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CONSIDERATION OF A NEW FIRE FACILITY MASTER PLAN, FIRE FORCE RESPONSE STANDARD AND FULL-TIME FOUR-PERSON ENGINE CREWS
RESOLUTION NO. 2014-018 OF THE CITY COUNCIL OF THE CITY OF CHULA VISTA ADOPTING A NEW FIRE FACILITY MASTER PLAN WITH MODIFICATIONS, UPDATING THE FIRE DEPARTMENT EMERGENCY MEDICAL AND FIRE RESPONSE STANDARDS, ESTABLISHING AN EFFECTIVE FIRE FORCE RESPONSE STANDARD, AND APPROVING A POLICY FOR MOVING TO FULL-TIME FOUR-PERSON ENGINE CREWS
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RECOMMENDED ACTION
Recommended Action
Council adopt the resolution.
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SUMMARY
The Fire Department is currently operating under a Fire Facility Master Plan that was developed in 1997. This Master Plan called for a nine-station network. Since the adoption of the 1997 Master Plan, increased development densities have been added to the City's General Plan. The City contracted Emergency Services Consulting Incorporated (ESCi) to develop a new Fire Facility Master Plan taking these changes into consideration. ESCi examined future development in accordance with the current General Plan and reasonably expected future growth as envisioned by the City through the year 2030 to evaluate the "issues" and "opportunities" that exist to provide Fire and Emergency Medical Services (EMS) to the city in a manner that provides the high quality services that the citizens of Chula Vista expect from their fire department. The analysis also includes the additional development anticipated under the Letters of Agreement (LOA) with the developers of the University Villages.
The recommendations set forth in the Master Plan prepared by ESCi indicate the Fire/EMS delivery system within the City of Chula Vista can be expanded to meet the expected growth of the community with the expansion of one existing station and the addition of three new fire stations for a total of 12 fire stations The recommendation from the Consultant is to close Station 9 after building the Stations in the Millenia, Bayfront, and Village 8 areas. However, staff does not agree with this recommendation and will continue to operate Station 9. After the new stations are built a new analysis with current data can be done to determine if the Consultant's recommendation should be reconsidered. Additional truck companies will be needed within the system and redeployment of existing resources will need to take place as these are added. Fire stations need to be constructed in a manner so as to accomplish these future changes without major cost and impact to the facilities when they occur. All future growth projected in the city at this time will be properly serviced with the station locations and configuration contained within this plan. The adoption of the Fire Facility Master Plan is necessary to include the three stations in the Public Facilities Development Impact Fee (PFDIF) so the City can finance with development impact fees.
The recommendation for staffing includes that the number of personnel assigned to Fire Department units should be increased to provide the higher level of efficiency shown in national studies and standards that are discussed in this report. While the current level of staffing is not unsafe, as shown in these studies, the City should increase engine crew size from three to four personnel. This increase should be full time and not facilitated with cross staffing or supplemental staffing.
With adoption of the resolution, the City Council will establish two new service level standards for fire services. These include:
1. The first unit on scene within seven (7) minutes, 90% of the time for all calls.
2. The Effective Fire Force of fourteen (14) firefighters on scene within ten (10) minutes, 90% of the time for all structure fires.
With the adoption of this plan the Fire Chief will be directed to establish a multi-year implementation plan to achieve the service level standards approved by Council.
ENVIRONMENTAL REVIEW
The Development Services Director has reviewed the proposed activity for compliance with the California Environmental Quality Act (CEQA) and has determined that the activity (adoption of the Fire Facilities Master Plan) falls under a statutory exemption pursuant to Section 15262 (Feasibility and Planning Studies) of the State CEQA Guidelines because the action is only adoption of the Plan and does not include approval of any of facilities discussed in the Plan. The Plan does not include site specific descriptions for new stations. In the future when the fire facility project(s) are further defined additional environmental review will be completed prior to commencing any of the projects.
BOARD/COMMISSION RECOMMENDATION
The Fire Facility Master Plan was presented to the Growth Management Oversight Commission (GMOC) for their information and comments. However, no formal recommendation was provided by the GMOC, as the plan does not modify the GMOC Standard.
DISCUSSION
The Fire Department is currently operating under a Fire Facility Master Plan that was developed in 1997 (adopted in 2000). This Master Plan called for increasing the City's fire network from six to nine stations, and reflected the annexation of the Otay Ranch area. Of the nine stations identified in the 1997 Master Plan, eight have been constructed. In addition, in 2005 the City reopened the former Fire Station 3 (renamed Station 9), increasing the current system to nine stations.
The 1997 Master Plan did not anticipate the addition of University Villages in the Southeast or the additional density now planned for the Millennia Development and the Bayfront. The City contracted Emergency Services Consulting Incorporated (ESCi) to develop a new Fire Facility Master Plan taking these changes into consideration. ESCi examined future development in accordance with the current General Plan and reasonably expected future growth as envisioned by the City through the year 2030. This was done to evaluate the "issues" and "opportunities" that exist to provide high quality Fire and Emergency Medical Services (EMS) to the city. The Master Plan before you is the result of ESCi's work (Proposed Master Plan).
The Fire Department provides an All-Hazards emergency response service and responds to a variety of calls. The Department responds to approximately 15,000 calls for service each year, with over 85% of them medical in nature. The Department also works closely with neighboring fire agencies through automatic aid agreements along our borders so that the closest unit responds regardless of jurisdiction.
Master Plan Recommendations - Standards
The Fire Department is focused on meeting two very important goals. The first is to respond to a critical medical emergency, such as a cardiac arrest where someone's heart has stopped, within 4-6 minutes. This is the time a person has between clinical and biological death and a chance for our firefighters to revive them. The other critical goal is to respond to a structure fire in a timely manner that keeps a fire confined to the room of origin. This benchmark saves lives and minimizes property damage. Current and future service standards are based upon these goals.
The Proposed Master Plan was developed with these two goals in mind and is centered on being able to meet two service level standards. These include:
1. The first unit on scene within seven (7) minutes, 90% of the time for all calls.
2. The Effective Fire Force of fourteen (14) firefighters on scene within ten (10) minutes, 90% of the time for all structure fires.
The first unit on scene standard is designed to meet the goal of the critical medical patient and also to initiate rescue and firefighting activity with a minimum of four firefighters on scene. The Effective Fire Force is the assemblage of enough equipment and personnel to bring a routine structure fire to a positive outcome. This standard is based on the National Fire Protection Association (NFPA 1710) which is a national model based on a typical 2,000 square foot single family dwelling. In order to meet these standards the plan recommends three new stations being built in the growth areas of the City, in addition to the modification from 3 person to 4 person fire engine staffing.
Master Plan Recommendations - Facilities
The Proposed Master Plan reflects the construction of an twelve station network. Of the nine stations in the 1997 Master Plan, only the EUC/Millenia station is yet to be constructed. This planned station carries over into the Proposed Master Plan, along with two additional stations, for a total of three future stations to be constructed.
The first station planned is the Millennia Project, which requires an Engine and Truck Company at that station. The Truck Company is needed because of the high development density and high-rise risks associated with the development. With the existing truck at Station 7, the recommendation is to move Truck 57 to Station 4 to balance the delivery system. This will require the expansion of Station 4 to accommodate the truck company. This will create two trucks in the East part of the City.
The second station planned is on the Bayfront which also triggers an Engine and another Truck company because of density. The third station planned is in the Village 8 development and would include an Engine Company.
The recommendation also suggests moving the heavy rescue (USAR 53) to the Bayfront so they can respond more effectively to calls for service. After this move occurs the consultant's recommendation is to close down Station 9 and move Engine 59 to Station 3. It is Staff's recommendation, however, to keep Station 9 open and operating and re-evaluate updated current data after these three stations are operational to determine if the Station 9 recommendation should be reconsidered.
Master Plan Recommendations - Operations
Along with building the three stations, the recommendation is to increase the staffing on Engines from three to four people. This will allow the Department to meet the service standards without building additional fire stations. This will also allow the first arriving firefighters to enter the structure and begin the fire attack. OSHA regulations require a minimum of four firefighters on scene prior to an entry. Four person staffing will be phased in by expanding existing three person crews. The specific order in which the crews are expanded to four person staffing will be based on Department's adopted goals and standards.
All of these changes would be implemented incrementally in accordance with phasing requirements of the benefitting developments. The costs associated with the implementation of the Master Plan will be included in the City's Five-Year Financial Forecast, along with offsetting revenues anticipated to be generated by the associated development projects (Millenia, Bayfront and University Villages). The implementation of 4 person Engine crews in existing developed areas of the City will result in an on-going General Fund impact not offset by these new revenues.
DECISION-MAKER CONFLICT
Regarding the location of sites of new facilities, Staff has reviewed the property holdings of the City of Chula Vista City Council and has found no property holdings within 500 feet of the boundaries of the property which is the subject of this action. Regarding other matters, Staff has reviewed the decision contemplated by this action and determined that it is not site specific and consequently, the 500-foot rule found in California Code of Regulation section 18704.2(a)(1), is not applicable to this decision.
LINK TO STRATEGIC GOALS
The City's Strategic Plan has five major goals: Operational Excellence, Economic Vitality, Healthy Community, Strong and Secure Neighborhoods and a Connected Community. Adoption of the Fire Facility Master Plan supports the Strong and Secure Neighborhoods goal. Adoption of the Plan is a Citywide Objective under City Initiative 4.3.2 - "Restore and Enhance Public Safety Service Capacity."
CURRENT YEAR FISCAL IMPACT
The Fire Facility Master Plan is designed to be implemented in future years and it is not anticipated to have a current year fiscal impact on the General Fund.
ONGOING FISCAL IMPACT
This deployment plan for the Chula Vista Fire Department provides a plan for changes in resource deployment in the future, including new stations, apparatus or personnel, along with associated cost projections.
It should be noted that the cost projections are being provided in today's dollar values, with no additional inflationary increases based on changes in consumer price index. Actual cost of any component of the master plan, therefore, could be different at the point in the future when the specific action is implemented.
The assumptions used in the cost projection are as follows:
· Each new fire station that is intended to house a truck company is estimated at 12,500 square feet. This includes three drive-through bays and living space for up to twelve personnel. Cost is estimated at $450 per square foot, for a total cost of $5,625,000 per station.
· Each new fire station that is intended to house an engine company, but no truck company, is estimated at 9,500 square feet. This includes two drive-through bays and living space for up to eight personnel. Cost is estimated at $450 per square foot, for a total cost of $4,275,000 per station.
· No specific land acquisition costs have been projected here. Land has been purchased by the City for the Bayfront Station. Land is also considered within the development agreement for the Millennia Station.
· Cost for purchase of each new engine is projected at $565,000.
· Cost for purchase of each new ladder truck is projected at $1,200,000.
· Cost for associated equipment (hose, SCBA, tools, etc.) for each new apparatus has been projected at $200,000.
· Cost for station operation (supplies, utilities, maintenance) is projected at $4.41 per square foot annually.
· Annual cost for each position includes mid-range salary and all benefits. Costs are projected as follows:
o Fire Captain- $145,691
o Fire Engineer- $127,481
o Firefighter- $111,666
· Leave ratios are calculated in these projections, resulting in a total of full-time equivalencies for each of the positions shown. This indicates the relative number of FTE's necessary to provide the quantity of on-duty staffing indicated. Leave ratios are calculated at 30%, based on historical leave use (per Citygate report dated February 2011).
The following table projects the capital cost and one year of new annual operating costs for each station and associated personnel, as well as anticipated phasing in of the proposed four person staffing model.
Notes:
*Remodel of FS4 reflects addition of 9,500 SF to accommodate one additional apparatus and four additional personnel.
**The preceding table reflects only the utility savings from closing Fire Station 9. Personnel from this station would be reassigned to Fire Station 3, resulting in no additional fiscal impact.
The City's Public Facilities Development Impact Fee (PFDIF) program will be the primary funding source for the one-time capital expenditures; the General Fund will be the funding source for the operating costs.
The next comprehensive update of the PFDIF program will identify the level of capital program financial support required from both the General Fund and the PFDIF. This determination will consider the extent to which the facility construction/expansion is required to serve existing development, versus facilities required to serve new development only. Once the cost sharing between the City and the PFDIF is determined, the new development related facilities will be added to the PFDIF program fee calculation. PFDIF funds cannot be used to fund operating expenses; those expenses must be supported by the General Fund. General Fund operating costs associated with the Proposed Master Plan will be included in the City's Five-Year Financial Forecast, along with offsetting revenues anticipated to be generated by the associated development projects (Millenia, Bayfront and University Villages). The implementation of 4 person Engine crews in existing developed areas of the City will result in an on-going General Fund impact not offset by these new revenues. The estimated cost of implementing 4 person Engine crews is approximately $4.4 million on an annual basis.
ATTACHMENTS
· Resolution
· The 2014 Chula Vista Fire Department Fire Facility Master Plan
· Cost Projection sheet from ESCi
· The Chula Vista Chamber of Commerce Letter of Support
· Chamber of Commerce Letter of Support