fatalities involve vehicle incidents, which is
alarming. Also, the absence of an automatic sprinkler system, limited air circulation in
living areas, and outdated alerting systems present significant health and safety
challenges. Crew members have also voiced concerns regarding the station's security.
Given these challenges, the ESCI suggests relocating the building near the current Station
16. Decisions should consider the future growth of the station and potential service
expansion. Meanwhile, traffic management changes might help mitigate current
challenges.
Table 7: Station 16 Apparatus Assignments
Unit ID Apparatus Type Year Staffing /Shift
E-16 Engine/ Pumper 2013 3
M-16 Ambulance 2019 2
M-216 Ambulance 2017 Cross-Staffed
SC-116 Special Rescue 2008 Cross-Staffed
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Station #17
1813 Algona Boulevard
Station 17, which houses Quint 17, Medic 17, Medic 217, and Dive 17 operates with
five emergency personnel on duty every shift. Built 25 years ago, the station, made of
masonry and brick, appears sturdy, though it requires some improvements to ensure
another 15-20 years of service. The roof, aging and worn, is scheduled for
replacement in 2024-2025. Original windows, while still functional, lack energy
efficiency. The plumbing, electrical systems, and the emergency generator show signs
of age but remain operational. The apparatus bay is equipped with exhaust removal
systems.
Operationally, the building's layout reflects its age. The kitchen and bathrooms,
showing signs of heavy use, need upgrades to meet modern accessibility standards.
The dormitory space is insufficient, lacking privacy especially for female staff, affecting
the department’s ability to recruit and retain personnel. Additionally, the second-floor
fitness facility, shared with mechanical equipment, is less than ideal.
From a health and safety perspective, while Station 17 has a fire alarm, it lacks a fire
protection system and proper decontamination areas. Current alerting systems in all
Oshkosh Fire Stations are outdated, posing health risks due to abrupt awakening of
staff. Turnout gear, exposed to exhaust and UV light, is stored on the apparatus floor.
Concerns about station security have been raised, suggesting the need for better
security infrastructure. Fortunately, Stations 17, 18, and 19 were constructed post the
asbestos and lead ban, minimizing certain health risks. However, improvements in air
quality are needed. The station also needs to address concerns about space for
mothers and gender neutrality, as well as the decontamination of equipment and
personnel.
Table 8: Station 17 Apparatus Assignments
Unit ID Apparatus Type Year Staffing /Shift
Q-17 Quint / 105’ Ladder 2016 3
Dive – 17 Rescue Squad 2000 Cross-Staffed
M-17 Ambulance 2019 Cross-Staffed
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Station #18
811 East Murdock Avenue
Station 18, home to Engine 18, Medic 218, Reserve-1, and staffed by three emergency
personnel, stands sturdy despite its years. With some improvements over time, it's
projected to serve the community for another 15-20 years. The building's core
structure is holding up well, though signs of age are evident. The roof was replaced in
2022. The exterior windows, original to the building, show wear and lack energy
efficiency. The water heater is nearing its end of life and will require replacement,
alongside the introduction of a recirculating pump for faster hot water access.
Similarly, the building's furnace and AC units are original and demand attention soon.
Inside, the building's layout exhibits inefficiencies. The 26-year-old station reveals its
age with an outdated kitchen and bathroom, and there's a pressing need for
accessibility adjustments to the kitchen layout. The dormitory, cramped and absent of
privacy, falls short of modern standards, making recruitment challenging. In the realm
of health and safety, there are glaring gaps. Station 18 is equipped with an outdated
alerting system, putting the well-being of personnel at risk. Protective turnout gear is
stored in an area exposing it to vehicle exhaust and UV degradation. Concerns extend
to building security and the lack of provisions for gender neutrality. For the health of
its occupants, the introduction of a decontamination area is essential.
Table 9: Station 18 Apparatus Assignments
Unit ID Apparatus Type Year Staffing /Shift
E-18 Engine / Pumper 2009 3
M-218 Ambulance 2012 Cross-Staffed
Reserve 1 Engine / Pumper 1997
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Station #19
1000 West Snell Road
Station 19 houses three personnel, and also serves the HazMat Response Team.
Despite showing its age, the station remains in relatively fair condition, with the belief
that with the right enhancements and upkeep, it could last two more decades. The
building's windows, original to the station, have begun to show their age, lacking
energy efficiency and occasionally malfunctioning. Similarly, aging plumbing demands
attention, with the water heater nearing the end of its lifespan. The roof is due to be
replaced in 2025.
Within the building, the flow of movement feels only adequate, especially given the
evident wear from 26 years of constant use. Aging facilities like the kitchen and
bathroom necessitate refurbishments, from cabinetry to floor coverings. Notably, the
kitchen falls short in modern accessibility standards, making future redesigns
imperative, although a complete shift to a commercial kitchen setup may be financially
unfeasible.
The staff's living quarters present additional concerns. Cramped sleeping areas lack
privacy. The current setup, with shared rooms, not only compromises sound privacy
but also falls behind the best practices observed in newer stations in neighboring
communities, affecting Oshkosh Fire Department's recruitment efforts.
Critical health and safety challenges include the absence of a fire protection system,
outdated alerting mechanisms, and improper storage for the turnout gear.
Furthermore, concerns about the building's security have been voiced, emphasizing the
need for enhanced surveillance and monitoring systems.
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Table 10: Station 18 Apparatus Assignments
Unit ID Apparatus Type Year Staffing /Shift
E-19 Engine / Pumper 2021 3
M-219 Ambulance 2012 Cross-Staffed
Q -219 Reserve Ladder 1999 0
H-119 HazMat Truck and
Trailer
2012 0
Reserve 2 Engine/ Pumper 2003 0
G-119 Grass / Brush Unit 2020 0
U-119 Rehab unit 2005 0
UTV - Event Use 2020 0
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Apparatus & Equipment
The Oshkosh Fire Department has a collection of apparatus appropriate for the level
and type of service delivery. The vehicle stock is distributed appropriately across the
city’s response area in fixed facilities. Facilities with program and service deployment
focus, such as water rescue and HazMat, house apparatus specific to the need.
Oshkosh Fire Department is working closely with apparatus manufacturers to take
delivery of several specialized vehicles to replace and supplement the current fleet.
Apparatus currently on order include:
• 100’ Pierce Mid-mount Platform Aerial (2024)
• Pierce Velocity Pumper (2025)
• Pierce Velocity Pumper (2026)
• 3-Wheeled Coach Ambulances (2024)
Table 11: 2023 OFD Apparatus
Unit Type Station Year Manuf. Pump
Cap. Mileage Tank
CRASH 1 Rescue 14 2000 Ford N/A N/A
CRASH 2 Crash Truck 14 1985 Oshkosh 1500
CRASH 3 Crash Truck 14 2009 Oshkosh 1500
Boat 15 Inflatable 15 2018 Mercury N/A N/A N/A
Car 14 Reserve Command 15 2007 GMC N/A 101,238 N/A
Car 15 Command 15 2017 Ford N/A 40,019 N/A
Dive 17 Utility 15 N/A N/A
Tow 15 Utility 15 Ford N/A N/A
Engine 14 Engine 14 2006 Pierce 1500 99,100 750
Engine 15 Engine 15 2021 Pierce 1500 12,205 750
Engine 16 Engine 16 2009 Pierce 1500 62,282 750
Engine 18 Engine 18 2022 Pierce 1500 0 750
Engine 19 Engine 19 2021 Pierce 1500 29,160 750
G119 Grass/Brush 19 2022 Ford 100
H119 HazMat 19 2005 GMC N/A N/A
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Unit Type Station Year Manuf. Pump
Cap. Mileage Tank
Husky 15 Air Boat WCSO 2004 Huskey N/A N/A N/A
Ladder 15 Aerial 15 2016 Pierce 1500 30,357 500
Medic 214 ALS Ambulance 14 2012 Chevy /
Medtech N/A N/A
Medic 15 ALS Ambulance 15 2019 Ford/Lifeline N/A 88,547 N/A
Medic 16 ALS Ambulance 16 2019 Ford/Lifeline N/A 99,913 N/A
Medic 17 ALS Ambulance 17 2019 Ford/Lifeline N/A 98,523 N/A
Medic 216 Reserve
Ambulance 16 2017 Ford/Lifeline N/A 103,079 N/A
Medic 218 Reserve
Ambulance 18 2012 Medtech N/A 147,864 N/A
Medic 219 Reserve
Ambulance 19 2012 Medtech N/A 137,132 N/A
Quint 17 Quint 17 2016 Pierce 1500 32,380 500
Reserve 1 Engine 18 2003 Pierce 1500 750
Reserve 2 Engine 19 1997 Pierce 1500 750
Reserve 3 Quint/Ladder 19 1999 Pierce 1250 500
Reserve
Medic 1
Reserve
Ambulance 15 2016 Ford N/A N/A
Reserve
Medic 2
Reserve
Ambulance 19 2016 Ford N/A N/A
SC116 Spec Ops 16 2008 Chevy N/A N/A
U119 Rehab 19 2013 Ford N/A N/A
Apparatus Maintenance Program
In the context of a comprehensive review of the Oshkosh Fire Department's operational
frameworks and capacities, it is evident that the agency is committed to instituting
standards and processes to safeguard its effectiveness and reliability.
The department uses the City of Oshkosh as the primary supplier of vehicle services.
This city facility strives to ensure that each apparatus undergoes preventative
maintenance and repair. Such infrastructure, coupled with the adequate tools and
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resources, can increase the longevity and dependability of the department's apparatus
assets.
In terms of vehicle readiness, the department utilizes a reserve vehicle fleet as noted in
the apparatus table above. This fleet tries to ensure that the service remains
uninterrupted, even during unforeseen apparatus downtimes. Additionally, and as
noted above, the department has several vehicles on order that will transition some
reserve apparatus out of the cycle.
The Oshkosh Fire Department, however, does not have a strong approach to inspection
and documented preventive maintenance protocols. Instituting these measures,
complemented by the well-defined replacement schedule, will ensure that every
apparatus is operational.
Replacement Schedule
As part of the most recent Oshkosh Fire Department Strategic Plan, the department
plans to create a robust apparatus management plan. Goal 5 of the 2022-2027
Strategic Plan states, “Develop a fiscally responsible plan to manage, maintain, and
replace capital assets in compliance with established laws, regulations, and best
practices to continue providing essential services.” The objectives related to apparatus
replacement under this goal include:
• Develop an accurate inventory of fire department equipment to include age,
condition, quantity, and location, utilizing a records management system.
• Identify and compile regulations and best practices to manage, maintain, and
replace equipment.
• Establish a preventative maintenance program and replacement schedule for
equipment.
• Create a replacement schedule for staff and utility vehicles.
Oshkosh Fire Department is working closely with apparatus manufacturers to take
delivery of several specialized vehicles to replace and supplement the current fleet. Not
unlike other localities across the U.S., Oshkosh experiences the strain resulting in
manufacturing supply chain challenges. However, OFD has several apparatuses on
order, which include:
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• 100’ Pierce Mid-mount Platform Aerial (2024)
• Pierce Velocity Pumper (2025)
• Pier Velocity Pumper (2026)
• 3-Wheeled Coach Ambulances (2024)
Equipment & Supplies
The Oshkosh Fire Department manages its resources to meet the needs of its
functional areas including fire suppression, prevention, and HazMat, among others.
The department works to ensure appropriate and sufficient distribution of tools and
equipment but has also established schedules for timely replacements, integrating
them well within the budgetary outlines to maintain the agency's readiness at all times.
Maintenance, testing, and inspections are performed by personnel following the
manufacturer's guidelines, which increases the longevity and reliability of the
equipment. To improve the process and establish formalized procedures, OFD is
evaluating software solutions like PSTrax.
Furthermore, the department allocates supplies and materials based on objectives,
meeting the operational needs while aligning with the standards set at various
governmental levels, highlighting OFD’s commitment to excellence and regulatory
compliance in all its initiatives.
ESCI reviewed the capital improvement plan for the department. The plan outlines a
series of projects spanning from 2024 to 2033 with a total expenditure of
$15,586,110. In 2024, an allocation of $750,000 is planned for acquiring land for fire
stations, which has a useful life of 20-25 years. There are several equipment upgrades
and replacements scheduled, notable among them being the procurement of Self-
Contained Breathing Apparatus (SCBA's) in 2032 at $1,000,000 with a 15-year
lifespan. Additionally, a substantial investment is proposed in replacing fire engine
vehicles over the years 2026 to 2028, amounting to $4,435,610. Turnout gear will also
see a phased replacement over the years, with a total outlay of $1,804,800. Other
notable projects include replacing cardiac monitors in 2024 ($1,092,500), replacing
radios in 2032 ($1,000,000), and a series of ambulance replacements between 2026
and 2032 costing $4,833,200. The plan further projects budget needs for other
machinery, equipment, and vehicles essential for the department's operations.
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Recommendations
Based on the interviews, document review, risk assessment, and the development of a
standard of cover, ESCI developed the following recommendations. These
recommendations are supported by industry standards, best practices, and the
backgrounds and experiences of the project consultants. The recommendations are
categorized into five groups:
1. Firefighter Safety, Health, and Wellness
2. Community Risk Reduction
3. Administrative Efficiencies
4. Operational Efficiencies
5. Operational Performance and Deployment
Firefighter Safety, Health, & Wellbeing
ESCI recommends following the guidance set forth by NFPA 1851 and continuing to
fund and implement the current capital improvement plan for outfitting operational
personnel with an additional set of firefighting ensembles. A second set of turnout
gear aids in the routine and incident-related cleaning, drying, and proper care of gear.
Additionally, this would help avoid firefighter exposure to the carcinogens contained in
firefighting ensembles after exposure to the biproducts of combustion, such as house
fire, vehicle fires, and trash fire.
ESCI recommends upgrading fire stations to meet current commercial standards to
include automatic stove shut offs, commercial-style cooking hoods, fire suppression
sprinklers, and door security. These upgrades support best practices in fire station fire
safety. Refer to Appendix A, Facility Best Practices.
During the site visit, ESCI recognized the lack of privacy in the bedrooms at Stations
15, 16, 17, 18, & 19. ESCI recommends supporting capital improvement plans to
improve bedroom privacy to support firefighter inclusion and improve employee
retention.
Stations 14 and 16 store personal protective equipment in an open bay space exposed
to diesel exhaust. ESCI recommends that OFD consider separating the gear storage
from the diesel exhaust. Refer to Appendix A, Facility Best Practices.
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Stations with pull-through bays have congested bay space. OFD frequently uses pull-
through bays to store auxiliary equipment, forcing operations personnel to bypass the
pull-through features and back apparatus into the fire station. ESCI recommends that
OFD explore additional storage strategies to maintain pull-through bays and reduce
apparatus from backing into stations. Additional storage may include additional fixed
facilities either built to suit or acquired. Refer to Appendix A, Facility Best Practices.
Community Risk Reduction
ESCI recommends evaluating the critical staffing needs of the fire prevention
inspection program. OFD is required by Wisconsin statute to complete more than
3,200 inspections annually. OFD utilizes operations staff to inspect approximately
2,300 occupancies. Many initial inspections, however, result in identified violations
that require a reinspection. OFD does not exhibit the staffing to achieve both initial
and follow-up inspections.
During the site visit, ESCI identified that OFD inspectors (assistant chief & captain
positions in CRR) are not successful in coordinating, conducting, and following up on
the approximately 3,200 fire code inspections required under Wisconsin law. Although
fire operations conduct about 2,300 “company inspections,” those “inspectors” are not
trained in code enforcement and lack the capacity for consistent inspection follow-up.
The nearly 900 remaining inspections are located at high-risk occupancies, which take
a considerable amount of time to evaluate. Furthermore, CRR staff are also required to
oversee facility maintenance, assist in operational training, conduct fire inspections,
and be assigned special projects. ESCI recommends evaluating alternative deployment
and staffing models for fire prevention inspections. If the city is unable to fund
additional sworn inspector positions, ESCI recommends exploring the partnership with
third-party inspection services to meet the needs of the community and be aligned
with Wisconsin law.
ESCI recommends formalizing a collaboration between community stakeholders and
developing a Frequent 911 Utilizer Workgroup. The workgroup should consist of
representatives from multiple agencies that have a stake in the community’s future
mitigation efforts. Representatives may include police, social services, behavioral
health, E911, healthcare, nonprofits, skilled nursing, etc.
ESCI recommends developing a process for OFD staff to report non-incident
interactions with target populations, such as the city’s homeless individuals. OFD
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reports frequent interaction in and around OFD facilities; however, those interactions
are not recorded; thus, no data is available to assist in collaborative solutions. OFD has
access to ArcGIS and record management system products that, together, can create
adequate collection tools.
Based on the community risk associated with an older population, ESCI recommends
expanding the community fall prevention activities and applying performance
measures and attainable benchmarks. Additionally, ESCI recommends exploring
community partnerships to achieve more community reach and decrease the utilization
of OFD resources.
ESCI recommends instituting a process that closes the loop between operational
response and fire investigation. The OFD should create processes to ensure the
response personnel know the final cause determination and integrate department
training and public education. The outputs of fire investigations can have a profound
impact if the information is transferred appropriately.
ESCI acknowledges the community’s efforts in developing the “Tiny Homes” project and
other transitional housing for families experiencing housing challenges. ESCI
recommends that OFD strategically engage with the Tiny Homes community and other
transitional housing projects to expand public education for whole-community risk
reduction.
ESCI recommends engaging the Community Development Block Grant (CDBG) funding
opportunities to cover the costs of items, such as smoke alarms, carbon monoxide
alarms, and other life safety expenses. CDGB funding is available for activities in a
portion of the OFD response area. The funding can supplement the activities already in
place by community risk reduction staff.
Administrative Efficiencies
ESCI recommends intentional and documented planning for future fire station facilities
and land purchases. In the past, OFD did not plan for future expansion and new
facilities, thus leaving the current department leaders without adequate real estate
opportunities.
Station 15 and the associated administrative spaces are at maximum capacity. ESCI
recommends that OFD and the city consider future planning for expanded operations
and administration spaces at Station 15. Additionally, ESCI recommends identifying
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alternative storage solutions (acquired building or new construction) to reduce the
instances of fire apparatus from backing into fire stations because pull-through bays
are blocked with stored items. Refer to Appendix A, Facility Best Practices.
ESCI recommends evaluating the critical staffing needs of the fire prevention
inspection program by conducting a job task analysis. During the site visit, ESCI staff
noted that fire prevention personnel oversee OFD facilities, assist with training
academies, conduct public education, monitor controlled burns, witness in-person
third-party testing of sprinkler and fire alarm systems, and other assigned projects
within the organization. ESCI recognizes that mid-sized fire department organizations
rely on cross-training and task distribution to achieve outcomes; however, the number
of staff assigned to fire prevention activities does not support a successful fire
prevention program.
ESCI recommends conducting a workload demand study of the facility management
activities. The management of the OFD’s aging facilities and associated coordination
activities is the responsibility of the City’s Fire Marshal and Assistant Chief of
Community Risk Reduction. The organization’s Community Risk Reduction Division is
understaffed and unable to successfully deploy the primary mission. ESCI recommends
continuing transferring the facility management duties to the Administrative Services
Department. This change will increase the organization’s efficiency in facility
maintenance and repair coordination.
ESCI recommends that the fire prevention staff develop an improved partnership with
Community Development to increase information exchange regarding change of use,
new businesses, and vacant buildings. The fire department’s deployment of operations
and code enforcement can bolster the activities of the city’s community development
mission. Bolstering information sharing will create increases in government efficiency.
During on-site interviews, ESCI recognized that the two assistant chiefs within the
organization have a high workload associated with low-level tasks. ESCI recommends
conducting a job task analysis to identify the assistant chief positions’ primary focus
and develop strategies to offload task-level activities.
Consistent with the guidance set forth by the Commission on Fire Accreditation
International, ESCI recommends that all organizational documents, forms, standard
operating procedures general guidelines, and manuals are reviewed at least every three
years and updated.
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Operational Efficiencies
ESCI recommends defining and communicating the role of the fire captain within the
organization. During the ESCI site visit, it was unclear whether personnel at several
ranks (firefighter to battalion chief) understood the contrast between a fire lieutenant
and a fire captain.
ESCI recommends reviewing and updating policy and training to continue support for
battalion chiefs and expand the program to enable company officers to conduct initial
fire investigations. During the site visit, ESCI recognized that fire investigators are
requested on many structure fires. Within the OFD deployment model, the two fire
investigators are the assistant chief and captain within the CRR division. The increased
workload associated with investigations interferes with the primary duties of
community risk reduction and code enforcement.
Considering the company fire prevention inspection program, ESCI recommends the
OFD evaluate the value and return on investment of the program’s current deployment
strategy. In its current form, the program deploys operations personnel to conduct fire
code inspections without formal training or the ability to consistently follow up, and
the program focuses on low-risk occupancies. ESCI recommends retooling the
program to focus primarily on pre-incident planning, community education, and life-
safety hazard assessment while satisfying the code enforcement requirement by state
statute. Additionally, operations personnel should begin pre-planning high-risk
occupancies in coordination with the fire prevention staff.
The OFD incident-related workload is increasing. From a national standpoint, the
experience in Oshkosh is not unlike other communities. ESCI recommends exploring
an EMS response model change and considering an alternative response to low-acuity
calls for service. Those incident responses are typically categorized as Alpha and
Omega within the ProQA dispatch system. Dispatching the highest level of care
(paramedic transport ambulance) to low-acuity incidents reduce the resources’
reliability for actual emergencies. ProQA and Priority Dispatch are the gold standard for
triaging 911 calls to match resources with needs. OFD should rely more heavily on the
triaged dispatches.
OFD experiences operational efficiency with the ProQA emergency medical dispatch
deployed by the Emergency Communications Center. However, the 911 center does not
differentiate fire risk structure by occupancy type, facility size, height, or other risk
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factors. In turn, OFD responds with a standard response to all structure fires. ESCI
recommends creating processes within the 911 center to identify building size, type,
and other elements that affect firefighter risk. These processes may include a ProQA
emergency fire dispatch protocol, adding questions for the 911 call-taker, or tying the
computer-aided dispatch to readily available city property data.
Operational Performance & Deployment
ESCI recommends transitioning a fourth advanced life support transport ambulance
from the cross-staffed model to a fully-staffed deployment model. The fourth
ambulance will improve the reliability of ambulances to the Oshkosh city community by
offsetting ambulance utilization outside of the city. The city’s commitment to
providing high-quality EMS service to the surrounding communities is a testament to
policymakers' investment in neighboring areas; however, the demand on ambulance
resources prompts the need for an additional ambulance.
ESCI recommends reducing the reliance on cross-staffed ambulances within the city’s
emergency response system. Cross-staffed ambulances reduce the availability of fire
engine personnel, tools, equipment, and an effective response force during non-
medical emergencies. If OFD determines additional ambulances are needed, the
department should seek support and staff an additional full-time ambulance.
ESCI recommends the OFD work toward meeting NFPA 1710, the Standard for the
Organization and Deployment of Fire Suppression Operations, Emergency Medical
Operations, and Special Operations to the Public by Career Fire Departments. NFPA
1710 states that fire departments of OFD’s size and function should staff fire engines
and ladder trucks with four personnel. Understanding the burden that this standard
can place on the City of Oshkosh, ESCI further recommends that OFD not reduce
current staffing on any fire suppression unit and maintain three personnel at all times.1
Considering response time performance benchmarking, ESCI recommends assessing
the current turnout time (time from the alarm sounding to the apparatus driving) and
establishing incremental improvement strategies. An incremental improvement (ex:
1 NFPA 1710, Standard for the Organization and Deployment of Fire Suppression Operations,
Emergency Medical Operations, and Special Operations to the Public by Career Fire
Departments, Section 5.2.3.1.1
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12% improvement in performance) over the next twelve months will assist OFD in
achieving the sixty-and eighty-second turnout time established by NFPA 1710, the
Standard for the Organization and Deployment of Fire Suppression Operations,
Emergency Medical Operations, and Special Operations to the Public by Career Fire
Departments.
ESCI recommends that OFD consider establishing risk-level-based turnout time goals
appropriate for the community and deployment. Based on community expectations,
low-priority incident responses may not require immediate and rapid response.
ESCI recommends encouraging the Winnebago County Communications Center to
expand the certification and capability of the ProQA dispatch processes to include
Emergency Fire Dispatch (EFD). Pairing EFD with the current Emergency Medical
Dispatch (EMD) capability will increase the efficiency of call triage and resource
deployment.
ESCI recommends following through with the plan for the installation of an appropriate
station alerting technology solution. Station alerting technology pairs directly with the
911 Center and utilizes message boards, customizable alerts, and timers to increase
resource mobilization performance.
ESCI recommends establishing quarterly standards of cover compliance reporting and
performance measurement on the adopted standards. Quarterly reporting can assist
agency leaders and policymakers in understanding the ongoing gaps in service and
monitor the improvement in performance with resource and deployment changes.
ESCI recommends updating the Standards of Cover document annually with updated
performance gap reporting and revised performance benchmarks.
ESCI recommends establishing a workgroup to identify the incidents where adding a
battalion chief would improve incident outcomes. These incidents may include cardiac
arrests and other incidents that require coordination outside of patient care. The
automatic response of a commander will increase the operation’s efficiency and safety
when crews are performing life-saving measures.
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Appendix A
Facilities Best Practices
ESCI recognizes fire station design best practices have changed significantly within the
last ten years due to research and recent technology. ESCI understands it is not
possible or financially practical to incorporate these best practices within existing fire
stations. However, ESCI recommends that the OFD consider these when designing new
facilities and remodeling existing facilities.
Automatic Sprinkler Protection
NFPA 1: Fire Code requires that "new buildings housing emergency fire, rescue, or
ambulance services shall be protected throughout by approved supervised automatic
sprinkler systems." The requirement for sprinkler protection not only protects the
emergency services personnel occupying the facility but also reduces the risk of
disrupting the provision of emergency services to the community because of a fire.
Cancer Prevention Engineering
The occupation of a firefighter is recognized as one where those working in the
industry are more likely to be diagnosed with cancer than the public. Firefighters have
a 9% higher risk of being diagnosed with cancer and a 14% higher risk of dying from
cancer than most Americans.2 The danger for firefighters does not stop when the fire
is extinguished, but returns to the fire stations through their gear, equipment, and
vehicles that were exposed to, and contaminated by, smoke or other vapors. When
contaminated gear and equipment are returned to the station via their respective
response apparatus, the potential for cross-contamination occurs.
The International Agency for Research on Cancer rates diesel engine exhaust as a
Group 1 carcinogen, which means it is known to cause cancer in humans.3 Installing
exhaust capture and removal systems in fire stations reduces exposure to these
carcinogens.
To limit/reduce firefighter exposure to toxic products of combustion which occur after
the fire, turnout gear should be stored in well-ventilated rooms to prevent additional
2 “Registry aims to track firefighters’ higher cancer risk.”
3 Fire Station Design: Best Practices to Reduce Exposures. https://www.iaff.org/wp-
content/uploads/FFCancer_FireStationDesign.pdf
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firefighter exposure to off-gassing of chemicals absorbed into turnout gear during a
fire. Fire departments should take additional steps to protect firefighters from cancer,
including, but not limited to, relocating any current fitness areas that are housed
within apparatus bays to locations where firefighters can exercise without exposure to
the toxic products of combustion, pressurizing corridors to keep contaminates out of
designated clean areas, as well as separating gear storage from the apparatus bay,
living spaces, and private showers.
Back-In Bays
Back-in is a serious safety concern as many firefighter injuries and accidents occur
when emergency vehicles are being backed into the fire station. For future stations, the
OFD should consider a design that allows for drive-through bays that are large enough
to accommodate all frontline and reserve apparatus.
Facility Security
Fire stations have typically been open environments where residents and visitors from
the community have been allowed access to any part of a fire station with very few
limitations. The current social environment requires emergency services providers to
implement specific security measures limiting and controlling access to fire rescue
facilities. This is driven by the need to protect firefighters, expensive equipment, and
sensitive data from inadvertently being accessed by individuals desiring to harm the
community.
ESCI lists the following security measures that the OFD should consider incorporating
into current and future fire stations.
1. Dedicated secure parking
Dedicated parking areas for staff are a start, and fenced or walled secure parking
areas are even better, providing physical and visual separation from the public.
2. Protection of building infrastructure
Facility infrastructure like emergency generators, fuel storage, transformers, and
communications equipment are often outside the building enclosure. It is best to
locate these items out of public view in a secure portion of the site, which might be
within the secure parking area recommended previously. This keeps infrastructure
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from being tampered with and avoids the possibility of children playing on sensitive
or dangerous equipment.
3. Secure building zones
While most facilities want to project a friendly and welcoming atmosphere at the
entrance, lobby, and reception desk, it is advantageous to create distinct control
points with restricted access doors, solid walls, and lockable transaction counters.
This can be accomplished at the lobby zone, enabling the public to enter the lobby,
pick up literature, view antique rigs or historical photographs and gear, access a
community room or restrooms, and even speak with someone at a reception desk
without entering secure staff-only areas.
4. Community room access
When developing a dual-purpose training/community room, consider having two
means of entry: one directly off from the lobby where the public can enter and a
second from the secure portion of the facility. This strategy enables staff to come
and go from training without having to circulate through the unsecured portion of
the facility. This maintains the visual and physical separation of staff from the
public.
5. Video monitoring and access control
Digital and/or electronic security measures add a higher level of security and can
reduce theft and vandalism. Cameras and electronic locks can serve as an added
deterrent against thieves and vandals and, if the situation arises, provide evidence
in the prosecution of suspects. This includes video monitoring in parking areas and
at entrance points. This also allows crews to see who is at the door without having
to walk to the door.
6. Secure apparatus bay access
Overhead doors are frequently left open to aid in ventilation, cooling, or access to
the apparatus bay. This reduces security for the staff, equipment, and building.
Implementing a means to mitigate having the doors left open will improve security.
Consider securing all doors of the apparatus bay by electronic means (electric lock,
electric strike, or magnetic lock). This enables staff to gain access to the apparatus
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bay from secure portions of the building without any restriction and limits potential
unauthorized personnel to the bay itself.
Separate Administrative and Operational Areas
Fire service leaders, such as fire chiefs and assistant fire chiefs, are problem solvers by
nature. When these leaders have easy access to operational personnel, there is a
tendency to solve and work on low-level problems that should and can be solved at the
company officer level.
Additionally, company officers need a space dedicated to administrative work with
privacy measures. This measure will improve interactions between supervisors and
staff during coaching, counseling, and mentoring sessions. The administrative areas,
such as the captain's office, can be used for report writing, special projects, and to
improve an individual's focus.
Separated Sleeping Quarters
Even though common sleeping quarters are normal among many fire departments
across the United States, it is not ideal for assorted reasons. Many departments are
now designing fire stations with individual living quarters. Improved effective sleep is a
major benefit of having individual living quarters. Firefighters work a 24-hour shift,
and the need for sleep to keep firefighters alert during their shifts is paramount for
them to be at their best when they respond to an emergency. Studies have shown that
being awake for 17 hours straight can impair cognitive abilities that are equivalent to a
person with a blood alcohol level of 0.05 percent.4 Individual living quarters limit
sleep interruptions with proper alerting systems, allowing members to only be alerted
for responses for the specific unit they are assigned to during that shift. Other
distractions found in communal living quarters, such as snoring and cell phones, are
eliminated with individual living quarters. Recent research has increased understanding
of the importance of effective sleep hygiene environments relative to mental and
physical health. Sleep deprivation has been linked to cardiovascular disease, cancer,
Alzheimer's disease, and immune system malfunctions.5 Ultimately, individual living
4 “EMS: Sleep-Deprived on the Job.” https://www.firehouse.com/careers-
education/article/12159596/ems-sleepdeprived-on-the-job
5 “The Dangers of Sleep Deprivation - Firehouse.” https://www.firehouse.com/safety-
health/news/12268164/the-dangers-of-sleep-deprivation-for-emergency-workers
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quarters can help improve the ability of OFD members to perform in emergency
incidents and improve their long-term physical and mental health.
Another important reason for individual sleeping quarters is that they provide privacy.
As the industry seeks to improve the number of women within the department, moving
towards individual living quarters can help departments recruit and retain women
firefighters to make them feel more comfortable in the workplace.6 In an International
Association of Women in Fire & Emergency Services survey, almost half of the women
reported that they had problems with privacy within a firehouse.7 Sharing sleeping
facilities can be uncomfortable, not just for women, but for all genders. A 2020 Civil
Grand Jury of Santa Clara County, California report highlights the need for gender-
separate accommodations in fire departments moving forward.8
Heart Safe Alert Tones
The tones that alert firefighters of a response in the fire stations are another concern.
Historically, fire departments have used a loud and quick tone to alert firefighters of
the need to respond. This tone causes a tachycardic response in firefighters, which
means it makes their heart rate spike. Studies have shown that ramp-up tones are
better for the heart health of firefighters. Experts say ramp-up alerting could be an
effective way to deal with fatigue, tachycardia, and potentially long-term physical and
psychological disorders.9 Ramp-up tones gradually increase the volume of alert tones.
Decontamination Area
A facility layout can encourage the proper decontamination process a firefighter must
follow when returning from a call. Placement of the decontamination room, turnout
cleaning, and turnout storage in a linear circulation pattern on the way to the
6 “Breaking the 'brass ceiling': Women face unique obstacles in the fire service.”
7 “Women in the Fire Service.” https://www.powerdms.com/policy-learning-center/women-in-
the-fire-service
8 “Why Aren’t There More Female Firefighters in Santa Clara County?” Civil Grand Jury of Santa
Clara County.
https://www.scscourt.org/court_divisions/civil/cgj/2020/Why%20Arent%20There%20More%20F
emale%20Firefighters%20in%20Santa%20Clara%20County.pdf
9 “Ramp-up tones cut firefighter, paramedic rapid-heart response to station alarms.”
https://www.ems1.com/ems-products/fitness-mental-health-wellness/articles/ramp-up-
tones-cut-firefighter-paramedic-rapid-heart-response-to-station-alarms-
Z3C9s9Cbs4AuUUVC/
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apparatus bay supports the process of decontamination and turnout cleaning prior to
entering the apparatus bay. The addition of handwashing sinks and boot cleaning
stations at any entrance to the living area, in addition to the decontamination zone,
helps firefighters maintain a clean-living area called the "Clean Zone" that is separated
from the "Hot Zone" of the apparatus bay and support area. A facility also should
provide an airlock vestibule "Transition Zone" at the connection points of the "Clean"
and "Hot" zones to ensure the vehicle exhaust from the apparatus bay does not enter
the area where firefighters live and sleep. These processes will protect the long-term
health of the firefighters living at the station. A layout that features these zones can
embed healthy practices into the culture of the department.
Estimate Square Foot Per Function
Fire station construction, design, and maintenance are of concern for fire chiefs and
elected officials abroad. The rising cost of land and construction materials are the main
elements in discussing if, and when, a government structure should forgo constructing
a fire station. Once the decision has been made to construct a new emergency services
facility, the next decision is to determine the structure's size. The organization's
current and future needs should be included in this determination. To determine the
needed square footage for a new facility, several standards and reports are available as
references when discussing the required square footage. Selected architects and
contractors would also assist in this determination.
• United States Fire Administration – Safety and Health Considerations for the
Design of Fire and Emergency Medical Service – May 2018 – This guide
addresses the key elements when discussing fire station design and square
footage.
• NFPA 1500 Standard on Fire Department Occupational Safety, Health, and
Wellness Program. Specific sections of this standard address fire station design,
cancer prevention, firefighter fitness, and creating decompression spaces for
firefighters' mental health.
• NFPA 1851 Standard on Fire Department Infection Control Program – has a
section designated to PPE (Personal Protective Equipment) storage and cleaning.
It also requires that PPE be separated from other laundry utilities.
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In 2020, NFPA formed the Technical Committee on Emergency Responders
Occupational Health to draft new procedures for firefighters, including station design
layout among the organization's work.
A standard estimated square foot theme was present when comparing federal
contracts for building a fire and emergency response facility.10 11
• Training space – 25 square feet per person of the occupancy of the room
• Fire Chief's Office – 300 square feet
• Captains/Deputy's Office- 200 square feet
• Apparatus Bay – square footage is dependent on the quantity of response
vehicles.
• Consider that using a drive-thru bay concept will require additional square
footage.
• Add 33% additional square footage for apparatus support items (Decon,
Laundry, SCBA, Storage, etc.).
• Community space – 500 to 550 square feet per person assigned. This does not
include administrative offices.
• One acre for every 5000 square feet of the structure.
Many fire departments lack storage space, administrative working spaces, and
essential operational functions. ESCI recommends planning for future growth when
deciding how much space is needed to meet the needs of the department. Additionally,
ESCI notes that leaders and executives usually require between 200- and 400-foot
square feet of office space.12 ESCI suggests that a new facility should include executive
leadership space for future growth.
10 “How Much Office Space Do You Really Need?” https://thereceptionist.com/blog/how-much-
office-space-do-you-really-need/
11 “How much office space for that?” https://www.officefinder.com/how.html
12 “How Much Office Space Do You Really Need?” https://thereceptionist.com/blog/how-much-
office-space-do-you-really-need/
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For company officers, inspection personnel, and administrative assistants, ESCI
recommends office space of around 100-125 square feet for each person.13 ESCI
suggests that a new facility should include offices of at least 100 square feet to allow
for future growth.
13 “How much office space for that?” https://www.officefinder.com/how.html