KCFD Cultural Assessment Report

Culture Assessment Report
For the Kansas City Fire Department

Kansas City, Missouri
By
Debra J Jarvis Associates Consulting & Training LLC
Project Culture Lead: Debra J. Jarvis, MA
Project IDI® Lead: Nozella Brown, EdD
Project Advisor: Dan Bay, MBA
www.visioningvalues.com
January 11, 2023
“We don’t experience inclusion through strategies and roadmaps.
We experience it through our day-to-day
interactions with our colleagues . . .
We can’t move the pendulum without each one of us
seeing ourselves as key enablers of inclusive workplaces
– workplaces where everyone feels valued, respected, appreciated,
and enjoys a sense of belonging.”
Harvard Business Review, 7 Ways to Practice Active Allyship, November 8, 2022
“If you are neutral in situations of injustice,

you have chosen the side of the oppressor.”
Desmond Tutu
“Every action you take is like a vote

for the type of person that you wish to become.”
James Clear, Author of Atomic Habits
CULTURE ASSESSMENT REPORT FOR KANSAS CITY FIRE DEPARTMENT, MO 1

Preface and Acknowledgements
The Kansas City Fire Department (KCFD) has made significant changes in policies and practices
in the last three years to create a safer, more inclusive workplace. Community Outreach for
recruitment, creating new staff positions to promote inclusive practices, and forming several
Diversity, Equity & Inclusion (DEI) work groups are just a few changes. However, more is
required to sustain transformational change.
While it is satisfying to review successes, it takes tremendous courage to look at individual and
organizational interactions that are detrimental to the Kansas City Fire Department and the
people they serve. KCFD has 150+ years of traditions that have shaped everyday behaviors;
both good and bad. These behaviors are so deeply embedded in the DNA of fire department
culture that they are at the unconscious level and difficult to describe. This is a culture report
and not an investigative report. The intent of this Culture Report is to articulate the perceptions
of some KCFD employees regarding regular interactions that are consistent and/or inconsistent
with written policies and/or practices related to safety, accountability and diversity, equity, and
inclusion.
This is a courageous step for KCFD, the Unions, and the City to publicize their strengths and
weaknesses in written form where others will be able to hold them accountable for progress.
We acknowledge and thank everyone for their participation and honesty regarding their
perceptions of the workplace culture of KCFD. In addition, we also want to recognize and thank
the following Fire Department and community members who served in vital support roles by
providing additional time, talent, and expertise for this culture assessment:
Kansas City Fire Department
• The 231 KCFD members who participated in discussion groups, interviews & facility visits
• Donna Lake, Fire Chief
• Dr. Richard Gist, Deputy Director/Principal Assistant to the Fire Chief

• James Dean, Deputy Chief, Fire Prevention
• Nathan Dougan, Deputy Chief, Technical Services
• Matthew Newton, Deputy Fire Chief, Shift Commander
• Laura Gunter, Deputy Chief, Emergency Medical Services
• Stephen Seals, Battalion Chief, Operations Safety
• Sheryll Wilson, Administrative Officer
• Justin Powers, Analyst
• Jaime Diaz, Executive Assistant to Fire Chief
• Dan Heizman, International Association of Firefighters Local 42 Union President
• Sylvia Brown, Firefighter and President of Equality for Firefighters through Education,
Community Service and Training, an affiliate of International Association of Black
Professional Firefighters
• Amy Loar, Retired Firefighter
• Kristen Gibbs, Firefighter
• Ray Elder, Fire Department Historian and Retired Captain
Community Members
• Dr. Stan Archie, Behavioral Consultant
• Dionne Carter, Senior Director Talent Acquisition, University Health
• Bishop Eric D. Morrison, Kingdom Word Ministries

Table of Contents
Opening Contexting Quotes . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 1

Preface and Acknowledgements . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 2
Table of Contents . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 4
Executive Summary . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 6
Fire Department Historical Background . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 19
KCFD Demographics . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 26
Overview and Introduction to Fire Service Culture . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 29
Methodology . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 40
Results IDI® Intercultural Assessment of Senior Union & Management Leaders . . . . . . . . 50
Results – Discussion Groups, Interviews, Site Visits . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 61
Accountability Results . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 61
Physical Safety Results . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 63
Psychological Safety Results . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 65
Diversity, Equity & Inclusion Results . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 66
Thematic Culture Assessment . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 71
Power & Control Systems . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 72
Routines & Rituals . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 76
Stories & Symbols . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 80
Restoring Balance Between Union and Management . . . . .. . . . . . . . . . . . . . . . . . . . . . 84
Intercultural Competence of Union and Management Leaders . . . . . . . . . . . . . . . . . . 84
Recommendations and Potential Actions . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 87
Appendix A: Glossary . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 93
Acronyms . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 94
Abbreviations . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 97
Definitions . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 98

Appendix B: Intercultural Development Inventory® (IDI®) Group Profile Reports . . . . . . . 104
IDI® Results: Executive Management Team . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 105
IDI® Results: DEI Leadership Team Work Group. . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 116
IDI® Results: IAFF Union Local 42 Executive Team. . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 127
IDI® Results: IAFF Union Local 3808 Executive Team. . . . . . . . . . . . . . . . . . . . . . . . . . . . 138
Appendix C: KCFD Discussion Group Materials . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 149
Discussion Group Handout: Ten-Two Memo and Culture Slides. . . . . . . . . . . . . . . . . . . 150
Discussion Group Facilitator Outline & Questions . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 152
Appendix D: KCFD Organizational Charts . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 155
Appendix E: Professional Development Resources . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 158
Appendix F: Consultant Bios . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 161
Please direct questions about methodology and references in this report to Debra Jarvis at
debraj@visioningvalues.com.
Please direct questions related to KCFD’s use of the report to Dr. Richard Gist, Deputy
Director/Principal Assistant to the Fire Chief at Richard.Gist@kcmo.org.

Executive Summary
The Kansas City Fire Department (KCFD) has made significant progress towards changes in
policies and practices in the last three years to create a safer, more inclusive workplace.
Community Outreach for recruitment, creating new staff positions to promote inclusive
practices, contracting new vendors for hiring, promotions, diversity, equity, and inclusion (DEI)
support work, and forming several DEI Work Groups are just a few changes. However, more is
needed to sustain transformational change.
KCFD has 150+ years of traditions that have shaped everyday behaviors; both good and bad.
These behaviors are so deeply embedded in the DNA of fire department culture that they are at
the subconscious level and difficult to describe. While it is satisfying to review successes, it
takes tremendous courage to look at individual and organizational interactions that are
detrimental to KCFD and the people they serve. Many employees feel that their voices have not
been heard and their interests not understood, promoted, or defended.
This culture assessment report is essentially about the struggle to achieve a balance between
moral courage and social capital in KCFD. Moral courage is the willingness to take a visible,
public stand for values that underpin professional conduct. Social capital is the normal human
hunger for acceptance by peer groups. The challenge is to keep a balance. In the Kansas City
Fire Department (KCFD) in Missouri, these have been out of balance for decades, if not longer.
One KCFD chief officer commented that social capital in the department is nearly impossible for
anyone to earn, but frighteningly easy for them to lose. The primary challenge for KCFD in the
coming months and years will be to create sustainable support for acts of moral courage by
Management Leaders, Union Leaders, and individual employees working to create systems
changes when confronted by the pressure of those who would seek to oppose needed changes.
The intent of this report is to assess the workplace culture of the Kansas City Fire Department in
a way that brings the subconscious to the conscious level to provide a basis for honest,
authentic conversations about needed changes. It should be noted that this is not just a KCFD
challenge, but a societal one, as well. The culture of the United States has conditioned people

to not have conversations that might make someone uncomfortable. Without intentional
efforts to have authentic conversations, challenges that require individual and organizational
adaptation cannot be effectively addressed.
This culture assessment of KCFD has been a two-fold process, using both qualitative and
quantitative data collections methods.
ü A qualitative methodology was used to collect the perceptions and opinions of current
and past KCFD employees that are consistent and/or inconsistent with written policies
and/or practices related to safety, accountability and diversity, equity, and inclusion
(SADEI).
ü A quantitative methodology was used to assess the capacity of senior leaders in
Management, as well as senior leaders in both International Association of Firefighters
(IAFF) Unions to understand and appropriately adapt to divergent perspectives within
KCFD as well as within the community.
The goal of this action is to provide a broader understanding of major themes that have
implications for current SADEI efforts, as well as provide recommendations to facilitate moving
toward creating a safer, more diverse, inclusive, and equitable workplace where everyone holds
each other accountable.
This is a courageous step for KCFD, the Unions, and the City to publicize their strengths and
weaknesses in written form where others will be able to hold them accountable for progress.
Quantitative data on group intercultural competence was collected from four executive
leadership teams (union and management) using the Intercultural Development Inventory®1
(IDI®).
Qualitative data of KCFD workplace experiences was collected using focus groups, interviews,
and observations from site visits of KCFD facilities. These environmental scans, though
somewhat anecdotal in nature, are considered a dependable methodology for understanding
1
Hammer, Mitchell R. Ph.D. The Intercultural Development Inventory®. https://idiinventory.com/

why problems occur, what needs are met or not met, and information that is helpful for making
needed changes.
The qualitative data gathered in this report are the perceptions and opinions of KCFD members
who participated in the study related to their experiences in the workplace. The primary and
most consequential perceptions (based on the consultants’ understanding of the leadership
and organizational culture field of study) are reported under the following four categories:
• Accountability
• Physical Safety
• Psychological Safety
• Diversity, Equity, and Inclusion
In 2019, new plans were initiated to enhance safety and create a more inclusive workplace.
More concerted diversity recruitment efforts began; recruitment open houses were advertised;
preparations were made to advertise for new hiring and promotion vendors; talks with the City
and the International Association of Firefighters (IAFF) Fire Department Unions were initiated to
create new Diversity Officer positions; driver trainings using the new simulator were in the
process of being scheduled and much more. However, in early 2020, the COVID-19 outbreak
forced changes in organizational priorities for all public safety agencies nation-wide, including
KCFD. For the remainder of 2020 and into 2022, much time and energy centered around on
developing policies and protocols never before imagined for handling the challenges created by
the COVID-19 pandemic. The increase in staffing shortages because of personnel contracting
the virus created additional burdens on those left to do the work. Consequently, DEI initiatives,
such as more inclusive recruitment, hiring and promotional programs were put on hold. A DEI
Leadership Work Group was formed in January 2021 and this culture assessment report is the
result of their work and recommendations.
There is an old saying, “with great power comes great responsibility.” In the case of public
safety services such as KCFD, this means that those in power hold great responsibility, not only
to the personnel in KCFD, but also to the community members and businesses they serve.
Keeping personnel and the public as safe as possible by using best practices in personnel

management requires a clear understanding of decision-making authority within KCFD.
Accountability is a foundational management principle that typically provides structures and
systems delineating where and with whom these responsibilities lie.
Qualitative Data Summary

The over-arching perceptions and opinions of KCFD participants in this culture study are that
the two IAFF Unions prevent KCFD Management from holding personnel accountable for
compliance with policies and practices because they have more power and influence in daily
operational practices, as well as City politics than KCFD Management. The IAFF Unions have
accomplished this by codifying key organizational systems such as hiring, training, promotions,
personnel assignments, and operational staffing in their Collective Bargaining Agreements
(CBAs). Only the City Manager, the Mayor and the City Council have the authority to approve
the language written in the CBAs of IAFF Local 42 and IAFF Local 38082.
It appears the Union’s interests of protecting their contract may conflict with the City’s
responsibilities of serving the best interests of the citizens. They seem to enjoy the benefits of
favorable policies and practices codified in their CBAs, but do not share the responsibilities for
managing and maintaining a safe, harassment-free, equitable workplace. This also has an
impact on effectively stewarding taxpayer dollars.
Over 20 years ago, KCFD became the first fire department in the country to implement a unique
system of Union and Management leaders jointly managing the Fire Department. Briefly, Union
leaders and Fire Department management personnel on various committees make the majority
of decisions regarding major programs, policies, and practices in KCFD. It has been found,
however, that managing an organization of nearly 1,240 employees by committees can be a
slow, inefficient process when different interests are not resolved. Each of these three groups
(two unions and management) has the sole authority to determine who will represent them on
the Labor/Management Steering Committee. Only three KCFD management members are on
2
IAFF Local 42 represents 1,113 KCFD personnel and IAFF Local 3808 represents 73 KCFD personnel. There are
currently 1,240 personnel in KCFD.

the steering team, the majority are members appointed by the Unions. The Steering Committee
oversees approximately ten other Labor/Management committees. This arrangement of
management by committee has resulted in significant confusion among KCFD personnel over
whether they work for the IAFF Local Unions or whether they work for the City.3 This results in
a perception of competing loyalties that affects the support that personnel give to the City
and/or Fire Department initiatives and priorities.
A great deal of frustration appeared when KCFD personnel were asked to describe what’s
working and what’s not working in the Fire Department. Many male and female KCFD members
who were White and Black, Indigenous, People of Color (BIPOC) shed tears and/or were visibly
distraught in discussion groups and interviews as they relayed accounts of people who had
been ostracized and ridiculed for not supporting Union or dominant group positions, or who
had tried to talk about what they perceived as many instances of unsafe practices or
harassment related to race or gender.
Another general perception from discussion groups and interviews was that the different KCFD
divisions are siloed with limited cooperation creating an atmosphere of infighting and
competition between divisions (e.g., Fire vs EMS, Dispatch vs Operations, Finance vs Human
Resources, Fleet Maintenance vs Operations, etc.). The perceptions and opinions of KCFD
employees were that that both IAFF Unions prioritize representing firefighter concerns over
those who are not firefighters (e.g., Dispatchers, Technical services, etc.) even though they are
all members of these same two Unions. These same perceptions and opinions were also
expressed by women and BIPOC participants in the study.
When there is an imbalance between Union and Management power and influence, the
community and the employees suffer.4 The perception of study participants is that the IAFF
Unions run the Fire Department, not Management. While Management is responsible by law,
they do not have the authority to manage basic organizational systems such as hiring, training,
3
KCFD personnel volunteer their committee time, when not on duty, on behalf of their Union.
4
Adapted from Budd, John W. (2010). Labor Relations: Striking a Balance, 3rd ed. McGraw-Hill.
http://jbudd.csom.umn.edu/RESEARCH/strikingbalance3e.htm

promotions, personnel assignments, and operational staffing because the Union CBAs prohibit
such control. For the safety and well-being of the community and KCFD employees, balance
needs restored that allows KCFD leaders to manage Fire Department systems and personnel;
and let Union leaders focus on protecting basic worker rights, wages, and benefits for the KCFD
personnel in their bargaining units.
Quantitative Data Summary

In addition to the perceptions and opinions of KCFD personnel regarding the workplace culture,
Quantitative data was collected from four executive leadership teams (union and management)
using the Intercultural Development Inventory® (IDI®), a statistically reliable, cross-culturally
valid5 measure of intercultural competence6 that provides group profiles, as well as confidential
individual profiles. The results were numerically quantified along a continuum of five
orientations ranging from the more monocultural orientations of Denial and Polarization, to the
transitional mindset of Minimization, to the more intercultural or global mindsets of
Acceptance and Adaptation. The IDI® group profile provides a baseline metric for measuring
future progress of each KCFD group’s intercultural competence skill development. The skill
development reflects the degree to which cultural differences and commonalities in values,
expectations, beliefs, and practices are effectively bridged to achieve an inclusive environment.
One overall purpose of the IDI® was to determine the capacity of union and management
senior leaders to understand and appropriately adapt to the divergent perspectives within
KCFD as well as within the community.
IDI® Results
The scores for all senior leader groups were in the mid-range of intercultural development,
although each of the four groups believed they were much further along in their development.
The mid-range of their development is characterized by a tendency to overemphasize
5
Hammer, R. (2011). Additional cross-cultural validity testing of the Intercultural Development
Inventory. International Journal of Intercultural Relations, 35, 474-487.
6
Intercultural competence is the ability to shift one’s perspective and adapt in appropriate ways to cultural
differences and commonalities and is an essential leadership skill.

commonalities and underemphasize differences. There is also a tendency to overestimate one’s
competence around diversity, equity, and inclusion (DEI) related issues. That means there may
be a tendency to impose one’s own values and beliefs on others and minimize the importance
of different values and beliefs. This can often result in important issues not being understood
and effectively addressed. More detailed results and explanations are given in the Results
section of this Report, as well as in Appendix B.
Success in achieving goals is better served when one can more deeply understand
culturally-learned differences, recognize commonalities between one’s self and others, and act
on this increased insight in culturally appropriate ways that facilitate goal accomplishment
among diverse individuals and groups.7 This is an essential leadership skill that can be improved
by individual leaders following the IDI®’s Individual Development Plans provided at the time of
their debrief sessions.
Implications of IDI® Results

The following examples of paraphrased perceptions and opinions of KCFD study participants
illustrate some of the important issues where misunderstandings may be preventing leaders
and managers from consistently addressing important issues. More examples can be found in
the Results section of the full report.
1. The Union structures effectively prevent supervisors from holding personnel
accountable and protects wrongdoers.
2. The seniority system of promotions and work assignments negates the evaluation of
skills and readiness of personnel for key assignments.
3. Preferential treatment in staffing – ambulances are taken out of service to staff fire
trucks even though 80% of calls for service are medical, not fire related.
4. Inappropriate jokes and slurs – most personnel reported that making fun of differences
(e.g., race, gender, sexual orientation, etc.) is common-place in fire stations. Several
believe that everyone experiences racial and sexual harassment in KCFD. Several
7
Adapted from: Hammer, Mitchell R. Ph.D. (2021). The Intercultural Development Inventory® Resource Guide, p.
39, Olney, MD.

indicated they would not want their family members to work at KCFD due to the
negative rhetoric about women.
5. Racial and gender discrimination and harassment – BIPOC and Women believe that if
they file harassment charges, they will be ostracized and career advancement blocked.
6. Disparate treatment between KCFD divisions - civilian employee participants believe
they have less opportunities than Fire or Medical personnel. Civilian personnel feel less
included than other KCFD members.
7. Disparate treatment of KCMO Citizens – concerns were expressed that on fire scenes in
low-income areas, they tear houses up more and use it like a training exercise. In more
affluent neighborhoods, they put plastic over couches and may not chop a hole in the
roof.
8. Lack of enforcement of personal protective equipment (PPE) protocols and safe driving
practices.
9. Violation of protocols for initial dispatch to emergencies - pumpers and trucks go to fires
without being dispatched, putting firefighters, citizens, and equipment at risk.
More examples can be found in the Results section of the full report.
Potential SADEI Assets to Leverage

On a more positive note, the following are a few examples of paraphrased perceptions and
opinions of study participants regarding KCFD cultural assets that could be leveraged to support
accountability, physical safety, psychological safety, and diversity, equity, and inclusion. More
examples can be found in the Results section of the full report.
1. Professional Development (training, mentoring, guided experiential learning
opportunities, etc.) for all positions in KCFD is strongly desired.
2. It is widely accepted that everyone is responsible for safety, even if it is not practiced.
3. The KCFD Fire Training Academy emphasizes the following to new recruits every day,
“Accountability feels like an attack when you’re not ready to acknowledge how your
behavior harms others.”
4. There are a few first line supervisors and members of management who have the
moral courage to hold personnel accountable for professional conduct despite negative
peer pressure.

5. The implementation of minimum KCFD Training Academy certifications of Missouri
Firefighter I and Firefighter II standards is a positive.
6. The public is welcomed at most fire stations and facilities – examples of hospitality to
KCMO citizens were passing out water on hot days and airing up the tires on children’s
bicycles.
7. Recognizing institutional racism – a few participants reported they were learning about
disparities and inequities from their family members at home that was helping them
recognize how it affects their decisions and treatment of BIPOC members of KCFD.
8. KCFD Community Recruitment Outreach has been prioritized for communities of color
and the LGBTQ+ community.
Recommendations and Potential Actions

The following are recommendations and possible actions to take to continue the work of
transforming the workplace culture to one where everyone holds each other accountable for
creating a safe, diverse, and inclusive workplace culture where everyone enjoys a sense of
belonging and is valued for the unique perspectives they bring.
1. Identify Key Performance Indicators (KPIs) for each division and who is responsible for
related results and outcomes.
a. Identify multiple, easy access methods for strengthening the Skills, Knowledge,
Abilities (SKA) and confidence of managers and supervisors.
b. Create a system for line supervisors and other members of management to
monitor and analyze individual and team performance.
c. Create a support system that allows supervisors to take immediate action to
address and/or prevent problem behaviors in the personnel they supervise.
d. Create a system to regularly identify, discuss and address issues that detract
from success and seeks to build peer support for accountability among
supervisory staff (e.g., regular first-line supervisory meetings).

e. Continue with efforts to streamline General Administrative Guidelines (GAGs)
and General Operating Guidelines (GOGs) into a more user-friendly format.
f. Re-administer the Intercultural Development Inventory (IDI®) to Management
and Union leaders within one year to measure progress.
g. Ensure that Safety, Accountability, Diversity, Equity, and Inclusion (SADEI)
become part of the daily language around all KPIs, organizational goals, strategic
planning, etc.
2. Encourage and reward Safety, Accountability, Diversity, Equity and Inclusion (SADEI).
a. Engage personnel in each division with defining what success looks like.
b. Provide team building opportunities where the benefits of SADEI efforts are
demonstrated in practical ways.
c. Collect SADEI success stories and build a system to regularly call attention to
them.
d. Identify opportunities to empower employees to create collaborative, inclusive
processes.
e. Facilitate the formation of Employee Resource Groups (ERG) to elevate the
voices of those who do not feel heard.
f. Conduct an Equity Audit in each division.
g. Explore new opportunities for budget and staff support for DEI initiatives (e.g.,
explore the possibility of a Recruitment Division).
3. Identify professional development systems that define and reinforce desired behaviors.
a. Develop a KCFD Code of Ethics, as well as each division developing more specific
ethical codes related to their responsibilities (e.g., Firefighter Code of Ethics,8
8
Executive Fire Officers (EFO) Section of the International Association of Fire Chiefs (IAFC). (n.d.). Firefighter Code
of Ethics. https://www.iafc.org/topics-and-tools/resources/resource/firefighter-code-of-ethics, and
https://www.usfa.fema.gov/downloads/pdf/code_of_ethics.pdf

Public Safety Communications,9 EMS Practitioners,10 Human Resources,11
Government Finance,12 etc.).
b. Develop an inclusive management-driven career development plan that allows
for transferability between divisions and recognizes individual traditional and
non-traditional qualifications.
c. Re-invent Professional Development that integrates training and in-service
requirements for different divisions (e.g., Fire, EMS, Communications Center,
Fleet Maintenance, Technical Services, etc.).
d. Re-invent the Fire Academy with added responsibilities for regular, on-going field
skills retention and development.
e. Develop a system where those interested in career advancement have regular
access to key organizational leaders (e.g., monthly Zoom with a Chief Officer in
the career advancement area of interest).
4. Identify ways to engage personnel at all levels in developing intercultural competence

and their capacity to have courageous, authentic conversations about challenging
issues.
a. Offer the Intercultural Development Inventory (IDI®) to supervisory groups to
provide a foundation for leadership professional development of leadership
around DEI challenges.
b. Offer the IDI® to individual KCFD members who are interested in developing
their self-awareness around leadership and DEI issues.
c. Offer Conflict Resolution and Mediation skills professional development
opportunities.
9
Carter, Evert E. (1981). Public Safety Telecommunicator Code of Ethics. Association of Public-Safety
Communications Officials. https://www.apcointl.org/public-safety-telecommunicator-code-of-ethics/
10
Gillespie, Charles B., M.D. (1978). (Revised 2013). Code of Ethics for EMS Practitioners. National Association of
Emergency Medical Technicians. https://www.naemt.org/about-ems/code-of-ethics
11
Society for Human Resource Management. (2014). Code of Ethics. https://www.shrm.org/about-
shrm/pages/code-of-ethics.aspx
12
Government Finance Officers Association. (n.d.). Code of Ethics. https://www.gfoa.org/code-of-ethics

d. Regularly integrate into meetings and training sessions, the DEI learning
testimonials from individuals working on their IDI® Individual Development
Plans.
5. Engage the IAFF Unions in meaningful, sustained organizational culture transformation.

a. Open discussions about the possibility of Captains being considered as
supervisory positions13 that would move them into IAFF Local 3808.
b. Open discussions about the effectiveness and workability of the 2001 IAFF/IAFC
Labor Management agreement to co-manage KCFD by committees comprised of
Union and Management personnel.
c. Open discussions about dynamic staffing models to more effectively utilize
personnel.
d. Open discussions about alternatives to seniority-only promotion criteria.
e. Identify a path forward for staffing one to two experimental fire stations to pilot
new behavior and staffing norms.
f. Resume discussions about streamlining a process that will expedite the creation
of a career development guidebook.
g. Identify ways for Management to meet with women and BIPOC groups outside
of the traditional union bargaining unit constraints.
6. Develop a communications system for effectively communicating important information

and messaging to all employees.
a. Identify ways to message by division only.
b. Identify alternate methods to fill daily staffing shortages to prevent
communication overload.
13
Captains are not considered supervisory, management positions by the National Labor Relations Board that
defines a supervisor as “any individual having authority, in the interest of the employer, to hire, transfer, suspend,
lay off, recall, promote, discharge, assign, reward, or discipline other employees, or responsibly to direct them, or
to adjust their grievances, or effectively to recommend such action, if in connection with the foregoing the
exercise of such authority is not of a merely routine or clerical nature, but requires the use of independent
judgment.”
FindLaw Attorney Writers. (2016, May). NLRB Clarifies Definition of Supervisor. FindLaw®.
https://corporate.findlaw.com/litigation-disputes/nlrb-clarifies-definition-of-supervisor.html

7. Develop systems to improve cooperation between siloed divisions and Executive Team
members.
a. Identify KPIs that ensure cooperation between divisions (see also #1).
b. Regularly integrate into meetings and training sessions the DEI learning
Plans.
c. Create a system to regularly identify, discuss and address issues that detract
from success.
d. Identify and create opportunities to build peer support for accountability
between divisions among supervisory staff (e.g., regular first-line supervisory
meetings, regular mid-management meetings).
e. Relocate offices to create closer geographic proximity for ease of relationship-
building.
f. Ensure key leaders attend state and national conferences and events to build
relationships and learn about best practices.
8. Identify ways to build interagency relationships between KCFD firefighters and mutual
aid fire departments, as well as between other KCFD Divisions.
a. Explore the possibility of an exchange program.
b. Identify and fund key memberships and attendance for KCFD leaders and
aspiring leaders in regional and state organizations.

Fire Department Historical Background
This section provides some historical and organizational contextual information for this report.
Fire Departments in the United States outgrew the name “Fire Department” more than 50
years ago. Originally formed to put out and prevent the spread of fires from destroying
neighborhoods and businesses, the services they provide now have expanded exponentially as
the needs of businesses and community members have changed. Modern-day fire departments
provide ambulance service for emergency medical services (EMS), car accident rescue teams,
hazardous materials teams, water rescue teams, trench and building collapse teams, hi-angle
rope rescue teams, aircraft crash rescue teams, fire and EMS prevention education teams, and
much more. All these services require complex support systems to maintain, such as
communications systems, dispatch centers, computer tracking systems, training academies,
human resources, and financial management.
In 2016, only 4% of calls for service to U.S. fire departments involved fires, the majority (64%)
were for medical emergencies.14 So why are they still called ‘Fire Departments’? The answer is
steeped in tradition. There is an old saying among firefighters, “the fire service is 200 years of
tradition unimpeded by progress.” While most firefighters know changes are needed in habits,
beliefs and behaviors, the culture actively prevents change, especially changes that would
redefine their very identity and purpose and “the way we have always done it.” The Kansas City
Fire Department, like many other metropolitan-size fire departments, has struggled to redefine
its future while holding on tightly to its past.
The founders of organizations are among the most influential in creating and shaping
organizational culture. Their preferred way of doing things is imposed on personnel and
14
Bendersky, Corinne (2018, December 7). Making U.S. Fire Departments More Diverse and Inclusive. Harvard
Business Review. https://hbr.org/2018/12/making-u-s-fire-departments-more-diverse-and-inclusive

becomes the dominant values and beliefs of the department.15 As such, it’s important to look at
the historical leaders of the Kansas City Fire Department (KCFD).
KCFD can trace its origins to volunteer bucket brigades in 1858 that later organized as a career
fire department in 1867. George C. Hale joined the department in 1871 as one of the first
career firefighters and rose to Assistant Chief in 1878. He later served as Fire Chief from 1882 to
1902. During his fire service career, he revolutionized firefighting operations with over 60
patents. Chief Hale was widely known as a world-famous firefighter who led KCFD team
members in global fire service competitions for rapid deployment of resources to fires. His
legacy for KCFD was rapid deployment of resources to fight fire quickly and effectively.16
George C. Hale continues to be remembered today for his 1914 invention of the Hale® water
that is still in production and used on fire trucks worldwide.17
Meanwhile, the Kansas City Fire Department grew steadily over subsequent years and had 30
fire stations by the 1920s. The Fire Department became completely motorized in 1928, leaving
horse-drawn fire pumpers in the past. During the same year, it opened its first fire training
school.18
KCFD also has a proud history of being on the ground floor of a national initiative to centralize
Fire Departments into one labor union for the purpose of uniting firefighters for better wages,
benefits, working conditions and improved safety. Prior to 1918, the department belonged to
the Kansas City Firemen’s Union No. 15771 that was a part of the American Federation of Labor
(AFL). In 1918 the AFL initiated the formation of a “Fireman’s Union”19 that was eventually
called the International Association of Firefighters (IAFF). Pittsburgh and Chicago Fire
Departments received the honor of being named IAFF Locals 1 and 2, respectively. Several
15
ERE Media. (2015, July 23). Culture and Leadership: They’re Simply Two Sides of the Same Coin. TLNT.
https://www.tlnt.com/culture-and-leadership-theyre-simply-two-sides-of-the-same-coin/.
16
Biography of George C. Hale (1850-1923), Fire Chief. (n.d.). KC History.
https://kchistory.org/document/biography-george-c-hale-1850-1923-fire-chief.
17
Coachbult.com - Hale. (n.d.). http://www.coachbuilt.com/bui/h/hale/hale.htm.
18
History Kansas City Fire Historical Society. (n.d.-b). Kansas City Fire Department Historical
Society https://www.kcfdmuseum.com/history
19
R. Elder, KCFD Historian (2022, June 14). Personal communication.

other large metropolitan-size fire departments also formed their own IAFF Local unions around
the same time and KCFD became IAFF Local 42. Internationally, the IAFF now has more than
331,000 members in more than 3,500 affiliate organizations. The IAFF’s political action
committee (FIREPAC) is among the most active PACs in the country.20
The mid-to-late 1960’s were turbulent times of civil disorder in American cities. While many
blamed the problems on outside agitators and young black men, the Kerner Commission report
said, “white racism, not black anger, turned the key that unlocked urban American turmoil.”
Released 50 years ago, this report found “that poverty and institutional racism were driving
inner-city violence.”21
In response to the Kerner Commission Report, in 1969, the Kansas City, Missouri (KCMO)
Commission on Human Relations formed a Task Force to follow-up on Kerner Report
recommendations. The results of this group can be found in a 1971 report.22 Many efforts were
made in KCMO to improve city services to underserved African-American residents, but the
underlying city systems that influenced employment, delivery of medical services and municipal
priorities, gave significant “push back” opposing any changes. Many of these recommendations
were about improving policing, education, housing, and employment opportunities for
underserved communities. The report recommendations that could have impacted KCFD at that
time included improving hiring for municipal employment to increase Black, Indigenous, People
of Color (BIPOC) personnel. There is little evidence that this was addressed 50 years ago.
Several programs were initiated through the Federal Housing and Urban Development
Department’s Model Cities Program aimed at making improvements in urban communities.
Two conclusions were made in the 1971 KCMO report about these efforts: first, that federal
funding was the primary impetus for change, and second, that racism has been the primary
20
Wikipedia contributors. (2022, October 30). International Association of Fire Fighters. Wikipedia.
https://en.wikipedia.org/wiki/International_Association_of_Fire_Fighters.
21
George, Alice (2018, March 1). The 1968 Kerner Commission Got It Right, But Nobody Listened. Smithsonian
Magazine.
22
Warner, Mary R., Warner, A. Mack (1971, October). Three Year Report: The Quality of Urban Life Human
Relations Task Force on Civil Disorder.

impediment. A key recommendation was that authentic commitment to the necessity for
change was needed.
“Action based on that commitment is essential to demonstrate to minority persons that the
problems described in this report will be solved. Until we are willing to examine in detail the
ways in which our institutions are organized that keep equal opportunity and equal life
results out of reach for minority persons, we will not move ahead significantly in Kansas City.
It is that simple. And that complex.”23
Before 1976, the Fire Chief was the only KCFD member who was not in IAFF Union Local 42.
From 1966-1975 the IAFF Local 42 Union initiated several job actions that culminated in an
illegal strike in October 1975, and a few firefighters were arrested. While Kansas City and the
L42 Union eventually worked out their differences, it resulted in middle-management
supervisory personnel no longer belonging to the same union as the people they supervised.
Not long afterwards, middle-management firefighters formed a Chief Officers Association that
KCMO refused to recognize as a union. Subsequently in 1988, IAFF Local 3808 was formed
consisting of primarily Battalion Chiefs and Division Chiefs. Ultimately after several years of
legal wrangling,24 the City entered its first contract with Local 3808 in 2001, becoming one of
the few fire departments in the country with two IAFF Unions.25 It should be noted that
Captains (essentially first-line supervisors) are currently included in the larger IAFF Local 42
Union.
Meanwhile, in 2000, KCFD became the first fire department in the country to implement the
International Association of Firefighters (IAFF) and International Association of Fire Chiefs (IAFC)
Labor Management process that was memorialized in a 2-page Memorandum of Understanding
(MOU).26 “The process is used to make most major decisions concerning all programs within the
23
Warner, Mary R., Warner, A. Mack (1971, October). Three Year Report: The Quality of Urban Life Human
Relations Task Force on Civil Disorder.
24
FindLaw. (n.d.). FindLaw’s United States Eighth Circuit case and opinions. FindLaw.
https://caselaw.findlaw.com/us-8th-circuit/1210362.html.
25
Westoff, Bill. (2018, March 8). History’s Corner: [KCFD] The Very Early Days. Fire Fighters Association of Missouri.
https://www.ffam.org/2018/03/08/historys-corner-march-2018
26
Dyer, “Smokey”, Wright, Louis. (2001 August*). Workshop on KCFD’s IAFC/IAFF Labor Management Process.
(*Date uncertain).

department.”27 The use of various union/management committees continues today as part of
this IAFC/IAFF Labor Management decision-making process.
In 2009, in a move to potentially save money,28 the KCMO City Council approved a merger of
the Metropolitan Ambulance Services Trust (MAST), a Kansas City Public Utility Model that
operated as a 501(c)(3) nonprofit organization, with the Kansas City Fire Department. The
merger became effective in 2010. One year prior to this, the MAST ambulance personnel who
had previously been in a separate IAFF Local (#34) were told that IAFF would not allow two IAFF
Union Locals to be in a single jurisdiction. As a result, they merged with IAFF Local 42. While
KCFD personnel viewed the merger between KCFD and MAST as necessary for job security
because of the expanded scope of service, many MAST personnel viewed the merger as a
hostile take-over, because of perceived inequities in benefits, work assignments, and workload.
Today, IAFF Local 42 is known as IAFF Greater Kansas City Fire Fighters Local 42, which also
represents 12 other bargaining units in the metro Kansas City, Missouri (KCMO) area, including
other city and district fire departments, firefighters, paramedics, emergency medical
technicians (EMT) and prosecuting attorneys.29
In terms of workload, the focus of KCFD personnel staffing has always been on fire suppression
operations. Over the years, other rescue-related services were added to KCFD, but traditional
staffing models have continued to prioritize staffing fire suppression vehicles over medical
vehicles. This continues today, even though the MAST/KCFD merger took place 12 years ago.
Emergency medical service (EMS) related calls comprise the majority of requests for service for
KCFD. Staffing models that are codified in the IAFF Local 42 Collective Bargaining Agreement
(CBA) with the City, continue to allocate priority staffing to fire apparatus over ambulances
27
Westoff, Bill. (2018, March 8). History’s Corner: [KCFD] The Very Early Days. Fire Fighters Association of Missouri.
https://www.ffam.org/2018/03/08/historys-corner-march-2018
28
Fitch, Jay, PhD. (2009, November 1) Kansas City’s System Transition. Journal of Emergency Medical Services®.
https://www.jems.com/administration-and-leadership/where-do-we-go-here/
29
Who We Represent. (n.d.). Greater Kansas City Fire Fighters Local 42.
https://www.iaff42.org/index.cfm?zone=/unionactive/view_page.cfm&page=About20IAFF2042

rather than using modern-day dynamic staffing models that could possibly address a more
balanced, and effective use of personnel.
During the last five years (2017-2021), 81-82% of calls for service were medical related calls.
KCFD is organized into four primary areas: Emergency Services, Operational Services that
support emergency services, Human Resources, and Finance. The two Assistant Chiefs
(Emergency and Operational Services), Assistant to the Director - Human Resources, and the
Assistant to the Director – Finance, all report to the Fire Chief, as do two other positions - the
Principal Assistant to the Chief and the Executive Assistant. See the organizational charts in
Appendix D for more details.
In 2019, new plans were initiated to enhance safety and create a more inclusive workplace.
More concerted diversity recruitment efforts began; recruitment open houses were advertised;
preparations were made to advertise for new hiring and promotion vendors; talks with the City
and the IAFF Fire Department Unions were initiated to create Diversity Officer positions; driver
trainings using the new simulator were in the process of being scheduled and much more.
However, in early 2020, the COVID-19 outbreak forced changes in organizational priorities for
all public safety agencies nationwide, including KCFD. For the remainder of 2020 and into 2022,
much time and energy focused on developing policies and protocols never before imagined for
handling the challenges created by the COVID-19 pandemic. The increase in staffing shortages
because of personnel contracting the virus created additional burdens on those who remained
to do the work. Consequently, DEI initiatives, such as more inclusive recruitment, hiring and
promotional programs were put on hold.
In December 2020, the Kansas City Star News published an in-depth story about racism in the
KCFD30. A Diversity, Equity, and Inclusion (DEI) Leadership Work Group was initiated in January
2021 that provided additional citizen volunteer support. This assistance helped focus efforts
30
Rice, Glenn E, Kite, Allison, Hendricks, Mike (2020, December 6). Racism in the KCFD: White firefighters
manipulate the system to enforce segregation, Kansas City Star. https://www.kansascity.com/news/special-
reports/article247260019.html.

back on DEI, safety, and accountability. The author of this report served as a citizen volunteer
since early 2021, and continues to volunteer time for the KCFD DEI Leadership Work Group
meetings. Over time, based on discussions and recommendations from this Workgroup for
training and assessing cultural barriers to safety and inclusion, this cultural assessment report
was initiated. This report describes the cultural assessment process and results as well as
recommendations and potential actions for creating a safer, more diverse, and inclusive
workplace.

KCFD Demographics
There are numerous KCFD facilities throughout Kansas City, Missouri, including 34 Fire Stations,
a Communications/EMS support facility, the Fire Academy, and various Administrative Offices.
The total number of KCFD employees is 124031.
The International Association of Firefighters (IAFF) Local 42 represents 1,113-line personnel,

and first-line supervisors including Fire Captains. IAFF Local 3808 represents 73 Battalion Chiefs
and Division Chiefs, 11 people are represented by Kansas City’s AFL-CIO Local 500 Union and
there are approximately 42 people who are not represented by a union, including 15 who are
part of the Senior Management Executive Team.
Table 1: Union Representation of KCFD Personnel
IAFF Local 42 90%

IAFF Local 3808 6%
AFL-CIO Local 500 1%
Not Represented by a Union 3%
Table 1 above illustrates the composition of KCFD personnel represented by unions and those
who are not.32 Ninety percent (90%) are in IAFF Local 42, six percent (6%) are in IAFF Local
3808, one percent (1%) are in AFL-CIO Local 500, and three percent (3%) are not represented by
a union.
31
Data from HR Assistant to the Fire Chief, email communication December 2, 2022. Note: due to hiring,
retirements, promotions, etc., these numbers can change on a weekly basis.
32
Data from KCFD Communications Deputy Chief, via email spreadsheet, November 15, 2022.

Table 2: All KCFD Personnel Demographics by Gender and Race33
Women 12%
Men 88%
BIPOC 26%
White 74%
Table 2 above illustrates the race and gender percentages of all KCFD personnel.34
In terms of the overall composition of KCFD personnel by gender and race,35 twelve percent
(12%) are women, eighty-eight percent (88%) are men, twenty-six percent (26%) are Black,
Indigenous, and People of Color (BIPOC), and seventy-four percent (74%) are White.
Table 3: KCFD Traditional Fire/EMS Positions on 24-hour Shifts by Gender and Race
Women 3%
Men 97%
BIPOC 25%
White 75%
Table 3 above illustrates the gender and race percentages of KCFD personnel36 who are
Firefighters, Firefighter-Paramedics, Fire Apparatus positions, and Fire Captains on traditional
24-hour shifts.37 Three percent (3%) are women, ninety-seven percent (97%) are men, twenty-
five percent (25%) are BIPOC, and seventy-five percent (75%) are White.
33
KCFD tracks personnel by race, however due to the low numbers of Asian, Hispanic, American Indian, Pacific
Islander, etc., for purposes of this report, racial groups other than White are reported as Black, Indigenous, People
of Color (BIPOC). KCFD only tracks gender identity by men and women, so LGBTQ+ gender identities are not
separately delineated.
34
35
Ibid.
36
Ibid.
37
Note: Captains are included with line firefighter positions here since they are not considered supervisory,
management positions according to the National Labor Relations Board NLRB. The NLRB defines a supervisor as
“any individual having authority, in the interest of the employer, to hire, transfer, suspend, lay off, recall, promote,
discharge, assign, reward, or discipline other employees, or responsibly to direct them, or to adjust their
grievances, or effectively to recommend such action, if in connection with the foregoing the exercise of such
authority is not of a merely routine or clerical nature, but requires the use of independent judgment.”
FindLaw Attorney Writers. (2016, May). NLRB Clarifies Definition of Supervisor. FindLaw®.
https://corporate.findlaw.com/litigation-disputes/nlrb-clarifies-definition-of-supervisor.html

Table 4: KCFD Personnel in Management, Civilian, Administrative, and Line Personnel (not on
24-hour shifts) by Gender and Race38
Women 34%
Men 66%
BIPOC 28%
White 72%
Table 4 above illustrates the gender and race percentages of KCFD personnel39 assigned to
management positions, civilian positions, and emergency service delivery positions that are not
on traditional 24-hour shifts. Thirty-four percent (34%) are women, sixty-six percent (66%) are
men, twenty-eight percent (28%) are BIPOC, and seventy-two percent (72%) are White. The
specific positions represented in Table 4 are the Chief, Deputy Chiefs, Battalion Chiefs, Assistant
Division Chiefs (ADCs), Communications, Fire Prevention, Emergency Medical Supply, Fire
Apprentice, other Administrative and Civilian positions and Paramedics and Emergency Medical
Technicians (EMTs) that are not on 24-hour shifts.
38
KCFD tracks personnel by race, however due to the low numbers of Asian, Hispanic, American Indian, Pacific
Islander, etc., for purposes of this report, racial groups other than White are reported as Black, Indigenous, People
of Color (BIPOC). KCFD only tracks gender identity by men and women, so LGBTQ+ gender identities are not
separately delineated.
39

Overview and Introduction to Fire Service Culture
KCFD has 150+ years of traditions that have shaped everyday beliefs and behaviors; both good
and bad. As with many organizations, these beliefs and behaviors are so deeply embedded in
the DNA of fire department culture that they often cannot be verbalized. The intent of this
Culture Assessment Report is twofold:
• First, to articulate the perceptions and opinions of KCFD employees regarding regular
behaviors and practices that are consistent and/or inconsistent with written policies
and/or practices related to safety, accountability and diversity, equity, and inclusion;
and
• Second, to assess the capacity of senior leaders in Management, as well as senior
leaders in both IAFF Unions to understand and appropriately adapt to divergent
perspectives within KCFD as well as within the community.
The goal of this information is to provide recommendations and possible actions for
transforming KCFD’s culture to align with their aspirational vision of creating a safer, more
diverse, inclusive, and equitable workplace where everyone holds each other accountable.
“Organizational culture is like an iceberg. There is a small part that is visible above the water,
but the larger section is invisible below the surface. For a ship to safely pass through an area
with an iceberg, it’s important to map out”40 where the danger is below the waterline. Similarly,
KCFD leadership made the decision to carefully map out KCFD’s culture by conducting this
Culture Assessment. The purpose of this assessment is to identify the strengths and weaknesses
of KCFD’s culture so that KCFD leaders can better leverage their assets, and identify barriers to
safety, accountability, and diversity, equity, and inclusion.41 With that information, KCFD can
map out a course of action for the future that is built on desired habits that unify and empower
everyone.
40
Lake, Donna. (2022, August 4). KCFD Cultural Assessment. Chief’s Connection Newsletter.
41
Ibid.

From April through October of 2022, over 231 members of the Fire Department shared their
thoughts and opinions about the workplace culture related to safety, accountability and
diversity, equity, and Inclusion. While KCFD members mentioned many ideas and concerns in
interviews, discussion groups and/or site visits, the scope of this report is limited to assessing
the workplace culture to identify organizational assets and barriers related to Safety,
Accountability, Diversity, Equity, and Inclusion (SADEI).
In addition to discussion groups, interviews and site visits, the Intercultural Development
Inventory42 (IDI®) assessment instrument was offered to the senior executive team members of
the following four groups to assess their capacity for understanding cultural challenges:
1. Fire Department Executive Management Team
2. Diversity, Equity & Inclusion (DEI) Leadership Work Group comprised of union and
management personnel and two community members
3. Senior Leaders of the IAFF Local Union 42
Diversity, Equity, and Inclusion in the Fire Service

To help readers of this report better understand its content – we offer the following context
about workplace culture and definitions about terminology used in this report. For ease of
reference, there is also a list of these definitions, as well as acronyms and abbreviations, in
Appendix A.
A 2018 Harvard Business Review article entitled “Making U.S. Fire Departments More Diverse
and Inclusive,” reported that 96% of firefighters in career fire departments are men and 82%
are white. Interestingly, this falls behind local police departments that average 88% men and
73% white. In their research and interviews with leaders in fire departments, they concluded
that “while outreach to minority candidates and affinity groups can help, true diversity will only
come when department leaders embrace inclusion.” They identified no programs that
42
Note: Additional information about the IDI® can be found at: https://idiinventory.com/

addressed the challenge of inclusion – “being valued and having a sense of belonging,
regardless of who you are.”43
While diversity in dimensions of social membership (e.g., race, gender, ethnicity, education,
socio-economic status, etc.) can be achieved through a programmatic approach, inclusion
requires a “fundamental shift in the organization’s culture.” This requires changes in the way
people interact with each other so that traditional stereotypes can be debunked.44 The problem
is that programs may or may not have the full support and commitment of those implementing
them because of conscious or unconscious biases, and more importantly fear.
Fear of change and loss of power are significant deterrents to real inclusion efforts. The fear of
saying or doing the wrong things and the avoidance of the discomfort of change are palpable
for those in power. For those who do not have the power or feel marginalized, there is fear of
reporting discrimination or trying to correct bad behavior because it could negatively impact
career advancement and/or the respect and acceptance by their coworkers.
Creating allies for transformation is key to creating inclusive workplaces. According to recent
research, employees of organizations that foster strong allyship and inclusion cultures are 50%
less likely to leave, 56% more likely to improve their performance, 75% less likely to take a sick
day, and up to 167% more likely to recommend their organizations as great places to work.45
Organizational Culture
This report assesses the organizational culture of KCFD. By organizational culture we mean the
accumulated learning that created a pattern or system of beliefs, values, and behavioral norms
that are taken for granted as basic assumptions and are no longer part of the group’s conscious
43
Bendersky, Corinne (2018, December 7). Making U.S. Fire Departments More Diverse and Inclusive. Harvard
Business Review. https://hbr.org/2018/12/making-u-s-fire-departments-more-diverse-and-inclusive, retrieved
from internet 8-28-22.
44
Nishii, Lisa H. Ph.D. Director International Programs, School of Industrial Labor Relations, Cornell University.
(2019). Module 2: Examine Methods of Fostering Inclusion in Work Groups of eCornell Course: ILRD1003 – Diversity
& Inclusion at Work.
45
Poornima, Luthra (2022, November 8). 7 Ways to Practice Active Allyship. Harvard Business Review.
https://hbr.org/2022/11/7-ways-to-practice-active-allyship

awareness. This accumulated learning is taught to new members as the right way to think, feel
and behave. Over time, the rationale for what is taught exists in the group’s collective
unconscious. The strength of the culture depends on the number of years of shared history,
how stable the membership is, and the emotional intensity of the historical learning
experiences.46 Given the 150+ years KCFD has been in existence, the foundation for fast
response to emergencies laid in the late 1800’s, the tradition of multi-generational family
members joining the fire department, and the shared loss to families from 116 line-of-duty
deaths (LODD) from 1887 – 2020,47 KCFD’s organizational culture is substantial and tenacious.
The use of the Johnson and Scholes Cultural Web framework,48 used later in this report, has
been adapted to the organizational cultural challenges faced by KCFD and provides a useful
structure for deciphering and articulating organizational culture. The original six pillars of the
Johnson and Scholes framework are listed below.
1. Stories/Myths about events and people (e.g., heroes, heroines and villains)
2. Rituals/Routines that are seen as normal whether good or bad (e.g., supportive
teamwork, ceremonies or bullying, discrimination)
3. Symbols such as uniforms, insignias, plaques, image branding, facilities, type and size of
offices, etc.
4. Organizational structure (formal and social)
5. Control systems such as awards/rewards, promotion, quality assurance/quality
improvement (QAQI), financial controls, as well as metrics and distribution processes
6. Power structures, where the real power in the organization lies for influencing
decisions, operations, and strategies
46
Schein, Edgar H. with Schein, Peter. (2017) Organizational Culture and Leadership, 5th ed., p. 6, p. 16. Wiley &
Sons, Inc., Hoboken, NJ
47
Elder, Ray, KCFD Historian, (2020). KCMO Fire Department Last Alarm.
48
Supporting Citations:
Johnson, Gerry, Richard Whittington, Kevan Scholes. (2011). Fundamentals of Strategy, 2nd ed.
The Management Center, (2016, March 3). Culture Eats Strategy for Breakfast: Transforming results by changing
beliefs and behaviours, UK. https://www.managementcentre.co.uk/management-consultancy/culture-eats-
strategy-for-breakfast/

For purposes of this report, these six pillars have been combined and adapted in the Thematic
Cultural Assessment section of this report as follows:
1. Power Structures and Control Systems
2. Traditions and Routines
3. Stories and Symbols
Viewing KCFD through the framework of these cultural lenses aids in providing a common
understanding of the assets and barriers to Safety, DEI and Accountability. This will be useful in
the upcoming KCFD strategic planning process to develop actionable plans to create a more
sustainable, flexible culture with increased capacity to adapt to the ever-changing needs of a
vibrant community.
Culture Report Scope

While there are many aspects of organizational culture, this KCFD Culture Assessment report is
only focused on Safety, Accountability, Diversity, Equity, and Inclusion (SADEI). More
specifically:
- Safety (psychological/physiological and physical);
- Accountability by peers, supervisors, union, and management related to Safety and DEI
policies and practices; and
- Diversity, Equity and Inclusion (DEI).
Definitions
Listed below are the definitions of key terminology used or alluded to in this report. Appendix A
also contains these definitions, as well as a list of acronyms and abbreviations.
Allyship is active support for the rights of a non-majority group or individual without actually
being a member of that group or that person’s identity.
Developmental Orientation (DO) indicates your group’s primary or actual orientation toward
differences and commonalities as assessed by the IDI® instrument. The DO is the perspective

your group most likely uses in situations where cultural differences and commonalities need to
be bridged.49
Diversity is the range of human differences comprised across different demographic

characteristics (age, race, ethnicity, gender, sexual orientation, socioeconomic status,
education, religion, dis/ability, language) that make an individual and/or group different from
another. 50 Diversity is also about the mix of differences that may make a difference in human
interactions (individual to individual, individual to group/organization, organization to
organization). How diversity is experienced can relate to the achievement of goals, the ability to
effectively meet intercultural challenges, and whether individuals have a sense of safety
(physical or mental). 51
Employee Resource Group is a voluntary, employee-led group with the purpose of fostering a
diverse, inclusive workplace culture that is aligned with the mission, vision and values of the
organization.
Equity, on the other hand, is more about leveling an unlevel playing field and can be defined as
recognition and elimination of systemic barriers (and privileges) that produce disparate
experiences of inclusion. Systemic disparities must be addressed for employees from
historically marginalized backgrounds to experience all three forms of fairness at work:
distributive (outcomes), procedural (how decisions are made), and interactional (interpersonal
treatment and informational).52
Inclusion occurs in an organizational environment that enables individuals to simultaneously

experience belonging and feel valued for their unique competencies and perspectives. People
experience inclusion when they are seen and valued as they are, and have the power to set the
49
Hammer, Mitchell R. Ph.D. (2021). The Intercultural Development Inventory® Resource Guide, Olney, MD,
pp. 39-41.
50
Diversity and Inclusion Definitions.
(n.d.b). https://www.ferris.edu/administration/president/DiversityOffice/Definitions.htm.
51
Hammer, Mitchell R. Ph.D. (2021). The Intercultural Development Inventory® Resource Guide. Olney, MD, p. 23.
52
Nishii, Lisa H. Ph.D., Director International Programs, School of Industrial Labor Relations, Cornell University.
(2022, August 19). About the E in DEI, Lecture at D&I eCornell Symposium.

agenda, co-create norms, and influence how work is done.53 Inclusion is leveraging differences
in a way that increases contributions and opportunities for all.54
Intercultural Development Continuum (IDC) is the model that was modified from Dr. Milton
Bennett’s original Developmental Model of Intercultural Sensitivity. It identifies a range of five
intercultural competence orientations in the IDI® assessment instrument.55
Intercultural Development Inventory® (IDI®) is an assessment instrument that is a statistically

reliable, cross-culturally valid56 measure of intercultural competence that is available for group
profiles, as well as confidential individual profiles. The results are numerically quantified along a
continuum of five orientations that range from the more monocultural orientations of Denial
and Polarization to the transitional mindset of Minimization to the more intercultural or global
mindsets of Acceptance and Adaptation. The following describes these five orientations in more
detail:57
- Denial is an orientation that recognizes more observable cultural differences (e.g.,
food), but may not notice deeper cultural difference (e.g., conflict resolution styles) and
may avoid or withdraw from such differences.
- Polarization is an orientation that views cultural difference in terms of “us” and “them”.
This ranges from (1) a more uncritical view toward one’s own cultural values and
practices coupled with an overly critical view toward other cultural values and practices
(Defense) to (2) an overly critical view toward one’s own cultural values and practices
and an uncritical view toward other cultural values and practices (Reversal).
- Minimization is an orientation that highlights cultural commonality and universal values
and principles that may also mask deeper recognition and appreciation of cultural
differences.
53
54
Hammer, Mitchell R. Ph.D. (2021). The Intercultural Development Inventory® Resource Guide, p. 24, Olney, MD.
55
Ibid. p. 39
56
57
Adapted from: Hammer, Mitchell R. Ph.D., (2021). The Intercultural Development Inventory® Resource Guide,
p. 39, Olney, MD.

- Acceptance is an orientation that recognizes and appreciates patterns of cultural
difference and commonality in one’s own and other cultures.
- Adaptation is an orientation that can shift cultural perspective and change behavior in
culturally appropriate and authentic ways.
Institutional Racism is racial inequity within institutions and systems of power that result in
unfair policies, practices, discriminatory treatment, as well as inequitable opportunities and
outcomes for different racial groups.58
Intercultural Competence provides a bridge between diversity and inclusion. It can open one’s
perspective to seeing differences as possibilities rather than problems. It is defined as “the
capability to shift cultural perspectives and appropriately adapt behavior to cultural differences
and commonalities.” It requires a deeper level of self-awareness about one’s own
understanding of learned values, perceptions, and practices AND a deeper understanding of the
different ways that people from other groups make sense of and respond to cultural
differences.59 This report includes an assessment of the intercultural competence of senior
leaders in management and senior leaders in the two KCFD IAFF unions using the IDI®
assessment instrument.
Leading Orientation (LO) are the next steps to take in further development of intercultural
competence that is referenced in the IDI® assessment instrument.60
Moral Courage is the willingness to take a visible, public stand for values that underpin
professional conduct.
Normalization of Deviance is a term that describes how bad behavior becomes acceptable.61
58
Anne E. Casey Foundation, (updated 14 April 2021). Equity vs Equality and Other Racial Justice Definitions.
https://www.aecf.org/blog/racial-justice-definitions
59
Hammer, Mitchell R. Ph.D. (2021). The Intercultural Development Inventory® Resource Guide, Olney, MD, p. 25.
60
Ibid. pp. 39-41.
61
Furst, Peter. (2021, October). Normalization of Deviations in Performance. Occupational Safety and Health.
https://ohsonline.com/Articles/2021/10/01/Normalization-of-Deviations-in-Performance.aspx

Organizational Climate is the direct and indirect effect of an organization’s cultural tenants
(values, traditions, attitudes, and behaviors) on stakeholder experiences, work performance,
quality of life and belonging.62 It is different than organizational culture in that it is associated
with the impacts of the work environment on individual members, whereas culture is more
about shared expectations and norms of behavior that create the workplace environment.
Organizational Culture is the accumulated learning that creates a pattern or system of shared
beliefs, values, and behavioral norms that are taken for granted as basic assumptions and
eventually drop out of awareness. This accumulated learning is taught to new members as the
right way to think, feel and behave. Over time, the rationale for what is taught no longer exists
in the group’s conscious awareness. It continues to be present in the group’s collective
subconscious. The strength of the culture depends on the number of years of shared history,
experiences.63
Organizational Systems are composed of multiple interconnected components involving

policies and practices, traditions and routines, people and relationships, resources, power
structures, and values.64
Orientation Gap (OG) is the difference between the group’s PO and DO. The larger the gap, the
more likely the group may misread how effective they are in bridging across cultural
differences. A difference of seven points or more is considered a meaningful gap. Also, the
larger the gap, the more surprised the group may be by the discrepancy between their PO and
DO.65
62
Madan, M., & Jain, E. (2015). Impact of organizational culture & climate on managerial effectiveness: An empirical
study. Delhi Business Review, 16(2), 47-57.
Trice, H. M., & Beyer, J. M. (1993). The cultures of work organizations. Englewood Cliffs, NJ: Prentice Hall.
63
Schein, Edgar H. with Schein, Peter. (2017). Organizational Culture and Leadership, 5th ed., Wiley & Sons, Inc.,
Hoboken, NJ, p. 6, p. 16.
64
Abercrombie, R., Harries, E., & Wharton, R. (2015). Systems change: A guide to what it is and how to do it.
65
pp. 39-41.

Perceived Orientation (PO) reflects where your group places itself along the Intercultural
Development Continuum (IDC) in the IDI® assessment instrument. This is how the group sees
itself when interacting with culturally diverse individuals and groups.66
Psychological Safety is experiencing the freedom and safety to engage, rather than feeling
individuals or groups need to protect themselves in some way. “Diversity and inclusion issues
are particularly relevant for experiences of psychological safety. Members of historically
marginalized groups often feel pressure to assimilate (in other words, to limit the expression of
how they may be different from the dominant in-group to fit in), and they may also feel that
they are judged in stereotypical ways.”67
Physical Workplace Safety is a process of protecting employees from work-related illness or

injury.68 Workplace safety refers to the working environment at a company and encompasses
all factors that impact the safety, health, and well-being of employees. This can include
environmental hazards, unsafe working conditions or processes, drug and alcohol abuse, and
workplace violence.69
Physiological Threats to Safety points to the physical effects of racism on one’s health can
include elevated blood pressure, inflammation, and a weakened immune system that
significantly increases the risk of developing long-term chronic health conditions.70 Physiological
66
pp. 39-41.
67
(2019). Module 2: Examine Methods of Fostering Inclusion in Work Groups, eCornell Course: ILRD1003 – Diversity &
Inclusion at Work.
68
Occupational Safety and Health Administration (OSHA).
69
inc.com. (n.d.). https://www.inc.com/encyclopedia/workplace-safety.html.
70
National Center for Health Statistics (2016). Health, United States, 2015, With special feature on racial and ethnic
health disparities. Hyattsville, MD. https://www.cdc.gov/nchs/data/hus/hus15.pdf
Johns, M., Schmader, & T., Inzlict, M. (2008). Stereotype threat and executive resource depletion: Examining the
influence of emotion regulation. Journal of Experimental Psychology, 137(4), 691-705.
Steele, C. M., Spencer, S. J., & Aronson, J. (2002). Contending with group image: The psychology of stereotype and
social identity threat. In M. P. Zanna (Ed.), Advances in experimental social psychology (Vol. 34, pp. 379-440).
Academic Press.

safety is associated with psychological safety in that it is about an individual or groups’ threats
to health resulting from a lack of psychological safety.
Social Capital is the normal human hunger for acceptance by peer groups.
Systemic Barriers are policies, procedures, and practices that are discriminatory in nature that
hinder and/or prevent BIPOC and historically marginalized individuals from full participation or
receiving quality services, supports, and resources.
Systemic Disparities is incongruent treatment of racial groups resulting in disparate outcomes

not limited to societal treatment, income, safety, housing, job placement and advancement.

Methodology
Methodology Overview
The intent of this culture assessment of KCFD was two-fold:
o to provide a broader understanding of major themes that have implications for current
safety, accountability, diversity, equity, and inclusion (SADEI) efforts, as well as
o to provide recommendations to facilitate moving toward creating a safer, more diverse,
inclusive, and equitable workplace where everyone holds each other accountable.
The culture assessment used both qualitative and quantitative data collections methods.
ü A qualitative methodology was used to collect the perceptions and opinions of current
and past KCFD employees and other individuals related to safety, accountability and
diversity, equity, and inclusion in the workplace.
ü A quantitative methodology was used to assess the capacity of senior leaders in
Management, as well as senior leaders in both IAFF Unions to understand and
appropriately adapt to divergent perspectives within KCFD as well as within the
community.
Quantitative data on group intercultural competence was collected from four executive
leadership teams (union and management) using the Intercultural Development Inventory®
(IDI®), a statistically reliable, cross-culturally valid71 measure of intercultural competence that is
available for group profiles, as well as confidential individual profiles. The results are
numerically quantified along a continuum of five orientations that range from the more
monocultural orientations of Denial and Polarization to the transitional mindset of
Minimization to the more intercultural or global mindsets of Acceptance and Adaptation. The
IDI® group profile provides a baseline metric for measuring future progress of each group’s
intercultural competence skill development. The skill development reflects the degree to which
cultural differences and commonalities in values, expectations, beliefs, and practices are
71
Inventory. International Journal of Intercultural Relations, p. 35, pp. 474-487.

effectively bridged to achieve an inclusive environment. Success in achieving goals is better
served when one can more deeply understand culturally-learned differences, recognize
commonalities between one’s self and others, and act on this increased insight in culturally
appropriate ways that facilitate goal accomplishment among diverse individuals and groups.72
Qualitative data regarding KCFD workplace experiences was collected using focus groups,
interviews, and observations from site visits of KCFD facilities. These environmental scans,
though somewhat anecdotal in nature, are considered a dependable methodology for
understanding why problems occur, what needs are met or not met, and information that is
helpful for making changes.
The qualitative data gathered in this report are the thoughts and concerns of KCFD members
related to their experiences in the workplace. The primary and most consequential perceptions
(based on the consultants’ understanding of the leadership and organizational culture field of
study) are reported under the following four categories:
• Accountability
• Physical Safety
Limitations
Strict academic research methodologies are not used in this culture report, nor is this an
investigative, journalistic, or editorial report. As such, the focus group and interview results
reported from the study participants are perceptions and opinions that have not been
systematically verified. It is also not an equity audit, though portions of the report could be
included in an equity audit if one is done. The report results are reported in such a way that
only commonalities in group perceptions and opinions are reported as they related to safety,
accountability, and diversity, equity, and inclusion (DEI). These commonalities are based on the
72
Adapted from: Hammer, Mitchell R. Ph.D. (2021). The Intercultural Development Inventory® Resource Guide,
p. 39, Olney, MD.

relative frequency that they were mentioned, as well as the importance they play in long-term
culture change and transformation. The importance is based on the opinion of the
consultant(s). While accessibility is sometimes included with DEI related assessments, it was not
included as part of this study.
To maintain the anonymity of participants and prevent unfair criticism of individuals, most of
the thoughts and concerns of study participants are paraphrased. In a few situations, where
permission has been given, there are direct quotes or paraphrased stories that may be
attributed to a specific person. Attendance in discussion groups was only tracked in terms of
the number of participants – their names were not recorded to maintain anonymity. Also, in
order to maintain anonymity, their gender and race were recorded by observation of the
consultants, and not verified.
Given the voluntary nature of participation in this study, obtaining a sample size that is
representative of the organization was a challenge. While success was achieved with a
representative sample, the sample is not necessarily representative of different sub-groups
within KCFD. For focus groups and interviews combined, the study sample size was 11.4% of all
KCFD personnel. For focus groups, interviews and site visits combined, the study participation
sample size was 18.6%.
This report is also limited to organizational culture and does not include an assessment of
organizational climate, although the data is useful for understanding issues related to
organizational climate.
Terminology
The term “Discussion Groups” was used in lieu of “Focus Groups” to be more user-friendly to
participants. Other definitions, acronyms, and abbreviations can be found in Appendix A.

Intercultural Competence Assessment of Senior Leaders
The Intercultural Development Inventory73 (IDI®) assessment instrument was used to assess the
intercultural competence of senior leaders. It was offered, on a voluntary basis, to the senior
leaders of the following four groups:
2. Diversity, Equity & Inclusion (DEI) Leadership Workgroup comprised of union and
management personnel and community members
3. Senior leaders of the IAFF Local Union 42
4. Senior leaders of the IAFF Local Union 3808
Study Participants in IDI®

A total of fifty-four (54) KCFD Union and Management leaders divided into four groups
participated in the IDI® assessment. The demographics of this group in terms of gender and
race were determined by observation and/or individuals self-identifying.
Table 5: Total Participants in the Intercultural Development Inventory (IDI®)

Women 30%
Men 70%
BIPOC 31%
White 69%
Table 5 above illustrates the percentages. Thirty percent (30%) were women, seventy percent
(70%) were men, thirty-one percent (31%) were BIPOC74 and sixty-nine percent (69%) were
White.
To ensure anonymity with the smaller number of participants, the two union groups were
combined for reporting of their IDI® participation and the Executive Leadership Team and the
DEI Leadership Work Group were combined for reporting of their IDI® participation.
73
Hammer, Mitchell R., Ph.D. (2009). The Intercultural Development Inventory (IDI v3). Olney, MD: IDI, LLC
74
To maintain participant anonymity, groups were not divided into more specific demographic categories such as
Black, Asian, Hispanic, American Indian, Pacific Islander, etc.

Table 6: Union Leadership for IAFF Local 42 and Local 3808 Participation in IDI®
Women 17%
Men 83%
BIPOC 21%
White 79%
Table 6 above illustrates the percentages. For the two Union leadership groups, a total of
twenty-four (24) KCFD members participated in the IDI® assessment. Of those, seventeen
percent (17%) were women, eighty-three percent (83%) were men, twenty-one percent (21%)
were BIPOC75 and seventy-nine percent (79%) were White.
Table 7: Executive Management Team and DEI Leadership Work Group Participation in IDI®
Women 40%
Men 60%
BIPOC 40%
White 60%
Table 7 above illustrates the percentages. For the two groups, the Executive Management Team
and the DEI Leadership Work Group, a total 30 people participated. Of those, forty percent
(40%) were women, sixty percent (60%) were men, forty percent (40%) were BIPOC, and sixty
percent (60%) were White. The KCFD Executive Management Team was comprised of 15 senior
management leaders in KCFD. The DEI Leadership Work Group was comprised of 15 KCFD
administrative personnel, senior management leaders, union members, and two community
members.
The purpose of administering the IDI® was to determine the capacity of senior leaders in
Management and senior leaders in both IAFF Unions to understand and appropriately adapt to
divergent perspectives within KCFD as well as within the community.
The IDI® group profile reports were generated through the IDI’s secure, online system and
provided a multi-page document explaining the different orientations of intercultural
75

development as well as a detailed explanation of where the group perceives itself to be
(perceived orientation) and where it actually is (developmental orientation) along the
developmental continuum. The results provide a baseline group metric for measuring progress
in subsequent years. The reports for individual participants contain similar information, as well
as Individual Development Plans (IDP) that can be used by participants to improve their
individual intercultural competency over time.
Dr. Nozella Brown, a third-party Qualified Administrator (QA) of the IDI® provided a 45-minute
orientation and question/answer session to participants prior to them completing the
assessment. After the orientation session, she provided individual confidential online login
codes to group members via email. The assessment results for each of the four groups are
reported in the Results section of this Culture Assessment Report. The complete reports for
each of the four leadership groups can be found in Appendix B. Individual assessment results
remain confidential between the QA and individual participants and are not part of this report.
Individual reports were also not given to anyone in KCFD or the city of KCMO, other than to the
individual who completed their IDI® assessment and completed a confidential debrief session
with the QA.
Discussion Groups
Discussion groups were used to collect qualitative data on KCFD’s organizational culture as it
related to Safety, Accountability and Diversity, Equity, and Inclusion (DEI). The questions for the
Discussion Group sessions were developed using two pilot KCFD culture group sessions in 2021,
October and November. One pilot session was conducted with line Fire/EMS personnel at the
Union Hall. And one pilot session was conducted at the Eastwood facility with the DEI
Leadership Work Group that was comprised of union, management, and community members.
Discussion groups were structured into affinity groups. Participation in the groups was
voluntary and personnel could attend on-duty or off-duty. Ten-Two76 memos and texts
requesting participation from personnel were sent to all KCFD personnel. Some discussion
76
Ten-Two is the terminology used for Interdepartmental Communication memos that are sent to all KCFD
personnel.

groups were held at KCFD facilities, while some were scheduled in other venues not affiliated
with KCFD. Off-duty attendance was compensated.
Additional efforts were made to include traditionally underrepresented groups. A trusted

liaison was identified to recruit members who may not have been comfortable signing up. This
was done for the LGBTQ+ group, the Black, Indigenous, People of Color (BIPOC) group and
Women’s groups.
Most discussion groups were facilitated by Debra Jarvis, a third-party consultant. Dr. Nozella
Brown, a third-party consultant facilitated two of the larger BIPOC discussion groups with Debra
Jarvis assisting. Each discussion group began with an overview of the purpose of the session,
the ground rules for discussion and an explanation of organizational culture using the iceberg
metaphor. A more detailed outline of the orientation, as well as the questions are in
Appendix C.
Interviews
Individual interviews were also conducted to gather qualitative data using the same questions
as the discussion groups. Individual interviews were done for anyone who felt uncomfortable
sharing their thoughts and concerns in a group. In addition to individuals who requested
interviews, the consultant requested interviews of the following KCFD leaders: Fire Chief, both
Assistant Chiefs, the Principal Assistant to the Chief, three Deputy Chiefs, the IAFF Local 42
Union President, and the IAFF Local 3808 Union President. All participated in an interview
except the IAFF Local 3808 Union President, who did not respond to the request.
The interviews began with an overview of the purpose of the session, ground rules and an
explanation of organizational culture using the iceberg metaphor. Interviews were conducted
by Debra Jarvis, a 3rd party consultant.
Site Visits
Site visits were conducted for the purpose of gathering observations of the environment of
KCFD fire stations, offices, and other facilities, and interactions of personnel. Field notes were

written by the consultant during and immediately following the site visit. Notations were also
made about the physical facility environment, as well as how personnel interacted with the
consultant and each other in their respective facilities. Seventeen (17) facilities were included in
the site visits. Eleven (11) were fire stations. The other site visits were to facilities with
administrative offices, dispatch, fleet maintenance, and training. Some site visits were
conducted by making an appointment, others were done with no advance notice.
Study Participation in Discussion Groups, Interviews, and Site Visits

From April 25, 2022, through October 10, 2022, A total of 231 people participated in the
discussion groups, interviews and/or facility site visits as part of the KCFD Culture Assessment.
Table 8: Total Participants in Discussion Groups, Interviews, and Site Visits
Women 29%
Men 71%
BIPOC 26%
White 74%
Table 8 above illustrates the percentages of participation in discussion groups, interviews, and
site visits, in terms of gender and race77. Twenty-nine percent (29%) were women, seventy-one
percent (71%) were men, twenty-six (26%) were Black, Indigenous or People of Color (BIPOC)
and seventy-four (74%) were White.
Participation in Discussion Group and Interviews

Twenty-two (22) discussion groups were conducted and nineteen (19) interviews totaling 142
participants. Originally twelve discussion groups were planned, however, due to scheduling
challenges and allowing for on-duty participation, additional groups were added. The
compositions of the discussion groups were designed to place people in affinity groups where
open discussion was more likely. These types of groups were Administration, Battalion Chiefs,
Black, Indigenous & People of Color (BIPOC), Captains, Dispatchers, Emergency Operations Line
77

Fire/EMS, Pittman Schedule personnel, EMS Single Role, Middle Management, Lesbian Gay Bi-
Sexual Transgender Queer, and other non-binary gender identities (LGBTQ+), Support Services,
and Women. Discussion group and interview participants were aggregated in this report to
ensure anonymity.
Table 9: Participants in Discussion Groups and Interviews

Women 35%
Men 65%
BIPOC 27%
White 73%
Table 9 above illustrates the percentages of participation in discussion groups and interviews in
terms of gender and race.78 Of these, thirty-five percent (35%) were women, sixty-five percent
(65%) were men, twenty-seven percent (27%) were BIPOC, and seventy-three percent (73%)
were White.
78

Participation in Site Visits
A total of 89 individuals were present during the consultant’s site visits.
Table 10: Participants in Site Visits
Women 19%
Men 81%
BIPOC 25%
White 75%
Table 10 above illustrates the percentages of participation in site visits in terms of gender and
race.79 Of these, nineteen percent (19%) were women, eighty-one percent (81%) were men,
twenty-five percent (25%) were BIPOC and seventy-five percent (75%) were White.
79

Results of Intercultural Competence Assessment of
KCFD Union and Management Senior Leaders
A summary of the results of the intercultural competence of senior leaders in management, and
senior leaders in the two primary labor unions, can be found in this section80. Appendix B
contains the complete Intercultural Development Inventory®(IDI®) group profile reports.
IDI® Terminology
The IDI® results are numerically quantified along a continuum of five orientations that range
from the more monocultural orientations of Denial and Polarization to the transitional mindset
of Minimization to the more intercultural or global mindsets of Acceptance and Adaptation.
The following describe the five orientations in more detail:81
- Polarization is an orientation that views cultural difference in terms of “us” and “them.”
differences.
80
Due to promotions, retirements, personnel role changes, of few individuals in these groups have changed since
the IDI® was initially administered and debriefs were done.
81
Olney, MD, p. 39.

The IDI® group profile provides a baseline metric for measuring future progress of each group’s
intercultural competence skill development. The group profile is reported in four ways:82
- Perceived Orientation (PO) reflects where your group places itself along the Interculture
Development Continuum (IDC). This is how the group sees itself when interacting with
culturally diverse individuals and groups.
- Developmental Orientation (DO) indicates your group’s primary or actual orientation
toward differences and commonalities as assessed by the IDI® instrument. The DO is the
perspective your group most likely uses in situations where cultural differences and
commonalities need to be bridged.
- Orientation Gap (OG) is the difference between the group’s PO and DO. The larger the
gap, the more likely the group may misread how effective they are in bridging across
cultural differences. A difference of seven points or more is considered a meaningful
gap. Also, the larger the gap, the more surprised the group may be by the discrepancy
between their PO and DO.
- Leading Orientation (LO) is the next steps to take in further development of
intercultural competence.
Intercultural skill development reflects the degree to which cultural differences and
commonalities in values, expectations, beliefs, and practices are effectively bridged to achieve
an inclusive environment. Success in achieving goals is better served when one can more deeply
understand culturally-learned differences, recognize commonalities between one’s self and
others, and act on this increased insight in culturally appropriate ways that facilitate goal
accomplishment among diverse individuals and groups.83
82
Olney, MD, p. 39.

IDI® Results Executive Management Team
All 15 members of the KCFD Executive Management Team completed the Intercultural
Development Inventory®(IDI®).
Perceived versus Actual Intercultural Development

The perceived orientation (PO) was 122.97 for the Executive Management Team, while their
developmental orientation (DO) was 98.75.
Figure 1: Orientation Gap (OG) of the KCFD Executive Management Team

Note: The data is not in percentages
Figure 1 above illustrates an orientation gap of 24.22 points between the perceived and actual
intercultural development of the group. This Perceived Orientation (PO) score that is higher
than the Developmental Orientation (DO) score indicates this group overestimated their level
of intercultural competence and may be surprised their DO score is not higher.
Range of Intercultural Development

The range of developmental orientations for the Executive Management Team indicates that
approximately thirteen percent (13.3 %) are in Acceptance, seventy-three percent (73.3%) are
in Minimization, and thirteen percent (13.3%) are in Polarization.
Figure 2: Range of Developmental Orientations Within the KCFD Executive Management Team

Figure 2 above illustrates the range of developmental orientations within the group. 84
The range of Developmental Orientations, from Polarization through Acceptance within the
group reflects a lack of consensus on how the group makes sense of and adapts behavior to
cultural differences and commonalities. The group has both monocultural mindsets and
intercultural mindsets at work. Without targeted, intercultural competence development of the
members of the group, it is likely the group will find it difficult to achieve a shared vision and
focus for meeting objectives in a culturally diverse environment.85
Participation of Individuals in IDI® Debriefs

There was high participation from the KCFD Executive Management Team in the individual
debriefs with the QA to discuss their individual results and review how to get started on their
Individual Development Plans (IDP). Individual IDI® scores and IDPs were only provided to
individuals participating in individual debrief sessions.
84
Hammer, Mitchell R., Ph.D. (2009). The Intercultural Development Inventory (IDI v3). Olney, MD: IDI, LLC
85
Olney, MD, p. 41.

IDI® Results DEI Leadership Team Work Group
Fourteen (14) of the fifteen (15) members of the DEI Leadership Team Work Group completed
the IDI®.

The perceived orientation (PO) was 125.56 for the DEI Leadership Team Work Group, while
their developmental orientation (DO) was 104.00.
Figure 3: Orientation Gap (OG) of the DEI Leadership Team Work Group

The range of developmental orientations for the DEI Leadership Team Work Group indicates
that approximately twenty-one percent (21.4%) are in Acceptance, seventy-one percent
(71.4%) are in Minimization, and seven percent (7.1%) are in Polarization.
Figure 4: Range of Developmental Orientations Within the DEI Leadership Team Work Group

Figure 4 above illustrates the range of developmental orientations within the group.86 The
range of Developmental Orientations, from Polarization through Acceptance within the group
reflects a lack of consensus on how the group makes sense of and adapts behavior to cultural
differences and commonalities. The group has both monocultural mindsets and intercultural
mindsets at work. Without targeted, intercultural competence development of the members of
the group, it is likely the group will find it difficult to achieve a shared vision and focus for
meeting objectives in a culturally diverse environment.87

There was high participation from the DEI Leadership Team Work Group in the individual
Individual Development Plans (IDP). Individual IDI® scores and IDPs were only provided to
individuals participating in individual debrief sessions.
86
Hammer, Mitchell R., Ph.D. (2009). The Intercultural Development Inventory (IDI v3)
Olney, MD: IDI, LLC
87
Olney, MD, p. 41.

IDI® Results IAFF Union Local 42 Senior Leader’s Team
Seventeen (17) of the twenty-four (24) members of the IAFF Union Local 42 Senior Leader’s
Team completed the IDI®.

The perceived orientation (PO) was 122.10 for the L42 Senior Leader’s Team, while their
developmental orientation (DO) was 97.34.
Figure 5: Orientation Gap (OG) of IAFF Union L42 Senior Leader’s Team

The range of developmental orientations for the L42 Senior Leader’s Team indicates that nearly
12% (11.8%) are in Acceptance, nearly seventy-seven percent (76.5%) are in Minimization,
nearly 6% (5.9%) are in Polarization, and nearly six percent (5.9%) are in Denial.
Figure 6: Range of Developmental Orientations Within the IAFF Union L42 Senior Leaders Team

Figure 6 above illustrates the range of developmental orientations within the group.88 The
range of Developmental Orientations, from Denial through Acceptance within the group
reflects a lack of consensus on how the group makes sense of and adapts behavior to cultural
differences and commonalities. The group has both monocultural mindsets and intercultural
mindsets at work. Without targeted, intercultural competence development of the members of
the group, it is likely the group will find it difficult to achieve a shared vision and focus for
meeting objectives in a culturally diverse environment.89

There was low participation from the L42 Senior Leader’s Team in the individual debriefs with
the IDI® QA to discuss their individual results and review how to get started on their Individual
Development Plans (IDP). Individual IDI® scores and IDPs were only provided to individuals
participating in individual debrief sessions.
88
Hammer, Mitchell R., Ph.D. (2009). The Intercultural Development Inventory (IDI v3)
Olney, MD: IDI, LLC
89
Olney, MD, p. 41.

IDI® Results IAFF Union Local 3808 Senior Leader’s Team
Eight (8) of the nine (9) members of the IAFF Union Local 3808 Senior Leader’s Team completed
the IDI®.

The perceived orientation (PO) was 122.37 for the L3808 Senior Leader’s Team, while their
developmental (actual) orientation (DO) was 100.95.
Figure 7: Orientation Gap (OG) of the IAFF Union L3808 Senior Leader’s Team

The range of developmental orientations for the L3808 Senior Leader’s Team indicates that
nearly thirty-eight percent (37.5%) are in Acceptance, twenty-five percent (25%) in
Minimization, and nearly thirty-eight percent (37.5%) are in Polarization.
Figure 8: Range of Developmental Orientations Within the IAFF L3808 Senior Leader’s Team

Figure 8 above illustrates the range of developmental orientations within the L3808 Senior
Leader’s Team. The wider range of Developmental Orientations, from Polarization through
Acceptance within the group reflects a lack of consensus on how the group makes sense of and
adapts behavior to cultural differences and commonalities. The group has both monocultural
mindsets and intercultural mindsets at work. Without targeted, intercultural competence
development of the members of the group, it is likely the group will find it difficult to achieve a
shared vision and focus for meeting objectives in a culturally diverse environment.90
Participation in IDI® Debriefs

There was moderate participation from the L3808 Senior Leader’s Team in the individual
Individual Development Plans. Individual IDI® scores and IDPs were only provided to individuals
participating in individual debrief sessions.
IDI® Leading Orientation Results

The Leading orientation results are the next steps needed for further development of
intercultural competence. The Leading Orientations for all four of KCFD Leadership and Union
groups are Acceptance through Adaptation. For growth in intercultural competence to occur, all
four groups need to be focused on both increasing cultural self-awareness and learning culture
general and culture specific frameworks to more deeply understand patterns of difference that
emerge in interaction with people who are from other cultures. In addition, developing skills in
the Acceptance orientation involves the capability to make moral and ethical judgments in ways
that take into consideration other cultural values and principles as well as one’s own cultural
values and principles. As the group begins to more fully recognize and appreciate cultural
differences, it will be better positioned to look for ways to shift cultural perspective and adapt
behaviors around cultural differences.91 This would allow for creating a more inclusive
environment that better serves the community and members of KCFD.
90
Olney, MD, p. 41.
91
Olney, MD, p. 41.

Results from Discussion Groups, Interviews and Site Visits
Qualitative data was collected using discussion groups, interviews, and observations from site
visits. Because strict research and investigative report methodologies were not used, it is
important to note that the results reported from the study participants are perceptions and
opinions that have not been systematically verified. The primary and most consequential
perceptions of KCFD personnel, according to the consultants, are reported as either assets or
barriers under the following four categories:
• Accountability
• Physical Safety
Accountability Results
Accountability Assets
Accountability assets are strengths in KCFD’s culture that can be leveraged to disrupt
organizational cultural norms that are inconsistent with enforcement of written rules, policies,
and professional standards. The following are paraphrased summaries of the perceptions and
opinions of participants regarding assets to accountability that surfaced during discussion
groups, interviews, and site visits:
1. Professional Development for all positions in KCFD is strongly desired – though it is not
readily accessible.
2. It is widely understood that first line supervisors should hold personnel accountable for
professional conduct, even if it is not practiced. The new 2-week Captains “boot camp”
training program is appreciated.
3. The KCFD Fire Training Academy emphasizes the following to new recruits every day,
“Accountability feels like an attack when you’re not ready to acknowledge how your
behavior harms others.”

4. There are a few first line supervisors and mid-level management who are counter-
culture – they hold personnel accountable for professional conduct and training by
building trust and respect over time that inspires compliance.
Accountability Barriers
Accountability barriers are weaknesses in KCFD’s culture that prevent consistent enforcement
of written rules, policies, and professional standards. The following are paraphrased summaries
of the perceptions and opinions of participants regarding barriers to accountability that
surfaced during discussion groups, interviews, and site visits:
1. IAFF Unions prevent supervisor accountability – a strong perception exists that the IAFF
Unions prevent supervisors from holding personnel accountable for following rules and
regulations. When officers file charges, there is peer pressure to drop the charges. If
charges are not dropped, officers believe they will be penalized by being ostracized,
blocked from career advancement, and labeled as a “bad guy.”
2. IAFF Unions successfully protect wrongdoers – concerns were expressed that the IAFF
Union attorney prevails in hearings when supervisors file charges, therefore it’s not
worth holding personnel accountable by filing charges (also see #1 above).
3. IAFF Unions prevent training – a strong perception exists that the IAFF Unions have
prevented officer training because of its demands for overtime pay for certifications
that involve career advancement.
4. Lack of didactic field training system – concerns were expressed that fire-related field
training is non-existent. The online training system is ineffective because less senior
KCFD members are being told to complete the training for some who won’t go online.
5. The seniority system of promotions and work assignments negates the evaluation of
skills and readiness of personnel for key assignments. For example, concerns were
expressed that the IAFF Union’s CBA requirement of pure seniority for Fire Academy
instructors is not working. People bid the instructor positions 1-2 years before
retirement and only stay 1-2 years, creating a lack of continuity for training new
employees.
6. Lack of field support for EMS from some fire crews – ambulance personnel are hesitant
to request that fire crews remain with them for the duration of the emergency call. Fire

crews staying until the ambulance is enroute to the hospital is a standard precaution
elsewhere in case additional assistance is needed for a patient whose condition
deteriorates or who becomes disruptive.
7. Unprofessional correspondence – concerns were expressed about disrespectful,
unprofessional emails from firefighters to KCFD personnel in civilian roles. The emails
are copied to Captains and Chiefs who do not address the inappropriate
correspondence.
8. Unwieldy system of interdepartmental communications – accountability is hampered by
the current system of interdepartmental communication in the form of “Ten-Two”
memos. Personnel who are fire or EMS station personnel receive so many they ignore
them. Personnel who are in civilian or administrative positions ignore them because
most only pertain to fire station personnel.
9. Unwieldy system of operational and administrative rules and regulations – the current
General Operating Guidelines (GOGs) and General Administrative Guidelines (GAGs) are
not organized in a user-friendly format. Most study participants admitted to not being
familiar with many GAGs and GOGs.
Physical Safety Results

Physical Safety Assets
Physical safety assets are strengths in KCFD’s culture that can be leveraged to disrupt
organizational cultural norms that are inconsistent with written rules, policies, and professional
standards related to the physical safety of KCFD personnel and/or community members. The
following are paraphrased summaries of the perceptions and opinions of participants regarding
assets to physical safety that surfaced during discussion groups, interviews, and site visits:
1. It is widely accepted that everyone is responsible for safety, even if it is not practiced.
2. The implementation of minimum KCFD Training Academy certifications of Missouri
Firefighter I and Firefighter II standards is a positive step.
3. Connecting new recruits in the Fire Academy with specialized rescue crews early on,
prepares the recruits for training they will receive later.

4. Creating a report that quantifies repair costs for accidents involving fire and EMS
vehicles is a positive.
5. Driver training is in process.
Physical Safety Barriers

Physical safety barriers are weaknesses in KCFD’s culture that prevent consistent enforcement
of written rules, policies, and professional standards related to the physical safety of KCFD
personnel and/or community members. The following are paraphrased summaries of the
perceptions and opinions of participants regarding barriers to physical safety that surfaced
during discussion groups, interviews, and site visits:
1. Preferential treatment in staffing – ambulances are shut down to staff fire trucks even
though 80% of calls for service are medical, not fire related.
2. Magnifying unsafe driving practices – several fire stations or facilities display pieces of
wrecks and/or have accident plaques on the wall with names of drivers on them.
3. Exceeding safe driving speeds – there is concern over a lack of discipline for violating
safe driving rules.
4. Violation of protocols for initial dispatch to emergencies – pumpers and trucks go to
fires without being dispatched, and/or leave one emergency scene to respond to
another without authorization.
5. Lack of safety protocols for aggressive and abusive patients – concern for the safety of
ambulance personnel when patients are abusive and aggressive.
6. Bullying and hazing are common practices – personnel describe instances that require
them to eat fast and physically wrestle for who does kitchen clean-up. Some personnel
report having been physically grabbed in sexually inappropriate ways.
7. Lack of enforcement of personal protective equipment (PPE) protocols - Only about 50%
wear self-contained breathing apparatus (SCBA) as required.
8. Lack of enforcement of seatbelt requirements – pumpers can use “cheaters,” that mimic
seatbelts being fastened, so the seatbelt alarm does not go off.

9. Inability and/or resistance to discuss line of duty deaths (LODD) and injuries to
determine lessons learned – LODDs and serious injuries of KCFD members are retold in a
way that eulogizes them.
Psychological Safety Results

Psychological Safety Assets
Psychological safety assets are strengths in KCFD’s culture that can be leveraged to disrupt
organizational cultural norms that are inconsistent with written rules, policies, and professional
standards related to the psychological safety of KCFD personnel and/or community members.
The following are paraphrased summaries of the perceptions and opinions of participants
regarding assets to psychological safety that surfaced during discussion groups, interviews, and
site visits. The story in items one through two below is paraphrased and used with permission
from the individual who relayed the story to the consultant.
1. Moral courage in the face of negative peer pressure – one individual relayed a story
about a time when he stood up to bullying behavior designed to keep him from bidding
one of the more prestigious, busy fire stations. He did not back down, and engaged
them in a difficult conversation. He negotiated a test period agreement of one year that
resulted in him not only keeping his assignment, but also in changing their minds about
his competency and readiness for a busier fire station.
2. The conduct exhibited by the individual in the above story is counterculture to the social
contract of peer pressure governing behavior in KCFD. It does, however, demonstrate
that moral courage creates possibility in the face of adversity.
Psychological Safety Barriers

Psychological safety barriers are weaknesses in KCFD’s culture that prevent consistent
enforcement of written rules, policies, and professional standards related to the psychological
safety of KCFD personnel and/or community members. The following are paraphrased
summaries of the perceptions and opinions of participants regarding barriers to psychological
safety that surfaced during discussion groups, interviews, and site visits:

1. Bullying, intimidation, and shaming-type behaviors – participants from fire stations and
the Communications Center reported that people are fearful of retaliation for
expressing opinions that are against cultural norms. Examples were given of retaliation
for disagreeing with seniority-based assignments or promotions, calling out safety
violations, calling out discriminatory behaviors, and suggesting dynamic staffing models.
2. Excluding new personnel – participants reported that new recruits are discouraged from
expressing their opinions for the first five years.
3. Unprofessional conduct by KCFD fire personnel toward other area Fire Departments –
one example given was where a KCFD crew responded to another agency’s fire, did not
follow proper incident management protocols, and had to be escorted off the
emergency scene by the State Police. KCFD crew members subsequently sent an
inappropriate photo and negative message. This “donut story” has been told and retold
nationwide, as well as locally. While this story is over 20 years old, it retains a sense of
folklore designed to reinforce KCFD’s perceived pre-eminence as aggressive
firefighters.92
4. Nepotism and preferential treatment – concerns were expressed that new personnel
who have friends or family working in KCFD receive better assignments and more
protections from retaliatory behaviors.
Diversity, Equity, and Inclusion Results

Diversity, Equity, and Inclusion Assets
DEI assets are strengths in KCFD’s culture that can be leveraged to disrupt organizational
cultural norms that are inconsistent with creating a sense of belonging, where individual and
groups of employees feel valued for their divergent perspectives and are empowered to co-
create ethical and professional norms related to the fair and equitable treatment of ALL KCFD
personnel and/or community members. The following are paraphrased summaries of the
perceptions and opinions of participants regarding assets to diversity, equity, and inclusion that
surfaced during discussion groups, interviews, and site visits:
92
This story’s relevance to KCFD’s culture is more fully explained under “Stories and Symbols” in the Thematic
Culture Assessment section of this report.

1. Representation matters – several participants urged KCFD to send women and Black,
Indigenous, People of Color (BIPOC) to do KCFD recruitment and to work toward more
diversity with KCFD instructors, especially at the Fire Academy.
2. The public is welcomed at most fire stations and facilities – examples of hospitality to
KCMO citizens were passing out water on hot days and airing up the tires on children’s
bicycles. Another example was including a local man who had a developmental disability
in holiday celebrations and inviting him to dinner periodically.
3. Recognizing institutional racism – a few participants reported they were learning about
disparities and inequities from their family members at home that was helping them
recognize how it affects their decisions and treatment of minority members of KCFD.
4. Creating systems to address community needs – in 2010 KCFD won an International
Award for Fire Service Excellence for a Human Services program – a grant-funded
community health nurse and a medical social worker provided ambulance patient
follow-ups. The program was later handed off to United Way. KCFD now continues
outreach to the houseless community in the form of Community Paramedics.
5. New, updated EMS training equipment and monitors purchased – participants were
especially appreciative because the perception was only fire and rescue vehicles
received new equipment. Previously, fire equipment funding took priority, so EMS did
not feel they were heard regarding essential equipment needs.
6. Community outreach – a few personnel who are speaking to young folks in school are
learning what may attract young people to apply for work at KCFD.
7. KCFD outreach expanded to LGBTQ+ community – participation in the Pride Parade the
last two years is appreciated by KCFD members in the LGBTQ+ community.
Diversity, Equity, and Inclusion Barriers

DEI barriers are weaknesses in KCFD’s culture that are inconsistent with creating a sense of
belonging where individual and groups of employees feel valued for their divergent
perspectives and are empowered to co-create ethical and professional norms related to the fair
and equitable treatment of ALL KCFD personnel and/or community members. The following are
paraphrased summaries of the perceptions and opinions of participants regarding the barriers

to diversity, equity, and inclusion that surfaced during discussion groups, interviews, and site
visits:
1. Blocking station assignments – an informal system violates department bidding policies.
Members with higher seniority are recruited to block unwanted personnel from being
awarded an assignment.
2. Inappropriate jokes and slurs – most personnel reported that making fun of differences
(e.g., race, gender, sexual orientation, etc.) is commonplace in fire stations. Several
believe that everyone experiences racial and sexual harassment in KCFD. Several
indicated they would not want their family members to work at KCFD due to the
negative rhetoric about women.
3. Discussions about diversity, equity, and inclusion – personnel indicated that their
supervisors avoid talking about it.
4. New personnel coming into a fire station are ignored – they are expected to initiate
conversation.
5. Disparate treatment between KCFD divisions – civilian employee participants believe
they have less opportunities than Fire or Medical personnel. Civilian personnel feel less
included than other KCFD members.
6. IAFF Unions favor Fire over EMS – many concerns were expressed that medical
personnel assigned to ambulances were treated like 2nd class citizens by personnel
assigned to fire vehicles.
7. Training opportunity inequities – concerns were expressed that while fire station
personnel can attend trainings on duty, dispatchers cannot.
8. Lack of unified KCFD identity – different fire stations, different shifts, and different
divisions have different logos and uniforms, and they operate differently.
Diversity, Equity, and Inclusion Barriers to Women and BIPOC Personnel

The following are paraphrased summaries of the perceptions and opinions of KCFD women and
BIPOC personnel regarding the barriers to diversity, equity, and inclusion that surfaced during
discussion groups, interviews, and site visits:
1. Gender discrimination and harassment – women believe that if they file harassment
charges, they will be ostracized, and career advancement blocked. Some fire personnel

refuse to work with a woman. One reported that she checked her PPE three times a day
to make sure it was not sabotaged (they put water in her boots when it was cold and
bled her air pack tank dry). Another reported that she had been sexually assaulted but
was afraid to report it.
2. Racial discrimination and harassment – BIPOC personnel believe they are required to
conform to standards of whiteness. Black men are hesitant to say anything for fear of
being labeled an angry black man.
3. Disparate treatment of KCMO Citizens – concerns were expressed that in low-income
areas, on fire scenes, firefighters tear houses up more than necessary and use it like a
training exercise. In more affluent neighborhoods, firefighters put plastic over couches
and may not chop a hole in the roof.
4. Discrimination goes unreported – one BIPOC firefighter reported that if he’s bidding a
spot where the fire crew is all white, he would have to ask everyone there if it’s okay
before bidding. He said they would make his life miserable if he bid without their
unofficial approval. When asked why he did not report the problem, he said it was not a
hill he wanted to die on.
5. Taboo topics – some members of the LGBTQ+ community, said they did not feel
comfortable talking about their family at work.
6. Gender assignment limitations – several facilities do not have separate women’s locker
rooms and showers (Stations 34, 17, 30, and the Fire Academy). Women reported being
walked in on when using makeshift facilities.
Diversity, Equity, and Inclusion Recommendations from Discussion Groups

Recommendations from Discussion Groups for DEI Recruitment and Hiring
The following statements are representative of recommendations and opinions from the
discussion groups, interviews and site visits related to recruitment and hiring:
1. Give new hires six months for residency in KCMO after they begin work. Former military
personnel often don’t have permanent addresses when they are first hired.
2. Recruit more actively in several school districts and have more programs like Manual
Tech.

3. Develop a standard onboarding process for all KCFD divisions.
4. Hire more single role EMS personnel to increase gender diversity.
5. Create a KCFD recruitment department. It is too much to have the Fire Marshal in
charge of recruitment.
6. For the Candidate Physical Ability Test (CPAT) offer the following:
a. Teach alternate techniques for completing CPAT.
b. Provide different practice sessions for affinity groups such as women-only
practice sessions or BIPOC-only practice sessions.
c. Hold more practice sessions with mentors and allow six months to pass the test.
(New hires who already have their EMT and/or Paramedic certifications start at a
later date at the Fire Academy and do not have the benefit of the additional
physical conditioning and practice for CPAT that is experienced by those who
start sooner in the EMT and Paramedic certification programs.)
7. Recruit minority paramedics in high school and have them on payroll while in medic
school. This apprentice program could cover living expenses and would build a pipeline
of diverse medics.

Thematic Culture Assessment
While there are significant challenges that need to be addressed in KCFD’s organizational
culture related to physical and psychological safety, accountability and diversity, equity, and
inclusion, it is also important to note that KCFD operates within the larger KCMO city services
culture. The challenges within KCFD, the largest city service, are also an opportunity to develop
a safer more inclusive organizational culture that can pave the way for transforming other city
services with similar challenges related to accountability, safety, diversity, equity, and inclusion.
There is a famous quote from management consultant and author, Peter Drucker, “Culture eats
strategy for breakfast.” Another expression often heard is, “Culture trumps training and policy
every time.” By this, we mean that no matter what strategic initiatives are implemented, such
as training or revised policies, the organizational culture will override it every time in favor of
status quo. That’s why the metaphor of an iceberg is used to describe culture. While you can
see a small section above the water, the larger part of culture is invisible below the surface. The
section above the water is what the organization says are the appropriate ways to conduct
business, treat customers, and how employees are to interact with each other. The section
below the water is how business is really conducted in how it treats its customers, as well as
how employees treat each other. To solve difficult problems, it’s essential to identify the
barriers to change in the culture from the perspective of individual KCFD members, as well as
the assets. This was done in the results section of the report in terms of the primary themes of
accountability, safety, and diversity, equity, and inclusion.
To understand the institutional barriers and assets to culture transformation in KCFD, it’s
helpful to examine them through the following adaptation of the Johnson and Scholes Cultural
framework components:93
93

1. Power Structures and Control Systems
2. Traditions and Routines
3. Stories and Symbols
These aspects of organizational culture reinforce beliefs and behaviors that maintain status quo
in organizational culture. Countercultural assets are also identified that can be used to disrupt
and ultimately transform the culture to be more consistent with KCFD’s aspirational vision of
creating a safer, more diverse, inclusive, and equitable workplace where everyone holds each
other accountable.
Power Structures and Control Systems

Two key elements of culture are power structures and control systems. Power structures can be
formal or informal and determine where decision-making power truly lies. There are generally
several control systems such as staffing, promotions, performance reviews, etc. that are put in
place to determine the standards for quality or efficiency. These systems can, and should
change as societal or organizational needs change.94
There is an old saying, “with great power comes great responsibility.” In the case of public
safety services such as KCFD, this means that those in power hold great responsibility, not only
to the personnel in KCFD, but also to the community members and businesses they serve.
Keeping personnel and the public as safe as possible by using best practices in personnel
management requires a clear understanding of decision-making authority within KCFD.
Accountability is a foundational management principle that typically provides structures and
systems delineating where and with whom these responsibilities lie.
The over-arching perceptions of KCFD participants in this culture study are that the two IAFF
Unions prevent KCFD Management from holding personnel accountable for compliance with
policies and practices because IAFF Unions they have more power and influence in daily
94

operational practices, as well as City politics than KCFD Management. The IAFF Unions have
accomplished this by codifying key organizational systems such as hiring, training, promotions,
personnel assignments, and operational staffing in the IAFF Union Collective Bargaining
Agreements (CBAs). Only the City Manager, the Mayor and the City Council have the authority
to approve the language written in the CBAs of IAFF Local 42 and IAFF Local 380895.
It appears the interests of the IAFF Unions in protecting their contract may conflict with the
city’s responsibilities of serving the best interests of the citizens. They seem to enjoy the
benefits of favorable policies and practices codified in their CBAs, but do not share the
responsibilities for managing and maintaining a harassment-free, equitable workplace. This also
has an impact on effectively stewarding taxpayer dollars.
While there are common interests between the City and the IAFF Unions, Table 11 below
illustrates the difference between the responsibilities of the City and the responsibilities of the
Unions.
Table 11: City Responsibilities versus Union Responsibilities
City Responsibilities Union Responsibilities

- Serve the best interests of - Serve the best interests of
citizens and employees union members
- Protect citizens and employees - Protect the Union Collective
by providing a safe community Bargaining Agreement
and workplace
- Provide a fair/equitable - Provide protection for union
workplace and services to members via grievance
community process
- Fiduciary duty to steward - Ensure the highest wages and
taxpayer dollars effectively benefits possible for union
members
95
IAFF Local 42 represents 1,113 KCFD personnel and IAFF Local 3808 represents 73 KCFD personnel. There are
currently 1,240 personnel in KCFD.

Over 20 years ago, KCFD became the first fire department in the country to implement a unique
system of Union and Management leaders jointly managing the Fire Department. Briefly, IAFF
Union leaders and Fire Department management personnel on various committees make the
majority of decisions regarding major programs, policies, and practices in KCFD. The lead
Steering Committee oversees these committees as well as occasional Special Projects
committees. The Steering Committee is comprised of eight IAFF Local 42 members, three IAFF
Local 3808 members and three KCFD Management members. Each of these three groups (two
IAFF Unions and Management) has the sole authority to determine who will represent them on
the Steering Committee. There are currently 10 active Labor Management Committees
governing all the primary systems in KCFD:
1. Medical, Protocols & Equipment Committee (MPEC)
2. Human Resources
3. Professional Development
4. Daily Staffing
5. Modified Duty
6. Health, Wellness, and Safety
7. Operations
8. Communications
9. Technical Services
10. Diversity, Recruitment, and Retention
Each of these committees are equally chaired by a member of each of the three entities (two
unions and management), however Deputy Chiefs who are not in the Union shoulder most of
the work. Committee members are appointed by their respective unions and volunteer their
committee time, when not on duty, on behalf of their Union. It has been found, however, that
managing an organization of nearly 1,240 employees by committees can be a slow, inefficient
process when different interests and/or responsibilities go unresolved.
This arrangement of management by committee has resulted in significant confusion among

KCFD personnel over whether they work for the IAFF Local Unions or whether they work for the

city.96 This results in a perception of competing loyalties that affects the support that
personnel give to the City and/or Fire Department initiatives and priorities. One example of this
is the lack of Professional Development training and education coming from the Fire Academy.
One Fire Academy staff member said that, while he appreciates the great Union pay and
pension benefits, the Union CBA requirement of pure seniority for bidding for Fire Academy
instructor positions is not working because people bid it 1-2 years before they retire, so these
positions are a revolving door.
Another example of challenges with promotion is the requirement that firefighters serve a
minimum of 10 years before they can test for and be promoted to Captain, which is the first
level of supervision in KCFD Fire and EMS operations. This prevents prior experience and/or
education from being considered. It also assumes that KCFD experience is a good teacher. With
the lack of professional development, that may be questionable. In addition, the dominant
perception among KCFD study participants is that only experience at the busier fire stations is
considered valid, so those assigned to stations other than those in Midtown are at a
disadvantage for being promoted. The disadvantage is due to a perception that unless you have
fireground experience from the busier fire stations, you are not qualified. Given the historic lack
of women and minorities at the busier stations, this could be a factor in the low numbers of
women and minorities in the Captain and Chief Officer ranks.
Another dominant perception of KCFD study participants is that current staffing methods
prioritizing fire apparatus over ambulances creates burn-out and unnecessary overtime. The
IAFF Union CBAs determine how many people serve in the majority of KCFD positions. They also
control how many are assigned to fire and medical vehicles, as well as how many fire and
medical vehicles must be in service at any given time. This methodology prioritizes staffing fire
apparatus over ambulances even though medical calls account for over 80% of all calls for
service. This also creates additional overtime costs, as well as 2-3 hours of senior management
time every day calling in off-duty personnel to staff ambulances. Even though norms in other
fire departments in the region might be to go from four to three on a fire apparatus when
96
KCFD personnel volunteer their committee time, when not on duty, on behalf of their Union.

needed for ambulance staffing, KCFD Management does not have that option. They also do not
have the option to use the common industry practice of dynamic staffing and/or the use of
part-time personnel for apparatus staffing during peak service times.
Historically, the purpose of fire department Unions has been to serve their members by
negotiating better wages, hours, and working conditions. On the other hand, Management’s
responsibility is not only to the members of the fire department, but also to the citizens they
serve. While, at times the Union/Management relationships may be contentious, this system
best serves the community when they are in balance.97 When the power and influence of
Management and the Union is out of balance, the community and employees suffer because it
drains the organization’s energy and resources resulting in less productivity and an inability to
accomplish goals and objectives98.
The perceptions of the majority of KCFD participants in the study are that the IAFF Unions run
the Fire Department, not Management. Given KCFD’s upcoming Strategic Planning process,
there is an opportunity to examine numerous organizational systems, the organizational
structure, and the system of managing KCFD via Labor/Management Committees.
Routines & Rituals

Two more key elements of organizational culture are Routines and Rituals. These are the
regular, everyday ways of behaving that have been normalized into routines. These routines
embody the beliefs about what should happen in different situations and are often viewed as
sacred traditions to be honored. An example of this is how personnel are tested and selected
for hiring and promotions. Rituals like promotion badge-pinning or retirement ceremonies,
honor guards posted at firefighter funerals, or standing when a chief officer walks into a room,
are positive examples of routines and rituals. There are also negative examples of routines and
97
98
Lorber, Jo-Ann (2018, January). Executive Officer Leadership: Cultivating Effective Union-Management
Relationships, International Association of Fire Chiefs ICHIEFS Article.
https://www.iafc.org/iCHIEFS/iCHIEFS-article/executive-officer-leadership_cultivating-effective-union-
management-relationships

rituals such as hazing practices used on new personnel or regular behaviors of bullying,
shaming, or blaming by coworkers and/or supervisors.
The dominant perceptions of KCFD members are that the two IAFF Unions prevent KCFD
Management from holding personnel accountable for compliance with administrative and
operational policies and practices because IAFF Unions they have more power and influence in
daily operational practices, as well as City politics than KCFD Management.
The discussion group and interview results indicate a strong perception that the IAFF Unions
actively prevent management from holding personnel accountable for professional conduct
through intimidation and fear tactics.
Many male and female KCFD members who were White and BIPOC shed tears and/or were
visibly distraught in discussion groups and interviews as they relayed accounts of people who
had been ostracized and ridiculed for not supporting Union or dominant group positions, or
who had tried to talk about what they perceived as many instances of unsafe practices or
harassment related to race or gender.
Physical and Psychological safety are inextricably intertwined in KCFD. Most study participants
reported that basic safety practices are routinely disregarded, such as wearing full protective
equipment, wearing seatbelts, regularly using an Incident Management structure, driving at a
speed where the vehicle is under control, and not placing apparatus in dangerous positions.
If psychological safety were present, individual KCFD members would be able to engage in
discussions about how to end unsafe practices. The overwhelming perception is that it is
dangerous to express dissenting views. Many said they had experienced or witnessed bullying,
harassment, and/or intimidation and believe they must protect themselves in some way. The
few individuals who are not afraid to say something are often ridiculed, called names, and
negatively stereotyped (e.g., lazy, or not good at their job).

One individual reported that he keeps his mouth shut because he doesn’t want to be the guy
that’s ostracized and not sure if his crew will back him up on the next emergency call.
One of the ways that IAFF Unions in KCFD may have been able to exert more power and
influence than KCFD Management is through informal, routine, everyday behaviors that have
the effect of excluding individuals who support Management rather than the Union. Some of
the ways this occurs, according to the perceptions of discussion group and interview
participants, is through exclusionary behaviors including shunning, harassment, discrimination,
ridicule, sarcasm, and excessive criticism. They said these are commonplace behaviors
throughout KCFD. They mentioned situations in which numerous Fire Department personnel
have filed lawsuits and which the city has paid out millions of dollars in claims to settle because
officers did not hold people accountable for inappropriate conduct.
Normalization of Deviance is a term that describes how bad behavior becomes acceptable.99 It
happens gradually over a period of time when the bad behavior is not corrected or does not
have a negative consequence. People develop a tolerance for the unacceptable and it becomes
accepted as normal behavior. Chief Marc Bashoor, former chief of Prince George’s County
Fire/EMS Department states that “Communication skills are the key to diverting deviant
behavior before it becomes the cultural norm”.100 In other words, if peers and officers hold
each other accountable for professional conduct, bad behavior would not become normalized.
If psychological safety were present, individual KCFD members would be able to engage in
discussions about how to end discriminatory and exclusionary behaviors such as everyday use
of inappropriate jokes and slurs about racial, ethnic, and gender characteristics or yelling,
shaming, or blaming behaviors, reported by study participants. More examples are itemized in
99
Furst, Peter, (2021, October). Normalization of Deviations in Performance. Occupational Safety and Health.
100
Bahshoor, Marc, (1 June 2018). Confronting the normalization of deviance in firefighter behavior, FireRescue1,
https://www.firerescue1.com/fire-chief/articles/confronting-the-normalization-of-deviance-in-firefighter-
behavior-4YfWnzZvzUfgnmat/

the results section of this report. Study participants indicated these behaviors were in different
divisions of KCFD, not just in fire stations.
The general perception from discussion groups and interviews was that the different KCFD
divisions are siloed with limited cooperation creating an atmosphere of infighting and
competition between divisions (e.g., Fire vs EMS, Dispatch vs Operations, Finance vs Human
Resources, Fleet Maintenance vs Operations, etc.). The perceptions and opinions of KCFD
employees were that both IAFF Unions prioritize representing firefighter concerns over those
who are not firefighters (e.g., Dispatchers, Technical services, etc.) even though they are all
members of these same two Unions. These same perceptions and opinions were also expressed
by women and BIPOC participants in the study.
One example of the infighting between Dispatchers and Operations is exemplified in the
following example that was recounted in a discussion group:
Pumpers and trucks go to fires when they are not dispatched even if they are currently
working a medical call. In one instance, they left one paramedic on the scene alone with a
patient. When the fire crews notified the dispatcher that they were going on a fire call that
they heard on the radio, the dispatcher told them another fire truck had been dispatched
and that they needed to remain on the scene of the medical emergency. They chose to
ignore the dispatcher and left the paramedic alone with the patient.
According to study participants, there are also KCFD members who are not represented by a
Union such as the Finance Division that does ambulance billing and payroll. And there are a few
KCFD personnel represented by Local 500. There is a general perception that these staff
members do not have a voice and their concerns are overshadowed by the IAFF Fire
Department Unions. One such concern was the loss of revenue from Medicare reimbursements
for many years, which was only corrected when the Fire Chief named a new Finance Director
two years ago. Study participants that are not union members or are not firefighters or
paramedics believe that they are among the lowest paid in KCFD because they represent a
minority opinion in both IAFF Unions.

The results of these negative perceptions and instances of normalized deviance are personnel
who are in a fight or flight survival mode where most of their time is spent reacting to problems
rather than proactively planning for future organizational and community needs. To transform
the culture, individual and institutional norms need to be challenged, as well as easy access to
professional development, coaching, mentoring, and creating new systems that support safety,
accountability, and diversity, equity, and inclusion for all personnel in all divisions of KCFD.
Stories and Symbols

The last two elements of culture in this report are Stories and Symbols. In organizations, stories
are often told about people or events in positive or negative ways and can elevate someone to
hero or enemy status. They serve to remind personnel what is considered success or failure in
the organization. Examples of symbols include things like uniforms, branding logos or who gets
assigned to the nicest or largest offices. These can also be positive or negative.
The following are three stories from the discussion groups and interviews that were very telling
about the lack of safety in the organizational culture:
1. Several individuals referenced the wall collapse in 2015 where two firefighters died.
They described firefighters continuing to work in a collapse zone even after they were
told to leave. They also described a type of eulogizing that was done in discussing the
incident later that prevented important safety lessons from being learned.
2. An officer publicly berated a co-worker who was traumatized by the injury of a
colleague.
3. Screaming and yelling at a co-worker was not stopped by the supervisor in charge.
When the consultant asked about whether training was done using the National Institute for
Occupational Safety & Health (NIOSH) reports that are done on all line-of-duty-deaths (LODDs),
there appeared to be either a reticence to talk about it or anger about the KCFD NIOSH reports
being wrong. Some people later individually told the consultant that there is often a retelling of
events within KCFD that masks mistakes made so that the families of those who died are

assured that the firefighter who died is a hero. Not surprisingly, the primary problems reported
about KCFD’s culture, according to discussion group and interview perceptions, are also the
NIOSH top five causal factors involved in firefighter deaths and injuries: 1. Improper Risk
Assessment, 2. Lack of Incident Command, 3. Lack of Accountability, 4. Inadequate
Communications, 5. Lack of SOPs or failure to follow established SOPS.101 One KCFD chief officer
summarized these types of challenges by saying that culture has a body count.
Another story, for which KCFD is nationally famous (within fire service circles) was mentioned
by several members in discussion groups and interviews. The following is a summary of the
story.
One firefighter relayed that he was asked about the infamous KCFD donut story at an IAFF
Union Conference in another state. A few years back, one of the busier fire stations was
called to assist with a fire in another county. On arrival at the fire scene, the Incident
Commander assigned them to rehab. Without authorization from the Incident Commander,
they went inside to fight fire instead. They were asked to leave, refused, and had to be
escorted by state police back across the state line. They were told by the then KCFD Fire
Chief to apologize, so they sent donuts to the Fire Department in the other county as an
apology. The next day, KCFD firefighters sent an inappropriate photo of the donuts in the
butt cheeks of six bent over firefighters with a note that said they were sorry the other
county fire department did not fight fire as well as KCFD.
When the discussion group facilitator asked what the story meant, she was told that KCFD
doesn’t apologize for being aggressive – they have won awards for speed. When asked when
that was, he said it was at an international competition where KCFD won the award for being
fastest at getting their horses hitched to the pumper. This comment underscores the imprint of
Chief Hale, who led KCFD to international fame in 1893, with his new rapid horse-hitch
invention that led them to a first-place victory in London.102
101
Ludwig, Gary, (2019 June 10). Examining the role of culture in firefighter deaths, FireRescue1.
https://www.firerescue1.com/fire-chief/articles/examining-the-role-of-culture-in-firefighter-deaths-
8ndTaFl986zrxm81/
102
Biography of George C. Hale (1850-1923), Fire Chief. (n.d.). KC History.
https://kchistory.org/document/biography-george-c-hale-1850-1923-fire-chief.

There are a variety of symbols that were mentioned in interviews, discussion groups, and seen
on site visits at various KCFD facilities. The following is an example of what several people
recounted in interviews and focus groups:
Several fire stations or facilities display pieces of wrecks and/or have accident plaques on
the wall with names of drivers on them. They said it was a metaphor for a culture of
inability to drive appropriately.
When the consultant visited some of the facilities, pieces of wrecked fire vehicles were
sometimes present. In one instance it was hung from the ceiling with holiday lights surrounding
it. In some instances, there were signs hung on it that poked fun at the person who was driving
when the vehicle wrecked.
These stories and symbols serve as reminders that reinforce bad behaviors that have become
normalized as acceptable.
On a more positive note, there is one story that represents much hope and that is
counterculture to the accepted “norms” of lack of accountability for professional conduct. The
following story is paraphrased in first person and used with permission from the individual who
relayed the story to the consultant. He said that, when asked, he has told the story to others to
help people know that standing up for doing the right thing is necessary and needed – even
though it may be difficult:
No one thought I’d be assigned to this particular busy fire station. I got the position
because a black guy at that station wanted to move closer to home and the station where
I was fit his needs. We were told to talk to our respective Captains to see if this was
possible before we put in formal bids for the positions. Both Captains agreed, but they did
not talk to their respective crews at each station about the move. When the bids were
awarded and the notice posted, the crews at both fire stations got very angry about it.
You would have thought the world was coming to an end. My cell phone lighted up like I
stirred a hornet’s nest.

Before my first day at Station 24, I grabbed donuts and took them to the crew at what
would be my new assignment. I asked them to have a conversation about it. There was a
lot of yelling and shouting. I spent some time listening to their objections and explaining
that I wanted the opportunity to be promoted eventually to better provide for my family.
And, unless you have experience working at certain busier fire stations, that promotion
does not happen. When things calmed down, I got them to agree to give me a one-year
trial and if at the end of the year they still did not want me, I would bid out of the station.
I was there several years and developed lifelong friendships as a result. I later promoted
to Captain and served a few more years before my most recent promotion. The difficult
part has been about always having to prove myself.
This individual had the moral courage to have a difficult conversation, instead of backing down
to peer pressure. While he did not say how difficult the first several months were in his position
at the new station, it is likely there were many instances of exclusionary, harassing behaviors to
test his resolve. After one-year, he did not have to leave the station, and had earned their
respect and support.
In the last few months, one of the Deputy Chiefs has been faced with similar peer pressure to
not accept his newest promotion to Deputy Chief because there is a perceived tradition of
entitlement from IAFF Union personnel who believe the promotion should have been handled
differently. Once he was promoted, there were numerous examples of negative stereotyping
about why he was promoted that was witnessed by the consultant in interviews and discussion
groups. On the other hand, everyone spoke very highly about what a great team member and
role model he was. It should be noted that the Deputy Chief position is not a Union position and
the requirements for the position were determined, as per City policy, by the Fire Chief in
conjunction with the City HR Office. Despite that, members of IAFF Union Local 3808 have filed
grievances and lawsuits trying to overturn the promotion.

Restoring Balance Between Union and Management
When there is an imbalance between Union and Management power and influence, the
community and the employees suffer.103 The perception of study participants is that the IAFF
Unions run the Fire Department, not Management. While Management is responsible by law,
they do not have the authority to manage basic organizational systems such as hiring, training,
promotions, personnel assignments, and operational staffing because the Union CBAs prohibit
such control. For the safety and well-being of the community and KCFD employees, balance
needs restored that allows KCFD leaders to manage Fire Department systems and personnel;
and let Union leaders focus on protecting basic worker rights, wages, and benefits for the KCFD
personnel in their bargaining units.
Intercultural Competence of Union and Management Leaders

Intercultural competence is the ability to shift one’s perspective and adapt in appropriate ways
to cultural differences and commonalities. Intercultural competency in supervisors and
managers is foundational to organizational culture transformation because it allows for a
balancing of differences and commonalities. When commonalities are overemphasized,
conformity results that inhibits creativity and innovation. When differences are
overemphasized, fragmentation occurs, and people divide themselves into “us versus them”
groups. When there is a balanced approach to differences and commonalities, innovative
solutions are possible where efforts can be focused on common goals that benefit everyone.104
Intercultural competence is an essential leadership skill that requires a deeper level of self-
awareness about one’s own understanding of learned values, perceptions and practices AND a
deeper understanding of the different ways that people from other groups make sense of and
respond to cultural differences.105 The development of intercultural competence does not
occur without intentional efforts. With this in mind, as part of this report, a cultural
competence assessment was completed by fifty-four (54) leaders in both IAFF Unions, as well as
103
104
Hammer, Mitchell R. Ph.D., (2021). The Intercultural Development Inventory® Resource Guide, Olney, MD.
105
Ibid, p. 25.

the Executive Management Team and Leadership DEI Work Group. The results for each of the
four groups provided a baseline metric that can be used to measure progress in coming years.
Individual Development Plans (IDPs) were also given to each individual who completed the
debrief to begin intentional efforts to progress along the intercultural development continuum.
The purpose of the IDI® was to determine the capacity of senior leaders in Management and
senior leaders in both IAFF Unions to understand and appropriately adapt to the differing
perspectives within KCFD as well as within the community.
The scores for all groups were in the mid-range of intercultural development, although each of
the four groups believed they were much further along in their development. The mid-range of
their development is characterized by a tendency to overemphasize commonalities and
underemphasize differences. There is also a tendency to overestimate their competence
around diversity, equity and inclusion (DEI) issues and unconsciously impose their values and
beliefs on others. This results in important issues not being understood and addressed, that
may lead to increasing numbers of grievances and lawsuits.
DEI efforts around ensuring a diverse workforce, treating people fairly, and insuring access to
opportunity are important. Even more important, is creating a sense of belonging where ALL
employees feel valued and are empowered to co-create acceptable behavioral norms. New
studies have found that when there is a high sense of belonging, there is a 56% improvement in
job performance and 75% fewer sick days.106 In KCFD, most participants who were men and
women of all races and gender orientations reported they felt excluded and not valued unless
they conformed to what has become normalized deviance in behavioral norms over the years.
Real transformation in KCFD that could create an inclusive culture requires intentional efforts
on the part of individuals, especially supervisors and managers to increase intercultural
competence. This is essential if KCFD leaders are to understand and appropriately adapt to the
106
Lee, Susan, (13, June 2022) Why Belonging is Key to Building the New Workforce, MIT Sloan Management
Review. https://sloanreview.mit.edu/article/why-belonging-is-key-to-building-the-new-
workforce/#:~:text=In%20one%20study%2C%20a%20high,to%20work%20for%20the%20company

different perspectives within KCFD as well as within the community. The Individual
Development Plan (IDPs) provided with the IDI® cultural competence assessment is one tool to
begin this aspect of professional development.

Recommendations and Potential Actions
The following are recommendations and possible actions to take to continue the work of
transforming the workplace culture to one where everyone holds each other accountable for
creating a safe, diverse, and inclusive workplace culture where everyone enjoys a sense of
belonging and is valued for the unique perspectives they bring.
1. Identify Key Performance Indicators (KPIs) for each division and who is responsible for
related results and outcomes.
a. Identify multiple, easy access methods for strengthening the Skills, Knowledge,
Abilities (SKA) and confidence of managers and supervisors.
b. Create a system for line supervisors and other members of management to
monitor and analyze individual and team performance, especially as it relates to
inclusion and creating a sense of belonging.
c. Create a support system that allows supervisors to take immediate action to
address and/or prevent problem behaviors in the personnel they supervise.
d. Create a system to regularly identify, discuss and address issues that detract
from success and seeks to build peer support for accountability among
supervisory staff (e.g., regular first-line supervisory meetings).
e. Continue with efforts to streamline General Administrative Guidelines (GAGs)
and General Operating Guidelines (GOGs) into a more user-friendly format.
f. Readminister the Intercultural Development Inventory (IDI®) to Management
and Union leaders within one year to measure progress.
g. Ensure that Safety, Accountability, Diversity, Equity, and Inclusion (SADEI)
become part of the daily language around all KPIs, organizational goals, strategic
planning, etc.
2. Encourage and reward Safety, Accountability, Diversity, Equity, and Inclusion (SADEI)
a. Engage personnel in each division with defining what success looks like.
b. Provide team building opportunities where the benefits of SADEI efforts are
demonstrated in practical ways.

c. Collect SADEI success stories and build a system to regularly call attention to
them.
d. Identify opportunities to empower employees to create collaborative, inclusive
processes.
e. Facilitate the formation of Employee Resource Groups (ERG) to elevate the
voices of those who do not feel heard.
f. Conduct an Equity Audit in each division.
g. Explore new opportunities for budget and staff support for DEI initiatives (e.g.,
explore the possibility of a Recruitment Division).
3. Identify professional development systems that define and reinforce desired behaviors.
a. Develop a KCFD Code of Ethics, as well as each division developing more specific
ethical codes related to their responsibilities (e.g., Firefighter Code of Ethics,107
Public Safety Communications,108 EMS Practitioners,109 Human Resources,110
Government Finance,111 etc.).
b. Develop an inclusive management driven career development plan that allows
for transferability between divisions and recognizes individual traditional and
non-traditional qualifications.
c. Re-invent Professional Development that integrates training and in-service
requirements for different divisions (e.g., Fire, EMS, Communications Center,
Fleet Maintenance, Technical Services, etc.).
d. Re-invent the Fire Academy with added responsibilities for regular, on-going field
skills retention and development.
107
Executive Fire Officers (EFO) Section of the International Association of Fire Chiefs (IAFC) Firefighter Code of
Ethics. https://www.iafc.org/topics-and-tools/resources/resource/firefighter-code-of-ethics
108
Carter, Evert E. (1981). Public Safety Telecommunicator Code of Ethics. Association of Public-Safety
Communications Officials. https://www.apcointl.org/public-safety-telecommunicator-code-of-ethics/
109
Gillespie, Charles B., M.D. (1978). (Revised 2013). Code of Ethics for EMS Practitioners. National Association of
Emergency Medical Technicians. https://www.naemt.org/about-ems/code-of-ethics
110
Society for Human Resource Management. (2014). Code of Ethics. https://www.shrm.org/about-
shrm/pages/code-of-ethics.aspx
111
Government Finance Officers Association. (n.d.). Code of Ethics. https://www.gfoa.org/code-of-ethics

e. Develop a system where those interested in career advancement have regular
access to key organizational leaders (e.g., monthly Zoom with a Chief Officer in
the career advancement area of interest).
f. Develop a system for organization-wide mentorship, including a Mentor’s
Handbook.
4. Identify ways to engage personnel at all levels in developing intercultural competence

and their capacity to have courageous, authentic conversations about challenging
issues.
a. Offer the Intercultural Development Inventory (IDI®) to supervisory groups to
provide a foundation for leadership professional development of leadership
around DEI challenges.
b. Offer the IDI® to individual KCFD members who are interested in developing
their self-awareness around leadership and DEI issues.
c. Offer Conflict Resolution and Mediation skills professional development
opportunities.
d. Regularly integrate into meetings and training sessions, the DEI learning
Plans.
5. Engage the IAFF Unions in meaningful, sustained, organizational culture transformation.

a. Open discussions about the possibility of Captains112 being considered as
supervisory positions that would move them into IAFF Local 3808.
b. Open discussions about the effectiveness and workability of the 2001 IAFF/IAFC
Labor Management agreement to co-manage KCFD by committees comprised of
Union and Management personnel.
112
Captains are not considered supervisory, management positions by the National Labor Relations Board that
defines a supervisor as “any individual having authority, in the interest of the employer, to hire, transfer, suspend,
lay off, recall, promote, discharge, assign, reward, or discipline other employees, or responsibly to direct them, or
to adjust their grievances, or effectively to recommend such action, if in connection with the foregoing the
exercise of such authority is not of a merely routine or clerical nature, but requires the use of independent
judgment.” https://corporate.findlaw.com/litigation-disputes/nlrb-clarifies-definition-of-supervisor.html

c. Open discussions about dynamic staffing models to more effectively utilize
personnel.
d. Open discussions about alternatives to seniority-only promotion criteria.
e. Identify a path forward for staffing one to two experimental fire stations to pilot
new behaviors and staffing norms.
f. Resume discussions about streamlining a process that will expedite the creation
of a career development guidebook.
g. Identify ways for Management to meet with women and Black, Indigenous,
People of Color (BIPOC) groups outside of the traditional union bargaining unit
constraints.
6. Develop a communications system for effectively communicating important information

and messaging to all employees.
a. Identify ways to message by division only.
b. Identify alternate methods to fill daily staffing shortages to prevent
communication overload.
7. Develop systems to improve cooperation between siloed divisions and Executive Team
members.
a. Identify KPIs that ensure cooperation between divisions (see also #1).
b. Regularly integrate into meetings and training sessions, the DEI learning
Plans.
c. Create a system to regularly identify, discuss and address issues that detract
from success.
d. Identify and create opportunities to build peer support for accountability
between divisions among supervisory staff (e.g., regular first-line supervisory
meetings, regular mid-management meetings).
e. Relocate offices to create closer geographic proximity for ease of relationship-
building.

f. Ensure key leaders attend state and national conferences and events to build
relationships and learn about best practices.
8. Identify ways to build interagency relationships between KCFD firefighters and mutual
aid fire departments, as well as between other KCFD Divisions.
a. Explore the possibility of an exchange program.
b. Identify and fund key memberships and attendance for KCFD leaders and
aspiring leaders in regional and state organizations.
The following statements are representative of the perceptions and opinions from the
discussion groups, interviews and site visits related to specific recommendations related to
recruitment and hiring:
9. Give new hires six months for residency in KCMO after they begin work. Former military
personnel often don’t have permanent addresses when they are first hired.
10. Recruit more actively in several school districts and have more programs like Manual
Tech.
11. Develop a standard onboarding process for all KCFD divisions.
12. Hire more single role EMS personnel to increase gender diversity.
13. Create a KCFD recruitment department. It is too much to have the Fire Marshal in
charge of recruitment.
14. For the Candidate Physical Ability Test (CPAT) offer the following:
a. Teach alternate techniques for completing CPAT.
b. Provide different practice sessions for affinity groups such as women only
practice session or BIPOC only practice sessions.
c. Hold more practice sessions with mentors and allow six months to pass the test.
(New hires who already have their EMT and/or Paramedic certifications start at a
later date at the Fire Academy and do not have the benefit of the additional
physical conditioning and practice for CPAT as those who start sooner that are in
the EMT and Paramedic certification programs.)

15. Recruit minority paramedics in high school and have them on payroll while in medic
school. This apprentice program could cover living expenses and would build a pipeline
of diverse medics.

Appendix A
Glossary: Acronyms, Abbreviations, Definitions
The acronyms, abbreviations, and definitions are for use in this KCFD Culture Assessment
Report and may or may not reflect definitions or terms used in other organizations.

Acronyms
AC Assistant Chief (2nd in command to Fire Chief, not in Union)
ADC Administrative Division Chief (In L3808 Management Union – equivalent to BC,
but given a different rank title)
AFL American Federation of Labor
AFL-CIO American Federation of Labor and Congress of Industrial Organizations
BC Battalion Chief (In L3808 Management Union – BC title reserved for Fire
Operations only, not EMS or Administrative supervisors of equivalent rank) .
BIPOC Black, Indigenous, People of Color (includes Black, Asian, Hispanic, American
Indian, Pacific Islander, etc.)
CBA Collective Bargaining Agreement
CDL Commercial Driver’s License program
CPAT Candidate Physical Ability Test
DC Deputy Chief (third in command to Fire Chief, not in Union)
DEI Diversity, Equity, Inclusion
DO Developmental Orientation (in Intercultural Development Inventory)
DSO Department Safety Officer (Captain who is driver for BCs)
EFO Executive Fire Officer (National Fire Academy credential)
EMD Emergency Medical Dispatcher (a certification level)
EMS Emergency Medical Service
EMT Emergency Medical Technician
ERG Employee Resource Groups
EST Emergency Supply Technician (a position in KCFD)
EVT Emergency Vehicle Technician (a certification level)
FF Firefighter
FIREPAC IAFF’s National Political Action Committee
FTO Field Training Officer
GAGs General Administrative Guidelines
GOGs General Operating Guidelines
HS High School
IAFF International Association of Firefighters (union affiliate of AFL-CIO)

IAFC International Association of Fire Chiefs (not a union affiliate)
IC Incident Commander
IDC Intercultural Development Continuum
IDI® Intercultural Development Inventory® (intercultural competence assessment
tool)
IDP Individual Development Plan (included with part IDI® individual assessment
results)
KCFD Kansas City Fire Department in Missouri (not to be confused with KCK FD in
Kansas)
KCMO Kansas City, Missouri
KPI Key Performance Indicator
L42 IAFF Union Local 42 that includes personnel up to and including Captain and First
Line Supervisors
L3808 IAFF Union Local 3808 that includes Battalion Chiefs and Middle Management
L500 The City AFL-CIO Local 500 Union has a few members who are fire department
staff
LGBTQ+ Lesbian, Gay, Bisexual, Transgender, Queer or Questioning, Other gender
orientations not mentioned
LO Leading Orientation (in Intercultural Development Inventory)
LODD Line of Duty Death
MAST Metropolitan Ambulance Service Transport (former city ambulance service prior
to merging with Fire Department)
MOU Memorandum of Understanding
MPEC Medical, Protocols & Equipment Committee
NIOSH National Institute for Occupational Safety & Health
NLRB National Labor Relations Board
OG Orientation Gap (in Intercultural Development Inventory)
OJT On the Job Training
PAC Political Action Committee
PO Perceived Orientation (in Intercultural Development Inventory)
PPE Personal Protective Equipment

QA Qualified Administrator of the IDI®
QAQI Quality Assurance/Quality Improvement
SADEI Safety, Accountability, Diversity, Equity, Inclusion
SCBA Self Contained Breathing Apparatus
SKA Skills, Knowledge, Abilities
WOC Working Out of Class

Abbreviations
Capt Captain (first line supervisors in KCFD Fire/EMS operations)

Cert Certification
FF Firefighter
IC Incident Commander
L42 International Association of Firefighters Union Local 42
L3808 International Association of Firefighters Union Local 3808
L500 Local 500, American Federation of State, County and Municipal Employees,
AFL-CIO
Lb Pound
Medic Paramedics (in L42 Union)
OT Overtime pay
Sgl Single (generally referring to single role EMS personnel who are not firefighter
certified)
Vs Versus
Yr Year

Definitions
Allyship is active support for the rights of a non-majority group or individual without actually
being a member of that group or that person’s identity.
Developmental Orientation (DO) indicates your group’s primary or actual orientation toward
differences and commonalities as assessed by the IDI® instrument. The DO is the perspective
your group most likely uses in situations where cultural differences and commonalities need to
be bridged.113
Diversity is the range of human differences comprised across different demographic

characteristics (age, race, ethnicity, gender, sexual orientation, socioeconomic status,
education, religion, dis/ability, language) that make an individual and/or group different from
another. 114 Diversity is also about the mix of differences that may make a difference in human
interactions (individual to individual, individual to group/organization, organization to
organization). How diversity is experienced can relate to the achievement of goals, the ability to
effectively meet intercultural challenges, and whether individuals have a sense of safety
(physical or mental). 115
Employee Resource Group is a voluntary, employee-led group with the purpose of fostering a
diverse, inclusive workplace culture that is aligned with the mission, vision and values of the
organization.
Equity, on the other hand, is more about leveling an unlevel playing field and can be defined as
recognition and elimination of systemic barriers (and privileges) that produce disparate
experiences of inclusion. Systemic disparities must be addressed for employees from
historically marginalized backgrounds to experience all three forms of fairness at work:
113
pp. 39-41.
114
Diversity and Inclusion Definitions.
(n.d.b). https://www.ferris.edu/administration/president/DiversityOffice/Definitions.htm.
115
Hammer, Mitchell R. Ph.D. (2021). The Intercultural Development Inventory® Resource Guide. Olney, MD, p. 23.

distributive (outcomes), procedural (how decisions are made), and interactional (interpersonal
treatment and informational). 116
Inclusion occurs in an organizational environment that enables individuals to simultaneously

experience belonging and feel valued for their unique competencies and perspectives. People
experience inclusion when they are seen and valued as they are, and have the power to set the
agenda, co-create norms, and influence how work is done. 117 Inclusion is leveraging differences
in a way that increases contributions and opportunities for all.118
Intercultural Development Continuum (IDC) is the model that was modified from Dr. Milton
Bennett’s original Developmental Model of Intercultural Sensitivity. It identifies a range of five
intercultural competence orientations in the IDI® assessment instrument.119
Intercultural Development Inventory® (IDI®) is an assessment instrument that is a statistically

reliable, cross-culturally valid120 measure of intercultural competence that is available for group
profiles, as well as confidential individual profiles. The results are numerically quantified along a
continuum of five orientations that range from the more monocultural orientations of Denial
and Polarization to the transitional mindset of Minimization to the more intercultural or global
mindsets of Acceptance and Adaptation. The following describes these five orientations in more
detail:121
- Polarization is an orientation that views cultural difference in terms of “us” and “them”.
116
117
Ibid.
118
Hammer, Mitchell R. Ph.D. (2021). The Intercultural Development Inventory® Resource Guide, p. 24, Olney, MD.
119
Ibid. pp. 39.
120
121
Adapted from: Hammer, Mitchell R. Ph.D., (2021). The Intercultural Development Inventory® Resource Guide, p.
39, Olney, MD.

differences.
Institutional Racism is racial inequity within institutions and systems of power that result in
unfair policies, practices, discriminatory treatment, as well as inequitable opportunities and
outcomes for different racial groups.122
Intercultural Competence provides a bridge between diversity and inclusion. It can open one’s
perspective to seeing differences as possibilities rather than problems. It is defined as “the
capability to shift cultural perspectives and appropriately adapt behavior to cultural differences
and commonalities.” It requires a deeper level of self-awareness about one’s own
understanding of learned values, perceptions, and practices AND a deeper understanding of the
different ways that people from other groups make sense of and respond to cultural
differences.123 This report includes an assessment of the intercultural competence of senior
leaders in management and senior leaders in the two KCFD IAFF unions using the IDI®
assessment instrument.
Leading Orientation (LO) are the next steps to take in further development of intercultural
competence that is referenced in the IDI® assessment instrument.124
122
Anne E. Casey Foundation, (updated 14 April 2021). Equity vs Equality and Other Racial Justice Definitions.
https://www.aecf.org/blog/racial-justice-definitions
123
Hammer, Mitchell R. Ph.D. (2021). The Intercultural Development Inventory® Resource Guide, Olney, MD, p. 25.
124
Ibid. pp. 39-41.

Moral Courage is the willingness to take a visible, public stand for values that underpin
professional conduct.
Normalization of Deviance is a term that describes how bad behavior becomes acceptable.125
Organizational Climate is the direct and indirect effect of an organization’s cultural tenants
(values, traditions, attitudes, and behaviors) on stakeholder experiences, work performance,
quality of life and belonging.126 It is different than organizational culture in that it is associated
with the impacts of the work environment on individual members, whereas culture is more
about shared expectations and norms of behavior that create the workplace environment.
Organizational Culture is the accumulated learning that creates a pattern or system of shared
beliefs, values, and behavioral norms that are taken for granted as basic assumptions and
eventually drop out of awareness. This accumulated learning is taught to new members as the
right way to think, feel and behave. Over time, the rationale for what is taught no longer exists
in the group’s conscious awareness. It continues to be present in the group’s collective
subconscious. The strength of the culture depends on the number of years of shared history,
experiences.127
Organizational Systems are composed of multiple interconnected components involving

policies and practices, traditions and routines, people and relationships, resources, power
structures, and values.128
125
Furst, Peter. (2021, October). Normalization of Deviations in Performance. Occupational Safety and Health.
126
Madan, M., & Jain, E. (2015). Impact of organizational culture & climate on managerial effectiveness: An empirical
study. Delhi Business Review, 16(2), 47-57.
Trice, H. M., & Beyer, J. M. (1993). The cultures of work organizations. Englewood Cliffs, NJ: Prentice Hall.
127
Schein, Edgar H. with Schein, Peter. (2017). Organizational Culture and Leadership, 5th ed., Wiley & Sons, Inc.,
Hoboken, NJ, p. 6, p. 16.
128
Abercrombie, R., Harries, E., & Wharton, R. (2015). Systems change: A guide to what it is and how to do it.

Orientation Gap (OG) is the difference between the group’s PO and DO. The larger the gap, the
more likely the group may misread how effective they are in bridging across cultural
differences. A difference of seven points or more is considered a meaningful gap. Also, the
larger the gap, the more surprised the group may be by the discrepancy between their
PO and DO.129
Perceived Orientation (PO) reflects where your group places itself along the Intercultural
Development Continuum (IDC) in the IDI® assessment instrument. This is how the group sees
itself when interacting with culturally diverse individuals and groups.130
Psychological Safety is experiencing the freedom and safety to engage, rather than feeling
individuals or groups need to protect themselves in some way. “Diversity and inclusion issues
are particularly relevant for experiences of psychological safety. Members of historically
marginalized groups often feel pressure to assimilate (in other words, to limit the expression of
how they may be different from the dominant in-group to fit in), and they may also feel that
they are judged in stereotypical ways.”131
Physical Workplace Safety is a process of protecting employees from work-related illness or

injury.132 Workplace safety refers to the working environment at a company and encompasses
all factors that impact the safety, health, and well-being of employees. This can include
environmental hazards, unsafe working conditions or processes, drug and alcohol abuse, and
workplace violence.133
129
pp. 39-41.
130
Ibid.
131
(2019). Module 2: Examine Methods of Fostering Inclusion in Work Groups, eCornell Course: ILRD1003 – Diversity &
Inclusion at Work.
132
Occupational Safety and Health Administration (OSHA).
133
inc.com. (n.d.). https://www.inc.com/encyclopedia/workplace-safety.html.

Physiological Threats to Safety points to the physical effects of racism on one’s health can
include elevated blood pressure, inflammation, and a weakened immune system that
significantly increases the risk of developing long-term chronic health conditions.134
Physiological safety is associated with psychological safety in that it is about an individual or
groups’ threats to health resulting from a lack of psychological safety.
Social Capital is the normal human hunger for acceptance by peer groups.
Systemic Barriers are policies, procedures, and practices that are discriminatory in nature that
hinder and/or prevent BIPOC and historically marginalized individuals from full participation or
receiving quality services, supports, and resources.
Systemic Disparities is incongruent treatment of racial groups resulting in disparate outcomes

not limited to societal treatment, income, safety, housing, job placement and advancement.
134
National Center for Health Statistics (2016). Health, United States, 2015, With special feature on racial and ethnic
health disparities. Hyattsville, MD. https://www.cdc.gov/nchs/data/hus/hus15.pdf
Johns, M., Schmader, & T., Inzlict, M. (2008). Stereotype threat and executive resource depletion: Examining the
influence of emotion regulation. Journal of Experimental Psychology, 137(4), 691-705.
Steele, C. M., Spencer, S. J., & Aronson, J. (2002). Contending with group image: The psychology of stereotype and
social identity threat. In M. P. Zanna (Ed.), Advances in experimental social psychology (Vol. 34, pp. 379-440).
Academic Press.

Appendix B
Intercultural Development Inventory (IDI®) Group Profile Reports

2. Diversity, Equity & Inclusion (DEI) Leadership Workgroup comprised of union and
management personnel and community members

lntercultural
Development Inventory®
T Group Profile Report
I ORGANIZATIONAL VERSION
INTERCULTURAL
DEVELOPMENT
INVENTORY
Prepared for:
Executive Management Team
Prepared by:
Dr. Nozella Brown, CEO, Brown
Consulting, LLC, 1/5/2023
IDI, LLC The lntercultural Development Inventory® (IOI®) is protected by copyright and is the
proprietary property of Mitchell R. Hammer, Ph.D., and IOI LLC. lntercultural Development
http://idiinventory.com/ Inventory and IOI are registered trademarks of Mitchell R. Hammer, Ph.D., and IOI, LLC. You
may not use, copy, display, distribute, modify, or reproduce any of the trademarks found in
support@idiinventory.com this Report except as expressly authorized by IOI, LLC.
CULTURE ASSESSMENT REPORT FOR KANSAS CITY FIRE DEPARTMENT, MO

105
106
107
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109
110
111
112
113
114
115
lntercultural
INTERCULTURAL
DEVELOPMENT
INVENTORY
Prepared for:
DEI Leadership Team Work Group
Prepared by:
Dr . Nozella Br own, CEO, Brown
The lntercultural Development Inventory® (IOI®) is protected by copyright and is the

IOI, LLC proprietary property of Mitchell R. Hammer, Ph.D., and IDI LLC. lntercultural Development
http://idiinventory.com/ Inventory and IDI are registered trademarks of Mitchell R. Hammer, Ph.D., and IDI, LLC. You
support@idiinventory.com this Report except as expressly authorized by IDI, LLC.

117
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119
120
121
122
123
124
125
126
418
Ill
11111
�VP
lntercultural
INTERCULTURAL
DEVELOPMENT
INVENTORY
Prepared for:
IAFF Union Local 42 Senior Leader's Team
Prepared by:
IOI, LLC The lntercultural Development Inventory"' (IOI"") is protected by copyright and is the
proprietary property of Mitchell R. Hammer, Ph.D., and !DI LLC. lntercultural Development
http:!/idiinventory. com/ Inventory and !DI are registered trademarks of Mitchell R. Hammer, Ph.D., and ID!, LLC. You
support@idiinventory.com this Report except as expressly authorized by !DI, LLC.
127
128
129
130
131
132
133
134
135
136

137
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,,,
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lntercultural
Group Profile Report
ORGANIZATIONAL VERSION
INTERCULTURAL
DEVELOPMENT
INVENTORY
Prepared for:
IAFF Union Local 3808 Senior Leader's Team
Prepared by:
IOI, LLC
The lntercultural Development Inventory® (IOI®) is protected by copyright and is the
proprietary property of Mitchell R. Hammer, Ph.D., and IOI LLC. lntercultural Development
http://idiinventory.com/ Inventory and IOI are registered trademarks of Mitchell R. Hammer, Ph.D., and IOI, LLC. You
support@idiinventory.com this Report except as expressly authorized by IOI, LLC.
138
139
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144

145

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147

148
Appendix C
KCFD Discussion Group Materials
Discussion Group Handout: Ten-Two Memo and Culture Slides

Discussion Group Facilitator Outline & Discussion Group Questions
149
TEN-TWO
DATE: 4/13/2022
APPROVED BY: DC Newton
SUBJECT: KCFD Organizational Discussion Groups
MESSAGE:
KCFD Organizational Discussion Groups
KCFD, we need you.
We know some have already spoken up and don’t feel heard. Help us change that. Now is your chance
to help KCFD. Let us know where the blind spots are and identify our weaknesses and strengths so the
necessary changes can be identified and implemented.
We need to hear from everyone:

• every job classification: dispatchers, paramedics, fleet mechanics, EST’s, fire suppression,
administrative personnel, EMT’s, Captains, ADC’s, BC’s, DC’s
• all race & all genders
• new in the Department
• senior staff
An outside vendor will soon begin visiting our Department to gather your input. If you have ever had
anything to say about us or had feelings you wish you could speak freely about and be heard, this is your
chance.
The vendor will be conducting a confidential one to two-hour conversations in a safe place. This will
allow you to speak freely, openly, and honestly about any concerns you may have. Groups of 12 -15 staff
will be randomly selected from those who wish to participate.
No Supervisors will be in the room or in conversation. No Unions representatives other than you as a
member will be present.
This is how we create positive change within our Department for all KCFD personnel and for the people
we serve each year through our 142,000 calls.
To access the sign-up page, you will need to login with your kcmo.org email account.
We will begin contacting staff over the next few weeks to set up meeting times. Your voice matters and
we want to hear it.
We look forward to listening to you.
Please sign up here. [Secure URL]
150
151
Facilitator Outline and Questions
1. Introduce Facilitator(s)
- Background (working with FD and Union), third-party – neutral
- Refer to Ten-Two memo and ask how many saw it – will get to page 2 color slides later
- Reporting to FD Senior Management with results, NOT who said what
- Explain difference between privacy and confidentiality
2. Purpose of Discussion Groups and Interviews

- Identify beliefs, behaviors that support safety, accountability and an inclusive, equitable
workplace AND
- Identify beliefs, behaviors that are barriers to safety, accountability, and an inclusive,
equitable workplace
3. Request Permission for Dictation (not recording) – using MS Office dictation software
- Turn on software and show them how it types words and not recording voices
- For use only by facilitator(s) for reference
4. Safe/Courageous Space
- Please be open and honest, respectful, listen, try not to interrupt
- Say “ouch” if something offends and we will stop and discuss
5. Explain Organizational Culture using Schein’s iceberg imagery

- Review, explain four color slides on side two of Ten-Two participant handout
- Review handout memo and with four slides
- Lead facilitator email and phone on first slide – feel free to email or text more info if you
think of some later
6. Ask Discussion Questions (see page 2)

- There may be several follow-up questions based on what participants say
7. Pass out paper survey and ask them to complete it before they leave or email if prefer (see
page 3)
8. Thank participants for their honesty and willingness to help move KCFD forward.
152
KCFD Culture Discussion Group Questions
1. What are the visible parts of the culture? (e.g., KCFD has many different uniforms)
2. What is KCFD’s mission/purpose and what values provide the foundation for achieving the
mission? [Explain mission is purpose and values are the ethics and morals of how you achieve that
purpose]
3. One KCFD slogan is One Job, One Team, One Mission

– Have you seen this?
– How is that practiced every day?
4. Are some KCFD divisions more important than others and why?
(e.g., Admin, Finance, Dispatch, EMS, Suppression, Prevention, etc.)
5. What stories do you tell new people (or what stories have you heard others tell them) when
they are assigned to a new position in KCFD?
6. What are your thoughts about safety, accountability, and an inclusive, equitable workplace?
7. How often does your supervisor ask your opinion?
8. How often do you ask opinions of new personnel?
8a. How often do you ask about what they were taught at fire academy or in training for
their current position?
9. When citizens knock on the door to ask a question or ask for a tour, what happens (pre or
post COVID)?
10. What challenges with equity or diversity do you experience when delivering services to
citizens in KCMO?
11. What challenges with equity, inclusion or diversity do you experience in the workplace?
12. If a co-worker is not wearing the appropriate Personal Protective Equipment (PPE) or not
following a KCFD safety practice, what do you do?
(e.g., no gloves/goggles on ambulance or no SCBA on roof or not clearing an intersection, etc.)
12a. Who is responsible for correcting unsafe situations?
13. What are your thoughts about changing recruitment, hiring and/or promotional procedures
or policies?
153
Optional: End of Discussion Session Written Survey:
Please answer the following questions:
What qualifications or qualities are most important for KCFD leaders at any level?
Were there any questions you wish I had asked in this Discussion Group?
What did you not say in this Discussion Group that is important for me to know?
What needs to change to make safety, accountability and creating an inclusive, equitable
workplace a priority?
Any other thoughts?
OPTIONAL: Your Name and Contact Info ______________________________________
If completed later, please email to debraj@visioningvalues.com
154
Appendix D
KCFD Organizational Charts
155
156
157
Appendix E
Resources for Leadership and Cultural Awareness Professional Development
Articles
Bendersky, Corinne (2018, December 7). Making U.S. Fire Departments More Diverse and
Inclusive. Harvard Business Review. https://hbr.org/2018/12/making-u-s-fire-departments-
more-diverse-and-inclusive, retrieved from internet 8-28-22.
Hu-Chan, (n.d.). Interrupting Bias: Calling Out vs. Calling In. Tufts University, Office of the Chief
Diversity Officer. https://diversity.tufts.edu/resources/interrupting-bias-calling-out-vs-calling-
in/
Lee, Susan, (2022, June 13). Why Belonging is Key to Building the New Workforce, MIT Sloan
Management Review. https://sloanreview.mit.edu/article/why-belonging-is-key-to-building-
the-new-
workforce/#:~:text=In%20one%20study%2C%20a%20high,to%20work%20for%20the%20compa
ny
Lorber, Jo-Ann (2018, January). Executive Officer Leadership: Cultivating Effective Union-
Management Relationships, International Association of Fire Chiefs ICHIEFS Article.
https://www.iafc.org/iCHIEFS/iCHIEFS-article/executive-officer-leadership_cultivating-effective-
union-management-relationships
Poornima, Luthra (2022, November 8). 7 Ways to Practice Active Allyship. Harvard Business
Review. https://hbr.org/2022/11/7-ways-to-practice-active-allyship.
Policy Management/Fire (2022, December 22). Creating a Culture of Ethics and Integrity in the
Fire Service
https://www.powerdms.com/policy-learning-center/creating-a-culture-of-ethics-and-integrity-
in-the-fire-service
Books
Budd, John W. (2010). Labor Relations: Striking a Balance, 3rd ed. McGraw-Hill.
Clear, J. (2019). Atomic Habits: An Easy & Proven Way to Build Good Habits & Break Bad Ones.
Penguin Random House.
Fisher, Roger and Ury, Wm. (2011). Getting to Yes: Negotiating Agreement Without Giving In.
Penguin Books.
158
Schein, Edgar H. with Schein, Peter. (2017) Organizational Culture and Leadership, 5th ed. Wiley
& Sons, Inc., Hoboken, NJ
Schein, E. H., & Schein, P. A. (2021). Humble Inquiry, Second Edition: The Gentle Art of Asking
Instead of Telling (The Humble Leadership Series) (Expanded). Berrett-Koehler Publishers
Classes
eCornell 2-Week On-line DEI Leadership Classes and Certificate Program

https://ecornell.cornell.edu/certificates/leadership-and-strategic-management/diversity-
equity-and-inclusion/
- Fostering an Inclusive Climate: 2-week online class – this one is particularly good for a
team of folks charged with identifying team behaviors that prevent inclusion and
developing new ways to create inclusion. It would be important for at least two team
members to attend this class.
- Counteracting Unconscious Bias
- Diversity, Equity, and Inclusion at Work
- Improving Engagement
eCornell 2-Week Online Building a Diverse Workforce Classes and Certificate Program
https://ecornell.cornell.edu/certificates/human-resources/diversity-equity-and-inclusion-
building-a-diverse-workforce/
- Adopting Inclusive Hiring Practices
- Building Diverse Talent Pools
- Promoting Inclusive Onboarding and Employee Success
- Counteracting Unconscious Bias
Podcasts
Atomic Habits, Part 1 of 2. (2022, January 4). Brené Brown

https://brenebrown.com/podcast/atomic-habits-part-1-of-2/
Conversation: Talking without Shouting. (2017, September 2). Common Ground Podcast.
https://commongroundcommittee.org/event/conversation-talking-without-shouting/
Public Forum: Finding Common Ground on Government’s Role in Bridging Racial Divides. (2018,
April 22). Common Ground Podcast
https://commongroundcommittee.org/event/public-forum-finding-common-ground-on-
governments-role-in-bridging-racial-divides/
159
Professional Standards
Fire Service Code of Ethics

Executive Fire Officers (EFO) Section of the International Association of Fire Chiefs (IAFC).
(n.d.). Firefighter Code of Ethics. https://www.iafc.org/topics-and-
tools/resources/resource/firefighter-code-of-ethics, and
Telecommunications Code of Ethics

Carter, Evert E. (1981). Public Safety Telecommunicator Code of Ethics. Association of
Public-Safety Communications Officials. https://www.apcointl.org/public-safety-
telecommunicator-code-of-ethics/
EMS Code of Ethics

Gillespie, Charles B., M.D. (1978). (Revised 2013). Code of Ethics for EMS Practitioners.
National Association of Emergency Medical Technicians. https://www.naemt.org/about-
ems/code-of-ethics
Human Resources Code of Ethics

Society for Human Resource Management. (2014). Code of Ethics.
https://www.shrm.org/about-shrm/pages/code-of-ethics.aspx
Government Finance Code of Ethics

Government Finance Officers Association. (n.d.). Code of Ethics.
https://www.gfoa.org/code-of-ethics
Videos
American Enterprise Institute. (2019, March 4). Love Your Enemies | Say No To
Contempt [Video]. YouTube. https://www.youtube.com/watch?v=8dv1ORTvm8w
(6 minute video)
Brooks, D. (2021, October 15). Finding the Road to Character | David Brooks [Video]. BYU
Speeches. https://speeches.byu.edu/talks/david-brooks/finding-the-road-to-character/
(33 minute video)
160
Appendix F
Consultant Bios
Debra J. Jarvis is the lead consultant for this organizational culture assessment report. Prior to
consulting, she served 25 years in public safety, of which eight years were as a fire chief in the
Chicago suburbs, and the previous 17 years in the Indianapolis area with five years as Director
of Education and Safety. She is the owner of Debra J. Jarvis Associates LLC, doing business as
Visioning Values. She has done leadership, organizational culture, and diversity, equity and
inclusion consulting, as well as training for over 15 years in numerous public safety and
nonprofit organizations in 40 of the 50 states in the United States.
Chief Jarvis has worked with numerous small-to-metro size FIRE/EMS departments such as
Milwaukee, WI; Austin, TX; Richmond, VA; Los Angeles, CA; Palo Alto, CA; Westfield, IN; and
Calgary, Alberta in Canada. She has also done work with several state fire service agencies such
as the Colorado Division of Fire Prevention & Control, the South Carolina State Fire Academy,
and the Indiana, Ohio, Michigan, Alaska State Fire Chiefs associations or conferences. She has
also conducted several workshops for the International Fire Chiefs Association.
In addition to consulting, she is also a facilitator for Cornell University’s online diversity, equity
and inclusion certificate programs and has been an IDI® Qualified Administrator of the
Intercultural Development Inventory since 2007. She has also been a member of the Allies for
Racial Justice Leadership Team in the Metro Kansas city area since 2018
(https://alliesforracialjustice.org/).
Ms. Jarvis’s higher education includes a master’s degree in Leadership Studies from Lewis
University in Illinois and a bachelor’s degree in Management from Indiana Wesleyan University.
Two of her certificates include a Harvard fellowship in the "Senior Executives in State and Local
Government" and a Diversity and Inclusion Leadership certificate from Cornell University.
https://www.linkedin.com/in/debrajarvis/
161
Dr. Nozella Brown is the lead consultant for intercultural competency for this report.
She is the CEO of Brown Consulting, LLC, provides Diversity, Equity, Inclusion, and Belonging
(DEIB) training and services for individuals and organizations seeking to expand their
intercultural competence, capacity, and effectiveness in today’s diverse environments. As an
IDI® Qualified Administrator since 2015, she administered the Intercultural Developmental
Inventory (IDI®) to the KCFD executive management, union leadership and DEI leadership work
group.
Upon her retirement in 2021, she received a Director Emeritus honor for her 18 years of service
with Kansas State Research and Extension (KSRE) in Wyandotte County. For 12 years she was a
diversity workshop trainer for the KSRE system. She also coordinated two federally funded
nutrition programs for low-resource populations - supervising, mentoring, and training of
paraprofessionals, volunteers, and interns to increase the effective outreach of these
programs.
Dr. Brown taught social justice and grant-writing courses as an adjunct professor; presented for
local, regional, and national professional meetings and community organizations; served on
several community boards, and received several awards, including two University awards for
outstanding diversity work. In 2021, she completed the Kansas Leadership Center’s 3-step
leadership development training. Dr. Brown earned her EdD and MS in adult, occupational and
continuing education, and BS in home economics and journalism from Kansas State University.
https://www.linkedin.com/in/dr-nozella-bailey-brown-34610922/
162
Dan Bay is a project advisor for this report. He has over forty years of high-level management
experience in the public and private sectors, including working as a senior manager in local
government. During the past 33 years, he has worked with 25 small-to-metro size FIRE/EMS
departments including Chicago, Houston, San Francisco, San Jose, Sacramento, Arlington
County, Virginia, and Fairfax County, Virginia.
Known for sharp analysis and creative problem solving, Mr. Bay’s skills have been applied to a
variety of situations, including organizational assessments, conflict management, cultural
diversity training, team building, executive coaching, communications, project management,
complaint investigations, expert witness testimony, and strategic and operational planning.
For example, during his initial assignment with the San Francisco Fire Department, he oversaw
the design and implementation of the first employee-based peer mediation program in the fire
service, which was later nominated for special recognition by the Harvard Kennedy School of
government. He also assisted the department in its evaluative response to consent decree
reforms imposed by the Federal Court and United States Justice Department.
Mr. Bay designed and implemented an innovative organizational performance system that
features a team-based continuous improvement process that has been utilized by many other
organizations. Based on a set of best practices, the system enables department leaders to
engineer and sustain meaningful changes in the organization’s culture. Moreover, it fosters
direct communication, accountability, and critical analysis about issues that may obstruct
individual and group performance while reinforcing positive interpersonal and operational
practices.
Mr. Bay was awarded a bachelor’s degree from the University of Wisconsin Stevens Point, and a
master’s degree in business administration from the Keller Graduate School of Management.
Recognized as an authority of a variety of management subjects, he has presented to various
university and professional groups, and received numerous awards for contributions to his
professional field.
163

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Culture Assessment Report

For the Kansas City Fire Department

Harvard Business Review, 7 Ways to Practice Active Allyship, November 8, 2022

“If you are neutral in situations of injustice,

“Every action you take is like a vote

CULTURE ASSESSMENT REPORT FOR KANSAS CITY FIRE DEPARTMENT, MO 1

Kansas City Fire Department

CULTURE ASSESSMENT REPORT FOR KANSAS CITY FIRE DEPARTMENT, MO 2

CULTURE ASSESSMENT REPORT FOR KANSAS CITY FIRE DEPARTMENT, MO 3

Opening Contexting Quotes . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 1

CULTURE ASSESSMENT REPORT FOR KANSAS CITY FIRE DEPARTMENT, MO 4

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CULTURE ASSESSMENT REPORT FOR KANSAS CITY FIRE DEPARTMENT, MO 7

CULTURE ASSESSMENT REPORT FOR KANSAS CITY FIRE DEPARTMENT, MO 8

Qualitative Data Summary

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Quantitative Data Summary

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Implications of IDI® Results

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Potential SADEI Assets to Leverage

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Recommendations and Potential Actions

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4. Identify ways to engage personnel at all levels in developing intercultural competence

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5. Engage the IAFF Unions in meaningful, sustained organizational culture transformation.

6. Develop a communications system for effectively communicating important information

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The International Association of Firefighters (IAFF) Local 42 represents 1,113-line personnel,

Table 1: Union Representation of KCFD Personnel

IAFF Local 42 90%

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Diversity, Equity, and Inclusion in the Fire Service

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Culture Report Scope

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Diversity is the range of human differences comprised across different demographic

Inclusion occurs in an organizational environment that enables individuals to simultaneously

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Intercultural Development Inventory® (IDI®) is an assessment instrument that is a statistically

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