On an annual basis, the total number, rate, cost and severity of vehicle accidents appear to be moving downward at the same time that the proportion of accidents attributable to Fire Department personnel is increasing. This presents a dual challenge to management: to maintain the overall downward trend of incidents and cost, while at the same time, reducing the numbers of accidents caused by SFFD staff members. Responding to this challenge should be an integral part of a comprehensive safety program that is coordinated with on-going training activities. In this regard, the Department should also make full use of appropriate applications involving its recently upgraded information technology capability. Good data collection and reporting will facilitate the analysis of accident data, then lead to a more sharply focused remediation strategy.

Accident Classifications

The SFFD has established three causation categories for vehicle accidents, as follows:

· Category A - An accident which has occurred because of inattention to vehicle operator"s and/or officer"s responsibilities or because of misjudgment of clearance when operating apparatus near stationary objects.

· Category B - An accident where fire department personnel exercised reasonable judgment and precaution, exhibited good apparatus operator and officer skills, and observed all state, local and fire department statutes, ordinances and rules.

· Category C - An accident which has occurred because of an apparatus operator"s poor judgment of clearance, deficiency in defensive driving techniques, or failure to anticipate other vehicle movements.

A key aspect of the classification system is that only Category B exists for external causation. The other two refer to causes that are internal to the Department.

Accident Reports

For SFFD apparatus and personnel, accident reports are prepared by the responsible parties, and then reviewed and approved through the chain of command in accordance with Departmental policies and general orders¹.

The Department"s Accident Review Committee reviews all accident reports and investigates to determine the appropriate category for each accident. Additionally, if warranted, the Committee recommends disciplinary action against the operator. Our review of report samples revealed that many accident reports were incomplete and inaccurate.

Notwithstanding this level of inconsistency regarding report content, the total number of vehicle accidents decreased by 24, nearly nine percent, in Fiscal Year 2000-2001 from the preceding fiscal year. Also, there was a slight upward shift in the proportion of Department-caused accidents, but it was not seen as statistically significant. Further explanation is provided below for the more detailed view of accident data that follows.

Apparatus Accidents

Vehicle class is a numbering system that identifies the type of apparatus involved in an accident. Specific apparatus types are represented by numerical sequence, as follows:

· 000 - 499, passenger automobiles, largely sedans

· 500 - 599, engines, also referred to as pumpers

· 600 - 699, aerial - ladder trucks

· 700 - 799, ambulances and fireboats

· 800 - 899 specialized apparatus, such as equipment for hazardous materials, tow-trucks, hose tenders, surf and cliff rescue, fuel, carbon dioxide and video

· 900 - 999, sport utility vehicles, pick-ups and vans

The data in Table 1.9.1 cover the past two fiscal years, with FY 2001 showing full accident totals, but not payment totals. The payment amounts shown represent only settlement payments for claims filed against the City and County of San Francisco in connection with vehicular accidents. Costs associated with apparatus repairs, medical and indemnity costs for injured employees, and overtime to backfill anyone temporarily off-duty as the result of an accident-caused injury are not included.

One way of viewing these data is to compare the accident and cost proportions with the general percentage of each apparatus category in the Department" total fleet. For example, sedans represent nearly 30 percent of the fleet, but have negligible overall impact on the accident landscape. Aerial ladder trucks, on the other hand, represent less than 10 percent of the fleet, but account for 20 percent of the accidents and nearly one-half of the related settlement cost. Engines represent a little more than 20 percent of the fleet and account for about 35 percent each of the accidents and settlement cost. Similarly, ambulances constitute just over 10 percent of the fleet and only a slightly higher percentage of cost. This is noteworthy when considering the relatively high utilization rate of both ambulances and engines. Accordingly, the problem area, and the corresponding remediation target, should clearly center around the operation of aerial ladder trucks.

Table 1.9.1

San Francisco Fire Department Accidents Claims and

Settlement Costs by Vehicle Type for FY 2000 and FY 2001²

Costs Associated with Accidents

For FY 1996 through FY 2000 to date, the Fire Department has paid over $600,000 in settlements and other expenses associated with vehicular accidents. Total costs for FY 2001 are not available at this time since many claims are outstanding. Other costs associated with accidents include workers compensation and disability pay, medical costs for employees, damage to Department property, and repair costs for vehicles. Data specifically related to vehicle repair costs due to accidents was not available for this report. A key to the inability to track all costs in connection with accidents is the absence of a system that links this mixture of costs for reporting in a single format for management.

Strategies to Reduce Accident Rates

Data Collection and Analysis

Of the 534 accidents reported in FY2000 and FY2001, 123 or approximately 23 percent resulted from "Misjudged Clearance" by Fire Department personnel. Of those 123 specific accidents, only four were designated Category B, with the remaining 119 in Categories A and C (operator fault). To date, those accidents caused by "Misjudged Clearance" have resulted in settlement payments totaling $35,745. While this does not appear to be material in the scope of the Department"s appropriated funds, the significant issues here are (1) the preponderance of responsibility on the part of Department personnel for a large number of accidents and (2) the incompleteness of cost and other data pertaining to any specific accident. Further, as discussed previously, this does not include the cost associated with apparatus repairs, medical and indemnity costs for injured employees, and overtime to backfill anyone temporarily off duty as the result of an accident-caused injury. Also, the less visible costs associated with operational inefficiencies that occur when apparatus and vehicles are taken off-line for repairs is significant.

A problem area cannot be managed if it cannot be measured. Meaningful measurement is necessary for effectively managing the problem of apparatus accidents in the San Francisco Fire Department. We were unable to find a common source of all related accident information and, as noted above, some of the information that we did find was inaccurate or incomplete. Accident reports should be completed accurately and in a timely manner.

Providing a good source document is a critical first step in the data collection process. Additionally, accidents should have a control identifier so that all costs associated with each accident can be tracked over time by the different units affected, e.g., Human Resources, Finance, Operations, etc. Whenever a unit processes any transaction pertaining to a specific accident, the same control identifier should be used. Also, the Department should have a central system for collecting and storing all accident data, including personnel, apparatus and structure costs as well as claims settlements. Finally, the Department should design a system of comprehensive reports on accidents for management. These reports will facilitate the analysis of accident data and help to pinpoint necessary corrective measures. When changes to any of the Department"s apparatus or physical structures are warranted from these analyses, referral to the Support Services Division is the appropriate action. Similarly, when a training solution is viewed as the desired strategy, referral to the Training Division is appropriate.

The Department is currently implementing a new PeopleSoft information management system with the capacity to manage the apparatus accident information storage and reporting tasks, but we found no evidence that such a project was planned.

Linkage with Training Division

One issue in this area is: which unit has overall responsibility for coordinating the information flow related to accidents? The Office of the Fire Commission Secretary is a major repository for an important portion of the financial information because settlement claims must be approved by the Commission. Several units in the Department have a role in the accident information flow because of their functional responsibilities: the Bureau of Equipment, Human Resources, Finance, and the Division of Support Services. With such a large percentage of accidents caused by Department personnel, it would seem logical to have a formal structure that connects some unit with the Training Division based on accident types, apparatus and causes. However, there is no such structure and there is no unit designated with this specific responsibility.

The Training Division is cited here as the target for desired linkage simply because of the number of identified causes for most of the Department"s current vehicle accidents. However, attention must be directed to the need for a unit to have the overarching responsibility to coordinate and direct the flow of accident information. The Department can benefit in many ways from a central source and location of vehicle accident information. The analysis of these data can lead to more effective remediation, whether physical construction or training, and generate reduced costs from claims and other expenses related to apparatus accidents. Rather than one of the above-referenced units, an internal safety program that is currently non-existent in the Department would seem to be a more appropriate solution to meet this need.

Coordination with a Safety Program

The Department should consider trends in apparatus accidents and adjust the content of training or modify equipment and structures accordingly. We believe that a centralized safety program for the Department will satisfy these needs and address some of the broader health and safety problems at the same time. The Department should ensure that its occupational safety and health responsibilities are met through rigorous data collection and analysis, followed by an aggressive program of preventive measures, education and training. Vehicular accident reductions would simply be one component of this more comprehensive approach.

Conclusions

Sixty-eight percent of accidents involving Fire Department vehicles in FY 2000-2001, were found by Department investigators to be caused by inattention or by the poor judgment of Fire Department personnel.

Accident reports are incomplete and inaccurate, and there is no central or common source for all information pertaining to vehicular accidents.

This has potentially serious adverse consequences for the Department in terms of impacts on equipment and personnel costs as well as on overall service quality to the general public.

The Department should broaden its risk-management strategy by (a) improving linkage with the training program, focusing on remedial training for aerial ladder truck operators, (b) analyzing available data to determine if any physical facility or equipment design changes are warranted, (c) reviewing and revising, as appropriate the associated information system to provide better accident data to management, and (d) ensuring that these activities are part of a coordinated safety program.

At a nominal cost, the Department can produce better-trained and more confident operators, reduce the number of accidents attributable to Departmental personnel, lower apparatus repair costs, and reduce tort liability exposure.

Recommendations

The San Francisco Fire Department should:

1.9.1 Prepare policies and procedures to cover a comprehensive strategy for management of vehicular accident data, and coordinate with other appropriate units within the Department to reduce cost and liability.

1.9.2 Utilize the Department"s PeopleSoft system as the data storage and reporting tool to track vehicular accidents.

1.9.3 Incorporate the vehicular accident program into a broader Department-wide Safety Program.

1.9.4 Incorporate issues from analyses of accident data into specific training sessions and procedures.

Costs and Benefits

The Safety Program cost will be determined by its size and content. However, that cost will be shared with other "program" elements and units of the Department, and be offset by savings from reduced expenditures in other health and safety areas, such as workers compensation, disability pay and sick pay.

The expected benefits from implementing the above recommendations include better-trained and more confident operators, fewer accidents, lower repair costs for accidents that are unavoidable, and reduced liability exposure. Better reporting capability for vehicle accidents will lead to better-informed management.

¹ The Department"s policy on this matter is reflected in several documents that we reviewed, including a June 1990 policy on Vehicle Accident Investigations and Reports, Section 6 of the Fire Commission"s Accident Prevention & Procedures, Section 1107 of the Rules & Regulations - Policy on Vehicle Accident Prevention (6/26/97), and the EMS Division Policy 97-A7 on Vehicle Accident Reporting and Prevention (10/20/97).

² Note that many 2001 accident claims have not been settled as of the writing of this report. Therefore, settlement dollar totals for FY 2001 are not representative of the year as a whole. The dollar amounts shown in this table are from the Fire Department and may differ from the totals to be reported by the City Attorney"s Office.