LAFCO
Final Report on Fire Protection Emergency Medical Services Municipal Service Review
Read the report at Local Agency Formation Commissions ↗
Alameda Countywide
Fire and Emergency Medical
Municipal Service Review
alameda lafco
draft final
march 5, 2024
Submitted by:
Policy Consulting Associates & Berkson Associates
Alameda Fire Municipal Service Review
Public Review Draft
Table of Contents ......................................................................................................................................... 1
List of Figures ................................................................................................................................................ 6
Acronyms ........................................................................................................................................................ 9
Preface ............................................................................................................................................................ 13
Context ...................................................................................................................................................................... 13
Credits ....................................................................................................................................................................... 13
1. Executive Summary ............................................................................................................................ 14
Challenges to Fire Provision ................................................................................................................................ 15
Impacts of Climate Change ................................................................................................................................ 15
Wildland Urban Interface ..................................................................................................................................... 16
Evolution of Legislative Requirements .............................................................................................................. 16
Financial Adequacy ................................................................................................................................................ 17
Efficiencies and Governance Options .............................................................................................................. 17
Recommendations ................................................................................................................................................... 19
2. Background .......................................................................................................................................... 22
LAFCO Overview ................................................................................................................................................. 22
Municipal Services Review Legislation ............................................................................................................ 22
Municipal Services Review Process .................................................................................................................. 23
Sphere of Influence Updates .............................................................................................................................. 23
Disadvantaged Unincorporated Communities .............................................................................................. 25
3. Overview .............................................................................................................................................. 27
Study Area .............................................................................................................................................................. 27
Growth & Population Projections ..................................................................................................................... 28
Fire and EMS Services ........................................................................................................................................ 32
Service Demand ..................................................................................................................................................... 48
Financial Ability of Agencies ............................................................................................................................... 61
Governance Structure Options and Recommendations ............................................................................ 63
4. Alameda County Fire Department ............................................................................................... 70
Agency Overview ................................................................................................................................................... 70
Accountability and Governance ........................................................................................................................ 72
Planning and Management Practices .............................................................................................................. 74
Existing Demand and Growth Projections ..................................................................................................... 76
Financial Ability to Provide Services ................................................................................................................ 78
Fire Services ............................................................................................................................................................. 81
Table of Contents 1
Policy Consulting Associates, LLC
Alameda Fire Municipal Service Review
Public Review Draft
Alameda County Fire Department MSR Determinations ......................................................................... 95
5. East Bay Regional Park District .................................................................................................... 97
Agency Overview ................................................................................................................................................... 97
Accountability and Governance ....................................................................................................................... 99
Planning and Management Practices ............................................................................................................. 101
Existing Demand and Growth Projections ................................................................................................... 103
Financial Ability to Provide Services .............................................................................................................. 104
Fire Services .......................................................................................................................................................... 105
East Bay Regional Park District MSR Determinations ............................................................................. 113
6. Emergency Medical Services County Service Area ............................................................... 115
Agency Overview .................................................................................................................................................. 115
Accountability and Governance ....................................................................................................................... 118
Planning and Management Practices ............................................................................................................ 120
Existing Demand and Growth Projections ................................................................................................... 123
Financial Ability to Provide Services ............................................................................................................... 124
Emergency Medical Services ............................................................................................................................ 126
Emergency Medical Services CSA Determinations .................................................................................... 137
7. Fairview Fire Protection District .................................................................................................. 139
Agency Overview ................................................................................................................................................. 139
Accountability and Governance ....................................................................................................................... 142
Planning and Management Practices ............................................................................................................. 145
Existing Demand and Growth Projections ................................................................................................... 146
Financial Ability to Provide Services ............................................................................................................... 147
Fire Services .......................................................................................................................................................... 149
Governance Options .......................................................................................................................................... 156
Fairview Fire Protection District Determinations ........................................................................................ 158
8. City of Alameda Fire Department ............................................................................................. 160
Agency Overview ................................................................................................................................................. 160
Accountability and Governance ...................................................................................................................... 163
Planning and Management Practices ............................................................................................................ 165
Existing Demand and Growth Projections ................................................................................................... 166
Financial Ability to Provide Services ................................................................................................................ 171
Fire Services ........................................................................................................................................................... 172
City of Alameda Fire Department MSR Determinations ......................................................................... 181
9. City of Albany Fire Department ................................................................................................. 183
Agency Overview ................................................................................................................................................. 183
Accountability and Governance ...................................................................................................................... 185
Table of Contents 2
Policy Consulting Associates, LLC
Alameda Fire Municipal Service Review
Public Review Draft
Planning and Management Practices ............................................................................................................. 187
Existing Demand and Growth Projections ................................................................................................... 188
Financial Ability to Provide Services .............................................................................................................. 192
Fire Services .......................................................................................................................................................... 193
City of Albany Fire Department MSR Determinations ........................................................................... 202
10. City of Berkeley Fire Department ......................................................................................... 204
Agency Overview ................................................................................................................................................ 204
Accountability and Governance ..................................................................................................................... 206
Planning and Management Practices ........................................................................................................... 208
Existing Demand and Growth Projections .................................................................................................... 211
Financial Ability to Provide Services .............................................................................................................. 216
Fire Services .......................................................................................................................................................... 218
City of Berkeley Fire Department MSR Determinations ........................................................................ 230
11. City of Dublin Fire Services ..................................................................................................... 232
Agency Overview ................................................................................................................................................ 232
Accountability and governance ........................................................................................................................ 234
Planning and Management Practices ........................................................................................................... 236
Existing Demand and Growth Projections .................................................................................................. 238
Financial Ability to Provide Services .............................................................................................................. 242
Fire Services .......................................................................................................................................................... 243
City of Dublin Fire MSR Determinations .................................................................................................... 252
12. City of Emeryville Fire Services .............................................................................................. 254
Agency Overview ................................................................................................................................................. 254
Accountability and Governance ..................................................................................................................... 256
Planning and Management Practices ........................................................................................................... 258
Existing Demand and Growth Projections ................................................................................................... 261
Financial Ability to Provide Services ............................................................................................................. 264
Fire Services ......................................................................................................................................................... 265
City of Emeryville Fire MSR Determinations .............................................................................................. 274
13. City of Fremont Fire Department .......................................................................................... 276
Agency Overview ................................................................................................................................................. 276
Accountability and Governance ...................................................................................................................... 279
Planning and Management Practices ............................................................................................................ 281
Existing Demand and Growth Projections .................................................................................................. 282
Financial Ability to Provide Services ............................................................................................................. 288
Fire Services ......................................................................................................................................................... 289
City of Fremont Fire Department MSR Determinations ........................................................................ 299
Table of Contents 3
Policy Consulting Associates, LLC
Alameda Fire Municipal Service Review
Public Review Draft
14. City of Hayward Fire Department ......................................................................................... 301
Agency Overview ................................................................................................................................................. 301
Accountability and Governance ..................................................................................................................... 303
Planning and Management Practices ........................................................................................................... 306
Existing Demand and Growth Projections ................................................................................................... 307
Financial Ability to Provide Services .............................................................................................................. 312
Fire Services ........................................................................................................................................................... 313
City of Hayward Fire Department MSR Determinations ........................................................................ 324
15. Cities of Livermore and Pleasanton Fire Department .................................................... 326
Agency Overview ................................................................................................................................................ 326
Accountability and Governance ....................................................................................................................... 331
Planning and Management Practices ........................................................................................................... 336
Existing Demand and Growth Projections .................................................................................................. 339
Financial Ability to Provide Services .............................................................................................................. 345
Fire Services .......................................................................................................................................................... 347
Cities of Livermore and Pleasanton Fire Department MSR Determinations .................................... 357
16. City of Newark Fire Services ................................................................................................. 359
Agency Overview ................................................................................................................................................ 359
Accountability and Governance ..................................................................................................................... 362
Planning and Management Practices ........................................................................................................... 364
Existing Demand and Growth Projections .................................................................................................. 366
Financial Ability to Provide Services ............................................................................................................. 369
Fire Services .......................................................................................................................................................... 370
City of Newark Fire Department MSR Determinations .......................................................................... 379
17. City of Oakland Fire Department ......................................................................................... 381
Agency Overview ................................................................................................................................................. 381
Accountability and Governance ..................................................................................................................... 383
Planning and Management Practices ........................................................................................................... 385
Existing Demand and Growth Projections ................................................................................................... 387
Financial Ability to Provide Services ............................................................................................................. 390
Fire Services .......................................................................................................................................................... 391
City of Oakland Fire Department MSR Determinations ....................................................................... 400
18. City of Piedmont Fire Department ....................................................................................... 402
Agency Overview ................................................................................................................................................ 402
Accountability and Governance ..................................................................................................................... 404
Planning and Management Practices ........................................................................................................... 406
Existing Demand and Growth Projections ................................................................................................... 407
Table of Contents 4
Policy Consulting Associates, LLC
Alameda Fire Municipal Service Review
Public Review Draft
Financial Ability to Provide Services .............................................................................................................. 410
Fire Services .......................................................................................................................................................... 410
City of Piedmont Fire Department MSR Determinations ....................................................................... 418
19. City of San Leandro Fire Services ........................................................................................ 420
Agency Overview ................................................................................................................................................ 420
Accountability and governance ........................................................................................................................ 422
Planning and Management Practices ............................................................................................................ 424
Existing Demand and Growth Projections .................................................................................................. 426
Financial Ability to Provide Services ............................................................................................................. 430
Fire Services ........................................................................................................................................................... 431
City of San Leandro Fire Department MSR Determinations .................................................................. 441
20. City of Union City Fire Services ............................................................................................ 443
Agency Overview ................................................................................................................................................. 443
Accountability and Governance ...................................................................................................................... 445
Planning and Management Practices ............................................................................................................ 447
Existing Demand and Growth Projections ................................................................................................... 449
Financial Ability to Provide Services .............................................................................................................. 453
Fire Services .......................................................................................................................................................... 454
City of Union City Fire Department MSR Determinations .................................................................... 464
Contributors .............................................................................................................................................. 466
Appendix A: Financial Tables .............................................................................................................. 468
Table of Contents 5
Policy Consulting Associates, LLC
Alameda Fire Municipal Service Review
Public Review Draft
Figure 3-1: Population Growth Rates in Alameda County, 2010-2022 ___________________________ 28
Figure 3-2: Planned or Proposed Development in Alameda County, 2023 ________________________ 29
Figure 3-3: ABAG Population Projections by Alameda Superdistrict, 2015-2050 ____________________ 31
Figure 3-4: ABAG Population Projections by Alameda Superdistrict, 2015-2050 ____________________ 31
Figure 3-5: DOF Population Projections _________________________________________________ 32
Figure 3-6: Fire Services by Agency ____________________________________________________ 34
Figure 3-7: Fire Agencies in Alameda County ____________________________________________ 37
Figure 3-8: Local Hazard Mitigation Plans and Safety Element Expiration Dates ____________________ 47
Figure 3-9: Total Service Calls by Reporting Agency, 2020 ___________________________________ 49
Figure 3-10: Climate Action Plans and Emission Goals by Agency ______________________________ 52
Figure 3-11: State Responsibility Area Fire Hazard Severity Alameda County ______________________ 57
Figure 3-12: Wildland Urban Interface Areas in Alameda County _______________________________ 58
Figure 3-13: Wildland Urban Interface Impact on Population __________________________________ 59
Figure 3-14: Revenue and Expenditure Summary by Agency ___________________________________ 62
Figure 4-1: Alameda County Fire Department Service Area and SOI ___________________________ 71
Figure 4-2: ACFD Governing Body ____________________________________________________ 72
Figure 4-3: ACFD Services __________________________________________________________ 81
Figure 4-4: ACFD Calls for Service, 2013-2020 ___________________________________________ 84
Figure 4-5: ACFD Service Calls by Type, 2020 ___________________________________________ 86
Figure 4-6: ACFD Facilities _________________________________________________________ 88
Figure 4-7: Response Time Policies by Contract City _______________________________________ 93
Figure 5-1: East Bay Regional Park District Boundaries and SOI in Alameda County ________________ 98
Figure 5-2: EBRPD Governing Body __________________________________________________ 100
Figure 5-3: EBRPD Services ________________________________________________________ 105
Figure 5-4: EBRPD Facilities ________________________________________________________ 109
Figure 5-5: EBRPD Response Time Policy _______________________________________________ 112
Figure 6-1: EMS CSA Boundaries and SOI _____________________________________________ 117
Figure 6-2: EMS CSA Governing Body _________________________________________________ 119
Figure 6-3: EMS CSA Services ______________________________________________________ 128
Figure 6-4: EMS CSA Calls for Service (2016-2022) ______________________________________ 130
Figure 6-5: Response Time Standards _________________________________________________ 134
Figure 7-1: Fairview Fire Protection District Boundaries and SOI ______________________________ 140
Figure 7-2: Fairview FPD Governing Body ______________________________________________ 143
Figure 7-3: Fairview FPD Services ____________________________________________________ 149
Figure 7-4: FFPD Calls by Type ______________________________________________________ 151
Figure 7-5: FFPD Service for Services (2013-2020) ________________________________________ 152
Figure 7-6: FFPD Facilities _________________________________________________________ 153
Figure 7-7: FFPD Response Time Policy _______________________________________________ 155
Figure 8-1: City of Alameda Boundaries and SOI _________________________________________ 161
Figure 8-2: City of Alameda Boundaries and SOI ________________________________________ 162
Figure 8-3: City of Alameda Governing Body ____________________________________________ 163
Figure 8-4: City of Alameda Population 2010-2022 _______________________________________ 169
Figure 8-5: City of Alameda Development Projects ________________________________________ 170
Figure 8-6: City of Alameda Fire Services ______________________________________________ 172
Figure 8-7: City of Alameda Calls for Service (2013-2020) __________________________________ 175
Figure 8-8: City of Alameda Service Calls by Type, 2020 ___________________________________ 175
Figure 8-9: City of Alameda Fire Facilities ______________________________________________ 177
Figure 8-10: City of Alameda Response Time Policy _______________________________________ 179
Figure 9-1: City of Albany Boundaries and SOI __________________________________________ 184
Figure 9-2: City of Albany Governing Body _____________________________________________ 185
Figure 9-3: City of Albany Population Growth 2012-2022 ___________________________________ 190
Figure 9-4: City of Albany Planned or Proposed Development Projects, 2023 ______________________ 191
Figure 9-5: City of Albany Fire Services ________________________________________________ 193
Figure 9-6: City of Albany Calls for Service, 2014 _________________________________________ 197
Figure 9-7: City of Albany Fire Facilities _______________________________________________ 198
Figure 9-8: City of Albany Response Time Policy _________________________________________ 200
List of Figures 6
Policy Consulting Associates, LLC
Alameda Fire Municipal Service Review
Public Review Draft
Figure 10-1: City of Berkeley Boundaries and SOI _________________________________________ 205
Figure 10-2: City of Berkeley Governing Body ____________________________________________ 207
Figure 10-3: City of Berkeley Population Growth, 2010-2022 _________________________________ 214
Figure 10-4: City of Berkeley Planned or Proposed Development Projects, 2023 ____________________ 215
Figure 10-5: City of Berkeley Fire Services _______________________________________________ 218
Figure 10-6: City of Berkeley Service Calls by Type ________________________________________ 222
Figure 10-7: City of Berkeley Service Calls (2013-2020) _____________________________________ 222
Figure 10-8: City of Berkeley Fire Facilities ______________________________________________ 223
Figure 10-9: City of Berkeley Response Time Policy ________________________________________ 228
Figure 11-1: City of Dublin Boundaries and SOI __________________________________________ 233
Figure 11-2: City of Dublin Governing Body _____________________________________________ 234
Figure 11-3: City of Dublin Population Growth, 2010-2022 ___________________________________ 239
Figure 11-4: City of Dublin Planned or Proposed Development Projects, 2023 _____________________ 240
Figure 11-5: City of Dublin Fire Service Structure _________________________________________ 243
Figure 11-6: City of Dublin Fire and Emergency Medical Service Calls by Type, 2020 _______________ 246
Figure 11-7: City of Dublin Fire Facilities ________________________________________________ 247
Figure 11-8: City of Dublin Response Time Policy _________________________________________ 251
Figure 12-1: City of Emeryville Boundaries and SOI ________________________________________ 255
Figure 12-2: City of Emeryville Governing Body ___________________________________________ 257
Figure 12-3: City of Emeryville Population Growth, 2010-2022 ________________________________ 261
Figure 12-4: City of Emeryville Planned or Proposed Development Projects, 2023 ___________________ 263
Figure 12-5: City of Emeryville Fire Service Structure _______________________________________ 265
Figure 12-6: City of Emeryville Calls for Service, 2019-2020 __________________________________ 268
Figure 12-7: City of Emeryville Fire Facilities _____________________________________________ 269
Figure 12-8: City of Emeryville Response Time Policy _______________________________________ 272
Figure 13-1: City of Fremont Boundaries and SOI _________________________________________ 278
Figure 13-2: City of Fremont Governing Body ____________________________________________ 279
Figure 13-3: City of Fremont Population, 2010-2022 ________________________________________ 284
Figure 13-4: City of Fremont Planned or Proposed Development Projects, 2023 ____________________ 286
Figure 13-5: City of Fremont Fire Services _______________________________________________ 289
Figure 13-6: City of Fremont Calls for Service (2013-2020) ___________________________________ 293
Figure 13-7: City of Fremont Service Calls by Type, 2020 ___________________________________ 293
Figure 13-8: City of Fremont Fire Facilities ______________________________________________ 295
Figure 13-9: City of Fremont Response Time Policy ________________________________________ 297
Figure 14-1: City of Hayward Boundaries and SOI ________________________________________ 302
Figure 14-2: City of Hayward Governing Body ___________________________________________ 304
Figure 14-3: The City of Hayward Land Use Diagram ______________________________________ 308
Figure 14-4: City of Hayward Population Growth, 2010-2022 _________________________________ 309
Figure 14-5: City of Hayward Planned or Proposed Development Projects, 2023 ___________________ 310
Figure 14-6: City of Hayward Fire Services ______________________________________________ 314
Figure 14-7: City of Hayward Calls for Service (2013-2020) __________________________________ 317
Figure 14-8: City of Hayward Service Calls by Type, 2020 __________________________________ 317
Figure 14-9: City of Hayward Fire Facilities ______________________________________________ 319
Figure 14-10: City of Hayward Response Time Policy _______________________________________ 323
Figure 15-1: Livermore Pleasanton Fire Department Boundaries and SOI Unserved Areas ____________ 330
Figure 15-2: City of Livermore Governing Body ___________________________________________ 332
Figure 15-3: City of Pleasanton Governing Body __________________________________________ 334
Figure 15-4: Livermore-Pleasanton Fire Department Governing Body ____________________________ 335
Figure 15-5: City of Livermore Population Growth, 2010-2022 ________________________________ 341
Figure 15-6: City of Pleasanton Population Growth, 2010-2022 ________________________________ 341
Figure 15-7: Cities of Livermore and Pleasanton Planned or Proposed Development Projects, 2023 ______ 343
Figure 15-8: Cities of Livermore and Pleasanton Fire Services _________________________________ 347
Figure 15-9: Cities of Livermore and Pleasanton Calls by Type, 2020 ___________________________ 350
Figure 15-10: Cities of Livermore and Pleasanton Service Calls for Services (2013-2020) ______________ 350
Figure 15-11: Cities of Livermore and Pleasanton Fire Facilities _________________________________ 352
Figure 15-12: Livermore-Pleasanton Fire Department Response Time Policy ________________________ 356
Figure 16-1: City of Newark Boundaries and SOI _________________________________________ 361
Figure 16-2: City of Newark Governing Body ____________________________________________ 362
Figure 16-3: City of Newark Population, 2010-2021 ________________________________________ 367
Figure 16-4: City of Newark Planned or Proposed Development Projects, 2023 ____________________ 369
Figure 16-5: City of Newark Fire Services _______________________________________________ 371
Figure 16-6: City of Newark Calls for Service (2019-2020) ___________________________________ 374
Figure 16-7: City of Newark Fire Facilities _______________________________________________ 375
List of Figures 7
Policy Consulting Associates, LLC
Alameda Fire Municipal Service Review
Public Review Draft
Figure 16-8: Response Time Policies by Contract City ______________________________________ 378
Figure 17-1: City of Oakland Boundaries and SOI ________________________________________ 382
Figure 17-2: City of Oakland Governing Body ____________________________________________ 383
Figure 17-3: City of Oakland Population 2010-2022 ________________________________________ 387
Figure 17-4: City of Oakland Planned or Proposed Development Projects, 2023 ___________________ 388
Figure 17-5: City of Oakland Fire Services ______________________________________________ 391
Figure 17-6: City of Oakland Calls for Service (2013-2020) __________________________________ 395
Figure 17-7: City of Oakland Service Calls by Type, 2020 ___________________________________ 395
Figure 17-8: City of Oakland Fire Facilities ______________________________________________ 396
Figure 17-9: City of Oakland Response Time Standards ____________________________________ 400
Figure 18-1: City of Piedmont Boundaries and SOI ________________________________________ 403
Figure 18-2: City of Piedmont Governing Body ___________________________________________ 404
Figure 18-3: City of Piedmont Population 2010-2022 _______________________________________ 408
Figure 18-4: City of Piedmont Planned or Proposed Development Projects, 2023 ___________________ 409
Figure 18-5: City of Piedmont Fire Services _______________________________________________ 411
Figure 18-6: City of Piedmont Calls for Service (2013-2020) __________________________________ 413
Figure 18-7: City of Piedmont Service Calls by Type, 2020 __________________________________ 414
Figure 18-8: City of Piedmont Fire Facilities ______________________________________________ 414
Figure 18-9: City of Piedmont Response Time Policy _______________________________________ 416
Figure 19-1: City of San Leandro Boundaries and SOI ______________________________________ 421
Figure 19-2: City of San Leandro Governing Body _________________________________________ 423
Figure 19-3: City of San Leandro Population, 2010-2022 ____________________________________ 428
Figure 19-4: City of San Leandro Planned or Proposed Development Projects, 2023 ________________ 429
Figure 19-5: City of San Leandro Fire Services ___________________________________________ 431
Figure 19-6: City of San Leandro Service Calls by Type, 2020 ________________________________ 434
Figure 19-7: City of San Leandro Fire Facilities ___________________________________________ 435
Figure 19-8: Response Time Policies by Contract City ______________________________________ 439
Figure 20-1: City of Union Boundaries and SOI ___________________________________________ 444
Figure 20-2: City of Union City's Governing Body _________________________________________ 445
Figure 20-3: City of Union City Population Growth, 2010-2022 _______________________________ 452
Figure 20-4: City of Union City Planned or Proposed Development Projects, 2023 __________________ 453
Figure 20-5: City of Union City Fire Services _____________________________________________ 455
Figure 20-6: City of Union Calls for Service (2013-2020) ____________________________________ 458
Figure 20-7: City of Union Fire Facilities ________________________________________________ 459
Figure 20-8: City of Union City Response Time Policy ______________________________________ 462
List of Figures 8
Policy Consulting Associates, LLC
Alameda Fire Municipal Service Review
Public Review Draft
AAGR: Average Annual Growth Rate
AB: Assembly Bill
ABAG: Association of Bay Area Governments
ACFCC: Alameda County Fire Communication Center
ACFD: Alameda County Fire Department
ACHPP: Alameda County Health Pathway Partnership
ACRECC: Alameda County Regional Emergency Communications Center
ADU: Accessory Dwelling Unit
AFD: City of Alameda Fire Department
ALCO EMS: Alameda County Emergency Medical Services
ALS: Advanced Life Support
APOT: Ambulance Patient Offload Time
ARFF: Aircraft Rescue and Firefighting
BFD: Berkeley Fire Department
BLS: Basic Life Support
BOE California Board of Equalization
BUSD: Berkeley Unified School District
CA: California
CAD: Computer Aided Dispatch
CAFR: Comprehensive Annual Financial Report
CAL EMA: California Emergency Management Agency
CAL FIRE: California Department of Forestry and Fire Protection
CalPERS: California Public Employees' Retirement System
CAP: Climate Action Plan/Program
CAPCE: Commission on Accreditation for Pre-hospital Continuing Education
C.A.R.E.: Community Assessment Response and Engagement
CARP: Climate Action and Resiliency Plan
CATT: Community Assessment and Transport Team
CDP: Census Designated Places
CEQA: California Environmental Quality Act
CERBT: California Employer's Retiree Benefit Trust
CERT: Community Emergency Response Team
CHP: California Highway Patrol
Acronyms 9
Policy Consulting Associates, LLC
Alameda Fire Municipal Service Review
Public Review Draft
CICCS: California Incident Command Certification Center and Special Operations
CIP: Capital Improvement Plan
CKH: Cortese-Knox-Hertzberg
CPF: California Professional Firefighters
CPR: Cardiopulmonary Resuscitation
CPSE: Center for Public Safety Excellence
CSA: County Service Area
CSDA: California Special District Association
CWPP: Community Wildfire Protection Plan
CY: Calendar Year
DPA: Direct Protection Areas
DOF: California Department of Finance
DUC: Disadvantaged Unincorporated Community
EBMUD: East Bay Municipal Utility District
EBPRD: East Bay Regional Park District
EBRCSA: East Bay Regional Communications System Authority
ECAP: Equitable Climate Action Plan
EDZ: Economic Development Zone
EMD: Emergency Medical Dispatch
EMOC: Executive Management Oversight Committee
EMS: Emergency Medical Services
EMS CSA: Emergency Medical Services County Service Area
EMSA: Emergency Medical Services Authority
EMT: Emergency Medical Technician
EOA: Exclusive Operating Area
EOP: Emergency Operations Plan
ERAF: Educational Revenue Augmentation Fund
FDAC-FASIS: Fire District Association of California- Fire Agency Self-Insurance System
FEERAM: Fire Engine Equipment Replacement and Maintenance
FEMA: Federal Emergency Management Agency
FD: Fire District
FDC: Fire Department Dispatch Center
FEMA: Federal Emergency Management Agency
FF: Firefighter
FFD: Fremont Fire Department
Acronyms 10
Policy Consulting Associates, LLC
Alameda Fire Municipal Service Review
Public Review Draft
FFPD: Fairview Fire Protection District
FHSZ: Fire Hazard Safety Zone
FMP: Fire Facilities Master Plan
FNC: Falck Northern California
FPD: Fire Protection District
FRA: Federal Responsibility Area
FRALS: First Responder Advanced Life Support
FTE: Full-Time Equivalent
FY: Fiscal Year
GHG: Greenhouse Gas Emissions
GIS: Geographic Information Systems
GM: General Manager
GP: General Plan
HCD: Housing and Community Development
HFD: Hayward Fire Department
ISO: Insurance Services Organization
JHA: Jurisdiction Having Authority
JPA: Joint Powers Authority
LAFCO: Local Agency Formation Commission
LEMSA: Local Emergency Medical Services Agency
LHMP: Local Hazard Mitigation Plan
LBNL: Lawrence Berkeley National Laboratory
LPFD: Livermore-Pleasanton Fire Department
LLNL: Lawrence Livermore National Laboratory
LRA: Local Responsibility Area
LTFP: Long-Term Financial Plan
LVJUSD: Livermore Valley Joint Unified School District
MD: Medical Doctor
MOU: Memorandum of Understanding
MPDS: Medical Priority Dispatch System
MRA: Mutual Response Area
MSR: Municipal Service Review
NERT: Neighborhood Agency Response Team
MTC: Metropolitan Transportation Commission
NA: Not applicable
Acronyms 11
Policy Consulting Associates, LLC
Alameda Fire Municipal Service Review
Public Review Draft
NFPA: National Fire Protection Association
NP: Not Provided
OASA: Out-of-Area Service Agreement
OES: Office of Emergency Services
OFD: Oakland Fire Department
OIT: Operator in Training
OPEB: Other Post-Employment Benefits
OPR: Office of Planning and Research
PC: Planning Commission
PDA: Priority Development Area
PFD: Piedmont Fire Department
PPC: Public Protection Classifications
PPD: Piedmont Police Department
PSAP: Public Safety Answering Point
RFP: Request for Proposals
RHNA: Regional Housing Needs Allocation
RN: Registered Nurse
SAFER: Staffing for Adequate Fire and Emergency Response
SB: Senate Bill
SCBA: Self-Contained Breathing Apparatus
SCU: Santa Clara Unit
SDMRA: Special District Risk Management Authority
SHSGP: State Homeland Security Grant Program
SOC: Standards of Cover
SOI: Sphere of Influence
SR: State Route
SRA: State Responsibility Area
TOD: Transit-oriented Development
TLAR: Technical large animal rescue
UASI: Urban Areas Security Initiative
UHU: Unit hour utilization
USFS: United States Forest Service
WEA: Wireless Emergency Alert
WPCG: Wildfire Prevention Coordinating Group
WUI: Wildland Urban Interface
Acronyms 12
Policy Consulting Associates, LLC
Alameda Fire Municipal Service Review
Public Review Draft
Prepared for the Local Agency Formation Commission of Alameda County (LAFCO), this
report is a countywide fire protection and emergency medical services review—a state-required
comprehensive study of services within a designated geographic area. This Service Review
focuses on local agencies and other service providers in Alameda County that provide fire,
medical and other related emergency services.
Alameda County LAFCO is required to prepare this Countywide Fire Service Review by the
Cortese-Knox-Hertzberg Local Government Reorganization Act of 2000 (Government Code
§56000, et seq.), which took effect on January 1, 2001. This fire and emergency medical service
review examines services provided by public agencies in Alameda County whose boundaries
and governance are subject to LAFCO.
The authors extend their appreciation to those individuals at the many agencies that provided
responses to questionnaires, as well as planning and financial information and documents used
in this report. The contributors are listed individually at the end of this report.
Alameda LAFCO staff provided project coordination. This report was prepared in conjunction
by Policy Consulting Associates, LLC and Berkson Associates, and was co-authored by
Jennifer Stephenson, Richard Berkson, Melat Assefa, and Jill Hetland. Jennifer Stephenson
served as project manager. Dennis Miller, with Featherhorse Designs, provided GIS and
mapping services.
Preface 13
Policy Consulting Associates, LLC
Alameda Fire Municipal Service Review
Public Review Draft
This report is a Municipal Service Review (MSR) of fire and emergency medical services
provided in Alameda County prepared for the Alameda Local Agency Formation Commission
(LAFCO). An MSR is a State-required comprehensive study of services within a designated
geographic area, in this case, Alameda County. The MSR requirement is codified in the
Cortese-Knox-Hertzberg Local Government Reorganization Act of 2000 (Government Code
§56000 et seq.). This report focuses on fire and emergency medical service providers located
in Alameda County which are under the jurisdiction of Alameda LAFCO.
The most recent MSR covering Alameda special districts and cities specific to public safety
including fire and emergency medical services was completed in 2004. The special districts,
including those reviewed in this report, were again individually reviewed in 2013. Municipal
services offered by the cities, including fire and EMS, were also reviewed in 2018.
Four special districts and 14 cities were reviewed as part of this MSR:
• Alameda County Fire Department • City of Emeryville
(ACFD) • City of Fremont
• East Bay Regional Park District • City of Hayward
(EBRPD)
• City of Livermore
• Emergency Medical Services County
• City of Newark
Service Area (EMS CSA)
• City of Oakland
• Fairview Fire Protection District (FFPD)
• City of Piedmont
• City of Alameda
• City of Pleasanton
• City of Albany
• City of San Leandro
• City of Berkeley
• City of Union City
• City of Dublin
Of the special districts reviewed, two provide direct services, one is responsible for local EMS
planning across the County, and one provides fire protection and EMS to its residents by
contract with a city fire department. Of the cities reviewed, seven maintain their own fire
departments, two cities are served by a combination fire department operating through a joint
powers authority model, and five are served by Alameda County Fire Department by
contract—Dublin, San Leandro, Newark, Union City, and Emeryville.
Ch. 1: Executive Summary 14
Policy Consulting Associates, LLC
Alameda Fire Municipal Service Review
Public Review Draft
Most fire providers across the State and within Alameda County are faced with similar
challenges, including:
• Constrained budgets combined with increased costs,
• Meeting expanding standards and requirements,
• Multiple service providers and communication systems contributing to diminished
interoperability, response consistency, and efficiency,
• Duplication and/or lean staffing of certain services (i.e., administration), and
• Larger and more frequent wildfires.
While each of these issues can pose an obstacle to service provision that the agencies
continually work to mitigate, the primary challenge faced in Alameda and the State is the
threat of increased occurrence and size of wildfires resulting predominantly from longer drier fire
seasons and other extreme weather conditions. Alameda County fire agencies, municipalities,
and community members are working collaboratively to address environmental changes and
protect at-risk communities.
There is strong evidence that climate change, especially rising temperatures and periodic
droughts, have made substantial contributions to the increase in the frequency and area
burned in wildfires in the State and along the west coast.1 According to most climatologists,
the planet is starting to experience shifts in climate patterns and an increased frequency of
extreme weather events. Over the next century, a variety of changes to local climate conditions
are anticipated, including more frequent and prolonged higher temperatures leading to extreme
heat events and wildfires that decrease air quality and cause extended periods of drought.2
The impacts of climate change on wildfires in Alameda County are already apparent as
indicated by 1) increased average annual maximum temperature (1.7°F from 1950 to 2000), 2)
severe moisture deficit and drought (2012 to 2016 California's drought led to the most severe
moisture deficit over the last 1,200 years), 3) 100 more wildfire days annually in the Bay Area
from 1973 to 2020, and 4) wildfires are becoming more intense—the most destructive wildfire
1 State of California, California's Fourth Climate Change Assessment San Francisco Bay Area Region Report, 2019, p. 28.
2 Alameda County, Alameda County Local Hazard Mitigation Plan, 2021, p. 4-2.
Ch. 1: Executive Summary 15
Policy Consulting Associates, LLC
Alameda Fire Municipal Service Review
Public Review Draft
in Alameda County in recorded history was the Lightning Complex in 2020 that burned
24,642 acres within Alameda County and destroyed 222 homes in the five-county region.
Given that a majority of the fire providers reviewed are also land use authorities, one means of
battling climate change and its impacts is through their land use planning documents and
strategies. Alameda County agencies have collaborated on many of the strategies on a
regional level, particularly through the Association of Bay Area Governments (ABAG) Plan
Bay Area 2050, as well as other cooperative planning documents. Additionally, cities and
counties in California are required to adopt climate action plans (CAPs) as part of the state's
efforts to reduce greenhouse gas emissions. The requirements for these plans vary depending
on the population size of the jurisdiction and whether the jurisdiction is considered a "high
GHG-emitting community." Some cities in Alameda have adopted more aggressive targets
and strategies for reducing greenhouse gas emissions than legally required within their climate
actions plans.
Alameda County has experienced consistently strong growth in recent years, which is
anticipated to continue over the next three decades. Most growth has been concentrated in the
urban city areas, but there has been a proliferation of residences in unincorporated areas as
well. Current conditions in the County are indicative of development neighboring or abutting
wildland areas. Wildland urban interface (WUI) areas are primarily surrounding the Tri-Valley
area of Livermore, Pleasanton, and Dublin, and the territory east of the urbanized Interstate
880 corridor from the northern county line to the southern county line.
Agencies in the County make use of the principles of land use, land management and
structural hardening to mitigate risks in the WUI areas. These strategies direct future growth
away from the highest-fire-risk zones, support increased wildland management programs to
reduce ignition risk and fire intensity, and support residential building upgrades that reduce the
likelihood of damage when fires occur in the WUI.
Given the accelerating impacts of climate change on wildfire risks particularly in WUI areas,
several legislative requirements have been established to align public safety planning efforts
with hazard mitigation and land use planning efforts.
Ch. 1: Executive Summary 16
Policy Consulting Associates, LLC
Alameda Fire Municipal Service Review
Public Review Draft
The focus of the new requirements mandates that the Safety Element of the General Plan be
updated concurrently with the Housing Element update every eight years. The Safety Element
should also contain general hazard and risk reduction strategies complementary to those of the
Local Hazard Mitigation Plan (LHMP). Additionally, the LHMP is to be incorporated into the
Safety Element as a supplementary attachment.3 Alameda agencies are working towards
compliance with these requirements, with many of the agencies already in compliance.
COVID-19 contributed to the financial challenges facing fire and EMS agencies, similar to
most other public agencies. Property tax revenues, which are a significant source of funding for
most fire and EMS agencies, continued strong growth and helped to offset countervailing
economic forces. Increasing inflationary factors in 2022 and beyond threaten recovery from the
pandemic. City fire departments face additional pressures from competing city service priorities;
city funding of services includes more diverse general funds (e.g., sales and hotel taxes),
compared to fire districts. Non-property tax revenues typically are more sensitive to adverse
economics compared to property taxes and assessments.
While revenues have shown positive growth trends over the past five years from 2018 through
2022, slower growth or in some cases revenue declines due to COVID-19 have not kept pace
with continued expenditure growth. All agencies and cities show adequate reserves that can
help to backfill annual shortfalls. In addition to the use of reserves, agencies have taken other
short-term measures to address inadequate short-term revenues, for example, by freezing
positions, and deferring major capital and other one-time expenditures.
The fire agencies in Alameda County have demonstrated extensive collaboration with one
another in the form of joint studies and grants, contracts and partnerships, facility and resource
sharing, regionalization of dispatch services, and the implementation of closest resource
dispatching strategies in certain areas, which is indicative of the potential for continued
regionalization or other service structure reorganization.
Significant enhancements have been made to communications and dispatch in the County over
the last 15 years. Fire and EMS dispatch is increasingly becoming regionalized with a growing
number of agencies using the Alameda County Regional Emergency Communications Center
3 Governor's Office of Planning and Research General Plan Guidelines, 2017, p. 141.
Ch. 1: Executive Summary 17
Policy Consulting Associates, LLC
Alameda Fire Municipal Service Review
Public Review Draft
(ACRECC). Additionally, improvements have been made to the County's communication
system through the East Bay Regional Communications System Authority (EBRCSA). The
EBRCSA communications system provides fully interoperable communications to member
public agencies within the two counties. This system was planned and constructed to improve
safety, eliminate duplication of overlapping independent systems, and provide effective
interoperable voice communications. This regionalization and interconnection of communication
and dispatch systems should be continued to the degree possible.
Across the State, there is a trend toward using a closest resource dispatch strategy countywide
to ensure the fastest response times. This dispatch strategy means that all agency boundaries
are eliminated for dispatch purposes to enhance efficiency for the benefit of the constituents.
Steps towards transitioning to a closest resource dispatch strategy have been made on a local
level in Alameda with ACFD and Livermore Pleasanton Fire Department agreeing to a
streamlined automatic mutual aid agreement, where either agency can be automatically
dispatched to eliminate the delay in dispatch for requested mutual aid. It is recommended that
Alameda fire providers review and consider the possibility of a conversion to a fully
implemented closest resource dispatch model. The degree to which the closest resource system
can be executed may be restricted by communication and dispatch structure capabilities.
Alameda County fire providers have a history of regionalization through consolidation,
consortiums, contract service provision, and joint powers authorities, which have reduced
duplication of efforts and enhanced efficiencies. Using these transitions as models there is the
potential for further regionalization to reap similar benefits. The most feasible options available
are contracting with a neighboring agency for services, such as ACFD contract services to the
five cities, or a joint powers authority for functionally consolidated services, such as the
Livermore Pleasanton Fire Department. The primary benefits of these governance structure
options are economies of scale, which is achieved through pooling of resources, and regional
fire service coordination and planning to the greatest degree. Of note is that recent legislative
changes have been made that now require a LAFCO application and consideration for fire
contract services between two public agencies. Formation of a joint powers authority continues
to be outside of LAFCO review. It is recommended that the agencies continue to consider if a
structural change such as those mentioned may be beneficial to their agency and most
importantly the public that they serve.
An effort is underway to develop a formal agreement between stakeholder agencies to reduce
wildfire threat throughout the East Bay, within both Alameda and Contra Costa Counties, to
address increasing threats from wildfire, pool resources at a regional level, and enhance
Ch. 1: Executive Summary 18
Policy Consulting Associates, LLC
Alameda Fire Municipal Service Review
Public Review Draft
coordination amongst multiple responders. Efforts of this nature that enhance regional planning
and coordination of prevention and suppression efforts would have value added in other
portions of the County and Bay Area as well.
Six counties in California have opted to provide contract services to the State to fill CAL
FIRE's obligations within their counties. Given the evolution of fire service that has occurred in
recent decades, assessing the possibility of Alameda County transitioning to a "contract
county" to the State may be warranted. Inclusion of Santa Clara and Contra Costa in the
restructuring, should their fire agencies express interest, would create a more cohesive fire
service structure in the Bay Area and likely enhance bargaining power with the State.
Consideration of reorganization of Fairview FPD continues to be an option, although it has
been reviewed several times in the past and no change has occurred. The district remains the
sole independent fire protection district in the County, and contracts for services from the City
of Hayward Fire Department. When last reviewed in 2013, district residents were vocally
opposed to reorganization. Because the District does not provide any direct services, but rather
administers a contract for service provision, certain operating and administrative expenses could
be avoided by dissolving FFPD and having another existing service provider take on
governance and operations of fire service in the area. The most feasible and likely the most
beneficial option is annexation of FFPD's territory by ACFD and continued contract services by
the City of Hayward. Residents could retain the service provider they prefer, and savings could
be achieved with a management layer and election costs eliminated through government
reorganization.
Below are the various recommendations for agencies to consider to address the issues identified
throughout this report.
• It is recommended that the EBRPD, ACFD, Albany Fire Department, City of Alameda,
FFPD, EMS CSA, City of Berkeley, City of Dublin, City of Emeryville, City of Fremont,
City of Hayward, Cities of Livermore and Pleasanton, City of Newark, City of
Oakland, City of Piedmont, City of San Leandro, and City of Union City join fellow
Alameda Fire providers to develop a regional, countywide dispatch strategy that
employs the closest resource for the fastest response time, regardless of agency
boundaries or responsibilities.
Ch. 1: Executive Summary 19
Policy Consulting Associates, LLC
Alameda Fire Municipal Service Review
Public Review Draft
• No governance structure options specific to EBRPD were identified over the course of
this review; however, it is recommended that EBRPD continue to participate in regional
planning and coordination efforts to the greatest extent possible, such as the East Bay
Hills Prevention and Vegetation Management Coordination MOU and the East Bay
Regional Communications System Authority (EBRCSA).
• No governance structure alternatives specific to the City of Albany Fire Department,
City of Alameda, City of Berkeley, City of Hayward, and Cities of Livermore and
Pleasanton were identified over the course of this review; however, it is recommended
that the Departments continue to seek ways to collaborate and enhance service levels
on a regional level with other providers.
• It is recommended that the EMS CSA ensure an improved contract is negotiated with
any subsequent provider to ensure an adequate level of services is maintained by the
provider. Alternately, it is recommended that the EMS CSA explore the "alliance
model" option that other agencies across California, such as the City of San Diego and
Contra Costa County, have adopted and renegotiate the contract with Falck to ensure
compliance and ambulance coverage.
• It is recommended that EMS CSA provide the Commission with a 6-month update on
service improvement.
• The City of Dublin has its fire and emergency response service needs adequately met
by ACFD, with three staffed fire stations throughout its boundaries. It is recommended
that a continued reevaluation of the service area and response times occur to ensure
areas outside the city center, particularly in the west, receive adequate services.
• No governance structure alternatives specific to the City of Dublin, City of Emeryville,
City of Newark, City of San Leandro, and the City of Union City were identified over
the course of this review; however, ACFD, in contract with the Cities, has a goal to
pursue regional cooperation and consolidation of services. ACFD views dispatch,
administration, and the operations division as areas that would benefit from greater
regional collaboration.
• The City of Fremont adequately meets its fire and emergency response facility needs.
There are 11 fire stations and one tactical training center fully staffed and strategically
placed throughout the City. However, there should be a continued reevaluation of the
service area and response times to ensure areas, particularly in and near Station 1,
receive adequate services as the station nears response capacity and longer response
times.
Ch. 1: Executive Summary 20
Policy Consulting Associates, LLC
Alameda Fire Municipal Service Review
Public Review Draft
• The City of Hayward Fire Department has the financial ability to continue to provide
services. However, ongoing City structural imbalances must continue to be addressed to
minimize and eliminate adverse financial consequences for fire protection services.
• Infrastructure needs primarily focused on stations 27 and 29 for the City of Newark are
concerned mainly with cosmetic repairs. However, the construction of a training tower is
needed to allow for live fire training.
• The City of Union City should add a direct link (not within a dropdown menu) to
agendas on its website. This action would put the City in compliance with all legislative
obligations for accountability and governance practices.
• ACFD adequately meets the City of Union City's facility needs. However, efforts
should be made to move three engine companies west to be better able to access
edges of the City that are currently unable to meet the goals for effective response
times in multi-unit incidents.
Ch. 1: Executive Summary 21
Policy Consulting Associates, LLC
Alameda Fire Municipal Service Review
Public Review Draft
This report is prepared pursuant to legislation enacted in 2000 that requires LAFCO to
conduct a comprehensive review of municipal service delivery and update the spheres of
influence (SOIs) of all agencies under LAFCO's jurisdiction. This chapter provides an overview
of LAFCO's powers and responsibilities. It discusses legal requirements for preparation of the
municipal services review (MSR), and describes the process for MSR review, MSR approval
and SOI updates.
LAFCO regulates, through approval, denial, conditions and modification, boundary changes
proposed by public agencies or individuals. It also regulates the extension of public services by
cities and special districts outside their boundaries. LAFCO is empowered to initiate updates to
the SOIs and proposals involving the dissolution or consolidation of special districts, mergers,
establishment of subsidiary districts, and any reorganization including such actions. Otherwise,
LAFCO actions must originate as petitions or resolutions from affected voters, landowners,
cities or districts.
The Cortese-Knox-Hertzberg Local Government Reorganization Act of 2000 requires LAFCO
review and update SOIs not less than every five years and to review municipal services before
updating SOIs. The requirement for service reviews arises from the identified need for a more
coordinated and efficient public service structure to support California's anticipated growth. The
service review provides LAFCO with a tool to study existing and future public service
conditions comprehensively and to evaluate organizational options for accommodating growth,
preventing urban sprawl, and ensuring that critical services are provided efficiently.
Government Code §56430 requires LAFCO to conduct a review of municipal services
provided in the county by region, sub-region or other designated geographic area, or by type of
service, as appropriate, for the service or services to be reviewed, and prepare a written
statement of determination with respect to each of the following topics:
• Growth and population projections for the affected area;
Ch. 2: Background 22
Policy Consulting Associates, LLC
Alameda Fire Municipal Service Review
Public Review Draft
• The location and characteristics of any disadvantaged unincorporated communities
(DUCs) within or contiguous to the SOI;
• Present and planned capacity of public facilities and adequacy of public services,
including infrastructure needs or deficiencies (including needs or deficiencies related to
sewers, municipal and industrial water, and structural fire protection in any DUCs
within or contiguous to the sphere of influence);
• Financial ability of agencies to provide services;
• Status of, and opportunities for shared facilities;
• Accountability for community service needs, including governmental structure and
operational efficiencies; and
• Any other matter related to effective or efficient service delivery, as required by
commission policy.
The MSR process does not require LAFCO to initiate changes of organization based on
service review findings, only that LAFCO identify potential government structure options.
However, LAFCO, other local agencies, and the public may subsequently use the
determinations to analyze prospective changes of organization or reorganization or to establish
or amend SOIs. Within its legal authorization, LAFCO may act with respect to a
recommended change of organization or reorganization on its own initiative (e.g., certain types
of consolidations), or in response to a proposal (i.e., initiated by resolution or petition by
landowners or registered voters).
MSRs are exempt from California Environmental Quality Act (CEQA) pursuant to §15306
(information collection) of the CEQA Guidelines. LAFCO's actions to adopt MSR
determinations are not considered "projects" subject to CEQA.
The Commission is charged with developing and updating the sphere of influence (SOI) for
each city and special district within the county. SOIs must be updated every five years or as
necessary. In determining the SOI, LAFCO is required to complete an MSR and adopt the
seven determinations previously discussed.
Ch. 2: Background 23
Policy Consulting Associates, LLC
Alameda Fire Municipal Service Review
Public Review Draft
An SOI is a LAFCO-approved plan that designates an agency's probable future boundary
and service area. Spheres are planning tools used to provide guidance for individual boundary
change proposals and are intended to encourage efficient provision of organized community
services and prevent duplication of service delivery. Territory cannot be annexed by LAFCO to
a city or a district unless it is within that agency's sphere.
The purposes of the SOI include the following: to ensure the efficient provision of services,
discourage urban sprawl and premature conversion of agricultural and open space lands, and
prevent overlapping jurisdictions and duplication of services.
LAFCO cannot regulate land use, dictate internal operations or administration of any local
agency, or set rates. LAFCO is empowered to enact policies that indirectly affect land use
decisions. On a regional level, LAFCO promotes logical and orderly development of
communities as it considers and decides individual proposals. LAFCO has a role in reconciling
differences between agency plans so that the most efficient urban service arrangements are
created for the benefit of current and future area residents and property owners.
The Cortese-Knox-Hertzberg (CKH) Act requires to develop and determine the SOI of each
local governmental agency within the county and to review and update the SOI every five
years. LAFCOs are empowered to adopt, update and amend the SOI. They may do so with
or without an application and any interested person may submit an application proposing an
SOI amendment.
LAFCO may recommend government reorganizations to particular agencies in the county,
using the SOIs as the basis for those recommendations.
• In addition, in adopting or amending an SOI, LAFCO must make the following
determinations:
• Present and planned land uses in the area, including agricultural and open-space lands;
• Present and probable need for public facilities and services in the area;
• Present capacity of public facilities and adequacy of public service that the agency
provides or is authorized to provide;
• Existence of any social or economic communities of interest in the area if the
Commission determines these are relevant to the agency; and
• Present and probable need for water, wastewater, and structural fire protection facilities
and services of any DUCs within the existing sphere of influence.
Ch. 2: Background 24
Policy Consulting Associates, LLC
Alameda Fire Municipal Service Review
Public Review Draft
By statute, LAFCO must notify affected agencies 21 days before holding the public hearing to
consider the SOI and may not update the SOI until after that hearing. The LAFCO Executive
Officer must issue a report including recommendations on the SOI amendments and updates
under consideration at least five days before the public hearing.
LAFCO is required to evaluate disadvantaged unincorporated communities (DUCs) as part of
this service review, including the location and characteristics of any such communities.
The purpose of Senate Bill (SB) 244 (Wolk, 2011) is to begin to address the complex legal,
financial, and political barriers that contribute to regional inequity and infrastructure deficits
within DUCs. Identifying and including these communities in the long-range planning of a city
or a special district is required by SB 244.
The Cortese-Knox-Hertzberg Local Government Reorganization Act (CKH) requires LAFCO
to make determinations regarding DUCs when considering a change of organization,
reorganization, sphere of influence expansion, and when conducting municipal service reviews.
For any updates to an SOI of a local agency (city or special district) that provides public
facilities or services related to sewer, municipal and industrial water, or structural fire protection,
LAFCO shall consider and prepare written determinations regarding the present and planned
capacity of public facilities and adequacy of public services, and infrastructure needs or
deficiencies for any DUC within or contiguous to the SOI of a city or special district.
CKH prohibits LAFCO from approving an annexation to a city of any territory greater than
10 acres if a DUC is contiguous to the proposed annexation, unless an application to annex
the DUC has been filed with LAFCO. An application to annex a contiguous DUC shall not
be required if a prior application for annexation of the same DUC has been made in the
preceding five years or if the Commission finds, based upon written evidence, that a majority of
the registered voters within the affected territory are opposed to annexation.
Government Code §56033.5 defines a DUC as 1) all or a portion of a "disadvantaged
community" as defined by §79505.5 of the Water Code, and as 2) "inhabited territory" (12 or
more registered voters), as defined by §56046, or as determined by commission policy.
Alameda LAFCO has adopted Policy 14.6 regarding DUCs.
14.6 Disadvantaged Unincorporated Communities: Pursuant to SB 244 (Chapter 513,
Statutes of 2011), disadvantaged unincorporated communities (DUCs) are inhabited
Ch. 2: Background 25
Policy Consulting Associates, LLC
Alameda Fire Municipal Service Review
Public Review Draft
unincorporated areas (containing 12 or more registered voters) where the annual median
household income is less than 80 percent of the statewide median household income and
where infrastructure deficiencies and lack of access to reliable potable water, wastewater and
structural fire protection services exist. In conducting MSRs, Alameda LAFCO shall rely on
Census Designated Places as the basis for determining DUCs or on the county and cities
within Alameda County if they have identified DUCs in their respective general plans. LAFCO
shall make determinations regarding the location and characteristics of DUCs as well as
infrastructure needs or deficiencies related to sewers, municipal and industrial water, and
structural fire protection.
According to the definition of DUCs, there is one DUC in Alameda County. The community
of Ashland is considered the County's only CDP that meets the income definition of a DUC;
however, it is provided essential services, including structural fire protection as reviewed in this
report and, therefore, no SOI changes have been recommended based on its status.
Ch. 2: Background 26
Policy Consulting Associates, LLC
Alameda Fire Municipal Service Review
Public Review Draft
This chapter provides an overview of fire and emergency medical service providers in Alameda
County. The most recent municipal service review (MSR) covering Alameda special districts
and cities specific to public safety and including fire and emergency medical services was
completed in 2004. The special districts, including those reviewed in this report, were again
individually reviewed in 2013. Municipal services offered by the cities, including fire and EMS,
were reviewed in 2018.
This review focuses on fire and related services provided in incorporated and unincorporated
Alameda County by those agencies under LAFCO's jurisdiction, consisting of four special
districts and 14 cities. For a detailed description of each local agency included in this review,
please refer to the agency-specific chapters of this report. For a comprehensive perspective on
the structure of fire and emergency services in the County, agencies not under LAFCO
jurisdiction are also included in this review, including joint powers authorities, private contract
organizations, and State and federal providers.
Alameda County, one of the nine San Francisco Bay Area counties, is located along the
eastern shore of the San Francisco Bay. The County covers approximately 738 square miles
and is one of only two Bay Area counties that spans an area that reaches from the Bay to
California's Central Valley. The western portion of Alameda County is located generally on
the East Bay Plain between the coastal hills and the Bay. The area is heavily urbanized and
contains the incorporated cities of Albany, Berkeley, Emeryville, Piedmont, Oakland, Alameda,
San Leandro, Hayward, Union City, Newark, and Fremont, as well as the unincorporated
urban areas of Castro Valley, Fairview, San Lorenzo, Ashland, and Cherryland.
Eastern Alameda County is primarily composed of the coastal range's rough terrain that
extends from the hills above the Bay Plain to the border with San Joaquin County in the
Central Valley. It is comprised mainly of non-urban uses including agriculture, parkland,
watershed, and open space. This area has relatively low population density except for the
Livermore-Amador Valley in which the incorporated cities of Dublin, Pleasanton, and Livermore
are located.4
4 Alameda County, Alameda General Plan Safety Element, 2022, p. vii.
Ch. 3: Overview 27
Policy Consulting Associates, LLC
Alameda Fire Municipal Service Review
Public Review Draft
This section reviews historical and recent population and economic growth, projected growth,
and growth areas.
There were 1,510,271 residents in Alameda County in 2010, according to the 2010 Census.
The population in the unincorporated communities was 149,506, composing just over nine
percent of the County's entire population. Since 2010, the countywide population has
experienced growth of about 9.4 percent, to 1,651,979 in 2022. Annually, the entire County
averaged 0.8 percent positive population growth from 2010 to 2022. A majority of the growth
in the County has been focused in the incorporated areas. The unincorporated areas averaged
0.47 percent growth annually during the same period.
Population growth rates in Alameda County are shown in Figure 3-1. The growth rate in
unincorporated portions of the County peaked between 2019 and 2020, with growth of 3.4
percent. Growth in incorporated areas of the County peaked between 2012 and 2013 with
growth of 1.6 percent. Countywide population declined between 2020 and 2021.
Among the cities within the County, Dublin has experienced the most significant rate of
population growth with 3.9 percent average annual growth over the 12-year period.
Conversely, Union City has experienced a decline in growth with negative 0.2 percent average
annual growth over the same time period.
Figure 3-1: Population Growth Rates in Alameda County, 2010-2022
4.00%
3.00%
2.00%
1.00%
0.00%
4/1/10 1/1/11 1/1/12 1/1/13 1/1/14 1/1/15 1/1/16 1/1/17 1/1/18 1/1/19 4/1/20 1/1/21 1/1/22
-1.00%
-2.00%
Unincorporated Incorporated County Total
Ch. 3: Overview 28
Policy Consulting Associates, LLC
Alameda Fire Municipal Service Review
Public Review Draft
Alameda County's population density is 2,235 residents per square mile, including incorporated
and unincorporated areas. There are approximately 2.66 persons per household countywide.
The County's population has historically been concentrated along the San Francisco Bay and
Interstate 880 corridor in the western portion of the County and along the Interstate 580
corridor in the north central portion of the County. The cities of Albany, Berkeley, Emeryville,
Oakland, and Alameda have the greatest population density in the County. Population density
tapers in the cities in the southern and central portions of the County.
Anticipated development is an indicator of growth potential and a trigger to address necessary
municipal service capacity enhancements associated with the degree of impending growth.
There are four potential multi-use housing developments in unincorporated Alameda proposed
to be located in the Castro Valley, Eden, Fairview, and San Lorenzo communities. These
projects are in various phases of the review process. In total, the four projects plan for 216
housing units and 18,643 square feet of commercial space.
There are a significant number of major projects in various stages of development throughout
the County. Most notably, the cities of Fremont and Oakland account for the largest
percentage of these projects with the City of Fremont expected to add more than 7,607
dwelling units and 2,834,648 commercial/industrial square feet, and the City of Oakland with
4,378 dwelling units and 763,121 commercial/industrial square feet planned or proposed.
Figure 3-2: Planned or Proposed Development in Alameda County, 2023
alameda county development projects
location # of dwelling units commercial sq. ft.
City of Alameda 3,921 268,000
City of Albany 281 12,253
City of Berkeley 559 19,732
City of Dublin 6,406 817,642
City of Emeryville 1,502 54,710
City of Fremont 7,607 2,834,648
City of Hayward 1,684 117,613
Cities of Livermore and Pleasanton 245 159,510
City of Newark 564 79,304
City of Oakland 4,378 763,121
City of Piedmont 30
City of San Leandro 2,040 483,600
City of Union 491
Unincorporated Alameda 216 18,643
total 29,924 5,628,776
Source: City and County project lists available on their websites, accessed 4/21/23
Ch. 3: Overview 29
Policy Consulting Associates, LLC
Alameda Fire Municipal Service Review
Public Review Draft
Population projections for the County vary among data sources. Generally, the municipalities
and the County make use of the projections developed through a collaborative effort with the
Association of Bay Area Governments (ABAG). Projections through 2050 were developed as
part of ABAG's Plan Bay Area 2050 that was finalized in 2021. The Plan Bay Area 2050 was
created by ABAG and the Metropolitan Transportation Commission (MTC) in collaboration
with Bay Area residents, partner agencies and nonprofit organizations. It lays out a $1.4 trillion
vision for structured growth and was adopted by the ABAG Executive Board and the MTC on
October 21, 2021. Plan Bay Area 2050 is now the nine-county Bay Area's official long-range
plan across the key elements of housing, economic development, transportation and
environmental resilience. The land use authorities in Alameda County rely heavily on the
regional plan developed collaboratively.
The Plan Bay Area 2050 anticipates that Alameda County will continue to be a strong part of
the region's growth, according to past and predicted growth trends. The East Bay, comprised
of Alameda and Contra Costa counties, is expected to add another one-third of housing
growth, distributed across urban and suburban growth geographies. The two counties combined
are projected to accommodate around one-third of the region's job growth. Alameda County is
expected to have the second highest share of both household and job growth after Santa
Clara County. Because so much of the Bay Area's housing is already located in Alameda
County, with many of its residents commuting to other counties for work, intensified job growth
in Alameda County could help to address the jobs-to-housing imbalance and associated
transportation challenges, such as congested roads and crowded trains.5
ABAG is responsible for forecasting changes to the Bay Area population and economy to help
local governments prepare for an ever-changing environment. The Plan Bay Area 2050
Growth Pattern provides the Plan's projected household and job growth for the region looking
out to 2050.
Alameda County is anticipated to experience population growth of 54 percent over the 35-year
period from 2015 to 2050, which equates to a countywide population of almost 2.5 million by
2050. ABAG projections are broken down into regional superdistricts, with five superdistricts
composing Alameda. The East Alameda County superdistrict, composed of the Cities of
Dublin, Livermore, and Pleasanton, is anticipated to have the highest growth rate in the
County with 82 percent growth by 2050. North Alameda County's superdistrict rate of
5 ABAG, Plan Bay Area 2050, 2021, p. 114.
Ch. 3: Overview 30
Policy Consulting Associates, LLC
Alameda Fire Municipal Service Review
Public Review Draft
growth is lower (59 percent) but will constitute a greater share of total regional growth due to
its larger size; it represents eight percent of all projected population growth in the nine-county
area.
Figure 3-3: ABAG Population Projections by Alameda Superdistrict, 2015-2050
abag population projections
share of
percent regional
superdistrict jurisdictions growth growth
Dublin, Livermore,
East Alameda County (15) 82% 4%
Pleasanton
Newark, Fremont,
South Alameda County (16) 45% 3%
Union City
Central Alameda County (17) San Leandro, Hayward 33% 3%
Alameda, Piedmont,
North Alameda County (18) 59% 8%
Oakland
Albany, Berkeley,
Northwest Alameda County (19) 57% 3%
Emeryville
Source(s): ABAG, Plan Bay Area 2050: The Final Blueprint Growth Pattern, 2020.
Using ABAG's household projections in combination with 2015 population from the California
Department of Finance, it is estimated that Alameda will have a net population increase of
871,192 by 2050. Projected average annual growth will vary by superdistrict from 0.82 percent
to 1.73 percent each year.
Figure 3-4: ABAG Population Projections by Alameda Superdistrict, 2015-2050
abag population projections
2015 (dof annual
superdistrict estimate) 2050 growth rate
East Alameda County (15) 217,697 396,209 1.73%
South Alameda County (16) 345,722 501,297 1.07%
Central Alameda County (17) 243.882 324,363 0.82%
North Alameda County (18) 509,114 809,491 1.33%
Northwest Alameda County (19) 149,104 234,093 1.30%
Source(s): ABAG, Plan Bay Area 2050: The Final Blueprint Growth Pattern, 2020.
The California Department of Finance (DOF) also produces population projections for the
period through 2060. DOF population projections statewide and for Alameda County are
shown in Figure 3-5. The DOF projects a countywide population of 1.9 million by 2050. This
would amount to an increase of 19.2 percent over the 35-year period from 2015, which is
greater than the 12.9 percent growth anticipated throughout the State. Growth is projected to
Ch. 3: Overview 31
Policy Consulting Associates, LLC
Alameda Fire Municipal Service Review
Public Review Draft
peak in Alameda County over the period from 2025 to 2030, and slowly taper through 2050.
The DOF projections are significantly more conservative than the Plan Bay Area 2050's
projections of 54 percent growth over the same time period. The land use authorities in
Alameda County rely on ABAG population projections for planning purposes, which ensures
adequate planning occurs for municipal services based on the greater population forecasts.
Figure 3-5: DOF Population Projections
dof population projections
2015 2020 2025 2030 2035 2040 2045 2050
California 39,007,121 39,782,419 40,808,001 41,860,549 42,718,403 43,353,414 43,785,947 44,049,015
% Change 1.99% 2.58% 2.58% 2.05% 1.49% 1.00% 0.6%
Alameda 1,622,375 1,671,855 1,725,911 1,785,496 1,836,364 1,877,766 1,909,308 1,933,085
% Change 3.05% 3.23% 3.45% 2.85% 2.25% 1.68% 1.25%
Source(s): California Department of Finance, P-2A Total Population for California and Counties 2010-2060.
This section provides an overview of fire protection and emergency medical services provided
by local agencies in Alameda County. For a detailed description of each service provider, refer
to the agency's respective chapter in this document.
This report focuses on fire and emergency medical service providers located in Alameda
County which are under the jurisdiction of Alameda LAFCO. As shown in Figure 3-6, four
special districts and 14 cities were reviewed as part of this Municipal Service Review. Of the
special districts reviewed, two provide direct services, one is responsible for local EMS planning
across the County, and one provides fire protection and EMS to its residents by contract with
a city fire department. Of the cities reviewed, seven maintain their own fire departments, two
cities are served by a combination fire department operating through a joint powers authority
model, and five are served by Alameda County Fire Department by contract— Dublin, San
Leandro, Newark, Union City, and Emeryville.
Additionally, while not under the jurisdiction of LAFCO, other agencies that are an integral
part of the fire services structure are described to provide a comprehensive account of the
structure of fire and emergency response services in Alameda County. These service providers
Ch. 3: Overview 32
Policy Consulting Associates, LLC
Alameda Fire Municipal Service Review
Public Review Draft
include California Department of Forestry and Fire Protection (CAL FIRE), Falck Northern
California (FNC), Lawrence Livermore National Laboratory (LLNL), and the U.S. Army.
The services provided by each agency vary depending on staff expertise, training and
certification, as well as availability of specialized equipment or vehicles, and other resources.
For example, only certain facilities have ladder trucks and helicopter pads. Figure 3-6 details
the various services provided by each agency.
The boundaries of each of these agencies are shown in Figure 3-6.
Ch. 3: Overview 33
Policy Consulting Associates, LLC
Alameda Fire Municipal Service Review
Public Review Draft
Figure 3-6: Fire Services by Agency
service
Ch. 3: Overview 34
Policy Consulting Associates, LLC
dfca
dprbe
asc
sme
dpff
ademala
ynabla
yelekreb
nilbud
ellivyreme
tnomerf drawyah
dfpl
krawen dnalkao tnomdeip
ordnael
nas
ytic
noinu
Fire Suppression Services
Structural Fire Protection P P P P P P P P P P P P P P P P
Wildland Fire Protection P P P P P P P P P P P P P P P P
Vehicle Fire Protection P P P P P P P P P P P P P P P P
Ladder Truck Capabilities P P P P P P P P P P P P P P P
Fire Suppression Hand Crew P P P P
Fire Suppression Dozer P P P P P P
Helicopter Services – Fire Suppression P
Boat With Fire Suppression Capabilities P P P
Emergency Medical Services
Basic Life Support Provider P P P P P P P P P P P P P P
Advanced Life Support - Non Transport Provider P P P P P P P P P P P P P P
Advanced Life Support Transport Provider P P P P P P P P P P
Continuing Education Provider - Medical P P P P P P P P P P P P P P P
Air Ambulance Transport Helicopter Services
Helicopter Landing Facilities Onsite P
Vehicle Extrication Tools/Equipment P P P P P P P P P P P P P P P P
Develops and Enacts Local EMS plan P
Local EMS Agency (LEMSA) P
Fire Prevention
Fire Safety Education – Children P P P P P P P P P P P P P P
Fire Safety Education – Adults/Seniors P P P P P P P P P P P P P P
Juvenile Firesetter Prevention Program P P P P
Fire and Life Safety Business Inspection Program P P P P P P P P P P P P P P P P
Alameda Fire Municipal Service Review
Public Review Draft
service
Ch. 3: Overview 35
Policy Consulting Associates, LLC
dfca
dprbe
asc
sme
dpff
ademala
ynabla
yelekreb
nilbud
ellivyreme
tnomerf drawyah
dfpl
krawen dnalkao tnomdeip
ordnael
nas
ytic
noinu
Fire Protection Planning P P P P P P P P P P P P P P P
New Commercial Construction Plan Reviews P P P P P P P P P P P P P P P
Public Education Provider (CPR, First Aid, etc.) P P P P P P P P P P P P P P P
Home Fire/Safety Inspections P P P P P P P
Fire Origin and Cause Investigations P P P P P P P P P P P P P P P P
Fuel Reduction/Weed Abatement Program P P P P P P P P P P P P P P P P
Smoke Detector Giveaway/Installation Program P P P P P P P P P P P P P P P
Address Sign Installation Program P
Rescue Services
First Responder Swift Water Rescue Program P P P P P P P P P P P
Water Rescue Program P P P P P P P P P P P P P P P
Ice Rescue Program
Dive Rescue Program P
Low angle Rope Rescue Program P P P P P P P P P P P P P P P P
Helicopter Short/Long Haul Rescue Capabilities
Response To Boating Accidents P P P P P P P P P P P P P P
Rescue Dog Services P P P P P P P P P
Hazardous Materials
Hazardous Materials Emergency Response - Basic P P P P P P P P P P P P P P P P
Hazardous Materials Response Team P P P P P P P P P P
Support Services
Firefighter Incident Support Unit P P P P P P P P P P P P
Mobile Incident Command/Communications Unit P P P P P P P P P P P P
Fill Station for Self-Contained Breathing Apparatus P P P P P P P P P P P P P P P P
Mobile Breathing Support Unit P P P P P P P P P P P P P
Alameda Fire Municipal Service Review
Public Review Draft
service
Ch. 3: Overview 36
Policy Consulting Associates, LLC
dfca
dprbe
asc
sme
dpff
ademala
ynabla
yelekreb
nilbud
ellivyreme
tnomerf drawyah
dfpl
krawen dnalkao tnomdeip
ordnael
nas
ytic
noinu
Community Emergency Response Team P P P P P P P P P P P P P P
Chaplain Services P P P P P P P P P P P
Training Academy P P P P P P P P P P P P P P P
Emergency Operations Center Capabilities P P P P P P P P P P P P P P P P
Miscellaneous
Public Service Assists P P P P P P P P P P P P P P P P
Motor Vehicle Accident Response P P P P P P P P P P P P P P P
Welfare Checks P P P P P P P P P P P P P P P P
Public Safety Answering Point P P P P P P P P P P P P P P P
Fire/EMS Dispatch P P P P P P P P P P P P P P P
Fundraising Activities P P P P P P P P P P P
Firefighters Association - Non Profit P P P P P P P P P P P P P P
Auxiliary Association P P P P P P P
Alameda Fire Municipal Service Review
Public Review Draft
Figure 3-7: Fire Agencies in Alameda County
Ch. 3: Overview 37
Policy Consulting Associates, LLC
Alameda Fire Municipal Service Review
Public Review Draft
Falck Northern California (FNC), a private company, provides emergency ambulance transport
and 9-1-1 emergency responses services to the entire County except the cities of Alameda,
Albany, Berkeley and Piedmont and Lawrence Livermore National Laboratory (LLNL). The
services are provided under contract with the Alameda County Emergency Medical Services
Agency (ALCO EMS) following a competitive bidding process in 2018. Falck Northern
California succeeded Paramedics Plus as the new 9-1-1 ambulance transport provider for the
exclusive operating area as of July 1, 2019.
California Department of Forestry and Fire Protection Services (CAL FIRE) provides fire
prevention, suppression, and fire-related law enforcement for timberlands, wildlands and urban
forests. CAL FIRE also responds to other types of emergencies in 36 out of the State's 58
counties via contracts with local governments, including structure fires, vehicle accidents,
medical aids, swift water rescues, search and rescues, hazardous material spills, train crashes,
and natural disasters. Alameda County is served by the Santa Clara Unit (SCU) Battalion 4
of CAL FIRE. SCU is one of 21 administrative units within the CAL FIRE.
CAL FIRE provides fire and paramedic service in the Sunol and Kilkare unincorporated areas
(under contract with ACFD) in addition to brush fire suppression on any open range land and
wild lands outside incorporated areas in the eastern part of the County.
The LLNL operates two fire stations through a contract with ACFD for services. The regional
dispatching center, known as the Alameda County Regional Emergency Communications
Center (ACRECC), is housed at LLNL along with the Alameda County Fire Communication
Center (ACFCC).
The Parks Reserve Forces Training Area (Camp Parks) operates a fire station at the U.S.
Army facility in the City of Dublin. Because the property is owned by the federal government,
the area is categorized as a Federal Responsibility Area and services are provided by a federal
agency.
Ch. 3: Overview 38
Policy Consulting Associates, LLC
Alameda Fire Municipal Service Review
Public Review Draft
The San Ramon Valley Fire Protection District (FPD) in Contra Costa County provides first
response fire and paramedic service to a small area in northern Dublin under an automatic aid
agreement with ACFD.
Several conditions in Alameda County contribute to its fire risk hazard level, including extensive
wildlands terrain in the eastern portion of the County categorized as High and Very High Fire
Hazard Severity, development that abuts wildland areas, and major interstate and highway
corridors.
Topography ranges from rolling hills near the Bay to mountainous elevations up to 4,000 feet
with steep canyon drainages south of Livermore. Fuel types are primarily grass (50 percent),
chaparral (30 percent) and oak woodland (20 percent). Weather during fire season is
temperate near the Bay and hotter and drier further inland approaching the inland valleys. The
most significant weather factor in Alameda County is wind. Wind patterns are predominately
west to east during fire season. Wind speeds vary but on most summer days the winds near
the Bay are 10 to 20 mph, and in the eastern portion of the County 15 to 25 mph. Wind
velocities of 40 to 50 mph in the eastern portion of the County are not uncommon, which can
adversely affect fire behavior.6
As mentioned, Alameda County has experienced consistently strong growth in recent years,
which is anticipated to continue over the next three decades. Most growth has been
concentrated in the urban city areas, but there has been an increase of residences in
unincorporated areas as well. Current conditions in the County are indicative of development
neighboring or abutting wildland areas. Wildland urban interface (WUI) areas are primarily
surrounding the Tri-Valley area consisting of Livermore, Pleasanton, and Dublin, and the
territory east of the urbanized Interstate 880 corridor from the northern county line to the
southern county line. There are approximately 70 miles of WUI separating local government
responsibility areas (LRA) from the 246,216 acres of CAL FIRE jurisdiction. The interface area
is densely populated with homes that easily exceed one million dollars each. The high values at
risk and the windy conditions have combined to create high damage loss fires historically.
Alameda County has several major interstate and highway corridors that travel through the
County which can contribute to ignition of roadside fires. Additionally, these transportation
6 CAL FIRE, Santa Clara Unit Fire Strategic Plan, 2022.
Ch. 3: Overview 39
Policy Consulting Associates, LLC
Alameda Fire Municipal Service Review
Public Review Draft
thoroughfares have a high incidence of high-speed collisions that often require emergency
medical, auto fire, or hazardous materials response by the fire providers.
Unique to the County is its location along the San Francisco Bay, which requires specialized
water rescue and water emergency response services by local providers to protect the estuary
and waterfront and its users.
There are 11 agencies that provide direct local emergency medical and fire services in Alameda
County. With an average of just over 210,000 fire and emergency service calls a year, the
agencies provide fire protection and rescue service to 821 square miles of territory (including
water bodies). Fire agencies of Alameda County respond to structure fires, wildland fires,
medical emergencies, water rescue and emergencies, hazardous materials spills, public service
assistance calls, and other emergencies.
Fires in Alameda County occur in both urban and wildland settings and generally are classified
as either structural fires or wildland fires. In Alameda County, CAL FIRE is primarily
responsible for wildland fire protection; however, it does assist other local fire protection districts
in structural fire protection and emergency responses through mutual and automatic aid
agreements. CAL FIRE is not reviewed in this report, other than to describe its relation to the
local fire agencies. The U.S. Department of Forest Services is also responsible for wildland
fires; however, it has no presence in Alameda County with limited federal responsibility areas
served by other agencies.
CAL FIRE and federal wildland fire protection agencies have entered into agreements to define
Direct Protection Areas (DPA). A DPA is a geographic area where one particular agency is
responsible for providing wildland fire protection regardless of land ownership in the area. On a
statewide basis, CAL FIRE and the federal agencies attempt to balance the amount of
responsible acreage. Alameda County local fire agencies do not have statutory responsibility for
wildland fire protection for areas designated as state or federal responsibility, but they do
respond to wildfires in these areas and get reimbursed from the state or federal governments.
CAL FIRE is responsible for services in wildland areas within Alameda County defined as
State Responsibility Areas (SRA). An SRA is an area of the State where the State of
California is financially responsible for the prevention and suppression of wildfires. An SRA
does not include lands within city boundaries or in federal ownership. The Santa Clara Unit of
CAL FIRE has direct responsibility for fire protection within Santa Clara, Alameda, and
Contra Costa counties, and portions of San Joaquin and Stanislaus counties. Total SRA
Ch. 3: Overview 40
Policy Consulting Associates, LLC
Alameda Fire Municipal Service Review
Public Review Draft
acreage within the Alameda County is approximately 246,216 acres. Also, as previously
mentioned, CAL FIRE provides technical support throughout Alameda County in the form of
specialized services.
There are two areas within the County designated as federal responsibility areas (FRA)—the
U.S. Army Camp Parks in Dublin and the Don Edwards San Francisco Bay National Wildlife
Refuge located adjacent to the City of Newark.
The remainder of the territory in Alameda County is designated as Local Responsibility Area
(LRA). LRA areas in the County are generally the incorporated city territory and urbanized
unincorporated neighboring communities. Generally, the territory within the LRAs is not
classified as moderate, high, or very high fire hazard.
Refer to the individual district chapters in this report for details regarding each agency's
existing boundaries. The spheres of influence for the special district providers reviewed here will
be updated following this municipal service review. Given the limited number of special
districts that provide fire and emergency medical related services in the County, the options for
changes to the SOIs are limited. SOI analysis and recommendations for each of the districts
are included in their respective chapters.
For the cities, this review identifies the city limits and existing SOIs. The SOIs will not be
adjusted as part of this review, but instead will be updated following a review of all municipal
services provided by the respective City. When LAFCO does update the city SOIs, the
discussion and determinations from this report could be included in the review and taken into
consideration.
The designated local emergency medical service agency (LEMSA) in Alameda County is the
Alameda County Emergency Medical Services Agency (ALCO EMS) pursuant to the
provisions of Division 2.5 of the Health and Safety Code. The Division allows the local EMS
agency to create exclusive operating areas for emergency ambulance service and advanced life
support systems.
The agencies listed below provide initial emergency medical care consisting of both Basic Life
Support (BLS) and Advanced Life Support (ALS) services through contracts with the LEMSA.
All of the contracts for First Responder Advanced Life Support expire June 30, 2024.
• Alameda County Fire Department
Ch. 3: Overview 41
Policy Consulting Associates, LLC
Alameda Fire Municipal Service Review
Public Review Draft
• City of Alameda Fire Department
• City of Albany Fire Department
• City of Berkeley Fire Department
• City of Fremont Fire Department
• City of Hayward Fire Department
• City of Oakland Fire Department
• City of Piedmont Fire Department
• East Bay Regional Parks Fire Department
• Livermore-Pleasanton Fire Department
Alameda County is separated into five exclusive operating areas (EOAs) for the provision of 9-
1-1 ambulance transport services. Within each EOA there is a contracted provider for 9-1-1
ambulance transport services. Four of the EOAs are contracted through a non-competitive
grandfathering of existing services provided by municipal fire departments in the cities of
Alameda, Berkeley, Albany, and Piedmont. The termination dates of these contracts are June
30, 2024, each with an option to amend for an additional five-year period. The fifth EOA is
served by a competitively bid provider and encompasses the remainder of the County with the
exception of Lawrence Livermore National Labs, which has a federal contract with Alameda
County Fire District. The County's agreement for 9-1-1 ambulance service by Paramedics Plus
to the County's EOA ended June 30, 2019. A competitive bidding process for the EOA was
conducted and an independent review committee selected Falck Northern California as the
successful bidder. Falck Northern California began contract service on July 1, 2019, continuing
through June 30, 2024.7 The contract has been extended to June 30, 2026, to allow time to
solicit bids from providers.
Additionally, Berkeley Fire Department has subcontracted with Falck Northern California to
supplement their ALS ambulances services with two BLS ambulances, 24 hours a day, 7 days
a week, in order to respond to behavioral health calls within their city.
Emergency Air Medical Transport is made available by the following agencies:
• CALSTAR/REACH
• California Highway Patrol- Air Operations Division
• East Bay Regional Parks Police Department
7 Alameda County Emergency Medical Services, 2018-2019 EMS System Plan, 2019, p. 5.
Ch. 3: Overview 42
Policy Consulting Associates, LLC
Alameda Fire Municipal Service Review
Public Review Draft
• Stanford Lifeflight
Non-emergency ambulance transport services are provided by permit and inclusion in the
Alameda County Ambulance Ordinance. There are 11 such permitted private companies
within Alameda County.
Emergency 9-1-1 calls are initially routed to a Public Safety Answering Point (PSAP)—a facility
equipped and staffed to receive 9-1-1 calls—and may only be transferred one time. The first
response dispatcher immediately determines whether a 9-1-1 call is related to a police, fire or
medical emergency. Fire and medical 9-1-1 calls are routed to the appropriate fire/EMS
dispatcher.
In Alameda County there are eighteen PSAPs - these centers perform initial intake of 9-1-1
calls and direct callers to the needed resource.
Two of the eighteen PSAPs in Alameda County are Accredited Emergency Medical Dispatch
(EMD) Centers that utilize the Medical Priority Dispatch System (MPDS) to triage calls and
assist callers in rendering immediate lifesaving care to those in need. Those two PSAPs are
ACRECC and Oakland Fire Department Dispatch Center (FDC).
Dispatch for fire and medical calls is increasingly becoming regionalized and specialized, with
most of the fire departments either involved in regional fire dispatch or interested in joining.
ACFD regionalized the 9-1-1 call-dispatching function for ACFD fire and medical calls. This was
the result of ACFD and the Alameda County EMS Agency establishing the Alameda County
Emergency Dispatch Consortium in 2002 for the sake of improving dispatch efficiency and cost
savings. The regional dispatching center is known as the Alameda County Regional Emergency
Communications Center (ACRECC) and is housed at the Lawrence Livermore National
Laboratory (LLNL) along with the Alameda County Fire Communication Center (ACFCC).
Fire and EMS dispatch is increasingly becoming regionalized with a growing number of
agencies using the ACRECC, which currently dispatches fire and medical calls for ACFD, the
U.S. Army at Camp Parks Combat Support Training Center in Dublin, the cities of Alameda,
Fremont, Livermore and Pleasanton, Union City, Newark, Emeryville, and the County EMS
transport provider Falck Northern California ambulance service. ACRECC processes
approximately 200,000 fire and EMS calls per calendar year. The Consortium, now known as
the Advisory Board, is managed by a governing board made up of participating agencies. Each
Ch. 3: Overview 43
Policy Consulting Associates, LLC
Alameda Fire Municipal Service Review
Public Review Draft
agency pays an annual amount with costs apportioned based on call volume as outlined in
each contract for service.
Dispatch services are also provided by the following agencies:
• Oakland Fire Dispatch Center (FDC) dispatches for the City's Fire Department. All
fire dispatchers are trained Emergency Medical Dispatchers (EMD). The FDC is a
nationally accredited Center of Excellence.
• Berkeley, Piedmont, Hayward and EBRPD each rely on their police departments for fire
and EMS dispatch. City of Hayward is implementing EMD.
• Fairview FPD 9-1-1 calls are routed from the Sheriff's Emergency Services Dispatch to
the City of Hayward Dispatch Center.
Continued implementation of emergency medical dispatching for all providers is recommended,
as a majority of service calls are for emergency medical services. Providing EMD would allow
for speedy initial treatment, thereby improving patient outcomes.
Improvements have been made to the County's communication system through the East Bay
Regional Communications System Authority (EBRCSA). The EBRCSA was created in 2007
as a Joint Powers Authority (JPA). Currently there are 43 member agencies consisting of
Alameda and Contra Costa counties, 30 cities, six special districts, three colleges, Dublin-San
Ramon Services District, and the California Department of Transportation. The EBRCSA
system is a P-25 compliant communications system that provides fully interoperable
communications to all public agencies within the two counties. The system was designed and
sized to offer participation to adjoining counties, as well as State and federal agencies. The
system consists of a digital microwave system that links all the sites to the master site
controller. This system was planned and constructed to improve safety, eliminate duplication of
overlapping independent systems, and provide effective interoperable voice communications.
Most of the fire and EMS service providers in Alameda County primarily serve residents of
their own jurisdictions. Given the critical need for rapid response, however, there are extensive
mutual aid efforts that cross jurisdictional boundaries. Mutual aid refers to reciprocal service
provided under a mutual aid agreement, a pre-arranged plan, or a contract between agencies
for reciprocal assistance upon request by the first-response agency. In addition, the jurisdictions
rely on automatic aid primarily for coverage of freeways. Automatic aid refers to reciprocal
service provided under an automatic aid agreement, a prearranged plan or a contract between
agencies for an automatic response for service with no need for a request to be made. The
Ch. 3: Overview 44
Policy Consulting Associates, LLC
Alameda Fire Municipal Service Review
Public Review Draft
Public Safety MSR from 2004 outlined in great detail all automatic and mutual aid
agreements that were in place at that time. Few changes have been made to these
agreements since that time. Descriptions of automatic and mutual aid agreements to which
each agency is a member are provided in each agencies respective chapter.
Of note is the recent use of what has been termed automatic mutual aid agreements. In
2015, ACFD and the Livermore Pleasanton Fire Department became member agencies of an
automatic mutual aid agreement to streamline the mutual aid process and improve mutual
coordination of emergency assistance to incidents within their jurisdictions. The agencies
recognized that mutual aid assistance has inherent response delays as the need for additional
support is determined after dispatch and requires approval. The automatic mutual aid
authorizes automatic dispatch of mutual aid resources between the parties, similar to a "closest
resource" dispatch strategy. The agreement was designed to ensure that residents in the
eastern portion of Alameda County benefit from the closest fire department resources
responding to emergencies. Many jurisdictions are transitioning to this dispatch strategy on a
countywide level to enhance response times to the greatest degree possible. It is recommended
that Alameda County fire providers consider implementing this concept to the greatest extent
possible to maximize efficiency and enhance service levels; however, multiple dispatch centers
will limit the potential of fully implementing this dispatch approach.
All fire agencies in the County operate under a countywide mutual aid agreement.
Land use authorities are responsible for several mandated plans to inform hazard mitigation
efforts and identify means to meet existing and future demand for public safety services. Over
the past decade there have been numerous efforts to coordinate and align hazard mitigation
and climate adaptation planning with other planning efforts. State legislation is increasingly
requiring jurisdictions to use mitigation and adaptation planning efforts to inform their safety
and housing elements. Many communities have other resilience related plans (e.g. community
wildfire protection plans and climate adaptation plans) that also inform the General Plan
elements.8
In the past five years new legislation has been enacted creating a new paradigm for local
planning efforts, requiring cities and municipalities to include climate risk and resilience
strategies through various plan updates including:
8 ABAG, California Resilience Planning Legislation and Implications for Bay Area Cities, 2019.
Ch. 3: Overview 45
Policy Consulting Associates, LLC
Alameda Fire Municipal Service Review
Public Review Draft
Senate Bill (SB) 1035 (Gov. Code § 65302) and SB 379 (Gov. Code § 65302.g.4) require
cities to address climate change adaptation and resilience in the safety element of all general
plans. Originally, SB 379, signed into law in 2016, tied the requirement to the next update of a
jurisdiction's local hazard mitigation plan (updated every five years). SB 1035 built off SB 379,
requiring that the safety element be updated every eight years with the housing element. Both
bills require that fire mitigation, climate adaptation, and climate resilience are addressed within
the update.
Assembly Bill (AB) 747 (Gov. Code § 65302.15) requires jurisdictions to, after January 1, 2022,
review and update the safety element of their general plan as necessary to identify evacuation
routes and evaluate their capacity, safety, and viability under a range of emergency scenarios.
A jurisdiction that has adopted an LHMP, Emergency Operations Plan (EOP) or other
document that fulfills these objectives may summarize and incorporate that document into the
safety element to comply with AB 747.
SB 99 (Gov. Code § 65302) requires cities, upon the next revision of the housing element on
or after January 1, 2020, to review and update the Safety Element to include information
identifying residential developments in hazard areas that do not have at least two emergency
evacuation routes.
SB 1241 (Gov. Code § 65302, 65302.5) applies to communities with very high fire hazard
severity hazard or unincorporated communities in the state responsibility areas. Starting in
2014, communities subject to SB 1241 need to ensure consistency between the housing and
safety elements to address the risk of fire. SB 1241 requires that the draft safety element
amendment be submitted to the State Board of Forestry and Fire Protection for review. In
2018, AB 2911 strengthened the designation of local very high fire hazard severity zones.
Agencies subject to SB 1241 in Alameda County include the cities of Berkeley, Piedmont,
Oakland, San Leandro, and Pleasanton.
AB 2140 (Gov. Code § 65302.6, 8685.9) authorizes local governments to adopt the LHMP
with the general plan safety element. Integration by reference or annexation is encouraged
through a post-disaster financial incentive that authorizes the state to use available California
Disaster Assistance Act funds to cover local shares of the 25 percent non-federal portion of
grant-funded post-disaster projects when approved by the legislature.
Ch. 3: Overview 46
Policy Consulting Associates, LLC
Alameda Fire Municipal Service Review
Public Review Draft
The Safety Element is a required component of a General Plan. According to the Governor's
Office of Planning and Research (OPR), the goal of the Safety Element is to reduce the
potential short and long-term risk of death, injuries, property damage, and economic and social
dislocation resulting from fires, floods, droughts, earthquakes, landslides, climate change, and
other hazards. The safety element directly relates to topics also mandated in the (1) land use,
(2) conservation, (3) environmental justice and (4) open-space elements, as development plans
must adequately account for public safety considerations and open space for public health and
ecological benefits often incorporate areas of increased hazard risk. The Safety Element must
identify hazards and hazard abatement provisions to guide local decisions related to zoning,
subdivisions, and entitlement permits. The safety element should also contain general hazard
and risk reduction strategies complementary with those of the LHMP. Ideally, the LHMP will
be incorporated into the Safety Element in accordance with AB 2140.9
SB 1035 now requires that the Safety Element be updated concurrently with the Housing
Element update every eight years. Figure 3-7 identifies when the Safety Element update is due
for each land use authority within the County. The cities of Berkeley and Fremont were due to
update their respective Safety Elements in 2022. The cities of Livermore and Oakland are
due to update their Safety Elements in 2023.
Local governments are required by the Federal Emergency Management Agency (FEMA) to
update their LHMP every five years, as a requirement of federal assistance grant programs,
including FEMA's Hazard Mitigation Grant Program and Building Resilient Infrastructure and
Communities funding. The following cities have LHMP's that have gone beyond the five-year
planning time frame and must bring their LHMP's up to date to meet FEMA's requirements—
Fremont, Hayward, Newark, and Union City.
Figure 3-8: Local Hazard Mitigation Plans and Safety Element Expiration Dates
local hazard mitigation plans and safety element
expiration
general plan safety element
lhmp update required
agency
expiration (with housing element
year update)
County of Alameda 2027 2031
City of Alameda 2028 2024
9 Governor's Office of Planning and Research General Plan Guidelines, 2017, p. 141
Ch. 3: Overview 47
Policy Consulting Associates, LLC
Alameda Fire Municipal Service Review
Public Review Draft
City of Albany 2023 2025
City of Berkeley 2024 2022
City of Dublin 2024 2024
City of Emeryville 2024 2028
City of Fremont 2022 2022
City of Hayward 2022 2024
City of Livermore 2024 2023
City of Newark 2022 2024
City of Oakland 2027 2023
City of Piedmont 2024 2024
City of Pleasanton 2024 2024
City of San Leandro 2023 2024
City of Union City 2022 2024
Several factors affect demand for fire protection and emergency medical services. In particular,
growth in population directly affects aspects associated with demand for fire and emergency
medical services. There are other less evident factors that can have a varied effect on a
community's need for these services.
The most apparent causal relationship is the greater the population the greater the volume of
calls for structural fire, emergency medical, and other related emergency services. Similarly,
development of new and expansion of existing structures leads to greater need for structural
fire protection services. Less apparent is the need for wildland fire protection and prevention in
those areas where urban development abuts wildland areas, also known as the wildland urban
interface (WUI). As development expands outward from the urban core, the WUI extends into
areas of greater fire hazard severity, thus greatly increasing the need for preventative and
protective measures and services.
In addition to population growth, climate change such as drought continues to greatly affect
the environment, driving the need for wildland fire prevention and protection to combat more
frequent and substantial fires, particularly in areas categorized High and Very High Fire
Hazard Severity. These factors, as they drive demand for services in the County, are
discussed here.
There were approximately 350,137 calls for fire, EMS and other emergency response services in
the County in 2020. In other words, there were about 959 service calls throughout the
County on an average day. A call for service does not indicate the number of responses by
Ch. 3: Overview 48
Policy Consulting Associates, LLC
Alameda Fire Municipal Service Review
Public Review Draft
each jurisdiction, as multiple jurisdictions may respond to a single call. The number of calls as
reported by each agency is shown in Figure 3-8 and includes false alarms.
Consistent with national call trends, a majority of the calls for emergency service were for
emergency medical services.
The City of Oakland answered the greatest number of calls for service amongst the providers
in the County with a total of 52,374 calls for service in 2020. Given the small size of the
territory served and the comparatively low population within the jurisdiction, the City of
Piedmont responded to the least calls for service with 780 calls in 2020. The Alameda
Emergency Medical Services County Service Area stated it responded to 138,372 service calls
in 2020, however, this number is not included in Figure 3-9 as it would duplicate the number of
service calls from other areas.
Generally, over the last decade all providers have experienced an increase in calls for service
corresponding to the steady increase in population throughout the County. During the
pandemic, calls for service throughout the day did not match periods of peak demand
previously experienced by the agencies, with no predictable schedule.
Figure 3-9: Total Service Calls by Reporting Agency, 2020
total service calls by agency
# of service
agency
calls
City of Alameda 6,849
City of Albany 1,872
City of Berkeley 13,412
City of Dublin 3,698
City of Emeryville 2,336
City of Fremont 14,492
City of Hayward 17,343
Cities of Livermore and Pleasanton 13,544
City of Newark 3,423
City of Oakland 52,374
City of Piedmont 780
City of San Leandro 10,228
City of Union 5,323
Alameda County Fire Department 43,025
East Bay Regional Park District 22,196
Fairview Fire Protection District 870
total 211,765
Ch. 3: Overview 49
Policy Consulting Associates, LLC
Alameda Fire Municipal Service Review
Public Review Draft
Wildland fire is a recurrent feature of ecosystems in semi-arid climates throughout the world.
The Mediterranean-type climate of California is especially fire-prone, as the winter rains
support plant growth and the summer dry season dries out the vegetation, making it highly
flammable. Hot and dry conditions, combined with offshore winds in the fall create high-risk
conditions that rapidly spread fires. Fires in California are primarily ignited by human activity,
and the dry fuels and climate contribute to a higher risk of rapid spread of fires. Attention to
wildfire has mostly focused on the Sierra Nevada and Southern California regions; however,
the large and destructive fires in the Bay Area and North Coast, particularly in 2015 and 2017,
have brought attention to the ongoing risks in these regions.10
There is strong evidence that climate change, especially rising temperatures and periodic
droughts, have made substantial contributions to the increase in area burned in wildfires in the
State and along the west coast.11 According to most climatologists, the planet is starting to
experience shifts in climate patterns and an increased frequency of extreme weather events.
Over the next century, a variety of changes to local climate conditions are anticipated,
including sea level rise and storm surge in coastal areas, increased riverine flooding and
stormwater inundation; and more frequent and prolonged higher temperatures leading to
extreme heat events and wildfires that decrease air quality and cause extended periods of
drought.12 According to California's Fourth Climate Change Assessment, the impacts of
climate change affecting the Bay Area/Alameda County include:13
• Sea level rise (over eight inches in the last 100 years)
• Increased average annual maximum temperature (1.7°F from 1950 to 2000)
• Severe moisture deficit/drought (2012 to 2016 California drought led to the most severe
moisture deficit over the last 1,200 years)
• Coastal erosion due to extreme storms (the 2015–16 El Niño was one of the three
largest in the historical record)
• Wildfires (100 more wildfire days annually in the Bay Area from 1973 to 2020)
The impacts of climate change and the resulting extreme weather are evident. Wildfires that
threaten thousands of homes are now an annual occurrence; as autumn days with severe fire-
prone weather have more than doubled in California since the 1980s. 14 Over the last four
10 State of California, California's Fourth Climate Change Assessment San Francisco Bay Area Region Report, 2019, p. 27.
11 State of California, California's Fourth Climate Change Assessment San Francisco Bay Area Region Report, 2019, p. 28.
12 Alameda County, Alameda County Local Hazard Mitigation Plan, 2021, p. 4-2.
13 Alameda County, Alameda County Local Hazard Mitigation Plan, 2021, p. 4-2.
14 County of Alameda, General Plan Annual Report, 2020, p. 6.
Ch. 3: Overview 50
Policy Consulting Associates, LLC
Alameda Fire Municipal Service Review
Public Review Draft
decades, the wildfires have increased in size and intensity with five of the six largest fires in
California history occurred in 2020 alone. Damage to homes, infrastructure and ecosystems
are immediate impacts of intensified wildfires, with air- and water quality impacts extending far
beyond the fire's footprint.
California's Fourth Climate Change Assessment recognizes the following wildfire trends specific
to the Bay Area, based on climate change impacts in combination with projected development
and growth.15
• In the Bay Area, future fire activity will be driven by both changes in urban
development and changes in climate.
• Warming temperatures combined with expansion of the wildland-urban interface are
projected to increase fire risk in most of the Bay Area, though risks may decline in
some areas as they become more heavily urbanized.
• Land use planning, together with fire-safe building standards and near-building
vegetation management, are important strategies for managing future fire risk to people
and structures.
California's Fourth Climate Change Assessment projects that by 2100, if climate change
continues on this trajectory, the frequency of extreme wildfires would increase, and the average
area burned statewide would increase by 77 percent. In the areas that have the highest fire
risk, wildfire insurance is estimated to see costs rise by 18 percent by 2055.16
State and federal agencies have pursued aggressive policies of fire suppression, both for
protection of timber resources and increasingly to protect human life and infrastructure as fires
ignite and spread in areas with high population density in areas of wildland urban interface.
Future land use decisions will significantly influence the Bay Area's efforts to not only address
climate change at its source by curtailing energy use but also to affect wildfire mitigation
efforts. For example, the lack of affordable housing in the core of the region is forcing
households further south, north, and inland, into areas of higher fire hazard severity and
resulting in negative energy and environmental consequences.17
Land use authorities are taking measures to protect communities from the impacts of climate
change. For example, the collaborative Plan Bay Area 2050 identifies several strategic
investments to guard against environmental hazards, such as sea level rise, wildfires and
earthquakes, while improving air quality and open spaces. Plan Bay Area 2050 outlines a $15
15 State of California, California's Fourth Climate Change Assessment San Francisco Bay Area Region Report, 2019, p. 27.
16 State of California, California's Fourth Climate Change Assessment Statewide Summary Report, 2019.
17 State of California, California's Fourth Climate Change Assessment San Francisco Bay Area Region Report, 2019, p. 7.
Ch. 3: Overview 51
Policy Consulting Associates, LLC
Alameda Fire Municipal Service Review
Public Review Draft
billion plan to provide means-based financial support to retrofit existing residential buildings.
The land use authorities will adopt building ordinances and incentivize retrofits to existing
buildings to meet higher seismic, wildfire, water and energy standards, providing means-based
subsidies to offset associated costs.18 These investments would ensure higher wildfire and
seismic standards to protect residents, especially those with low incomes, from fire and
earthquakes. For residents living in wildfire-prone parts of the Bay Area, fire-resistant roofing
and fire-wise landscaping are key areas of safety-focused home improvement.
Additionally, cities and counties in California are required to adopt climate action plans as part
of the state's efforts to reduce greenhouse gas emissions. The requirements for these plans
vary depending on the population size of the jurisdiction and whether the jurisdiction is
considered a "high GHG-emitting community." Cities with populations over 100,000 and
counties with populations over 600,000 are required to adopt a climate action plan and to
update it every five years. Cities with populations between 50,000 and 100,000 and counties
with populations between 250,000 and 600,000 are required to adopt a climate action plan,
but they are not required to update it as frequently. The climate action plans of cities and
counties must include:
• Inventory of greenhouse gas emissions,
• Reduction targets for greenhouse gas emissions,
• Measures to reduce greenhouse gas emissions,
• Monitoring and reporting progress on the implementation of the plan, and
• Regular updates on the plan.
Many cities and counties in California have adopted more aggressive targets and strategies for
reducing greenhouse gas emissions than legally required within their climate actions plans.
These agencies have adopted climate action plans in Alameda County with the associated
emission goals:
Figure 3-10: Climate Action Plans and Emission Goals by Agency
agency adoption date emission goals
Reduce emissions by more that 15% by
County of Alameda 2014
2020
Reduce emissions by 50% below 2005
City of Alameda 2019
levels by 2030
Reduce emission by 70% by 2035 and
City of Albany 2019
net zero emissions by 2045
18 ABAG, Plan Bay Area 2050, 2021, p. x.
Ch. 3: Overview 52
Policy Consulting Associates, LLC
Alameda Fire Municipal Service Review
Public Review Draft
Reduce emissions by 80% below 2000
City of Berkeley 2009
levels by 2050
Reduce by 65,090 MT CO2e by
City of Dublin 2020
2030, carbon neutrality by 2045
40% below baseline levels by 2030 and
City of Emeryville 2016
80% below baseline levels by 2050
Reduce emission by 25% by 2020
City of Fremont 2012
based on 2005 levels
Reduce emissions by 30% below 2005
City of Hayward 2009 emissions levels by 2025, 55% below
2005 emissions levels by 2030
Reduce emissions 15 percent below
Cities of Livermore 2012
2008 conditions by 2020
15% decrease from 2005 levels by
City of Newark 2010
2020
City of Oakland 2020 Reduce emissions by 56% by 2030
Reduce emissions by 40% by 2030 and
City of Piedmont 2018
80% by 2050
Reduce emissions 15% below 2005
City of Pleasanton 2022
levels by 2020
Reduce emission by 40% below 2005
City of San Leandro 2021 levels by 2030 and 80% below 2005
levels by 2050
Reduce emission by 20% below 2005
City of Union City 2010
levels by the year 2020
Wildfires spread by consuming flammable vegetation. This type of fire often begins unnoticed,
spreads quickly, and is usually signaled by dense smoke that may be visible from miles away.
Wildfires are often caused by human activities, such as unattended burns, campfires, or off-
road vehicles without spark-arresting mufflers, but can also be caused by natural events such
as lightning. Three factors contribute significantly to wildfire behavior and can be used to
identify wildfire hazard areas—topography, fuel, and weather.
Topography describes slope increases, which influence wildfire spread rates. South-facing slopes
are subject to more sun exposure than slopes facing other directions, so south-facing slopes
tend to be drier and thereby intensify wildfire behavior. Conversely, ridge tops may mark the
end of wildfire spread because fire spreads more slowly downhill.
Fuel refers to the type and condition of vegetation. Fuel plays a significant role in wildfire
spread, since certain plant types are more susceptible to burning or can burn with greater
intensity. Dense or overgrown vegetation increases the amount of combustible material
available as fuel. The level of vegetation dryness is also important. Certain climate changes
increase wildfire risk significantly, particularly during prolonged drought periods, because the
Ch. 3: Overview 53
Policy Consulting Associates, LLC
Alameda Fire Municipal Service Review
Public Review Draft
moisture content of both living and dead plant matter decreases. The horizontal and vertical
fuel continuity can also affect wildfire spread.
Weather is the most variable factor affecting wildfire behavior. Temperature, humidity, wind,
and lightning can cause ignition and affect the rate of fire spread. Extreme weather, such as
high temperatures and low humidity, can lead to extreme wildfire activity. As mentioned,
longer dry seasons resulting from climate change can increase ignition susceptibility.
In addition to these factors, wildfire frequency and severity can be affected by other hazards
such as lightning, drought, and infestations (i.e. damage caused by bark beetles).
According to CAL FIRE, Alameda County has experienced 221 wildfires since record keeping
began 70 years ago. One-third of the recorded fires have been 10 acres or less. Only 19
wildfires have been greater than 500 acres. The SCU Lightning Complex in 2020 was the
largest wildfire to occur in Alameda County. In total, the fire burned 396,624 acres, of which
240,642 acres were within Alameda County, and it destroyed 222 structures in Santa Clara,
Contra Costa, Alameda, Stanislaus, and San Joaquin Counties.19
The State Fire Marshal is mandated to classify lands within SRAs into Fire Hazard Severity
Zones (FHSZ). The Fire Hazard Severity Zone (FHSZ) maps are developed using a science-
based and field-tested model that assigns a hazard score based on the factors that influence
fire likelihood and fire behavior. Many factors are considered, such as fire history, existing and
potential fuel, predicted flame length, blowing embers, terrain, and typical fire weather for the
area. There are three levels of hazard—moderate, high, and very high.
As shown on the CAL FIRE FHSZ map (Figure 3-11), 240.66 square miles (32.29 percent) of
Alameda County are categorized as High FHSZs, with the majority (238.61 square miles) in
unincorporated Alameda County. In addition, 60.83 square miles (8.16 precent) of Alameda
County are classified as Very High FHSZ, of which nearly 40 square miles are in
unincorporated Alameda County. CAL FIRE has made recommendations on the Very High
FHSZ territory that is within incorporated territory to the cities of Berkeley, Oakland,
Piedmont, Pleasanton, and San Leandro.20
Plan Bay Area 2050 addresses wildfire with the three core adaptation principles of land use,
land management and structural hardening: Together, these strategies direct future growth
away from the highest-fire-risk zones, support increased wildland management programs to
reduce ignition risk and fire intensity, and support residential building upgrades that reduce the
19 Alameda County, Alameda County Local Hazard Mitigation Plan, 2021, p. 4-31.
20 CAL FIRE, Santa Clara Unit Strategic Fire Plan, 2022, p. 29.
Ch. 3: Overview 54
Policy Consulting Associates, LLC
Alameda Fire Municipal Service Review
Public Review Draft
likelihood of damage when fires occur in the wildland urban interface.21 Most critical is
ensuring the development plans are de-prioritized and discouraged in areas of very high risk of
wildfire. 22
Other wildfire prevention and suppression coordination activities in the region include the Hills
Emergency Forum (consisting of the cities of Berkeley, El Cerrito, and Oakland, EBRPD, CAL
FIRE, East Bay Municipal Utility District, Lawrence Berkeley National Laboratory, University of
California, and Moraga Orinda Fire District), the Regional Priority Plan (a regional wildfire
prevention plan for Alameda and Contra Costa Counties finalized in 2022), the
aforementioned Community Wildfire Protection Plans, EBRPD's Wildfire Risk and Fine Scale
Vegetation Mapping, and the East Bay Regional Communication System Authority.
A current trend involves utilizing agriculture as a strategy to prevent or mitigate the severity of
wildfires. Farmers and ranchers are adopting practices to manage their agricultural lands in a
manner that establishes natural buffers, and in some cases, rejuvenates ecosystems affected by
wildfires. Areas with irrigated farmland and well-maintained pasturelands are less susceptible to
wildfire compared to dry brush regions. Moreover, the wildland/urban interface, where
developed areas meet undeveloped land, faces the highest risk of property, life, and natural
resource loss due to wildfires. Since farmers and ranchers often reside in these interface zones,
they serve as a frontline defense against wildfires by effectively managing the land between
wildland and urban areas. There is potential for incorporation of these agricultural
management practices in Alameda County to prevent against wildfires and limit expansion
when wildfires occur.
Agriculture can play a crucial role in preventing wildfires and mitigating their severity through
the following approaches:23
1. Managed Grazing and Livestock Oversight: Farmers and ranchers can implement
controlled grazing methods with animals like cattle, goats, or sheep. This helps reduce
the accumulation of dry vegetation, acting as potential fuel for wildfires. Skillful
management of grazing maintains vegetation levels, lowering the risk of intense wildfires.
2. Initiation of Firebreaks by Farmers: Proactive farmers and ranchers often create
firebreaks through practices like cultivation or consistent maintenance of vegetation-free
21 ABAG, Plan Bay Area 2050, 2021, p. 104.
22 ABAG, Plan Bay Area 2050, 2021, p. 32.
23 Ulupono Initiative, Exploring Agriculture’s Role in Preventing Wildfires, August 31, 2023, accessed at
https://ulupono.com/newsletter-listing/august-2023-eupdate/exploring-agriculture-s-role-in-preventing-wildfires/
Ch. 3: Overview 55
Policy Consulting Associates, LLC
Alameda Fire Municipal Service Review
Public Review Draft
strips. These firebreaks act as barriers, slowing or halting the spread of wildfires by
depriving them of fuel. Additionally, they provide accessible paths for firefighting efforts.
3. Vigilant Vegetation Management by Farmers: Farmers and ranchers play a crucial role
in overseeing vegetation around structures, equipment, and infrastructure. This proactive
approach results in the creation of defensible spaces less vulnerable to wildfire damage.
By removing dry vegetation and ensuring diligent maintenance, farmers significantly
reduce the likelihood of fire propagation.
4. Implementation of Crop Rotation and Planting Cover Crops: Adopting practices like
crop rotation and planting cover crops during non-growing seasons helps maintain soil
health and minimizes the accumulation of dry, flammable plant materials. These
strategies limit the availability of fuel for potential wildfires.
5. Utilization of Mechanical Methods for Fuel Reduction: Farmers and ranchers can
employ mechanical methods such as mowing, plowing, or mulching to decrease
vegetation density on agricultural lands. This actively diminishes the amount of fuel
accessible to potential wildfires, mitigating the risk of rapid spread.
Ch. 3: Overview 56
Policy Consulting Associates, LLC
Alameda Fire Municipal Service Review
Public Review Draft
Figure 3-11: State Responsibility Area Fire Hazard Severity Alameda County
Ch. 3: Overview 57
Policy Consulting Associates, LLC
Alameda Fire Municipal Service Review
Public Review Draft
California has three types of WUI areas:
• Interface areas - developed areas that have sparse or no wildland vegetation but are in
close proximity to a large patch of wildland.
• Intermix areas - where houses and wildland vegetation directly intermingle.
• Influence areas - wildfire-susceptible vegetation up to 1.5 miles from WUI or Wildland
Urban Intermix zones.
As shown on Figure 3-12 illustrating WUI in Alameda County from the Alameda County Local
Hazard Mitigation Plan, the County does not have a significant percentage of land area in the
Interface or Intermix areas; however, much of central Alameda County is in an Influence area.
Figure 3-12: Wildland Urban Interface Areas in Alameda County
Of the WUI territory in the County, 42.07 square miles (5.64 percent) are in the Interface
area, while an additional 14.86 square miles (1.99 percent) are in the Intermix area, and 256.47
square miles (34.41 percent) are in the Influence area. For unincorporated Alameda County,
Ch. 3: Overview 58
Policy Consulting Associates, LLC
Alameda Fire Municipal Service Review
Public Review Draft
8.08 square miles (1.90 percent) of Alameda County are in the Interface area, 9.73 square
miles (2.29 percent) are in the Intermix area, and 179.13 square miles (42.12 percent) are in the
Influence area.
While territory considered Influence is more expansive than Intermix and Interface, the ratio of
the population in WUI is greater in the Interface area. As shown in Figure 3-13, of the total
population of the County, 148,378 (9.7 percent) live in the Interface territory. In unincorporated
Alameda, a greater ratio of residents live in Influence territory—31,104 or 13.7 percent. In total,
261,027 (17.1 percent) of county residents live in areas considered one of the wildland urban
categories.
Figure 3-13: Wildland Urban Interface Impact on Population
wildland urban interface
Wildland Urban Wildland Urban
Influence Wildland Urban Intermix Interface
Area
# of
People % of Pop # of People % of Pop # of People % of Pop
Alameda County 99,478 6.5% 13,171 0.9% 148,378 9.7%
Unincorporated
Alameda County 31,104 13.7% 4,110 1.8% 25,250 11.1%
Source: Alameda County, Alameda County Local Hazard Mitigation Plan, Table 4-50, 2021, p. 4-33.
There are approximately 70 miles of WUI separating LRA from the CAL FIRE jurisdiction in
Alameda County. Wildland urban interface areas that are SRA/LRA jurisdiction:
1. Oakland-Berkeley Hills - 16,200 acres protecting an estimated population over 500,000.
Oakland FD, Berkeley FD, EBRPD, University of California, Berkeley, and CAL FIRE have
jurisdiction.
2. San Leandro-Castro Valley Hills - 8,500 acres protecting an estimated population of
154,800. ACFD, EBRPD, and CAL FIRE have jurisdiction.
3. Hayward Hills - 5,000 acres protecting an estimated population of 58,969 in Hayward and
Fairview. Hayward FD, EBRPD, and CAL FIRE have jurisdiction.
4. Union City-Fremont Hills - 10,000 acres protecting an estimated population of 310,460.
ACFD, Fremont FD, and CAL FIRE have jurisdiction.
5. Pleasanton Ridge- Kilkare Woods- Sunol - 4,000 acres protecting an estimated population
of 5,000. ACFD, LPFD, EBRPD, and CAL FIRE have jurisdiction. Affected by the 2020
SCU Lightening Complex Fire.
Ch. 3: Overview 59
Policy Consulting Associates, LLC
Alameda Fire Municipal Service Review
Public Review Draft
6. Palomares-Niles Canyon - 3,500 acres with an estimated population of 1,500. ACFD,
Hayward FD, Fremont FD, EBRPD, and CAL FIRE have jurisdiction.
7. San Francisco Water District - Alameda County Watershed consisting of 5,000 acres.
The interface areas are densely populated with high-value homes. The high values at risk and
the windy conditions have combined to create high damage loss fires historically. A single two-
acre fire in the Oakland Berkeley hills destroyed two homes and damaged a third totaling
damages of $4 million. The 1991 Tunnel Fire destroyed 3,000 homes causing a loss of $1.8
billion. Life safety at wildland fires is also a major concern.24
As part of its 2022 Santa Clara Unit Fire Strategic Plan, CAL FIRE has identified continued
and enhanced fuel modification and fuel reduction projects in the wildland urban interface
areas as an objective and has plans for 25 projects intended to meet this goal.25
Several other planning entities also have developed plans aimed at mitigating hazards arising
from wildland urban interface territories and other fire hazards – Alameda County addresses
the issue of urban territories abutting wildland areas in its updated Safety Element (2013)
component of its General Plan and its Local Hazard Mitigation Plan (2021), and the Diablo
Fire Safe Council identifies wildland fire hazards, prioritizes way to reduce those hazards and
recommends measures for homeowners and communities to reduce ignitability of structures in
its countywide Community Wildfire Protection Plan (CWPP) (2015). Additionally, the cities
affected by wildfire hazards address strategies in their respective general plans and local
hazards mitigation plans. Other plans to mitigate wildfire hazards include EIRs to address
fuels management by the East Bay Regional Parks District and University of California,
Berkeley. Similar environmental compliance documents are in progress by the City of
Oakland.26
24 CAL FIRE, Santa Clara Unit Strategic Fire Plan, 2022, p. 58.
25 CAL FIRE, Santa Clara Unit Fire Strategic Plan, 2022, p. 61.
26 CAL FIRE, Santa Clara Unit Strategic Fire Plan, 2022, p. 59.
Ch. 3: Overview 60
Policy Consulting Associates, LLC
Alameda Fire Municipal Service Review
Public Review Draft
COVID-19 contributed to the financial challenges facing fire and EMS agencies, similar to
most other public agencies. Property tax revenues, which are a significant source of funding for
most fire and EMS agencies, continued strong growth and helped to offset countervailing
economic forces. Increasing inflationary factors in 2022 and beyond threaten recovery from the
pandemic. City fire departments face additional pressures from competing city service priorities;
city funding of services includes more diverse general funds (e.g., sales and hotel taxes),
compared to fire districts. Non-property tax revenues typically are more sensitive to adverse
economics compared to property taxes and assessments.
While revenues have shown positive growth trends over the past five years from 2018 through
2022, slower growth or in some cases revenue declines due to COVID-19 have not kept pace
with continued expenditure growth. All agencies and cities show adequate reserves that can
help to backfill annual shortfalls. In addition to the use of reserves, agencies have taken other
short-term measures to address inadequate short-term revenues, for example, by freezing
positions, deferring major capital and other one-time expenditures.
Figure 3-13 summarizes key revenue and expenditure indicators for the fire protection agencies
and city fire departments. As noted above, COVID-19 generally depressed growth of fees and
charges generated by plan review and inspections while costs continued to grow. Consequently,
annual surpluses and contributions to reserves were reduced and/or cities shifted revenues from
other services to assure adequate funding of fire protection.
Ch. 3: Overview 61
Policy Consulting Associates, LLC
Alameda Fire Municipal Service Review
Public Review Draft
Figure 3-14: Revenue and Expenditure Summary by Agency
fire fire
service service
expenditure expenditure revenue*
agency or budget annual annual
city fire department fy 2021-22 growth growth
Alameda County Fire Department $162,425,000 Moderate (3-5%) Low (0-3%)
East Bay Regional Park District
(Fire Services) $8,388,000 High (>5%) High (>5%)
County Service Area EM-1983-1 $22,388,000 Low (0-3%) Moderate (3-5%)
Fairview Fire Protection District
$3,973,000 Moderate (3-5%) Low (0-3%)
City of Alameda $44,816,000 High (>5%) Low (0-3%)
City of Albany $3,922,000 High (>5%) Decline (<0%)
City of Berkeley $48,359,000 Moderate (3-5%) High (>5%)
City of Dublin $15,600,000 Moderate (3-5%) Decline (<0%)
City of Emeryville $9,830,000 High (>5%) Decline (<0%)
City of Fremont $58,886,000 High (>5%) Low (0-3%)
City of Hayward $45,591,000 Moderate (3-5%) Low (0-3%)
Livermore Pleasanton Fire
Department (JPA) $46,012,000 High (>5%) High (>5%)
City of Newark $12,274,000 Low (0-3%) Decline (<0%)
City of Oakland $191,513,000 High (>5%) Low (0-3%)
City of Piedmont $7,952,000 High (>5%) High (>5%)
City of San Leandro $26,007,000 Moderate (3-5%) Decline (<0%)
City of Union City $11,719,000 Moderate (3-5%) Decline (<0%)
In addition to future inflation and recession risks, over the longer-term fire and EMS agencies
will continue to face financial challenges from population and commercial growth, unfunded
pension liabilities, increasing liability and insurance costs, in addition to the growing firefighting
costs associated with climate change.
Ch. 3: Overview 62
Policy Consulting Associates, LLC
Alameda Fire Municipal Service Review
Public Review Draft
The fire agencies in the study area have demonstrated extensive collaboration with one another
in the form of joint studies and grants, contracts and partnerships, facility and resource sharing,
regionalization of dispatch services, and the implementation of closest resource dispatching
strategies in certain areas, which may be indicative of the potential for further resource sharing,
continued regionalization, or other service structure reorganization.
Alameda County fire providers have a history of regionalization through consolidation,
consortiums, contract service provision, and joint powers authorities, which have reduced
duplication of efforts and enhanced efficiencies. Using these prior restructuring efforts as
models, it appears that there is the potential for further regionalization to reap similar benefits.
Because Alameda County is served primarily by ACFD and city fire departments, there are
limited options for full consolidation between agencies. Fire service structure options that
promote efficiencies and are feasible at this point in time consist of contracting for services by
neighboring providers and formation of a joint powers authority/agreement, both of which are
considered functional consolidation.
Contracts are used when jurisdictions agree to provide a service to another for a set fee.
Contracting for certain services from other agencies offers an opportunity to test a service
structure prior to committing to further reorganization and may also offer cost efficiencies
depending on the structure and participating agencies. Contracts for services are a way to
build closer ties between cities and districts. Such contractual arrangements are already
extensively practiced by ACFD and the five cities for which it provides contract services.
Additionally, the City of Hayward provides contract services to Fairview FPD.
There may be opportunities for additional cities to engage in contractual service agreements
with ACFD or with a neighboring city, as is presently practiced, or to contract for specific
services, such as administration, to cut costs and increase efficiency.
A joint powers agreement is a formal legal agreement between two or more public agencies
that share a common power and want to jointly implement programs, build facilities, or deliver
Ch. 3: Overview 63
Policy Consulting Associates, LLC
Alameda Fire Municipal Service Review
Public Review Draft
services. Officials from those public agencies formally approve a cooperative arrangement. A
joint powers agreement is like a confederation of governments that works together and shares
resources for mutual support or common actions. The government agencies that participate in
joint powers agreements are called member agencies. With a joint powers agreement, a
member agency agrees to be responsible for delivering a service on behalf of the other member
agencies. Each joint powers agreement is unique as there is no set formula for how
governments should use their joint powers. One agency will administer the terms of the
agreement, which may be a short-term, long-term, or perpetual service agreement.
A joint powers authority (JPA) is a new separate government organization created by the
member agencies but is legally independent from them. Like a joint powers agreement (in
which an agency administers the terms of the agreement) a JPA shares powers common to the
member agencies and those powers are outlined in the JPA agreement. Agencies create JPAs
to deliver more cost-effective services, eliminate duplicative efforts, and consolidate services into
a single agency. A joint powers authority offers the advantages of a more ephemeral and
potentially more limited consolidation (i.e., training), continued accountability and local control,
and a potential structure to overcome inherent financial and staffing incompatibilities among
the providers towards future further consolidation efforts.
At present, the Livermore Pleasanton Fire Department is a joint powers authority consisting of
the cities of Livermore and Pleasanton as member agencies. The JPA was created to merge
the two individual fire departments and consolidate them into a single fire department to
deliver more cost-effective fire protection services for Livermore and Pleasanton by eliminating
duplicative efforts. The management and governance structure for the JPA was established to
preserve the ability for Livermore and Pleasanton to each establish the level of service it
determines to be appropriate within its own jurisdiction. The consolidated department is
operated by a JPA board. While a formal joint powers structure was put in place, the powers
assigned to the JPA board were limited: all major fiscal and labor relations decisions are made
by the two cities' City Councils, with the JPA board serving in an advisory capacity to each
body. The Board is comprised of the Mayor and a City Council member from each city. The
City Managers of the two cities serve as joint Executive Directors and appoint the Fire Chief.
By forming the consolidated department, the partner cities avoided creating another agency
with its own overhead costs for fiscal and personnel management. The new department uses
existing city support services. The City of Pleasanton provides payroll, personnel and budget
services, and the City of Livermore provides risk management and workers compensation
services. Legal services for code enforcement are provided by both cities' legal departments.
Ch. 3: Overview 64
Policy Consulting Associates, LLC
Alameda Fire Municipal Service Review
Public Review Draft
To properly allocate the joint department's management expenses, the two cities use a four-
part cost-sharing formula that takes into account factors such as the number of emergencies or
fire prevention inspections occurring in each city. Currently, Livermore is covering 54 percent of
these expenses, Pleasanton 46 percent. Each city maintains the right to determine the number
of fire stations and firefighters it needs, so growth in one city does not affect the other city's fire
service costs.
One of the management improvements resulting from the consolidation was the movement of
top officers in both departments into full-time specialty roles. Before consolidation, division chiefs
in both departments managed responsibilities such as emergency operations, training and
emergency medical services on a part-time basis. Effectiveness is improved in the consolidated
agency with full-time managers for each function. The separate fire prevention bureaus also
were consolidated; the single bureau jointly serves both cities, including their one-stop building
permit centers.
Initially, all fire station personnel remained in their parent cities but were cross trained in the
other city's stations and on its fire equipment; currently, firefighters regularly work in the other
city's stations, providing coverage for those on vacation or sick leave. The two fire union locals
also merged, and the five-year labor agreement negotiated by the cities with the newly
combined International Association of Fire Fighters local contributes to the consolidated fire
department's long-term cost stability. The JPA immediately agreed to joint promotional testing,
and the several promotions, which since being made have contributed to the blending of the
two cities' fire services.
A single training system serves both cities' firefighters. Managed by a division chief, it uses a
modern training tower and classroom located in Pleasanton. Emergency operations also have
been completely merged, with a single "duty officer" responding to emergencies wherever they
occur and both cities' fire equipment responding wherever needed. Dispatch services were
consolidated in Livermore's public safety communications center, as it was larger and better
suited to handle the workload created by the consolidation of the departments. The
consolidated department has focused on the creation of one "culture" and one set of operating
procedures, which combines the "best practices" that were in use in both cities.
Functional consolidation and other cooperative service agreements have the potential to
improve the overall efficiency and effectiveness of emergency services, which can be achieved
by more efficient use of scarce resources and a reduction in equipment needs and duplicate
efforts, and at the same time promote greater flexibility. Operational and political challenges
Ch. 3: Overview 65
Policy Consulting Associates, LLC
Alameda Fire Municipal Service Review
Public Review Draft
can be overcome through functional consolidation. Boundary disputes can be minimized with
the closest and most appropriate resources being dispatched. This will foster rational service
response zones and the likelihood of faster response. A functional consolidation would allow
each agency to retain its identity while at the same time combining resources or specialty
assets.
Legislative changes have been made that now require a LAFCO application and consideration
for fire contract services between two public agencies. Formation of a joint powers authority
continues to be outside of LAFCO's jurisdiction.
In 2016, the Cortese Knox Hertzberg Local Government Reorganization Act of 2000 was
amended to include Government Code §56134 providing for fire protection service by contract
outside a public agency's jurisdictional boundary in accordance with Senate Bill 239. This
statute applies to fire protection agreements/contracts, which are contracts or agreements for
the exercise of new or extended fire protection services outside a public agency's boundary.
The statutes apply to these contracts if the contract would transfer responsibility for providing
services in more than 25 percent of a public agency's service area to another public agency or
changes the employment status of more than 25 percent of the employees of a public agency
affected by the contract.
Unlike Government Code §56133 which addresses services by contract outside city and district
boundaries, GC §56134 requires additional information, including a fire protection contract,
plan for service, independent comprehensive fiscal analysis, and a public hearing.
Across the State, there is a trend toward using a closest resource dispatch strategy countywide
to ensure the fastest response times. In essence, this model means that all agency boundaries
are eliminated for dispatch purposes, without regard to jurisdiction or statutory responsibility, to
enhance efficiency for the benefit of the constituents. The Livermore Pleasanton Fire
Department (LPFD) and Alameda County Fire Department (ACFD) have transitioned to a
closest resource dispatch strategy by executing a streamlined automatic aid agreement, where
either agency is automatically dispatched based on proximity to the call to minimize response
time.
The degree to which the closest resource system can be executed may be restricted by
communication and dispatch structure capabilities.
Ch. 3: Overview 66
Policy Consulting Associates, LLC
Alameda Fire Municipal Service Review
Public Review Draft
An effort is underway to develop a formal agreement between stakeholder agencies to reduce
wildfire threat throughout the East Bay, within both Alameda and Contra Costa Counties, to
address increasing threats from wildfire, pool resources at a regional level, and enhance
coordination amongst multiple responders. The East Bay Wildfire Prevention Community
Organizing Committee has spearheaded this project and developed a Memorandum of
Understanding (MOU) that is currently being presented to potential signatory agencies for
ratification. The MOU is proposed to include jurisdictions in western portions of Alameda and
Contra Costa Counties containing hill areas designated as High or Very High Fire Hazard
Severity Zones. The focus of the efforts is the "inner East Bay," along the Berkeley, Oakland,
San Leandro, and West Contra Costa Hills, and extending southward to the westernmost
portions of the Diablo Range, from Hercules in the north to Fremont in the south.
The core components of the MOU consist of the following recitals and plans:27
• Highlights the high wildfire risk in the East Bay Hills area,
• Emphasizes the need for regional coordination among jurisdictions, fire districts, and
regional agencies,
• Formation the East Bay Hills Regional Wildfire Prevention Coordinating Group
(WPCG) consisting of a group of public officials representing the counties,
municipalities, and fire districts,
• Common goals regarding regional wildfire prevention,
• Description of the wildfire prevention activities performed by participating agencies,
• Desire to improve coordination and enhance efficacy and efficiency of activities,
• Identification of the shared goal of increasing each participating agency's level of service
to residents and property owners,
• Desire to create opportunities for cross-agency communication and cooperation,
• No alteration of jurisdictional boundaries, cooperative efforts, or legal authorities,
• Description of responsibilities of the counties, municipalities, and fire protection districts,
• Ratification and enforcement of Fire Codes within respective jurisdictions,
• Collaboration strategies and activities to minimize wildfire hazards in the East Bay Hills,
• Assisting in the development of model codes for fire prevention,
27 Presentation to East Bay Wildfire Prevention Community Organizing Committee at the June 28, 2023, meeting, accessed at
https://eastbaywildfire.org/.
Ch. 3: Overview 67
Policy Consulting Associates, LLC
Alameda Fire Municipal Service Review
Public Review Draft
• Joint plans for vegetation management and wildfire-resistant vegetation,
• Partnering to apply for state, federal, and other grant funds, and
• Planning for wildfire evacuations and response across jurisdictions.
Efforts of this nature that enhance regional planning and coordination of prevention and
suppression efforts would have value added in other portions of the County and Bay Area as
well.
In California, CAL FIRE typically has responsibility for protection of State Responsibility Areas,
unless there is an alternative structure in place within a county. Six counties have opted to
become "contract counties" by providing contract services to the State, filling the services that
would otherwise be provided by CAL FIRE for reimbursement. The six counties are Kern, Los
Angeles, Marin, Orange, Santa Barbara, and Ventura. There are several benefits to this
service structure, including:
• This service structure supplies revenue to the county fire agencies for services that can
often be provided at a lower cost than by CAL FIRE thereby enhancing revenue.
• The fire agencies can offer services beyond CAL FIRE's obligations to include structural
fire protection and emergency medical response in the more remote areas.
• Staffing can be extended to year-round at remote facilities if needed.
In the past, Alameda agencies have had discussions with Santa Clara and Contra Costa fire
agencies regarding the possibility of all three counties transitioning to this model and joining
Marin to form a block of Bay Area contract counties. However, the plan was not pursued at
that time. Given the changes to fire service that have occurred over the last two decades,
reassessing the possibility of Alameda transitioning to a contract county may be warranted.
Inclusion of Santa Clara and Contra Costa in the restructuring, as previously mentioned,
would create a more cohesive fire service structure in the Bay Area and likely enhance
bargaining power with the State.
Reorganization of Fairview FPD continues to be an option, although multiple prior reviews of
reorganization did not result in any changes in organization. The district remains the sole
independent fire protection district in the County, and contracts out for services with the City
of Hayward Fire Department. When last reviewed in 2013, district residents were vocally
Ch. 3: Overview 68
Policy Consulting Associates, LLC
Alameda Fire Municipal Service Review
Public Review Draft
opposed to consideration of reorganization. Because the District does not provide any direct
services, but rather administers a contract for service provision, certain operating and
administrative expenses could be avoided by dissolving FFPD and having another existing
service provider take on governance and operations of fire service in the area. The most
feasible and likely the most beneficial option is annexation of FFPD's territory by ACFD and
continued contract services by the City of Hayward. Residents could retain the service
provider they prefer, and savings could be achieved with a management layer and election
costs eliminated through government reorganization.
During the 2013-2016 MSR and SOI updated process for FFPD, several deficiencies and
concerns were identified by LAFCO resulting in conditions placed on the most recent
affirmation of the District's coterminous SOI in 2016. It appears as though the District has
met all of the conditions outlined by LAFCO at that time. The District has made great efforts
to greatly enhance the level of services provided and highlight the value added by FFPD's
service structure. Because of these management and other service level enhancements, there
does not appear to be an impetus to dissolution if the community is not supportive.
Ch. 3: Overview 69
Policy Consulting Associates, LLC
Alameda Fire Municipal Service Review
Public Review Draft
Alameda County Fire Department (ACFD) is the main fire suppression service provider for
areas of unincorporated Alameda County as well as the fire suppression and emergency
medical service provider via contract for the cities of Dublin, San Leandro, Newark, Union City,
and Emeryville, in addition to the Lawrence Livermore National (LLNL) Laboratory and the
Lawrence Berkeley National Laboratory (LBNL). ACFD also provides regional 9-1-1 dispatch
services to fire departments in the cities of Fremont, Livermore-Pleasanton, and Alameda, and
for Falck Ambulance and Camp Parks.
ACFD was established on July 1, 1993, through consolidation of three fire districts—Castro
Valley Fire Protection District, Eden Consolidated Fire, and County Fire Patrol (each a
dependent special district under the Alameda County Board of Supervisors). Altogether, the
District serves a population of nearly 400,000.
The principal act that governs ACFD is the Fire Protection District Law of 1987. The principal
act empowers fire districts to provide fire protection, rescue, emergency medical, hazardous
material response, ambulance, and any other services relating to the protection of lives and
property. Districts must apply and obtain LAFCO approval to exercise services authorized by
the principal act but not already provided (i.e., latent powers) by the district at the end of
2000.
The last MSR for ACFD was completed in 2008.
The ACFD's boundary includes all the unincorporated areas of Alameda County except for
areas served by the Fairview Fire Protection District (FFPD).
The ACFD's current boundary area is 508 square miles. The largest portion of this territory is
situated east of Fremont and served by the Livermore-Pleasanton Fire Department with
dispatch services provided by ACFD. Agencies that abut the District include the cities of
Fremont and Hayward to the west and Oakland and Berkeley to the northwest of the
boundary. The City of San Ramon is adjacent to the ACFD boundary in the north with the
Ch. 4: ACFD 70
Policy Consulting Associates, LLC
Alameda Fire Municipal Service Review
Public Review Draft
City of Tracy to the east and the City of Milpitas to the southeast. The City of Morgan Hill
and the Diablo Mountain Range is along the south border of the District.
ACFD provides contract services outside of its boundaries to the cities of Dublin, San Leandro,
Newark, Union City, and Emeryville and LBNL and LLNL.
ACFD does not have stations located in unincorporated areas around Pleasanton. The
Livermore-Pleasanton Fire Department provides service in this vicinity via contract. ACFD also
works under contract with the City of Pleasanton to serve three County Service Areas (CSAs)
known as Remon, Castlewood, and Happy Valley.
In 2004, the Alameda LAFCO resolved to affirm the existing SOI for the ACFD. In 2022, the
District's boundaries remain coterminous with those of Alameda County.
Figure 4-1: Alameda County Fire Department Service Area and SOI
Alameda County Fire Department
Range 04 West Range 03 West Range 02 West Range 01 West Range 01 East Range 02 East Range 03 East Range 04 East Range 05 East
h h h h h t t t t t u u u u u o o o o o S S S S S 1 2 3 4 5 0 0 0 0 0 p p p p p i i i i i h h h h h s s s s s n n n n n w w w w w o o o o o T T T T T 00 0 2 0 2 3 0 0 1 1 5 4 6 0 0 3 0 1 3 3 1 3 0 0 1 1 9 0 0 6 8 1 C UV 00 8 o 7 S 3 u a 5 n n t 5 y 8 F 1 r 7 an B 8 c a i 1 9 s y B §¨¦ c 6 s 8 o h e o 0 re r F k §¨¦ w 2 2 3 y e 8 3 8 0 2 E 1 0 l0e UV m 2 6 3 y 7 2 3 1 4 0 2 e Main 3 2 r A 5S y 2 2 6 l 3 v 0 a 1 C a 1 UV i 0 n UV 8 m 3 l 7 0 o 2 1 §¨¦ l 1 6 2 t 4 2 9 8 P e h 1 3 4 5 M u t 8 e a 2 t h 1 h c 0 1 d UV 3 n i 0 a f 8 B i a 8 c t r 4 o 1 t t a y I 0 s A 8 h e d 0 la w P t v n h a o d y e D i 0 r e 1 UV 3 0 d 9 t 0 h 0 F 2 m o £¤ o 1 UV UV §¨¦ t 0 5 2 o h 6 0 8 1 4 i 1 l n 0 0 l 6 B 5 t 6 8 lv 3 O t 0 UV S h d 5 1 t 9 0 a 3 h a 8 9 0 t 1 7 k n 4 h 3 6 M l r d a L 1 a M 2 3 1 0 a n r 2 3 5 c e 2 i a 4 n UV r 7 A 2 d t S 0 1 2 M h a a 3P u 3 8 k o C r 3 1 i n r 2 B B y 5 5 n a 4 F l 6 v g l l d d e i a F v 0 n h W A H d e S r u a 2 B C o r 2 l y 5 0 v a s 2 3 2 d F t 4 6 R y 1 F 0 d 2 S w 0 5 6 UV 2 2 R 3 e a 3 3 7 3 S d 0 1 w 1 0 H 8 8 o a r es o A p i d n e UV d ri t C a 8 R M n 4 B F a A d l 5 r v 8 y UV d F 3 s 1 UV 9 2 R 2 1 S 2 7 d 2 9 0 8 2 §¨¦ 8 5 1 4 9 8 A 3 6 4 2 2 3 0 8 1 C 1 0 9 6 4 A F 1 9 F 5 UV C 1 2 3 3 0 S 2 0 2 3 F 1 4 1 2 1 7 2 2 5 8 F 1 0 3 6 3 5 S C N 2 F 1 U 1 h 3 1 2 1 r 2 5 3 2 2 A 5 1 1 e 1 e 2 e 0 6 6 3 n 1 4 4 r C 0 m r C r o w w 2 y 2 i o 1 7 D F 5 o 5 C 2 a 1 n S 3 1 1 n a F v 3 a 3 1 2 t 1 2 3 t 2 i n l n l 6 S 4 3 e B r 5 y B B 0 3 1 k 0 l l 6 o v P v 1 l d 0 2 7 C a 6 1 a n d 3 A l c 3 9 o 1 R m o i 0 C 3 3 5 8 6 6 t 3 a 2 1 d w 1 6 1 1 r 3 2 F 0 y 9 8 e 9 S §¨¦ 2 0 s 3 1 R F 2 5 2 t 2 8 9 d 8 3 S o 0 0 7 1 8 2 3 5 F 2 1 5 2 0 1 0 7 n 8 9 2 0 P UV 0 7 5 9 0 6 3 4 r 2 2 e 7 8 a 2 5 3 1 8 8 8 e 4 1 l 3 72 1 V o 4 2 2 1 3 0 6 m m 94 1 a 1 9 1 3 2 6 4 9 1 a 6 l 3 8 1 5 1 l r 3 6 o e 3 e 0 2 2 2 2 4 s 7 9 1 2 0 7 1 y 1 n 3 2 3 3 3 3 2 2 0 1 5 4 8 1 4 3 7 R 2 0 5 t 0 1 3 UV 2 d 2 1 A 0 4 2 2 2 2 3 2 3 0 1 1 7 l 0 §¨¦ 6 1 3 1 5 c 2 3 1 6 0 UV C 4 8 3 2 B 1 1 2 2 o 2 5 1 8 5 s a 6 6 3 l t 4 a 0 a m 2 0 B c 2 3 1 2 l i 2 6 v 1 k 1 1 1 2 1 6 n 3 1 5 1 2 d 4 4 2 1 h 2 3 3 3 1 5 2 3 2 o 2 6 a 5 0 4 2 w 2 T 7 5 k 1 a 3 6 3 P 2 3 1 1 3 1 UV 1 1 s 1 4 0 R 2 eh 9 3 ug 7 oD try 6 6 2 D 8 1 R l d 3 s d 3 e u 6 7 a 6 2 1 b a j 0 5 3 3 5 a 7 2 3 l 1 8 s 2 1 1 8 i 0 r 9 0 9 n 7 8 1 6 0 a 3 D a 7 1 B M 2 3 n u a 9 in 3 1 l 2 9 3 A 2 4 5 v C t 6 2 1 b 0 2 1 8 d o C 0 C 8 S 7 a 35 lav o l er 2 a F s n i a 2 n F n 1 2 C 1 C 2 3 3 5 2 3 7 S 4 n 0 2 2 2 3 t 8 3 1 8 1 1 o 1 1 9 o 6 9 r 3 4 t 3 6 4 3 a 4 a u u 3 2 2 2 2 1 1 4 1 6 0 7 3 1 2 3 4 2 A n 1 3 5 n 3 C 2 C 2 0 5 2 1 4 C 7 1 UV 2 t 5 3 l t 0 l o 8 y a o y a 3 4 2 2 2 S 1 2 s 1 5 1 1 m 1 6 5 4 u r 3 3 3 t 1 0 1 2 4 3 2 1 2 a 2 6 t 1 0 a 5 2 6 1 n 3 4 n a 2 e 1 l H t e 3 1 3 1 d 2 6 1 3 2 7 i 7 y 6 9 1 0 2 y 5 6 8 1 3 g 4 3 3 1 a 2 1 2 1 6 3 h B 5 1 1 4 3 0 3 1 9 2 l 8 l 6 a v 2 1 2 3 n 3 5 1 1 8 0 d 7 9 3 5 2 0 d 3 9 8 1 2 3 6 3 6 2 R 1 7 1 9 1 7 0 L d 9 7 5 2 8 6 1 3 0 i 7 1 2 1 2 9 v 3 4 1 1 9 8 6 8 4 3 Liverm 3 A o 7 r 8 r r 2 2 o e y 3 e o A R v 5 d 1 e 2 2 1 3 8 0 2 7 1 9 6 5 8 3 r 2 m 1 3 2 2 3 9 3 1 0 1 4 7 2 2 1 2 1 3 5 M 3 0 1 9 3 8 6 6 3 2 o 4 2 2 4 4 a 3 7 1 2 8 9 3 r 6 r 1 1 1 3 s e 3 1 2 5 2 1 2 3 3 0 3 2 1 5 2 2 5 h 6 1 2 3 4 4 1 7 4 7 2 1 2 0 2 3 5 2 2 1 5 C 1 6 1 1 3 1 4 0 5 r 1 2 3 0 1 4 2 2 e 3 5 1 2 3 2 6 3 2 V 3 as e 1 c 6 o 2 Rd 5 1 2 4 5 1 3 k 1 6 2 3 3 4 2 2 6 1 R 1 5 1 4 1 3 2 4 d 1 3 1 7 2 3 2 3 1 6 6 3 5 6 4 1 1 1 3 2 0 2 9 7 1 8 6 5 4 3 3 3 1 0 1 8 1 0 1 Gree 1 n 9 ville 7 R 8 d 3 6 3 2 3 1 3 1 5 1 2 0 2 9 1 2 3 8 9 3 0 8 1 7 1 5 1 dR o 0 csaV 3 6 7 9 2 8 2 1 2 9 0 8 7 5 3 1 2 2 3 4 6 2 1 2 8 2 9 7 1 8 0 3 8 3 7 5 2 1 9 6 2 4 1 2 9 3 0 8 3 7 2 5 2 3 1 1 2 8 1 9 8 6 3 7 5 4 3 2 9 2 3 2 3 2 1 3 2 2 8 1 4 1 1 3 7 6 4 1 2 2 A 5 3 0 1 3 P 8 3 9 2 3 6 4 2 l 2 4 2 t 1 a 7 1 3 8 1 2 1 9 a 3 5 6 4 t 0 3 3 2 3 t 3 2 1 2 2 m 4 2 e 7 1 5 2 5 1 3 6 3 2 3 2 4 1 r 1 1 2 4 1 o 1 M 7 3 2 0 s 2 3 5 3 4 2 0 2 2 n 5 6 1 4 o 1 7 i 3 1 2 3 5 3 t 3 0 n 1 2 2 n 2 3 4 1 1 5 2 1 P 2 6 e 3 6 1 4 3 5 1 1 2 4 2 P 2 s 3 a 1 5 2 1 1 6 3 1 a 3 3 4 2 2 2 1 s R 2 2 3 5 s 6 5 6 s 4 1 3 d s 3 1 2 2 2 6 1 1 5 6 4 3 3 3 1 2 3 2 1 2 1 1 1 2 6 1 0 5 9 4 3 7 3 8 4 1 2 2 6 3 3 6 1 5 1 1 0 9 3 7 8 6 3 1 1 1 0 9 7 3 8 6 5 3 1 1 1 3 0 9 2 7 8 2 6 1 2 9 0 8 3 5 2 7 2 1 2 9 3 0 8 5 2 7 2 1 2 9 0 8 3 7 5 4 2 2 1 2 3 9 0 2 8 2 7 5 1 3 8 3 1 9 4 2 6 2 1 3 8 3 1 2 9 2 4 6 3 2 2 3 1 8 1 8 M 3 1 1 9 6 3 4 6 4 o 3 2 9 2 u 1 4 n 1 7 tia 2 n 3 Ho 3 u 2 5 se 2 P 0 ky 1 4 1 7 3 2 3 5 2 0 0 2 4 1 1 7 1 2 5 3 3 3 2 0 0 2 B 2 3 4 2 2 7 1 2 5 y 1 6 1 3 3 4 2 2 r 1 2 1 5 5 1 o 6 3 3 2 4 2 1 2 n 1 5 1 6 3 3 4 1 2 1 2 1 R 2 UV 1 5 3 4 6 2 3 2 d 1 1 6 1 5 4 4 3 3 2 1 2 2 1 6 1 5 4 3 3 1 2 2 2 1 6 1 5 4 3 3 1 2 2 2 6 1 6 S 5 4 3 3 3 1 1 a 1 0 3 9 7 3 8 6 1 1 1 0 3 7 n C 3 9 6 8 7 1 3 6 3 1 5 1 0 9 1 0 8 1 o J 9 Corral Hollow R 3 d u 2 2 o 1 2 9 3 2 0 8 2 7 1 5 n 2 3 4 9 8 2 5 a 0 7 2 1 2 9 0 3 7 2 t T q 2 rac 2 y 9 0 1 y B 3 lv 8 2 5 d 2 6 u 3 8 3 2 1 2 9 1 4 0 3 3 3 S 8 4 1 9 2 4 i 6 2 3 1 8 n 1 L 9 3 6 2 2 t C 3 8 i 1 a 3 n 2 2 4 1 3 7 2 n o 2 2 n 1 2 3 1 0 1 4 7 1 3 2 2 3 5 2 2 e 5 0 2 0 4 u 7 i 2 3 Ch 3 ri 2 sman R R s d 4 7 1 n 3 2 2 d 1 l 1 3 5 6 H 2 3 2 2 a 2 1 t 1 t 5 1 6 3 3 6 4 h 2 o 1 y 2 1 5 u 1 1 3 3 4 w 2 2 1 2 UV 5 1 6 s 3 a 3 2 2 3 1 3 6 5 4 r 2 2 1 2 1 2 1 6 1 d 5 3 4 1 3 2 2 2 3 2 1 6 1 5 4 3 5 R 3 1 2 2 6 6 4 B 3 ird d R 3 d 1 1 1 0 3 3 9 1 7 1 8 6 3 3 1 7 1 0 6 1 9 8 3 1 3 7 0 6 9 3 2 1 2 8 5 1 0 8 2 0 7 9
Alameda County Legend O Alameda County Alameda County Fire Department
S L o o ur c ce a : A l la A m g ed e a n
g i D n
L
e i
A
t
c
s e n
F
c
y
n e
C
l d a r
o
a e
F
im l d
o
d e t i r s o
r
: p
m
b T la e h
a
y e u
t
p s i
i
n u e
o
f
M
r d o p
n a
r o f m
p
o s
C
r
C
a e r t
r
s
o
i e
e
o
a
o f n
m
e
t
n
e
r s l e
d
y
m
h n
1
o a c
/6
n w
i
e
s /
d
2
n a
s 0
i n i s
2
s
i
d
3 on kj A
F
A A
A
C
i
d l l o
r l
a a
a e
j m m m a
m S
c m e e e
t
d d
e a
u n a a
t
n
d
t
i o
i C C C
a
t
n
i o i o e t
s C
u y s u n n
o
B t t
u
y o y u
n
B B n
t
o o d
y
u u a n n
F
r d i d
i
e a
r
a s
e
r r y i e
D
s
epartment
C S o a u n n t F y ranci
S
sco
a
P
C
kj
n
i kj ekj
o
A dE
u
B
M
l m b kj me
n
a
a
o re n
t
A k kjn
t
r
y
ye
e
l ty aO l kjve
o
ma iyl ke le ldaand kjSan
kj
L
H
e
a kj
a
y F
n
w r
d
e a m
r
r
o
d o kj n U kjt n N io e n w C ar it k y
ConC kj tor P
A
D kj au le u
l a
n a b C s
m
l t i a oy n n
e
s t
d
o ta n
a C
kj
o
L
u
iv
n
er
t
m
y
ore San Joaquin County
not to be used as an official map. 0 1.5 3 6Miles Santa Clara County
Ch. 4: ACFD 71
Policy Consulting Associates, LLC
Alameda Fire Municipal Service Review
Public Review Draft
Accountability of a governing body is signified by a combination of several indicators. The
indicators chosen here focus on 1) agency efforts to engage and educate constituents through
outreach activities, in addition to legally required activities such as agenda posting and public
meetings, 2) a website with required content and other useful information, 3) timely ethics
training for board members and an adopted reimbursement policy, 4) a defined complaint
process designed to handle all issues to resolution, 5) adopted bylaws that provide a framework
and direction for governance and administration, 6) adoption of a conflict-of-interest code as
required by law, 7) proper filing of Form 700 by the governing body members, and 8)
transparency of the agency as indicated by cooperation with the MSR process and information
disclosure at meetings, in documents and on a website.
The ACFD is a dependent special district with the Alameda County Board of Supervisors as
its governing body. There are five county supervisors, one from each district, elected to four-
year terms of office. A Board President is chosen from the Board members every two years.
Current board member names, positions, and term expiration dates are shown in Figure 4-2.
The governing body meets every Tuesday at 10:45 in the morning in the Board Chambers on
the fifth floor of the County Administration Building located at 1221 Oak Street in Oakland.
Agendas for each weekly meeting are posted by the Board Clerk on the internet and at the
County Administration building. The Board Clerk provides notice for meetings and
disseminates minutes. Board actions and meeting minutes are available online. Through the
County website, the public has access to live audio/visual webcasts and archived audio and/or
visual webcasts of regular Board meetings for viewing online at their convenience. In addition,
both the County and ACFD, provide access to Facebook and Twitter accounts on their
websites. The County also discloses finances, plans and other public documents via the
internet.
Figure 4-2: ACFD Governing Body
governing body
Manner of Selection Election by District.
4 years for supervisors, board president is chosen
Length of Term
every two years
Tuesday mornings at 10:45
Alameda County Administration Building
Meetings 1221 Oak Street
Oakland, CA 94612
5th floor, Board Chambers
Ch. 4: ACFD 72
Policy Consulting Associates, LLC
Alameda Fire Municipal Service Review
Public Review Draft
Agenda Distribution Posted online, post office, and at the station.
Minutes Distribution Posted online.
board members
Member Term Manner of Length of
Name District Position Expiration Selection Term
David Board Vice
Haubert 1 President 2024 Elected 4 Years
Board
Elisa Marquez 2 Supervisor 2024 Elected 4 Years
Board
Lena Tam 3 Supervisor 2026 Elected 4 Years
Nate Miley 4 Board President 2024 Elected 4 Years
Board
Keith Carson 5 Supervisor 2024 Elected 4 Years
contact
Contact Anne Thomson, Administrative Services Director
Mailing Address 6363 Clark Ave., Dublin, CA
Phone 510-693-3407
Email/Website anne.thomson@acgov.org
Additionally, ACFD participates in community outreach events such as a Holiday Food and
Toy Drive, annual city festivals, CPR and fire extinguisher training, and a community disaster
preparedness program. ACFD also organizes community and school educational programs,
which stress the importance of fire prevention and juvenile fire setter intervention.
All members of Alameda County's Board of Supervisors have current filings for Form 700 with
the California Fair Political Practices Commission, indicating transparency in with their
economic interests.
Through the County, there also exists a conflict-of-interest code and bylaws, outlined in the
municipal code, as lawfully required and by which ACFD must abide.
All complaints concerning ACFD or any of its employees are investigated and a response is
provided to the complainant. Constituents are discouraged to complain anonymously; however,
ACFD may investigate any complaint, regardless of the source. The office of the Fire Chief is
responsible for tracking and logging complaints and insuring their resolution.
There is also legislation in effect to help ensure special districts adhere to accountability
standards. One, California AB 2257 (Government Code §54954.2) is an update to the Brown
Act and indicates requirements for methods by which an agenda for all meetings should be
Ch. 4: ACFD 73
Policy Consulting Associates, LLC
Alameda Fire Municipal Service Review
Public Review Draft
made available on an agency's website. Similarly, the Special District Transparency Act of
2018 (SB 929, Government Codes §6270.6 and §53087.8) indicates that special districts have
websites in use by January 1, 2020, per the Brown Act, and requires how the publicly available
information be displayed. ACFD is in compliance with each of these regulations.
ACFD demonstrated accountability in its disclosure of information and cooperation with the
LAFCO questionnaires and other requests for information.
While public sector management standards vary depending on the size and scope of the
organization, there are minimum standards. Well-managed organizations evaluate employees
annually, track employee and agency productivity, periodically review agency performance,
prepare a budget before the beginning of the fiscal year, conduct periodic financial audits to
safeguard the public trust, maintain relatively current financial records, conduct advanced
planning for future service needs, and plan and budget for capital needs.
ACFD's FY 20-21 budget indicates it has 559 authorized positions. This is an increase of 12,
year over year since FY 19. Of these 559 positions, 511.42 are considered full-time equivalents
for both management and non-management positions. Additionally, the department indicates it
has 100 reserve firefighters to help fulfill the variety of services offered.28 The Fire Chief
oversees four branches—Operations, Communications and Special Operations, Administrative
Support Services, Fire Prevention and Community Outreach. Each branch has its own
divisions. The Training division falls under the Operations branch. The EMS, Information
Technology, and Special Operations divisions are part of the Communications and Special
Operations branch, and the divisions for Fleet Management, Financial Services, Facilities, and
Human Resources are part of the Administrative Support Services Branch.
The Fire Chief provides the leadership and management overall. The Deputy Chief for
Operations oversees the training division, three Operation Divisions, and the reserve program.
The Administrative Services Director oversees Administrative Support Services by managing
contracts and services, facilities, financial services, fleet management, and human resources.
The Deputy Chief for Communications and Special Operations manages the Alameda County
Regional Emergency Communications Center (ACRECC), EMS, information technology,
28 Alameda County Fire Department, https://fire.acgov.org/AboutUs/aboutus.page, April 19, 2022.
Ch. 4: ACFD 74
Policy Consulting Associates, LLC
Alameda Fire Municipal Service Review
Public Review Draft
Alameda County Operations Area & California Incident Command Certification Center
(CICCS), and Special Operations.
ACFD, as a component of the Alameda County government, is required to conduct value-
based budgeting. The goals of this process involve funding agreed-upon service levels,
identification of revenues and expenditures as one-time or continuing, and maintenance of
adequate contingency and reserve funds.
ACFD battalion chiefs evaluate operations of their respective battalions on an on-going basis.
ACFD also conducts annual personnel evaluations. Managers annually review goals and
objectives for the coming year and goal achievements for the previous year. ACFD monitors its
workload through chief officer performance reviews to identify staffing and resource deficiencies.
To ensure fire service efficiency and effectiveness, ACFD has set policy goals and objectives.
ACFD aims to provide emergency response and incident management for fires, rescues,
medical emergencies, hazardous materials incidents, and disasters to all Alameda County
citizens and to ensure that local, State and federal mandated and discretionary service levels
are maintained within the communities served.
ACFD's finances are managed by the County. County financial planning documents include
an annual budget and Comprehensive Annual Financial Report (CAFR). In addition, ACFD
has financial statements audited annually. The District's capital needs are included in the
County's Capital Improvement Plan (CIP). ACFD adopted a Fire and Emergency Services
Strategic Business Plan; the most recent update was for the years 2015-2019. Additionally, the
District participates in the Region II plan for the Office of Emergency Services.29
Similar to other land use authorities around the State, Alameda County has developed and
adopted a Climate Action Plan to reduce greenhouse gases and their impacts. The Alameda
County (Unincorporated Areas) Community Climate Action Plan (2014) addresses reduction of
greenhouse gas emissions through a series of 37 local programs and policy measures related to
transportation, land use, building energy, water, waste, and green infrastructure.
The County adopted two climate action plans: one focused on operations and services in 2010
and one on unincorporated communities in 2014. The County's Climate Action Plan for
Government Operations and Services Through 2020, adopted in 2010, set a path for County
operations to achieve a minimum greenhouse gas emissions reduction of 15 percent and a
stretch target of 30 percent by 2020 from a 2003 baseline. The plan also set a long-term
target of an 80 percent reduction in emissions by 2050. The County exceeded the 2020
29 Alameda County Fire Department, Survey Response, July 2021.
Ch. 4: ACFD 75
Policy Consulting Associates, LLC
Alameda Fire Municipal Service Review
Public Review Draft
stretch target: we achieved a 31 percent reduction in operational emissions.30 The County
adopted a new climate action plan in May 2023, setting a target for County services and
operations that exceeds our 2050 target and aligns with California's carbon neutrality target
by 2045.
The Plan does not address the impacts of climate change on wildfires, but does include a CAL
FIRE program aimed at five forestry strategies for reducing or mitigating greenhouse gas
emissions, including:
• Reforestation to promote carbon sequester,
• Forestland conservation to avoid forest loss to development,
• Fuel reduction to reduce wildfire emissions and utilization of those materials for
renewable energy,
• Urban forestry to reduce energy demand through shading, increase sequestration, and
contribute biomass for energy generation, and
• Improved management to increase carbon sequestration benefits and forest health.
This section discusses the factors affecting service demand, such as land uses, and historical
and anticipated population growth.
When development plans are processed, ACFD reviews plans and works with planning staff
from the County or affected city to ensure that fire codes are met, and fire access and other
issues are addressed as conditions of approval. The impacts of emergency fire and medical
services are also addressed as part of any environmental review prepared for a development
project. ACFD utilizes a collaborative process with local jurisdictions to forecast fire service
needs so that local needs and trends can be identified, and service trends developed.
ACFD's boundary area is approximately 508 square miles of unincorporated territory. The
County is the land use authority for the unincorporated areas within ACFD's bounds. ACFD
encompasses every land use designated by the County—Rural, Low to High Density
Residential, Major Commercial, Industrial, Mixed Use, Parklands, Agriculture, and Public. The
30 Alameda County Climate Action Plan for Government Services and Operations Through 2026 (GOCAP), p.4-5, April 10,
2023.
Ch. 4: ACFD 76
Policy Consulting Associates, LLC
Alameda Fire Municipal Service Review
Public Review Draft
topography, natural boundaries, drainage, level of development and projected growth vary
considerably in the unincorporated areas of the County.
As of 2022, the population in the ACFD service area (including contract cities) is estimated to
be 394,000. The District's territory is large and ranges from densely populated areas to
wildland regions. Its population density is varied due to its diverse landscape. Depending on the
area, this number can be less than 1,000 or more than 15,000 people per square mile.31
Based on Association of Bay Area Governments (ABAG) growth projections, the population of
the area within ACFD is anticipated to grow by an average annual growth rate of 0.8 percent,
which equates to a population of approximately 437,002 by 2035. ACFD reported that
growth patterns are affecting service demand.
There are currently planned and proposed developments in unincorporated areas within
ACFD's boundaries, these includes projects for residential, industrial and commercial use.
Currently being reviewed is the Village Green mixed-use, multi-family housing development in
San Lorenzo, the Fa YunChan Buddhist Center in Castro Valley, and a four-story community
housing development corporation near Fairview. The unincorporated regions that would be
affected are all on the western central border of ACFD.
Planned and proposed developments within cities of Dublin, San Leandro, Newark, Union City,
and Emeryville that may impact the service demand for ACFD are discussed in detail in the
Cities of Dublin, San Leandro, Newark, Union City, and Emeryville MSRs.
The District reports that it will be vital to collaborate with its contracted agencies to continue
to meet demand through continued periods of growth within its service area. This will include
forecasting needs based on analysis of their population projections, development plans, and
employee turnover and attrition in order to estimate staffing needs.32
31 Alameda County Fire Department, Volume 2 of 3 – Technical Report, Standards of Coverage Review, p. 94, 9/1/17
32 Alameda County Fire Department, SoGo Survey Response, July 2021.
Ch. 4: ACFD 77
Policy Consulting Associates, LLC
Alameda Fire Municipal Service Review
Public Review Draft
Per the Census Designated Places (CDP), as of 2021, there are no disadvantaged
unincorporated communities (DUCs) that meet the basic, State-mandated criteria within the
District's service area. In fact, the community of Ashland is considered the County's only CDP
with potential to become a DUC; however, it is provided essential services such as water,
sewer and flood control services and therefore, no SOI changes have been recommended
based on its status.33
ACFD has the financial ability to continue to provide services. A significant share of its total
budget is funded by contract service charges which are established at levels sufficient to cover
costs. Substantial ACFD fund balances cover any periodic cash flow shortfalls and capital
needs. Recent passage of Measure X will help to fund $90 million in needed fire station capital
improvements. Pension obligations are a "moderate" risk level, and ACFD continues to pre-
fund OPEB obligations when surplus funds are available.
ACFD receives no County General Fund revenues and no Prop. 172 revenues. Services to
unincorporated communities are funded by fire fund property taxes and assessments collected
from those areas which account for about 25 percent of total ACFD revenues. The 75 percent
balance of funding for the total $162.4 million proposed FY2021-22 budget comes from service
charges paid by contract cities and for dispatch services, and from County General Fund
contributions towards unincorporated area costs. Fund balances help pay for capital costs.
Net contributions from Alameda County's General Fund ranged from $1.3 million (budgeted
FY2020-21) to $4.2 million (actual FY2019-20) when expenditures exceeded revenues and/or
when reserves and capital funding are required (e.g., new training facility). These contributions
help to maintain ACFD's fund balances. The FY2021-22 budget projected a shortfall of
revenues compared to expenditures of $4.1 million; fire operations expenditures grow about $7.4
million, or more than 5 percent, compared to the prior year, contributing to the need for net
general fund contributions. ACFD has expressed concern about "rising employee costs,
33 Alameda LAFCO, Countywide MSR on Wastewater, Flood Control, and Stormwater Services, November 2021.
Ch. 4: ACFD 78
Policy Consulting Associates, LLC
Alameda Fire Municipal Service Review
Public Review Draft
resulting from public pension cost increases as well as medical/OPEB costs and liabilities
increases."34 Beginning in 2022, ACFD is pursuing a fire-based ambulance transport model
projected to enhance revenues in the future.35
As described in the County of Alameda's Annual Comprehensive Financial Report,36 ACFD is
legally separate from the County and is reported as if it were part of the primary government
because it is governed by the County Board of Supervisors and the Board has operational
responsibility for the Fire Department. The activities of ACFD are reported within non-major
governmental funds. The books and records for the Fire Department are maintained by the
County.
Ending fund balances for the County's Fire Fund37 have generally been growing over time. The
County's FY20-21 CAFR reported an ending Fire Fund balance of $112.4 million compared to
an FY18-19 ending balance of $89.1 million.38 The FY20-21 fund balance represents more than
70 percent relative to total annual expenditures (including contract services), a "high" ratio of
reserves to expenditures39 which provides for cash flow, contingencies, and capital
improvements.
CalPERS reported that the Safety Plan of the Alameda County Fire Department was 72.8
percent funded as of June 30, 2020.40 This level of funding is considered a "moderate" level.41
Future payments towards ACWD's unfunded liabilities grow from about $10.9 million annually
in FY2022-23 to $14.3 million in FY2027-28.42
ACFD administers a post-retirement medical benefit program through CalPERS; pre-funding
its obligations reduces its unfunded actuarial accrued liability reported to be $117.06 million.43
Periodically ACFD transfers budget savings to the California Employers' Retiree Benefit Trust
(CERBT) Fund to prefund retiree medical costs and other post-employment benefits (OPEB)
34 Response to Alameda Fire and EMS MSR Follow-up Questionnaire.
35 Response to Alameda Fire and EMS MSR Follow-up Questionnaire.
36 County of Alameda Comprehensive Annual Financial Report (CAFR) For the Fiscal Year Ended June 30, 2021, pg. 30.
37 The Alameda County Fire Fund is used to account for revenues and expenditures of funds restricted for fire protection
services in the unincorporated areas of the County.
38 ACFR's Combining Statement of Revenues, Expenditures, and Changes in Fund Balances, Non-Major Governmental
Funds, pg. 117 (FY19); pg. 119 (FY21).
39 Financial indicators derived from California State Auditor's Methodology for Ranking California Cities Based on Fiscal Risk.
40 CalPERS Actuarial Valuation, July 2021, pg. 6.
41 Based on Cal. State Auditor Risk Factors.
42 CalPERS Actuarial Valuation, July 2021, pg. 6.
43 Letter from Fire Chief David A. Rocha to Board of Directors, May 21, 2020, for Agenda June 9, 2020.
Ch. 4: ACFD 79
Policy Consulting Associates, LLC
Alameda Fire Municipal Service Review
Public Review Draft
and reduce its unfunded liability. ACFD reports that it has "significant OPEB obligations for
retiree health (over $100M), and since 2014, employees began contributing portion of their
salary to prefund the obligation."44
Alameda County Measure X was on the ballot as a referral in Alameda County on November
3, 2020. Measure X authorized the ACFD "to issue $90,000,000 in general obligation bonds
to repair and replace outdated stations"45 in unincorporated Alameda County. It was approved
with a 66.78 percent "yes" vote;46 the measure required at least 66.67 percent to pass.
Measure X requires an estimated property tax levy of $15.70 per $100,000 in assessed value.
Debt issued pursuant to Measure X is secured by the property tax levies and does not
encumber ACFD revenues. The Alameda County Fire Fund reports no debt service
obligations.47
ACFD owns its equipment, and leases some facilities (admin, dispatch, training tower).
ACFD has identified long-term funding needs for fixed asset facilities. These needs include
$104 million for fire stations and $30 million for a training center.48 Specific capital projects are
detailed in the County of Alameda's Capital Improvement Plan (CIP) which also identifies
funding sources that include departmental and other funds.49
Funds for fire station capital improvements identified in the CIP are included under Measure X,
fire safety bond funding for future capital development. Measure X authorized ACFD to issue
up to $90 million in bonds with bond revenue going to fund fire station repairs and maintain
services to unincorporated communities, including medical emergency lifesaving services, 9-1-1
response, wildfire protection and disaster response.
44 Response to Alameda Fire and EMS MSR Follow-up Questionnaire.
45 Alameda County Bond Measure X, July 21, 2020.
46 https://ballotpedia.org/Alameda_County_Fire_Department,_California,_Measure_X,_Bond_Issue_,November_2020.
47 Alameda County ACFR, FY21.
48 Alameda County Budget Work Session FY 2021-22, Presentation by William L. McDonald, Fire Chief, 4/7/21.
49 County of Alameda's Capital Improvement Plan 2021-2026.
Ch. 4: ACFD 80
Policy Consulting Associates, LLC
Alameda Fire Municipal Service Review
Public Review Draft
ACFD provides numerous fire suppression, fire prevention, and emergency medical services
such as fire inspection, public education, wildland and hazardous materials response, and
paramedic services. Figure 4-3 details the services provided by ACFD. If a service is not
provided by ACFD, but is offered by another agency, it is indicated in the figure.
With the exception of areas served by the Fairview Fire Protection District, ACFD is primarily
responsible for the fire and paramedic services throughout all unincorporated areas of Alameda
County. Since the formation of the District in 1993, several communities have subsequently
contracted with ACFD for the provision of services, starting with the city of San Leandro in
1995, followed by the city of Dublin in 1997, the Lawrence Berkeley National Laboratory in
2002, the Lawrence Livermore National Laboratory in 2007, the Alameda County Regional
Emergency Communications Center (ACRECC) in 2008, the cities of Newark and Union
City in 2010, and the city of Emeryville in 2012.50
ACFD also contracts with the City of Pleasanton and CAL FIRE to be able to provide fire
services to certain unincorporated areas in the County. Through its contract, the City of
Pleasanton is the agency responsible for serving Remen Tract, Castlewood, and Happy Valley.
Figure 4-3: ACFD Services
service agency
fire suppression services
Structural Fire Protection Alameda County Fire Department
Wildland Fire Protection Alameda County Fire Department
Vehicle Fire Protection Alameda County Fire Department
Ladder Truck Capabilities Alameda County Fire Department
Fire Suppression Hand Crew CAL FIRE
Fire Suppression Dozer Alameda County Fire Department
Helicopter Services – Fire Suppression CAL FIRE
Boat With Fire Suppression Capabilities Berkeley Fire Department
emergency medical services
Basic Life Support Provider Alameda County Fire Department
50 Alameda County Fire Department, https://fire.acgov.org/AboutUs/aboutus.page?, page accessed 3/9/22.
Ch. 4: ACFD 81
Policy Consulting Associates, LLC
Alameda Fire Municipal Service Review
Public Review Draft
Advanced Life Support – Non-Transport Provider Alameda County Fire Department
Advanced Life Support Transport Provider Alameda County Fire Department
Continuing Education Provider – Medical Alameda County Fire Department
Air Ambulance Transport Helicopter Services Reach Air Medical Services
Helicopter Landing Facilities On Site N/A
Vehicle Extrication Tools/Equipment Alameda County Fire Department
fire prevention
Fire Safety Education – Children Alameda County Fire Department
Fire Safety Education – Adults/Seniors Alameda County Fire Department
Juvenile Firesetter Prevention Program N/A
Fire and Life Safety Business Inspection Program Alameda County Fire Department
Fire Protection Planning Alameda County Fire Department
New Commercial Construction Plan Reviews Alameda County Fire Department
Public Education Provider (CPR, First Aid, etc.) Alameda County Fire Department
Home Fire/Safety Inspections N/A
Fire Origin and Cause Investigations Alameda County Fire Department
Fuel Reduction/Weed Abatement Program Alameda County Fire Department
Smoke Detector Giveaway/Installation Program Alameda County Fire Department
Address Sign Installation Program N/A
rescue services
First Responder Swift Water Rescue Program Alameda County Fire Department
Water Rescue Program Alameda County Fire Department
Ice Rescue Program U.S. Coast Guard
Dive Rescue Program Alameda County Sheriff's Office
Low angle Rope Rescue Program Alameda County Fire Department
Helicopter Short/Long Haul Rescue Capabilities California Highway Patrol
Response to Boating Accidents Alameda County Fire Department
Rescue Dog Services Alameda County Fire Department
hazardous materials
Hazardous Materials Emergency Response –
Basic Alameda County Fire Department
Hazardous Materials Response Team Alameda County Fire Department
support services
Firefighter Incident Support Unit Alameda County Fire Department
Ch. 4: ACFD 82
Policy Consulting Associates, LLC
Alameda Fire Municipal Service Review
Public Review Draft
Mobile Incident Command/Communications
Unit Alameda County Fire Department
Fill Station for Self-Contained Breathing
Apparatus Alameda County Fire Department
Mobile Breathing Support Unit Alameda County Fire Department
Community Emergency Response Team Alameda County Fire Department
Chaplain Services Alameda County Fire Department
Training Academy Alameda County Fire Department
Emergency Operations Center Capabilities Alameda County Fire Department
miscellaneous
Public Service Assists Alameda County Fire Department
Motor Vehicle Accident Response Alameda County Fire Department
Alameda County Fire Department with local
Welfare Checks Police Departments
Public Safety Answering Point Alameda County Fire Department
Fire/EMS Dispatch Alameda County Fire Department
Fundraising Activities Alameda County Fire Department
Firefighters Association – Non-Profit Alameda County Fire Department
Auxiliary Association Alameda County Fire Department
ACFD has automatic and mutual aid agreements with various agencies. In addition to the
agreements between ACFD and the cities of Dublin, Emeryville, Newark, San Leandro and
Union City for fire and emergency response services, ACFD contracts with other agencies as
well. The City of Oakland, the City of Tracy, the San Ramon Valley Fire Protection District,
and the Livermore-Pleasanton Fire Department have an automatic aid agreement with the
District. ACFD's agreement with Oakland and Berkeley includes a mutual aid response that
covers the Berkeley-Oakland Hills area. A shared automatic aid agreement exists for providing
service to Interstates 580, 880, and 680. There is also a State Mutual Aid Plan and a
countywide mutual aid agreement for all fire departments in Alameda County.
ACFD also collaborates with the County to receive a variety of administrative services, and to
work in conjunction with the Alameda County Sheriff's Department, and Alameda County
Emergency Medical Services. An agreement also exists between ACFD and California's Office
of Emergency Services for dispatch needs.51
51 Alameda County Fire Department, SoGo Survey Responses, July 2021
Ch. 4: ACFD 83
Policy Consulting Associates, LLC
Alameda Fire Municipal Service Review
Public Review Draft
Regionally, ACFD's collaborations include participating in the governance of the dispatch
center in Livermore through the County Advisory Board. ACFD firefighters who are specially
trained and can be dispatched nationwide to assist with disaster response.
The California Department of Forestry and Fire Protection (CAL FIRE) augments fire services
throughout the State. Generally, CAL FIRE services are focused in wildland areas defined as
State Responsibility Areas (SRA). In ACFD's case, CAL FIRE is utilized for hand crew
services and helicopter services for fire suppression. ACFD also works hand in hand with local
police departments for welfare checks, as well as the California Highway Patrol, the County's
Sheriff's office, and the Coast Guard for assistance with rescue efforts.
For FY 20, ACFD stated there were a total of 42,363 service calls. This is a steady increase
year over year since FY 13, as shown below in Figure 4-4. Of the total number of calls in 2020,
28,782 were for emergency medical services, 2,695 represented false alarms, 2,052 for fire and
hazardous materials service calls, 5,316 for miscellaneous emergencies, and 3,518 service calls
were made for miscellaneous non-emergencies.52
Figure 4-4: ACFD Calls for Service, 2013-2020
45,000 42,173 42,363
40,814 40,921 41,683
40,000 38,797
36,621
34,483
35,000
30,000
25,000
20,000
15,000
10,000
5,000
0
2013 2014 2015 2016 2017 2018 2019 2020
Of the calls for service received in 2020, 16,693 or 39 percent of service calls were within
ACFD's boundary area, which is an increase of 24 percent or 12,792 calls since 2013. In
contrast, approximately 61 percent of calls, or 25,670, were within the District's contract service
52 Alameda County Fire Department, Sogo Online Survey Response, July 2021
Ch. 4: ACFD 84
Policy Consulting Associates, LLC
Alameda Fire Municipal Service Review
Public Review Draft
areas, which is a roughly 26 percent increase since 2013. Of all service calls from within the
ACFD contract service area, eight percent came from Dublin, 24 percent from San Leandro,
about one percent from LBL, one percent from LLNL, eight percent from Newark, 13 percent
from Union City, and six percent from Emeryville.
Figure 4-5 shows the number of calls for each type of service by contract agency.53
53 Alameda County Fire Department, https://fire.acgov.org/AboutUs/stats.page?, page accessed 3/9/22.
Ch. 4: ACFD 85
Policy Consulting Associates, LLC
Alameda Fire Municipal Service Review
Public Review Draft
Figure 4-5: ACFD Service Calls by Type, 2020
service calls by type for contract agencies
Total
Structure Other EMS/R Hazardous Service Good False Cancelled Calls Per
Fires Fires escue Conditions Calls Intent Call Enroute Agency
Dublin 34 55 2458 73 344 146 333 255 3,698
Emeryville 24 36 1370 26 148 110 332 290 2,336
Lawrence
Berkeley
Laboratory 0 2 18 2 5 6 43 12 88
Lawrence
Livermore
Laboratory 16 42 169 27 32 26 132 130 574
Newark 43 72 2,330 72 255 132 324 195 3,423
San Leandro 131 176 7,004 177 869 593 519 759 10,228
Union City 57 141 3,736 42 366 253 376 352 5,323
Total Calls by
Service 305 524 17,085 419 2,019 2,919 2,059 1,993 25,670
Ch. 4: ACFD 86
Policy Consulting Associates, LLC
Alameda Fire Municipal Service Review
Public Review Draft
According to the ACFD's FY 21 budget, there are 559 authorized positions indicated for the
department. This is an increase of 12 authorized positions, since the 2019 fiscal year. Of these
559 positions, 511.42 are considered full-time equivalents (FTE) for both management and non-
management positions. The department also reported it utilizes 100 reserve firefighters.54
Objectives set by ACFD include personnel that are trained and ready for emergency response
100 percent of the time and respond to all calls for service within the service area. The
Department states that newly hired paid firefighters are required to have Firefighter Recruit
Academy training although the monthly training hours for firefighters varies.55 ACFD provides
education that meets State mandated requirements for Emergency Medical Technicians and
Paramedics and enforce State and local fire codes and standards through the review and
approval of building and facility plans. Community service objectives include coordination of
public education, events and disaster operation activities within the communities served.
ACFD operates out of 29 fire stations and additional administrative and fire prevention
facilities, details of which are shown in Figure 4-6. The primary fire administration facility is
located in Dublin, as is the County's fire department vehicle maintenance facility. Each
contract agency also has its own fire prevention bureau office within its respective city. There is
a training facility in San Leandro which includes a four-story cement tower, a single-story
wooden resident-style structure, auto extrication training space, and a classroom.
ACFD owns its fire and EMS equipment, however, it does lease administrative and dispatch
facilities, as well as the training tower.56
In 2017, construction on Station 23 was completed. Then, in November of 2020, Measure X,
also known as the Fire Safety Bond, was approved. It will allow ACFD to issue bonds to make
needed repairs and upgrades at its fire stations. While able to provide adequate service,
several aging facilities have prompted the need for ACFD to consolidate operations and close
one station.57 Station 8, in the City of Livermore, has been decommissioned and its firefighters
now operate out of ACFD Station 20.58
54 Alameda County Fire Department, https://fire.acgov.org/AboutUs/aboutus.page, April 19, 2022.
55 Alameda County Fire Department, SoGo Survey Responses, July 2021.
56 Alameda County Fire Department, SoGo Survey Responses, July 2021.
57 Alameda County Fire Department, https://fire.acgov.org/measurex.page?, page accessed 3/9/22.
58 Alameda County Fire Department, https://fire.acgov.org/AboutUs/facilities.page?, page accessed 3/9/22.
Ch. 4: ACFD 87
Policy Consulting Associates, LLC
Alameda Fire Municipal Service Review
Public Review Draft
ACFD has a daily response force capacity that includes 112 personnel, 27 engines, five aerial
ladder trucks, two quints (pumper/ladder), one heavy technical rescue unit, and one
ambulance. The effective response force for building fires equals three engines, one ladder
truck, and one rescue along with two Battalion Chiefs and one Rapid Intervention Crew.59 The
Department's equipment and apparatus are supplemented by CAL FIRE, contract agencies,
and ground paramedic transportation through Paramedics Plus.
The 2017 Standards of Cover Risk Assessment indicated that based on the measure of unit-
hour-utilization, and only two engine companies nearing 20 percent workloads, adding units
during peak daytime hours is not essential at this time. The report also stated that 90 percent
of incidents across the Department were responded to within 7:53 minutes, with a goal of 7:30
minutes for arrival of a first responder on the scene once a 9-1-1 call is received.60
Figure 4-6: ACFD Facilities
acfd facilities
Facility Address Owner Year Built Condition
19780 Cull
Canyon Road,
Castro Valley,
Station 6 CA 94552 Alameda County 1978 Not provided
6901 Villareal
Avenue, Castro
Station 7 Valley, CA 94552 Alameda County 1987 Not provided
1617 College Ave.,
Livermore, CA
Station 8 94550 Alameda County 1949 Out of Service
450 Estudillo
Ave., San
Leandro, CA
Station 9 94577 San Leandro 1970 Not provided
2194 Williams St.,
San Leandro, CA
Station 10 94577 San Leandro 2000 Not provided
14903 Catalina
St., San Leandro,
Station 11 CA 94577 San Leandro 2002 Not provided
1065 143rd Ave.,
San Leandro, CA
Station 12 94577 San Leandro 1963 Not provided
637 Fargo Ave.,
San Leandro, CA
Station 13 94577 San Leandro 1965 Not provided
11345 Pleasanton-
Sunol Road, State of
Station 14 Sunol, CA 94586 California 1989 Not provided
59 Alameda County Fire Department, Volume 2 of 3 Technical Report Standards of Coverage Review, p. 80, 9/1/17.
60 Alameda County Fire Department, Volume 2 of 3 Technical Report Standards of Coverage Review, p. 58, 9/1/17.
Ch. 4: ACFD 88
Policy Consulting Associates, LLC
Alameda Fire Municipal Service Review
Public Review Draft
5325 Broder
Road, Dublin, CA
Station 15 94568 Alameda County 1980 Reserve
7494 Donohue
Dr., Dublin, CA
Station 16 94568 City of Dublin 2002 Not provided
6200 Madigan,
Dublin, CA
Station 17 94568 City of Dublin 2003 Not provided
4800 Fallon
Road, Dublin, CA
Station 18 94568 City of Dublin 2003 Not provided
1 Cyclotron Road,
Building 48, Lawrence
Berkeley, CA Berkeley National
Station 19 94720 Lab, DOE 1991 Not provided
7000 East Lawrence
Avenue, L-388, Livermore
Livermore, CA National
Station 20 94550 Laboratory, DOE 1993 Not provided
Site 300, L-890, Lawrence
15999 W. Corral Livermore
Hollow Road, National
Station 21 Tracy, CA 95377 Laboratory, DOE 2000 Not provided
427 Paseo
Grande, San San Lorenzo
Lorenzo, CA Village Homes
Station 22 94580 Association 1944 Not provided
19745 Meekland
Ave., Hayward,
Station 23 CA 94541 Alameda County 1951 Not provided
1430 164th Ave.,
San Leandro, CA
Station 24 94578 Alameda County 1960 Not provided
20336 San
Miguel Ave.,
Castro Valley,
Station 25 CA 94546 Alameda County 1958 Not provided
18770 Lake
Chabot Road,
Castro Valley,
Station 26 CA 94546 Alameda County 1981 Not provided
39039 Cherry St.,
Newark, CA
Station 27 94560 City of Newark 1981 Not provided
7550 Thornton
Ave., Newark,
Station 28 CA 94560 City of Newark 2005 Not provided
35775 Ruschin
Dr., Newark, CA
Station 29 94560 City of Newark 1962 Not provided
33555 Central
Ave., Union City, City of Union
Station 31 CA 94587 City 1975 Not provided
31600 Alvarado
Blvd., Union City, City of Union
Station 32 CA 94587 City 1984 Not provided
Ch. 4: ACFD 89
Policy Consulting Associates, LLC
Alameda Fire Municipal Service Review
Public Review Draft
33942 7th St.,
Union City, CA City of Union
Station 33 94587 City 2009 Not provided
2333 Powell St.,
Emeryville, CA
Station 34 94608 City of Emeryville 2015 Not provided
6303 Hollis St.,
Emeryville, CA
Station 35 94608 City of Emeryville Not provided Not provided
Alameda County
Fire Department
Vehicle 5777 Scarlett
Maintenance Court, Dublin,
Facility CA 94568 Not provided Not provided Not provided
Fire
Administration/
Alameda County
Unincorporated 6363 Clark Ave.,
Areas Fire Dublin, CA
Prevention 94568 Not provided Not provided Not provided
835 E. 14th St.,
San Leandro Fire San Leandro, CA City of San
Prevention 94577 Leandro Not provided Not provided
100 Civic Plaza,
Dublin Fire Dublin, CA
Prevention 94568 City of Dublin Not provided Not provided
890 Lola St., San
Leandro, CA City of San
Training Facility 94577 Leandro Not provided Not provided
Alameda County
Regional Lawrence Lawrence
Emergency Livermore Livermore
Communication National National
Center Laboratory Laboratory, DOE Not provided Not provided
37101 Newark
Newark Fire Blvd., Newark,
Prevention CA 94560 City of Newark Not provided Not provided
34009 Alvarado-
Union City Fire Niles Road, Union City of Union
Prevention City, CA 94587 City Not provided Not provided
1333 Park Ave.,
Emeryville Fire Emeryville, CA
Prevention 94608 City of Emeryville Not provided Not provided
ACFD regionalized the 9-1-1 call-dispatching function for ACFD fire and medical calls. This was
the result of ACFD and the Alameda County EMS Agency establishing the Alameda County
Emergency Dispatch Consortium in 2002 for the sake of improving dispatch efficiency and cost
savings. The regional dispatching center is known as the Alameda County Regional Emergency
Communications Center (ACRECC) and is housed at the Lawrence Livermore National
Laboratory (LLNL) along with the Alameda County Fire Communication Center (ACFCC).
Ch. 4: ACFD 90
Policy Consulting Associates, LLC
Alameda Fire Municipal Service Review
Public Review Draft
ACRECC currently dispatches fire and medical calls for ACFD, the U.S. Army at Camp
Parks Combat Support Training Center in Dublin, the cities of Alameda, Fremont, Livermore
and Pleasanton, and the County EMS transport provider Falck Northern California ambulance
service. The Consortium, now known as the Advisory Board, is managed by a governing board
made up of participating agencies. Each agency pays an annual amount with costs apportioned
based on call volume as outlined in each contract for service.
Given that 9-1-1 calls may relate to a policing, fire or medical emergency, the calls are first
routed by the telephone provider to the public safety answering point (PSAP) dispatcher. The
first-response dispatcher immediately determines whether a 9-1-1 call is related to a policing, fire
or medical emergency, and routes all fire and medical 9-1-1 calls to the ACRECC. The
ACRECC simultaneously dispatches the first-response unit (ACFD or the municipal fire
department) and the County EMS transport provider for ambulance transport services.
An ACFD goal is to pursue regional cooperation and consolidation of services. ACFD views
dispatch, administration, and the operations division as areas that would benefit from greater
regional collaboration.
As previously mentioned, ACFD contracts with a number of agencies for fire and emergency
response services. To do this, it shares personnel, dispatching services, and facilities resources
as necessary. Consolidating facilities and shifting personnel is not uncommon, with Station 8
firefighters having been relocated to Station 20, which is the Lawrence Livermore National
Laboratory site, as an example. Station 15 currently houses ACFD Reserve Firefighters,
apparatus and equipment even though it was previously the Office of Emergency Services and
Dougherty Regional Fire Authority Station 3.61
ACFD reports that collaboration with regional transport companies, in conjunction with other
fire agencies and municipalities, to establish a fire-based ambulance transport model would
particularly improve efficiencies in service delivery, especially EMS delivery.62
ACFD's capital improvement projects are part of the County's Annual Capital Improvement
Plan (CIP). The current plan has a planning horizon of 2026.
61 Alameda County Fire Department, https://fire.acgov.org/AboutUs/facilities.page?, page accessed 3/9/22.
62 Alameda County Fire Department, SoGo Survey Responses, July 2021
Ch. 4: ACFD 91
Policy Consulting Associates, LLC
Alameda Fire Municipal Service Review
Public Review Draft
At the present time, the General Services Agency is managing the $30 million development of
the ACFD Regional Training Facility. This is listed as a Category I priority, meaning the
project is approved and underway. The most significant upcoming capital projects are centered
around the approval of Measure X and the $90 million in bond funds identified for station
upgrades. The capital improvements involved are identified as Category VI, which are future
projects, and includes the replacement of Stations 6, 7, 8, 22, and 26, as well as the remodel
of Station 24 and the retrofit of fire station 25.63 Without Measure X, ACFD would not have
the financial resources to address its infrastructure needs.
ACFD has indicated two primary challenges to maintaining service adequacy. The first is fiscal
limitations and the second is staffing. Financial setbacks have been both ongoing and in the
short-term. Specifically, the Department has highlighted rising employee costs, largely from
public pension cost increases. Likewise, there have been rising medical and OPEB costs as well
as liability increases. To counter this challenge, ACFD began transferring a portion of its
annual budgeted savings and requiring employees to contribute a percentage of their base
salary, to prefund OPEB liabilities. In 2021, the Department indicated these preventive
measures helped reach a 20 percent OPEB funding level.64
Based on the size of the service area and the locations of the current fire stations, an analysis
shows that ACFD has challenges with multiple unit coverage due to longer travel times to an
incident, even with no traffic.65 Single ladder truck coverage, though currently sufficient, needs
to be reevaluated as well due to the anticipated growth within the area.66 It has also been
noted that the relocation of certain fire stations, such as Stations 22 and 26, would improve
coverage and response times.
This section reviews indicators of service adequacy, including response times, complaints, and
staffing levels. There are many measures of a successful fire protection service. For example,
the agency would meet guidelines established by the National Fire Protection Association
(NFPA), the Center for Public Safety Excellence (CPSE) (formerly the Commission on Fire
Accreditation International), and the California EMS Agency. There are also Public Protection
63 Alameda County, Capital Improvement Plan 2021-2026, p. 9
64 Alameda County Fire Department, SoGo Survey Responses, July 2021
65 Alameda County Fire Department, Standards of Cover, September 1, 2017, p. 32
66 Alameda County Fire Department, Standards of Cover, September 1, 2017, p. 33
Ch. 4: ACFD 92
Policy Consulting Associates, LLC
Alameda Fire Municipal Service Review
Public Review Draft
Classifications (PPC) and Insurance Services Office (ISO) ratings that likewise establish an
agency's level of service.
ACFD has not provided information as to whether any complaints regarding fire service were
received in FY 21.
The Department's BOD has not adopted outcome-based response time goals. Instead, each
contract city abides by unique performance measures in its ACFD contract. ACFD, however,
did adopt response time measures and reports them to the County, the fire commission, and
the contract cities. There are four specific response times based on status of a call and the
guidelines were based on NFPA 1710 standards for fire departments.
ACFD meets its performance goal of having the first unit on scene within 7:30 minutes of the
fire dispatch call pick up 90 percent of the time. Other goals consist of 1:30 minutes for
dispatch (when call begins until dispatch communicates incident information), 2:00 minutes for
turnout (responder notification until travel with apparatus begins to the scene), 4:00 minutes
first travel (between when a unit's wheels begin turning and arrival on the scene), and 8:00
minutes of travel for a first alarm multiple unit call in an urban area.
Response times tend to be quicker in areas that are more urban due to fire stations in urban
areas often being closer together with more access roads. The average response time in the far
eastern portion of the County is significantly higher than the average throughout ACFD's
territory; fire response in this area may take as long as 40 minutes. Still, ACFD has effectively
placed fire stations with very few gaps at the edges of certain communities, which are too small
to recommend adding stations in a cost-effective manner.67
See Figure 4-7 for agreed upon response times between ACFD and contract cities.
Figure 4-7: Response Time Policies by Contract City
response times for acfd and contract cities
Agency Name Single Unit Incident Multiple Unit Incident
Arrival of first company on the scene
within 5 minutes for 90 percent of all
Arrive within 5 minutes from the
incidents. Remaining units should arrive
time the Company is first
City of Dublin on the scene of an incident within 10
dispatched for 90 percent of
minutes from when the first due
incidents.
company begins responding for 90
percent of all incidents.
Arrival of first due company within 7
Arrive within 7 minutes from the
minutes from when they are first
time the Company is first
City of Emeryville dispatched for 90 percent of incidents.
dispatched for 90 percent of all
Remaining units should arrive on the
incidents.
scene of an incident within 11 minutes
67 Alameda County Fire Department, Volume 2 of 3 Technical Report Standards of Coverage Review, p. 31, 9/1/17.
Ch. 4: ACFD 93
Policy Consulting Associates, LLC
Alameda Fire Municipal Service Review
Public Review Draft
from when the first due company begins
responding for 90 percent of all
incidents.
Arrival of first due company within 6
minutes from when they are first
Arrive within 6 minutes from the dispatched for 90 percent of incidents.
time the Company is first Remaining units should arrive on the
City of Newark
dispatched for 90 percent of all scene of an incident within 20 minutes
incidents. from when the first due company begins
responding for 90 percent of all
incidents.
Arrival of first due company within 5
minutes from when they are first
Arrive within 5 minutes from the
dispatched for 90 percent of incidents.
City of San time the Company is first
Remaining units should arrive on the
Leandro dispatched for 90 percent of all
scene of an incident within 10 minutes
incidents.
from when the first due company begins
responding for 90percent of all incidents.
Arrival of first due company within 8:30
minutes from when they are first
Arrive within 8:30 minutes from the dispatched for 90 percent of incidents.
time the Company is first Remaining units should arrive on the
City of Union City
dispatched for 90 percent of all scene of an incident within 20:15
incidents. minutes from when the first due
company begins responding for 90
percent of all incidents.
The most recent risk assessment for ACFD outlines response results and service demand for
FY 17. As of 2016, there were 42,680 incidents ACFD responded to, reflecting a daily incident
demand of 116.61 incidents. Of these, 2.55 percent were fire incidents, 70.66 percent were for
EMS incidents and 26.79 percent were listed as "other." The highest frequency of incidents
tended to occur at midday between 11am and 6pm, indicating that these peak hours would be
ideal if additional units needed to be added.68
Fire services in the communities are classified by the Insurance Service Office (ISO), as an
indicator of the general adequacy of coverage. Communities with the best fire department
facilities, systems for water distribution, fire alarms and communications, and equipment and
personnel receive a rating of 1. ACFD's most recent ISO rating was done in 2015, and it was
given an ISO PPC rating of 01/1Y, which is the top classification available. The first number
means a home is no more than five road miles from a fire station and 1,000 feet from a water
supply such as a hydrant. The second classification, Y, refers to the properties further than
1,000 feet from a fire hydrant but within five road miles of a recognized fire station.69
68 Alameda County Fire Department, Volume 2 of 3 Technical Report Standards of Coverage Review, p. 40, 9/1/17
69 Alameda County, Public Protection Classification Summary Report, p. 7, July 2015.
Ch. 4: ACFD 94
Policy Consulting Associates, LLC
Alameda Fire Municipal Service Review
Public Review Draft
4-1: Continued growth is expected within the ACFD service area which is likely to effect
service adequacy.
4-2: Growth is primarily anticipated in the eastern region of the Department, particularly
throughout the cities of Dublin and Livermore.
4-3: There are currently no DUCs identified within the ACFD service area and, therefore,
no SOI amendments are recommended at this time.
4-4: Based on response times and ISO ratings, ACFD is able to provide adequate services
with sufficient capacity within its coverage area. Still, with population projections and
anticipated development, it will be necessary to continually reevaluate future facility
and infrastructure needs.
4-5: With aging fire facilities and the passage of Measure X, it is expected plans for
retrofitting, upgrading or replacing fire stations will take place as outlined in ACFD
planning documents.
4-6: ACFD has the financial ability to continue to provide services. While expenditures have
grown at a rate that equals or exceeds revenues in recent years, expenditures for
contract services can be charged rates sufficient to cover costs and property tax
growth helps to cover other increases. Significant fund balances provide a cushion to
cover periodic shortfalls and to help fund capital improvements.
4-7: Measure X, approved by voters in 2020, levies a tax rate on assessed value to
provide funding to pay for needed fire stations and other capital improvements
necessary to maintain and improve services to unincorporated areas.
4-8: ACFD is taking measures to pre-fund its OPEB costs and reduce its unfunded OPEB
liabilities. Pension funding exceeds 70 percent, which represents a "moderate" level of
risk and exceeds CalPERS average overall funding for all agencies.
Ch. 4: ACFD 95
Policy Consulting Associates, LLC
Alameda Fire Municipal Service Review
Public Review Draft
4-9: The Department has taken advantage of several collaborative opportunities, including
contracting with five neighboring cities to provide fire and EMS services to its service
area.
4-10: ACFD has outlined and should fulfill its effort to establish a fire-based ambulance
transport model. This would improve efficiency of service and create an alternative
revenue stream for the Department.
4-11: It is recommended that the Department join fellow Alameda fire providers to develop
a regional, countywide dispatch strategy that employs the closest resource for the
fastest response time, regardless of agency boundaries or responsibility.
4-12: The Department abides by all legislative obligations for accountability and
governance practices.
4-13: The Department demonstrated transparency when sharing information for the
creation of this report.
4-14: Governance structure options regarding ACFD's services include participation in
transitioning Alameda County to a "contract county" to the State, potential
annexation of Fairview FPD, provision of contract services to additional interested
cities, and participation in regional planning and coordination efforts for wildfire
protection.
Ch. 4: ACFD 96
Policy Consulting Associates, LLC
Alameda Fire Municipal Service Review
Public Review Draft
The East Bay Regional Park District (EBRPD) provides regional park and recreation services,
water and wastewater, and public safety services, including fire and police protection services,
in Alameda and Contra Costa counties. Alameda is the principal LAFCO and has jurisdiction
over EBRPD.70
EBRPD has been covered in four Municipal Service Reviews (MSR) in Alameda, one on
community services and one on utility services, both which were completed in 2006, and a
stand-alone MSR completed in 2013. Most recently, EBPRD was listed in a 2021 Countywide
MSR update for water, wastewater, flood control, and stormwater services. In Contra Costa
County, the MSRs have been grouped by type of service provided, consequently EBRPD is
covered in seven MSRs. The first round of recreation and park services was adopted in 2010,
and the second round was finalized in 2021. The first round of water and wastewater services
was adopted in 2008, and the second round was adopted in 2014. Fire and EMS services were
covered in 2009 and 2016. Law enforcement services provided by EBRPD were covered in
the 2011 MSR.
This MSR focuses only on the fire and EMS services provided by EBRPD.
EBRPD was established on November 6, 1934, as an independent special district. EBRPD was
formed to acquire and maintain regional parkland first in Alameda County and then,
subsequently, in Contra Costa County. It is the largest regional park agency in the United
States. The principal act that governs EBRPD is the Regional Park, Park and Open-Space,
and Open-Space Law (California Public Resources Code §5500-5595).
The boundary of EBRPD is coterminous with both Contra Costa and Alameda counties. The
service area for EBRPD includes district regional parklands, East Bay Municipal Utility District
(EBMUD) owned lands, the San Francisco Water Department Watershed, the McLaughlin
70 For a multi-county district, the LAFCO in the "principal county" has exclusive jurisdiction (Government Code §56387) unless
it cedes its jurisdiction on a particular proposal to a LAFCO in another county and that LAFCO accepts (Government Code
§56388). Principal county is defined as the county with the greatest portion of the entire assessed value in the district
(Government Code §56066).
Ch. 5: EBRPD 97
Policy Consulting Associates, LLC
Alameda Fire Municipal Service Review
Public Review Draft
Eastshore State Park (jointly owned by EBRPD and the State of California, but operated by
EBRPD), and the Middle Harbor and Port View Parks operated by the Port of Oakland. The
EBRPD boundary encompasses a total of 1,457.6 square miles of land in both Contra Costa
and Alameda counties. In Contra Costa County, the boundary land area of EBRPD is 720
square miles, and in Alameda County, the boundary land area of EBRPD is 737.6 square
miles. Figure 5-1 depicts the District's boundaries within Alameda County.
Figure 5-1: East Bay Regional Park District Boundaries and SOI in Alameda County
East Bay Regional Park District
h h h h h h t t t t t t u u u u u ro o o o o o N S S S S S 1 2 3 4 5 1 0 0 0 0 0 0 p p p p p p i i i i i i h h h h h h s s s s s s n n n n n n w w w w w w o o o o o o T T T T T T 1 2 1 4 3 1 2 2 0 1 5 0 4 1 3 1 3 0 2 R 1 3 1 3 87 0 1 a 0 6 9 1 8 7 n 7 1 8 g 7 0 3 5 2 2 C e 0 1 2 9 8 0 M 8 0 7 1 2 o 0 0 9 6 2 1 2 a 0 8 9 u 3 5 1 8 9 4 4 3 1 6 2 r 1 n 6 1 W i 5 1 0 n t 0 3 0 3 y 2 0 4 e 1 3 2 1 3 2 2 5 4 2 0 s 7 1 t 1 0 2 1 3 2 2 1 2 0 1 0 5 6 4 3 0 0 0 2 2 3 0 1 5 1 4 6 0 3 3 1 3 1 0 0 0 3 1 1 9 0 6 8 1 C UV 0 7 8 o 3 S 0 u a 5 R n n t 5 8 y F 1 a r 7 0 an n B 8 c a i 1 9 s B g y c 6 s o h e e or e A §¨¦ r 0 §¨¦ F 8 2 k w 2 l 3 4 0 8 y a 8 e 3 0 2 0 E m 1 l W 0 e UV m 2 6 §¨¦ 3 e y 7 e 2 3 8 1 4 2 e d M s a 0 in 0 r a t A S y 3 2 2 2 5 6 l v 3 1 a a C 1 UV i n UV m 0 8 l 7 §¨¦ o 1 2 9 l 1 t 2 2 P 3 8 e 1 1 h 4 3 4 0 8 5 M u 6 e t a 2 t h 1 0 h c d UV 3 n 0 if a 8 B i a c 8 r t 4 o 1 t t I a y 0 s 8 A 0 h e d la t w P v n h a d o e y 0 D i r 1 e 0 UV 3 0 9 d th R F 2 m 0 o £¤ a o 1 UV UV §¨¦ t 5 n 0 2 o 6 h 0 1 8 4 i 1 g n l 0 0 l 0 6 B e t 5 6 8 lv 3 t O 0 UV h S 5 d 0 1 9 t 0 a h 3 a 3 8 9 4 1 0 t k 7 n h 6 3 W M l r a d L 1 3 a M 2 1 e a 0 n r 3 2 5 2 c e i a 2 s n 4 2 UV 7 r d 1 S 0 t M 3 h a 3 a P t u 8 o k 1 r i 2 n r B B 5 y 4 a n l 6 v 3 g 0 l l d e d i 0 a v 0 5 n W h d H e r a u 2 B o r 0 5 l y a s v 3 2 d t 6 4 R y 1 0 d 2 w 0 0 6 5 UV2 7 R 3 1 e 3 a 3 d S 0 w 8 1 H 8 o r a es o p i d n e UV d r t ia 8 M R n R B 4 a A d 3 l 5 r v 8 y UV d 2 a s 1 UV 9 R 2 2 1 7 d n 9 2 0 8 §¨¦ 8 5 1 g 0 9 8 3 6 4 2 2 e 3 3 8 0 1 3 1 0 4 9 6 1 0 9 5 UV 1 2 2 0 3 3 2 0 0 2 1 3 4 1 1 2 7 2 3 W 5 8 1 0 5 3 C 0 N e 1 F U 1 3 1 h 2 3 1 2 2 r 2 s 1 1 1 5 2 e e e 0 6 6 3 n 1 C 4 r 4 m 0 r t o r 2 w w 2 y 1 i o 7 5 D 5 C 2 o 1 a n 1 3 S 1 n a v 3 3 a 2 1 2 t 3 1 2 t i n l n l 3 6 e 4 5 B r y B B 0 1 3 l k l 6 o v 1 P v l d 7 2 C 0 a 1 a n 3 d l 3 c 9 o 1 R m i o 0 §¨¦ 3 5 3 1 8 6 3 5 t 2 a w d 6 1 1 3 1 2 9 r 0 y 9 0 8 e 8 S 1 2 0 s 3 R 2 7 2 0 8 t 2 9 d 3 0 o 0 1 3 8 2 5 F 0 2 1 2 1 8 7 2 n 9 1 UV P 5 0 7 5 9 0 4 6 3 r 2 7 2 e 8 2 5 a 3 8 8 e 8 R 1 4 3 l 2 1 V o 2 4 2 1 3 0 6 m 9 m 4 1 1 a 9 3 2 1 9 6 a 4 1 a 6 l 3 8 1 1 5 l n r 3 6 o 3 e e 0 2 2 2 4 s 9 7 g 1 1 2 0 y 3 n 2 1 0 3 3 3 3 2 2 2 0 1 4 8 1 5 4 2 3 e 7 7 R 0 2 t 5 0 1 0 1 1 3 2 UV 6 d 2 1 §¨¦ 0 A 4 2 0 0 2 2 6 2 9 3 2 1 3 1 7 l 1 3 6 5 8 2 3 c 1 1 1 3 C 0 UV 4 8 2 1 2 2 B 2 o 1 2 1 5 1 3 5 0 1 2 a s 6 2 5 6 3 t l 4 4 a 0 7 W a m 0 2 2 B 1 c 3 2 1 l i 6 1 2 1 v 2 k 2 1 1 1 6 n 3 1 e 2 5 d 4 4 2 3 1 h 3 3 1 2 2 2 2 5 3 2 o 3 1 6 s 1 a 6 5 3 4 5 4 2 1 2 w 7 T t 5 1 k 3 a 6 3 3 2 P 1 1 1 3 1 UV 1 s 1 0 4 2 R eh 7 3 9 3 ug oD try 6 2 8 6 2 D 1 R 2 l 1 3 d s 6 d 5 e 4 u 3 7 a 1 2 1 b 6 a j 2 0 5 3 3 5 a 7 2 3 1 l 1 8 8 2 1 s i 0 r 9 0 9 7 n 8 1 3 6 0 a 3 D 1 1 a 7 1 7 0 9 8 2 B M 3 n a u 9 1 in l 3 9 2 3 2 4 5 v C 6 2 b t 0 1 1 2 8 d R o 0 8 S C 7 3 a 5 l 2 a o l ver 8 2 as i 9 n a a 2 n n 1 2 1 C n C 2 3 3 3 5 2 n 7 4 0 2 2 2 3 1 t 3 8 1 1 8 g o 1 9 o 6 9 r 3 3 t 4 6 3 9 a a e 4 u 3 2 u 2 2 2 1 1 1 4 6 0 1 7 3 3 2 4 2 A 0 n 3 1 0 2 5 C 3 C n 2 0 2 5 1 4 C 1 7 2 UV 1 t 5 3 l t 1 0 1 l o 8 y a y o 5 a 0 3 2 2 4 2 E S 2 1 s 1 1 1 5 m 5 1 6 4 3 r u 3 3 1 t 1 3 2 4 1 2 2 a 2 a 6 t 1 a 5 2 1 6 0 3 n n a 4 2 2 e s 1 1 1 3 l H 4 1 1 t 3 3 e 1 t d 2 1 6 3 2 1 2 i 7 7 y 0 6 9 y 6 5 8 3 1 g 4 3 3 2 1 a 2 1 1 3 6 h B 1 1 5 4 3 3 2 0 1 2 2 9 l 1 l 8 1 6 a 5 4 v 3 2 1 2 3 2 3 3 n 5 1 1 8 1 0 d 7 9 5 0 2 d 3 8 9 2 3 6 3 1 6 2 R 1 7 9 1 7 L 0 d 9 5 2 7 3 8 1 3 6 1 1 0 1 7 0 i 9 2 7 2 1 8 9 3 v 4 1 1 9 8 8 6 4 3 Live 3 rm Ar 8 o 7 r 2 2 o r e y 3 e o A 2 R 5 v 2 d 1 e 1 3 8 0 2 1 9 7 6 5 8 r 3 2 2 1 m 2 1 R 9 3 2 8 0 2 3 9 3 7 1 0 1 2 4 7 2 2 1 3 5 M 1 3 0 a 3 1 9 2 3 8 o 6 4 6 2 2 4 1 a 7 3 n 4 2 8 9 3 r 6 r 2 1 2 1 1 1 3 3 e s g 1 2 8 2 5 1 1 2 3 3 9 3 0 2 1 6 2 5 2 1 5 h 6 2 3 1 4 4 7 e 4 7 2 2 1 0 3 2 5 2 2 1 5 C 1 6 1 1 3 1 1 4 1 0 5 2 1 r 3 0 1 2 5 4 2 0 3 e 1 5 2 2 2 3 6 2 3 V 3 a 1 s e c 6 o 2 R 1 d 5 2 4 1 5 k 3 1 3 6 2 3 3 4 2 E 2 1 R 6 1 1 5 1 4 3 2 1 d 3 4 a 1 2 3 2 7 3 1 6 3 6 5 6 1 4 s 1 2 1 3 2 0 2 9 1 7 8 6 5 3 4 t 0 3 3 1 0 1 1 1 0 Gre 1 envi 9 lle 7 Rd 8 3 6 3 8 2 3 1 3 1 5 2 1 2 0 1 3 9 1 2 8 9 3 0 1 8 7 1 5 1 d 7 R ocs 0 aV 3 6 9 2 8 2 1 2 9 0 8 7 3 5 2 1 2 3 7 2 1 6 4 2 2 9 8 1 6 0 8 3 3 8 7 5 2 1 7 9 2 6 4 1 2 9 3 R 0 3 8 2 7 5 2 1 3 1 2 8 1 9 8 6 3 5 2 7 a 4 3 2 2 9 1 3 2 2 2 2 1 9 3 2 3 0 8 1 n 8 7 1 5 4 1 3 1 7 6 4 2 2 A 5 3 1 0 P 3 8 3 g 2 9 3 6 2 4 2 l 2 4 1 1 a 7 t 3 1 8 2 1 e 9 3 a 6 5 4 2 t 3 0 3 2 2 2 1 3 3 t 1 2 2 8 m 4 2 1 e 9 7 1 2 6 5 4 3 1 5 6 0 3 2 3 1 2 4 r 1 2 1 4 1 o 7 M 3 0 2 2 3 s 1 3 5 3 2 2 0 2 n 1 5 6 4 1 4 o 7 3 1 i 2 3 5 3 3 2 t 0 n 2 2 1 2 E n 3 2 1 4 1 1 2 1 5 7 2 1 2 6 P e 2 1 6 3 5 3 3 1 4 5 0 1 2 4 2 P a s 3 1 a 5 2 1 1 6 1 3 3 3 2 a 2 2 4 s 1 s R 2 2 3 s 5 6 5 6 1 s 3 4 d 3 s t 1 2 2 2 1 6 1 5 6 4 3 3 3 1 2 3 2 2 1 1 2 1 6 1 1 5 0 4 3 9 7 3 4 1 2 8 2 6 3 3 6 1 5 1 1 0 3 9 7 3 6 8 1 1 1 0 9 7 3 6 3 8 5 1 1 1 3 0 2 9 7 2 8 6 1 2 9 8 0 3 2 5 7 2 1 2 9 3 0 2 8 5 7 2 1 2 9 8 0 3 R 7 4 5 2 2 0 1 2 3 9 2 2 0 8 7 5 1 3 a 8 3 1 9 2 4 6 2 1 3 n 8 2 3 9 2 1 4 6 2 3 2 1 1 8 3 8 1 3 M 9 1 g 6 3 4 6 4 o 3 2 2 9 u e 1 1 4 n 7 ta 2 ni 3 H 2 ou 5 3 se 2 kP 0 y 1 1 4 7 3 2 3 2 0 5 2 0 1 4 1 1 7 2 3 3 3 5 4 2 0 0 2 2 3 B 4 2 1 2 7 1 2 5 1 y 6 3 5 E 3 2 2 4 2 1 r 1 1 5 o 6 3 3 2 4 2 1 2 a 1 n 5 1 6 3 3 1 4 1 2 2 1 2 R s UV 1 5 3 4 6 2 2 3 1 d 1 1 6 t 5 4 3 4 2 1 3 2 2 1 1 6 5 3 4 2 1 3 2 2 1 1 6 5 3 4 1 2 3 2 2 1 6 6 S 5 4 3 3 3 1 1 1 a 0 3 9 3 7 8 1 6 1 1 3 0 n 7 3 9 C 6 7 3 1 8 3 1 6 5 1 0 1 9 0 8 1 o J 9 Corral Hollow 3 R R d 2 u 2 o 1 2 9 3 2 0 2 8 1 7 5 a 3 2 9 4 n 2 8 5 a 0 2 7 1 2 9 n 0 8 3 2 7 5 T t 2 q rac 2 2 y 1 9 y 0 B 3 g l 2 vd 1 6 u 3 8 3 2 2 9 e 1 4 3 3 S 3 8 9 4 2 1 4 i 2 6 1 3 8 n 1 3 9 L 2 6 0 2 t C 3 8 i 1 a 3 2 5 n 2 1 4 3 7 2 2 o 2 n 2 1 n 3 1 1 0 1 4 3 7 2 0 2 2 E 3 2 5 e 2 0 5 0 4 u 7 i 3 2 C 2 h 3 risma s n R a R d 4 7 1 n 3 2 2 d l s 1 3 1 5 6 2 H 3 2 a 2 2 1 t t 1 1 5 3 6 t 3 h 2 6 4 y 2 o 1 1 5 u 1 1 3 3 4 2 w 2 1 2 UV 5 1 6 s 3 3 2 a 2 3 1 6 3 5 2 4 2 r 1 1 2 1 2 1 6 d 3 5 4 1 3 2 2 2 2 3 1 6 1 5 3 4 5 R 1 3 2 2 6 6 4 3 Bird d R 3 d 1 1 1 3 0 3 7 9 1 6 8 1 1 3 0 7 3 9 6 8 1 1 1 0 3 7 9 3 6 8 1 0 5 3 2 2 1 2 3 9 2 8 0 2 7 5 1 2 3 9 8 2 0 5 7 2 1 2 9 0 8 5 7 4 3 2 2 1 3 3 8 2 9 1 2 4 6 1 1 3 3 2 8 2 9 4 1 6 6 3 8 1 1 3 2 2 3 1 3 3 0 5 4 7 2 4
Alameda County O Alameda County East Bay Regional Park District
S L o o ur c ce a : A l la A m g ed e a n
g i D n
L
e i
A
t
c
s e n
F
c
y
n e
C
l d a r
o
a e
F
im l d
o
d e t i r s o
r
: p
m
b T la e h
a
y e u
t
p s i
i
n u e
o
f
M
r d o p
n a
r o f m
p
o s
C
r
C
a e r t
r
s
o
i e
e
o
a
o f n
m
e
t
n
e
r s l e
d
y
m
h n
1
o a c
/7
n w
i
e
s /
d
2
n a
s 0
i n i s
2
s
i
d
3 on Legend
A
A
A
C
d
l
l
o a
a j
m m
m ac
m e
e e
d
d
u
n
a
a
n
t
i C
C C
ti o
i o
e
t
u
y
s
u
n
n B
t
t
E y
o y
a
u
B
B
s
n
o
o
t
d
u
u
B
a
n
n r
a d
i d e
y a
a s
r
r
R y
ie
e
s
gional Park Di W W
W W W
s A A
A A A
tr R R
R R R
ic D D
D D D
t # #
# # #
W 1 2
3 4 5
ards C S o a u n n t F y ranci
S
sco
a
P
C
kj
n
i kj ekj
o
A dE
u
B
M
l m b kj me
n
a
a
o re n
t
A k kjn
t
r
y
ye
e
l ty a O l kjve
o
m a iyl k e le l d a a nd kjSan
kj
L
H
e
a kj
a
y F
n
w r
d
e a m
r
r
o
d o kj n U kjt n N io e n w C ar it k y
ConC kj tor P
A
D kj au le u
l a
n a b C s
m
l t i a oy n n
e
s t
d
o ta n
a C
kj
o
L
u
iv
n
er
t
m
y
ore San Joaquin County
not to be used as an official map. 0 1.5 3 6Miles Santa Clara County
District public safety services are generally provided within EBRPD's facilities and spaces within
its boundaries; however, through mutual aid agreements, the District can provide assistance
outside of these areas. EBRPD maintains mutual aid agreements with agencies outside of its
bounds.
There are no unserved areas identified in EBRPD.
Ch. 5: EBRPD 98
Policy Consulting Associates, LLC
Alameda Fire Municipal Service Review
Public Review Draft
East Bay Regional Park District's SOI, which is coterminous with its jurisdictional boundary
that covers all of Alameda and Contra Costa Counties, was reaffirmed by Alameda LAFCO
on August 16, 2013.71
Accountability of a governing body is signified by a combination of several indicators. The
indicators chosen here focus on 1) agency efforts to engage and educate constituents through
outreach activities, in addition to legally required activities such as agenda posting and public
meetings, 2) a website with the required content and other useful information, 3) timely ethics
training for board/councils members and an adopted reimbursement policy, 4) a defined
complaint process designed to handle all issues to resolution, 5) adopted bylaws that provide a
framework and direction for governance and administration, 6) adoption of a conflict-of-interest
code as required by law, 7) proper filing of Form 700 by the governing body members, and 8)
transparency of the agency as indicated by cooperation with the MSR process and information
disclosure at meetings, in documents, and on a website.
EBRPD has a seven-member governing body. Board members are elected by geographic
district to four-year terms with elections staggered every two years in November; three terms
expire in one even-numbered year and four terms expire the following even-numbered year.
Each Director represents a specific geographic area of the District known as a ward. EBRPD
also has a Park Advisory Committee made up of 21 citizen-members, appointed by the
EBRPD Board of Directors. Advisory Committee members are appointed for two-year terms
and may serve a total of four consecutive terms, or eight years. Current board member names,
positions, and term expiration dates are shown in Figure 5-2.
The Board meets on the first and third Tuesday of each month and has a closed session at
11:00 a.m. and an open session at 1:00 p.m. In-person meetings are held at the Park District
Headquarters or at other designated and noticed meeting locations. Residents can also attend
board meetings remotely via Zoom. Meeting details, agendas, and packets for each meeting
are available online. Furthermore, archived visual webcasts of regular Board meetings are also
available for viewing on EBRPD's YouTube.72
71 Alameda Local Agency Formation Commission Resolution No. 2013-09, August 16, 2013.
72 East Bay Regional Park District, Public Meetings, https://www.ebparks.org/calendar/public-meetings.
Ch. 5: EBRPD 99
Policy Consulting Associates, LLC
Alameda Fire Municipal Service Review
Public Review Draft
Figure 5-2: EBRPD Governing Body
governing body
Manner of Selection Elections by district/ward.
Length of Term 4-year term
1st and 3rd Tuesday at 11:00 am closed session and
1:00 pm –open session
Meetings Park District Headquarters
2950 Peralta Oaks Court
Oakland, CA 94650
Agenda Distribution Posted online.
Minutes Distribution Posted online.
board members
Term Manner of
Member Name Ward Position Expiration Selection Length of Term
Board Member,
Elizabeth Echols 1 Vice President 2024 Elected 4 Years
Board Member,
Dee Rosario 2 Secretary 2024 Elected 4 Years
Board Member,
Dennis Waespi 3 President 2026 Elected 4 Years
Board Member,
Ellen Corbett 4 Treasurer 2024 Elected 4 Years
Olivia Sanwong 5 Board Member 2026 Elected 4 Years
John Mercurio 6 Board Member 2026 Elected 4 Years
Colin Coffey 7 Board Member 2026 Elected 4 Years
contact
Contact Aileen Thiele, Fire Chief
17930 Lake Chabot Road
Mailing Address Castro Valley, CA
Phone 510-690-6601
Email/Website atheile@ebparks.org
In addition to the required agendas and minutes, EBRPD updates constituents with a
bimonthly newsletter and through community outreach programs. EBRPD also posts public
documents on its website.
All members of the EBRPD's Board have current filings for Form 700 as required, indicating
transparency of their economic interests.
A conflict-of-interest code is included as a component of EBRPD's Board Operating Guidelines
as lawfully required.
Ch. 5: EBRPD 100
Policy Consulting Associates, LLC
Alameda Fire Municipal Service Review
Public Review Draft
Complaints against EBRPD or any of its departments may be submitted through phone calls,
email, letters, and in person. There is also a contact us form on EBRPD's website that
residents may utilize to submit their complaints. EBRPD handles in-person and phone
complaints directly when possible. Written complaints to EBRPD and any response to the
complaint are reviewed by the Board. 73
There is also legislation in effect to help ensure special districts adhere to accountability
standards. One, California AB 2257 (Government Code §54954.2) is an update to the Brown
Act and indicates requirements for methods by which an agenda for all meetings should be
made available on an agency's website. Similarly, the Special District Transparency Act of
2018 (SB 929, Government Codes §6270.6 and §53087.8) indicates that special districts have
websites in use by January 1, 2020, per the Brown Act, and requires how the publicly available
information be displayed. EBRPD complies with each of these regulations.
EBRPD demonstrated accountability in its disclosure of information and cooperation with the
LAFCO questionnaires and other requests for information.
While public sector management standards vary depending on the size and scope of the
organization, there are minimum standards. Well-managed organizations evaluate employees
annually, track employee and agency productivity, periodically review agency performance,
prepare a budget before the beginning of the fiscal year, conduct periodic financial audits to
safeguard the public trust, maintain relatively current financial records, conduct advanced
planning for future service needs, and plan and budget for capital needs.
The District accounts for its fire and emergency services in the annual budget and annual
comprehensive financial report.
According to the FY 20 adopted operating budget the EBRPD fire department had
approximately 71 authorized and budgeted full-time equivalent (FTE) positions with 29 FTE
permanent personnel in fire services and about 42 seasonal and permanent FTE personnel in
the lifeguard services unit.74 Staffing levels have increased over the last three years with 74 FTE
in FY 21, 79 FTE in FY 22, and 80 in FY 23.75
73 East Bay Regional Park District Municipal Services Review Final, July 11, 2013, p.6.
74 East Bay Regional Park District 2021 Adopted Operating Budget, p.A-85- C-111
75 East Bay Regional Park District, 2023 Adopted Operating Budget, p.C-111
Ch. 5: EBRPD 101
Policy Consulting Associates, LLC
Alameda Fire Municipal Service Review
Public Review Draft
The EBRPD Fire Department is managed by the Assistant General Manager for the Public
Safety Division. The Fire Chief oversees the Fire Department with the help of the Assistant
Fire Chief and Assistant Chief of Lifeguard Service. The administrative team also includes a
Secretary and an Administrative Analyst.
The EBRPD Fire Department consists of the Operations, Fuel Management, and Lifeguard
divisions. The Operations Division includes five fire captains, two fire lieutenants, eight
permanent firefighters, and on-call firefighters. The Fuel Management Division works to control
flammability and reduce resistance to control of wildland fuels through mechanical, chemical,
biological, or manual means; or by fire to support land management objectives. The Lifeguard
Division provides services for recreational swimming, aquatic special events, and aquatic
programs at 11 swimming areas.
All district employees are evaluated annually. New hires and personnel on one-year promotion
probation are evaluated quarterly.
EBPRD provides annual performance goals for each department in the Budget in the form of
performance indicators and goals with relevant targets specific to the Public Safety Division.
Management reviews performance evaluations and written objectives with each division.
Management practices conducted by EBRPD also include annual financial audits. EBRPD uses
performance-based budgeting, where the amount budgeted for agency function is based on
meeting performance goals; however, the District does not conduct benchmarking.
EBRPD has not compiled a strategic planning document, but it does have a mission statement
and vision statement. EBRPD has a master plan, which is a policy document that guides the
District in the future development of parks, trails, and services, that was originally adopted in
1997 with a master plan map adopted in 2007. In July 2013, the Board approved a Master
Plan Update. The Plan includes a Wildfire Hazard Reduction and Resource Management
Plan, specifically directed at the urban interface, the boundary between open space parklands
and adjacent residential neighborhoods, between Castro Valley and Richmond.
In 2018, EBRPD also adopted a climate policy that guides the District in incorporating five
climate principles into the District's policies, projects, and management.76 These principles
include considering climate changes in all policies, considering climate impacts in all activities,
and striving for environmentally sustainable operations and design, climate readiness actions
endeavor to improve preparedness, climate-smart leadership, and advancing science.
76 East Bay Regional Park District Climate Smart Initiative and Policy, https://www.ebparks.org/natural-resources/climate-
adaptation/policy#Strategic%20Energy%20Plan. p.42
Ch. 5: EBRPD 102
Policy Consulting Associates, LLC
Alameda Fire Municipal Service Review
Public Review Draft
Financial planning documents include an annually adopted budget and an annual audited
financial statement. EBRPD conducts capital improvement planning in the annual budget but
maintains an outlook of up to five years. Capital improvement plans are updated annually.
Growth projections are considered when setting budget priorities and when planning for
programs, capital projects, and facility expansion or maintenance.
All special districts are required to submit annual audits to the County within 12 months of the
completion of the fiscal year unless the Board of Supervisors has approved a biennial or five-
year schedule. In the case of EBRPD, the District must submit audits annually. EBRPD has
submitted its audit to the County for FY 22 within the required 12-month period.
This section discusses the factors affecting service demand, such as land uses, and historical
and anticipated population growth.
EBRPD's boundary area is approximately 1,457.6 square miles. EBRPD is not a land use
authority and does not hold primary responsibility for implementing growth strategies. EBRPD
bounds encompass a wide variety of land uses (all designated land uses within Alameda and
Contra Costa counties); however, in the District's 65 regional parks, the primary land use is
open space, recreation, and natural resource management.
EBRPD's population in 2020 based on census data was 2,848,280.77 As of 2023, the
California Department of Finance estimated that the area within EBRPD had a population of
2,782,086.
Based on the Department of Finance (DOF) growth projections the population of the area
within EBRPD is anticipated to reach 2,842,400 by 2030 and 3,069,906 by 2040.78 This
indicates a population increase of 227,892 from 2020 to 2040 or roughly 0.80 percent
increase and a 0.003 percent Annual Average Growth Rate (AAGR).
77 Based on the 2020 census of Alameda County total 1,682,353 and Contra Costa County 1,165,927.
78 Alameda County and Contra Costa County Population Projections for 2030 and 2040, State of California Department of
Finance, County Population Projections 2020-2060.
Ch. 5: EBRPD 103
Policy Consulting Associates, LLC
Alameda Fire Municipal Service Review
Public Review Draft
EBRPD developed a comprehensive strategy to mitigate sea level rise impacting the 55 miles
of shorelines that the District owns and manages in the East San Francisco Bay. The effects of
levee failure and the over-topping of the San Francisco Bay Trail threaten critical infrastructure,
homes, and people. EBRPD's adaptive plans include renewable energy projects, partnering with
regional agencies and research institutes, and developing best practices for grazing and fire
wildfire hazard management for regional parklands.79
Based on Census Designated Places, Alameda LAFCO determines that there are no
disadvantaged unincorporated communities within Alameda County that meet the basic state-
mandated criteria.80
The East Bay Regional Park District has the financial ability to continue to provide fire
protection services. Strong property tax growth has helped the District maintain service levels.
Reserves remain strong although they have declined somewhat over recent years.
From 2018 through 2022 the Fire Department's operations expenditures grew at an 8.6
percent annual average rate, which is higher than the rate of inflation over that period.81 The
expenditure increases were offset by strong growth in District revenues, which primarily consist
of property taxes and assessments, during COVID-19. The District also benefits from fire-
related grants (e.g., Cal. Coastal Commission)82 to help fund programs. Measure FF, approved
by voters in 2018, levied a special tax lien through 2040 to raise money for wildfire prevention
and other park-related purposes.83 Greater detail regarding EBRPD's financial position is
shown in Appendix A of this report.
79 East Bay Regional Park District Climate Smart Initiative and Policy, Climate Change Strategy.
https://www.ebparks.org/natural-resources/climate-adaptation/policy#Strategic%20Energy%20Plan.
80 Alameda Local Agency Formation Commission Resolution No. 2013-09.
81 Based on actual and budgeted revenues and expenditures reported in the EBRPD Adopted Operating, Projects & Programs
Budgets.
82 Response to Alameda Fire and EMS MSR Follow-up Questionnaire.
83 https://www.ebparks.org/legislative/measures/ff/special-tax-lien
Ch. 5: EBRPD 104
Policy Consulting Associates, LLC
Alameda Fire Municipal Service Review
Public Review Draft
The District has maintained General Fund Reserves (unassigned fund balance) at a "high"
level equal to 47 percent of General Fund expenditures in 2018 declining to a more "moderate"
level of about 41 percent of expenditures in 2022. The District's Chief Financial Officer
considers a number of factors and recommend the prudent reserve amount to the Board of
Directors; the initial reserve amount of 32 percent (of revenue) was established when the fund
balance policy was established in 2013.84
EBRPD's Fire Department utilizes career firefighters and other District employees trained in-
house as on-call firefighters to provide fire prevention, wildland fuels management, and fire
suppression throughout the District. The Fire Department's specialized fuels crew works year-
round to remove hazardous wildland fuels to meet Wildfire Hazard Reduction requirements and
Resource Management Plans. Other major responsibilities of the Department include providing
emergency medical response; search and rescue; resource management and habitat
improvement through a coordinated program of prescribed burning, grazing, and vegetation
management; mutual aid and coordination with other fire service agencies, including CAL FIRE
and Cal OES; review and evaluation of fuels and environmental impact issues; and incident
command for major emergencies. Figure 5-3 details the services provided by the EBRPD. If
another agency offers a service, it is indicated in the figure.
Figure 5-3: EBRPD Services
service agency
fire suppression services
Structural Fire Protection East Bay Regional Park District
Wildland Fire Protection East Bay Regional Park District
Vehicle Fire Protection East Bay Regional Park District
Ladder Truck Capabilities ALCO, OFD, CCCFD
Fire Suppression Hand Crew East Bay Regional Park District
Fire Suppression Dozer CALFD, ALCOFD, CCCFD
Helicopter Services – Fire Suppression East Bay Regional Park District
84 EBRPD Policy 6.0 General Fund Reserve (Unassigned) Fund Balance (2013-10-15).
Ch. 5: EBRPD 105
Policy Consulting Associates, LLC
Alameda Fire Municipal Service Review
Public Review Draft
Boat With Fire Suppression Capabilities ALCO, OFD, CCCFD
emergency medical services
Basic Life Support Provider East Bay Regional Park District
Advanced Life Support – Non-Transport
Provider ALCO, OFD, CCCFD
Continuing Education Provider – Medical Las Positas College
Air Ambulance Transport Helicopter Services REACH
Helicopter Landing Facilities On Site East Bay Regional Park District
Vehicle Extrication Tools/Equipment East Bay Regional Park District
fire prevention
Fire Safety Education – Children N/A
Fire Safety Education – Adults/Seniors N/A
Juvenile Firesetter Prevention Program N/A
Fire and Life Safety Business Inspection Program East Bay Regional Park District
Fire Protection Planning East Bay Regional Park District
New Commercial Construction Plan Reviews East Bay Regional Park District
Public Education Provider (CPR, First Aid, etc.) East Bay Regional Park District
Home Fire/Safety Inspections East Bay Regional Park District
Fire Origin and Cause Investigations East Bay Regional Park District
Fuel Reduction/Weed Abatement Program East Bay Regional Park District
Smoke Detector Giveaway/Installation Program N/A
Address Sign Installation Program N/A
rescue services
Fires Responder Swift Water Rescue Program N/A
Water Rescue Program East Bay Regional Park District
Ice Rescue Program N/A
Dive Rescue Program N/A
Low angle Rope Rescue Program East Bay Regional Park District
Helicopter Short/Long Haul Rescue Capabilities N/A
Response to Boating Accidents N/A
Rescue Dog Services N/A
hazardous materials
Hazardous Materials Emergency Response –
Basic East Bay Regional Park District
Ch. 5: EBRPD 106
Policy Consulting Associates, LLC
Alameda Fire Municipal Service Review
Public Review Draft
Hazardous Materials Response Team ALCO, OFD, CCCFD
support services
Firefighter Incident Support Unit N/A
Mobile Incident Command/Communications
Unit East Bay Regional Park District
Fill Station for Self-Contained Breathing
Apparatus East Bay Regional Park District
Mobile Breathing Support Unit N/A
Community Emergency Response Team N/A
Chaplain Services East Bay Regional Park District
Training Academy East Bay Regional Park District
Emergency Operations Center Capabilities East Bay Regional Park District
miscellaneous
Public Service Assists East Bay Regional Park District
Motor Vehicle Accident Response N/A
Welfare Checks East Bay Regional Park District
Public Safety Answering Point East Bay Regional Park District
Fire/EMS Dispatch East Bay Regional Park District
Fundraising Activities East Bay Regional Park District
Firefighters Association – Non-Profit East Bay Regional Park District
Auxiliary Association N/A
As seen in Figure 5-3, EBRPD's Fire Department works closely with other agencies locally,
regionally, countywide, and statewide to provide sufficient fire and emergency response services
to the community. EBRPD also takes part in aid agreements with CAL FIRE and CAL OES.
EBRPD is a member of the East Bay Regional Communications System Authority (EBRCSA),
a joint powers authority with 43 member agencies.
EBRPD serves as the first-in responder to designated non-park State Responsibility Area
(SRA) land by contract with CAL FIRE. These calls are typically in remote areas where only
four-wheeled fire apparatus and EBRPD's helicopter have access. EBRPD responds to
incidents concurrently with other agencies. Fire response on approximately 29,500 acres of
EBRPD parkland in Alameda County is shared with CAL FIRE and 13,000 acres of parkland
Ch. 5: EBRPD 107
Policy Consulting Associates, LLC
Alameda Fire Municipal Service Review
Public Review Draft
within cities is shared with municipal fire departments. EBRPD's response area includes both
parklands and areas adjacent to parklands. In remote areas, primary fire suppression
responsibility lies with Alameda County Fire Department or CAL FIRE. The EBRPD Fire
Department provides secondary wildland fire response in support of CAL FIRE.85
EBRPD's Fire Department did not report the number of service calls it received. However,
according to the District's FY 20 adopted operating budget, EBRPD's fire and police
dispatchers handled more than 8,284 calls for service.86 The current adopted operating budget
for FY 23 indicates that fire and police dispatchers processed 16,836 calls for service
(incidents), of which fire and police responded to 12,183 of those calls (incidents) and 3,358
were considered 9-1-1 or emergency calls.87
In addition to calls for service, fuels management and wildfire prevention efforts pose a
significant demand on the District. The 2021 fire season brought new challenges, including
1,500 acres of dead or dying trees in EBRPD's parks caused by extreme drought and changing
climate. Dead standing trees burn hotter and faster and can cast embers far ahead of the
original fire, igniting potentially dangerous new fires. In 2021, EBRPD staff removed over 765
hazardous dead and dying trees from Reinhardt Redwood, Tilden, Sibley, and Miller-Knox, with
additional aggressive tree removal planned for 2022. Additionally, EBRPD has developed a
Wildfire Hazard Reduction and Resource Management Plan, which includes annual work plans
for fuels treatment, including hand-labor removal, prescribed burns, mowing, weed abatement,
animal grazing, and tree thinning.
As previously mentioned, in FY 20 the EBRPD Fire Department had approximately 71
authorized and budgeted full-time equivalent (FTE) positions with 29 FTE permanent personnel
in fire services and about 42 seasonal and permanent FTE personnel in the lifeguard services
unit. Total staffing levels in the Department have increased to 74 FTE in FY 21, 79 FTE in FY
22, and 80 in FY 23.88
The Department offers in-house training for employees who serve as on-call firefighters,
including wildland fire training, structure, and vehicle firefighting, fuels management, Emergency
85 East Bay Regional Park District Municipal Services Review Final, July 11, 2013, p.23.
86 East Bay Regional Park District Municipal Services Review Final, July 11, 2013, p.45.
87 East Bay Regional Park District, 2023 Adopted Operating Budget, p. B-11.
88 East Bay Regional Park District, 2023 Adopted Operating Budget, p.C-111
Ch. 5: EBRPD 108
Policy Consulting Associates, LLC
Alameda Fire Municipal Service Review
Public Review Draft
Medical Technician certification, hazardous material response, technical large animal rescue
(TLAR), and low-angle rope rescue.
The EBRPD Fire Department has a variety of apparatus at nine different locations throughout
the District, including 12 fire engines and two water tenders. The administration is based at
Public Safety Headquarters. Fire Station 1 in Tilden Park is the main fire station, and other
substations store engines, water tenders, and safety equipment. The District also maintains four
remote automatic weather stations to monitor wildfire risks. EBRPD owns and maintains the
following vehicles:
• Four Type 3 Engines
• Six Type 6 Engines
• Two Water Tenders
• One OES Type I Engine
• One Rescue Boat
• Two Rescue Gators
• Two Helicopters
The facilities are shown in further detail in Figure 5-4.
Figure 5-4: EBRPD Facilities
ebrpd facilities
facility address owner year built condition
2501 Grizzly Peak Blvd
Station 1 Orinda, CA 94563 EBRPD 1960s Fair
7867 Redwood Road
Station 2 Oakland, CA 94619 EBRPD Early 1960s Fair
18012 Bollinger Canyon Rd.
Station 4 San Ramon, CA 94583 EBRPD Not provided Poor
7000 Del Valle Rd
Station 5 Livermore, CA 94550 EBRPD Not provided Poor
5363 Alhambra Valley Blvd.
Station 6 Martinez, CA 94553 EBRPD Not provided Not provided
1320 Garin Avenue
Station 7 Hayward, CA 94544 EBRPD Not provided Poor
1200 Frederickson Lane
Station 8 Antioch, CA 94509 EBRPD Early 1980s Poor
5755 McBryde Ave.
Station 9 Richmond, CA 94804 EBRPD Early 1960s Poor
17930 Lake Chabot Road.
Station 10 Castro Valley Road 9454 EBRPD 1978 Poor
Ch. 5: EBRPD 109
Policy Consulting Associates, LLC
Alameda Fire Municipal Service Review
Public Review Draft
Workload across stations is typically measured using Unit Hour Utilization (UHU) which is
calculated by dividing the number of transports by the number of hours a unit is available for
work. Stations nearing or exceeding the 20 percent threshold indicate a strain workload.
EBRPD did not provide its UHU and the individual degree of usage of each unit was unable
to be determined.
EBRPD communicates with residents in a few ways to transmit important health and safety
information. Several fire weather alerts including a fire weather watch and a red flag warning
are issued by EBRPD to inform residents of the onset of severe fire weather conditions.
Additionally, in cases when both the fire department has limited resources to fight the fire and
the National Weather Service declares a Red Flag Warning, park closures will occur. Residents
can check the Alerts and Closures page for the most current updates. 89
EBRPD's Communications Center is the Public Safety Answering Point (PSAP) for the entire
two-county District, including 9-1-1 emergency calls for police, fire, and paramedic services. The
Communications Center uses Computer Aided Dispatch (CAD), to allow for rapid automated
data exchange and recordkeeping.90 The center handles calls for both fire and police and is
staffed by one to five dispatchers at a time, depending on the time of year. The total dispatch
staff consists of 10 dispatchers and five supervisors. Most 9-1-1 calls placed in the parks are
made by mobile phones; hence, most calls are initially routed to the California Highway Patrol
(CHP). CHP then routes the call to the EBRPD communications center.91
While EBRPD's Fire Department does not explicitly share vehicles, equipment, personnel, or
services with other agencies, community organizations, or entities, it participates in mutual and
automatic aid agreements and other regional planning and prevention efforts. In particular,
EBRPD collaborates extensively with CAL FIRE in coordinating response in the SRA.
Additionally, EBRPD participates in mutual aid throughout the State, and in 2021, EBRPD's
Fire Department OES Engine spent 73 consecutive days assisting with major fires throughout
the State.
The District has not identified any future opportunities for further facility sharing.
89 EBRPD Fire Danger Levels and Restriction. https://www.ebparks.org/public-safety/fire/fire-danger-levels-restrictions.
90 East Bay Regional Park District, 2023 Adopted Operating Budget, p. C-109
91 East Bay Regional Park District Municipal Services Review Final, July 11, 2013, p.24.
Ch. 5: EBRPD 110
Policy Consulting Associates, LLC
Alameda Fire Municipal Service Review
Public Review Draft
In 2022, EBRPD implemented an evaluation system to help prioritize funding allocation for
projects, such that limited resources are allocated towards endeavors that will provide the
biggest benefit for park users. Projects are scored based on categories such as equity, habitat
and resource conservation, public access improvements and climate preparedness, among
others.
In FY 23, EBRPD has budgeted $52.7 million for capital projects, of which $4.2 million
allocated for public safety related capital projects. One of the primary projects related to
EBRPD's public safety services is the preliminary design for the recently acquired North
Peralta Oaks Administration and Public Safety Building and continued necessary building
maintenance.
Wildfire prevention and protection continues to be a primary focus of EBRPD's efforts, which
requires substantial equipment and tree removal efforts. In 2021, EBRPD secured $13.5 million
in the California State Budget for wildfire protection. Specifically, $10 million was secured for
removal of dead and dying trees in the parkland, and $3.5 million was secured for firefighting
equipment, including replacement of the District's aging helicopter. In total, the estimated cost
to mitigate sudden tree die-off is $30 million.92
EBRPD indicated that a long-term challenge for the Fire Department is infrastructure for
employees including agency station updates.93
This section reviews indicators of service adequacy, including response times, ISO rating, and
complaints received. There are many measures of a successful fire protection service. For
example, the agency would meet guidelines established by the National Fire Protection
Association (NFPA), the Center for Public Safety Excellence (CPSE) (formerly the
Commission on Fire Accreditation International), and the California EMS Agency. There are
also Public Protection Classifications (PPC) and Insurance Services Office (ISO) ratings that
likewise establish an agency's level of service. The applicable response time measure for
EBRPD is shown in Figure 5-5.
92 East Bay Regional Park District, Annual Report 2021, 2022.
93 EBRPD, SoGo Survey Responses, November 2021.
Ch. 5: EBRPD 111
Policy Consulting Associates, LLC
Alameda Fire Municipal Service Review
Public Review Draft
Figure 5-5: EBRPD Response Time Policy
ebrpd response time policy
Agency Name Single Unit Incident
Arrive at the scene within 5 minutes and 50 seconds of a 9-1-1 call 90 percent
EBRPD
of the time.
The guideline established by the National Fire Protection Association (NFPA) for fire response
times is six minutes at least 90 percent of the time, with response time measured from the 9-1-
1 call time to the arrival time of the first responder at the scene. The fire response time
guideline established by the Center for Public Safety Excellence (formerly the Commission on
Fire Accreditation International) is 5 minutes 50 seconds at least 90 percent of the time. 94
EBRPD did not provide its response times, so it cannot be determined if the District is meeting
its standard or goal.
The Insurance Service Office (ISO) classifies fire services in the communities as an indicator of
the general adequacy of coverage. Communities with the best fire department facilities,
systems for water distribution, fire alarms and communications, and equipment and personnel
receive a rating of 1. The regional parks are generally within areas with an ISO rating of 9 due
to access limitations and lack of fire hydrants.
The Department did not provide information as to whether any complaints regarding fire
service were received in FY 21.
94 East Bay Regional Park District Municipal Services Review Final, July 11, 2013, p.26.
Ch. 5: EBRPD 112
Policy Consulting Associates, LLC
Alameda Fire Municipal Service Review
Public Review Draft
5-1: East Bay Regional Park District's (EBRPD's) population in 2020, based on census
data, was 2,848,280.
5-2: Based on the Association of Bay Area Governments (ABAG) growth projections, the
District is projected to have a population of 3,140,229 by 2040.
5-3: EBRPD does not have any DUCs within or contiguous to its SOI.
5-4: Any disadvantaged unincorporated communities within the District's bounds in Contra
Costa County would need to be identified pursuant to that LAFCO's policies in a
future service review.
5-5: Unit hours utilization (UHU)—the time a unit was committed to an incident as a
percentage of total time on duty—is a primary indicator of the staffing and equipment
capacity of a fire provider. EBRPD did not provide this information for analysis.
5-6: Unlike other local fire providers, wildfire prevention and vegetation management are a
major component of EBRPD's services and places significant demand on manpower
and financial resources. In 2021, the District was faced with the sudden die off of
1,500 acres of trees. In total, the estimated cost to mitigate sudden tree die-off is $30
million. The District has developed a Wildfire Hazard Reduction and Resource
Management Plan and received $10 million in grant funds from the State for removal
of dead and dying trees in the parkland. These planning efforts and financing support
is indicative of the District's capacity to provide sufficient services to its lands.
5-7: Based on the extent of services provided and district-adopted annual performance
indicators and goals, EBRPD appears to provide an adequate level of services.
However, the District did not provide response times to evaluate whether it was
meeting its response time standard.
5-8: In 2022, EBRPD implemented an evaluation system to help prioritize funding allocation
for projects, such that limited resources are allocated towards endeavors that will
provide the biggest benefit for park users. One of the primary capital projects related
to EBRPD's public safety services is the redesign for the recently acquired North
Peralta Oaks Administration and Public Safety Building and continued necessary
building maintenance.
Ch. 5: EBRPD 113
Policy Consulting Associates, LLC
Alameda Fire Municipal Service Review
Public Review Draft
5-9: The East Bay Regional Park District has the financial ability to continue to provide fire
protection services. Strong property tax growth has helped the District maintain service
levels. Reserves remain strong although they have declined somewhat over recent
years.
5-10: While EBRPD's Fire Department does not explicitly share vehicles, equipment,
personnel, or services with other agencies, community organizations, or entities, it
participates in mutual and automatic aid agreements and other regional planning and
prevention efforts. EBRPD collaborates extensively with CAL FIRE in coordinating
response in the SRA. Additionally, EBRPD participates provides support throughout
the State through Cal OES.
5-11: EBRPD has not reported any further facility-sharing opportunities.
5-12: It is recommended that the Department join fellow Alameda fire providers to develop
a regional, countywide dispatch strategy that employs the closest resource for the
fastest response time, regardless of agency boundaries or responsibility.
5-13: EBRPD abides by all legislative obligations for accountability and governance
practices.
5-14: EBRPD demonstrated transparency when sharing information to create this report.
5-15: No governance structure options specific to EBRPD were identified over the course of
this review; however, it is recommended that EBRPD continue to participate in
regional planning and coordination efforts to the greatest extent possible, such as the
East Bay Hills Wildfire Prevention and Vegetation Management Coordination MOU
and the East Bay Regional Communications System Authority (EBRCSA).
Ch. 5: EBRPD 114
Policy Consulting Associates, LLC
Alameda Fire Municipal Service Review
Public Review Draft
Created in 1983 to oversee and coordinate Alameda County's EMS system, the Emergency
Medical Services County Service Area (EMS CSA) functions as Alameda County's lead
agency responsible for local EMS system planning, paramedic training, paramedic service
standards, and EMS coordination. EMS CSA is also referred to as Alameda County
Emergency Medical Services Agency (ALCO EMS). Under the regulatory watch of the State
EMS Authority (EMSA), EMS CSA is responsible for the local EMS system plan for delivering
emergency medical, ambulance transport, and hospital services. The local EMS system plan
affects all the emergency service providers in the County, including dispatch centers, public
safety agencies, fire departments, ambulance services, hospitals, and specialty care centers.
EMS CSA's mission is to ensure quality emergency medical services and prevention programs
to improve health and safety in Alameda County.
The principal act that governs EMS CSA is the County Service Area (CSA) Law
(Government Code §25210 et. seq). The principal act authorizes CSAs to provide various
municipal services, including street maintenance, fire protection, extended police protection, and
water and sewer services.
A CSA may only provide those services authorized in its formation resolution unless the Board
of Supervisors adopts a resolution authorizing additional services. All districts must apply and
obtain LAFCO approval to exercise latent powers, or, in other words, those services authorized
by the principal act but not provided by the district at the end of 2000.
Additionally, EMS CSA is regulated by Title 22, Section 9 of the California Health & Safety
Code, the National Emergency Medical System Act of 1973, the Emergency Medical Services
System and the Prehospital Emergency Medical Care Personnel Act (the act), Health &
Safety Code Division 2.5, which was last updated in January 2012. The act intends to provide
the State with a statewide system for emergency medical services by establishing within the
Health and Welfare Agency the Emergency Medical Services Authority, which is responsible
for coordinating and integrating all state activities concerning emergency medical services. The
Ch. 6: EMS CSA 115
Policy Consulting Associates, LLC
Alameda Fire Municipal Service Review
Public Review Draft
act allows each county to develop an emergency medical services program with a full- or part-
time licensed physician and surgeon as medical director to provide medical control and assure
medical accountability throughout the planning, implementation, and evaluation of the EMS
system. Local EMS agencies must plan, implement, and evaluate an emergency medical
services system (1797.204). Local EMS agencies are responsible for implementing advanced life
support systems and limited advanced life support systems and monitoring training programs.
They are also responsible for determining that the operation of training programs at the
Emergency Medical Technician (EMT) - I, EMT - II, and EMT - P levels comply with this act
and shall approve the training programs, if they are found to comply with this act. Any local
EMS agency may provide courses of instruction and training leading to certification as an
EMT-I, EMT-II, EMT-P, or registered nurse.95
EMS CSA was last included in an MSR Update by Alameda LAFCO adopted in 2012.
The total boundary area of EMS CSA encompasses the entirety of Alameda County
consisting of 821 square miles—737 square miles of land and 84 square miles of water.96
EMS CSA does not typically provide services outside of its boundaries. However, during a
disaster event, the CSA may be called upon by other counties or the State EMS Authority to
provide support to an affected city, county, or region emergency operations center (EOC),
or provide an Ambulance Strike Team, which is five staffed ambulances and a leader in a
separate vehicle to support the impacted area. If requested by the State EMS Authority, EMS
CA would authorize Falck Alameda County to send these units, while not depleting the
ambulance resources needed locally. Additionally, there is a Mobile Disaster Support Unit
(MDSU), which consists of a large vehicle and several CHEMPACKs (medication caches)
located throughout the county at various agencies that could be sent to areas impacted by a
disaster.97
There are no areas within EMS CSA's bounds that lack emergency medical services.
95 Emergency Medical Services County Service Area Municipal Service Review Final, November 29, 2012, p.1.
96 Emergency Medical Services County Service Area Municipal Services Review Final, November 29, 2012, p.3.
97 Emergency Medical Services County Service Area Municipal Services Review Final, November 29, 2012, p.3-4.
Ch. 6: EMS CSA 116
Policy Consulting Associates, LLC
Alameda Fire Municipal Service Review
Public Review Draft
Figure 6-1: EMS CSA Boundaries and SOI
Alameda County Emergency Medical Service Districts
h h h h h h t t t t t t u u u u u ro o o o o o N S S S S S 1 2 3 4 5 1 0 0 0 0 0 0 p p p p p p i i i i i i h h h h h h s s s s s s n n n n n n w w w w w w o o o o o o T T T T T T 1 2 1 4 3 1 2 2 0 1 5 0 4 1 3 1 3 0 2 R 1 3 1 3 87 0 1 a 0 6 9 1 8 7 n 7 1 8 g 7 0 3 5 2 2 C e 0 1 2 9 8 0 M 8 0 7 1 2 o 0 0 9 6 2 1 2 a 0 8 9 u 3 5 1 8 9 4 4 3 1 6 2 r 1 n 6 1 W i 5 1 0 n t 0 3 0 3 y 2 0 4 e 1 3 2 1 3 2 2 5 4 2 0 s 7 1 t 1 0 2 1 3 2 2 1 2 0 1 0 5 6 4 3 0 0 0 2 2 3 0 1 5 1 4 6 0 3 3 1 3 1 0 0 0 3 1 1 9 0 6 8 1 C UV 0 7 8 o 3 S 0 u a 5 R n n t 5 8 y F 1 a r 7 0 an n B 8 c a i 1 9 s B g y c 6 s o h e e or e A §¨¦ r 0 §¨¦ F 8 k 2 w 2 l 3 4 0 8 y a 8 e 3 0 2 0 E m 1 l W 0 e UV m 2 6 §¨¦ 3 e y 7 e 2 3 8 1 4 2 e d M s a 0 in 0 r a t A S y 3 2 2 2 5 6 l v 3 1 a a C 1 UV i n UV m 0 8 l 7 §¨¦ o 1 2 9 l 1 t 2 2 P 3 8 e 1 1 h 4 3 4 0 8 5 M u 6 e t a 2 t h 1 0 h c d UV 3 n 0 if a 8 B i a c 8 r t 4 o 1 t t I a y 0 s 8 A 0 h e d la t w P v n h a d o e y 0 D i r 1 e 0 UV 3 0 d 9 th R F 2 m 0 o £¤ a o 1 UV UV §¨¦ t n 5 0 o 2 6 h 0 1 8 4 i 1 n g l 0 0 l 0 6 B e t 5 6 8 lv 3 t O 0 UV h S 5 d 0 1 9 t 0 a h 3 a 3 8 9 4 1 0 t k 7 n h 6 3 W M l r a d L 1 3 a M 2 1 e a n 0 r 3 2 5 2 c e i a 2 s n 4 2 UV 7 r d 1 S 0 t M 3 h a 3 a P t u 8 o k 1 r i 2 n r B B 5 y 4 a n l 6 v 3 g 0 l l d e d i 0 a v 0 5 n W h d H e r a u 2 B o r 0 5 l y a s v 3 2 d t 6 4 R y 1 0 d 2 w 0 0 6 5 UV 2 7 R 3 1 e 3 a 3 d S 0 w 8 1 H 8 o r a es o p i d n e UV d r t ia 8 M R n R B 4 a A d 3 l 5 r v 8 y UV d 2 a s 1 UV 9 R 2 2 1 7 d n 9 2 0 8 §¨¦ 8 5 1 g 0 9 8 3 6 4 2 2 e 3 3 8 0 1 3 1 0 4 9 6 1 0 9 5 UV 1 2 2 0 3 3 2 0 0 2 1 3 4 1 1 2 7 2 3 W 5 8 1 0 5 3 C 0 N e 1 F U 1 3 1 h 2 3 1 2 2 r 2 s 1 1 1 5 2 e e e 0 6 6 3 n 1 C 4 r 4 m 0 r t o r 2 w w 2 y 1 i o 7 5 D 5 C 2 o 1 a n 1 3 S 1 n a v 3 3 a 2 1 2 t 3 1 2 t i n l n l 3 6 e 4 5 B r y B B 0 1 3 l k l 6 o v 1 P v l d 7 2 C 0 a 1 a n 3 d l 3 c 9 o 1 R m i o 0 §¨¦ 3 5 3 1 8 6 3 5 t 2 a w d 6 1 1 3 1 2 9 r 0 y 9 0 8 e 8 S 1 2 0 s 3 R 2 7 2 0 8 t 2 9 d 3 0 o 0 1 3 8 2 5 F 0 2 1 2 1 8 7 2 n 9 1 UV P 5 0 7 5 9 0 4 6 3 r 2 7 2 e 8 2 5 a 3 8 8 e 8 R 1 4 3 l 2 1 V o 2 4 2 1 3 0 6 m m 94 1 1 a 9 3 2 1 9 6 a 4 1 a 6 l 3 8 1 1 5 l n r 3 6 o 3 e e 0 2 2 2 4 s 9 7 g 1 1 2 0 y 3 n 2 1 0 3 3 3 3 2 2 2 0 1 4 8 1 5 4 2 3 e 7 7 R 0 2 t 5 0 1 0 1 1 3 2 UV 6 d 2 1 §¨¦ 0 A 4 2 0 0 2 2 6 2 9 3 2 1 3 1 7 l 1 3 6 5 8 2 3 c 1 1 1 3 C 0 UV 4 8 2 1 2 2 B 2 o 1 2 1 5 1 3 5 0 1 2 a s 6 2 5 6 3 t l 4 4 a 0 7 W a m 0 2 2 B 1 c 3 2 1 l i 6 1 2 1 v 2 k 2 1 1 1 6 n 3 1 e 2 5 d 4 4 2 3 1 h 3 3 1 2 2 2 2 5 3 2 o 3 1 6 s 1 a 6 5 3 4 5 4 2 1 2 w 7 T t 5 1 k 3 a 6 3 3 2 P 1 1 1 3 1 UV 1 s 1 0 4 2 R eh 7 3 9 3 ug oD try 6 2 8 6 2 D 1 R 2 l 1 3 d s 6 d 5 e 4 u 3 7 a 1 2 1 b 6 a j 2 0 5 3 3 5 a 7 2 3 1 l 1 8 8 2 1 s i 0 r 9 0 9 7 n 8 1 3 6 0 a 3 D 1 1 a 7 1 7 0 9 8 2 B M 3 n a u 9 1 in l 3 9 2 3 2 4 5 v C 6 2 t b 0 1 1 2 8 d R o 0 8 S C 7 3 a 5 l 2 a o l ver 8 2 as i 9 n a a 2 n n 1 2 1 C n C 2 3 3 3 5 2 n 7 4 0 2 2 2 3 1 t 3 8 1 1 8 g o 1 9 o 6 9 r 3 3 t 4 6 3 9 a a e 4 u 3 2 u 2 2 2 1 1 1 4 6 0 1 7 3 3 2 4 2 A 0 n 3 1 0 2 5 C 3 C n 2 0 2 5 1 4 C 1 7 2 UV 1 t 5 3 l t 1 0 1 l o 8 y a y o 5 a 0 3 2 2 4 2 E S 2 1 s 1 1 1 5 m 5 1 6 4 3 r u 3 3 1 t 1 3 2 4 1 2 2 a 2 a 6 t 1 a 5 2 1 6 0 3 n n a 4 2 2 e s 1 1 1 3 l H 4 1 1 t 3 3 e 1 t d 2 1 6 3 2 1 2 i 7 7 y 0 6 9 y 6 5 8 3 1 g 4 3 3 2 1 a 2 1 1 3 6 h B 1 1 5 4 3 3 2 0 1 2 2 9 l 1 l 8 1 6 a 5 4 v 3 2 1 2 3 2 3 3 n 5 1 1 8 1 0 d 7 9 5 0 2 d 3 8 9 2 3 6 3 1 6 2 R 1 7 9 1 7 L 0 d 9 5 2 7 3 8 1 3 6 1 1 0 1 7 0 i 9 2 7 2 1 8 9 3 v 4 1 1 9 8 8 6 4 3 Live 3 rm Ar 8 o 7 r 2 2 o r e y 3 e o A 2 R 5 v 2 d 1 e 1 3 8 0 2 1 9 7 6 5 8 r 3 2 2 1 m 2 1 R 9 3 2 8 0 2 3 9 3 7 1 0 1 2 4 7 2 2 1 3 5 M 1 3 0 a 3 1 9 2 3 8 o 6 4 6 2 2 4 1 a 7 3 n 4 2 8 9 3 r 6 r 2 1 2 1 1 1 3 3 e s g 1 2 8 2 5 1 1 2 3 3 9 3 0 2 1 6 2 5 2 1 5 h 6 2 3 1 4 4 7 e 4 7 2 2 1 0 3 2 5 2 2 1 5 C 1 6 1 1 3 1 1 4 1 0 5 2 1 r 3 0 1 2 5 4 2 0 3 e 1 5 2 2 2 3 6 2 3 V 3 a 1 s e c 6 o 2 R 1 d 5 2 4 1 5 k 3 1 3 6 2 3 3 4 2 E 2 1 R 6 1 1 5 1 4 3 2 1 d 3 4 a 1 2 3 2 7 3 1 6 3 6 5 6 1 4 s 1 2 1 3 2 0 2 9 1 7 8 6 5 3 4 t 0 3 3 1 0 1 1 1 0 Gre 1 envi 9 lle 7 Rd 8 3 6 3 8 2 3 1 3 1 5 2 1 2 0 1 3 9 1 2 8 9 3 0 1 8 7 1 5 1 d 7 R ocs 0 aV 3 6 9 2 8 2 1 2 9 0 8 7 3 5 2 1 2 3 7 2 1 6 4 2 2 9 8 1 6 0 8 3 3 8 7 5 2 1 7 9 2 6 4 1 2 9 3 R 0 3 8 2 7 5 2 1 3 1 2 8 1 9 8 6 3 5 2 7 a 4 3 2 2 9 1 3 2 2 2 2 1 9 3 2 3 0 8 1 n 8 7 1 5 4 1 3 1 7 6 4 2 2 A 5 3 1 0 P 3 8 3 g 2 9 3 6 2 4 2 l 2 4 1 1 a 7 t 3 1 8 2 1 e 9 3 a 6 5 4 2 t 3 0 3 2 2 2 1 3 3 t 1 2 2 8 m 4 2 1 e 9 7 1 2 6 5 4 3 1 5 6 0 3 2 3 1 2 4 r 1 2 1 4 1 o 7 M 3 0 2 2 3 s 1 3 5 3 2 2 0 2 n 1 5 6 4 1 4 o 7 3 1 i 2 3 5 3 3 2 t 0 n 2 2 1 2 E n 3 2 1 4 1 1 2 1 5 7 2 1 2 6 P e 2 1 6 3 5 3 3 1 4 5 0 2 1 4 2 P a s 3 1 a 5 2 1 1 6 1 3 3 3 2 a 2 2 4 s 1 s R 2 2 3 s 5 6 5 6 1 s 3 4 d 3 s t 1 2 2 2 1 6 1 5 6 4 3 3 3 1 2 3 2 2 1 1 2 1 6 1 1 5 0 4 3 9 7 3 4 1 2 8 2 6 3 3 6 1 5 1 1 0 3 9 7 3 6 8 1 1 1 0 9 7 3 6 3 8 5 1 1 1 3 0 2 9 7 2 8 6 1 2 9 8 0 3 2 5 7 2 1 2 9 3 0 2 8 5 7 2 1 2 9 8 0 3 R 7 5 4 2 2 0 1 2 3 9 2 2 0 8 7 5 1 3 a 8 3 1 9 2 4 6 2 1 3 n 8 2 3 9 2 1 4 6 2 3 2 1 1 8 3 8 1 3 M 9 1 g 6 3 4 6 4 o 3 2 2 9 u e 1 1 4 n 7 ta 2 ni 3 H 2 ou 5 3 se 2 kP 0 y 1 1 4 7 3 2 3 2 0 5 2 0 1 4 1 1 7 2 3 3 3 5 4 2 0 0 2 2 3 B 4 2 1 2 7 1 2 5 1 y 6 3 5 E 3 2 2 4 2 1 r 1 1 5 o 6 3 3 2 4 2 1 2 a 1 n 5 1 6 3 3 1 4 1 2 2 1 2 R s UV 1 5 3 4 6 2 2 3 1 d 1 1 6 t 5 4 3 4 2 1 3 2 2 1 1 6 5 3 4 2 1 3 2 2 1 1 6 5 3 4 1 2 3 2 2 1 6 6 S 5 4 3 3 3 1 1 1 a 0 3 9 3 7 8 1 6 1 1 3 0 n 7 9 3 C 6 7 3 8 1 3 1 6 5 1 0 1 9 0 8 1 o J 9 Corral Hollow 3 R R d 2 u 2 o 1 2 9 3 2 0 2 8 1 7 5 a 3 2 9 4 n 2 8 5 a 0 2 7 1 2 9 n 0 8 3 2 7 5 T t 2 q rac 2 2 y 1 9 y 0 B 3 g l 2 vd 1 6 u 3 8 3 2 2 9 e 1 4 3 3 S 3 8 9 4 2 1 4 i 2 6 1 3 8 n 1 3 9 L 2 6 0 2 t C 3 8 i 1 a 3 2 5 n 2 1 4 3 7 2 2 o 2 n 2 1 n 3 1 1 0 1 4 3 7 2 0 2 2 E 3 2 5 e 2 0 5 0 4 u 7 i 3 2 C 2 h 3 risma s n R a R d 4 7 1 n 3 2 2 d s l 1 3 1 5 6 2 H 3 2 a 2 2 1 t t 1 5 1 3 6 t 3 h 2 6 4 y 2 o 1 1 5 u 1 1 3 3 4 2 w 2 1 2 UV 5 1 6 s 3 3 2 a 2 3 1 6 3 5 2 4 2 r 1 1 2 1 2 1 6 d 3 5 4 1 3 2 2 2 2 3 1 6 1 5 3 4 5 R 1 3 2 2 6 6 4 3 Bird d R 3 d 1 1 1 3 0 3 7 9 1 6 8 1 1 3 0 7 3 9 6 8 1 1 1 0 3 7 9 3 6 8 1 0 5 3 2 2 1 2 3 9 2 8 0 2 7 5 1 2 3 9 8 2 0 5 7 2 1 2 9 0 8 5 7 4 3 2 2 1 3 3 8 2 9 1 2 4 6 1 1 3 3 2 8 2 9 4 1 6 6 3 8 1 3 1 2 2 3 1 3 3 0 4 5 7 2 4
Alameda County O Alameda County Emergency Medical Service Districts
S
L
o
o
ur
c
ce
a
: A
l
la
A
m
g
ed
e
a
n
g i D n L e i A t
c
s e n F c
y
n e C l d a r o a e
F
im l d
o
d e t i r s o
r
: p
m
b T la e h
a
y e u
t
p s i
i
n u e
o
f M r d o p
n
a r o f m p o s
C
r C a e r t r s
o
i e e o a o f n
m
e t n e r s l e d y
m
h n 1 o a c /7 n w
i
e
s
/ d 2 n a
s
0 i n i s 2 s
i
d 3
on Legend
A A A
C
d l l
o
a a j
m
m m ac
m
e e e d d
u
n a a
n
t
i
C C C
ti
o i o
e
t u y
s
u n n B t t y o y u B B n o o d u u a n n r d i d e a a s r r y ies
Em Se e r r v g i e c n e c D y
Z Z
i
o o
s M
n n
tr e
e e
i d c
1 2
i t c s al C S o a u n n t F y ranci
S
sco
a
P
C
kj
n
i kj ekj
o
A dE
u
B
M
l m b kj me
n
a
a
o re n
t
A k kjn
t
r
y
ye
e
l ty a O l kjve
o
m a iyl k e le l d a a nd
kjSan kj L H e a kj a y F n w r d e a m r r o d o kj n U kjt n N io e n w C ar it k y
ConC
kj
tor
P A D kj
au
le u l a
n
a b
C
s m l
t
i a
oy
n n e
s
t d o
ta
n a C kj o L u iv n er t m y ore San
Joaquin County
not to be used as an official map. 0 1.5 3 6Miles Santa Clara County
Ch. 6: EMS CSA 117
Policy Consulting Associates, LLC
Alameda Fire Municipal Service Review
Public Review Draft
The EMS CSA has a countywide SOI that is coterminous with the County boundaries and
does not conflict with existing or planned land uses.98 Originally, it excluded the City of
Alameda, but in 1984, LAFCO amended EMS CSA's SOI to include the entire County of
Alameda.
The sphere was affirmed by LAFCO in 2012, as generally coterminous with the boundaries of
EMS CSA. Upon annexation of the City of Alameda territory in 2011, the CSA's SOI became
coterminous with its bounds.99
Accountability of a governing body is signified by a combination of several indicators. The
indicators chosen here are limited to 1) agency efforts to engage and educate constituents
through outreach activities, in addition to legally required activities such as agenda posting and
public meetings, 2) a defined complaint process designed to handle all issues to resolution, and
3) transparency of the agency as indicated by cooperation with the MS process and
information disclosure.
EMS CSA was formed as a dependent special district with the Alameda County Board of
Supervisors as its governing body. There are five county supervisors, one from each district,
elected to four-year terms of office. A Board President is chosen from the Board Members
every two years. Current board member names, positions, and term expiration dates are shown
in Figure 6-2.
The governing body meets on selected Tuesdays at the Board Chambers on the fifth floor of
the County Administration Building at 1221 Oak Street in Oakland. The Board Clerk posts
agendas for each meeting on the website and at the County Administration building. The
Board Clerk provides notice for meetings and disseminates minutes. Board actions and meeting
minutes are available online. Through the County website, the public can access live
audio/visual webcasts and archived audio and/or visual webcasts of regular Board meetings for
viewing online at their convenience. The County also discloses finances, plans, and other public
documents online.
98 Alameda Local Agency Formation Commission Resolution No.2012-05.
99 Emergency Medical Services County Service Area Municipal Services Review Final, November 29, 2012, p.4.
Ch. 6: EMS CSA 118
Policy Consulting Associates, LLC
Alameda Fire Municipal Service Review
Public Review Draft
Figure 6-2: EMS CSA Governing Body
governing body
Manner of Selection Election by District.
4 years for supervisors, board president chosen every
Length of Term two years
Selected Tuesdays
Alameda County Administration Building
1221 Oak Street
Oakland, CA 94612
5th floor
Meetings Board Chambers
Agenda Distribution Posted online, post office, and at the station.
Minutes Distribution Posted online.
board members
Member Term Manner of Length of
Name District Position Expiration Selection Term
David Board Vice
Haubert 1 President 2024 Elected 4 Years
Elisa
Marquez 2 Board Member 2024 Elected 4 Years
Lena Tam 3 Board Member 2026 Elected 4 Years
Board
Nate Miley 4 President 2024 Elected 4 Years
Keith
Carson 5 Board Member 2024 Elected 4 Years
contact
Contact Irene de Jong, Administrative Services Director
Mailing Address 6363 Clark Ave., Dublin, CA
Phone 510-693-3407
Email/Website Irene.dejong@acgov.org
EMS CSA is managed as a division of the Alameda County Health Care Services
Agency, organized under the Office of the Agency Director. Under the authority of the Board
of Supervisors and the California EMS Authority, EMS CSA oversees all EMS providers in
Alameda County. There are also several advisory committees to the EMS Agency.
All members of Alameda County's Board of Supervisors have current filings for Form 700 with
the California Fair Political Practices Commission, indicating transparency in with their
economic interests.
Through the County, there also exists a conflict-of-interest code and bylaws, outlined in the
municipal code, as lawfully required and by which EMS CSA must abide.
Ch. 6: EMS CSA 119
Policy Consulting Associates, LLC
Alameda Fire Municipal Service Review
Public Review Draft
All complaints concerning EMS CSA or any of its employees are investigated, and a response
is provided to the complainant. Alameda County Health Care Services Agency is responsible
for tracking and logging complaints and insuring their resolution.
There is also legislation in effect to help ensure special districts adhere to accountability
standards. One, California AB 2257 (Government Code §54954.2) is an update to the Brown
Act and indicates requirements for methods by which an agenda for all meetings should be
made available on an agency's website. Similarly, the Special District Transparency Act of
2018 (SB 929, Government Codes §6270.6 and §53087.8) indicates that special districts have
websites in use by January 1, 2020, per the Brown Act, and requires how the publicly available
information be displayed. EMS CSA is in compliance with each of these regulations.
EMS CSA demonstrated accountability in its disclosure of information and cooperation with
the LAFCO questionnaires and other requests for information.
While public sector management standards vary depending on the size and scope of the
organization, there are minimum standards. Well-managed organizations evaluate employees
annually, track employee and agency productivity, periodically review agency performance,
prepare a budget before the beginning of the fiscal year, conduct periodic financial audits to
safeguard the public trust, maintain relatively current financial records, conduct advanced
planning for future service needs, and plan and budget for capital needs.
The EMS director, who reports to the Assistant Agency Director for the Alameda Health Care
Services Agency and ultimately to the Board of Supervisors, oversees EMS CSA's operations.
Frontline supervisors and some administrative staff report directly to the EMS Director, but
most of the staff report to the frontline supervisors. There are several units within EMS CSA—
9-1-1 system oversight, injury prevention, community programs, emergency preparedness, and
administration and support.
EMS CSA reported that it does not conduct regular staff evaluations and verbal evaluations of
EMS provider groups, such as city fire departments. It does, however, investigate reports of
unusual occurrences involving individuals employed by EMS providers. The CSA conducts a
self-evaluation entitled the EMS System Plan, in which it assesses its success in meeting
minimum standards and suggested guidelines related to a wide variety of issues regulated by
the California EMS Authority. Additionally, EMS CSA evaluates the EMS system as a whole
by conducting surveys, analyzing data, and monitoring the performance of EMS provider
Ch. 6: EMS CSA 120
Policy Consulting Associates, LLC
Alameda Fire Municipal Service Review
Public Review Draft
agencies in order to ensure contract compliance and identify opportunities for improvement of
the EMS system.
EMS CSA indicated that staff productivity is monitored on an individual basis. The CSA
reports productivity indicators in preparing its EMS System Plan updates.
In September 2019, the agency began the process of redesigning the County's EMS system.
The District has had various meetings since September 12, 2019, with stakeholders to gain
feedback and input. All meeting agendas, minutes, and other documents from the meeting are
on the District's website. On January 20, 2022, an EMS System update presentation was
made to the Alameda County Board of Supervisors. The EMS System or 9-1-1 ambulance
system redesign fundamentals include equitable access, fiscal responsibility, an appropriate
destination for all patients, and sustainability. The system partner workgroup recommendations
and priorities involve:100
1. EMS System Financial Stability / Service Reimbursement
• Leverage variety of funding sources to include IGT, ET3, and potential fees or taxes
• Mechanism for continual payer mix and fiscal analysis
• Consider the financial impacts of different model types
2. EMS Workforce
• Support for a public model
• Focus on staff safety and well-being
• Continue workforce protections
• Greater workforce input into equipment and ambulances
3. Evolving Patient & Community Needs
• Increased legislative engagement to mitigate barriers and create new paths to serve the
community
• Provide better integration of services in a more accessible way
• Provide focused attention, education, and training pertaining to populations requiring
specialty care
4. System Performance Benchmarks
• Ability to evaluate the continuity of care from phone call to an outcome
• Health Data Exchange with Hospitals
100 Alameda County EMS System Update, January 20, 2022, p.10-12.
Ch. 6: EMS CSA 121
Policy Consulting Associates, LLC
Alameda Fire Municipal Service Review
Public Review Draft
• More fluid and dynamic approach to call prioritization based on data
• Balance response time vs. clinical need vs. outcome
5. Technology
• Increase interoperability
• Operational awareness of all resources not just 9-1-1
• Telehealth
• Text to 9-1-1
• Dispatch initiated triage and navigation by an imbedded clinician
• Better communication between field and hospitals/alternative destinations
The next stage for the EMS redesign is the completion of the Request for Proposals (RFP) and
selection process with a tentative timeline of January 2025. New ambulance contracts are
expected to start in July 2026.
The biggest challenges facing EMS systems identified by the District include issues surrounding
financial stability, system structure, staffing, one-path model, hospital saturation, and addressing
community needs.
Starting in 2002, all 9-1-1 responders were monitored by EMS CSA for response times, cardiac
arrest survival, and intubation success rates. At that time, AMR was the only provider subject
to response time penalties, should it fail to meet the response times required in its contract.
Beginning with the contracts executed in 2011, penalties for noncompliance with other contract
requirements were established for all 9-1-1 provider agencies, including first responders. Prior to
that, there were no penalties for non-compliance.
EMS CSA adopts an annual budget and is a component of the County's annual audit. EMS
CSA does not have a capital improvement plan. The CSA provides EMS system oversight in
the form of planning, implementing, and evaluating 9-1-1 system design. The direct EMS
providers are responsible for capital improvements required for actual EMS system delivery.
Ch. 6: EMS CSA 122
Policy Consulting Associates, LLC
Alameda Fire Municipal Service Review
Public Review Draft
This section discusses the factors affecting service demand, such as land uses, and historical
and anticipated population growth.
The EMS CSA encompasses every land use designated by the County and the incorporated
cities within its bounds, including agricultural and open space land. 101
According to the Census, as of 2020, Alameda County's was 1,682,353. As of January 1,
2023, the California Department of Finance estimated Alameda County had a population of
1,636,194.
Based on the Association of Bay Area Governments (ABAG) growth projections, the EMS
CSA service area population is anticipated to increase to 1,868,635 by 2030 and 2,092,370 by
2040. Meanwhile, the Average Annual Growth Rate (AAGR) from 2020 through 2030 is one
percent. The AAGR is expected to remain at one percent from 2030 through 2040. These
growth patterns are expected to affect service demand.
As mentioned previously, the agency is in the process of an EMS System redesign to improve
equitable access, fiscal responsibility, appropriate destination for all patients, and sustainability.
Specific to the issue of evolving patient and community needs, the system redesign aims to
increase legislative engagement to mitigate barriers and create new paths to better serve
residents, provide better integration of services in a more accessible way, and provide focused
attention, education, and training pertaining to populations requiring specialty care.102
101 Alameda Local Agency Formation Commission Resolution No.2012-05.
102 Alameda County EMS System Update.
Ch. 6: EMS CSA 123
Policy Consulting Associates, LLC
Alameda Fire Municipal Service Review
Public Review Draft
Per the Census Designated Places (CDP), as of 2021, there are no disadvantaged
unincorporated communities (DUCs) that meet the basic, State-mandated criteria within the
EMS CSA service area.
EMSCSA has the financial ability to continue to provide services. Conservative budgeting
practices and low expenditure growth fully funded by annual assessment increases have
contributed to growing fund balances.
About 98 percent of EMSCSA's revenue derives from annual assessments paid by property
owners within the District's boundary which encompasses the entire County. The basic charge
for paramedic services for FY22 of $35.56 per benefit unit was increased by the Board of
Supervisors at a rate indexed to inflation. The District reports that additional funding, for
example increasing assessments and fees, will be needed in the future to fund expenditures and
improve services and "subsidization will be necessary." The District successfully seeks grant
funding, for example from the Urban Areas Security Initiative (UASI) and State Homeland
Security Grant Program (SHSGP).
The CSA budgeted approximately 40 percent of its expenditures for trauma care. In FY2021-
22 the budget allocated funds to:
Alameda Health System $ 5,266,383
UCSF Benioff Children's Hospital Oakland $ 1,982,480
Sutter Eden Medical Center $ 1,982,480
Trauma Care Total $ 9,231,343
In FY2021-22 about 17 percent of expenditures supported dispatch centers. The remainder of
expenditures funded salaries, benefits, and other operating costs.
From FY2017-18 expenditures grew at a slower rate than revenues, averaging 0.6 percent
annually through FY2021-22. The revenue in excess of expenditures contributed to growth in
the CSA's fund balance.
Ch. 6: EMS CSA 124
Policy Consulting Associates, LLC
Alameda Fire Municipal Service Review
Public Review Draft
From FY2017-18 through FY2021-22 the CSA's available fund balance grew from $2.4 million
to $10.3 million. The fund balances represent about 46 percent of annual expenditures. The
CSA's conservative budget includes the use of fund balances every year to balance the
budget, however, actual fiscal year results indicate that revenue have exceeded budgeted
amounts and therefore reserves have grown every year. These reserves are imperative to
remain as they allowed life-saving equipment procurement during the COVID-19 pandemic
during the period in which local, state, and federal funding had yet to be made available.
Ch. 6: EMS CSA 125
Policy Consulting Associates, LLC
Alameda Fire Municipal Service Review
Public Review Draft
Many of the agency's responsibilities and the authority needed to carry an oversight role are
derived from Division 2.5 of the California Health and Safety Code and related chapters of
Title 22 of the California Code of Regulations.
EMS CSA provides key functions in the provision of countywide emergency medical services,
including:103
• Monitoring and approving EMT-1 training and certification programs,
• Accrediting paramedic personnel to work in Alameda County,
• Authorizing advanced life support programs,
• Establishing and enforcing policies for medical control of the EMS system (including
dispatch) and patient care,
• Regulation of ambulance services, such as monitoring and enforcement of response
times,
• Collecting response time and patient outcome data for regulation purposes and to
identify necessary improvements in the EMS system,
• Monitoring contracts with EMS system providers, including the county-contracted
ambulance provider, fire departments and trauma centers, and
• Offering community educational services, such as CPR and EMS training for children,
mentorship and career exposure for minority youth, unintentional injury prevention
outreach, and providing resources to establish a public defibrillation program.
In 2018, EMS CSA selected a new ambulance transport provider, Falck, to replace the
previous County-contracted provider Paramedics Plus. EMS CSA contracts with Falck to
provide ambulance transport services in the entire unincorporated area and most cities in the
County except for the cities of Albany, Alameda, Berkeley, and Piedmont, which provide
ambulance services in their respective cities. ACFD, Fremont, Hayward, Oakland, East Bay
Regional Parks, CAL FIRE, Camp- Parks, and Livermore-Pleasanton Fire Departments provide
initial emergency medical care to residents in their cities/districts. EMS CSA also has contracts
with fire departments to provide first responders with advanced life support throughout the
103 Emergency Medical Services County Service Area Municipal Services Review Final, November 29, 2012.
Ch. 6: EMS CSA 126
Policy Consulting Associates, LLC
Alameda Fire Municipal Service Review
Public Review Draft
County. Such contracts were in place in 1999, renewed in 2005, 2011, and most recently in
2019.104 In addition, the three trauma centers have been providing services to EMS CSA and
the entire County since 1987. The most recent renewals for these contracts were executed in
2021. In 2021 and 2022, an analysis of the Alameda County Trauma System was completed
by third-party consultant firm contracted by the EMS CSA. The analysis recommended adding
a third adult trauma center within the next 5 years. In 2022, post-analysis, the EMS CSA
authorized Washington Hospital Healthcare System to begin preparations to be verified and
designated as a Level II Adult Trauma Center.
In addition to emergency medical related services, EMS CSA provides a wide variety of
educational and outreach programs. As part of the Health Care Services Agency, EMS CSA
contributes to promoting health equity through its injury prevention programs, such as fall
prevention and drive well training for seniors, car seat courses and check-up events, and
involvement with the Safe Kids Coalition. EMS CSA also supports an EMS Corps program to
help prepare young people from low-income families for careers in healthcare.
EMS CSA is responsible for contract negotiations with ambulance service providers. Falck
Northern California was contracted as the new ambulance service provider in 2018. With a
service start date of July 1, 2019. The original contract was set to expire on June 30, 2024,
however, on October 3, 2023, the Board of Supervisors approved a 2-year extension of
the contract, to June 30, 2026, to allow for the completion of the procurement process of
the subsequent provider as well as adequate implementation time.
Falck provides 9-1-1 ambulance service as requested by the County's Dispatch Center(s), to all
areas within the "Exclusive Operating Area" (EOA) which includes all geographic areas of
Alameda County, except for the cities of Alameda, Albany, Berkeley, and Piedmont, which are
served by the local fire department, and the Lawrence Livermore National Laboratory, which is
served by the Alameda County Fire District.
Advanced Life Support (ALS) ambulances are required to be staffed with a minimum of one
county-accredited Paramedic and one EMT for each ALS emergency transport unit responding
to Priority 1, 2, and 3 calls or any calls for which an EMS Agency-approved EMD center
determines an ALS response is appropriate. For Basic Life Support (BLS) ambulances, a
104 Alameda County EMS - Documents. https://ems.acgov.org/Documents/Documents.page?.p.22. ACFD, Fremont, Hayward,
Oakland, East Bay Regional Parks, CAL FIRE, Camp- Parks and Livermore-Pleasanton Fire Departments provide initial
emergency medical care to residents in their cities/districts.
Ch. 6: EMS CSA 127
Policy Consulting Associates, LLC
Alameda Fire Municipal Service Review
Public Review Draft
minimum of two EMTs are required for all emergency ambulances responding to Priority 4
calls, or for a multi-unit response, or any calls an EMS Agency-approved EMD center
determines a BLS response is appropriate according to MPDS protocols and Alameda County
EMS Agency Policies and Procedures. Additionally, at the Contractor's sole option,
ambulances that require EMT staffing may be staffed by Paramedics.105
As described previously, the EMS CSA, through the County, has contracts with fire
departments throughout the county to provide first responder paramedics to 9-1-1 requests for
services.
Figure 6-3: EMS CSA Services
service agency
emergency medical services
Falck, American Medical Response, Bay Medic,
NorCal Ambulance, Royal Ambulance,
ProTransport-1, Life West Ambulance, Arcadia
Ambulance, Eagle Ambulance, Westmed
Basic Life Support Provider Ambulance
Advanced Life Support – Non-Transport Fire Departments, East Bay Regional Parks,
Provider Camp Parks
Alameda County EMS
Berkeley Fire Department
City of Fremont Fire Department
Piedmont Fire Department
Alameda Health System Highland Hospital
Camp Parks Fire Department
Chabot College
Las Positas College
Alameda Fire Dept.
Oakland Fire Department
Alameda County Fire Department
Albany Fire Dept.
Norcal Ambulance Service
Merritt College
Livermore/Pleasanton Fire Dept.
Hayward Fire Dept.
American Health Education
Royal Ambulance
EMS Corps EMT Training Program
Bay Area Training Academy
Project Heartbeat
Quest Nursing Education Center
American Medical Response
Continuing Education Provider – Medical Falck Northern California
105 Emergency Medical Services Ambulance Transport Provider Agreement, County of Alameda and Falck Northern
California, October 1, 2018, to June 30, 2024, p.31.
Ch. 6: EMS CSA 128
Policy Consulting Associates, LLC
Alameda Fire Municipal Service Review
Public Review Draft
United Ambulance
Bay Youth EMT Program
CE Plus
CHP, East Bay Regional Parks, CalStar, Reach,
Air Ambulance Transport Helicopter Services Stanford Lifeflight
Stanford Healthcare Tri-Valley, Eden Medical
Center, UCSF Benioff Children's Hospital
Helicopter Landing Facilities On Site Oakland
Vehicle Extrication Tools/Equipment Fire Departments
Fire Departments, Alameda County
Regional Emergency Communications Center
Fire/EMS Dispatch (ACRECC)
As discussed above, EMS CSA collaborates with Falck and the cities of Alameda, Albany,
Berkeley, and Piedmont to establish ambulance mutual aid agreements. The District also
collaborates with the Alameda County Regional Emergency Communications Center
(ACRECC), which is administered by ACFD and Oakland Fire Department Dispatch, for
Emergency Medical Dispatch services. Additionally, the District, through the County, has
contracts with fire departments throughout the County to provide first responder paramedics to
9-1-1 requests for services. EMS CSA also collaborates with Alameda County Behavioral
Health and Bonita House for the Community Assessment and Transport Team (CATT)
program, which provides assessment, crisis management, transportation, and referral as
appropriate to individuals presenting behavioral emergencies in the community. 106 Additionally,
EMS CSA has an Emergency Medical Services Authority (EMSA) mutual aid agreement with
16 counties in Region II.
As mentioned, Falck provides contract 9-1-1 ambulance service as requested by the County's
dispatch centers to all areas within Alameda County, except for the cities of Alameda, Albany,
Berkeley, and Piedmont. These cities are served by their local fire department. Additionally, the
Lawrence Livermore National Laboratory, which is located in the City of Livermore is served
by the Alameda County Fire District.
In 2022, EMS CSA reported a total of 149,343 service calls. There was a steady increase
from 2016 to 2017; however, service calls decreased from 2017 to 2019 with a rapid decrease in
106 EMS CSA, SoGo Survey Responses, July 2021.
Ch. 6: EMS CSA 129
Policy Consulting Associates, LLC
Alameda Fire Municipal Service Review
Public Review Draft
2020 due to the COVID-19 pandemic, as shown below in Figure 6-4. After the height
of the COVID-19 pandemic, call volume has rebounded and increased substantially. Of the
total number of calls in FY 2022, 138,341 accounted for emergency medical services and 11,002
for motor vehicle accidents.
Figure 6-4: EMS CSA Calls for Service (2016-2022)
EMS CSA Service Calls (2016-2022)
155000
150000
145000
140000
135000
130000
125000
120000
2016 2017 2018 2019 2020 2021 2022
EMS CSA reports that for FY 22, there are 35 employees comprising 34 full-time equivalent
(FTE) personnel. EMS CSA also indicates that they have eight open positions at the time. The
EMS CSA had 12 staff certified as Paramedics, two staff certified as EMT Is, one registered
nurse (RN), and two medical doctors (MDs).
EMS CSA provides approval and oversight for EMS training programs operating in Alameda
County. 107
• Any organization wishing to conduct Public Safety-First Aid training in Alameda County
that is not considered a Statewide entity must gain approval from the Alameda County
EMS Agency prior to initiation of any training.
107 EMS CSA, SoGo Survey Responses, July 2021.
Ch. 6: EMS CSA 130
Policy Consulting Associates, LLC
Alameda Fire Municipal Service Review
Public Review Draft
• Any organization wishing to conduct EMT training in Alameda County that is not
considered a Statewide entity must gain approval from the Alameda County EMS
Agency prior to initiation of any EMT training.
• The Alameda County EMS Agency is the approving authority for any organization
wishing to conduct a Paramedic Training Program within Alameda County.
• Organizations in Alameda County wishing to provide Continuing Education for EMS
providers can gain approval from the Alameda County EMS Agency or from the
Commission on Accreditation for Pre-hospital Continuing Education (CAPCE).
EMS CSA's office and their warehouse are located in San Leandro. The warehouse, developed
during COVID, is located adjacent to Kaiser San Leandro, and houses personal protective
equipment, medical supplies and equipment, pharmaceuticals, shelters, and other resources for
deployment and use during an emergency or disaster. During the height of COVID the
warehouse focused primarily on provisioning items related to COVID, however has since
shifted to a more all-hazards approach in order to enhance the ability to respond to a
multitude of different incident types.
Facilities used in the provision of emergency medical services throughout the County include
fire stations, hospitals, and trauma centers. There are 13 receiving hospitals, two adult trauma
centers, and one pediatric trauma center. A medical helicopter is available from several
different providers, including Advanced Life Support (ALS) air ambulances, ALS rescue aircraft,
and Basic Life Support rescue aircraft. Additionally, the EMS CSA has procured, through a
donation from AC Transit, and outfitted, utilizing grant funds from UASI and SHSGP, a multi-
casualty incident response bus that is housed at the warehouse.
Per the 2019 EMD service agreement that will continue through June 30, 2024, ACFD
provides dispatch services for the County-contracted 9-1-1 Ambulance Service Provider under
the terms of their mutual agreement. ACFD must maintain a CAD system capable of:108
• Tracking the status of resources to include ACRECC-contracted FRALS providers and
parties;
108 Emergency Medical Dispatch Services Agreements, Alameda County Emergency Medical Services and Alameda County
Fire Department, June 30, 2019, pp. 2-4.
Ch. 6: EMS CSA 131
Policy Consulting Associates, LLC
Alameda Fire Municipal Service Review
Public Review Draft
• Data entry of locations of incidents by street address, intersection, common place name,
or latitude/longitude coordinates;
• Alerting ACRECC resources of new incidents by voice, radio announcement, and/or
page;
• Data entry of pertinent information related to active incidents;
• Ensuring that all ACRECC systems and electronic interfaces are maintained and
working;
• Tracking all dropped calls by time elapsed before the call was dropped;
• Tracking all calls placed on hold, including the amount of time the caller was kept on
hold; and
• Tracking calls for which FRALS and/or ambulances dispatched by ACRECC were
sent to an incorrect location including cause if known and if the call resulted in a late
response.
ACFD operates the dispatch center in accordance with applicable laws and National Fire
Protection Association (NFPA) Codes and Standards.
Data on call-answering and -processing times are to be provided to the EMS Director within
30 calendar days following the end of each calendar month in which the responses occur.
EMS CSA audits the response times of first responders and ambulances, as well as the quality
of pre-arrival instructions provided by the EMD centers in the County. EMD centers provide
prearrival instructions to 9-1-1 callers by asking pre-established questions and providing
instructions to the caller regarding CPR, emergency childbirth, choking, bleeding, and other
medical emergencies. Prioritizing 9-1-1 calls in this way makes it possible to ensure that the
sickest patients get ambulances in the shortest period.109
EMS CSA, as a dependent district of the County shares in county resources for governance
and administration.
While not specific to EMS CSA facilities and equipment, according to the Alameda County
EMS System Update report, in-county 9-1-1 ambulance resources are shared through mutual
aid as a safety net between EOAs. Falck can provide support to the City of Alameda, Albany,
Berkeley, and Piedmont when needed. In turn, these cities, as well as Alameda County Fire
109 Emergency Medical Services County Service Area Municipal Services Review Final, November 29, 2012.
Ch. 6: EMS CSA 132
Policy Consulting Associates, LLC
Alameda Fire Municipal Service Review
Public Review Draft
Department which has ambulances at Lawrence Livermore Labs, can provide support to
Falck.110
Additionally, EMS CSA reports there are opportunities to optimize mutual aid processes for
ambulance transport response as well as behavioral health response. There are also
opportunities for providers to learn from each other and share best practices to evolve
individual practices and service delivery models as well as the system.
EMS CSA did not indicate any specific infrastructure needs.
EMS CSA indicates the greatest challenge to providing adequate services is geography and
the density of call volume within the City of Oakland. Providing adequate resources to cover
the entire County is a challenge because approximately 50 percent of the call volume is in the
City of Oakland. This creates an environment where during surges or multiple calls within an
area in close succession of each other, resources must shift from other geographic regions,
which could lead to delayed responses or temporary disparity in coverage.111
Another issue is an ongoing financial challenge to sustain and improve services. EMS CSA
reports the need for additional funding for services providers to make the provision of EMS
services within Alameda County financially stable. Due to an antiquated business model, an
evolving payer mix, and the availability of treatment/non-transport dispositions becoming more
prevalent, the fee-for-service model becomes unsustainable and system subsidization will be
necessary.112
Additionally, primary challenges facing the EMS System Update include addressing community
needs, system structure, hospital saturation, staffing, financial stability, and one pathway model.
This section reviews indicators of service adequacy, including response times, complaints, and
staffing levels.
110 Alameda County EMS System Update p.6, https://ems.acgov.org/ems-
assets/docs/EMSsystem/System%20Redesign/BOS%20Presentation%201-20-2022%20Final.pdf.
111 EMS CSA, SoGo Survey Responses, July 2021.
112 EMS CSA, SoGo Survey Responses, July 2021.
Ch. 6: EMS CSA 133
Policy Consulting Associates, LLC
Alameda Fire Municipal Service Review
Public Review Draft
For response time deployment planning, reporting, and compliance purposes, there are three
Deployment Zones – North, South, and East, and three Sub-zones – Metro/Urban, Suburban,
and Rural/Open Space within each Deployment Zone based on population density. The
response areas outside of the Contractor's EOA responsibility (Alameda, Albany, Berkeley,
Piedmont, and Lawrence Livermore National Laboratory) are not included in these zones.113
There are also three response types:
• Code 3: Medical calls requiring a lights and sirens response. Calls categorized as a
Priority 1, 2, or 3 response secondary to their complaint and acuity determined through
the Medical Priority Dispatch System (MPDS) utilized by Oakland Fire Dispatch and
Alameda County Regional Emergency Communications Center (ACRECC). Code 2
calls upgraded by emergency personnel on scene due to an emergent patient condition
are upgraded to Code 3.
• Code 2: Medical Calls not requiring a lights and sirens response. Calls are categorized
as a Priority 4 response secondary to their complaint and acuity determined through
the MPDS by the dispatchers. Code 3 calls downgraded by emergency personnel on
scene due to a non-emergent patient condition are upgraded to Code 2.
• 5150: Non-medical behavioral health responses, which do not utilize lights or sirens.
The response time standard shown on Figure 6-5 must be met 90 percent of the time for each
response type in each subzone within each deployment zone.
Figure 6-5: Response Time Standards
call
response metro/urban suburban rural
priority
Priority 1 10:00 min. 14:00 min. 16:00 min.
Priority 1 12:00 min. 16:00 min. 20:00 min.
Code 3
Priority 1 14:00 min. 18:00 min. 20:00 min.
Code 2 Priority 1 20:00 min. 30:00 min. 40:00 min.
5150 5150 40:00 min. 50:00 min. 60:00 min.
In December 2021, Falck was non-compliant in two zones, North and East Metro Code 3.
While South Metro Code 3 was reported to be compliant since in August 2021. Additionally, of
the 27 zones monitored monthly, in December 2021, Falck met or exceeded performance
113 Alameda County EMS Agency, Complete Annual Compliance Report, p.1-2.
Ch. 6: EMS CSA 134
Policy Consulting Associates, LLC
Alameda Fire Municipal Service Review
Public Review Draft
standards in 25, with more than 95 percent on-time compliance in 22 zones. Falck was also on
time for 100 percent of their calls in nine zones. At the time, Falck was on a Corrective Action
Plan, initiated after performance deficiencies in August and September 2021, with a $135,000
penalty assessment of $75,000 for December and $60,000 for continued Non-Compliance
under the Corrective Action Plan.114
The District reports that the most recent non-compliance occurred in July 2022 in North Metro
Code 3 (89.5 percent) and South Metro Code 3 (89.81 percent). As of August 2023, Falck
has been compliant (above 90 percent) in all zones for the last year.
According to the Alameda County EMS System Update report, mitigation efforts to improve
response times are highlighted including continued staff recruitment efforts and re-evaluation of
posting locations, revising response plans, engaging hospitals to address Ambulance Patient
Offload Time (APOT) challenges, engaging with other ambulance companies to evaluate
partnership opportunities, engaging with Fire Departments to provide ambulances for them to
staff within their jurisdiction.115
Alternatively, Alameda can utilize the "alliance model" other agencies across California have
adopted. For example, in 2023, the City of San Diego negotiated their contract with Falck to
take authority over billing and staffing due to Falck noncompliance, specifically regarding
response times and staffing levels.
This model involves the City hiring multiple companies to increase ambulance coverage. Falck
and other private providers will own and staff ambulances operating in San Diego; however,
the City will control how ambulances are deployed and collect patient payments.116
In the new renegotiated contract, Falck is required to subcontract with a second ambulance
provider to boost service. Falck must maintain the average number of advanced life support
ambulance hours it has provided since the initial contract. If Falck falls below that average over
a week, the company must pay a $50,000 fine. However, if it fails for two weeks within any
month, the previous fine structure - which was significantly steeper- would get reactivated.
It is important to note that this model shifts the financial risk from Falck to the City. However,
proponents argue this model is beneficial as "state law gives public agencies better
reimbursement rates from Medicare and MediCal patients than private ambulance providers
114 The Alameda County EMS System Update, p.4.
115 The Alameda County EMS System Update p.7.
116 Del Mar Times, Unhappy with ambulance response times, San Diego plans to take over staffing and billing control from
Falck, April 27, 2021.
Ch. 6: EMS CSA 135
Policy Consulting Associates, LLC
Alameda Fire Municipal Service Review
Public Review Draft
get." Contra Costa County is an example of a successful adaptation of this model where the
County runs a surplus and invests money into service enhancement. 117
However, the San Diego Fire Chief indicated this would be a year-long experiment to identify
revenue, expenses, and service effectiveness- that could eventually turn into a long-term deal or
a shift to bringing ambulance service in-house.
Additionally, by taking over staffing, the City of San Diego can adjust the number of service
hours based on seasonal increases in emergencies and other fluctuations.
Therefore, it is recommended that Alameda County explore the option of adopting the alliance
model option to address Falck's compliance issues.
117 The San Diego Tribune, Deal reached for San Diego to take over billing, staffing from struggling ambulance provider Falck,
April 17, 2023.
Ch. 6: EMS CSA 136
Policy Consulting Associates, LLC
Alameda Fire Municipal Service Review
Public Review Draft
6-1: According to the Census, as of 2020, EMS CSA's population is 1,682,353. As of
January 1, 2023, the California Department of Finance estimated Alameda County
had declined to a population of 1,636,194.
6-2: Based on the Association of Bay Area Governments (ABAG) growth projections, the
population of the area within the EMS CSA service area is anticipated to increase to
1,868,635 by 2030 and 2,092,370 by 2040. The Average Annual Growth Rate
(AAGR) from 2020 through 2030 is five percent and is projected to continue to
increase with a six percent AAGR from 2030 through 2040.
6-3: The EMS CSA does not have any Census Designated Places that meet the definition
of a DUC within or contiguous to its SOI.
6-4: Given EMS CSAs role as a planning and oversight entity, the District does not rely
on facility capacity to provide these services. Staffing capacity appears to be
sufficient to enable the District to meet its requirements.
6-5: As of December 2021, Falck was non-compliant in two zones—North and East Metro
Code 3. South Metro Code 3 was reported compliant since August 2021.
Additionally, of the 27 zones monitored each month, in December 2021, Falck met or
exceeded performance standards in 25, with more than 95 percent on-time. The
District reports that the most recent non-compliance occurred in July 2022 in North
Metro Code 3 (89.5 percent) and South Metro Code 3 (89.81 percent). As of August
2023, Falck has been compliant (above 90 percent) in all zones for the last year.
6-6: EMS CSA is undergoing an EMS system redesign to facilitate equitable access, fiscal
responsibility, an appropriate destination for all patients, and sustainability.
6-7: The original contract with Falck was set to expire on June 30, 2024, however, on
October 3, 2023, the Board of Supervisors approved a 2-year extension of
the contract, to June 30, 2026, to allow for the completion of the procurement process
of the subsequent provider as well as adequate implementation time.
6-8: It is recommended that EMS CSA ensures an improved contract is negotiated with
any subsequent provider to ensure an adequate level of services is maintained by the
provider.
Ch. 6: EMS CSA 137
Policy Consulting Associates, LLC
Alameda Fire Municipal Service Review
Public Review Draft
6-9: It is recommended that EMS CSA explores the "alliance model" option that other
agencies across California such as the City of San Diego and Contra Costa County have
adopted and renegotiate contract with Falck to ensure compliancy and ambulance
coverage.
6-10: EMS CSA did not report any infrastructure needs.
6-10: EMS CSA has the financial ability to continue to provide services. Conservative
budgeting practices and low expenditure growth fully funded by annual assessment
increases have contributed to growing fund balances.
6-11: EMS CSA, as a dependent district of the County shares in county resources for
governance and administration. While not specific to EMS CSA facilities and
equipment, in-county 9-1-1 ambulance resources are shared through mutual aid as a
safety-net between EOAs.
6-12: EMS CSA reports there are opportunities to optimize mutual aid processes for
ambulance transport response as well as behavioral health response.
6-13: It is recommended that the Department join fellow Alameda fire providers to develop
a regional, countywide dispatch strategy that employs the closest resource for the
fastest response time, regardless of agency boundaries or responsibility.
6-14: EMS CSA abides by all legislative obligations for accountability and governance
practices.
6-15: EMS CSA demonstrated transparency when sharing information to create this
report.
6-16: No alternative governance structure options specific to EMS CSA were identified.
Ch. 6: EMS CSA 138
Policy Consulting Associates, LLC
Alameda Fire Municipal Service Review
Public Review Draft
Established in 1938, the Fairview Fire Protection District (FFPD) is an independent special fire
district in Alameda County; organized under the provisions of the California Health and Safety
Code. The principal act that governs the District is the Fire Protection District Law of 1987.
The principal act empowers fire districts to provide fire protection, rescue, emergency medical,
hazardous material response, ambulance, and any other services relating to the protection of
lives and property. Districts must apply and obtain LAFCO approval to exercise services
authorized by the principal act but not already provided (i.e., latent powers) by the district at
the end of 2000.118
Fairview is a unique, semi-rural community located in the urban-wildland interface between the
San Francisco East Bay's densely populated coastal communities and open spaces hills.119 The
District provides fire protection services to the Fairview and Five Canyons communities.
According to FFPD's 2019-2024 Strategic Plan, the District serves approximately 14,000
residents and contains wildland areas, single-family homes, multi-family residential complexes,
elementary schools, agriculture, and equestrian areas120.
FFPD has contracted with the City of Hayward since 1993 to provide fire protection and
emergency medical services within the boundaries of the District. Services provided by FFPD
through its contract with the City include fire prevention through code enforcement and
education, fire suppression, and emergency medical services at the Advanced Life Support
(ALS) level. Under the contract, the City of Hayward also takes care of weed abatement
complaints within the District.
The Fairview Fire Protection District was last reviewed in an MSR Update by Alameda
LAFCO in 2013.
118 Fairview Fire Protection District Municipal Services Review, November 7, 2013, p.2.
119 Fairview Fire Protection District Strategic Plan 2019-2024, p.1.
120 Fairview Fire Protection District Strategic Plan 2019-2024, p.1.
Ch. 7: Fairview FPD 139
Policy Consulting Associates, LLC
Alameda Fire Municipal Service Review
Public Review Draft
The Fairview Fire Protection District lies in the Fairview and Five Canyons unincorporated
areas just north of the City of Hayward. Most of the area of FFPD is situated in the City of
Hayward's sphere of influence (SOI). The FFPD boundary encompasses about 4.2 square
miles. Figure 7-1 depicts the FFPD's boundaries.
Figure 7-1: Fairview Fire Protection District Boundaries and SOI
Fairview Fire Protection District
Range 02 West Range 01 West
31 32 33 34
§¨¦ 580
Lake
Chabot RdCastro Valley Blv Re d dwood
Rd
Crow Can
C
yo
a
n
s
R
tr
d
o
Valley Blvd 6 §¨¦ 580 5 4 3
§¨¦
UV
238
Grove
5
W
80
ay
Center
St
8 9
10
htuoS
30
pihsnwoT
§¨¦
UV 185
UV 92
A
Miss
0
ion
Blvd
B
East Ave
Fairlands
Rd
HAYFS09
dR
potlliH
Fa
H
irview
Ave
AYFS08
Palomares
Rd
17 16
15
880 0
Winton Ave
CarlosBeeBlvd
Jackson
St
20
21 22
H
0
esperian
Blvd
Harder Rd
UV
238
25
30 29 28 27
Alameda County Legend O Alameda County Fairview Fire Protection District
S L o o ur c ce a : A l la A m g ed e a n
g i D n
L
e i
A
t
c
s e n
F
c
y
n e
C
l d a r
o
a e
F
im l d
o
d e t i r s o
r
: p
m
b T la e h
a
y e u
t
p s i
i
n u e
o
f
M
r d o p
n a
r o f m
p
o s
C
r
C
a e r t
r
s
o
i e
e
o
a
o f n
m
e
t
n
e
r s l e
d
y
m
h n
1
o a c
/7
n w
i
e
s /
d
2
n a
s 0
i n i s
2
s
i
d
3 on kj A A
F
A
F
C
i
d l l o
a r
a a
e
j m
i
m m a
r S
c m
v
e e e
t
d d
i a
u n
e
a a
t
n t
i w o
i C C C t
n
i o i o e
F
t
s
u y s u
i (
n n
r
B
H
t
e
t y o y
a y
u
P
B B
w
n
r
o o d
a o
u u a
r
n
t
n
d
r
e
d i d e
F c
a a s
D
r
t
r y
i
i e
o C
s
n on D tra is c t t) rict
C S o a u n n t F y ranci
S
sco
a
P
C
kj
n
i kj ekj
o
A dE
u
B
M
l m b kj me
n
a
a
o re n
t
A k kjn
t
r
y
ye
e
l ty a O l kjve
o
m a iyl k e le l d a a nd kjSan
kj
L
H
e
a kj
a
y F
n
w r
d
e a m
r
r
o
d o kj n U kjt n N io e n w C a
P
r it k
l
y
C ea o sa nC kj n to t r
A
o D kj au n u
l a
n b C
m
l t i oy n
e
s
d
ta
a C
kj
o
L
u
iv
n
er
t
m
y
ore San Joaquin County
not to be used as an official map. 0 0.375 0.75 1.5Miles Santa Clara County
FFPD, through its direct service provider the Hayward Fire Department (HFD), provides
mutual aid assistance to neighboring jurisdictions and participates in the California Emergency
Management Agency (CAL EMA) strike team to assist the State with wildfires.121
121 Fairview Fire Protection District Municipal Services Review, November 7, 2013, p.2.
Ch. 7: Fairview FPD 140
Policy Consulting Associates, LLC
Alameda Fire Municipal Service Review
Public Review Draft
There are no unserved areas identified in within FFPD's boundaries.
FFPD's SOI was established by LAFCO in 1983 as coterminous with its boundary. In 2013,
following the last MSR, LAFCO approved a provisional coterminous SOI with a condition that
FFPD report back to LAFCO on the status of its strategic plan.122
In November 2014, the Commission confirmed the provisional coterminous SOI, due to
LAFCO's continued concerns that FFPD's strategic plan did not contain any information
about how the plan would be implemented.123 As a condition of the provisional SOI, LAFCO
requested that FFPD report back to the Commission in a year on progress made in
implementing the strategic plan.
In 2016, after a review of FFPD provided information, the Commission confirmed its ongoing
concerns "with the governance and administration of the District, that it failed to adhere to
public agency formalities, lacked necessary administrative policies and procedures, or failed to
follow existing administrative policies and procedures." At that time, given the aforementioned
concerns, the Commission approved the District's request to remove the provisional status of
the coterminous SOI with the following conditions: 124
• Within nine months of LAFCO's approval of a coterminous SOI, the District will
complete a management audit and provide evidence to LAFCO that it has updated its
Policies and Procedures document to include a policy describing the District's
management structure.
• The District will provide evidence to LAFCO that it has updated its Policies and
Procedures document to specify the District's policies and procedures regarding the
provision of fire protection services including the process for selecting and evaluating a
service provider in conformance with the results of the management audit.
• Prior to the expiration of the District's current Fire Protection Services Contract with
the City of Hayward, the District will provide evidence to LAFCO that the
performance of the District's contractors has been evaluated in conformance with the
results of the management audit.
122 Alameda LAFCO Resolution No. 2013-13.
123 Alameda LAFCO Resolution No. 2016-05.
124 Alameda Local Agency Formation Commission, Resolution NO. 2016-05 p.2.
Ch. 7: Fairview FPD 141
Policy Consulting Associates, LLC
Alameda Fire Municipal Service Review
Public Review Draft
• The District will produce an annual report to be distributed to all registered voters and
property owners within the district boundary and posted on the District website to
provide constituents with information about district activities and achievements.
• LAFCO will initiate a municipal services review of the District two years after LAFCO
approval of the coterminous SOI to evaluate the District's administrative structure and
governance transparency, as well as other factors required by Government Code
Section 56430.
The District reports that a letter including the result of the management audit was sent to
LAFCO on 03/01/2017. Additionally, FFPD has made efforts to comply with LAFCO's
conditions set forth in 2016 by adopting appropriate policies and procedures, annually
evaluating its contract service provider, and producing an annual report for residents. The
District continues to prepare an annual newsletter to its constituents reporting on district
activities and achievements.
FFPD received the California Special Districts Leadership Foundation Certificate of
Transparency in 2020 and 2023.
Accountability of a governing body is signified by a combination of several indicators. The
indicators chosen here focus on 1) agency efforts to engage and educate constituents through
outreach activities, in addition to legally required activities such as agenda posting and public
meetings, 2) a website with required content and other useful information, 3) timely ethics
training for board members and an adopted reimbursement policy, 4) a defined complaint
process designed to handle all issues to resolution, 5) adopted bylaws that provide a framework
and direction for governance and administration, 6) adoption of a conflict-of-interest code as
required by law, 7) proper filing of Form 700 by the governing body members, and 8)
transparency of the agency as indicated by cooperation with the MSR process and information
disclosure at meetings, in documents and on a website.
FFPD is governed by a five-member Board of Directors who serve staggered four-year terms.
The Board of Directors must reside within the District and are elected at-large by registered
voters. Any resident of FFPD can participate in meetings, activities, and run for board seats
during election cycles or when a vacancy is created by a resignation. Current board member
names, positions, and term expiration dates are shown in Figure 7-2.
Ch. 7: Fairview FPD 142
Policy Consulting Associates, LLC
Alameda Fire Municipal Service Review
Public Review Draft
Regular Board meetings are held every other month, typically on Monday evenings near the
last Monday of the month. Residents can refer to the meetings and events calendar page on
FFPD's website for board meeting dates. Meeting agendas can be found on the event
calendar, which lists all present and past Board of Director meetings. Agendas are also posted
at all Fire Stations and via email to citizens who are on FFPD's mailing list. Meeting minutes
and videos of the meetings are also archived on the website.
Residents can attend the meeting in person at Station 8, online using the Zoom link, or listen
to the meeting by phone by calling on one of the numbers provided on the agenda packet.
During public comment, each speaker is allowed three minutes. Residents can write the Board
at least one week before the next board meeting to suggest items for the scheduled agenda for
board discussion and deliberation.
Figure 7-2: Fairview FPD Governing Body
governing body
Manner of Selection Elections at large.
Length of Term Staggered 4 years
Every other month, typically on Monday evenings near
the last Monday of the month.
Meetings Fire Station 8
25862 Five Canyons Parkway
Castro Valley CA 94552
Agenda Distribution Posted online, at all fire stations and via email.
Minutes Distribution Posted online.
board members
Member Term Manner of Length of
Name District Position Expiration Selection Term
Board
Member,
Melissa Dimic President 2024 Elected 4 Years
Board
Member, Vice
Michael Justice President 2026 Elected 4 Years
Sarah Choi Board Member 2024 Elected 4 Years
Mark Board Vice
McDaniel President 2024 Elected 4 Years
Board
Robert "Bob" President,
Clark Treasurer 2026 Elected 4 Years
contact
Ch. 7: Fairview FPD 143
Policy Consulting Associates, LLC
Alameda Fire Municipal Service Review
Public Review Draft
Contact Mike Preston, General Manager
Mailing Address 25862 Five Canyons Parkway, Castro Valley, CA
Phone 510-583-4940
Email/Website mike.preston@fairviewfiredistrict.org
FFPD participates in community outreach events through its service agreement with HFD,
including Fire Prevention Week, Great Shakeout (earthquake drills at work, school, or home),
and Community Emergency Response Team (CERT) training classes at no charge to Fairview
& Five Canyons residents. The District also conducts outreach through its annual newsletter.
All five members of the FFPD Board have current filings for Form 700 with the California Fair
Political Practices Commission, indicating transparency with their economic interests.
FFPD has adopted a conflict-of-interest code as lawfully required, and by which the District
must abide.
All complaints concerning FFPD are handled by the General Manager. If of an operational
nature, they are forwarded to the Fire Chief for resolution with General Manager monitoring
contract compliance if relevant. Any member of the public can submit complaints at board
meetings or individually to the FFPD Board President and Directors.
There is also legislation in effect to help ensure special districts adhere to accountability
standards. One, California AB 2257 (Government Code §54954.2) is an update to the Brown
Act and indicates requirements for methods by which an agenda for all meetings should be
made available on an agency's website. Similarly, the Special District Transparency Act of
2018 (SB 929, Government Codes §6270.6 and §53087.8) indicates that special districts have
websites in use by January 1, 2020, per the Brown Act, and requires how the publicly available
information be displayed. FFPD is in compliance with each of these regulations.
FFPD has exceeded these requirements and attained the Certificate of Transparency from the
California Special Districts Association by meeting not only legal mandates but also several
best practices to ensure transparency and accountability to its constituents.
FFPD demonstrated accountability in its disclosure of information and cooperation with the
LAFCO questionnaires and other requests for information.
Ch. 7: Fairview FPD 144
Policy Consulting Associates, LLC
Alameda Fire Municipal Service Review
Public Review Draft
While public sector management standards vary depending on the size and scope of the
organization, there are minimum standards. Well-managed organizations evaluate employees
annually, track employee and agency productivity, periodically review agency performance,
prepare a budget before the beginning of the fiscal year, conduct periodic financial audits to
safeguard the public trust, maintain relatively current financial records, conduct advanced
planning for future service needs, and plan and budget for capital needs.
FFPD states that its mission is to provide rapid, effective responses to fire, medical, and
hazardous material emergencies; to encourage safety and prevention through risk assessment,
education, and outreach.
FFPD employs a part-time general manger to oversee administration of the District. Other
services, such as legal counsel and bookkeeping, are provided by contract. The HFD personnel
manage the day-to-day operations of FFPD, including administrative, and all fire protection and
other services. For more information regarding the HFD and its staffing and management, refer
to Chapter 14.
The Hayward Fire Chief and/or the Chief's designees attend regular FFPD Board meetings to
inform the Directors and the public on emergency responses made and items needing attention
in FFPD. FFPD receives quarterly written reports from the Hayward Fire Chief on significant
emergency incidents, response times, fire prevention activities and standards of coverage
benchmarks in FFPD. FFPD also conducts an annual review of the contract provider's services
rendered. FFPD extended its services contract with the Hayward Fire Department for an
additional five years on July 1, 2021.
While FFPD does not conduct benchmarking with other similar providers, it compiles an annual
newsletter outlining workload metrics of the District for the year, education on services
provided, and reports of achievements and accomplishments. Additionally, the District
conducts an annual review of its contract provider, a component of which is assessment of the
contractor's performance based on identified benchmarks.
FFPD's financial planning efforts include an annually adopted budget and annual audited
financial statements. Additionally, in 2018 the Board established the first Financial Reserve
Policy that secures the financial future of the District. 125
125 Fire Protection Services Contract 2021-2026
https://drive.google.com/file/d/1X5KVZCpGPNXfks5OIVy9J1MnB69ZcteQ/view, p.7.
Ch. 7: Fairview FPD 145
Policy Consulting Associates, LLC
Alameda Fire Municipal Service Review
Public Review Draft
Furthermore, in 2014 the District Board adopted the first Strategic Plan. The most recent five-
year strategic plan was adopted in 2019. The Board reviews this Plan annually as part of its
annual budget process. The General Manager prepares a report by May of each year on the
status of the Board's metrics and strategic tasks, so the Board can update the plan and
propose any tasks to emphasize in the upcoming fiscal year. The Board adopts updates to the
Plan by June each year, so the budget document can reflect any funding changes needed to
complete these tasks.126
All special districts are required to submit annual audits to the County within 12 months of the
completion of the fiscal year unless the County Board of Supervisors has approved a biennial
or five-year schedule. In the case of FFPD, the District must submit audits annually. The
District has submitted its audit to the County for FY 22 within the required 12-month period.
This section discusses the factors affecting service demand, such as land uses, and historical
and anticipated population growth.
FFPD's boundary area is approximately 4.2 square miles. The County is the land use authority
for the unincorporated areas. Land uses within the District are primarily residential.
According to FFPD's 2019-2024 Strategic Plan, the District has approximately 14,000
residents.
According to the Association of Bay Area Governments (ABAG) growth projections for the
East Alameda County superdistrict, which FFPD is in, the average annual growth rate
(AAGR) through 2050 is 1.73 percent. Using the superdistrict's AAGR and FFPD's 2019
population estimates, it is anticipated that FFPD's population will reach roughly $23,825 by
2050.
126 Fairview Fire Protection District Strategic Plan 2019-2024, p.1.
Ch. 7: Fairview FPD 146
Policy Consulting Associates, LLC
Alameda Fire Municipal Service Review
Public Review Draft
FFPD reports that based on the aging of the District's population, there is anticipated growth
in the need for EMS and paramedic services. An increase in population and higher-density
housing has caused an additional increase in call volume. 127
The Hayward Fire Department integrates FFPD's service area into its short- and long-term
planning. FFPD's Board reviews issues identified in HFD's forecasting as part of the annual
review of the District Strategic Plan.128
No present or probable need for public facilities and services of any disadvantaged
unincorporated communities within the existing FFPD SOI was identified since, based on
Census Designated Places, Alameda LAFCO has determined that Alameda County had no
disadvantaged unincorporated communities that met the basic state-mandated criteria.
FFPD has the financial ability to continue to provide services. The District has maintained a
high level of reserves, and until recently has received revenues exceeding expenditures. The
District has no long-term debt or pension obligations.
The District has generally balanced its budget and created a surplus to augment its reserves;
as reported by the District, its budget "is approved annually by Board and does not exceed
projected revenues for same year. Any unplanned expenditures outside this budget plan must
be approved by Board. District has long history of ending each fiscal year with budget
surplus."129 The FY2021-22 adopted budget showed a minor projected shortfall of ($76,000).
Historically, property taxes "provide most of the funding for the FFPD, with other revenue
sources including a special tax for basic emergency medical services (EMS), a First Responder
Advanced Life Support reimbursement, and interest income."130 The EMS tax rate was $5.29
127 Fairview Fire Protection District, SoGo Survey Responses, November 2021.
128 Fairview Fire Protection District, SoGo Survey Responses, November 2021.
129 Response to Alameda Fire and EMS MSR Follow-up Questionnaire.
130 FFPD website, accessed 7/6/2022 at https://www.fairviewfiredistrict.org/.
Ch. 7: Fairview FPD 147
Policy Consulting Associates, LLC
Alameda Fire Municipal Service Review
Public Review Draft
per parcel adjusted annually by the change in Bay Area CPI; the tax was established by voter
approval of Measure P in June of 1997.131 The First Responder Advance Life Support
reimbursement was terminated countywide in 2018 or 2019.
Revenue growth averaged about 2.5 percent from FY2017-18 through FY2021-22 slightly below
expenditure growth over the period averaging 4.3 percent.
The District prepares long-term budget forecasts as part of its strategic planning process. The
District has implemented several cost containment strategies including "integrated ceiling to
annual inflation adjusted cost increases in contract for service with Hayward Fire Department.
Restructured Insurance portfolio to reduce annual premiums 40 percent. Eliminated cost for
dispatch service provided by County while maintaining service."132
The District fully funds its reserve targets. The District has adopted a policy of assigning funds
into an operating reserve equaling 10 percent of its operating budget and an emergency
reserve equaling 85 percent of its operating budget.133 Both reserves are currently fully funded.
The funded amounts represent a high level of reserves. The District notes that "a Capital
Replacement plan is funded annually by contribution outlined in annual budget to replace all
equipment and facilities when needed."134
The District provides no pensions or OPEB, but contracts with the City of Hayward for fire
protection services which include employee pensions and OPEB.
The District has no leases or long-term debt.
The District's total asset value of $2.7 million at the end of FY2020-21 consists primarily of
vehicles and equipment; depreciation has reduced net capital asset value to $1.2 million, or
about 44 percent of total value indicating aging of its assets.
131 Response to Alameda Fire and EMS MSR Follow-up Questionnaire.
132 Response to Alameda Fire and EMS MSR Follow-up Questionnaire.
133 FFPD Basic Financial Statements, June 30, 2021, pg. 5.
134 Response to Alameda Fire and EMS MSR Follow-up Questionnaire.
Ch. 7: Fairview FPD 148
Policy Consulting Associates, LLC
Alameda Fire Municipal Service Review
Public Review Draft
FFPD contracts with the City of Hayward to provide fire protection, hazardous materials
removal, emergency medical and paramedic services, auto accident rescue, natural disasters
rescue, safe surrender service, and animal rescue within the boundaries of FFPD. Under the
contract, HFD also takes care of weed abatement throughout all visible land within the FFPD
boundary area.
Prior to the contract with Hayward in 1993, first response to structure fires in FFPD was
provided by the District itself with two fire engines and a volunteer force, often requesting
mutual aid from the City of Hayward. FFPD did not have sufficient resources to provide its
own services. By contracting with the City of Hayward, fire service was reported to have
greatly improved due to full access to HFD's resources. Figure 7-3 details the services
provided by the HFD. If another agency offers a service, it is indicated in the figure.
Figure 7-3: Fairview FPD Services
service agency
fire suppression services
Structural Fire Protection City of Hayward Fire Department
Wildland Fire Protection City of Hayward Fire Department
Vehicle Fire Protection City of Hayward Fire Department
Ladder Truck Capabilities City of Hayward Fire Department
Fire Suppression Hand Crew CAL FIRE
Fire Suppression Dozer Alameda County Fire Department
Helicopter Services – Fire Suppression CAL FIRE
Boat With Fire Suppression Capabilities N/A
emergency medical services
Basic Life Support Provider N/A
Advanced Life Support – Non-Transport Provider City of Hayward Fire Department
Advanced Life Support Transport Provider Falck Ambulance
Continuing Education Provider – Medical City of Hayward Fire Department
Air Ambulance Transport Helicopter Services Calstar
Ch. 7: Fairview FPD 149
Policy Consulting Associates, LLC
Alameda Fire Municipal Service Review
Public Review Draft
Helicopter Landing Facilities On Site N/A
Vehicle Extrication Tools/Equipment City of Hayward Fire Department
fire prevention
Fire Safety Education – Children City of Hayward Fire Department
Fire Safety Education – Adults/Seniors City of Hayward Fire Department
Juvenile Firesetter Prevention Program City of Hayward Fire Department
Fire and Life Safety Business Inspection Program City of Hayward Fire Department
Fire Protection Planning City of Hayward Fire Department
New Commercial Construction Plan Reviews City of Hayward Fire Department
Public Education Provider (CPR, First Aid, etc.) City of Hayward Fire Department
Home Fire/Safety Inspections City of Hayward Fire Department
Fire Origin and Cause Investigations City of Hayward Fire Department
Fuel Reduction/Weed Abatement Program City of Hayward Fire Department
Smoke Detector Giveaway/Installation Program City of Hayward Fire Department
Address Sign Installation Program N/A
rescue services
Fires Responder Swift Water Rescue Program City of Hayward Fire Department
Water Rescue Program City of Hayward Fire Department
Ice Rescue Program N/A
Dive Rescue Program N/A
Low angle Rope Rescue Program City of Hayward Fire Department
Helicopter Short/Long Haul Rescue Capabilities CAL FIRE/California Highway Patrol
Response to Boating Accidents City of Hayward Fire Department
Rescue Dog Services City of Hayward Fire Department
hazardous materials
Hazardous Materials Emergency Response –
Basic City of Hayward Fire Department
Hazardous Materials Response Team Alameda County Fire Department
support services
Firefighter Incident Support Unit City of Hayward Fire Department
Mobile Incident Command/Communications
Unit City of Hayward Fire Department
Fill Station for Self-Contained Breathing
Apparatus City of Hayward Fire Department
Mobile Breathing Support Unit City of Hayward Fire Department
Community Emergency Response Team City of Hayward Fire Department
Ch. 7: Fairview FPD 150
Policy Consulting Associates, LLC
Alameda Fire Municipal Service Review
Public Review Draft
Chaplain Services N/A
Training Academy City of Hayward Fire Department
Emergency Operations Center Capabilities City of Hayward Fire Department
miscellaneous
Public Service Assists City of Hayward Fire Department
Motor Vehicle Accident Response City of Hayward Fire Department
Welfare Checks City of Hayward Fire Department
Alameda County Sheriff's
Public Safety Answering Point Department
Fire/EMS Dispatch City of Hayward Fire Department
Fundraising Activities N/A
Firefighters Association – Non-Profit City of Hayward Fire Department
Auxiliary Association N/A
Refer to Chapter 14 for details on existing City of Hayward Fire Department collaborations.
The California Department of Forestry and Fire Protection (CAL FIRE) augments fire services
throughout the State. Generally, CAL FIRE focuses its services on wildland areas defined as
State Responsibility Areas (SRA). For FFPD, much of the area is designated as a high fire
hazard severity zone, which is a SRA and served by CalFire.135
In 2020, there were approximately 870 calls for service within FFPD. Of those, 664 or 76
percent were for emergency medical services. The remainder involved fire, motor vehicle, false
alarm, and other types of incidents. Figure 7-4 shows calls received by type.
From 2013-2020, the number of service calls have been increasing steadily before slightly
decreasing in 2020 compared to 2019, from 909 to 870 calls. The highest number of service
calls was received in 2019 (909), while 2013 had the lowest number of service calls (636).
Figure 7-5 illustrates the total number of service calls received within FFPD during 2013-2022.
Figure 7-4: FFPD Calls by Type
135 Alameda County State Responsibility Area Fire Hazard Severity Zones. November 21, 2022.
Ch. 7: Fairview FPD 151
Policy Consulting Associates, LLC
Alameda Fire Municipal Service Review
Public Review Draft
2020 fire and emergency service calls by type
Fire /
Motor False Hazardous Misc. Misc. Non- Total
EMS Vehicle Alarm Material Emergencies Emergencies Calls
FFPD 664 9 55 31 29 82 870
Figure 7-5: FFPD Service for Services (2013-2020)
fire and emergency service calls 2013-2020
2013 2014 2015 2016 2017 2018 2019 2020
FFPD 636 663 650 704 711 826 909 870
The minimum staffing levels at each station is three personnel — one Captain, one Apparatus
Operator, and one Firefighter. At least one of the personnel is an accredited paramedic.
. For training levels and requirements for firefighters, refer to the City of Hayward's section in
Chapter 14.
FFPD is primarily served by Fire Station 8 located in Five Canyons which is staffed by the
City of Hayward. In 2000 the County adopted a resolution requiring the District to staff a
seasonal Fire Station and install an Emergency Vehicular Access (EVA) from Star Ridge Rd to
Hackamore before the title would be transferred to the District. FFPD argued it had met the
intent of those requirements by the existence of full-time Fire Station 9 on Second St. The
County disagreed and retained title to the station and leases it to the district for $1 per year.
The station was built in 2000 and is in good condition. In 2010, a solar array was installed to
the rear of Fire Station 8 which allows FFPD to "sell back" unused electricity to PG&E. Fire
Station 8 houses a Type III engine and a Type I engine owned by FFPD. Fire Station 8 also
serves as the FFPD Board room.
HFD staffs a second fire station, Station 9, in the District located at 24912 Second Street,
Hayward, CA just inside of FFPD boundaries. Its strategic location, according to FFPD and
the Hayward Fire Chief, increases the service level and response capabilities within the District
by about 25 to 35 percent.
Ch. 7: Fairview FPD 152
Policy Consulting Associates, LLC
Alameda Fire Municipal Service Review
Public Review Draft
In addition, FFPD still has ownership of its old fire station on Fairview Avenue built in 1938,
which is currently inactive. The old station is not staffed and is used primarily for equipment
storage and training.
The Fairview Fire Protection District owns the following six firefighting vehicles, and the
Hayward Fire Department provides maintenance.
• Engine 605 Type VI – 2008 Ford F550 4 x 4 at FS2 reserve
• Engine 609 Type VI – 2020 Ford 550 4 x 4 at FS9
• Engine 308 2020 Type III Engine, International/Boise Mobile Equipment at FS8
• Engine 8 2014/Type I Engine/Pumper, Manufacturer: Seagrave at FS8
• Engine 303 2009 Type III Engine, Westmark/International at FS3 reserve
• Ranger Crew XP 1000, 2021 Polaris (off-road rescue) at FS8
Figure 7-6: FFPD Facilities
fairview fire protection district facilities
Facility Address Owner Year Built Condition
25862 Five Canyons
Parkway, Hayward,
Station 8 CA 94552 City of Hayward 1998 Good
24912 Second Street,
Station 9 Hayward, CA 94541 City of Hayward 1998 Fair
24200 Fairview
Avenue, Hayward
Old Station 8 CA, 945411 City of Hayward 1938 Poor
There are a few ways FFPD utilizes its social media outlets, Twitter and Facebook, to
communicate with residents and transmit important health and safety information. FFPD also
uses AC Alert, a unified system for Alameda County residents, which provides critical
information quickly in various situations, such as earthquakes, fires, severe weather, unexpected
road closures, missing persons, and evacuations of buildings or neighborhoods. AC Alert has
replaced the CodeRED alert system in Hayward and the Fairview Fire Protection District
effective July 1, 2019.136
136 AC Alert – New Mass Alert System, https://www.fairviewfiredistrict.org/sign-up-emergency-notifications/August 09, 2020.
Ch. 7: Fairview FPD 153
Policy Consulting Associates, LLC
Alameda Fire Municipal Service Review
Public Review Draft
Additionally, in 2017, FFPD launched a new WordPress mobile-friendly website that includes an
entire "Community Resources" section for residents to find relevant information related to
emergency services and disaster preparation.
The Primary PSAP (Public Safety Answering Point) is by state law the answering point of the
agency providing law enforcement service. Thus, the PSAP for FFPD is Alameda County
Sheriff's Department because the Sheriff provides law enforcement service to the area.
ACCREC is a Secondary PSAP.
If the call is medical-related, it is transferred to ACCREC (for emergency medical instructions
and Ambulance dispatch) & the Hayward Police Department (the PSAP for HFD to get a fire
department response). The Hayward Police Department may also transfer caller information it
gathers to ACCREC. If the call is not medical, it is transferred to HPD for the fire department
response.
FFPD practices facility sharing through its contract with the HFD, which makes use of the
District's facilities and vehicles in the provision of services within its boundaries. The District has
not identified any future opportunities for further facility sharing.
FFPD did not report any infrastructure needs. However, HFD reported that upgrades
estimated to cost around four to six million are needed at Station 8. The District reports this
upgrade will be funded by the Capital Replacement fund which receives an annual contribution
from the budget.
According to the FY 23 adopted final budget, the District has a capital budget of $409,821 for
apparatus replacement, equipment replacement, and facility capital improvements. Furthermore,
the adopted budget includes a budget of $5,000 for upkeeping the old Fire Station 8.137
HFD also indicated that Station 9 needs to be replaced with an industry-standard fire station
at the same location. 138 FFPD has no financial responsibility for Station 9.
137 Annual District Budget-FY2022/23, p.1-2.
138 City of Hayward, SoGo Survey Responses, November 2021.
Ch. 7: Fairview FPD 154
Policy Consulting Associates, LLC
Alameda Fire Municipal Service Review
Public Review Draft
Refer to the City of Hayward Fire Department section in Chapter 14 for detailed discussions
about the various challenges reported by the Department.
This section reviews indicators of service adequacy, including response times, ISO rating, and
complaints received. There are many measures of a successful fire protection service. For
example, the agency would meet guidelines established by the National Fire Protection
Association (NFPA), the Center for Public Safety Excellence (CPSE) (formerly the
Commission on Fire Accreditation International), and the California EMS Agency. There are
also Public Protection Classifications (PPC) and Insurance Services Office (ISO) ratings that
likewise establish an agency's level of service. The applicable response time measure for the
City of Hayward and thus FFPD is shown in Figure 7-7.
Figure 7-7: FFPD Response Time Policy
response time policy for ffpd
Agency Name Single Unit Incident
FFPD Arrive at the scene within 5 minutes and 50 seconds of a 9-1-1 call 90 percent
of the time. The first alarm assignment arrives in 8 minutes.
The District utilizes the National Fire Protection Association (NFPA) 1710 Standard
requirement for the first unit to arrive on scene within five minutes and 50 seconds of dispatch,
90 percent of the time, while the first alarm assigns the time the dispatch center alerts the
responding units to the time resources are on scene. According to FFPD, response times are
measured monthly and reported by Hayward at each Regular FFPD Board Meeting.139 As of
2020, response times for Engine 8 was 3 minutes 38 seconds, while Engine 9 had a response
time of 3 minutes 17 seconds, indicating that FFPD, through HFD service delivery, is meeting
the established response time goals.
The Insurance Service Office (ISO) classifies fire services in the communities as an indicator of
the general adequacy of coverage. Communities with the best fire department facilities,
systems for water distribution, fire alarms and communications, and equipment and personnel
receive a rating of 1. FFPD has an ISO rating of 2.
The Department did not provide information as to whether any complaints regarding fire
service were received in FY 21.
139 FFPD Fire Services Provider Evaluation. p.1.
Ch. 7: Fairview FPD 155
Policy Consulting Associates, LLC
Alameda Fire Municipal Service Review
Public Review Draft
The Fairview Fire Protection District (FFPD) provided direct fire and paramedic service to the
unincorporated Fairview community for 55 years and has relied on contract service since 1993.
The independent special district was formed in 1938. Since contracting with the City of
Hayward for fire and paramedic services in 1993, the District has not provided direct fire
services. In 1996, LAFCO commissioned an independent study to review the Fairview Fire
Protection District, along with various governmental structure options. That report found: 1) the
two services providers (City of Hayward and ACFD) were generally comparable in terms of
fire protection service capabilities in the Fairview area; 2) the emergency medical service
differential (in 1996) weighted the reorganization decision in favor of the ACFD; 3) District
dissolution would not significantly inhibit practical public access and input to decisions actually
affecting service costs and service levels in the Fairview area; and 4) the public service costs
were substantially similar under either organization. Subsequently, the issue of dissolution was
submitted to the voters as an advisory measure. The Advisory ballot measure gave voters two
options — dissolution and ACFD becoming service provider or no dissolution, which would
result in FFPD continuing its contract with HFD. The Directors had previously opted to
contract with HFD as they had begun to implement Paramedic services and were logistically
better positioned to serve the area. District voters rejected the dissolution measure in 1996.140
Reorganization of Fairview FPD continues to be an option, although multiple prior reviews of
reorganization did not result in any changes in organization. The district remains the sole
independent fire protection district in the County and contracts out for services with the City of
Hayward Fire Department. When last reviewed in 2013, district residents were vocally opposed
to the consideration of reorganization. Because the District does not provide any direct services
but rather administers a contract for service provision, certain operating and administrative
expenses could be avoided by dissolving FFPD and having another existing service provider
take on governance and operations of fire service in the area. The most feasible and likely
most beneficial option is the annexation of FFPD's territory by ACFD and continued contract
services by the City of Hayward. Residents could retain the service provider they prefer, and
savings could be achieved with a management layer and election costs eliminated through
government reorganization.
During the 2013-2016 MSR and SOI updated process for FFPD, several deficiencies and
concerns were identified by LAFCO resulting in conditions placed on the most recent
140 Alameda LAFCO, Public Safety MSR, 2004, p. 72.
Ch. 7: Fairview FPD 156
Policy Consulting Associates, LLC
Alameda Fire Municipal Service Review
Public Review Draft
affirmation of the District's coterminous SOI in 2016. Alameda LAFCO commission had
expressed concerns about FFPD's governance and administration of the District, indicating that
upon reviewing several of the District's documents that it failed to adhere to public agency
formalities, lacked necessary administrative policies and procedures, or failed to follow existing
administrative policies and procedures. As a result, the Commission approved the current
coterminous SOI with various conditions, including requiring the management audit, retaining
professional staff, determining criteria for selecting and evaluating contractors, including the fire
services provider, adopting and distributing to the public an annual report, and reporting back
to LAFCO six months after adoption of the SOI resolution.
It appears as though the District has met all of the conditions outlined by LAFCO at that
time. The District has made great efforts to greatly enhance the level of services provided and
highlight the value added by FFPD's service structure.
This report reaffirms that there are duplications of governance and management efforts as
identified in 2013. However, with the improvements made over the last decade, there does not
appear to be an impetus to dissolution at this time if the District's residents do not support it.
Ch. 7: Fairview FPD 157
Policy Consulting Associates, LLC
Alameda Fire Municipal Service Review
Public Review Draft
7-1: According to Fairview Fire Protection District's (FFPD's) 2019-2024 Strategic Plan, the
District has approximately 14,000 residents.
7-2: Based on the East Alameda County superdistrict population AAGR and FFPD's 2019
population estimates, the population within FFPD is anticipated to reach 14,075 by
2050.
7-3: FFPD does not have any Census Designated Places that meet the LAFCO-adopted
policy defining DUCs within or contiguous to its SOI.
7-4: Given the low response times within FFPD's service area, it is apparent that the
existing staffing, facility, and financial capacity satisfy the needs of the community and
will accommodate the minimal anticipated growth.
7-5: Based on quarterly and annual reports provided by HFD, FFPD's annual review of its
contractor, response times, and the ISO rating, FFPD's level of service is considered
adequate.
7-6: HFD reported that upgrades estimated to cost around four to six million are needed
at Station 8 and Station 9 needs to be replaced with an industry-standard fire station.
Neither the source of financing nor the timeline was identified to address these needs.
The District has a capital budget for FY 23 of $409,821 for apparatus replacement,
equipment replacement, and facility capital improvements.
7-7: FFPD has the financial ability to continue to provide services. Although expenditures
have been growing at a rate slightly above revenue growth, the District has
maintained a high level of operating, emergency, and capital reserves.
7-8: FFPD practices facility sharing through its contract with the HFD, which makes use of
the District's facilities and vehicles in the provision of services within its boundaries.
7-9: FFPD has not identified any further facility-sharing opportunities.
Ch. 7: Fairview FPD 158
Policy Consulting Associates, LLC
Alameda Fire Municipal Service Review
Public Review Draft
7-10: It is recommended that the Department join fellow Alameda fire providers to develop
a regional, countywide dispatch strategy that employs the closest resource for the
fastest response time, regardless of agency boundaries or responsibility.
7-11: FFPD abides by all legislative obligations for accountability and governance practices.
7-12: FFPD demonstrated transparency when sharing information to create this report.
7-13: Regarding governance structure alternative for FFPD, last reviews have identified
duplication of governance and administration for the area.
7-14: During the last MSR and SOI Update (2013-2016), the LAFCO Commission
identified management concerns regarding FFPD's governance and administration
and outlined several requirements upon SOI resolution. FFPD has made efforts to
address these concerns including updating its Policies and Procedures to include Fire
Services Provider Evaluation policy, Purchasing and Procurement policy, and
Governance policy. Additionally, FFPD prepares an annual newsletter to its
constituents reporting on district activities and achievements.
7-15: While this review affirms governance duplications, there does not appear to be an
impetus to pursue the dissolution of the district unless otherwise supported by the
residents.
Ch. 7: Fairview FPD 159
Policy Consulting Associates, LLC
Alameda Fire Municipal Service Review
Public Review Draft
The City of Alameda provides a full suite of municipal services to its constituents, including fire
suppression and emergency medical services.
The City is located in the East Bay region of the San Francisco Bay area, approximately seven
miles east of San Francisco. It is seated south of the City of Oakland, across the
Oakland/Alameda Estuary.
Beginning in the late 1840s, the California Gold Rush spurred the arrival of many new
residents to this region, including what would become the City of Alameda. Originally, the City
was part of a peninsula that had been purchased by two entrepreneurs. At that time, they
then decided to sell this land as residential tracts and orchards. Throughout this transformation,
the Town of Alameda was one of three settlements which were established. Alameda was in
the east, with Encinal in the center of the peninsula and Woodstock in the west.
By 1954, the Town of Alameda became a charter city and together, the three settlements were
incorporated in 1872 under one local government.
Throughout the 1860s, the population in the area began to grow with the arrival of a
passenger train, subsequently contributing to a thriving downtown, visitors to beach resorts, and
the rise of other commercial districts. In 1902, the Tidal Canal was dredged which turned the
City of Alameda into an island and increased water transportation access. This also impacted
the area's industrial development as shipyards were constructed in coastal areas.
Today, the City of Alameda is a flourishing, mixed-use community with a population of roughly
78,000 people.
This MSR for the City of Alameda exclusively discusses fire protection, emergency medical,
and related services. The City was included in an MSR Update by Alameda LAFCO that was
adopted in 2018. There was also a Countywide MSR update for water, wastewater, flood
control and stormwater services completed in 2021.
Ch. 8: City of Alameda 160
Policy Consulting Associates, LLC
Alameda Fire Municipal Service Review
Public Review Draft
The City of Alameda encompasses 10.61 square miles, including Alameda Island and Bay
Farm Island. It is an island city in the San Francisco Bay, approximately seven miles east of
the City of San Francisco, and is separated from the mainland by an estuary. It is directly west
of Interstate 880 and less than one mile south of the City of Oakland. Bay Farm Island is
adjacent to the Oakland International Airport, which creates the City's southeast boundary.
Bay Farm Island is technically a peninsula and is also bordered by the estuary in the east and
the San Leandro Bay to the north. Figure 8-1 depicts the City's boundaries, which are
coterminous with the service area for fire suppression and emergency response.
Figure 8-1: City of Alameda Boundaries and SOI
City of Alameda
Range 04 West Range 03 West
htuoS 10 pihsnwoT £¤ 101 L C o a G m 1 B l 0 i e t a M f b h a o y a a S r r r t y r k S n d C e i t S t o a S S l t u S t t m t bus 3 r A d v S e t 1st St UV 280 §¨¦ 80 0 Marit M im id A d e l S L e t 7 A 0 t H F h a S S rb t 0 0 G o 5 r ra M R A n ai d d t n S L A A A v F tl e a S n 0 t E i 2 m c Mar k b e A t S a t v rc e a P d a e B c r §¨¦ r o o i 9 a f d i 8 w 7 c a t 0 y h A S v t e Lakeshore S A 0 a A n v L ta e 0 C A lar 1 a F 3 A S v t e h 0 A 3 ve M 1 a 1 4 4 n th t d h P S a t A n i a v e 2 e 3 B rd d A lv v P e m d a F r ru k it o v a B le A n l v v e d t L 3 in 5 §¨¦ c t 5 h ol 8 n A A 0 v H v e e igh M S ac t arth UV ur 1 B 3 lvd 22 34 27 23 3 S 2 2 5 6 3P k i y n li e n h e u B r 0 s l 2 2 v t 6 d Rd 24 25 36 1 2 0 5
htuoS 20 pihsnwoT C 0 e F s e a tS noissiM l r t o C n
0
0 h ve A ss N n e Va S av t ez £¤ 1 S evA orertoP 0 t 1 Bay
0
ShoreBlvd Oakd §¨¦ a 2 le 8 E A 0 v v a e ns Av
0
e 0 0 S 0 0 an C F o r u a n n t c y isco
Centra
A lA la ve me O d tis a Dr A A L L A A F F S S 0 0 V I 4 e 1 sl r a s P n a a d i r l D k H le r S i s g t M A h a v i t S l e an t d M Dr arin 0 a D Ha r rbor Bay Pky
A
UV
i
6
r
S
p
1 a
o
n
r
L
t
§¨¦ e 8
D
a 0 n
r
8 d H r 0 o eg e S nb t erger Rd Footh
0
ill
D
B
oo
7
l
0
i
l
t
3
t
v
le
r
D
d d
r
O A UV 1 ve a 8 98 5
M
k th
a
l A
r
a
i UV n
ve
a
n
6 1 B
d B S
l
a
v
n a c
d
n rof L t A ea v
n
e
droBlvd
Du
W
t
a
t
s
o
hin
n
gto n
A
A
K
v
v
e
e e ller Ave
0
Alameda County Legend O Alameda County City of Alameda
S L o o ur c ce a : A l la A m g ed e a n
g i D n
L
e i
A
t
c
s e n
F
c
y
n e
C
l d a r
o
a e
F
im l d
o
d e t i r s o
r
: p
m
b T la e h
a
y e u
t
p s i
i
n u e
o
f
M
r d o p
n a
r o f m
p
o s
C
r
C
a e r t
r
s
o
i e
e
o
a
o f n
m
e
t
n
e
r s l e
d
y
m
h
1
n o a
/
c
7
n w
i
e
/ s 2
d n
0
a
s
i
2
n i s s
3 i
d
on kj A A
F
A
C
C
i
d l l o
r i
a a
t e
j m m m a
y S
c m e e e
o t
d d
a
u n
f
a a
t
n t
i A o
i C C C t
n
i
l
o i o e
a
t
s
u y s u
m
n n B t t
e
y o y u
d
B B n
a
o o d u u a n n r d i d e a a s r r y ies C S o a u n n t F y ranci
S
sco
a
P
C
kj
n
i kj ekj
o
A dE
u
B
M
l m b kj me
n
a
a
o re n
t
A k kjn
t
r
y
ye
e
l ty a O l kjve
o
m a iyl k e le l d a a nd kjSan
kj
L
H
e
a kj
a
y F
n
w r
d
e a m
r
r
o C
d o kj n
o
U kjt
n
n
C
N i
t
o
o
e
r
n w
au
C a
n P C
r it k
t l
y
e oy a s s t a kj a nt
A
o D kjn u
la
b
m
lin
eda C
kj
o
L
u
iv
n
er
t
m
y
ore San Joaquin County
not to be used as an official map. 0 0.5 1 2Miles Santa Clara County
The City of Alameda does not provide services outside of its boundaries. It does, however,
have mutual and automatic aid agreements within and outside of the County for fire protection
and emergency service response.
Ch. 8: City of Alameda 161
Policy Consulting Associates, LLC
Alameda Fire Municipal Service Review
Public Review Draft
There are no unserved areas identified in the City of Alameda. The City is able to provide
service throughout its bounds.
During the last SOI Update in 2018, the LAFCO expanded the City of Alameda's sphere of
influence to include a small portion of the City and County of San Francisco that is contiguous
to the City of Alameda rather than that of San Francisco, which is across the Bay, as shown
in Figure 8-2. At the time of the update, LAFCO recommended that the City and County of
San Francisco pursue a reorganization of the territory to reflect a County boundary change
that would allow for it to be annexed to the City of Alameda in the future.
Figure 8-2: City of Alameda Boundaries and SOI
MIDDLE HARBOR RD
MAIN ST
3RD 5 S T T H ST BRUSH ST
BUEN
WEBSTER ST
A
FR A
V
N PO K
I
L S
S
I E N Y
T
S T T U
A
B 7 E
A
TH
V
S 1 T 2
A
T M
T
H A 1
L
DI 4 S
A
S O T O N
N
T A H S K
T
T S S
I
T
C
T
AV
LAK E E 1 S 1 H TH O S R T E AV E E 1 M 2T A B H F T A O S H R O T 5 O T C T H H L A IL A A D L E V V B E 1 L 8 R T O H ST P 13 A T R H K AV BL E
23 RD
2
A
1
V
E 1 4 1 S 2 9 T T 0 T H T H S H A T A V S V T E 27 BE T AUM H ON T S AV T FRUITVAL D E A A V VI H S A S R T
3
O
8
L
T
3
H
D 5
A
T S
V
H T AV CO 5 OL 8 ID 0 GE AV CALIF
M
O
O
RN
N
M I
T
A A C
I C
S AR
E
T T
L
H
L
U
O
R
A
BL
V 8TH ST A WESTLINE DR lamed S a HORE G L R I A N L N I E D N S C D T E O N R W L C IL N S I L N O A A W A V N S L T T O S A C A P W T V E A A E C I L S C A N N L U I V D T T A F S R R I R I T E C A A W L A A V A V P V W PARK S B T RO V A E D R W S A A Y IL B LE L S A E A N V 7 D T IN H G S F A T E V RNSIDE BL 880 HIGH ST OAKPORT ST S B A C O O N N L L IS D E E A I U N S N 6 M Z T T D 6 H W E R T O Y O R H 5 N 0 E N T S A H W T A V A Y T V IONAL BL 55 S T E H M A I V NARY AV
KOFMAN S P H W
M
EF
E
F
C
IE
AR
LD
T N
R
E
D
Y RDISLAND DR MAITLAND
DR
HARBOR BAY
PW DOOLITTLE
DR
HEGENBERGER RD
98TH AV
AIRPORT DR
Oakland
San Leandro
Oakland
Ch. 8: City of Alameda 162
Policy Consulting Associates, LLC
PL ERAUQS RENIRAM
City Limits and Modified Sphere of Influence Boundaries for
Exhibit A the City of Alameda
3RD ST 7TH ST 5T 8 H T H S T ST E 20TH ST GLEN P A AR R K D R L D EY AV LINCOLN AV EMBARCADERO 15TH AV 23RD AV E 20TH ST COOLIDGE AV NEVIL ST SUTER ST
POGGI ST LINCOLN AV MOZART ST LINCOLN AV EMBARCADERO 42ND AV TILDEN WY Map Extent 66TH AV BROADWAY OAKPORT
ST
Other Major Streets and Roads Highways
City of Alameda
City of Alameda SOI
Cities
Alameda County Boundary
Date: July 2017
Source: Alameda County LAFCo
0 0.5 1 2
Miles
Alameda Fire Municipal Service Review
Public Review Draft
Accountability of a governing body is signified by a combination of several indicators. The
indicators chosen here focus on 1) agency efforts to engage and educate constituents through
outreach activities, in addition to legally required activities such as agenda posting and public
meetings, 2) a website with required content and other useful information, 3) timely ethics
training for board/councils members and an adopted reimbursement policy, 4) a defined
complaint process designed to handle all issues to resolution, 5) adopted bylaws that provide a
framework and direction for governance and administration, 6) adoption of a conflict-of-interest
code as required by law, 7) proper filing of Form 700 by the governing body members, and 8)
transparency of the agency as indicated by cooperation with the MSR process and information
disclosure at meetings, in documents and on a website.
The City of Alameda has a government structure with a City Manager, an elected mayor and
four council members who serve staggered four-year terms on the City Council. Current
council member names, positions, and term expiration dates are shown in Figure 8-3.
The City Council meets every first and third Tuesday of the month at 7:00pm in the City Hall
Council Chambers. Agendas for each weekly meeting, board actions and meeting minutes are
available at the City Clerk's office and online. Through the City's website, the public has
access to the meetings via livestream or archived videos for viewing online at their convenience.
Figure 8-3: City of Alameda Governing Body
governing body
Manner of Selection Elections at large.
Length of Term 4 years
1st and 3rd Tuesday of the month at 7pm
City Hall
2263 Santa Clara Ave.
Meetings
Council Chambers
3rd Floor
Alameda, CA 94501
Agenda Distribution Posted online and at the City Clerk's office.
Minutes Distribution Posted online.
city council members
Member Term Manner of
Name Position Expiration Selection Length of Term
Marilyn Ezzy
Ashcraft Mayor 2026 Elected 4 Years
Tony Daysog Vice Mayor 2026 Elected 4 Years
Ch. 8: City of Alameda 163
Policy Consulting Associates, LLC
Alameda Fire Municipal Service Review
Public Review Draft
Tracy Jensen Councilmember 2026 Elected 4 Years
Trish Herrera
Spencer Councilmember 2024 Elected 4 Years
Malia Vella Councilmember 2024 Elected 4 Years
contact
Contact Cody Moxley, Division Chief
Mailing Address 1300 Park St., Alameda, CA 94501
Phone 510-755-7006
Email/Website cmoxley@alamedaca.gov, alamedaca.gov
The City of Alameda participates in community outreach events such as annual city festivals,
holiday activities, job fairs, and community educational programs. The City's Fire Department
also takes part in specific fire prevention and emergency safety programs available to City of
Alameda residents as well.
All five members of the City of Alameda's City Council have current filings for Form 700 with
the California Fair Political Practices Commission, indicating transparency with their economic
interests.
There is also a conflict-of-interest code, and bylaws, outlined in the municipal code as lawfully
required.
All complaints concerning the City of Alameda or any of its employees are investigated, and a
response is provided to the complainant. Constituents are able to file complaints in a number
of ways, including online, through the SeeClickFix program, and by phone. All complaints are
handled by the appropriate department and overseen by the City Manager as needed.
There is legislation in effect to help ensure public agencies adhere to accountability standards.
California AB 2257 (Government Code §54954.2) is an update to the Brown Act and
indicates requirements for methods by which an agenda for all meetings should be made
available on an agency's website, such as linking directly to City Council agendas without the
use of secondary links or drop-down menus. The City of Alameda complies these regulations.
The City of Alameda demonstrated accountability in its disclosure of information and
cooperation with the LAFCO questionnaires and other requests for information.
Ch. 8: City of Alameda 164
Policy Consulting Associates, LLC
Alameda Fire Municipal Service Review
Public Review Draft
While public sector management standards vary depending on the size and scope of the
organization, there are minimum standards. Well-managed organizations evaluate employees
annually, track employee and agency productivity, periodically review agency performance,
prepare a budget before the beginning of the fiscal year, conduct periodic financial audits to
safeguard the public trust, maintain relatively current financial records, conduct advanced
planning for future service needs, and plan and budget for capital needs.
The City accounts for its fire and emergency services in a number of its planning and
management documents, particularly in the annual budget and General Plan.
The City develops a biennial budget, overseen by the City Manager's office and the Finance
Department, with input from each department, including the Fire Department. The budget
process is intended to reflect departmental goals as well as existing and proposed service levels
and follows general accounting best practices.
The Fire Chief oversees the following six divisions, providing leadership and management
overall: Administration, Emergency Operations, Emergency Medical Services, Training, Disaster
Preparedness, and Fire Prevention.
The Administration Division of the Fire Department, under the Fire Chief's lead, is responsible
for personnel and finances. It is the ultimately the Fire Chief's duty to foster employee
development and provide direction for the department and evaluating its effectiveness. The
City has indicated that staff performance appraisals are conducted annually and that they
have been completed for FY 23.
To ensure fire service efficiency and effectiveness, the City of Alameda Fire Department (AFD)
has set general policy goals and objectives in its planning documents. AFD aims to provide
emergency response and incident management for fires, rescues, medical emergencies,
hazardous materials incidents, and disasters throughout the City. The primary objective is to
minimize risk for loss of life, personal injury, property damage, and environmental degradation
due to fire hazards through effective response, preparedness and prevention.
AFD's overall finances are overseen by the City's Finance Department with budgetary
approval given by the City Council. The City's financial planning documents include a biennial
budget, a capital improvement budget, and a Comprehensive Annual Financial Report
(CAFR). In addition, AFD has financial statements audited annually.
AFD also abides by the City's March 2019 Emergency Operations Plan.
Ch. 8: City of Alameda 165
Policy Consulting Associates, LLC
Alameda Fire Municipal Service Review
Public Review Draft
Fire department staffing needs are reviewed based on population growth, development plans,
and budgetary considerations. Employee turnover and attrition is also analyzed in order to meet
hiring demands. Response times and response levels are tools for measuring satisfactory service
levels.
A critical component of the City of Alameda's planning is its Climate Action and Resiliency
Plan (CARP). This serves as a guiding document focused on ways in which the community
and City can reduce greenhouse gas emissions, meeting the City's long-term climate action
goals, and promoting a healthy, prosperous community. The City's current plan was adopted
in 2019 and outlines the goal of reducing emissions by 50 percent below 2005 levels by 2030
as well as reaching carbon neutrality as soon as possible.141 Increased wildfire hazard is also a
concern as a result of climate change. The CARP outlines strategies to limit its effects such as
expanding the alert system and planting trees.142
The City also abides by a Climate Adaptation and Hazard Mitigation Plan that aligns with
the CARP, the GP and the City's Emergency Management Plan.143 This planning document is
intended to outline necessary actions to reduce or eliminate the risk to human life and property
caused by natural hazards and those due to climate change. According to the Climate
Adaptation and Hazard Mitigation Plan, earthquakes, floods, and rising sea levels pose the
largest threats to the City of Alameda's community.144 The plan envisions an equitable
emergency response and defines the strategies and goals needed to protect its assets including
a reduction in water consumption with an increase in drought-resistant landscaping, protecting
public health from the effects of smoke due to wildfires, and quickly restoring services in the
event of an earthquake, for example.145
This section discusses the factors affecting service demand, such as land uses, and historical
and anticipated population growth.
The City of Alameda consists of 10.61 square miles of land or 6,790 acres of predominantly
low and medium density residential space. The General Plan outlines four central objectives
141 City of Alameda, Climate Action and Resiliency Plan, September 2019, p. 18
142 City of Alameda, Climate Action and Resiliency Plan, September 2019, p. 115
143 City of Alameda, Climate Adaptation and Hazard Mitigation Plan, June 2022, p. vi
144 City of Alameda, Climate Adaptation and Hazard Mitigation Plan, June 2022, p.vii
145 City of Alameda, Climate Adaptation and Hazard Mitigation Plan, June 2022, p. ix-x
Ch. 8: City of Alameda 166
Policy Consulting Associates, LLC
Alameda Fire Municipal Service Review
Public Review Draft
pertaining to land use in the City. These goals include maintaining the City's character,
strengthening and diversifying its economy, sustainability of its waterfront, and supporting
sustainable, high-quality, accessible design.146
After a period of growth in the mid-1900s, there was concern about continued development
relating to apartment housing. As a result, in 1973 Measure A was passed preventing the
construction of multi-unit dwellings and limiting residential density to one unit per 2,000 square
feet (21 units per acre) to preserve the City's character and mitigate increased demands on
infrastructure.147 The State requires a General Plan that supports housing for people in all
income levels and state law zoning prohibits multi-family housing and residential density
exceeding 21 units per acre. In 2022, the City Council approved a new General Plan and
Housing Element that removed the Measure A restrictions and supports mixed-use
developments in areas such as Alameda Point, the Northern Waterfront, shopping centers, and
the main city corridors along Park Street and Webster Street, the City's designated Priority
Development Areas.
Additionally, the City of Alameda's waterfront is central to its land use, providing both
economic and recreational opportunities while also presenting challenges. Currently, the San
Francisco Bay and the City's groundwater are both rising though, and accommodations will
need to be made to preserve these areas. Still, the Northern Waterfront and former Naval Air
Station land are also designated as Priority Development Areas for the City.
The General Plan guides the development of this land. The Safety Element and the
Conservation and Climate Action Element indicate goals and policies relating to fire and
emergency services, specifically. Currently, the plan identifies several points to manage the
City's wildland interface, mitigate fire hazards in the event of an earthquake, and educate the
community for preparedness in case of fire or other emergency.
According to the California Department of Finance, the population of the City of Alameda in
January 2022 was 77,784. This indicates a ten-year population increase of three percent, or
2,302 since January 2012, as shown in Figure 8-4. US Census data from 2020 demonstrates
the diversity of the City's demographics. More than one third of city residents are of Asian
descent. This is a noteworthy demographic shift. Beginning in the year 2000, people of color
comprised a majority of the City's population, a milestone not expected to be reached by the
146 City of Alameda, 2040 General Plan, amended 6/7/22, Land Use and City Design, p. 21
147 City of Alameda, 2040 General Plan, amended 6/7/22, General Plan Organization & Themes, p. 12.
Ch. 8: City of Alameda 167
Policy Consulting Associates, LLC
Alameda Fire Municipal Service Review
Public Review Draft
remainder of the country for decades more.148 The 2020 US Census indicates 67 percent of
civilians over age 16 are currently in the labor force in the City of Alameda. The data also
identifies single-family dwellings as the primary type of residence (67 percent) and a median
household income of $113,339.
148 Association of Bay Area Governments, Plan Bay Area 2050, p. 2.
Ch. 8: City of Alameda 168
Policy Consulting Associates, LLC
Alameda Fire Municipal Service Review
Public Review Draft
Figure 8-4: City of Alameda Population 2010-2022
City of Alameda Population 2010-2022
90,000
85,000
80,000
75,000
70,000
65,000
60,000
4/1/10 1/1/11 1/1/12 1/1/13 1/1/14 1/1/15 1/1/16 1/1/17 1/1/18 1/1/19 1/1/20 1/1/21 1/1/22
By 2040, the Association of Bay Area Governments predicts the total population of the City of
Alameda to reach 92,465; an increase of 16 percent. This is consistent with Alameda County
growth as a whole which is anticipated to increase its total population over 13 percent by 2040.
As the City continues to expand, it foresees 10,000-12,000 jobs being created over the next
two decades. Mixed-use facilities, particularly in transit-oriented centers, will be a focus of such
development and most employment opportunities will be seen throughout Alameda Point along
the Northern Waterfront as well as in business parks in Harbor Bay and Marina Village.149
Existing residential properties and commercial corridors along Park Street and Webster Street
are outlined as areas of development for accommodating a portion of housing needs locally
and regionally.150
More specifically, the City of Alameda has a significant number of projects in various stages of
development. A majority of the commercial and residential plans to rehabilitate and revitalize
the City are listed in figure 8-5. The projects align with the goals set forth in City planning
documents and development agreements.
149 City of Alameda, General Plan 2040, amended 6/7/22, General Plan Organization and Themes, p. 16.
150 City of Alameda, General Plan 2040, amended 6/7/22, General Plan Organization and Themes, p. 15.
Ch. 8: City of Alameda 169
Policy Consulting Associates, LLC
Alameda Fire Municipal Service Review
Public Review Draft
Figure 8-5: City of Alameda Development Projects
city of alameda development projects
project # of dwelling units commercial square feet
Alameda Point – Site A 1284 108,000
2015 Grand Street 90
Condominiums
Admirals Cove 227
West Midway 792 10,000
2229-2235 Clement Ave. 182
Boatworks
Alameda Marina Project 760 150,000
North Housing 586
total 3,921 268,000
Many of the City's development opportunities impact fire and emergency service response
based on infrastructure challenges due to a growing community and increasing environmental
risks. The General Plan discusses options for how to handle these situations going forward.
For instance, due to the effects of climate change and concerns over the ability to preserve the
City's shoreline, the GP discusses strategies for the protection and maintenance of the City of
Alameda's coastal environment. It recommends that the City create an Adaptation Pathway
Master Plan to identify necessary tactics to address groundwater management, infrastructure
design standards, and options for funding and cooperation with regional agencies.151
Furthermore, the GP explains that updating local building codes, fortifying and rehabilitating
City buildings and infrastructure (including traffic patterns), protecting city shoreline, and
cooperating with local and regional agencies will strengthen the AFD's fire and emergency
response.
There are no communities that meet the state-mandated criteria for a DUC within or adjacent
to the City of Alameda city limits or SOI.
151 City of Alameda, General Plan 2040, amended 6/7/22, Conservation and Climate Action Element, p. 69.
Ch. 8: City of Alameda 170
Policy Consulting Associates, LLC
Alameda Fire Municipal Service Review
Public Review Draft
The City of Alameda Fire Department has the financial ability to continue to provide services.
However, the Department has required increasing Net General Fund contributions at the same
time that City General Fund balances have been declining. As noted in the City's budget,
"The projected deficits are the result of a variety of factors including the sharp escalation of
pension costs as a result of CalPERS losses during the Great Recession, changes in longevity
assumptions, increases in costs of doing business, and revenue losses related to the economic
impacts of COVID-19."152 The City is exploring new revenue measures and potential
expenditure reductions.
Over the past four years, the Fire Department's revenue growth has grown slower than
inflation, requiring an increasing share of General Fund contributions to keep pace with
expenditures growing faster than the rate of inflation. A financial challenge noted by the City is
the "overtime challenge during the summer months and overtime caused by training needs."153
The City has been experiencing structural deficits and declining fund balances for the past
several years; pension obligations have been compounded by COVID-19. This situation will
make it increasingly difficult for the City to maintain and improve fire service levels.
The Fire Department reports that one of its cost containment strategies involves "35 programs
with assigned staff as program managers with oversight chiefs. This provides for identifying
program needs, developing the annual program budget, managing program within approved
budget as well as facilitating training, purchasing, repairs, and maintaining the department
equipment, programs and platforms."154
General Fund balances have declined over the past several years to $30.3 million in FY2021-
22,155 which is about 12.6 percent of General Fund expenditures, a "low" level that represents
less than two months of expenditures.
152 City of Alameda Citywide Budget, Fiscal Years 2021-23, pg. 4.
153 Response to Alameda Fire and EMS MSR Follow-up Questionnaire.
154 Response to Alameda Fire and EMS MSR Follow-up Questionnaire.
155 City of Alameda, Alameda Budget FY2021-23, Five-Year Forecast, pg. 4.
Ch. 8: City of Alameda 171
Policy Consulting Associates, LLC
Alameda Fire Municipal Service Review
Public Review Draft
City of Alameda Fire Department offers comprehensive services to the community through its
four fire stations and in cooperation with outside agencies, when necessary. These capabilities
include fire prevention and suppression, advanced life support, and services related to water
rescue/marine operations as well as emergency medical and hazardous materials response.
Figure 8-6 details the entirety of services provided by AFD. If a service is offered by another
agency, it is indicated in the figure. Additionally, AFD continually hosts a variety of programs
geared towards education such as CPR training, Community Emergency Response Team
(CERT) training, as well as disaster preparedness.
Figure 8-6: City of Alameda Fire Services
service agency
fire suppression services
Structural Fire Protection Alameda Fire Department
Wildland Fire Protection Alameda Fire Department
Vehicle Fire Protection Alameda Fire Department
Ladder Truck Capabilities Alameda Fire Department
Fire Suppression Hand Crew CAL FIRE/ACFD/EBPRD
Fire Suppression Dozer CAL FIRE/ACFD
Helicopter Services – Fire Suppression CAL FIRE
Boat With Fire Suppression Capabilities Alameda Fire Department
emergency medical services
Basic Life Support Provider Alameda Fire Department
Advanced Life Support – Non-Transport Provider Alameda Fire Department
Continuing Education Provider – Medical Alameda Fire Department
Air Ambulance Transport Helicopter Services Reach/Life Flight/CalStar
Helicopter Landing Facilities On Site Yes
Vehicle Extrication Tools/Equipment Alameda Fire Department
fire prevention
Fire Safety Education – Children Alameda Fire Department
Fire Safety Education – Adults/Seniors Alameda Fire Department
Juvenile Firesetter Prevention Program N/A
Ch. 8: City of Alameda 172
Policy Consulting Associates, LLC
Alameda Fire Municipal Service Review
Public Review Draft
Fire and Life Safety Business Inspection Program Alameda Fire Department
Fire Protection Planning Alameda Fire Department
New Commercial Construction Plan Reviews Contracted to C56 Services
Public Education Provider (CPR, First Aid, etc.) Alameda Fire Department
Home Fire/Safety Inspections N/A
Fire Origin and Cause Investigations Alameda Fire Department
Fuel Reduction/Weed Abatement Program N/A
Smoke Detector Giveaway/Installation Program Alameda Fire Department
Address Sign Installation Program N/A
rescue services
Fires Responder Swift Water Rescue Program Alameda County Fire Department
Water Rescue Program Alameda Fire Department
Ice Rescue Program N/A
Dive Rescue Program Alameda Fire Department
Low angle Rope Rescue Program Alameda Fire Department
Helicopter Short/Long Haul Rescue Capabilities CHP/CALFIRE
Response to Boating Accidents Alameda Fire Department
Rescue Dog Services Mutual aid
hazardous materials
Hazardous Materials Emergency Response –
Basic Alameda Fire Department
Hazardous Materials Response Team Alameda County Fire Department
support services
Firefighter Incident Support Unit N/A
Mobile Incident Command/Communications
Unit N/A
Fill Station for Self-Contained Breathing
Apparatus Alameda Fire Department
Mobile Breathing Support Unit Alameda Fire Department
Community Emergency Response Team Alameda Fire Department
Chaplain Services Alameda Fire Department
Training Academy Alameda Fire Department
Emergency Operations Center Capabilities Alameda Fire Department
miscellaneous
Public Service Assists Alameda Fire Department
Motor Vehicle Accident Response Alameda Fire Department
Ch. 8: City of Alameda 173
Policy Consulting Associates, LLC
Alameda Fire Municipal Service Review
Public Review Draft
Welfare Checks Alameda Fire Department
Public Safety Answering Point Alameda Police Department
Alameda County Regional Emergency
Fire/EMS Dispatch Communications Center
Fundraising Activities N/A
Firefighters Association – Non-Profit Alameda Fire Department (Local 689)
Auxiliary Association N/A
AFD engages in collaborative efforts with various agencies to provide the most inclusive list of
services to the community. These partnerships range from intra-agency collaboration for vehicle
maintenance, which is shared with other city departments, to local agreements such as the
Department's alliance with the Alameda Unified School District to support its annual Safety
Town program for kinder students. There are also a variety of mutual and automatic aid
agreements with both state and regional providers, and a joint powers authority agreement as
follows:
• CA OES Mutual Aid Plan
• Alameda County Mutual Aid Plan
• Bay Area Maritime Automatic Aid Plan
• Oakland Fire Department Auto Aid Plan
• East Bay Regional Communications System Joint Powers Authority
• Alameda County Emergency Medical Services Mutual Aid Agreement
The City also states that it has fully funded and adopted a CARE Team (Community
Assessment Response and Engagement) which began as a pilot program in cooperation with
the City of Alameda Police Department (APD). The CARE Team allows AFD's Crisis
Management Unit to respond to behavioral and mental health emergencies rather than
APD.156
The California Department of Forestry and Fire Protection (CAL FIRE) augments fire services
throughout the state. Generally, CAL FIRE services are focused on wildland areas defined as
State Responsibility Areas (SRA). In the case of the City of Alameda, being that it is an
156 City of Alameda Fire Department, SoGo Survey Online Response, July 2021
Ch. 8: City of Alameda 174
Policy Consulting Associates, LLC
Alameda Fire Municipal Service Review
Public Review Draft
island, its territory is not adjacent to any SRA. However, Coast Guard Island, located in
between the City of Alameda and the City of Oakland in the Oakland/Alameda Estuary, is
considered Federal Responsibility Area (FRA).157 The City is also home to the Navy's
Operational Support Center.
Many mutual aid providers supplement fire and emergency services throughout AFD territory.
Most notably, Alameda County and the City of Oakland Fire Departments help AFD provide
gap coverage and additional response for AFD. The City also receives mutual aid assistance
from Falck Ambulance.
AFD indicated it received a total of 6,849 calls for service in FY 20.158 This denotes a slight
increase in calls over 2013 by roughly six percent. However, between FY 19 and FY 20, there
was a decline in service calls by eight percent. Calls for service peaked in FY 17 over the
eight-year period, as shown in Figure 8-7. Types of calls are listed in Figure 8-8. Of the City's
four fire stations, Fire Station 1, located in District 1 or the easternmost portion of the City,
responded to the greatest number of incident calls which was followed by Fire Station 2 in
District 2. The number of incidents reported were 2,488 and 2,285 respectively. Conversely,
District 5 saw the least number of incidents with 513, which were handled by Station 2 since
Station 5 closed in 2009, although the facility still houses various vehicles and apparatus for
departmental use and continues to serve as the Department's Training Division.159
Figure 8-7: City of Alameda Calls for Service (2013-2020)
fire and emergency calls (2013-2020)
2013 2014 2015 2016 2017 2018 2019 2020
City of
Alameda 6,462 6,250 6,730 7,012 7,556 7,087 7,433 6,849
Figure 8-8: City of Alameda Service Calls by Type, 2020
2020 fire and emergency service calls by type
Hazard
ous
Structu Other EMS/ Conditi Service Good False Cancelle Total
re Fires Fires Rescue ons Calls Intent Call d Enroute Calls
City of
Alameda 218 6 4,558 104 578 866 510 9 6,849
157 CAL FIRE, https://egis.fire.ca.gov/FHSZ/, accessed April 4, 2023
158 City of Alameda Fire Department SoGo Survey Online Response, July 2021
159 City of Alameda, https://www.alamedaca.gov/Departments/Fire-Department/Your-Fire-Department/Fire-Station-5, accessed
April 4, 2023
Ch. 8: City of Alameda 175
Policy Consulting Associates, LLC
Alameda Fire Municipal Service Review
Public Review Draft
The City's FY 23 budget indicates it has 125 authorized positions, including non-sworn staff, for
its Fire Department. This reflects an increase of eight positions from FY 19-20. Of these
positions, all 125 are considered full-time equivalents and accounts for approximately 18 percent
of the total budget, which is shown to be consistent throughout FY 23. The Department did
indicate there are no reserve firefighters utilized, however, the Department does staff two part-
time employees.
The Department follows the National Fire Protection Association's (NFPA) 2020 minimum
staffing standards per Code 1710 in which it recommends both engine companies and
ladder/truck companies staff a minimum of four on-duty members. AFD stated it staffs three
personnel per apparatus with total minimum staffing differing amongst each station as follows:
• Station 1 – 9 personnel
• Station 2 – 8 personnel
• Station 3 – 7 personnel
• Station 4 – 5 personnel
At least one paramedic is assigned to each fire apparatus as well. A first alarm structure fire
response includes three fire engines, two trucks, one ambulance, and the Division Chief's
vehicle. The Department states that daily fire companies respond using four fire engines, two
fire trucks, four ambulances, a CARE Team, and one Division Chief vehicle to complement fire
and emergency calls as necessary.
AFD executes training and proficiency testing of its personnel across areas such as fire
suppression, emergency medical care, hazardous materials response, water rescue operations,
technical rescue, and more to satisfy federal, state, and local laws and ensure readiness in the
event of an incident or emergency. Additional training is also provided to respond to wildland
fires outside of the City, according to the Department.
The City of Alameda Fire Department operates four fire stations throughout its service area as
shown in Figure 8-9. A Division Chief is based in Station 1. Station 3 is home to AFD's Dive
Rescue Team, Rescue 3, as well as a C.A.R.E (Community Assessment Response and
Engagement) team and is situated next to the Emergency Operations Center. Station 4 has a
water tender and a reserve truck. All self-contained breathing apparatus are also maintained
and repaired at this station. Station 5 was closed but is still utilized to house reserve apparatus,
Ch. 8: City of Alameda 176
Policy Consulting Associates, LLC
Alameda Fire Municipal Service Review
Public Review Draft
a water tender, and OES Engine 409. Each station also has an assigned ambulance. Plans
are currently being devised to replace Station 5, which was understaffed prior to its closing.
Figure 8-9: City of Alameda Fire Facilities
city of alameda fire department facilities
Facility Address Owner Year Built Condition
2401 Encinal Ave. City of
Station 1 Alameda, CA 94501 Alameda 1968 Good
635 Pacific Ave. City of
Station 2 Alameda, CA 94501 Alameda 1921 Fair
1625 Buena Vista
Ave. City of
Station 3 Alameda, CA 94501 Alameda 2017 Excellent
2595 Mecartney Rd. City of
Station 4 Alameda, CA 94501 Alameda 1991 Good
950 W. Ranger Rd. City of
Station 5 Alameda, CA 94501 Alameda 1936 Poor
Emergency
Operations 1809 Grand St. City of
Center Alameda, CA 94501 Alameda 2017 Excellent
2263 Santa Clara
Ave. City of
City Hall West Alameda, CA 94501 Alameda 1936 Fair
The City of Alameda communicates with residents in a variety of ways to transmit important
health and safety information. These methods include posting on its website, utilizing social
media (Facebook, Instagram, and Twitter), texts and emails, and through Genasys Protect,
which provides up-to-the-minute public safety alerts. The City also implements AL Alert which
is Alameda County's mass alerting system.
For fire dispatch services specifically, AFD contracts with the Alameda County Regional
Communication Center (ACRECC) as its unified dispatch center. The City of Alameda Police
Department initially answers 9-1-1 calls, as it is considered the City's Public Safety Answering
Point (PSAP), however, fire, medical, rescue, CARE team, and emergency calls are then
routed to ACRECC. ACRECC is an accredited Emergency Medical Dispatch Center that
uses a Medical Priority Dispatch System that allows staff to immediately address caller needs.
AFD also has a JPA agreement with the East Bay Regional Communications System Authority
for two-way radio communications that allow communication across jurisdictions.
Cooperation and consolidation of facilities is an impactful way to limit operating costs for the
City while still effectively providing needed services. The Department currently shares space
Ch. 8: City of Alameda 177
Policy Consulting Associates, LLC
Alameda Fire Municipal Service Review
Public Review Draft
with the Emergency Operations Center, which is also utilized by APD and other City
departments, as this facility is a communications hub for City emergency response.
AFD also shares ACFD, OFD, and HFD training facilities for its firefighters and emergency
personnel. Additionally, in 2022, AFD became an Accredited Local Academy which trains
recruits for other fire departments.
The Department reported that it currently shares IT and facility services as well as vehicle
maintenance with other City Departments, such as Public Works, however, it also indicated it
would be preferred to have a dedicated mechanic on staff.160
The City of Alameda outlines its infrastructure needs primarily in its Capital Improvement
Program (CIP) and its Citywide budget. A significant capital project was completed in FY 17
when Fire Station 3 and the neighboring EOC were built. Now, most budgeted needs that
remain are for routine maintenance and repairs that have been deferred for years, although
several stations need seismic analysis and upgrades.
There are also infrastructure needs not included in AFD's budget that would benefit the City
at large, therefore impacting the AFD. For instance, improving trafficways and addressing rising
sea levels would impact AFD's ability to provide adequate service in the face of traffic
congestion and environmental hazards. Likewise, the FY 21 CIP outlines the need to raise the
ceiling in the Fleet Services shop in the Public Works Department, which is used for the repair
and maintenance of AFD fire engines and fire trucks.
Relating specifically to AFD, according to the FY 21 CIP, Fire Station 2 needed interior and
exterior painting and to have the current concrete apron and parking lot replaced with a
reinforced concrete slab with drainage.161 According to the Department, this work has been
completed. The City also identifies similar maintenance and repair needs in the FY 23 CIP
such as roof and generator replacement, electrical and kitchen upgrades, and dorm unit
installations for Fire Station 4. A departmental goal from the FY 23 budget is to devise a plan
for the replacement of Fire Station 5, which is currently closed but houses reserve apparatus,
along with the Department's Training Division.
160 City of Alameda Fire Department, SoGo Online Survey Response, July 2021.
161 City of Alameda, Biennial Budget FY19-21, p. D-40.
Ch. 8: City of Alameda 178
Policy Consulting Associates, LLC
Alameda Fire Municipal Service Review
Public Review Draft
The City of Alameda Fire Department notes that large fires pose the most significant
challenge to providing services. In these events, the Department states that it requires mutual
aid from the City of Oakland. Additionally, ambulance response can be delayed due to the
need to transport patients off the island. Extended wait times are also experienced at the
hospital. Additionally, the Department states that choosing the appropriate facility to take
patients has been a source of difficulty; however, this is what the newly instituted Alameda
C.A.R.E. Team is meant to address in its effort to differentiate behavioral care from medical
response.162
AFD also reported that growth throughout the City has increased demand and, in return,
created more traffic which slows response during peak travel times. The Department
anticipates this trend will continue as the Northern Waterfront and Alameda Point continue to
build out near the former Naval Air Station. Currently, this territory is where Fire Station 5 is
located, which supports the goal of replacing this station.
This section reviews indicators of service adequacy, including response times, ISO rating, and
complaints received. There are many measures of a successful fire protection service. For
example, the agency would meet guidelines established by the National Fire Protection
Association (NFPA), the Center for Public Safety Excellence (CPSE) (formerly the
Commission on Fire Accreditation International) and the California EMS Agency. There are
also Public Protection Classifications (PPC) and Insurance Services Office (ISO) ratings that
likewise establish an agency's level of service.
The Department maintains response time standards as follows: 5 minutes 20 seconds 90
percent of the time for the first arriving unit at a fire response, 5 minutes for first arriving unit
at all other responses, and 9 minutes for medic unit responses on EMS calls.163 The response
time policy for AFD is shown in Figure 8-10.
Figure 8-10: City of Alameda Response Time Policy
response times for afd
Agency Name Single Unit Incident Multiple Unit Incident
Arrive within 5 minutes 20 seconds First unit to arrive within 5 minutes
City of Alameda from the time the Company is first from dispatch and within 9 minutes for
dispatched for 90 percent of incidents.
162 City of Alameda Fire Department, SoGo Online Survey Response, July 2021.
163 City of Alameda, 2040 General Plan, amended 6/7/22 Health and Safety Element, p. 132
Ch. 8: City of Alameda 179
Policy Consulting Associates, LLC
Alameda Fire Municipal Service Review
Public Review Draft
remaining units for 90 percent of
incidents.
On its website, the City reports average response times for 2021 and 2022 are as follows for
each respective fire station:
• Fire Station 1: 4:35, 5:05
• Fire Station 2: 4:44, 5:21
• Fire Station 3: 4:47, 5:21
• Fire Station 4: 5:48, 6:11
• Fire Station 5: 6:14, 7:33
Based on the response time standard of 5:20 for a single unit incident and 5 minutes for the
first unit in multiple unit incidents, Stations 1, 2, and 3 generally meet this goal. Stations 4 and
5 exceed this standard in their respective service areas. Overall, there was a general trend of
longer response times at all five fire stations in 2022 compared to 2021.
Fire services in the community are classified by the Insurance Service Office (ISO) as an
indicator of the general adequacy of coverage. Communities with the best fire department
facilities, systems for water distribution, fire alarms and communications, and equipment and
personnel training receive a rating of ISO Class 1. AFD's most recent ISO rating was done in
July 2019, and it was given an ISO PPC rating of 01/1Y, which is the top classification
available. The first number means a home is no more than five road miles from a fire station
and 1,000 feet from a water supply such as a hydrant. The second classification, Y, refers to
the properties further than 1,000 feet from a fire hydrant but within five road miles of a
recognized fire station.164
The City did not provide information regarding any complaints for fire service received.
164 Alameda County, Public Protection Classification Summary Report, p. 7, July 2015
Ch. 8: City of Alameda 180
Policy Consulting Associates, LLC
Alameda Fire Municipal Service Review
Public Review Draft
8-1: The City of Alameda's population of 77,784 as of January 2022 shows a ten-year
increase of three percent.
8-2: According to ABAG projections, the population within the City of Alameda is
expected to increase by 16 percent over the next twenty years to 92,465 by 2040.
Along with it, employment and housing increases will be seen.
8-3: The City of Alameda does not have any DUCs within or contiguous to its SOI.
8-4: Based on AFD's response times, it appears that the existing facilities and staffing
levels generally have sufficient capacity to meet the current level of demand.
However, there are certain staffing, funding, and facility constraints that have resulted
in the closure of Station 5. Future growth will require appropriate capacity
enhancements to reopen Station 5 and ensure an adequate level of service is provided
in that area.
8-5: AFD adequately meets its fire and emergency response utilizing four fire stations
located throughout the island that meet minimum staffing standards. However, AFD
should continue to evaluate options that would allow the Department to better provide
service in the event of large fires.
8-6: Infrastructure needs for AFD are being met as planned and expensed in the City's
budget and capital improvements plan. Some of these needs include interior and
exterior painting and a new parking lot for Fire Station 2, and roof and generator
replacement for Fire Station 4. The City is also planning to replace Fire Station 5
which is currently being used to house reserve apparatus.
8-7: The City of Alameda Fire Department has the financial ability to continue to provide
services. However, the Department has required increasing Net General Fund
contributions at the same time that City General Fund balances have been declining.
Ch. 8: City of Alameda 181
Policy Consulting Associates, LLC
Alameda Fire Municipal Service Review
Public Review Draft
8-8: The Department indicated it shares a space with the Public Works Department for
the maintenance of its fleet of vehicles. It also uses ACFD training facilities for its fire
prevention and hazardous materials response training.
8-9: The City's recently constructed Emergency Operations Center is shared with several
agencies, including the AFD, the APD, and the County Sherriff's office. The City
should continue to provide staffing, training, and necessary technology to sustain the
center in the event of a major emergency event.
8-10: It is recommended that the Department join fellow Alameda fire providers to develop
a regional, countywide dispatch strategy that employs the closest resource for the
fastest response time, regardless of agency boundaries or responsibility.
8-11: The City of Alameda abides by all legislative obligations for accountability and
governance practices.
8-12: The City of Alameda demonstrated transparency when sharing information for the
creation of this report.
8-13: No governance structure alternatives specific to AFD were identified over the course
of this review; however, it is recommended that the Department continue to seek
ways to collaborate and enhance service levels on a regional level with other
providers.
Ch. 8: City of Alameda 182
Policy Consulting Associates, LLC
Alameda Fire Municipal Service Review
Public Review Draft
Originally known as the City of Ocean View, when it was incorporated in 1908, it changed its
name to Albany in 1909. With a population of 18,937 as of January 2020, the City is situated
along the shores of the San Francisco Bay, anchored by Albany Hill in its northwest corner. Its
neighbor to the south and east is the City of Berkley in Alameda County and the Cities of El
Cerrito and Richmond to the north in Contra Costa County.165
The City of Albany adopted its first charter in 1927. The City maintains a full suite of services
such as recreational activities, street and sanitary sewer maintenance, and emergency services,
including police and fire protection, along with paramedic service.166
The City of Albany was last included in an MSR Update by Alameda LAFCO that was
adopted in 2018. There was also a Countywide MSR update for water, wastewater, flood
control and stormwater services completed in 2021. The focus of this MSR is limited to the fire
and emergency medical services provided by the City.
The City of Albany comprises approximately 1.7 square miles of land, including the San
Francisco Bay shoreline. It is located in the northwestern corner of Alameda County, adjacent
to Contra Costa, and bordered by El Cerrito and Richmond on the north and the City of
Berkeley on the east and south sides. Figure 9-1 shows the City's boundaries.
165 City of Albany, CAFR, June 30, 2020, p. 2.
166 City of Albany, CAFR, June 30, 2020, p. 2.
Ch. 9: City of Albany 183
Policy Consulting Associates, LLC
Alameda Fire Municipal Service Review
Public Review Draft
Figure 9-1: City of Albany Boundaries and SOI
City of Albany
Range 04 West
0 0 0
§¨¦ 0
San
M
ateo St
Carlson
Blv
S
d
an Pablo
Ave Fa
R
i
ic
r
h
m
m on
o
d
S u t nt Ave
Ashbury
Ave
0
580
htroN 10 pihsnwoT
0
Albany
0 Buchanan St
UV
123
So
A
la
L
n
B
o
F
A
S
v
0
e
1Marin A
Curtis
St
ve
ColusaAve
MontereyAve
Arlington
Ave
Marin
Ave
Spruce
St
Gilman St Rose St
§¨¦
80
6th
St
0
UV
123
U
H
n
o
i
p
v
k
e
in
r
C
s
s
e
i
S
t
d
y
t
a
A
r
v
S
e
t
tS
otnem
yaW
rJ gniK
rehtuL
nitraM
Shattuck
Ave
Bancroft Way
Berkeley arcaS
Dwight Way
Alameda County Legend O Alameda County City of Albany
S L o o ur c ce a : A l la A m g ed e a n
g i D n
L
e i
A
t
c
s e n
F
c
y
n e
C
l d a r
o
a e
F
im l d
o
d e t i r s o
r
: p
m
b T la e h
a
y e u
t
p s i
i
n u e
o
f
M
r d o p
n a
r o f m
p
o s
C
r
C
a e r t
r
s
o
i e
e
o
a
o f n
m
e
t
n
e
r s l e
d
y
m
h n
1
o a c
/7
n w
i
e
s /
d
2
n a
s 0
i n i s
2
s
i
d
3 on kj A A
F
A
C
C
i
d l l o
r i
a a
t e
j m m m a
y S
c m e e e
o t
d d
a
u n
f
a a
t
n t
i A o
i C C C t
n
i
l
o i o e
b
t
s
u y s u
a
n n B
n
t t y o y
y
u B B n o o d u u a n n r d i d e a a s r r y ies C S o a u n n t F y ranci
S
sco
a
P
C
kj
n
i kj ekj
o
A dE
u
B
M
l m b kj me
n
a
a
o re n
t
A k kjn
t
r
y
ye
e
l ty a O l kjve
o
m a iyl k e le l d a a nd kjSan
kj
L
H
e
a kj
a
y F
n
w r
d
e a m
r
r
o
d o kj n U kjt n N io e n w C a
P C
r it k
l
y
e o a nC sa t kj or n au t
A
o D kj n n C u
la
t b oy
m
li s n t
e
a
da C
kj
o
L
u
iv
n
er
t
m
y
ore San Joaquin County
not to be used as an official map. 0440880 1,760 2,640Feet Santa Clara County
The City of Albany does not provide services outside of its boundaries, but it does have in-
county and out-of-county mutual aid agreements and automatic aid agreements for fire
protection and emergency service response.
There are no unserved areas identified in the City of Albany. The City is reportedly able to
provide service throughout its bounds.
Ch. 9: City of Albany 184
Policy Consulting Associates, LLC
Alameda Fire Municipal Service Review
Public Review Draft
The City of Albany's SOI is coterminous with its boundaries. The current SOI for the City
was last reaffirmed on January 12, 2018.167
Accountability of a governing body is signified by a combination of several indicators. The
indicators chosen here focus on 1) agency efforts to engage and educate constituents through
outreach activities, in addition to legally required activities such as agenda posting and public
meetings, 2) a website with the required content and other useful information, 3) timely ethics
training for board/councils members and an adopted reimbursement policy, 4) a defined
complaint process designed to handle all issues to resolution, 5) adopted bylaws that provide a
framework and direction for governance and administration, 6) adoption of a conflict-of-interest
code as required by law, 7) proper filing of Form 700 by the governing body members, and 8)
transparency of the agency as indicated by cooperation with the MSR process and information
disclosure at meetings, in documents, and on a website.
A five-member City Council governs the City, with day-to-day operations led by an appointed
City Manager. The City of Albany has a government structure with a City Manager, an
elected mayor, and four council members who serve staggered four-year terms on the City
Council. Current council member names, positions, and term expiration dates are shown in
Figure 9-2
The City Council meets every first and third Monday of the month at 7:00 pm in the Albany
City Hall Council Chambers except during August when the Council is in recess. Agendas for
each weekly meeting, board actions, and meeting minutes are available online and at the City
Clerk's office. Through the City's website, the public can access live audio/visual webcasts on
KALB or YouTube and archived audio and/or visual webcasts of regular Board meetings for
viewing online at their convenience.
Figure 9-2: City of Albany Governing Body
governing body
Manner of Selection Elections at large.
4 years for Council Members with a two-term limit
unless an intervening two-year period has elapsed.
Length of Term
The Mayor shall be appointed by the City Council on
an annual basis.
167 Alameda County LAFCO, Resolution No. 2018-03, January 12, 2018
Ch. 9: City of Albany 185
Policy Consulting Associates, LLC
Alameda Fire Municipal Service Review
Public Review Draft
First and third Monday of each month at 7pm (except
in August during recess)
Meetings Albany City Hall Council Chambers
1000 San Pablo Ave.
Albany, CA 94706
Agenda Distribution Posted online and at the City Clerk's office.
Minutes Distribution Posted online and at the City Clerk's office.
board members
Term Manner of Length of
Member Name Position Expiration Selection Term
Jennifer Hansen-
Romero Council Member 2026 Elected 4 Years
Preston Jordan Council Member 2024 Elected 4 Years
Robin Lopez Council Member 2026 Elected 4 Years
John Anthony Miki Vice Mayor 2026 Elected 4 Years
Aaron Tiedemann Mayor 2024 Elected 4 Years
contact
Contact Nicole Almaguer, City Manager
Mailing Address 1000 San Pablo Ave., Albany, CA 94706
Phone 510-528-5710
Email/Website nalmaguer@albanyca.org
The City of Albany participates in community outreach events such as annual city festivals,
holiday activities, job fairs, and community educational programs. The City of Albany Fire
Department explicitly hosts various classes and fire prevention services, such as CPR and first
aid courses, school safety presentations, and open houses.
All five City of Albany's City Council members has current filings for Form 700 with the
California Fair Political Practices Commission, indicating transparency in their economic
interests.
There is also a conflict-of-interest code, and bylaws, outlined in the municipal code as lawfully
required.
All complaints concerning the City of Albany, or its employees are investigated, and a response
is provided to the complainant. Constituents can file complaints in several ways, including in
writing, by phone, and via email online. All complaints are handled by the appropriate
department and overseen by the City Manager as needed.
Ch. 9: City of Albany 186
Policy Consulting Associates, LLC
Alameda Fire Municipal Service Review
Public Review Draft
There is legislation to help ensure public agencies adhere to accountability standards.
California AB 2257 (Government Code §54954.2) is an update to the Brown Act and
indicates requirements for methods by which an agenda for all meetings should be available on
an agency's website. The City of Albany complies with this regulation.
The City of Albany demonstrated accountability in its disclosure of information and cooperation
with the LAFCO questionnaires and other requests for information. While most information
was generally made available, there were, however, outstanding documents that were not
received and information that was not readily available in their reports and online.
While public sector management standards vary depending on the size and scope of the
organization, there are minimum standards. Well-managed organizations evaluate employees
annually, track employee and agency productivity, periodically review agency performance,
prepare a budget before the beginning of the fiscal year, conduct periodic financial audits to
safeguard the public trust, maintain relatively current financial records, conduct advanced
planning for future service needs, and plan and budget for capital needs.
The City accounts for its fire and emergency services in several of its planning and
management documents, particularly in the annual budget, comprehensive annual financial
report, and General Plan.
The City of Albany's Fire Department reports 19 current and proposed staff positions for FY
21. Six of these personnel are firefighters/paramedics for one shift. This number has remained
relatively consistent since FY 17 when there were 20.5 authorized positions for fire and EMS
staff.
Appointed by the City Council, the Fire Chief leads the Department in all areas of fire
protection and overall management. The Department has three primary divisions, including fire
prevention and administration, fire emergency operations, and emergency medical services. The
Department also coordinates the City's disaster preparedness programs with the City
Manager.
The City's various planning documents provide the framework for goals and policies relating to
fire protection and emergency response. For example, the General Plan discusses future
considerations for increased demand and the need to continue evaluating community
development plans to determine growth-related needs.
Ch. 9: City of Albany 187
Policy Consulting Associates, LLC
Alameda Fire Municipal Service Review
Public Review Draft
As with other members of the Civil Service System, fire department candidates who meet the
requirements are selected by the Fire Chief and undergo a one-year probationary period. The
Fire Chief, in turn, is obligated to report to the City Manager on issues relating to department
administration. The City Manager works alongside the City Council to review departmental
needs. Based on available information, it could not be determined how frequently, or the
manner in which, performance evaluations are conducted.
Due to the increased effects of climate change, the City's Strategic Plan, Climate Action and
Adaptation Plan, and Conservation and Environmental Hazards chapters of the GP also
address rising concerns for wildfires and other natural events that would significantly impact
and potentially strain the City's departmental response. Drought and rising temperatures
especially heighten wildfire risk across California. The City of Albany has varying levels of
wildfire risk lands, ranging from moderate near Albany Hill to high near the park entrance by
the east end of Albany Bulb. Vegetation management and trail maintenance are supported
mitigation efforts, and others are considered, such as planned electrical outages.
The City's Climate Action Plan also includes an emissions reductions goal of 60 percent by
2035, and net zero emissions by 2050, and on December 2, 2019, the City Council agreed by
consensus to change greenhouse gas reduction targets to 70 percent by 2035 and net zero
emissions by 2045.168
This section discusses the factors affecting service demand, such as land uses, and historical
and anticipated population growth.
The City of Albany is comprised of approximately 1,144 acres or 1.8 square miles. The City is
built on a typical street grid system with walkable neighborhoods, shops, and restaurants.169 The
City is mainly residential with industrial and non-industrial businesses. The largest employers in
the area are government agencies, specifically, the Albany Unified School District, the United
States Department of Agriculture, and the City of Albany.170
168 The City of Albany Climate Action and Adaptation, https://www.albanyca.org/departments/sustainability/climate-action-
plan.
169 City of Albany, 2035 General Plan, adopted 4/18/2016, p. 1-1.
170 City of Albany, CAFR, June 30, 2020, p. 2.
Ch. 9: City of Albany 188
Policy Consulting Associates, LLC
Alameda Fire Municipal Service Review
Public Review Draft
Roughly 37 percent of this space is designated for residential land use including 343 acres of
single-family housing, 35 acres of townhomes and two-to-four-unit buildings, as well as 41 acres
of multi-family housing. Of the single-family housing within the City, nearly 40 percent was built
in the 1920s and 1930s. The remaining land consists of a mixture of industrial use, open space,
and medium-density development. Only 20 acres are considered vacant.171
While the City's eastern portion is primarily residential, in the west, there are considerably
more multi-family units near Albany Hill. At one point, the area along Kains and Adams
changed the zoning from a commercial expansion area to a high-density residential use space.
This portion of the City has an appreciably larger density than most other cities in the Bay
Area.172 The southwestern section of the City has mostly commercial land use while commercial
and mixed-use developments run from El Cerrito in the north to Berkley in the south and east.
Solano Avenue is considered the "main street" of the City of Albany, home to many office
buildings, restaurants, and retail spaces.173
The General Plan guides the development of this land while the safety element specifically
addresses the land area as it relates to fire and emergency services.
The California Department of Finance estimates the City of Albany's 2022 population to be
21,648. The population remained relatively steady between 2012 and 2019 when it began to
show more rapid growth. Notably, this data is similar to the numbers recorded in the 1950s
when the population was listed as 17,600.174 The current population total is roughly a 15 percent
increase over the previous ten years, as shown in Figure 9-3. The apparent spike in 2020 is
attributable to Census data becoming available for that year, and the DOF adjusts for
following years.
171 City of Albany, 2035 General Plan, adopted 4/18/2016, p. 3-2, 3-3.
172 City of Albany, 2035 General Plan, adopted 4/18/2016, p. 3-4.
173 City of Albany, 2035 General Plan, adopted 4/18/2016, p. 3-6.
174 City of Albany, 2035 General Plan, adopted 4/18/2016, p. 3-2.
Ch. 9: City of Albany 189
Policy Consulting Associates, LLC
Alameda Fire Municipal Service Review
Public Review Draft
Figure 9-3: City of Albany Population Growth 2012-2022
City of Albany Population 2010-2022
30,000
25,000
20,000
15,000
10,000
4/1/10 1/1/11 1/1/12 1/1/13 1/1/14 1/1/15 1/1/16 1/1/17 1/1/18 1/1/19 1/1/20 1/1/21 1/1/22
According to the Association of Bay Area Governments (ABAG), the projected total
population for the City of Albany by 2040 is expected to be 20,425. The City has already
exceeded this total.
Development in nearby communities, such as the Cities of Berkley and El Cerrito, is also
anticipated to impact the City of Albany over the next two decades.175 Still, the City would like
to promote its own balanced growth between housing and employment. There are specifically
six areas of focus for development within the City of Albany. These areas include the San
Pablo Avenue Corridor and Solano Avenue Corridor, both of which are labeled Priority
Development Areas (PDA). The growth near the intersection of San Pablo and Solano
Avenues is being considered a commercial hub or a "major activity node" for the City, filled
with retail and restaurants as well as public transit access and more. The remaining focus
areas are: Albany Hill - a protected open space, Eastshore Highway/Cleveland Avenue -
envisioned as an employment district in an industrial district which is close to the Union Pacific
Railroad, the Albany Waterfront – centered on the development of public property and
175 City of Albany, 2035 General Plan, adopted 4/18/2016, p. 3-26.
Ch. 9: City of Albany 190
Policy Consulting Associates, LLC
Alameda Fire Municipal Service Review
Public Review Draft
University Village, which is earmarked for a variety of uses ranging from senior housing and
retail use to open space.
As seen in Figure 9-4, the City of Albany has three major projects on the horizon that are in
various stages of planning and development. Two projects include mixed use facilities, and one
is concentrated on affordable residential housing. The City received a Senate Bill 2 grant from
the State Department of Housing and Community Development to further these projects in
alignment with the City's San Pablo Specific Plan which aims to generate more mixed-use
spaces along the San Pablo Avenue corridor.
Figure 9-4: City of Albany Planned or Proposed Development Projects, 2023
city of albany development projects
project # of dwelling units commercial square feet
Albany Family Housing 62
1600 Solano 12 2,753
540 San Pablo 207 9,500
total 281 12,253
To accommodate growth throughout the City of Albany, the General Plan summarizes several
long-range strategies that would allow for the increased demand on the Fire Department. One
potential solution is hiring more personnel to provide adequate service for a larger, aging, and
increasingly diverse population. It may also become necessary to implement additional mutual
aid or inter-jurisdictional agreements for the tax revenue this would produce, helping to bridge
funding gaps. This funding could also be applied to extra equipment, vehicle, and supply needs
for a growing Department. Continued efforts to review development plans will also be crucial to
ensure sufficient water supply and other departmental needs.176
The General Plan discusses other future considerations for increased demand and the need to
continue evaluating community development plans. Road widths and water supply are
addressed, which impact fire service provision. Narrow roadways in some portions of the City
prohibit adequate space for fire vehicles to accommodate a fire truck's turning radius; however,
it is not advised to widen these streets. Instead, parking limits and curb restrictions have been
enacted to allow for sufficient access by emergency vehicles.
176 City of Albany, 2035 General Plan, adopted 4/18/2016, p. 9-14.
Ch. 9: City of Albany 191
Policy Consulting Associates, LLC
Alameda Fire Municipal Service Review
Public Review Draft
Likewise, reduced water flow has been identified in various areas throughout the City.
Therefore, the City of Albany has been coordinating efforts with the East Bay Municipal Utility
District to improve water flow and pressure to ensure availability during a fire response.
Based on Census Designated Places (CDP), as of 2021, there are no disadvantaged
unincorporated communities (DUC) that meet the state-mandated and Alameda LAFCO-
adopted criteria for within or adjacent to the City of Albany.
The City of Albany Fire Department has the financial ability to continue to provide services.
COVID-19 continues to affect the City's budget; while most revenues "are rebounding" they
remain volatile and increasing General Fund contributions are required for fire and EMS
services.
Since FY2017-18 the Fire Department's expenditures (including both fire and EMS) have grown
at a 6 percent average rate, nearly double the rate of inflation over that period Contributions
from the General Fund have increased to meet the funding needs, however, Citywide expenses
"...are growing at a much faster rate than revenues generated by the General Fund"177 which
puts pressure on all City services and fund balances. One of the City's responses to budget
constraints has been to maintain vacant positions, although this measure can contribute to
additional overtime costs.
The Fire Department reports that it is balancing its budget but at the expense of other funding
needs including "needed staffing increases to meet our current and future needs, saving
adequate monies in our reserve account for future capital equipment and apparatus purchases
and expanding services for new missions assigned to the fire services (behavioral health
emergencies for example)."178
The pandemic increased financial uncertainties experienced prior to 2020. According to the
City, "the increase of personnel costs, are outpacing the rate of our revenue, mainly property
177 City of Albany City Council Agenda Staff Report, Quarterly Financial Update, Feb. 7, 2022, pg. 4.
178 Response to Alameda Fire and EMS MSR Follow-up Questionnaire.
Ch. 9: City of Albany 192
Policy Consulting Associates, LLC
Alameda Fire Municipal Service Review
Public Review Draft
taxes in Albany's case, making it very difficult to increase staffing to meet the increased
demand for service. In the short-term we are trying to add one more person per day to each of
the three shifts while paying down our pension costs and purchase equipment to replace our
aging fleet."179 The Fire Department identified concerns about its lack of compensation for
services to an area dedicated to student housing at the University of California Village in
Albany, which represents approximately five percent of call volumes.180
The Department's cost containment strategies include the City of Berkeley Fire Department for
training services. Revenue strategies include changing to a new EMS billing company and
realizing improved collections for ambulance transport. The Department is considering a ballot
measure to provide a stable source of inflation-adjusted funding.181
Citywide expenditure growth that exceeds revenues requires transfers from other City funds to
maintain service levels. The City's unassigned General Fund Balance declined from $8.8
million in FY2017-18 to $8.4 million in FY2020-21.182
The City of Albany Fire Department provides fire protection, emergency and disaster response,
paramedic services, and education to residents and businesses in the City. Other capabilities of
the Department include arson investigation, hazardous materials mitigation, and search and
rescue. The Department likewise engages in outreach efforts within the community to promote
home safety, health and wellness through CPR and first aid classes as well as blood pressure
screenings, earthquake preparedness, and smoke detector installation. Figure 9-5 details the
services provided by the City of Albany Fire Department. If a service is offered by another
agency, it is indicated in the figure.
Figure 9-5: City of Albany Fire Services
service agency
fire suppression services
Structural Fire Protection City of Albany Fire Department
179 Response to Alameda Fire and EMS MSR Follow-up Questionnaire.
180 Response to Alameda Fire and EMS MSR Follow-up Questionnaire.
181 Response to Alameda Fire and EMS MSR Follow-up Questionnaire.
182 City of Albany ACFR, June 30, 2021, Fund Balances of Governmental Funds Last Ten Fiscal Years, Table 3.
Ch. 9: City of Albany 193
Policy Consulting Associates, LLC
Alameda Fire Municipal Service Review
Public Review Draft
Wildland Fire Protection City of Albany Fire Department
Vehicle Fire Protection City of Albany Fire Department
Ladder Truck Capabilities City of Albany Fire Department
Fire Suppression Hand Crew CAL FIRE
Fire Suppression Dozer CAL FIRE
Helicopter Services – Fire Suppression CAL FIRE
Boat With Fire Suppression Capabilities City of Berkeley Fire Department
emergency medical services
Basic Life Support Provider City of Albany Fire Department
Advanced Life Support – Non-Transport Provider City of Albany Fire Department
Advanced Life Support Transport Provider City of Albany Fire Department
Continuing Education Provider – Medical City of Albany Fire Department
Air Ambulance Transport Helicopter Services Reach Air Medical Services/CalStar/CHP
Helicopter Landing Facilities On Site Golden Gate Fields
Vehicle Extrication Tools/Equipment City of Albany Fire Department
fire prevention
Fire Safety Education – Children City of Albany Fire Department
Fire Safety Education – Adults/Seniors City of Albany Fire Department
Juvenile Firesetter Prevention Program N/A
Fire and Life Safety Business Inspection Program City of Albany Fire Department
Fire Protection Planning City of Albany Fire Department
New Commercial Construction Plan Reviews City of Albany Fire Department
Public Education Provider (CPR, First Aid, etc.) City of Albany Fire Department
Home Fire/Safety Inspections City of Albany Fire Department
Fire Origin and Cause Investigations City of Albany Fire Department/ALCO DA
Fuel Reduction/Weed Abatement Program City of Albany Fire Department
Smoke Detector Giveaway/Installation Program City of Albany Fire Department
Address Sign Installation Program N/A
rescue services
Fires Responder Swift Water Rescue Program City of Berkeley Fire Department
Water Rescue Program City of Albany Fire Department
Ice Rescue Program N/A
Dive Rescue Program N/A
Low angle Rope Rescue Program City of Albany Fire Department
Ch. 9: City of Albany 194
Policy Consulting Associates, LLC
Alameda Fire Municipal Service Review
Public Review Draft
Helicopter Short/Long Haul Rescue Capabilities CAL FIRE
Response to Boating Accidents City of Albany Fire Department
Rescue Dog Services N/A
hazardous materials
Hazardous Materials Emergency Response –
Basic City of Albany Fire Department
Hazardous Materials Response Team City of Berkeley Fire Department of ACFD
support services
Firefighter Incident Support Unit American Red Cross
Mobile Incident Command/Communications City of Berkeley or City of Oakland Fire
Unit Departments
Fill Station for Self-Contained Breathing
Apparatus City of Albany Fire Department
Mobile Breathing Support Unit City of Berkeley Fire Department
Community Emergency Response Team City of Albany Fire Department
Chaplain Services City of Albany Police Department
Training Academy City of Albany Fire Department
Emergency Operations Center Capabilities City of Albany Fire Department
miscellaneous
Public Service Assists City of Albany Fire Department
Motor Vehicle Accident Response City of Albany Fire Department
Welfare Checks City of Albany Fire Department
City of Albany Fire Department/Police
Public Safety Answering Point Department
City of Albany Fire Department/Police
Fire/EMS Dispatch Department
Fundraising Activities City of Albany Fire Department
Firefighters Association – Non-Profit City of Albany Fire Department
Auxiliary Association N/A
The City of Albany Fire Department works closely with other agencies locally, regionally,
countywide, and statewide to provide sufficient fire and emergency response services to the
community. Various collaborations reported by the Department include:183
183 City of Albany, SoGo Survey Responses, July 2018.
Ch. 9: City of Albany 195
Policy Consulting Associates, LLC
Alameda Fire Municipal Service Review
Public Review Draft
• California Fire Chief's Association – to better fire and EMS services throughout
California,
• Emergency Medical Services Agency – to improve delivery of EMS throughout
California,
• Alameda County Fire Chief's Association – to better fire and EMS services throughout
Alameda County,
• National Fire Protection Association – to enhance fire safety, and
• Emergency Managers Association – to work regionally with local governments to
improve resiliency.
The Department also stated it is collaborating with the adjacent City of Berkley Fire
Department to provide training services and is exploring further opportunities to work together
for the sake of providing better service and cost savings.
The City also takes part in aid agreements with the following agencies to support and expand
its fire and EMS services for incidents such as wildland fires, emergencies, and events that take
place outside of the City:
• California Fire and Rescue
• Alameda County
• City of Berkeley Fire Department
• City of Piedmont Fire Department
• City of El Cerrito Fire Department
• City of Richmond Fire Department
The California Department of Forestry and Fire Protection (CAL FIRE) augments fire services
throughout the State. Generally, CAL FIRE services are focused in wildland areas defined as
State Responsibility Areas (SRA). Much of the territory outside the developed municipal areas
within Alameda County is categorized as SRA. The area east of the City of Albany is
identified as SRA. Some territory west of the City is designated as Federal Responsibility Area
(FRA), where the federal government is responsible for combating wildland fires.
In conjunction with ACFD, CAL FIRE is utilized for hand crew and helicopter services for fire
suppression. Water rescue is coordinated with the US Coast Guard, the Cities of Berkeley,
Ch. 9: City of Albany 196
Policy Consulting Associates, LLC
Alameda Fire Municipal Service Review
Public Review Draft
Oakland, and ACFD. The City also works hand in hand with local police departments for
welfare checks, as well as the California Highway Patrol.
While the population of the City of Albany has remained relatively steady since 1950, the
number of calls to the City's Fire Department increased by 750 percent. Approximately 70
percent of calls to the Fire Department are for medical emergencies.184 The CAFR for FY 22
shows 2,114 total emergency calls received. Overall, this number has been stable since 2013
when 1,849 calls were received, however, there was a 10 percent increase in FY 22 compared
to FY 19. FY 22 was also the first-time emergency call volume exceeded 2,000 calls in at least
ten years.
The Department did not provide an updated breakdown of call types. The most recent data
available per incident type is from 2014 as shown in Figure 9-6. In 2014, the Department
fielded 1,818 calls for service. Of these calls, rescue and EMS incidents account for 61 percent.
Figure 9-6: City of Albany Calls for Service, 2014
city of albany 2014 fire and emergency service calls by type
Structure Hazardous Misc. Good False Total
Fires Rescue-EMS Conditions Services Intent Alarm Calls
City of
Albany 63 1120 54 110 329 142 1,818
The City of Albany Fire Department staffed 19 full-time equivalent positions in FY 21. This
includes three fire captains, one fire chief, six fire engineers, six firefighter paramedics, and three
fire lieutenants. This is a slight decrease from 20.5 FTE budgeted fire and EMS staff positions
between FYs 17 and 19. There are also four certified rescue swimmers available for deployment
from Albany Beach.
As of the 2016 Albany Fire Department Annual Report to the Community, the Department
utilized three teams of six firefighters. The City's response to structure fires utilizes two engines
while wildfires require one engine, and a four-wheel drive brush truck in addition to necessary
mutual aid engines. Two paramedics per vehicle are required for emergency responses.
184 City of Albany Fire Department, Annual Report, Fall 2016, p. 8.
Ch. 9: City of Albany 197
Policy Consulting Associates, LLC
Alameda Fire Municipal Service Review
Public Review Draft
The Department did not report any volunteers; however, it does provide training for the
Community Emergency Response Team and hosts a Block Captain Program to encourage
neighborhood involvement in the event of an emergency or disaster.
The City of Albany has one fire station, which is located at the west end of City Hall. It
operates 24 hours a day and houses eight apparatus. The Department makes use of the
following apparatus:185:
• two engines, one of which is a reserve
• one 75-foot quint
• three ambulances, two of which are reserves
• two brush trucks, one of which is a reserve
• two administrative staff vehicles
This equipment allows for emergency and non-emergency response for a variety of incident
types. There are outlined capital improvements to be made; however, the Department did not
indicate that these needs have negatively affected its response capabilities. With assistance
from other agencies through mutual and automatic aid agreements, the Department is able to
sustain sufficient capacity for service. It is noted in the GP, however, that based on National
Fire Protection Agency standards, there are reduced or inadequate flows in certain areas of the
City, although it is typically able to meet fire flow requirements.186
Figure 9-7: City of Albany Fire Facilities
city of albany facilities
Facility Address Owner Year Built Condition
1000 San Pablo
Albany Fire Ave., Albany, CA
Station 94706 City of Albany 1966 Poor
There are a few ways the City of Albany communicates with residents to transmit important
health and safety information. These methods include broadcasting emergency messages over
local KALB media government access channels, streaming online, and utilizing its social media
outlets: Twitter, Facebook, Instagram, YouTube, LinkedIn, and Nextdoor. They also utilize
bulletin boards and provide kiosk content for various communications.
185 City of Albany, Biennial Budget FY2019-2020 & 2020-2021, p. 32
186 City of Albany, General Plan, p. 9-12
Ch. 9: City of Albany 198
Policy Consulting Associates, LLC
Alameda Fire Municipal Service Review
Public Review Draft
The City's Law Enforcement Support Services Division operates a Dispatch Communications
Unit that is the Public Safety Answering Point (PSAP) and responsible for dispatch
communications for all emergency calls in the City, including fire and medical services. Cell
phone calls to 9-1-1 may be directed to the California Highway Patrol, which would redirect the
call to the City's fire department and any other necessary agency. The City also operates a
Regional Information Management System to coordinate communications with the County and
other state agencies.
The City collaborates with the Alameda County Regional Emergency Communications Center
(ACRECC), which is equipped to receive all 9-1-1 calls for EMS ambulance services within the
County (with the exception of the City of Oakland) that originate from a PSAP such as the
City of Albany's Police Department dispatch unit.
Cooperation and consolidation of facilities is an impactful way to limit operating costs for the
City while still effectively providing needed services. The Department is collaborating with the
adjacent City of Berkley Fire Department to provide training services and is exploring further
opportunities to work together for the sake of providing better service and cost savings. It is
possible, based on the City's desire to collaborate with the City of Berkeley for departmental
training services that this could include shared facilities as a cost-saving measure.
There is a paved area that is anticipated to be constructed as part of a capital improvement
for Police Department storage needs. This paved area would be shared for use by the City's
Fire Department.187
The Department also indicated the need to continue ongoing collaborative efforts with regional
providers to ensure support for efficient service adequacy.
The City of Albany Fire Department has indicated both short- and long-term capital facility
needs. Near-term needs include new vehicles and equipment and technological upgrades to the
9-1-1 center and mobile dispatch terminals in emergency response apparatus. While long-term
needs have been identified as increasing personnel and/or mutual aid agreements as the City
187 City of Albany, CIP FY2018-2022, project #50104.
Ch. 9: City of Albany 199
Policy Consulting Associates, LLC
Alameda Fire Municipal Service Review
Public Review Draft
continues to grow. This growth would correlate to replacing emergency vehicles and supplies
more often.188
Presently, the City's Capital Improvement Plan for FY 22 indicates the addition of a paved
area in front of the Police Department's new storage area for use by the Fire Department was
budgeted for in FY 20. Installing a new air conditioning HVAC unit for the Fire Department
was also a recent improvement. One of the most significant capital improvements planned for
2022 is the replacement of the Department's fire fleet. This project would not only result in a
longer life cycle of its current apparatus but also enable the Department to reserve vehicles for
service response sufficiently.
The Department indicated that its most significant challenge is financial limitations due to the
COVID-19 pandemic. This event exacerbated an existing fiscal strain on the Department,
mainly due to personnel costs outpacing the revenue rate, primarily from property taxes.107
The other challenges are said to be the lack of water supply and pressure needed to meet fire
flow requirements and insufficient space on roadways that inhibits emergency vehicles from
accessing areas for effective response.108
This section reviews indicators of service adequacy, including response times, ISO rating, and
complaints received. There are many measures of a successful fire protection service. For
example, the agency would meet guidelines established by the National Fire Protection
Association (NFPA), the Center for Public Safety Excellence (CPSE) (formerly the
Commission on Fire Accreditation International), and the California EMS Agency. There are
also Public Protection Classifications (PPC) that likewise establish an agency's level of service.
The Department's response time goals are four minutes 90 percent of the time for initial unit
response and eight minutes 90 percent of the time for full structure fire alarm response. Per
the City's contract with the Alameda County EMS Agency, emergency medical call response
is to be no longer than eight minutes and 30 seconds from the time of the call for 90 percent
of calls.189
Figure 9-8: City of Albany Response Time Policy
188 City of Albany, 2035 General Plan, p. 9-14.
189 City of Albany, 2035 General Plan, p. 9-12.
Ch. 9: City of Albany 200
Policy Consulting Associates, LLC
Alameda Fire Municipal Service Review
Public Review Draft
response times for the city of albany
Agency Name Single Unit Incident Multiple Unit Incident
The arrival of first company on the scene
within 8 minutes for 90 percent of all
Arrive within 4 minutes from the
incidents. Remaining units should arrive
time the Company is first
City of Albany on the scene of an incident within 10
dispatched for 90 percent of
minutes from when the first due company
incidents.
begins responding for 90 percent of all
incidents.
The City indicated its response times for FY 21 met its goal with an initial response time of 3
minutes and 38 seconds to single unit incidents within the City of Albany.
Fire services in the communities are classified by the Insurance Service Office (ISO) as an
indicator of the general adequacy of coverage. Communities with the best fire department
facilities, systems for water distribution, fire alarms and communications, and equipment and
personnel receive a rating of 1. The City of Albany's most recently posted ISO rating is 2 as of
August 2015.
The Department did not provide information as to whether any complaints regarding fire
service were received in FY 21.
Ch. 9: City of Albany 201
Policy Consulting Associates, LLC
Alameda Fire Municipal Service Review
Public Review Draft
9-1: The City of Albany had a population of 21,648 as of 2022 based on Department of
Finance estimates. Population growth has increased at a more rapid pace since 2019
and has already exceeded ABAG predictions for 2022.
9-2: The anticipated population of the City by 2040 is projected to be 20,425. The current
population has already surpassed this number, however, and several major
development projects are already planned.
9-3: The City of Albany does not have any areas the meet the Alameda LAFCO-
adopted definition of a DUC within or contiguous to its SOI.
9-4: Without response time information, it is difficult to assess whether Albany FD has
sufficient existing capacity to meet current levels of demand. Financial constraints
have resulted in reduced staffing of the Department, which may have affected
capacity to staff stations and respond to calls for service.
9-5: With the help of mutual and automatic aid services, the Department is adequately
meeting its fire and emergency response services. There should, however, be
continued reevaluation of the service area and response times, consideration for
increased revenue to support growth, and efforts to increase fire flow to areas in need
in order to ensure service levels are maintained.
9-6: Albany Fire Department infrastructure needs are currently being met by the City as
planned and budgeted for in its capital improvement plans. No significant unfunded
infrastructure needs were identified. Ancillary infrastructure needs impacting fire and
emergency service provision are the lack of water supply and pressure needed to meet
fire flow requirements and insufficient space on roadways that inhibits emergency
vehicles from accessing areas for effective response.
9-7: The City of Albany Fire Department has the financial ability to continue to provide
services. Continued fire service and EMS expenditure growth has been increasingly
funded by the City's General Fund.
Ch. 9: City of Albany 202
Policy Consulting Associates, LLC
Alameda Fire Municipal Service Review
Public Review Draft
9-8: Albany Fire Department is collaborating with the adjacent City of Berkley Fire
Department to provide training services and is exploring further opportunities to work
together for the sake of providing better service and cost savings. The Department
also indicated the need to continue ongoing collaborative efforts with regional
providers to ensure support for efficient service adequacy.
9-9: It is recommended that the Department join fellow Alameda fire providers to develop
a regional, countywide dispatch strategy that employs the closest resource for the
fastest response time, regardless of agency boundaries or responsibility.
9-10: The City of Albany abides by all legislative obligations for accountability and
governance practices.
9-11: The City of Albany demonstrated transparency when sharing information for the
creation of this report. There were, however, documents and information not provided
or readily available online or in reports.
9-12: No governance structure alternatives specific to the City of Albany Fire Department
were identified over the course of this review; however, it is recommended that the
Department continue to seek ways to collaborate and enhance service levels on a
regional level with other providers.
Ch. 9: City of Albany 203
Policy Consulting Associates, LLC
Alameda Fire Municipal Service Review
Public Review Draft
The City of Berkeley is among the oldest cities in California. It was founded in 1864,
incorporated as a town in 1878, and incorporated as a City in 1909. At the geographic
midpoint of the Greater Bay Area, Berkeley is 20 minutes from San Francisco and close to
population centers in Contra Costa County and Silicon Valley. According to census data, the
City has the highest population density of any city in the East Bay. It is also the second most
dense City of California's 51 most populated cities.
The City's first charter was adopted on March 5, 1895, and in 1923, Berkeley adopted the
Council-Manager form of government.190 The City provides a full range of services—public
safety (police and fire); sanitation and sewer; waste management; leisure (parks, recreation, and
marina); health, housing, and community services, including City funded health clinics and
mental health services; animal control; public improvements; planning and zoning; general and
administrative services; and library services. 191
The City of Berkeley is home to the founding campus of the University of California. With
42,327 students (fall 2021) and approximately 12,944 employees, the University provides a high
degree of economic stability for the City and has spurred growth in the high technology and
biotechnology sectors.
During FY 22, the City of Berkeley's economic base consisted of approximately 12,653 active
licensed businesses operating in the City, including 904 new applications. These businesses
include private manufacturing, technology research, retail and service businesses, educational
services, healthcare and social assistance, cannabis clubs, consulting, arts and entertainment,
and hospitality services, along with several state, federal, and non-profit institutions.192
190 City of Berkeley City Clerk Home.
https://web.archive.org/web/20160623182312/http://www.ci.berkeley.ca.us/Clerk/Home/Structure_of_Berkeley_Government.as
px.
191 Annual Comprehensive Financial Report. https://berkeleyca.gov/sites/default/files/documents/annual-comprehensive-
financial-report-fy2022.pdf. June 30, 2022. Page vii.
192 Annual Comprehensive Financial Report. https://berkeleyca.gov/sites/default/files/documents/annual-comprehensive-
financial-report-fy2022.pdf. June 30, 2022. Page viii.
Ch. 10: City of Berkeley 204
Policy Consulting Associates, LLC
Alameda Fire Municipal Service Review
Public Review Draft
The City of Berkeley was last included in an MSR Update by Alameda LAFCO that was
adopted in 2018. There was also a Countywide MSR update for water, wastewater, flood
control and stormwater services completed in 2021. This MSR is focused on the City's fire and
emergency medical services.
The City of Berkeley encompasses a total area of approximately 19 square miles, 10.5 square
miles on land. The City is located in Alameda County on the east side of the San Francisco
Bay about 10 miles east of San Francisco.193 Figure 10-1 depicts the City's boundaries.
Figure 10-1: City of Berkeley Boundaries and SOI
City of Berkeley
Range 04 West Range 03 West
h
h
t
t
u
ro
o
N
S 1
1
0
0
p
p
i
i
h
h
s
s
n
n
w
w
o
o
T
T
0
0 0 0 0
Berkeley
Em
§¨¦
e
58
r
0
0
yv
0
i
0
§¨¦
S
l
a
8
n
l
M
0 e
ateo S
A
t
C §¨¦
Sa
F
n
8
Pa
F 0
blo A
G
S
ve R
i
ic
3
l
h
B m
S
m
0
6
F
t
o
4
h
n
S
E
o
t
d
a
a S A
P
l
A
R n
i t
a
s r
o
m
n
h
C
F S
w
b
7
o
t
M
h
o
t S
u
S F t e
r y u
a A
l
A
0
F
U
l
v n
B
r
A UV
e
v
6
§¨¦
i
S 1
t
n
S
n
5 E
e
s
H
t
A
2
i
h 8
v
R 3
A
o
3
v
b
e
0
p
5
v
e
F
C
y
r
urtis
k
St e
s
S
i
S A
n
a
i
n P
t
a 0
s
b v l
y
o A v 1 e e
S C
A
C
t
o
e R
v
lu
d
s
Sa
e
c
o
ram
a
e A
a
nto M
M
S
s
t
r
o A
l
e
a c
n
S
v
D c a
S
t e e
t
a w t
t
r
r r Ma
e
rk a i et S t t g
y
h z
rJ gniK
rehtuL nitraM
h
A
u
rli
A
ng
t A
t
r
o
d
n
e v
A
W l
v B
i B
e
ne e S
E
UV l a t v y 2
R
d 4
F M
Shattuck
4
Ave
S
Shattuck
a
Ave
B
0
r
B
0
t
i
E
n
h
t 4 S ecurpS
E
R
A
S 5
B
T R ele
v
g 1
F
r t ap
a
h
e
A s C F ve
S
n
l t a B S
c
r
0
S r e o
r
m 0 a
2
t
o
d o P w 5 n
f
a i t
t
y e A d
W
v m e
a
evA
o egelloC
y
n C t h A a v B b e E o UV t R 1 R
B
3 F d
E
S
R
0
A
O
F
3
C
B
S
r a
F
o
0
F
a k
7
S
d l w
1
a a
9
n y d Ter Mo
S
r
a
a
n
g
Pa
a
b l
0
A UV
o
v 2 UV
D
e 4 1
am
3
Gri
R
zzly
5
d
PeakBlvd
8 Skyline Sn B ak l 0 v e d Rd 9
4
1
0
6
Alameda County Legend
MaritimeStGrand Ave
O Alameda County
Mountain Ave
City of Berkeley
S L o o ur c ce a : A l la A m g ed e a n
g i D n
L
e i
A
t
c
s e n
F
c
y
n e
C
l d a r
o
a e
F
im l d
o
d e t i r s o
r
: p
m
b T la e h
a
y e u
t
p s i
i
n u e
o
f r
M
d o p
n
r
a
o f m
p
o s
C
r a
C
e r t s
r o
i e
e
o o f
a
n
m
e
t
n
e
r s l e
d
y
m
h n
1
o a c
/
n w
i 7
e
s /
d n
2
a
s 0
i n i s s
2 i
d
3 on kj A A
F
A
C
C
i
d l l o
r i
a a
t e
j m m m a
y S
c m e e e
o t
d d
a
u n
f
a a
t
n t
i B o
i C C C t
n
i o
e
i o e t
s
u y s u
r k
n n B t
e
t y o y
l
u
e
B B n
y
o o d u u a n n r d i d e a a s r r y ies C S o a u n n t F y ranci
S
sco
a
P
C
kj
n
i kj ekj
o
A d E
u
B
M
l m m b kj e
n
a
a
e o rn
t
A k kj r n
ty
y ye
e
l t a O vl kj
o
e m i a lyl k e e l d a a nd kjSan
kj
L
H
e
a kj
a
y F
n
w r
d
e a m
r
r
o
d o kj n U kjt n N io e n w C a
P C
r it k
l
y
e o a nC sa t kj or n au t
A
o D kj n n C u
la
t b oy
m
li s n t
e
a
da C
kj
o
L
u
iv
n
er
t
m
y
ore San Joaquin County
not to be used as an official map. 0 0.25 0.5 1Mile Santa Clara County
193 Annual Comprehensive Financial Report. https://berkeleyca.gov/sites/default/files/documents/annual-comprehensive-
financial-report-fy2022.pdf. June 30, 2022. Page viii.
Ch. 10: City of Berkeley 205
Policy Consulting Associates, LLC
Alameda Fire Municipal Service Review
Public Review Draft
The City provides fire and emergency services outside its municipal boundary and SOI via
automatic aid and mutual aid agreements with the City of Albany, City of El Cerrito, the
Town of Kensington, and the Moraga-Orinda Fire Protection District.194
There are no unserved areas identified in the City of Berkeley. The City is able to provide
service throughout its bounds. In addition, Alameda County Fire Department staffs one station
that serves Lawrence Berkeley National Laboratory, which is within Berkeley's city limits.
The City of Berkley's Sphere of Influence (SOI) was originally established by LAFCO in 1983
and is mostly coterminous with its boundaries except for a portion of the SOI that extends into
Oakland in the Panoramic Hill area, based on LAFCO's recommendation for the Cities of
Berkeley and Oakland to work together to resolve service issues in the Panoramic Hill area.
The current SOI for the City of Berkeley was last reaffirmed on January 11, 2018.195
Accountability of a governing body is signified by a combination of several indicators. The
indicators chosen here focus on 1) agency efforts to engage and educate constituents through
outreach activities, in addition to legally required activities such as agenda posting and public
meetings, 2) a website with the required content and other useful information, 3) timely ethics
training for board/councils members and an adopted reimbursement policy, 4) a defined
complaint process designed to handle all issues to resolution, 5) adopted bylaws that provide a
framework and direction for governance and administration, 6) adoption of a conflict-of-interest
code as required by law, 7) proper filing of Form 700 by the governing body members, and 8)
transparency of the agency as indicated by cooperation with the MSR process and information
disclosure at meetings, in documents, and on a website.
The City of Berkeley has a Council-Manager form of government with a City Manager, a
citywide Mayor, and eight Councilmembers elected by district for four-year terms. Current
council member names, positions, and term expiration dates are shown in Figure 10-2.
194 Alameda Local Agency Formation Commission Municipal Service Review Update. https://alamedaLAFCO.org/wp-
content/uploads/2021/11/2018-04-Berkeley-Reaffirm-SOI.pdf. January 11, 2018. Page 4-11
195 Alameda Local Agency Formation Commission Municipal Service Review Update. https://alamedaLAFCO.org/wp-
content/uploads/2021/11/2018-04-Berkeley-Reaffirm-SOI.pdf. January 11, 2018. Page 4-15
Ch. 10: City of Berkeley 206
Policy Consulting Associates, LLC
Alameda Fire Municipal Service Review
Public Review Draft
The governing body meets two Tuesdays of each month at 6:00 pm except during recess
periods, and the Council establishes the official schedule annually. The in-person meetings are
held at the Berkeley Unified School District Boardroom at 1231 Addison Street in Berkeley.
Agendas are available 12 days before each meeting online or in person at the City Clerk
Department. Meeting minutes are not available on the City's website; however, per the
Berkeley City Council Rules of Procedure and Order, minutes must be maintained and made
available upon request. Through the City website, the public can access live audio/visual
webcasts and archived audio and/or visual webcasts of regular Board meetings.
Additionally, to participate in a City Council meeting virtually, constituents can join by phone
or online using Zoom. The meeting is also available to watch on Cable B-TV (Channel 33) on
Wednesdays at 9:00 am and the following Sunday at 9:00 am. The live stream on the City's
website and Cable B-TV viewing does not allow public comment.
Figure 10-2: City of Berkeley Governing Body
governing body
Elections at large for Mayor & by-district for
Manner of Selection
Councilmembers.
Length of Term 4 years for both Councilmembers and Mayor.
Two Tuesdays of the month at 6:00 pm
Berkeley Unified School District Boardroom
Meetings
1231 Addison Street
Berkeley, CA 94702
Posted online or in person at the City Clerk
Agenda Distribution
Department.
Minutes Distribution Available upon request.
council members
Term Manner of Length of
Member Name District Position Expiration Selection Term
Councilmember /
Jesse Arreguín Mayor 2024 Elected 4 Years
Rashi Kesarwani 1 Councilmember 2026 Elected 4 Years
Terry Taplin 2 Councilmember 2024 Elected 4 Years
Ben Bartlett 3 Councilmember 2024 Elected 4 Years
Kate Harrison 4 Councilmember 2026 Elected 4 Years
Sophie Hahn 5 Councilmember 2024 Elected 4 Years
Susan Wengraf 6 Councilmember 2024 Elected 4 Years
Rigel Robinson 7 Councilmember 2026 Elected 4 Years
Mark Humbert 8 Councilmember 2026 Elected 4 Years
Ch. 10: City of Berkeley 207
Policy Consulting Associates, LLC
Alameda Fire Municipal Service Review
Public Review Draft
contact
Contact Dee Williams-Ridley, City Manager
Mailing Address 2180 Milvia Street, Berkeley, CA
Phone 510-981-6903
Email/Website manager@cityofberkeley.info
The City of Berkeley participates in community outreach events, including annual virtual
community events such as Mental Health Month, workshops and seminars, and city festivals.
The City also maintains several commissions to advise the City Council on various city
functions, such as the Environment and Climate Commission, Disaster and Fire Safety
Commission, Civic Arts Commission, and Police Accountability Board.
All City of Berkeley's City Council members have current filings for Form 700 with the
California Fair Political Practices Commission, indicating transparency in their economic
interests.
Through the City, there also exists a conflict-of-interest code and bylaws, outlined in the
municipal code, as lawfully required and by which the City of Berkeley must abide.
All complaints concerning the Berkeley Fire Department (BFD) or any of its employees are
investigated, and a response is provided to the complainant. Constituents can file complaints in
several ways, including utilizing specific forms provided on the City of Berkeley's website. If
none of the available forms match a request, constituents can submit a general request for
service or information form available on the City's website. Constituents can also phone the
City or visit the fire administration office.
There is legislation to help ensure public agencies adhere to accountability standards.
California AB 2257 (Government Code §54954.2) is an update to the Brown Act and
indicates requirements for methods by which an agenda for all meetings should be made
available on an agency's website. The City of Berkeley complies with this regulation.
The City of Berkeley demonstrated accountability in its disclosure of information and
cooperation with the LAFCO questionnaires and other requests for information.
While public sector management standards vary depending on the size and scope of the
organization, there are minimum standards. Well-managed organizations evaluate employees
annually, track employee and agency productivity, periodically review agency performance,
Ch. 10: City of Berkeley 208
Policy Consulting Associates, LLC
Alameda Fire Municipal Service Review
Public Review Draft
prepare a budget before the beginning of the fiscal year, conduct periodic financial audits to
safeguard the public trust, maintain relatively current financial records, conduct advanced
planning for future service needs, and plan and budget for capital needs.
The City accounts and plans for its fire and emergency services in a number of its planning
and management documents, particularly in the biennial budget, Comprehensive Annual
Financial Report, and General Plan.
The BFD was staffed by approximately 153 full-time personnel in FY 20-21. Due to an
undertaking of reorganizational effort to enhance services, the adopted FY 23-24 budget
indicates an increase in the Department's full-time equivalent (FTE) positions by 50 positions or
35 percent compared to FY 20-21. The Fire Chief, appointed by the City Manager, leads the
Department in all areas of fire protection and overall management including overseeing all
department divisions. According to the FY 23-24 proposed budget, the Berkeley FD is
organized into five divisions that report to the Office of the Fire Chief—Administrative & Fiscal
Services, Fire Operations, Fire Prevention, Wildland Urban Interface (WUI), and Special
Operations. The Operation Division represents four distinct sub-divisions in the Fire
Department: Fire Suppression and the Division of Training and Safety, Emergency Medical
Services (EMS), and Support Services. Additionally, the Special Operations division manages
the Office of Emergency Services. 196
Regular performance reports are made annually by Company Officers and Assistant Chiefs on
all members of the Berkeley FD below the rank of Fire Chief. Probationary performance
reports are made every six months on new firefighters during their two-year probationary
period, every four months on all probationary appointees to promotional positions that have
one-year probationary periods, and every two months for probationary employees with a six-
month probationary period. 197 The Department's performance measurement criteria for its
overall services consist of call response times and fire prevention inspections. The Berkeley FD
monitors its workload through performance reviews, which identify staffing and resource
deficiencies.
The City's various planning documents provide the framework for goals and policies relating to
fire protection and emergency response. The Berkeley FD aims to provide 24-hour response to
emergencies including fires, medical emergencies, hazardous material events, water rescue,
196 The City of Berkeley Adopted Budget Fiscal Years 2023-2024.https://berkeleyca.gov/sites/default/files/documents/FY-
2023-2024-Adopted-Budget-Book.pdf, page 157-158, 245.
197 Manual of Procedures. Rev. February 96.
Ch. 10: City of Berkeley 209
Policy Consulting Associates, LLC
Alameda Fire Municipal Service Review
Public Review Draft
disaster response, and other life-threatening situations to the Berkeley community, including the
University of California Berkeley.
The City of Berkeley's General Plan (GP) originally adopted in 2002, identifies protecting local
and regional environmental quality as one of the major goals. The GP also has a Disaster
Preparedness and Safety Element which provides the policy framework to support the City's
mitigation, emergency preparedness, disaster response, and recovery efforts. Additionally, the
plan identifies fire as one of the major potential hazards confronting the Berkeley community.
The areas that are most vulnerable include hillside residential areas near and adjacent to
wildland areas, structures built with combustible materials, areas of heavy or unmanaged
vegetation, circulation and utilities, and the water delivery system. The policies and actions
outlined from S-21 to S-25 in the Disaster Preparation and Safety Element are geared toward
fire—Fire Prevention Design Standards, Fire Fighting Infrastructure, Property Maintenance,
Mutual Aid, and Fire Education. 198
Berkeley FD's finances are managed by the City. The City of Berkeley employs a two-year
budget process, and an annual financial audit is required by the City Charter. City financial
planning documents include a biennial budget and Annual Comprehensive Financial Report
(ACFR). In conjunction with the biennial budget process, the City of Berkeley prepares a
Capital Improvement Plan (CIP) that identifies anticipated project expenditures over a five-year
time frame. The CIP provides a roadmap of the projected infrastructure improvement needs of
the City of Berkeley. The City does not compile a long-term financial plan with fiscal
projections.
The City of Berkeley's Strategic Plan identifies the city government's long-term goals on behalf
of the Berkeley community. The City Council approved the plan in January 2018.199 The City's
strategic goals include an EMS redesign project led by Berkeley Fire and Emergency Services.
The project involves meeting and conferring, developing job classifications, funding sources, and
program design to allow for the expansion of EMS operations in a more efficient cost and
response model, including Basic Life Support ambulances, Advanced Life Support ambulances,
code 3 equipped vehicles, equipment for operations in austere environments and prioritized
dispatching. Additional projects led by the Berkeley Fire and Emergency Services include the
Wildfire Safety and Public Education Program, Standards of Coverage and Infrastructure
Needs Study, Fire Prevention, Property Acquisition, Fire Department Communications, and
198 The Berkeley General Plan. https://berkeleyca.gov/your-government/our-work/adopted-plans/general-
plan#:~:text=The%20Berkeley%20General%20Plan%20is,are%20essential%20for%20responsive%20government. April 23, 2002
(Page I-4, S-12, S-13).
199 The City of Berkeley's Strategic Plan. https://berkeleyca.gov/your-government/our-work/strategic-plan. January 2018.
Ch. 10: City of Berkeley 210
Policy Consulting Associates, LLC
Alameda Fire Municipal Service Review
Public Review Draft
more. The status of Strategic Plan projects can be found in the City's Strategic Plan Quarterly
Report. 200
The City of Berkeley also has a Climate Action Plan that sets forth a vision of a more
sustainable, livable, equitable, and economically vibrant community. The plan was written
through a community-wide process and was adopted by the City Council on June 2, 2009,
after voters issued a call to action on the climate change challenge to reduce the community's
greenhouse gas emissions by 80 percent below 2000 levels by 2050. This is beyond the
State's Climate Change Scoping Plan, which encourages local governments to adopt goals to
reduce greenhouse gas (GHG) emissions by 80 percent below 1990 levels by 2050. The plan
outlines the severe economic, health, social, and economic impact climate change has including
threats to coastal infrastructure due to a rising San Francisco Bay, increased incidence of large
wildfires, serious public health threats, and water shortages. 201 Some of the policies and goals
relevant to fire services are:
• Installing solar thermal systems on Berkeley Fire Stations to offset natural gas
consumed for water heating to continue to actively identify and implement cost-effective
opportunities to utilize renewable energy systems in public buildings.
• Develop a vegetation and fuel management plan in parts of the City designated as
high-fire hazard areas. The plan would reduce the risk of catastrophic wildfires, thereby
protecting homes, wildlife, and air quality as well as mitigating the impact on GHG
emissions of the loss of trees due to wildfire.
This section discusses the factors affecting service demand, such as land uses, and historical
and anticipated population growth.
The City of Berkeley encompasses a total area of approximately 19 square miles. According to
the General Plan (GP), the Land Use Element policies are closely related to the
Transportation Element, Urban Design and Preservation Element, and Citizen Participation
Element policies. The basic land use pattern of Berkeley was established by the early 1900s.
200 The Strategic Plan Quarterly Report. https://berkeleyca.gov/sites/default/files/documents/Strategic-Plan_Q2-
2022_Report.pdf. July 2022. Appendix-11.
201 The City of Berkeley's Climate Action Plan. https://berkeleyca.gov/your-government/our-work/adopted-plans/berkeley-
climate-action-plan, June 2, 2009.
Ch. 10: City of Berkeley 211
Policy Consulting Associates, LLC
Alameda Fire Municipal Service Review
Public Review Draft
According to the GP, at the time of its adoption, the general distribution of land uses in the
City did not change significantly in the 40 years prior to 2001. Residential uses (48 percent)
and streets (24 percent) occupied almost three-quarters of the overall city land area.
Institutional uses, such as the University of California, schools, churches, public facilities, and
hospitals, occupied approximately nine percent of the total land area. The area of land
occupied by commercial activity was estimated at approximately seven percent of the City's
total acreage. Only two percent of the City's land area was vacant and most of that land was
in the area that was purchased by the East Bay Regional Park District for the Eastshore State
Park.202 Land uses have not significantly changed since that time.
The Housing Element of the GP has since then been updated every eight years as mandated
by State law, to serve as the City of Berkeley's housing plan, with the most recent update
covering the years 2023-2031. The plan contains goals, policies, and programs that will guide
the City's decision-making around the development and rehabilitation of housing.
The Housing Element includes an inventory of sites that can accommodate new housing
sufficiently to meet the City's Regional Housing Needs Allocation (RHNA) obligation at each
income level. More than 50 percent of the sites identified to accommodate the City's low-
income RHNA obligation are non-vacant. However, the City specifically finds that the existing
uses on such non-vacant parcels identified in the sites inventory to accommodate the lower
income RHNA are likely to be integrated with new residential uses or discontinued during the
planning period, and therefore will not constrain development or redevelopment of additional
residential units during the 2023-2031 planning period, and so such sites can meet their
development potential.203
The Housing Element provides an analysis of barriers that restrict access to opportunity, and a
commitment to specific meaningful actions to affirmatively further fair housing.204
Since 2000 the City's population has grown steadily, increasing approximately nine percent
each decade. According to the 2020 Census, the City's population was estimated to be
around 124,000. Between 2010 and 2022, the City's population increased slightly from 112,580
202 Land Use Element of General Plan. https://berkeleyca.gov/sites/default/files/documents/02_Land%20Use%20Element-
FINAL.pdf.Page LU-2.
203 Housing Element Update 2023-2031. https://berkeleyca.gov/construction-development/land-use-development/general-plan-
and-area-plans/housing-element-update.Page 5.
204 Housing Element Update 2023-2031. https://berkeleyca.gov/construction-development/land-use-development/general-plan-
and-area-plans/housing-element-update.Page 7.
Ch. 10: City of Berkeley 212
Policy Consulting Associates, LLC
Alameda Fire Municipal Service Review
Public Review Draft
to 125,266 or by approximately 0.1 percent. The City's population trend over the last 12 years
is shown in Figure 10-3.
Ch. 10: City of Berkeley 213
Policy Consulting Associates, LLC
Alameda Fire Municipal Service Review
Public Review Draft
Figure 10-3: City of Berkeley Population Growth, 2010-2022
City of Berkeley Population 2010-2022
130,000
125,000
120,000
115,000
110,000
105,000
100,000
4/1/10 1/1/11 1/1/12 1/1/13 1/1/14 1/1/15 1/1/16 1/1/17 1/1/18 1/1/19 1/1/20 1/1/21 1/1/22
The Association of Bay Area Governments (ABAG) Plan Bay Area 2040 projections indicate
that the City of Berkeley's population is anticipated to continue to grow steadily between 2020
and 2040 and is anticipated to increase to 136,000 by 2030 and 141,000 by 2040.205 The
Average Annual Growth Rate (AAGR) from 2020 through 2030 is 0.9 percent and is
projected to slow to 0.4 percent AAGR from 2030 through 2040.
In terms of growth effects on fire and emergency services provided to the City by BFD,
increases in population and density are expected to be a source of increased demand. Taller
buildings and added density increase the complexity of the department's emergency response.
Increased population, including increased UC Berkeley student population, translates into
increased calls for service. Additionally, increased demand translates to a need for additional
facilities. Also, the impending closure of some of Berkeley's Alta Bates Summit Medical Center
services, coupled with the aging of Berkeley's population, will likely translate to the need for an
expansion of ambulance transport services.
According to the City of Berkley's Planning Commission (PC) work plan, for FY 22-23 the
focus is mainly on issues of housing supply and affordability as dictated by City Council
205 City of Berkeley Housing Element Update 2023- 2031 https://berkeleyca.gov/sites/default/files/documents/Berkeley_2023-
2031%20Housing%20Element_02-17-2023v2_1.pdf. Page 20-
Ch. 10: City of Berkeley 214
Policy Consulting Associates, LLC
Alameda Fire Municipal Service Review
Public Review Draft
referrals, changes to State law, and planning requirements from the State Department of
Housing and Community Development (HCD).
There are several significant development projects in various stages of planning and
construction within the City of Berkeley.206 Some of these projects are outlined in Figure 10-4.
These developments are aligned with the City's planning and land use documents such as the
neighborhood-specific area plans and the General Plan.207
Figure 10-4: City of Berkeley Planned or Proposed Development Projects, 2023
city of berkeley development projects
project # of dwelling units commercial square feet
African American Holistic
Resource Center 4,000
BART Sites- Ashby and North
Berkeley Bart Station 2,400 125,000
Berkeley Unified School District
(BUSD) Workforce Housing
Development 110-120
Berkeley Pier with Ferry Access
Project 32,560
Frances Albrier Community
Center Replacement Project 3,301
MLK Jr. Youth Services
Center/ Y.A.P. Seismic Retrofit
and Renovation
Waterfront Specific Plan
total 2,510+ 164,861+61
The FY 23-24 Proposed Budget explores the increased demands for the City of Berkeley Fire
Department as the Department's basic structure has stayed the same since the 1980s, but the
demand and need for services have greatly increased, growing from two services (structure fires
and fire prevention) to 16. There is a further expected increase in relation to the expected
expansion of services at Berkeley Marina.
In addition to expanding ambulance transport services to address the growing need, the BFD is
also working in partnership with other departments and the community to plan a model of care
and transport for mental health patients.
206 City of Berkeley Capital Projects. https://berkeleyca.gov/your-government/our-work/capital-projects.
207 General Plans and Area Plans. https://berkeleyca.gov/construction-development/land-use-development/general-plan-and-
area-plans.
Ch. 10: City of Berkeley 215
Policy Consulting Associates, LLC
Alameda Fire Municipal Service Review
Public Review Draft
Furthermore, the Department has partnered with Public Works to begin work on a landmark
Fire Facilities Master Plan that will provide a clear needs assessment and plan for the next 20
years.208
The Department budget increased due to the passing of Measure FF—funding for fire services,
emergency response, 9-1-1 communication, hazard mitigation, and wildfire prevention, as well as
UC Settlement funds that will be appropriated in the FY 23-24 budget cycle. These funds will
support the Department's proposed reorganization as well as support the several mandated
programs, projects, and services that have begun.209
Per the Census Designated Places (CDP), as of 2021, there are no disadvantaged
unincorporated communities (DUCs) that meet the basic, State-mandated criteria within the
City of Berkeley.
The City of Berkeley Fire Department has the financial ability to continue to provide services.
Voters recently approved funds to maintain and increase services. Growth in fire-related
revenues helped to reduce the need for contributions from the General Fund, which has been
adversely affected by COVID-19. The General Fund drew down its reserves in FY2020-21 to
maintain City services.
Over the longer term, the City is concerned that "the City's pension plans are underfunded"
and the City's current pensions liability is approximately $751.1 million.210 The City's pension
pensions contributions are anticipated to grow significantly over the next ten years. The City is
taking steps, including establishing a pension trust fund to help pre-fund pension obligations.
Since FY2017-18 the Fire Department's expenditures increased a rate greater than inflation; at
the same time, revenues augmented by recent voter-approved funds have kept pace and Net
208 City of Berkeley Proposed Budget Fiscal years 2023- 2024 https://berkeleyca.gov/sites/default/files/documents/FY-23-24-
Proposed-Budget.pdf. Page 157.
209 City of Berkeley Proposed Budget Fiscal years 2023- 2024 https://berkeleyca.gov/sites/default/files/documents/FY-23-24-
Proposed-Budget.pdf. Page 159.
210 Proposed Annual Budget Fiscal Year 2022, Health of General Fund Reserves, pg. 16.
Ch. 10: City of Berkeley 216
Policy Consulting Associates, LLC
Alameda Fire Municipal Service Review
Public Review Draft
General Fund contributions consequently grew slightly slower than total fire expenditures. Fire
Department finances have been significantly affected by COVID-19 – programs and hiring
were deferred, however, this resulted in significant increases in overtime costs and also
adversely affected employee morale.211
A number of voter-approved measures provide funding. Measure FF, approved by more than
two-thirds of voters in 2020, authorized an annual parcel tax of $0.1047 per square foot per
parcel, thereby generating an estimated $8.5 million per year for fire services, emergency
response, 9-1-1 communication, hazard mitigation and wildfire prevention.212 The City also funds
services using its Emergency Medical Services Tax (Paramedic Tax), which adjusts annually to
keep pace with inflation. Measure GG was approved in 2008 and establishes a parcel tax to
"to enable the City to keep fire stations open and improve emergency medical response and
disaster preparedness.213 These measures have an inflation adjustment and no sunset date.
FY2017-18 through FY2021-22 City General Fund revenues averaged minimal growth, largely
due to significant shortfalls in FY2020-21 due to COVID-19. General Fund expenditures
continued to grow over that period at an average 4.8 percent annual rate requiring the use of
City reserves to maintain services.
The City has identified a number of cost containment strategies including 1) a "risk analysis" –
the City is preparing its first standards of coverage analysis; 2) a fiscal impact analysis of
development to project service cost and revenue impacts of new development; 3) the City is
working on a Master Fire Facilities Study to address needs for major facility renovations and
replacements due to disrepair and inadequate capacities; and 4) improvements in the current
system for planning the maintenance and replacement of apparatus.214
Revenue strategies include increases in fire prevention staffing to handle a significant amount of
new development; these staff costs will be covered by fees. The Fire Department is evaluating
its ambulance billing process in anticipation of potential new revenue. Increased vegetation
management inspections are expected to generate more revenue to cover costs of the
program.215 The Department continues to apply for and receive grant funding (e.g., Regional
Leadership Academy; Active Shooter Training and Equipment).
211 Response to Alameda Fire and EMS MSR Follow-up Questionnaire.
212 See website:
https://ballotpedia.org/Berkeley,_California,_Measure_FF,_Emergency_Response_and_Preparedness_Parcel_Tax_(November
_2020).
213 https://ballotpedia.org/City_of_Berkeley_parcel_tax,_Measure_GG_(November_2008).
214 Response to Alameda Fire and EMS MSR Follow-up Questionnaire.
215 Response to Alameda Fire and EMS MSR Follow-up Questionnaire.
Ch. 10: City of Berkeley 217
Policy Consulting Associates, LLC
Alameda Fire Municipal Service Review
Public Review Draft
As a percentage of total revenues, as of FY 2020, General Fund Reserves (Catastrophic
Reserve and Stability Reserve), are 13.48 percent. This is below the 2020 target of 20 percent
of total revenues, and significantly below the 2027 target of 35 percent of total revenues.216 The
City's FY 2020-21 budget drew down $11.4 million of its General Fund Stabilization and
Catastrophic Reserves.217
The City's budget strategy includes a strategy to "manage use of, and replenish, reserves. In
drawing on reserves, the City will adopt a long-term orientation to ensure that funds are
available for the duration of the economic downturn" and the City will look to its existing
policies to ensure that any reserves that are utilized are restored when the economy
improves.218
The Berkeley Fire Department has served the Berkeley community since 1904. The Department
provides comprehensive fire protection, emergency medical, disaster preparedness, rescue, and
other related services efficiently, effectively, and caring to the diverse Berkeley community.
Figure 10-5 details the services provided by the City of Berkeley Fire Department. If another
agency offers a service, it is indicated in the figure.
Figure 10-5: City of Berkeley Fire Services
service agency
fire suppression services
Structural Fire Protection City of Berkeley Fire Department
Wildland Fire Protection City of Berkeley Fire Department
Vehicle Fire Protection City of Berkeley Fire Department
Ladder Truck Capabilities City of Berkeley Fire Department
Fire Suppression Hand Crew City of Berkeley Fire Department
Fire Suppression Dozer Mutual Aid
Helicopter Services – Fire Suppression Mutual Aid
Boat With Fire Suppression Capabilities City of Berkeley Fire Department
216 Proposed Annual Budget Fiscal Year 2022, Health of General Fund Reserves, pg. 16.
217 Proposed Annual Budget Fiscal Year 2022, Summary of FY 2022 Proposed Budget by Funding Source, pg. 57.
218 Proposed Annual Budget Fiscal Year 2022, Budget Strategies, pg. 12.
Ch. 10: City of Berkeley 218
Policy Consulting Associates, LLC
Alameda Fire Municipal Service Review
Public Review Draft
emergency medical services
Basic Life Support Provider City of Berkeley Fire Department
Advanced Life Support – Non-Transport Provider City of Berkeley Fire Department
Advanced Life Support Transport Provider City of Berkeley Fire Department
Continuing Education Provider – Medical City of Berkeley Fire Department
Air Ambulance Transport Helicopter Services Mutual Aid
Helicopter Landing Facilities On Site N/A
Vehicle Extrication Tools/Equipment City of Berkeley Fire Department
fire prevention
Fire Safety Education – Children Not Occurring
Fire Safety Education – Adults/Seniors Not Occurring
Juvenile Firesetter Prevention Program City of Berkeley Fire Department
Fire and Life Safety Business Inspection Program City of Berkeley Fire Department
Fire Protection Planning City of Berkeley Fire Department
New Commercial Construction Plan Reviews City of Berkeley Fire Department
Public Education Provider (CPR, First Aid, etc.) Private Business
Home Fire/Safety Inspections Only multi-family occupancies
Fire Origin and Cause Investigations City of Berkeley Fire Department
Fuel Reduction/Weed Abatement Program Developing now
Smoke Detector Giveaway/Installation Program City of Berkeley Fire Department
Address Sign Installation Program Not Occurring
rescue services
First Responder Swift Water Rescue Program Mutual Aid
Water Rescue Program City of Berkeley Fire Department
Ice Rescue Program Not a hazard
Dive Rescue Program Mutual Aid
Low angle Rope Rescue Program City of Berkeley Fire Department
Helicopter Short/Long Haul Rescue Capabilities Mutual Aid
Response to Boating Accidents City of Berkeley Fire Department
Rescue Dog Services City of Berkeley Fire Department
hazardous materials
Hazardous Materials Emergency Response –
Basic City of Berkeley Fire Department
Hazardous Materials Response Team City of Berkeley Fire Department
support services
Ch. 10: City of Berkeley 219
Policy Consulting Associates, LLC
Alameda Fire Municipal Service Review
Public Review Draft
Firefighter Incident Support Unit City of Berkeley Fire Department
Mobile Incident Command/Communications
Unit Mutual Aid
Fill Station for Self-Contained Breathing
Apparatus City of Berkeley Fire Department
Mobile Breathing Support Unit City of Berkeley Fire Department
Community Emergency Response Team City of Berkeley Fire Department
Chaplain Services City of Berkeley Fire Department
Training Academy City of Berkeley Fire Department, ALA
Emergency Operations Center Capabilities City of Berkeley Fire Department
miscellaneous
Public Service Assists City of Berkeley Fire Department
Motor Vehicle Accident Response City of Berkeley Fire Department
Welfare Checks City of Berkeley Fire Department
Public Safety Answering Point City of Berkeley Police Department
Fire/EMS Dispatch ACRECC
Fundraising Activities Through IAFF 1227
Firefighters Association – Non-Profit City of Berkeley Fire Department
Auxiliary Association N/A
The City of Berkeley Fire Department works closely with other agencies locally, regionally,
countywide, and statewide to provide sufficient fire and emergency response services to the
community. Various collaborations reported by the Department include:219
• Alameda County Fire Chief's Association—to better Operations, Training, EMS,
Special Operations, Communications
• Hills Emergency Forum—for emergency preparation relating to wildfire
• California Fire Chiefs—for statewide coordination, planning, and advocacy
• International Society of Fire Service Instructors—for instructor development and
networking
219 City of Berkeley, SoGo Survey Responses, November 2021.
Ch. 10: City of Berkeley 220
Policy Consulting Associates, LLC
Alameda Fire Municipal Service Review
Public Review Draft
The Department also stated it is evaluating its ambulance billing process in coordination with
California Fire Chiefs and California Professional Firefighters (CPF) and plans to take
advantage of new opportunities that it anticipates will raise additional revenue.
The City also takes part in aid agreements with the following agencies to support and expand
its fire, hazmat, and EMS resources for incidents such as wildland fires, emergencies, and
events that take place outside of the City:
• City of Albany Fire Department
• City of Alameda City Fire Department
• City of Fremont City Fire Department
• City of Hayward City Fire Department
• City of Livermore Pleasanton Fire Department
• City of Oakland Fire Department
• City of Piedmont Fire Department
The California Department of Forestry and Fire Protection (CAL FIRE) augments fire services
throughout the State. Generally, CAL FIRE has responsibility for wildland areas defined as
State Responsibility Areas (SRA). For the City of Berkeley, the area within the city limits is a
Local Responsibility Area (LRA). Some immediate territory to the east, outside the bounds of
the City is designated as very high and high fire hazard severity zones, which are State
Responsibility Areas.220
ACFD provides contract services to the Lawrence Berkeley National Laboratory within the city
limits.
The Berkeley Fire Department indicated it received 13,412 service calls in FY 20, of which 54
were mutual aid calls. EMS incidents account for most calls with 8,064 calls or 60 percent of
all calls. In comparison, motor vehicle accounts for the lowest number of calls (30).221 Figure 10-
6 shows calls received by type.
220 Alameda County State Responsibility Area Fire Hazard Severity Zones. November 21, 2022.
221 City of Berkeley, SoGo Survey Responses, November 2021.
Ch. 10: City of Berkeley 221
Policy Consulting Associates, LLC
Alameda Fire Municipal Service Review
Public Review Draft
From 2013-2020, the highest number of service calls was received in 2017 (15,944), while 2020
had the lowest number of service calls (13,412). Figure 10-7 illustrates the total number of
service calls received in the City of Berkeley from 2013-2020.222
Figure 10-6: City of Berkeley Service Calls by Type
2020 fire and emergency service calls by type
Fire /
Motor False Hazardous Misc. Misc. Non- Total
EMS Vehicle Alarm Materials Emergencies Emergencies Calls
City of
Berkeley 8,064 30 1,796 527 397 2,598 13,412
Figure 10-7: City of Berkeley Service Calls (2013-2020)
fire and emergency service calls 2013-2020
2013 2014 2015 2016 2017 2018 2019 2020
City of
Berkeley 14,403 14,511 14,610 15,028 15,944 15,329 15,720 13,412
As mentioned, the BFD staffed 153 full-time equivalent personnel in FY 21, of which 134 worked
in firefighting while 19 were administrative personnel. According to the FY 21 adopted budget,
this is a slight increase from 148 FTEs budgeted fire and EMS staff positions for FY 19.
Regarding staff training, BFD requires six hours of training per month for paid firefighters.
Additionally, according to the Department's job postings, by the end of the probation period,
firefighters must complete the City of Berkeley Firefighter written and psychomotor
examinations and acquire a certificate of completion for various required courses.223
Furthermore, the Department's Rules and Regulations indicate that all members must be
thoroughly familiar with all training material and participate in all scheduled drills and other
activities as required. 224
The Department did not indicate minimum staffing requirements; however, due to recruiting
and retention challenges since the pandemic, the Department initiated a reorganizational effort
222 FY23, Berkeley Fire Department Quarterly Report (Q1).
https://berkeleyca.gov/sites/default/files/documents/Berkeley%20Fire%20Department%20Quarterly%20Report.pdf. Page 14,
September 2022.
223 City of Berkeley Careers. https://www.governmentjobs.com/careers/berkeley/jobs/3897896/firefighter-paramedic-
entry?keywords=FIRE&pagetype=jobOpportunitiesJobs.
224 Berkeley Fire Department Rules and Regulations. Page 20. May 17, 2021.
Ch. 10: City of Berkeley 222
Policy Consulting Associates, LLC
Alameda Fire Municipal Service Review
Public Review Draft
to enhance services and meet demand by increasing the FTE positions by 50 in FY 24
compared to the previous year.225
The City of Berkeley's Fire Department indicates it has seven stations. In addition, the
Department has the following facilities226:
• Fire Administration—houses the Office of the Fire Chief, Division of Fire Prevention,
Administrative Support Staff, and Office of Emergency Services.
• Division of Training—Training Tower & Classroom, Division of Training, and Division of
Emergency Medical Services (EMS)
• Fire Warehouse—storage of fire response equipment, including Above Ground
• Water Rescue—"Confidence" Fireboat and rescue watercraft
The facilities are shown in further detail in Figure 10-6.
Figure 10-8: City of Berkeley Fire Facilities
city of berkeley facilities
Year
Facility Address Owner Built Condition Apparatus Assigned
2100 Martin
Luther King Jr.
Fire Way, Berkeley, CA City of Not
Administration 94704 Berkeley provided Good 10 Staff Vehicles
997 Cedar Street,
Division of Berkeley, CA City of Not
Training 94710 Berkeley provided Fair 4 Staff Vehicles
2442 Eighth Street, Engine 1, Ambulance
Berkeley, CA City of (Medic 1), Ambulance
Station 1 94710 Berkeley 1966 Fair (Reserve)
Battalion Chief, Truck
2, Engine Two,
Ambulance (Medic 2),
Type VI 4x4,
Hazardous Materials
Vehicle, Reserve
2029 Berkeley Truck, Reserve
Way, Berkeley, CA City of Ambulance, Utility
Station 2 94704 Berkeley 1965 Fair Vehicle
225 City of Berkeley Adopted Budget Fiscal Years 2023 & 2024. Page. 157.
226 City of Berkeley Fire Stations. https://berkeleyca.gov/safety-health/fire/fire-stations.
Ch. 10: City of Berkeley 223
Policy Consulting Associates, LLC
Alameda Fire Municipal Service Review
Public Review Draft
2710 Russell
Street, Berkeley, Engine 3, Ambulance
CA City of (Medic 3), Reserve
Station 3 94705 Berkeley 1961 Poor Ambulance
1900 Marin
Avenue, Berkeley,
CA City of Engine 4, Reserve
Station 4 94707 Berkeley 1959 Poor engine
2680 Shattuck Engine 5, Truck 5,
Avenue, Berkeley, Type III Engine,
CA City of Reserve Engine,
Station 5 94704 Berkeley 1962 Poor Ambulance (Medic 5)
999 Cedar Street,
Berkeley, CA City of Engine 6, Reserve
Station 6 94710 Berkeley 1960 Poor Engine
Engine 7, Reserve
Engine, Quick
3000 Shasta Response Vehicle,
Road, Berkeley, EBRPD Engine
CA City of (Seasonal)
Station 7 94708 Berkeley 2006 Good
1011 Folger Ave,
Berkeley, CA City of Not Above Ground Water
Fire Warehouse 94710 Berkeley provided Good System, Utility Vehicles
For "Confidence" Fire
Berkeley Marina, City of Not Not boat and rescue
Water Rescue Berkeley, CA Berkeley provided provided watercraft
According to the 2022 Standards of Cover Risk Assessment, service demand by station has
been consistent since FY 19. Except for Station 7, all Stations have unit hour utilization (UHU)
that nears or significantly exceeds the 20 percent threshold, which indicates a strained
workload. Station 5 specifically faces high demand during the day, with unit hour utilization
from 7:00 am until 11:00 pm ranging from 26 percent to 58 percent. Stations 1, 2, and 6 also
have a significantly high demand for 12 to 15 hours of a day, where they exceeded the unit
hour utilization 20 percent threshold. Additionally, engine and ambulance crew hourly utilization
are at excessive saturation. Overall, Department capacity appears insufficient and indicates a
strained workload, which suggests the Department should reevaluate service and staffing
Ch. 10: City of Berkeley 224
Policy Consulting Associates, LLC
Alameda Fire Municipal Service Review
Public Review Draft
levels.227 In order to address this significant capacity concern, the Department added 50
personnel in FY 24.
The City of Berkeley communicates with residents in a few ways to transmit important health
and safety information. These methods include broadcasting emergency messages over real-
time evacuation maps available at Zonehaven, Wireless Emergency Alert (WEA), television
and radio channels, the City of Berkeley website, and utilizing its social media outlets: Twitter,
Instagram, and Nextdoor. The City also utilizes AC Alert, a unified system for Alameda
County residents, which provides critical information quickly in various situations, such as
earthquakes, fires, severe weather, unexpected road closures, missing persons, and evacuations
of buildings or neighborhoods.228
The Berkeley Police Department Communications Center serves as Berkeley's 9-1-1 Public
Safety Answering Point (PSAP), receiving all emergency and non-emergency police, fire, and
medical calls in the City and dispatching public safety personnel to respond as appropriate.229
The City collaborates with the Alameda County Regional Emergency Communications Center
(ACRECC), which is equipped to receive all 9-1-1 calls for EMS ambulance services within the
County (except for the City of Oakland) that originate from a PSAP.
The Berkeley Fire Department indicated that they are evaluating the feasibility of joining
several other departments in Alameda County and dispatching from one center.230
Cooperation and consolidation of facilities is an impactful way to limit operating costs for the
City while effectively providing needed services. The Berkeley Fire Department collaborates
with the City of Albany Fire Department on training exercises. Additionally, the BFD works
with ACRECC for its fire and EMS dispatch services.
BFD also identified opportunities for collaboration in the following areas that could improve
efficiency and service delivery:
227 City of Berkeley Fire Department, Standards of Cover and Community Risk Assessment Study.
https://berkeleyca.gov/sites/default/files/2022-04/2022-
04.19%20WS%20Item%2001%20Fire%20Department%20Standards%20of%20Cover.pdf. Page 15-18. April 6, 2022.
228 City of Berkeley Emergency Notifications. https://berkeleyca.gov/safety-health/disaster-preparedness/emergency-notifications
229 Berkeley City Auditor, 9-1-1 Dispatchers: Understaffing Leads to Excessive Overtime and Low Morale.
https://berkeleyca.gov/sites/default/files/2022-01/Dispatch-%20Workload-Fiscal-%20Year-2018.pdf. Page 2. April 25, 2019.
230 City of Berkeley, SoGo Survey Responses, November 2021.
Ch. 10: City of Berkeley 225
Policy Consulting Associates, LLC
Alameda Fire Municipal Service Review
Public Review Draft
• Shared Services — the Department is working with regional partners to evaluate the
feasibility of a shared service model and whether this concept would enhance service to
the region and its communities, increase responder safety, and improve efficiency.
• Training — the Department is working with regional partners in Northern Alameda
County and Western Contra Costa County to design and build a regional training
coalition that provides initial and ongoing training to the region's responders.
• Dispatch — the Department has contracted with a vendor that is evaluating how to
increase the level of services provided by the City's dispatch center. This analysis is
expected to be completed in early 2024.
• Apparatus Maintenance — the City has struggled to meet its needs for large fire
vehicle maintenance and is working to repair internal systems while exploring regional
partnerships for vehicle maintenance.
The City of Berkeley Fire Department reported the need for two additional facilities. First, the
Department indicated they needed a larger, appropriately configured, and located division of
training that could provide the space to conduct realistic training for employees. The current
facility is undersized, under-resourced, and immediately adjacent to single-family homes.
Second, they indicated the need for a larger headquarters and an ambulance deployment
center for a department that has added a Wildland Urban Interface Division and expanded
staffing across all other divisions to meet the current risk and service demands. The
Department also reported various facility upgrades are undergoing, including roof placement in
Station 3, roof work, solar and electrical upgrades, HVAC in Station 2, and roof work and dry
rot in Station 6.231
At the time, these upgrades were expected to be financed with the T1 Bond, which is an
Infrastructure Bond Measure that authorizes the City to sell General Obligation Bonds to
repair, renovate, replace, or reconstruct the City's aging infrastructure, including sidewalks,
streets, storm drains, parks, community centers, and other essential City facilities.232
According to the City's FY 23-27 Capital Improvement Plan (CIP), the facilities upgrade
projects for Measure T1 Phase 2 include upgrades at Stations 2, 3, 4, 5, and 6.233
231 City of Berkeley, SoGo Survey Responses, November 2021.
232 Measure T1 Update. www.cityofberkeley.info/MeasureT1.
233 City of Berkeley FY 2023 - 2027 Capital Improvement Plan.
https://berkeleyca.gov/sites/default/files/documents/FY-23-27-Capital-Improvement-Program.pdf. Page 40.
Ch. 10: City of Berkeley 226
Policy Consulting Associates, LLC
Alameda Fire Municipal Service Review
Public Review Draft
Additionally, the Department indicated a need for new vehicles, including a number of staff
vehicles, three Braun ambulances, and one water tender due to new staff, increased demand,
and enhanced focus on emergency preparedness.234
The Department faces the most significant recruitment and retention challenges in over 100
years, including struggling to find qualified firefighters and permanent staff changing
departments. Minimum staffing creates a need for overtime, this can fluctuate greatly
depending on the vacancy rate, and the Department is looking for better tools to predict and
know what the ideal vacancy rate should be. According to the 2022 Berkeley Fire Department
Quarterly Report, between FY 20 and FY 21, forced overtime increased by over 275 percent
due to increased vacancies resulting from the hiring freeze, increased number of temporary
vacancies because of COVID-related quarantine and COVID-related leave, and fatigued
workforce disinterested in overtime work.235 However, the Department is undertaking a
reorganizational effort to enhance services, and the adopted FY 24 budget indicates an
increase in the Department's full-time equivalent positions by 50 compared to FY 21.
Another challenge the Department noted was their inability to provide adequate training to
personnel, especially leadership and management training to current and aspiring supervisors,
which places the organization at significant risk.
Ongoing infrastructure and equipment needs include fire stations, office space, and training
grounds, many of which are in fair or poor condition, undersized, and need significant
maintenance or replacement. 236
With anticipated growth throughout the City, each area poses an ongoing concern in providing
services. However, significant changes from the previous year's budget, including the passing of
Measure FF and the UC Settlement funds, will be appropriated in the FY 23/24 budget cycle,
resulting in an increase in the Department's budget by $3,025,829 or 5 percent compared to
the FY 22 adopted budget. These funds are essential in supporting the Department's proposed
reorganization as well as supporting mandated programs, projects, and services that have
begun, including creating the WUI Division, completing an analysis of Fire/EMS dispatching,
234 City of Berkeley, SoGo Survey Responses, November 2021.
235 FY23, Berkeley Fire Department Quarterly Report (Q1).
https://berkeleyca.gov/sites/default/files/documents/Berkeley%20Fire%20Department%20Quarterly%20Report.pdf. P. 10-11.
September 2022.
236 City of Berkeley Adopted Budget Fiscal Years 2023 & 2024. p. 157.
Ch. 10: City of Berkeley 227
Policy Consulting Associates, LLC
Alameda Fire Municipal Service Review
Public Review Draft
initiating a Fire Facilities Master Plan (FMP), creating a training division, and creating two new
classifications, Paramedic and EMT, which will replace firefighters on the City's ambulances, so
staffing is more efficient.
This section reviews indicators of service adequacy, including response times, ISO rating, and
complaints received. There are many measures of a successful fire protection service. For
example, the agency would meet guidelines established by the National Fire Protection
Association (NFPA), the Center for Public Safety Excellence (CPSE) (formerly the
Commission on Fire Accreditation International), and the California EMS Agency. There are
also Public Protection Classifications (PPC) that likewise establish an agency's level of service.
The applicable response time policy for the City of Berkeley is shown in Figure 10-9.237
Figure 10-9: City of Berkeley Response Time Policy
response times for the city of berkeley
Agency Name Single Unit Incident
Call processing/ dispatch (which does not include 9-1-1 call answered to first
data entry keystroke) is 1:30 minutes. While crew turnout is 2 minutes, first-due
City of Berkeley travel 4 minutes, and first unit to arrival is 7:30 minutes. Additionally, the best
practice for 1st alarm travel and 1st alarm call to travel are 8 minutes and 11:30
minutes, respectively.
As of FY 21, the Department's response time from call processing/dispatch to the first unit call
to arrival is 9:32 minutes, which exceeds the best practice goal of 7:30 minutes by a little over
two minutes. Station 7 experienced the longest call-to-arrival response time average at 8:05
minutes, followed by Station 4 at 6:51 minutes.
A best-practice-based travel time goal from NFPA 1710 for career fire departments in urban
areas is that the last unit arrives within an 8:00-minute travel time to 90 percent of the First
Alarm incidents. Residential first alarm response, otherwise known as the Effective Response
Force, has a goal of eight minutes of travel time or 11:30 minutes total response time. Only
some areas of each urban core are accessible within this timeframe, and the situation worsens
with the addition of congestion throughout the coverage area. In the City of Berkeley, as of FY
237 City of Berkeley Fire Department, Standards of Cover and Community Risk Assessment Study.
https://berkeleyca.gov/sites/default/files/2022-04/2022-04
19%20WS%20Item%2001%20Fire%20Department%20Standards%20of%20Cover.pdf. Page 22. April 6, 2022.
Ch. 10: City of Berkeley 228
Policy Consulting Associates, LLC
Alameda Fire Municipal Service Review
Public Review Draft
21, the Department's travel time was 15:24 minutes, and the first alarm call to arrival time was
17:28. 238
The Insurance Service Office (ISO) classifies fire services in the communities as an indicator of
the general adequacy of coverage. Communities with the best fire department facilities,
systems for water distribution, fire alarms and communications, and equipment and personnel
receive a rating of 1. As of 2015, the Berkeley Fire Department was the only city in Alameda
County to obtain a Class 1 rating, the highest possible classification for fire suppression
efforts.239
The Department did not provide information as to whether any complaints regarding fire
service were received in FY 21.
238 City of Berkeley Fire Department, Standards of Cover and Community Risk Assessment Study.
https://berkeleyca.gov/sites/default/files/2022-04/2022-
04.19%20WS%20Item%2001%20Fire%20Department%20Standards%20of%20Cover.pdf. p. 22-23. April 6, 2022.
239 The Daily Californian. https://www.dailycal.org/2015/08/17/berkeley-fire-department-receives-highest-rating-for-fire-
suppression-efforts. August 25, 2015.
Ch. 10: City of Berkeley 229
Policy Consulting Associates, LLC
Alameda Fire Municipal Service Review
Public Review Draft
10-1: The City of Berkeley had a population of 124,000 according to the 2020 Census.
The City's population has increased steadily since 2000, approximately nine percent
each decade. Between 2010 and 2020, the City's population increased by 10 percent.
10-2: According to ABAG projections, the City's population will continue to grow steadily,
increasing nine percent between 2020 and 2030 to a population of 136,000 and four
percent between 2030 and 2040 to a population of 141,000. The City of Berkeley
should monitor population projections and development plans to ensure they align
with city planning efforts to accommodate growth and the corresponding increase in
service demand adequately.
10-3: The City of Berkeley does not have any DUCs within or contiguous to its SOI.
10-4: The City of Berkeley Fire Department (BFD) has experienced significant capacity
constraints primarily attributable to insufficient staffing levels and recruitment and
retention challenges, which have resulted in significantly increasing forced overtime
for existing staff and Unit Hour Utilization rates for engines, trucks, and ambulances
that greatly exceed industry standard thresholds for consecutive hours throughout the
day. To address these concerns, enhance services, and meet demand, BFD has
initiated a department reorganization, increasing department personnel, deploying
alternate response units, and is exploring efficiencies in how it triages calls and
assigns resources.
10-5: While the level of services provided by BFD is strained by existing capacity
constraints, the Department continues to provide adequate services based on its ISO
rating. There is potential for improvement in the Department's response times to
meet the City's identified standard. Ideally, with the Department's additional staffing,
units will be more available throughout the day, which will accelerate responses.
10-6: In addition to regular maintenance needs, identified station-specific deficiencies, and
vehicle needs, BFD reported the need for two additional facilities—a larger and
appropriately configured and located division of training that could provide the space
to conduct realistic training for employees and a larger headquarters and an
ambulance deployment center for a department that is experiencing a substantial
expansion to meet risk and demand. The City's FY 23-27 CIP plans for upgrade
projects at Stations 2, 3, 4, 5, and 6 using Measure T1 funding.
Ch. 10: City of Berkeley 230
Policy Consulting Associates, LLC
Alameda Fire Municipal Service Review
Public Review Draft
10-7: The City of Berkeley Fire Department has the financial ability to continue to provide
services. Voters have recently approved additional funding measures to help maintain
and improve services. Over the longer term, the City is concerned about its
unfunded pension liabilities and growing pension expenditures which will reduce
funding available for other services.
10-8: BFD collaborates with the City of Albany Fire Department on training exercises and
works with ACRECC for its fire/EMS dispatch services.
10-9: The Department indicated that it is working with regional partners to explore the
feasibility of a shared services model, apparatus maintenance, and building a regional
training coalition has contracted with a vendor that is evaluating how to increase the
level of service provided by the City's dispatch center.
10-10: It is recommended that the Department join fellow Alameda fire providers to develop
a regional, countywide dispatch strategy that employs the closest resource for the
fastest response time, regardless of agency boundaries or responsibility.
10-11: The City of Berkeley abides by all legislative obligations for accountability and
governance practices.
10-12: The City of Berkeley demonstrated transparency when sharing information to create
this report.
10-13: To improve efficiency and service delivery, the BFD is working to develop a regional
JPA for personnel training and development with other departments in Northern
Alameda County and Western Contra Costa County.
10-14: No governance structure options specific to BFD were identified over the course of
this review; however, it is recommended that the Department continue to participate
in regional planning and coordination efforts to the greatest extent possible and
continue to seek ways to collaborate and enhance service levels on a regional level
with other providers.
10-15: As stated previously, the Department is working with regional partners to evaluate
the feasibility of a shared service model and whether this concept would enhance
service to the region and its communities, increase responder safety, and improve
efficiency.
Ch. 10: City of Berkeley 231
Policy Consulting Associates, LLC
Alameda Fire Municipal Service Review
Public Review Draft
The City of Dublin is one of five cities that contracts with the Alameda County Fire
Department for fire suppression and emergency medical services.
Incorporated in 1982, the City of Dublin is located in the East Bay region of the San Francisco
Bay area, roughly 30 miles east of San Francisco and 30 miles northeast of Silicon Valley.240 It
has a total population of 72, 589 according to 2020 US Census data.
Considered part of the Tri-Valley area along with the cities of Livermore, Pleasanton, and San
Ramon in Alameda County as well as the Town of Danville in Contra Costa County, Dublin
is known as the "crossroads" of the Bay area due to its positioning at the intersection of
Interstates 580 and 680. This is a prosperous area, in part due to its proximity to employment
opportunities at acclaimed international businesses based in the region. In 2011, the National
Civic League named the City of Dublin an "All-America City".241
This is a general law city served by a City Council and City manager. The City of Dublin
provides a variety of services including parks and recreational services and public
transportation.
The City of Dublin was last included in an MSR Update by Alameda LAFCO that was
adopted in 2018. There was also a Countywide MSR update for water, wastewater, flood
control and stormwater services completed in 2021. Although the City is a multi-service
provider, this review is specific to fire protection, emergency medical, and other related services.
The City of Dublin is comprised of 22.84 square miles situated south of the City of San
Ramon, east of Castro Valley, north of the City of Pleasanton, and west of the City of
Livermore.242243 Figure 11-1 depicts the City's boundaries, which is also the contract service area
for services provided by ACFD by contract.
240 City of Dublin, Adopted Budget, FY20-21 and FY21-22, p. C-1.
241 City of Dublin, Adopted Budget, FY20-21 and FY21-22, p. C-2.
242 City of Dublin, Adopted Budget, FY20-21 and FY21-22, p. J-3.
243 City of Dublin, https://dublin.ca.gov/1811/Demographics, accessed 4/22/22.
Ch. 11: City of Dublin 232
Policy Consulting Associates, LLC
Alameda Fire Municipal Service Review
Public Review Draft
Figure 11-1: City of Dublin Boundaries and SOI
H
R
d
City of Dublin
ighlan
n d
o Range 01 West Range 01 East
C r
o w
C a n y
htuoS 20
pihsnwoT
0
1
3
8
0
19
No 1 r 7 risCan
2
y
9
20
onRd
16
21
28
0
B
Sa
C
n
o
R
a l
am
l n i
o
n
n
y
V
g o
all
e
e
n
y
r
R d
Rd
§¨¦
Alcosta
Blvd
0
Dougherty
Rd
Ca mino
Tassajara
21
16
9
22
15
10
23
14
11
24
1
1
3
2 R d
6
31
§¨¦ 580 5
32
4
33
3
34
27 68
San R
0
am on
Rd
A
D
C
u
F
b
F
li
S
n
1
B
6
lvd
Amador Valley Blv Dougherty d Rd
Du
P
b
R
lin
K F
B
S
lv
0
d
1
ACFFS
A
Hacienda Dr
1
C
5
FFS17
Tassajara
Rd
D
§¨¦
u
3
b
3
28
lin
ACFFS1 3 8 4
27
35
26
3
2
6
5
htuoS
30 pihsnwoT 0
17
8
Hayward 16
9
1
1
5
0
2
11
14
Foothill
1
R 1
3
d 2 0 Stoneridge H po yard Rd Dr Las
0
Po eic n a s d H a
Dr
it
V
O
a
a
s
w
l
B
l
e
e
l
n
y
v
s
d
A
D
v
r
e
Pleas Santa a Rita
Rd
nton
580
El Charro Rd Livermore 0
Alameda County Legend O Alameda County City of Dublin
S L o o ur c ce a : A l la A m g ed e a n
g i D n
L
e i
A
t
c
s e n
F
c
y
n e
C
l d a r
o
a e
F
im l d
o
d e t i r s o
r
: p
m
b T la e h
a
y e u
t
p s i
i
n u e
o
f
M
r d o p
n a
r o f m
p
o s
C
r
C
a e r t
r
s
o
i e
e
o
a
o f n
m
e
t
n
e
r s l e
d
y
m
h n
1
o a c
/7
n w
i
e
s /
d
2
n a
s 0
i n i s
2
s
i
d
3 on kj A A
F
A
C
C
i
d l l o
r i
a a
t e
j m m m a
y S
c m e e e
o t
d d
a
u n
f
a a
t
n t
i D o
i C C C t
n
i o
u
i o e t
s
u y s u
b (
n n B
A l
t t
i
y o y
n C
u
F
B B n
D
o o d u u
C
a n n r
o
d i d e
n
a a s
t
r r
r
y i
a
e
c
s
t)
C S o a u n n t F y ranci
S
sco
a
P
C
kj
n
i kj ekj
o
A dE
u
B
M
l m b kj me
n
a
a
o re n
t
A k kjn
t
r
y
ye
e
l ty a O l kjve
o
m a iyl k e le l d a a nd kjSan
kj
L
H
e
a kj
a
y F
n
w r
d
e a m
r
r
o
d o kj n U kjt n N io e n w C a
P
r it k
l
y
C ea o sa nC kj n to t r
A
o D kj au n u
l a
n b C
m
l t i oy n
e
s
d
ta
a C
kj
o
L
u
iv
n
er
t
m
y
ore San Joaquin County
not to be used as an official map. 0 0.5 1 2Miles Santa Clara County
The City of Dublin does not provide services outside of its boundaries but does contract with
ACFD, which is responsible for the execution of fire and emergency medical services within the
city limits. ACFD's fire stations that serve the City of Dublin, may also provide services
outside of the city limits based on auto and mutual aid agreements.
There are no unserved areas in the City of Dublin. ACFD is able to provide services
throughout the bounds of the City of Dublin with its access to three staffed fire stations and
one reserve station located throughout the city limits.
Ch. 11: City of Dublin 233
Policy Consulting Associates, LLC
Alameda Fire Municipal Service Review
Public Review Draft
The City of Dublin's SOI extends outside of the city limits to the west. The current SOI for
the City of Dublin was last reaffirmed January 12, 2018.244
Accountability of a governing body is signified by a combination of several indicators. The
indicators chosen here focus on 1) agency efforts to engage and educate constituents through
outreach activities, in addition to legally required activities such as agenda posting and public
meetings, 2) a website with required content and other useful information, 3) timely ethics
training for board/councils members and an adopted reimbursement policy, 4) a defined
complaint process designed to handle all issues to resolution, 5) adopted bylaws that provide a
framework and direction for governance and administration, 6) adoption of a conflict-of-interest
code as required by law, 7) proper filing of Form 700 by the governing body members, and 8)
transparency of the agency as indicated by cooperation with the MSR process and information
disclosure at meetings, in documents and on a website.
The City of Dublin has a government structure with a City Manager and an elected mayor
and four council members who serve staggered four-year terms on the City Council. Current
council member names, positions, and term expiration dates are shown in Figure 11-2.
The City Council meets every first and third Tuesday of the month at 7pm at the Civic
Center in Dublin, CA. Agendas for each weekly meeting are posted at the kiosk in front of the
Civic Center and online. Board actions and meeting minutes are available online. Through the
City's website, the public has access to live audio/visual webcasts and archived audio and/or
visual webcasts of regular Board meetings for viewing online at their convenience.
Figure 11-2: City of Dublin Governing Body
governing body
Manner of Selection Elections at large
Four years for board members with a two-term
Length of Term
limit, two-year terms for appointments
First and third Tuesday of each month at 7pm
Closed sessions held at 6:30pm
Civic Center
Meetings
100 Civic Plaza
Dublin, CA 94568
Streamed online and broadcast on TV
244 Alameda LAFCO, https://alamedaLAFCO.org/wp-content/uploads/2021/11/2018-05-Dublin-Reaffirm-SOI.pdf, accessed
4/22/22.
Ch. 11: City of Dublin 234
Policy Consulting Associates, LLC
Alameda Fire Municipal Service Review
Public Review Draft
Agenda Distribution Posted at the civic center and online
Minutes Distribution Posted online
city council members
Term Manner of
Member Name Position Expiration Selection Length of Term
Melissa Hernandez Mayor 2024 Elected 4 Years
Michael
McCorriston Vice Mayor 2024 Elected 4 Years
Jean Josey Councilmember 2026 Elected 4 Years
Sherry Hu Councilmember 2024 Elected 4 Years
Kashef Qaadri Councilmember 2026 Elected 4 Years
contact
Contact Linda Smith, City Manager
Mailing Address 100 Civic Plaza, Dublin, CA
Phone 925-833-6650
Email/Website Linda.smith@dublin.ca.gov, www.dublin.ca.gov
The City of Dublin participates in community outreach events such as annual city festivals,
holiday activities, job fairs, and community educational programs. ACFD has specific fire
prevention and emergency safety programs available to Dublin residents as well.
All five members of the City of Dublin's City Council have current filings for Form 700 with
the California Fair Political Practices Commission, indicating transparency in with their
economic interests.
There is also a conflict-of-interest code, and bylaws, outlined in the municipal code as lawfully
required.
All complaints concerning the City of Dublin or any of its employees are investigated, and a
response is provided to the complainant. Constituents are able to file complaints in a number
of ways, including online and by phone. All complaints are handled by the appropriate
department and overseen by the City Manager as needed.
There is legislation in effect to help ensure public agencies adhere to accountability standards.
California AB 2257 (Government Code §54954.2) is an update to the Brown Act and
indicates requirements for methods by which an agenda for all meetings should be made
available on an agency's website. The City of Dublin is in compliance with this regulation.
Ch. 11: City of Dublin 235
Policy Consulting Associates, LLC
Alameda Fire Municipal Service Review
Public Review Draft
The City of Dublin demonstrated accountability in its disclosure of information and cooperation
with the LAFCO questionnaires and other requests for information.
While public sector management standards vary depending on the size and scope of the
organization, there are minimum standards. Well-managed organizations evaluate employees
annually, track employee and agency productivity, periodically review agency performance,
prepare a budget before the beginning of the fiscal year, conduct periodic financial audits to
safeguard the public trust, maintain relatively current financial records, conduct advanced
planning for future service needs, and plan and budget for capital needs.
The City accounts for its fire and emergency services in a number of its planning and
management documents, particularly in the annual budget and General Plan. Additionally,
being that the City contracts with ACFD for services, ACFD also abides by its own planning
and management practices as outlined below.
ACFD's FY 21 budget indicates it has 559 authorized positions. This is an increase of 12, year
over year since FY 19. Of these 559 positions, 511.42 are considered full-time equivalents for
both management and non-management positions. Additionally, the department indicates it has
100 reserve firefighters to help fulfil the variety of services offered.245 The Fire Chief oversees
four branches—Operations, Communications and Special Operations, Administrative Support
Services, Fire Prevention and Community Outreach. Each branch has its own divisions. The
Training division falls under the Operations branch, the EMS, Information Technology, and
Special Operations divisions are part of the Communications and Special Operations branch,
and the divisions for Fleet Management, Financial Services, Facilities, and Human Resources
are part of the Administrative Support Services Branch.
The Fire Chief provides the leadership and management overall. The Deputy Chief for
Operations oversees the training division, three Operation Divisions, and the reserve program.
The Administrative Services Director oversees Administrative Support Services by managing
contracts and services, facilities, financial services, fleet management, and human resources.
The Deputy Chief for Communications and Special Operations manages the Alameda County
Regional Emergency Communications Center (ACRECC), EMS, information technology,
Alameda County Operations Area & California Incident Command Certification Center
(CICCS), and Special Operations.
245 Alameda County Fire Department, https://fire.acgov.org/AboutUs/aboutus.page, April 19, 2022.
Ch. 11: City of Dublin 236
Policy Consulting Associates, LLC
Alameda Fire Municipal Service Review
Public Review Draft
ACFD, as a component of the Alameda County government, is required to conduct value-
based budgeting. The goals of this process involve funding agreed-upon service levels,
identification of revenues and expenditures as one-time or continuing, and maintenance of
adequate contingency and reserve funds.
ACFD battalion chiefs evaluate operations of their respective battalions on an on-going basis.
ACFD also conducts annual personnel evaluations. Managers annually review goals and
objectives for the coming year and goal achievements for the previous year. ACFD monitors its
workload through the chief officer performance reviews, which identify staffing and resource
deficiencies.
To ensure fire service efficiency and effectiveness, ACFD has set policy goals and objectives.
ACFD aims to provide emergency response and incident management for fires, rescues,
medical emergencies, hazardous materials incidents, and disasters to all Alameda County
citizens and to ensure that local, State and federal mandated and discretionary service levels
are maintained within the communities served.
ACFD's finances are managed by the County. County financial planning documents include
an annual budget and Comprehensive Annual Financial Report (CAFR). In addition, ACFD
has financial statements audited annually. The District's capital needs are included in the
County's Capital Improvement Plan (CIP). ACFD adopted a Fire and Emergency Services
Strategic Business Plan; the most recent update was for the years 2015-2019. Additionally, the
District participates in the Region II plan for the Office of Emergency Services.246
The City of Dublin cooperates with ACFD to forecast staffing needs as necessary based on
population growth and development plans and analyze employee turnover and attrition in order
to meet hiring demands. Response times and response levels are indicated in the City's
contract with ACFD and are tools for measuring satisfactory service levels. The Fire Chief is
designated to act as the direct liaison to the City Manager and is obligated to attend, or
provide a representative to attend, meetings as requested including City Council meetings, and
to discuss the budget, operations, and other topics as necessary. The ACFD Fire Marshall is
obligated to attend all necessary meetings relating to the City's ability to meet its fire
prevention needs.247
A critical component of the City of Dublin planning is its Climate Action Plan, which serves as
a guiding document to identify ways in which the community and City can reduce greenhouse
246 Alameda County Fire Department, Survey Response, July 2021.
247 Alameda County Fire Department, ACFD and City of Dublin Contract Agreement, Beginning July 1, 1997
Ch. 11: City of Dublin 237
Policy Consulting Associates, LLC
Alameda Fire Municipal Service Review
Public Review Draft
gas emissions, meeting Dublin's long-term climate action goals, and promoting a healthy,
prosperous community. The City's current Climate Action Plan was adopted in 2020 and
outlines greenhouse emission goals for 2030 (reduction of emissions by 65,090 million tons of
CO2e by 2030) and 2045 (carbon neutrality). Additional strategies and measures will need to
be adopted following Climate Action Plan 2030 implementation to achieve full carbon
neutrality by 2045. Increased wildfire hazard, as a result of climate change, was identified as a
very serious concern by the residents of Dublin during the project process.
This section discusses the factors affecting service demand, such as land uses, and historical
and anticipated population growth.
The City of Dublin consists of approximately 14,616 acres and is primarily a residential
community with some mixed use and commercial properties throughout its boundaries and
extended planning areas. These areas are identified in the General Plan as the Eastern
Extended Planning Area, the Western Extended Planning Area, the Dublin Crossing Planning
Area, and Doolan-Collier Canyons, which is outside of the City's planning area and largely
considered to be open space.248 Through a series of annexations, mostly in the late 1980s and
early 1990s, the Dublin territory grew rapidly and Urban Limit Lines were established to limit
development of Doolan-Collier, in particular, as part of the Dublin Open Space Initiative.249
The General Plan guides the development of this land while the safety element specifically
indicates goals and policies for the land area as it relates to fire and emergency services.
Currently, the plan lists continued efforts to enforce wildland interface regulations and the
requirement for fire protection measures in development in extended planning areas that
interfere with open spaces.250
The 2020 US Census data lists the City of Dublin population at 72,589. The California
Department of Finance (DOF), however, shows a slight increase in population to 72,932 as of
2022 and an increase of nearly 27,000, or roughly 63 percent, since 2010, as shown in Figure
248 City of Dublin, General Plan, Amended 2/15/22, p. 1-3.
249 City of Dublin, General Plan, Amended 2/15/22, p. 1-2.
250 City of Dublin, General Plan, Amended 2/15/22, p. 8-4.
Ch. 11: City of Dublin 238
Policy Consulting Associates, LLC
Alameda Fire Municipal Service Review
Public Review Draft
11-3. According to the DOF, the City of Dublin has the second fastest growing population in
Alameda County next to the City of Oakland.
Figure 11-3: City of Dublin Population Growth, 2010-2022
City of Dublin Population 2010-2022
80,000
75,000
70,000
65,000
60,000
55,000
50,000
45,000
40,000
4/1/10 1/1/11 1/1/12 1/1/13 1/1/14 1/1/15 1/1/16 1/1/17 1/1/18 1/1/19 1/1/20 1/1/21 1/1/22
The 2020 US Census data lists the City of Dublin population at 72,589. The California
Department of Finance (DOF), however, shows a slight increase in population to 72,932 as of
2022 and an increase of nearly 27,000, or roughly 63 percent, since 2010, as shown in Figure
11-3. According to the DOF, the City of Dublin has the second fastest growing population in
Alameda County next to the City of Oakland.
Alameda County household growth projections are anticipated to climb 54 percent by 2050
along with a 36 percent increase in jobs during the same time frame, as stated by the
Association of Bay Area Governments (ABAG).251 For the City of Dublin specifically, the total
population is expected to increase by 35 percent between 2020 and 2035 to approximately
97,995. The total amount of jobs is forecasted to increase by 30 percent over that same time
frame.
The City of Dublin indicates that current residential development plans are targeted in a few
planning areas such as the Dublin Crossing Specific Plan Area for the multi-phased Boulevard
251 Association of Bay Area Governments,
https://www.planbayarea.org/sites/default/files/FinalBlueprintRelease_December2020_GrowthPattern_Jan2021Update.pdf,
accessed 4/27/22.
Ch. 11: City of Dublin 239
Policy Consulting Associates, LLC
Alameda Fire Municipal Service Review
Public Review Draft
project. Nearly 25 additional project applications or permit and zoning reviews are also
underway for other residential and commercial developments throughout the City, including
affordable senior housing, an IKEA retail center, schools, restaurants, and car dealerships.252
In terms of fire and emergency services provided to the City by ACFD, ACFD reports that
these rapidly changing growth patterns will affect service demand.253
There are a number of significant developmental projects in various stages of planning and
construction within the City of Dublin. Several of these projects are outlined in Figure 11-4.
These developments are aligned with the City's planning and land use documents such as the
Downtown Dublin Specific Plan and the General Plan. Many of these projects have been
ongoing over several years and largely include commercial, mixed use, and residential facilities.
Figure 11-4: City of Dublin Planned or Proposed Development Projects, 2023
city of dublin development projects
project # of dwelling units commercial square feet
SCS Dublin 650 265,000
H Mart 11,739
Nissan Commercial Car Wash 3,574
Moller Ranch/Tassajara Hills 370
Dublin Family Affordable
Apartments 176
Branaugh Property 97
Infiniti Dealership 10,461
Hacienda Crossings Drive-
Through Restaurant (Chick-fil-
A) 2,781
Dublin Senior Living 152
Dublin Crossing Phase 2 & 3 1,995 200,000
Dublin Crossing Phase 1 453
Dublin Crossing Phase 4 & 5 510
252 City of Dublin, https://dublin-development.icitywork.com/, accessed 4/27/22.
253 Alameda County Fire Department, SoGo Survey Response, July 2021.
Ch. 11: City of Dublin 240
Policy Consulting Associates, LLC
Alameda Fire Municipal Service Review
Public Review Draft
East Ranch SDR NH 1, 2, 4
and Zero Lot Line Product 298
East Ranch (Croak Property) 573
McDonald's SDR 4,394
St. Patrick Way (Avalon West) 499
Amador Station 300
Regional Street Senior
Affordable Housing 113
Grafton Plaza Daycare & Retail 31,860
Ashton at Dublin Station 220
Westin Hotel 163,133
Kaiser Commercial – Nissan 35,000
Cambria Hotel 89,700
total 6,406 817,642
ACFD stated that collaboration with the City of Dublin, as well as the other cities in its service
area, will be vital to be able to meet demand through continued periods of growth. This will
include communicating forecasted needs based on analysis of the City's population projections,
development plans, and employee turnover and attrition, in order to estimate staffing needs.254
When development plans are processed, ACFD reviews plans and works with planning staff
from the County or affected city to ensure that fire codes are met, and fire access and other
issues are addressed as conditions of approval. The impacts of emergency fire and medical
services are also addressed as part of any environmental review prepared for a development
project. ACFD utilizes a collaborative process with local jurisdictions to forecast fire service
needs so that local needs and trends can be identified, and service trends developed.
254 Alameda County Fire Department, SoGo Survey Response, July 2021.
Ch. 11: City of Dublin 241
Policy Consulting Associates, LLC
Alameda Fire Municipal Service Review
Public Review Draft
Per the Census Designated Places (CDP), as of 2021, there are no disadvantaged
unincorporated communities (DUC) that meet the basic, State-mandated criteria within
ACFD's service area, including the City of Dublin.
The City of Dublin Fire Department has the financial ability to continue to provide services.
Although the Fire Department has funded growing expenditures, the majority of the funding
has come from City General Fund contributions. These contributions have been growing faster
than average City revenue growth, affecting funding for other services. The City's revenues,
like most agencies, experienced a substantial adverse impact from COVID-19; the City
responded with reductions in various expenditures. The City has expressed concerns that "...if
financial markets remain volatile because of the pandemic, it is likely that pension costs will
rise, and unfunded liability will grow."255
From FY2017-18 through FY2021-22 the Fire Department's expenditures have grown at a four
percent average rate, slightly higher than inflation. The need for City General Fund
contributions has grown as Fire Department charges for services decreased with reduced
development due to the pandemic.
The City's fund balances had shown growth prior to the pandemic, then dropped by ten
percent or more as revenues declined and reserves were required to help maintain services.
The City has maintained reserves that exceed its policies; as of June 30, 2021, the cash flow
reserves, which are part of the Unassigned Fund Balance, were above the minimum at
approximately nine months, which were over the desired target of four months.256
255 City of Dublin Fiscal Years 2020-21 and 2021-22 Budget, p. J-10.
256 City of Dublin, Notes to Basic Financial Statements For the year ended June 30, 2021, p. 76.
Ch. 11: City of Dublin 242
Policy Consulting Associates, LLC
Alameda Fire Municipal Service Review
Public Review Draft
Since 1997, the City of Dublin has contracted with ACFD to provide numerous fire
suppression, fire prevention, and emergency medical services such as fire inspection, public
education, wildland and hazardous materials response, and paramedic services. There are also
three specialized response teams available to the City through ACFD: the hazardous materials
unit, the urban search and rescue unit, and the water rescue team unit. Figure 11-5 details the
services provided by ACFD. If a service is not provided by ACFD, but is offered by another
agency, it is indicated in the figure.
Figure 11-5: City of Dublin Fire Service Structure
service agency
Fire Suppression Services
Structural Fire Protection Alameda County Fire Department
Wildland Fire Protection Alameda County Fire Department
Vehicle Fire Protection Alameda County Fire Department
Ladder Truck Capabilities Alameda County Fire Department
Fire Suppression Hand Crew CAL FIRE
Fire Suppression Dozer Alameda County Fire Department
Helicopter Services – Fire Suppression CAL FIRE
Boat With Fire Suppression Capabilities Berkeley Fire Department
emergency medical services
Basic Life Support Provider Alameda County Fire Department
Advanced Life Support – Non-Transport Provider Alameda County Fire Department
Advanced Life Support Transport Provider Alameda County Fire Department
Continuing Education Provider – Medical Alameda County Fire Department
Air Ambulance Transport Helicopter Services Reach Air Medical Services
Helicopter Landing Facilities On Site N/A
Vehicle Extrication Tools/Equipment Alameda County Fire Department
fire prevention
Fire Safety Education – Children Alameda County Fire Department
Fire Safety Education – Adults/Seniors Alameda County Fire Department
Juvenile Firesetter Prevention Program N/A
Fire and Life Safety Business Inspection Program Alameda County Fire Department
Ch. 11: City of Dublin 243
Policy Consulting Associates, LLC
Alameda Fire Municipal Service Review
Public Review Draft
Fire Protection Planning Alameda County Fire Department
New Commercial Construction Plan Reviews Alameda County Fire Department
Public Education Provider (CPR, First Aid, etc.) Alameda County Fire Department
Home Fire/Safety Inspections N/A
Fire Origin and Cause Investigations Alameda County Fire Department
Fuel Reduction/Weed Abatement Program Alameda County Fire Department
Smoke Detector Giveaway/Installation Program Alameda County Fire Department
Address Sign Installation Program N/A
rescue services
First Responder Swift Water Rescue Program Alameda County Fire Department
Water Rescue Program Alameda County Fire Department
Ice Rescue Program U.S. Coast Guard
Dive Rescue Program Alameda County Sheriff's Office
Low angle Rope Rescue Program Alameda County Fire Department
Helicopter Short/Long Haul Rescue Capabilities California Highway Patrol
Response to Boating Accidents Alameda County Fire Department
Rescue Dog Services Alameda County Fire Department
hazardous materials
Hazardous Materials Emergency Response –
Basic Alameda County Fire Department
Hazardous Materials Response Team Alameda County Fire Department
support services
Firefighter Incident Support Unit Alameda County Fire Department
Mobile Incident Command/Communications
Unit Alameda County Fire Department
Fill Station for Self-Contained Breathing
Apparatus Alameda County Fire Department
Mobile Breathing Support Unit Alameda County Fire Department
Community Emergency Response Team Alameda County Fire Department
Chaplain Services Alameda County Fire Department
Training Academy Alameda County Fire Department
Emergency Operations Center Capabilities Alameda County Fire Department
miscellaneous
Public Service Assists Alameda County Fire Department
Motor Vehicle Accident Response Alameda County Fire Department
Ch. 11: City of Dublin 244
Policy Consulting Associates, LLC
Alameda Fire Municipal Service Review
Public Review Draft
Alameda County Fire Department with local
Welfare Checks Police Departments
Public Safety Answering Point Alameda County Fire Department
Fire/EMS Dispatch Alameda County Fire Department
Fundraising Activities Alameda County Fire Department
Firefighters Association – Non-Profit Alameda County Fire Department
Auxiliary Association Alameda County Fire Department
The City of Dublin works closely with neighboring cities and Alameda County to provide
needed services to the community. The most extensive collaborative efforts are concentrated on
fire and emergency services and law enforcement services. The City is one of five agencies that
contract with ACFD. In addition to contracting with the cities of Newark, Emeryville, San
Leandro and Union City for fire suppression and emergency services, ACFD has an automatic
aid agreement with the City of Oakland, the City of Tracy, the San Ramon Valley Fire
Protection District, and the Livermore-Pleasanton Fire Department. ACFD's agreement with
Oakland and Berkeley includes a mutual aid response that covers the Berkeley-Oakland Hills
area. A shared automatic aid agreement exists for providing service to Interstates 580, 880,
and 680. There is also a State Mutual Aid Plan and a countywide mutual aid agreement for
all fire departments in Alameda County.
Additionally, ACFD, as a component of the County, receives a variety of administrative
services, and works in conjunction with the Alameda County Sheriff's Department, and
Alameda County Emergency Medical Services. An agreement also exists between ACFD and
California's Office of Emergency Services for dispatch needs.257
Regionally, ACFD's collaborations include participating in the governance of the dispatch
center in Livermore through the County Advisory Board. Also, ACFD firefighters who are
specially trained can be dispatched nationwide to assist with disaster response.
The California Department of Forestry and Fire Protection (CAL FIRE) augments fire services
throughout the State. Generally, CAL FIRE services are focused in wildland areas defined as
State Responsibility Areas (SRA). Much of the territory outside of the developed municipal
areas within the County is categorized as SRA. The area to the east of the City of Dublin is
257 City of Dublin, Adopted Budget FY20-21 and FY21-22, p. J-15.
Ch. 11: City of Dublin 245
Policy Consulting Associates, LLC
Alameda Fire Municipal Service Review
Public Review Draft
identified as SRA. Unusually, some territory within the city limits to the north is designated as
Federal Responsibility Area (FRA), where the federal government is responsible for combating
wildland fires. This area is where the Camp Parks Army base is located, where base
personnel would be responsible for fire protection services.
In conjunction with ACFD, CAL FIRE is utilized for hand crew services and helicopter services
for fire suppression. ACFD also works hand in hand with local police departments for welfare
checks, as well as the California Highway Patrol, the County's Sheriff's office, and the Coast
Guard for assistance with rescue efforts.
ACFD indicated it received a total of 42,363 service calls in FY 20.258 This was an increase of
roughly 19 percent since 2013. Of the service calls in 2020, 3,698 (8.7 percent) were for the
City of Dublin. The call types are broken down in Figure 11-6. Previously, the City recorded
3,245 fire service calls for FY 19 in addition to conducting 5,722 inspections and completing
1,180 plan checks.259 The most recent publication of the AFCD standards of coverage review in
2017 indicated that as of 2016, Station 17 had the sixth highest number of incidents that year
amongst all of the Department's stations with 169.260
Figure 11-6: City of Dublin Fire and Emergency Medical Service Calls by Type, 2020
2020 fire and emergency service calls by type
Structure Other EMS/ Haz. Service Good False Cancelled Total
Fires Fires Rescue Cond. Calls Intent Call Enroute Calls
City of
Dublin 34 55 2,458 73 344 146 333 255 3,698
Of the City's budgeted, full-time equivalent positions for FY 22, 39.56 are for the Fire
Department, yet only one of these is a city held position whereas the rest are contracted with
ACFD. ACFD is responsible for staffing its department to directly provide services to the City
of Dublin. The City is responsible for a portion of positions shared by the department at-large,
which include fire and deputy fire chiefs, division chiefs, battalion chiefs, and administrative
staff.
258 Alameda County Fire Department, Sogo Online Survey Response, July 2021.
259 City of Dublin, Adopted Budget FY20-21 and FY21-22, p. F-54.
260 Alameda County Fire Department, Volume 2 of 3 Technical Report Standards of Coverage Review, p. 43, 9/1/17.
Ch. 11: City of Dublin 246
Policy Consulting Associates, LLC
Alameda Fire Municipal Service Review
Public Review Draft
Minimum staffing per unit per day is considered three firefighters per each engine and truck
company.261 In the City of Dublin, Station 16 houses one engine company, Station 17 houses an
engine company and a truck company, and Station 18 has an engine company and a patrol.
Objectives set by ACFD include personnel that are trained and ready for emergency response
100 percent of the time and respond to all calls for service within the service area. The
Department states that newly hired paid firefighters are required to have Firefighter Recruit
Academy training although the monthly training hours for firefighters varies.262 ACFD provides
education that meets State mandated requirements for Emergency Medical Technicians and
Paramedics and enforce State and local fire codes and standards through the review and
approval of building and facility plans. Community service objectives include coordination of
public education, events and disaster operation activities within the communities served.
The following information is specific to ACFD's operations within the City of Dublin. For more
details about ACFD's facilities, see Chapter Four.
The City of Dublin is home to three of the 29 ACFD fire stations throughout the District as
well as a reserve station (Station 15) that houses apparatus and equipment for ACFD's
Reserve Firefighters. These stations are shown in Figure 11-7. There is also a fire prevention
bureau within the City of Dublin, as there is within each agency that contracts with ACFD.
The Dublin Fire Prevention Bureau is located in City Hall. The City is also home to
administrative offices for the Department and serves as the office representing unincorporated
areas of Alameda County including Ashland, Castro Valley, Cherryland, Livermore, San
Lorenzo, and Sunol.
Figure 11-7: City of Dublin Fire Facilities
city of dublin acfd facilities
Facility Address Owner Year Built Condition
5325 Broder Rd.,
Station 15 Dublin, CA
(Reserve) 94568 Alameda County Not provided Not provided
7494 Donohue
Dr., Dublin, CA
Station 16 94568 Alameda County Not provided Not provided
6200 Madigan,
Dublin, CA
Station 17 94568 Alameda County 2003 Not provided
261 Alameda County Fire Department, Volume 2 of 3 Technical Report Standards of Coverage Review, p. 19, 9/1/17.
262 Alameda County Fire Department, SoGo Survey Responses, July 2021.
Ch. 11: City of Dublin 247
Policy Consulting Associates, LLC
Alameda Fire Municipal Service Review
Public Review Draft
4800 Fallon Rd.,
Dublin, CA
Station 18 94568 Alameda County 2003 Not provided
City Hall, 100
Civic Plaza,
Dublin Fire Dublin, CA
Prevention Bureau 94568 City of Dublin 1966 Not provided
ACFD Vehicle 5777 Scarlett
Maintenance Court, Dublin,
Facility CA 94568 Alameda County Not provided Not provided
Fire
Administration &
Alameda County 6363 Clark Ave.,
Unincorporated Dublin, CA
Areas 94568 Alameda County Not provided Not provided
In addition to its engine company, Station 16 houses a patrol, a water tender, and an air
support unit. Due to the type of apparatus it holds, the stations focus is on coverage areas in
the western and central portions of the City. These areas contain commercial, residential and
wildland interface areas. Station 17 has an engine company and a truck company as well as a
Type 3 engine and a water rescue boat. This station's coverage area is focused on the central
portion of the City, but it also responds to calls in Dublin's western, central core, and eastern
sections. The coverage area for Station 17 also consists of commercial and residential land uses
and a major entertainment center. Station 18 has an engine company, one patrol, and one
bulldozer. This station's response area is primarily in the eastern portions of the City and its
response is concentrated on residential, high-density housing, urban wildland interface areas,
and Highway 580.263
Of the City's three fire stations, the 2017 Standards of Cover Risk Assessment shows that
none of the stations have unit-hour utilization that nears the 20 percent threshold, which
indicates a strained workload.264 Overall, Department capacity appears sufficient, however,
service should be continually reevaluated to ensure all sections of the City are receiving
adequate response due to access issues, particularly on the west side.
There are a few ways the City of Dublin communicates with residents to transmit important
health and safety information. These methods include broadcasting emergency messages over
local radio, online, and utilizing its social media channels: Twitter, Facebook, Instagram,
Youtube, Linkedin, Nextdoor, and Nixle.
263 ACFD, https://fire.acgov.org/stations-and-facilities/, accessed 5/13/22.
264 Alameda County Fire Department, Volume 2 of 3 Technical Report Standards of Coverage Review, p. 52-53, 9/1/17.
Ch. 11: City of Dublin 248
Policy Consulting Associates, LLC
Alameda Fire Municipal Service Review
Public Review Draft
ACFD is responsible for coordinating dispatch communications for the City's service calls. The
regional 9-1-1 dispatching center is known as the Alameda County Regional Emergency
Communications Center (ACRECC) and is housed at the Lawrence Livermore National
Laboratory (LLNL) along with the Alameda County Fire Communication Center (ACFCC).
ACRECC currently dispatches fire and medical calls for ACFD, the U.S. Army at Camp
Parks Combat Support Training Center in Dublin, the cities of Alameda, Fremont, Livermore
and Pleasanton, and the County EMS transport provider Paramedics Plus ambulance service.
The Consortium, now known as the Advisory Board, is managed by a governing board made
up of participating agencies. Each agency pays an annual amount with costs apportioned
based on call volume as outlined in each contract for service.
Given that 9-1-1 calls may relate to a policing, fire or medical emergency, the calls are first
routed by the telephone provider to the Public Safety Answering Point (PSAP). The first-
response dispatcher immediately determines the type or need of the call and routes all fire and
medical 9-1-1 calls to the ACRECC. The ACRECC simultaneously dispatches ACFD and the
County EMS transport provider for ambulance transport services.
Cooperation and consolidation of facilities is an impactful way to limit operating costs for the
City while still effectively providing needed services. As previously mentioned, ACFD provides
contract services to four agencies in addition to the City of Dublin for fire and emergency
response services. To do this, it shares personnel, dispatching services, and facilities resources
as necessary, not specifically in relation to the City of Dublin. Consolidating facilities and
shifting personnel is not uncommon, for instance, Station 8 firefighters having been relocated to
Station 20, which is the Lawrence Livermore National Laboratory site. Another example is that
Station 15 currently houses ACFD Reserve Firefighters, apparatus and equipment even though
it was previously the Office of Emergency Services and Dougherty Regional Fire Authority
Station 3.265
An ACFD goal is to pursue regional cooperation and consolidation of services. ACFD views
dispatch, administration, and the operations division as areas that would benefit from greater
regional collaboration.
265 Alameda County Fire Department, https://fire.acgov.org/AboutUs/facilities.page? page accessed 3/9/22.
Ch. 11: City of Dublin 249
Policy Consulting Associates, LLC
Alameda Fire Municipal Service Review
Public Review Draft
ACFD reports that collaboration with regional transport companies, in conjunction with other
fire agencies and municipalities, to establish a fire-based ambulance transport model would
particularly improve efficiencies in service delivery, especially EMS delivery.266
For the City of Dublin, fire station maintenance is outlined in its annual budget. Most of the
budgeted needs are for routine maintenance and repairs. Identified improvements for FY 22
include implementing GPS Enabled Traffic Preemption and the Zone Haven Emergency
Evacuation System.267 There are capital improvement projects specific to ACFD in the
County's Annual Capital Improvement Plan (CIP). For more information, refer to chapter 4.
The most significant challenge facing the City of Dublin appears to be financial limitations as a
result of the COVID-19 pandemic and its overall impact on the economy due to shelter-in-
place restrictions that kept revenues limited, including many tax revenue streams, not including
property taxes.268
Coupled with rapid population growth in the region, limited financing will continue to be a
concern as it relates to staffing and development.
This section reviews indicators of service adequacy, including response times, ISO rating, and
complaints received. There are many measures of a successful fire protection service. For
example, the agency would meet guidelines established by the National Fire Protection
Association (NFPA), the Center for Public Safety Excellence (CPSE) (formerly the
Commission on Fire Accreditation International) and the California EMS Agency. There are
also Public Protection Classifications (PPC) and Insurance Services Office (ISO) ratings that
likewise establish an agency's level of service.
Each of ACFD's contract cities maintains individualized performance measures according to its
agreement. The applicable response time measure for City of Dublin is shown in Figure 11-8.
In contrast, the Department's response time goals are six minutes, exceeding those of the City
by one minute from dispatch to arrival. The Department, however, gives a baseline goal of 7:30
266 Alameda County Fire Department, SoGo Survey Responses, July 2021.
267 City of Dublin, Adopted Budget FY20-22, p. F-54.
268 City of Dublin, CAFR, 6/30/20, p. xi.
Ch. 11: City of Dublin 250
Policy Consulting Associates, LLC
Alameda Fire Municipal Service Review
Public Review Draft
minutes total, including call processing.269 Based on this measurement, as of 2016, the
Department exceeded both standards across all three Dublin fire stations. Station 16
experienced the longest call to arrival response time average at 8:10, followed by Station 18 at
7:58 and Station 17 at 7:41.270
Figure 11-8: City of Dublin Response Time Policy
response times for acfd and contract cities
agency name single unit incident multiple unit incident
Arrival of first company on the scene
within 5 minutes for 90 percent of all
Arrive within 5 minutes from the
incidents. Remaining units should arrive
time the Company is first
City of Dublin on the scene of an incident within 10
dispatched for 90 percent of
minutes from when the first due company
incidents.
begins responding for 90 percent of all
incidents.
Residential first alarm response, otherwise known as the Effective Response Force, has a goal
of eight minutes travel time or 11:30 minutes total response time for a minimum of three engine
companies, one truck company, and one Battalion Chief to arrive. Only some areas of each
urban core are accessible within this timeframe and the situation worsens with the addition of
congestion through the coverage area. This is particularly noticeable in the City of Dublin
where units cannot reach the outer edges within eight minutes.271 Despite these response
times, a majority of fire stations in ACFD provide service in less than 8:00 minutes within the
most urbanized areas. Any time that is gained by adding stations would not be cost effective.272
Fire services in the communities are classified by the Insurance Service Office (ISO), as an
indicator of the general adequacy of coverage. Communities with the best fire department
facilities, systems for water distribution, fire alarms and communications, and equipment and
personnel receive a rating of 1. ACFD's most recent ISO rating was done in 2015, and it was
given an ISO PPC rating of 01/1Y, which is the top classification available. The first number
means a home is no more than five road miles from a fire station and 1,000 feet from a water
supply such as a hydrant. The second classification, Y, refers to the properties further than
1,000 feet from a fire hydrant but within five road miles of a recognized fire station.273
ACFD has not provided information as to whether any complaints regarding fire service for the
City of Dublin were received in FY 21.
269 Alameda County Fire Department, Volume 2 of 3 Technical Report Standards of Coverage Review, p. 44, 9/1/17.
270 Alameda County Fire Department, Volume 2 of 3 Technical Report Standards of Coverage Review, p. 49, 9/1/17.
271 Alameda County Fire Department, Volume 2 of 3 Technical Report Standards of Coverage Review, p. 32, 9/1/17.
272 Alameda County Fire Department, Volume 2 of 3 Technical Report Standards of Coverage Review, p. 50, 9/1/17.
273 Alameda County, Public Protection Classification Summary Report, p. 7, July 2015.
Ch. 11: City of Dublin 251
Policy Consulting Associates, LLC
Alameda Fire Municipal Service Review
Public Review Draft
11-1: The population of the City of Dublin was 72,932 in 2022. Its growth rate has been
increasing rapidly, having increased more than 63 percent between 2010 and 2022.
11-2: Growth in the City is projected to increase by 35 percent between 2020 and 2035 to
a total of roughly 97,995.
11-3: The City of Dublin does not have any DUCs within or contiguous to its SOI.
11-4: Overall, Department capacity appears sufficient, however, service should be
continually reevaluated to ensure all sections of the City are receiving adequate
response due to access issues, particularly on the west side. Additionally, the City
should monitor population projections and development plans to ensure they align with
city planning efforts to adequately accommodate growth and the related increase in
demand for fire and emergency medical services.
11-5: The City of Dublin has its fire and emergency response service needs adequately met
by ACFD, with three staffed fire stations throughout its boundaries. There should,
however, be continued reevaluation of the service area and response times to ensure
areas outside of the city center, particularly in the west, are receiving adequate
services.
11-6: Infrastructure needs are currently being met by the City of Dublin as planned and
expensed in its budget for capital improvements. A majority of identified needs are
addressed with regular maintenance.
11-7: The City of Dublin Fire Department has the financial ability to continue to provide
services. Continued expenditure growth has been increasingly funded by the City's
General Fund. The City is concerned about continued pandemic impacts on its
revenues and fund balances, and financial instability, which could worsen pension
liabilities and adversely affect services.
Ch. 11: City of Dublin 252
Policy Consulting Associates, LLC
Alameda Fire Municipal Service Review
Public Review Draft
11-8: The City's fire service structure relies heavily on facility and resource sharing with
ACFD, the County, and other providers in the region.
11-9: The City contracts with ACFD and one of the Department's goals is to consolidate
facilities and resources. One possibility for collaboration that should be pursued is
between regional transport companies, other fire agencies, and municipalities in order
to provide more efficient service delivery, especially EMS delivery.
11-10: It is recommended that the Department join fellow Alameda fire providers to develop
a regional, countywide dispatch strategy that employs the closest resource for the
fastest response time, regardless of agency boundaries or responsibility.
11-11: The City of Dublin abides by all legislative obligations for accountability and
governance practices.
11-12: The City of Dublin demonstrated transparency when sharing information for the
creation of this report.
11-13: No governance structure alternatives specific to the City of Dublin were identified
over the course of this review, however, ACFD, in contract with the City, has a goal
to pursue regional cooperation and consolidation of services. ACFD views dispatch,
administration, and the operations division as areas that would benefit from greater
regional collaboration.
Ch. 11: City of Dublin 253
Policy Consulting Associates, LLC
Alameda Fire Municipal Service Review
Public Review Draft
The City of Emeryville is one of five cities that contracts with the Alameda County Fire
Department (ACFD) for fire suppression and emergency medical services.
The City of Emeryville is located in the San Francisco Bay Area of Alameda County, bordered
by the City of Berkeley to the north and the City of Oakland to the south and east.
The City of Emeryville was initially incorporated in 1896 as a general law city. In 2014,
however, voters passed Measure U establishing Emeryville as a charter city. Since 1984, the
local government has been served by a City Council and City Manager form of government
and provides a full suite of services from development services to community and general
administrative services.274 While the City of Emeryville provides many municipal services, the
focus of this review is on fire protection, emergency medical, and other related services offered
by the City.
The City of Emeryville was last included in an MSR Update that was adopted in 2018 and
was part of a Public Safety Services MSR by Alameda LAFCO that was adopted in 2004.
There was also a Countywide MSR update for water, wastewater, flood control and
stormwater services completed in 2021. The focus of this MSR is limited to the fire and
emergency medical services provided by the City.
As part of Alameda County, the City of Emeryville rests along the eastern shore of the San
Francisco Bay, opposite of the City of San Francisco, and bordered by the City of Berkeley to
the north and the City of Oakland to the east and south.275 With an area of 1.2 square miles
in size, the City is small; however it is strategically located in the center of the Bay Area near
the convergence of many major transportation access points including Interstates 80, 880, and
274 City of Emeryville, CAFR, FY20, p.i.
275 City of Emeryville, CAFR, FY20, p. ii.
Ch. 12: City of Emeryville 254
Policy Consulting Associates, LLC
Alameda Fire Municipal Service Review
Public Review Draft
580, as well as the east landing of the Bay Bridge.276 Figure 12-1 depicts the City's boundaries,
which is also the service area for services provided by ACFD by contract.
The City of Emeryville does not provide services outside of its boundaries but does contract
with ACFD, which is responsible for the execution of fire and emergency medical services
within the city limits. ACFD's fire stations that serve the City of Emeryville, may also provide
services outside of the city limits based on auto and mutual aid agreements.
There are no unserved areas in the City of Emeryville. ACFD is able to provide services
throughout the bounds of the City of Emeryville with access to its two fire stations (34 and 35)
centrally located within the city limits.
The City of Emeryville's sphere of influence is coterminous with its city limits, as the City is
surrounded by the incorporated territory of the cities of Berkeley and Oakland and the Bay on
all sides with no potential for expansion. The current SOI for the City of Emeryville was last
reaffirmed on January 12, 2018.
Figure 12-1: City of Emeryville Boundaries and SOI
276 City of Emeryville, https://www.ci.emeryville.ca.us/68/Emeryvilles-History, and https://www.ci.emeryville.ca.us/69/Location,
accessed 5/5/22.
Ch. 12: City of Emeryville 255
Policy Consulting Associates, LLC
Alameda Fire Municipal Service Review
Public Review Draft
City of Emeryville
Range 04 West Range 03 West
UV
Sacram
UV
1
7
3
th
St
123
Ashby Ave
ento
St
Berkeley
Adeline
St
Alcatraz Ave
htuoS
10
pihsnwoT
0
Emeryvil
A
l
0
e
CFFS
§¨¦
3
8
4
0
Powell St
ACFFS35
San
Pablo
Ave
Stanford Ave
Oakland
Shattuck
Ave
C
Tele
l
g
a
raph
r
A
e
ve
mont Ave
51st St
Market
St
KingJr
UV
24
Maritime St Grand Ave
§¨¦
880
§¨¦
580
Peralta St
Adeline
St
Macarth
§¨¦
ur Blvd
§¨¦ 9
Ma
8
rtin L
0
uther 40th S
P
t
ied
B
m
ro
o
ad
n
w
t
a y
Ave
Alameda County Legend O Alameda County 980 City of Emeryville
S L o o ur c ce a : A l la A m g ed e a n
g i D n
L
e i
A
t
c
s e n
F
c
y
n e
C
l d a r
o
a e
F
im l d
o
d e t i r s o
r
: p
m
b T la e h
a
y e u
t
p s i
i
n u e
o
f
M
r d o p
n a
r o f m
p
o s
C
r
C
a e r t
r
s
o
i e
e
o
a
o f n
m
e
t
n
e
r s l e
d
y
m
h n
1
o a c
/7
n w
i
e
s /
d
2
n a
s 0
i n i s
2
s
i
d
3 on kj A A
F
A
C
C
i
d l l o
r i
a a
t e
j m m m a
y S
c m e e e
o t
d d
a
u n
f
a a
t
n t
i E o
i C C C t
n
i
m
o i o e t
s
u y s u
e (
n n B
A r
t t y o
y
y
C
u
v F
B B n
D i
o o
l
d u
l
u
C
a
e
n n r
o
d i d e
n
a a s
t
r r
r
y i
a
e
c
s
t)
C S o a u n n t F y ranci
S
sco
a
P
C
kj
n
i kj ekj
o
A dE
u
B
M
l m b kj me
n
a
a
o re n
t
A k kjn
t
r
y
ye
e
l ty aO l kjve
o
ma iyl ke le ldaand kjSan
kj
L
H
e
a kj
a
y F
n
w r
d
e a m
r
r
o
d o kj n U kjt n N io e n w C a
P C
r it k
l
y
e o a nC sa t kj or n au t
A
oD kj n n C u
la
t b oy
m
li s n t
e
a
da C
kj
o
L
u
iv
n
er
t
m
y
ore San Joaquin County
not to be used as an official map. 0 440 880 1,760 2,640Feet Santa Clara County
Accountability of a governing body is signified by a combination of several indicators. The
indicators chosen here focus on 1) agency efforts to engage and educate constituents through
outreach activities, in addition to legally required activities such as agenda posting and public
meetings, 2) a website with required content and other useful information, 3) timely ethics
training for board members and an adopted reimbursement policy, 4) a defined complaint
process designed to handle all issues to resolution, 5) adopted bylaws that provide a framework
and direction for governance and administration, 6) adoption of a conflict-of-interest code as
required by law, 7) proper filing of Form 700 by the governing body members, and 8)
transparency of the agency as indicated by cooperation with the MSR process and information
disclosure at meetings, in documents and on a website.
The City of Emeryville has a Council-Manager government structure. Five councilmembers are
elected at large to four-year staggered terms. The councilmembers then select a Mayor and
Vice-Mayor amongst themselves. The City Manager is appointed by the City Council. The
City Council and the City Manager also serve as the Successor Agency and Executive
Ch. 12: City of Emeryville 256
Policy Consulting Associates, LLC
Alameda Fire Municipal Service Review
Public Review Draft
Director of the Emeryville Redevelopment Agency. Current board member names, positions,
and term expiration dates are shown in Figure 12-3.
The governing body meets every first and third Tuesday of the month (except for the first
Tuesdays in January and August) at 7:15pm in the Council Chambers at City Hall located at
1333 Park Avenue in Emeryville. Agendas for each weekly meeting are posted online, with each
live streaming video broadcast, and through the City Clerk's office. Board actions and meeting
minutes are available online through the City's website. The public has access to live
audio/visual broadcasts via City of Emeryville TV channel 27, live streaming video, and
archived audio and/or visual webcasts of Council meetings for viewing online.
Figure 12-2: City of Emeryville Governing Body
governing body
Manner of Selection Elections at large
Length of Term 4 years, staggered terms
First and third Tuesday of each month at 7:15pm
Emeryville City Hall
Meetings 1333 Park Avenue
Emeryville, CA 94608
Streamed online and broadcast on TV
Agenda Distribution Posted online and available through the City Clerk
Minutes Distribution Posted online
council members
Term Manner of
Member Name Position Expiration Selection Length of Term
John Bauters Mayor 2024 Elected 4 Years
Courtney Welch Vice Mayor 2024 Elected 4 Years
David Mourra Councilmember 2026 Elected 4 Years
Kalimah A. Priforce Councilmember 2026 Elected 4 Years
Ally Medina Councilmember 2024 Elected 4 Years
contact
Contact Christine Daniel, City Manager
Mailing Address 1333 Park Avenue, Emeryville, CA
Phone 510-596-4371
cdaniel@emeryville.org,
Email/Website
https://www.ci.emeryville.ca.us/
Ch. 12: City of Emeryville 257
Policy Consulting Associates, LLC
Alameda Fire Municipal Service Review
Public Review Draft
The City of Emeryville participates in community outreach such as city festivals, educational
and enrichment activities, guidance for businesses and sustainability efforts, and crime
prevention and emergency preparedness programs. The City also promotes engagement
through its website and social media, apps such as SeeClickFix, and a subscription newsletter.
Additionally, ACFD has specific fire prevention and emergency safety programs available to
City of Emeryville residents as well.
All complaints concerning the City of Emeryville or any of its employees are handled by the
appropriate department and escalated as needed.
In accordance with the California Fair Political Practices Commission, Form 700 should be
filed by the City's councilmembers. In the case of the City of Emeryville, all councilmembers
have current filings for Form 700, indicating transparency of their economic interests.
The City has adopted and regularly updates its Conflict-of-Interest code as required by law.
There is legislation in effect to help ensure public agencies adhere to accountability standards.
California AB 2257 (Government Code §54954.2) is an update to the Brown Act and
indicates requirements for methods by which an agenda for all meetings should be made
available on an agency's website. The City of Emeryville is in compliance with this regulation.
The City of Emeryville, and ACFD on the City's behalf, demonstrated accountability in its
disclosure of information and cooperation with the LAFCO questionnaires and other requests
for information.
While public sector management standards vary depending on the size and scope of the
organization, there are minimum standards. Well-managed organizations evaluate employees
annually, track employee and agency productivity, periodically review agency performance,
prepare a budget before the beginning of the fiscal year, conduct periodic financial audits to
safeguard the public trust, maintain relatively current financial records, conduct advanced
planning for future service needs, and plan and budget for capital needs.
The City accounts for its fire and emergency services in a number of its planning and
management documents, particularly in the annual budget and General Plan. Additionally,
being that the City contracts with ACFD for services, ACFD also abides by its own planning
and management practices as outlined below.
Ch. 12: City of Emeryville 258
Policy Consulting Associates, LLC
Alameda Fire Municipal Service Review
Public Review Draft
ACFD's FY 21 budget indicates it has 559 authorized positions. This is an increase of 12, year
over year since FY 19. Of these 559 positions, 511.42 are considered full-time equivalents for
both management and non-management positions. Additionally, the department indicates it has
100 reserve firefighters to help fulfil the variety of services offered.277 The Fire Chief oversees
four branches—Operations, Communications and Special Operations, Administrative Support
Services, Fire Prevention and Community Outreach. Each branch has its own divisions. The
Training division falls under the Operations branch, the EMS, Information Technology, and
Special Operations divisions are part of the Communications and Special Operations branch,
and the divisions for Fleet Management, Financial Services, Facilities, and Human Resources
are part of the Administrative Support Services Branch.
The Fire Chief provides the leadership and management overall. The Deputy Chief for
Operations oversees the training division, three Operation Divisions, and the reserve program.
The Administrative Services Director oversees Administrative Support Services by managing
contracts and services, facilities, financial services, fleet management, and human resources.
The Deputy Chief for Communications and Special Operations manages the Alameda County
Regional Emergency Communications Center (ACRECC), EMS, information technology,
Alameda County Operations Area & California Incident Command Certification Center
(CICCS), and Special Operations.
ACFD, as a component of the Alameda County government, is required to conduct value-
based budgeting. The goals of this process involve funding agreed-upon service levels,
identification of revenues and expenditures as one-time or continuing, and maintenance of
adequate contingency and reserve funds.
ACFD battalion chiefs evaluate operations of their respective battalions on an on-going basis.
ACFD also conducts annual personnel evaluations. Managers annually review goals and
objectives for the coming year and goal achievements for the previous year. ACFD monitors its
workload through the chief officer performance reviews, which identify staffing and resource
deficiencies.
To ensure fire service efficiency and effectiveness, ACFD has set policy goals and objectives.
ACFD aims to provide emergency response and incident management for fires, rescues,
medical emergencies, hazardous materials incidents, and disasters to all Alameda County
citizens and to ensure that local, State and federal mandated and discretionary service levels
are maintained within the communities served.
277 Alameda County Fire Department, https://fire.acgov.org/AboutUs/aboutus.page, April 19, 2022.
Ch. 12: City of Emeryville 259
Policy Consulting Associates, LLC
Alameda Fire Municipal Service Review
Public Review Draft
ACFD's finances are managed by the County. County financial planning documents include
an annual budget and Comprehensive Annual Financial Report (CAFR). In addition, ACFD
has financial statements audited annually. The District's capital needs are included in the
County's Capital Improvement Plan (CIP). ACFD adopted a Fire and Emergency Services
Strategic Business Plan; the most recent update was for the years 2015-2019. Additionally, the
District participates in the Region II plan for the Office of Emergency Services.278
The City of Emeryville has a collaborative relationship with ACFD via a contractual
agreement. Together, the agencies work to forecast staffing needs as needed based on
population growth and development plans and analyze employee turnover and attrition in order
to meet hiring demands. Response times and response levels are indicated in the City's
contract with ACFD and are tools for measuring satisfactory service levels. The Fire Chief is
designated to act as the direct liaison to the City Manager and is obligated to attend, or
provide a representative to attend, meetings as needed including City Council meetings, and to
discuss the budget, operations, and other topics that may arise. ACFD is directed to maintain
records sufficient for fulfilling reporting obligations and to undergo an independent, yearly audit
of ACFD's financial performance. ACFD must also adhere to community complaints guidelines
and inform the City Manager of complaints relating to the services provided by ACFD. Per
the contract, the City is entitled to a representative on the ACFD Fire Advisory Commission
as well as the Executive Management Oversight Committee, which meets quarterly. 279
A critical planning tool for the City of Emeryville affecting wildfire hazards resulting from
climate change is its Climate Action Plan 2.0 adopted in 2016. In accordance with the State of
California targets, the City of Emeryville aims to reduce greenhouse gas emissions to 40
percent below baseline levels by 2030 and 80 percent below baseline levels by 2050. The
plan consists of 17 mitigation goals, five adaptation goals, and over 100 combined initiatives for
2030, and five long-term strategies for 2050. The plan indicates at there is limited exposure to
wildfire hazards from climate change due to Emeryville's location along the urbanized area of
the San Francisco Bay.
278 Alameda County Fire Department, Survey Response, July 2021
279 Alameda County Fire Department, ACFD and City of Emeryville Contract Agreement, updated June 30, 2018.
Ch. 12: City of Emeryville 260
Policy Consulting Associates, LLC
Alameda Fire Municipal Service Review
Public Review Draft
The City of Emeryville consists of approximately 768 acres or 1.2 square miles. Development
goals primarily must be met through redeveloping existing land and rehabilitating older
buildings since the City is nearly entirely built out.280 The City of Emeryville is presently focused
on mixed use land space that will balance employment opportunities with residential
availability.281 Most of the current land space is designated for planned unit developments that
are centrally located within the City's planning area. A majority of these developments are
located south of Powell Street between Shell Mound Street on the west and Hollis Street on
the East.
The General Plan guides the development of this land, while the Safety Element specifically
indicates goals and policies for the land area as it relates to fire and emergency services.
Currently, the plan lists urban fires as the primary threat to the Emeryville area, especially
urban fires resulting from an earthquake. Continued efforts are, therefore, outlined to ensure
evacuation routes, regulations of roadway widths to accommodate emergency vehicles and
equipment, and sufficient water flow in the event of fire.282
The 2020 US Census estimates the City of Emeryville's population for April 2020 as 12,905
residents, which is 28 percent growth from a population of 10,080 in 2010. More recently,
annual population estimates by the California Department of Finance (DOF) indicate a slight
decrease in the City's population with an estimated population of 12,497 as of January 1, 2022,
or a decrease from 2020 of 3.2 percent. The City's population trend over the last 10 years is
shown in Figure 12-3.
Figure 12-3: City of Emeryville Population Growth, 2010-2022
280 City of Emeryville, General Plan, 2-2, Amended through 9/3/2019.
281 City of Emeryville, General Plan, 2-2, Amended through 9/3/2019.
282 City of Emeryville, General Plan, 6-19, Amended through 9/3/2019.
Ch. 12: City of Emeryville 261
Policy Consulting Associates, LLC
Alameda Fire Municipal Service Review
Public Review Draft
City of Emeryville Population 2010-2022
25,000
20,000
15,000
10,000
5,000
4/1/10 1/1/11 1/1/12 1/1/13 1/1/14 1/1/15 1/1/16 1/1/17 1/1/18 1/1/19 1/1/20 1/1/21 1/1/22
Based on Association of Bay Area Governments (ABAG) growth projections, the total
population of the City of Emeryville is expected to increase by approximately 51 percent
between 2020 and 2035. In contrast, the entire area within ACFD is anticipated to grow by
an average annual growth rate of 0.8 percent by 2035.283 Increases in the number of
multifamily housing units and jobs is also expected. ABAG data shows multifamily housing is
projected to grow by 62 percent between 2020 and 2035, whereas single family dwelling units
are anticipated to stay stable. Employment is projected to grow marginally by approximately
two percent over the same time period.
In terms of growth effects on fire and emergency services provided to the City by ACFD, the
City expects vertical growth as a majority of land within the city limits is built out. Coupled
with the aforementioned anticipated increases in jobs and population, there is potential for
growth patterns to affect service demand. In particular, the City has outlined 1) the potential
need for equipment that is better able to accommodate the City's urban environment, 2) the
impact traffic congestion would have on response times, and 3) the potential for urban fires to
have a greater effect on people due to the City's high population density.284
283 Association of Bay Area Governments, http://projections.planbayarea.org/, Projections 2040 by Jurisdiction download,
accessed 6/13/22.
284 City of Emeryville, General Plan, 2-2, Amended through 9/3/2019.
Ch. 12: City of Emeryville 262
Policy Consulting Associates, LLC
Alameda Fire Municipal Service Review
Public Review Draft
A significant number of major development projects are underway in the City of Emeryville as
shown in Figure 12-4. Largely, these plans are for residential facilities, although there are mixed
use spaces included as well. This type of development reflects the City's anticipated population
growth expected over the next ten years, as mentioned above.
Figure 12-4: City of Emeryville Planned or Proposed Development Projects, 2023
city of emeryville development projects
project # of dwelling units commercial square feet
Christie Sites 367
9 Anchor Drive 54
3637 Adeline Supportive
Housing 90
5801 Christie Mixed Use
Project 94
Intergenerational Affordable
Housing 68
Life Sciences Tower 30
Multi-Unit Residential Project 24
Nellie Hannon Gateway 90
Bay Street Grocery Store 48,500
Baker Metal Live/Work 17
The Emery Building D 184
The Emery Building C 122 944
Bayview Emeryville Apartments 186
The Emery Building B1 64 2,241
The Emery Building B2 130 3,025
total 1,520 54,710
ACFD stated that collaboration with the City of Emeryville, as well as the other cities in its
service area, will be vital to be able to meet demand through continued periods of growth. This
Ch. 12: City of Emeryville 263
Policy Consulting Associates, LLC
Alameda Fire Municipal Service Review
Public Review Draft
will include communicating forecasted needs based on analysis of the City's population
projections, development plans, and employee turnover/attrition, to estimate staffing needs.285
Per the Census Designated Places (CDP), as of 2021, there are no disadvantaged
unincorporated communities (DUCs) that meet the State-mandated criteria within ACFD's
service area, including Emeryville.
The City of Emeryville Fire Department has the financial ability to continue to provide services.
The City has continued to increase funding to the Fire Department from the City's General
Fund despite City revenues declining 20 percent from their peak in FY2018-19. A number of
pro-active measures enabled the City to maintain its reserve targets.
Since FY2017-18 the Fire Department's expenditures have grown at a 5.7 percent average rate
but slowed to 2 percent in the FY2021-22 budget. As noted in the City's budget, "...the City's
primary revenue streams (sales tax, hotel tax, business license tax and cardroom tax), were all
negatively affected by the pandemic. While all are recovering, industries are reacting differently
to the recovery and each will take a different amount of time."286 Fire Department fees and
permits revenue declined substantially with reduced development, and net General Fund
contributions continued to grow.
The City has taken steps to defer costs and capital projects and maintain a number of
positions vacant. Although unrestricted funds have declined, the City has continued to maintain
its minimum General Fund reserve requirements equal to 50 percent of operational costs.
285 Alameda County Fire Department, SoGo Survey Response, July 2021.
286 City of Emeryville City Budget Fiscal Year 2021-2022, pg. v.
Ch. 12: City of Emeryville 264
Policy Consulting Associates, LLC
Alameda Fire Municipal Service Review
Public Review Draft
Since 2012, the City of Emeryville has contracted with ACFD to provide numerous fire
suppression, fire prevention, and emergency medical services such as fire inspection, public
education, wildland and hazardous materials response, and paramedic services. There are also
three specialized response teams available to the City through ACFD: the hazardous materials
unit, urban search and rescue unit, and the water rescue team unit. Figure 12-5 details the
services provided by ACFD. If a service is not provided by ACFD, but is offered by another
agency, it is indicated in the figure.
Figure 12-5: City of Emeryville Fire Service Structure
service agency
fire suppression services
Structural Fire Protection Alameda County Fire Department
Wildland Fire Protection Alameda County Fire Department
Vehicle Fire Protection Alameda County Fire Department
Ladder Truck Capabilities Alameda County Fire Department
Fire Suppression Hand Crew CAL FIRE
Fire Suppression Dozer Alameda County Fire Department
Helicopter Services – Fire Suppression CAL FIRE
Boat With Fire Suppression Capabilities Berkeley Fire Department
emergency medical services
Basic Life Support Provider Alameda County Fire Department
Advanced Life Support – Non-Transport
Provider Alameda County Fire Department
Advanced Life Support Transport Driver Alameda County Fire Department
Continuing Education Provider – Medical Alameda County Fire Department
Air Ambulance Transport Helicopter Services Reach Air Medical Services
Helicopter Landing Facilities On Site N/A
Vehicle Extrication Tools/Equipment Alameda County Fire Department
fire prevention
Fire Safety Education – Children Alameda County Fire Department
Fire Safety Education – Adults/Seniors Alameda County Fire Department
Ch. 12: City of Emeryville 265
Policy Consulting Associates, LLC
Alameda Fire Municipal Service Review
Public Review Draft
Juvenile Firesetter Prevention Program N/A
Fire and Life Safety Business Inspection Program Alameda County Fire Department
Fire Protection Planning Alameda County Fire Department
New Commercial Construction Plan Reviews Alameda County Fire Department
Public Education Provider (CPR, First Aid, etc.) Alameda County Fire Department
Home Fire/Safety Inspections N/A
Fire Origin and Cause Investigations Alameda County Fire Department
Fuel Reduction/Weed Abatement Program Alameda County Fire Department
Smoke Detector Giveaway/Installation Program Alameda County Fire Department
Address Sign Installation Program N/A
rescue services
Fires Responder Swift Water Rescue Program Alameda County Fire Department
Water Rescue Program Alameda County Fire Department
Ice Rescue Program U.S. Coast Guard
Dive Rescue Program Alameda County Sheriff's Office
Low angle Rope Rescue Program Alameda County Fire Department
Helicopter Short/Long Haul Rescue Capabilities California Highway Patrol
Response to Boating Accidents Alameda County Fire Department
Rescue Dog Services Alameda County Fire Department
hazardous materials
Hazardous Materials Emergency Response –
Basic Alameda County Fire Department
Hazardous Materials Response Team Alameda County Fire Department
support services
Firefighter Incident Support Unit Alameda County Fire Department
Mobile Incident Command/Communications
Unit Alameda County Fire Department
Fill Station for Self-Contained Breathing
Apparatus Alameda County Fire Department
Mobile Breathing Support Unit Alameda County Fire Department
Community Emergency Response Team Alameda County Fire Department
Chaplain Services Alameda County Fire Department
Training Academy Alameda County Fire Department
Emergency Operations Center Capabilities Alameda County Fire Department
miscellaneous
Ch. 12: City of Emeryville 266
Policy Consulting Associates, LLC
Alameda Fire Municipal Service Review
Public Review Draft
Public Service Assists Alameda County Fire Department
Motor Vehicle Accident Response Alameda County Fire Department
Alameda County Fire Department with local
Welfare Checks Police Departments
Public Safety Answering Point Alameda County Fire Department
Fire/EMS Dispatch Alameda County Fire Department
Fundraising Activities Alameda County Fire Department
Firefighters Association – Non-Profit Alameda County Fire Department
Auxiliary Association Alameda County Fire Department
The City of Emeryville is one of five agencies that contract with ACFD. In addition to
contracting with the cities of Dublin, Newark, San Leandro and Union City for fire suppression
and emergency services, ACFD has an automatic aid agreement with the City of Oakland,
the City of Tracy, the San Ramon Valley Fire Protection District, and the Livermore-
Pleasanton Fire Department. ACFD's agreement with Oakland and Berkeley includes a
mutual aid response that covers the Berkeley-Oakland Hills area. A shared automatic aid
agreement exists for providing service to Interstates 580, 880, and 680. There is also a State
Mutual Aid Plan and a countywide mutual aid agreement for all fire departments in Alameda
County.
Additionally, ACFD collaborates with the County to receive a variety of administrative services,
and to work in conjunction with the Alameda County Sheriff's Department, and Alameda
County Emergency Medical Services. An agreement also exists between ACFD and
California's Office of Emergency Services for dispatch needs.287
Regionally, ACFD's collaborations include participating in the governance of the dispatch
center in Livermore through the County Advisory Board. Also, ACFD firefighters who are
specially trained can be dispatched nationwide to assist with disaster response.
The California Department of Forestry and Fire Protection (CAL FIRE) augments fire services
throughout the State. Generally, CAL FIRE services are focused in wildland areas defined as
State Responsibility Areas (SRA). A majority of the territory outside of the developed municipal
287 Alameda County Fire Department, SoGo Survey Responses, July 2021.
Ch. 12: City of Emeryville 267
Policy Consulting Associates, LLC
Alameda Fire Municipal Service Review
Public Review Draft
areas within the County is categorized as SRA. None of the territory immediately adjacent to
or within the vicinity of the City of Emeryville is categorized as SRA.
In conjunction with ACFD, CAL FIRE is utilized for hand crew services and helicopter services
for fire suppression. ACFD also works hand in hand with local police departments for welfare
checks, as well as the California Highway Patrol, the County's Sheriff's office, and the Coast
Guard for assistance with rescue efforts.
For FY 20, ACFD stated there were a total of 42,363 service calls overall. This is an increase
of 19 percent since FY 13. Of those calls, 2,336, were for the City of Emeryville, which accounts
for 5.5 percent of the total. The call types are broken down in Figure 12-6.
Figure 12-6: City of Emeryville Calls for Service, 2019-2020
2019-2020 fire and emergency service calls by type
Structure Other EMS/ Hazardous Service Good False Cancelled Total
Fires Fires Rescue Conditions Calls Intent Call Enroute Calls
City of
Emeryville 24 36 1,370 26 148 110 332 290 2,336
ACFD is responsible for staffing its department to directly provide services to the City of
Emeryville. The City, however, is also responsible for a portion of positions shared by the
department at-large. These positions include fire and deputy fire chiefs, division chiefs, battalion
chiefs, and administrative staff. Minimum staffing per unit per day is considered three captains,
three engineers, and three firefighters. Two staffed engine companies are primarily responsible
for the City of Emeryville's emergency response. Each engine company has three firefighters,
including a minimum of one paramedic. Battalion 4 also has a battalion chief on duty 24/7 to
cover assigned territory, including the City of Emeryville.288
Objectives set by ACFD include personnel that are trained and ready for emergency response
100 percent of the time and respond to all calls for service within the service area. The
Department states that newly hired paid firefighters are required to have Firefighter Recruit
Academy training, although the monthly training hours for firefighters varies.289 ACFD provides
288 City of Emeryville, Adopted Budget FY21-22, p. 144.
289 Alameda County Fire Department, SoGo Survey Responses, July 2021.
Ch. 12: City of Emeryville 268
Policy Consulting Associates, LLC
Alameda Fire Municipal Service Review
Public Review Draft
education that meets State-mandated requirements for Emergency Medical Technicians and
Paramedics. Community service objectives include coordination of public education, events and
disaster operation activities within the communities served.
The following information is specific to ACFD's operations within the City of Emeryville. For
more details about ACFD's facilities, see Chapter Four in this report.
ACFD operates out of two fire stations within the City: Station 34 and Station 35. There is
also a fire prevention bureau, as there is within each agency that contracts with ACFD. The
Emeryville Fire Prevention Bureau is located in City Hall.
Major repairs were completed on Station 34 in 2015 and included energy efficient upgrades,
such as solar panels, and upgrades to appliances as well as the heating and ventilation
system.290 Station 35 is considered the City's Emergency Operations Center (EOC). Capital
improvements are currently being reviewed for Station 35 and include seismic upgrades as well
as upgrades to increase energy efficiency and cosmetic improvements. Fuel tank and
emergency generator improvements are also underway for both stations.
While ACFD did not outline any specific facility or capacity issues in relation to services
provided to the City of Emeryville, it does echo the General Plan's concern for continuing to
serve a rising number of residents at current staffing and facility levels.
Figure 12-7: City of Emeryville Fire Facilities
city of emeryville acfd facilities
Facility Address Owner Year Built Condition
2333 Powell St.,
Emeryville, CA
Station 34 94608 Alameda County 1989 Not provided
6303 Hollis St.,
Emeryville, CA
Station 35 94608 Alameda County Not provided Not provided
City Hall,
1333 Park Ave.,
Emeryville Fire Emeryville, CA
Prevention Bureau 94608 City of Emeryville Not provided Not provided
290 Alameda County Fire Department, https://fire.acgov.org/stations-and-facilities/, accessed 5/2/22.
Ch. 12: City of Emeryville 269
Policy Consulting Associates, LLC
Alameda Fire Municipal Service Review
Public Review Draft
There are a few ways the City of Emeryville communicates with residents to transmit
important health and safety information. These methods include sharing information on its
website, on social media, and through the City's cable access channel 27.
ACFD is responsible for coordinating dispatch communications for the City's emergency
service calls. The regional 9-1-1 dispatching center is known as the Alameda County Regional
Emergency Communications Center (ACRECC) and is housed at the Lawrence Livermore
National Laboratory (LLNL) along with the Alameda County Fire Communication Center
(ACFCC).
ACRECC currently dispatches fire and medical calls for ACFD, the U.S. Army at Camp
Parks Combat Support Training Center in Dublin, the cities of Alameda, Fremont, Livermore
and Pleasanton, and the County EMS transport provider Paramedics Plus ambulance service.
The Consortium, now known as the Advisory Board, is managed by a governing board made
up of participating agencies. Each agency pays an annual amount with costs apportioned
based on call volume as outlined in each contract for service.
Given that 9-1-1 calls may relate to a policing, fire or medical emergency, the calls are first
routed by the telephone provider to the public safety answering point (PSAP) dispatcher. The
first-response dispatcher immediately determines the type or need of the call and routes all fire
and medical 9-1-1 calls to the ACRECC. The ACRECC simultaneously dispatches ACFD and
the County EMS transport provider for ambulance transport services.
As previously mentioned, ACFD contracts with four agencies in addition to the City of
Emeryville for fire and emergency response services. To do this, it shares personnel, dispatching
services, and facilities resources as necessary. Consolidating facilities and shifting personnel is
not uncommon, for instance, Station 8 firefighters having been relocated to Station 20, which is
the Lawrence Livermore National Laboratory site. Another example is that Station 15 currently
houses ACFD Reserve Firefighters, apparatus and equipment even though it was previously
the Office of Emergency Services and Dougherty Regional Fire Authority Station 3.291
An ACFD goal is to pursue regional cooperation and consolidation of services. ACFD views
dispatch, administration, and the operations division as areas that would benefit from greater
regional collaboration.
291 Alameda County Fire Department, https://fire.acgov.org/AboutUs/facilities.page? page accessed 3/9/22.
Ch. 12: City of Emeryville 270
Policy Consulting Associates, LLC
Alameda Fire Municipal Service Review
Public Review Draft
ACFD reports that collaboration with regional transport companies, in conjunction with other
fire agencies and municipalities, to establish a fire-based ambulance transport model would
particularly improve efficiencies in service delivery, especially EMS delivery.292
Reliable infrastructure is crucial in fostering an efficient safety and emergency response in any
city. To that end, there are several proposed projects and projects in development that address
a variety of infrastructure needs throughout the City of Emeryville. Current plans are outlined
in detail in the FY 19-24 Capital Improvement Program.
Some notable capital improvement projects listed in the program are currently in various stages
of development and have a direct impact on fire and emergency response in terms of the
ability to accommodate the number of residents these projects will support and navigate
present and future traffic patterns throughout the City. These projects include:
• McLaughlin Eastshore State Park/Powell Street Bioswale—to improve stormwater
drainage and prevent chronic flooding that negatively impacts eastbound vehicular
traffic as well as the Powell Street bicycle lanes.
• Hollis Street Fire Station (Station 35)/Emergency Operations Center Upgrade—
intended to complete building code and seismic structural upgrades, facility
enhancements such as paint, parking lot slurry seal, and solar panels, communication
and IT improvements, and various deferred maintenance projects.
• Police Administration Building—needed to accommodate growth and operational
demands.
• Emergency Generator and Fuel Tank Upgrades—upgrades needed to keep the Police
Station and Fire Stations 34 and 35 in proper working order for emergency use.
• Geographic Information Systems (GIS) Development—needed for updating location
data for analysis as well as use by 9-1-1 dispatch.
A significant challenge facing the City of Emeryville will be creative ways to foster safe and
efficient development in a city that is nearly completely built-out.293 As with other cities that
receive fire and emergency services from ACFD, advanced planning to address rapid
292 Alameda County Fire Department, SoGo Survey Responses, July 2021.
293 City of Emeryville, General Plan, p.2-2, amended through 9/3/19.
Ch. 12: City of Emeryville 271
Policy Consulting Associates, LLC
Alameda Fire Municipal Service Review
Public Review Draft
population growth in the region will continue to be a priority to ensure adequate capacity to
provide services.
This section reviews indicators of service adequacy, including response times, ISO rating, and
complaints received. There are many measures of a successful fire protection service. For
example, the agency would meet guidelines established by the National Fire Protection
Association (NFPA), the Center for Public Safety Excellence (CPSE) (formerly the
Commission on Fire Accreditation International) and the California EMS Agency. There are
also Public Protection Classifications (PPC) and Insurance Services Office (ISO) ratings that
likewise establish an agency's level of service.
Each of ACFD's contract cities abides by individualized performance measures according to its
agreement. See Figure 12-8 for agreed upon response times between ACFD and the City of
Emeryville.
Figure 12-8: City of Emeryville Response Time Policy
response times for acfd and contract cities
Agency Name Single Unit Incident Multiple Unit Incident
Arrival of first due company within 7
minutes from when they are first
Arrive within 7 minutes from the dispatched for 90 percent of incidents.
time the Company is first Remaining units should arrive on the
City of Emeryville
dispatched for 90 percent of all scene of an incident within 11 minutes
incidents. from when the first due company begins
responding for 90 percent of all
incidents.
ACFD response times are based on NFPA 1710 standards for fire departments, and it reports
response times to the County, the fire commission, and its contract cities. The City of
Emeryville has its own response benchmarks per its contract with ACFD. The expected
response times are the same for each agency. The criteria call for the arrival of the first
company in a single unit incident within 7 minutes of dispatch for 90 percent of all incidents
and within 7 minutes for 90 percent of multi-unit incidents with remaining units arriving on the
scene within 11 minutes as shown in Figure 12-8. The City's agreement also outlines response
conditions such as responding with a minimum of one engine company, one truck company,
and one chief officer and that each engine and truck company be staffed with a minimum of 3
personnel. ACFD does satisfy its response expectations 90 percent of the time.
Ch. 12: City of Emeryville 272
Policy Consulting Associates, LLC
Alameda Fire Municipal Service Review
Public Review Draft
The City of Emeryville is not close enough to the stations in the City of San Leandro to
receive first alarm coverage, however, ACFD's contract with the City of Oakland is well-
prepared to cover this gap with access to engines, a ladder truck, and a chief officer.294
Fire services in the communities are classified by the Insurance Service Office (ISO), as an
indicator of the general adequacy of coverage. Communities with the best fire department
facilities, systems for water distribution, fire alarms and communications, and equipment and
personnel receive a rating of 1. ACFD's most recent ISO rating was done in 2015, and it was
given an ISO PPC rating of 01/1Y, which is the top classification available. The first number
means a home is no more than five road miles from a fire station and 1,000 feet from a water
supply such as a hydrant. The second classification, Y, refers to the properties further than
1,000 feet from a fire hydrant but within five road miles of a recognized fire station.295
ACFD has not provided information as to whether any complaints regarding fire service for the
City of Emeryville were received in FY 21.
For more specific information related to the Department's overall service adequacy, please refer
to Chapter 4.
294 Alameda County Fire Department, Volume 2 of 3 Technical Report Standards of Coverage Review, p. 31, 9/1/17.
295 Alameda County, Public Protection Classification Summary Report, p. 7, July 2015.
Ch. 12: City of Emeryville 273
Policy Consulting Associates, LLC
Alameda Fire Municipal Service Review
Public Review Draft
12-1: The City of Emeryville's population was estimated to be 12,497 in 2022, which is
approximately 24 percent overall growth from 2010.
12-2: With a projected 51 percent increase in population by 2035 within the City of
Emeryville to approximately 18,870 residents, vertical growth is anticipated given that
the current land use is mostly developed. This will impact the need for emergency
equipment to accommodate this type of environment, increased traffic congestion,
affect response times, and create additional staffing needs for the City of
Emeryville/ACFD.
12-3: Urban fires are a primary threat to the City, in particular, as a result of an
earthquake. Ongoing efforts must continue to ensure older buildings and new
developments meet safety standards and offer effective evacuation routes.
12-4: There are no DUCs within or contiguous to the City of Emeryville.
12-5: While ACFD did not outline any specific facility or capacity issues in relation to
services provided to the City of Emeryville, it does echo the General Plan's concern
for continuing to serve a rising number of residents at current staffing and facility
levels. Joint planning between ACFD and the City will be necessary to anticipate
future service needs based on growth-induced demand.
12-6: The City of Emeryville has its fire and emergency response service needs adequately
met by ACFD. The City regularly reviews the services provided by the District to
ensure contract obligations are being met.
12-7: ACFD has not identified any current capacity issues for either of the fire stations
located in the City of Emeryville. There are, however, capital improvements being
made to both, including fuel tank improvements at both locations.
12-8: From technical needs to residential buildings, there are several infrastructure
improvements that have been outlined in the City's planning documents. These
projects will affect ACFD's future ability to provide adequate services amidst
increased population density and the accompanying traffic burden placed on the
City. It will also change the type of equipment needed to provide emergency services,
as the City will experience primarily vertical growth.
Ch. 12: City of Emeryville 274
Policy Consulting Associates, LLC
Alameda Fire Municipal Service Review
Public Review Draft
12-9: The City of Emeryville Fire Department has the financial ability to continue to
provide services. Continued expenditure growth has been increasingly funded by the
City's General Fund. A number of proactive measures enabled the City to maintain
its reserve targets.
12-10: ACFD currently shares its facilities, personnel, and dispatching services as a function
of its contract with the City of Emeryville.
12-11: ACFD indicated there could potentially be additional opportunities for shared
facilities by consolidating with other agencies or by extending contract services to
additional cities.
12-12: It is recommended that the Department join fellow Alameda fire providers to develop
a regional, countywide dispatch strategy that employs the closest resource for the
fastest response time, regardless of agency boundaries or responsibility.
12-13: The City of Emeryville follows legal requirements pertaining to its website and
council structure. It participates in community outreach efforts and operates
according to adopted planning documents. ACFD is included in these community
outreach efforts, and the City's fire and emergency services policies and goals are
being followed according to the safety element of the General Plan.
12-14: The City of Emeryville, and ACFD on behalf of the City, cooperated with efforts to
obtain information during the review process.
12-15: No governance structure alternatives specific to the City of Emeryville were identified
over the course of this review, however, ACFD, in contract with the City, has a goal
to pursue regional cooperation and consolidation of services. ACFD views dispatch,
administration, and the operations division as areas that would benefit from greater
regional collaboration.
Ch. 12: City of Emeryville 275
Policy Consulting Associates, LLC
Alameda Fire Municipal Service Review
Public Review Draft
The City of Fremont was incorporated in 1956 upon the convergence of five area townships:
Mission San Jose, Centerville, Niles, Irvington, and Warm Springs. Once home to the native
Ohlones, settlement of the territory began as early as 1797.296 Spanish priests initially founded
the first inland mission in Mission San Jose, which helped establish the rich history of the land.
John C. Fremont was influential in the expansion of this area as he charted a trail through
Mission Pass, in turn, making the land more accessible to settlers.297
According to the 2020 U.S. Census, the population in the City of Fremont was 230,504. It is
the fourth largest city in the Bay Area and the 96th most populated city in the nation. Located
in the southeastern portion of the San Francisco Bay Area.
The City of Fremont is a general law city served by a City Council and City manager with six
council districts. The City provides a variety of services including parks and recreational
services, and public transportation. Although the City is a multi-service provider, this review is
specific to its fire protection, emergency medical, and other related services.
The City of Fremont was last included in an MSR Update by Alameda LAFCO that was
adopted in 2018. There was also a Countywide MSR update for water, wastewater, flood
control and stormwater services completed in 2021. The focus of this MSR is limited to the fire
and emergency medical services provided by the City.
The City of Fremont is comprised of 92 square miles, roughly 58,000 acres, and is situated in
southwestern Alameda County. It abuts San Mateo County to the west and Santa Clara
County to the south. Within the Alameda County border, the City of Fremont encircles the
City of Newark from the Don Edwards National Wildlife Refuge along the San Francisco Bay
to the City of Hayward in the northwest, the City of Union City to the north, and the City of
296 City of Fremont, General Plan adopted December 2011, Introduction, p. i-22.
297 City of Fremont, FY21-22 Adopted Operating Budget, p. 25.
Ch. 13: City of Fremont 276
Policy Consulting Associates, LLC
Alameda Fire Municipal Service Review
Public Review Draft
Milpitas to the south. Unincorporated Alameda County is to the east of the City. Figure 13-1
depicts the City's boundaries sphere of influence.
Ch. 13: City of Fremont 277
Policy Consulting Associates, LLC
Alameda Fire Municipal Service Review
Public Review Draft
Figure 13-1: City of Fremont Boundaries and SOI
City of Fremont
Range 03 West Range 02 West Range 01 West Range 01 East
5 35 36 31
htuoS
40 pihsnwoT Seaport Blvd Sa C n o M un a t t y eo 0
Hayward
UV 84 0
Union City Blvd Alva
Arde
r
n
a
w J
d
a o
o
rv o i
B
s 2 d A
l
T
0 v
v B h
d
e
A W
l o v
l
1 r
v
d 1
h
n
a
3 t
i
F 5
r p
o N
a
R
p
n e
d
E w
l
3
o
A
e
6 a F N v r
N R
S k 1 e 1
i
2 B 1
d
e
le
l 0 v
s
w d
R
C a
d
F 2 h 5 6 R e F r r E R r
D
k
e
y 3
c
F
o
F E 1
to
S 7 r S
R
F
M
e
d
t 3
i
0 m 0 S
s
B
s
8 0 o
i
l
o
a n 6
n
c P t
U
a
B
o B s
l
w F
v
2 l
d
e
n
v 9 R 8 R o d
N
E d
i
P
i
5
o
F 3
l
a
e
2 S B d
s n
r o 0 2 e y 0
B
1 P c M k e
l C
y
v
S 9 o 4 R t w
d
e d §¨¦ v r
i
y 3 8 e
t
3 n A 8
F
s
y
v o 0
R
e F n 2 2
E
B R 8 1 lv
F
G E d
4
r
S
i F m
0
m S 3
2
e
1
1
9
4 0 r
6
0
UV
B 7 l UV v
8
A 2 d 3
4
3 u 27 2 8 t 2 F o
1
R
0 3
M
1
E F
5
a1 R F 1 M l 2 W l S E 6 i s P 0 F s a k i 3 S o s 2 3 y n 5 0 2 h
1
3 B 9 i
1 4
D n l
1 2
v g d u t r o h 1 n am B F 3 l R 2 R v 6 2 5
1
4 d E
1
d
3 2 1
F 12 S
UV
0
8
4
4
7
7
6 3 3 1 1 0
1 N
9
8 6 iles B
§¨¦2 6
l 1
0 8
v 7 5
5 3 0
d
2 8 2 9
8
17 33
P
9
le
4
asanton SunolRd
Calav
V
eras R A d
a
10 3
l
C
le
l
c
a
i
o
to
3
s
4 m u
R 0 d
n e 11 2 3 t 5 d y a
UV 84
12 1 36 7 6 31 3 1 0 9 8 5
UV 84 htuoS 50 pihsnwoT niaM 0 A M t E he i l d r C t d o Is n a l a e m b A V 2 f e n a v i l i e d l e l n p a 5 l A t a d o h A v S r e v a A a R Re i n v s e d t e o a a A C l v r B 0 u e z G a A le y v n e S w R a o 0 O d n o a d d k C A G H r v a o £¤ i e v l m 1 l e P R a 0 A l p m v d 1 D e u r s 0 D U r n W iv ill C e o r w h s R a it d M y e n na lt A o A E n v v e e m i 0 n b g B a A A r a W l c m y v a a M a e v d R i S e d e r d t d l Pulg r as e Ave l o e y f i S R L e t l o d d u R is d B R a d yshore Rd Fremo 0 nt 0 0 0 16 15 0 FREFS UV 2 11 62 W a 0 rm F Sp R ring E s B F lvd S S 0 0 c 5 ott Creek Rd 0 0 1 2 6 1 28 S 2 2 1 2 7 5 a C n o ta u 2 0 2 6 1 3 3 4 5 n C 2 t l y ar 3 2 a 2 6 1 1 5 4 3 12 7 6 1 3 3 1 9 0 1 8 2 8 2 1 3 5 0 9 7 2
Alameda County Legend O Alameda County City of Fremont
S L o o ur c ce a : A l la A m g ed e a n
g i D n
L
e i
A
t
c
s e n
F
c
y
n e
C
l d a r
o
a e
F
im l d
o
d e t i r s o
r
: p
m
b T la e h
a
y e u
t
p s i
i
n u e
o
f
M
r d o p
n a
r o f m
p
o s
C
r
C
a e r t
r
s
o
i e
e
o
a
o f n
m
e
t
n
e
r s l e
d
y
m
h n
1
o a c
/7
n w
i
e
s /
d
2
n a
s 0
i n i s
2
s
i
d
3 on kj A A
F
A
C
C
i
d l l o
r i
a a
t e
j m m m a
y S
c m e e e
o t
d d
a
u n
f
a a
t
n t
i F o
i C C C t
n
i
r
o i o e t
s e
u y s u
m
n n B t t y
o
o y u
n
B B n
t
o o d u u a n n r d i d e a a s r r y ies C S o a u n n t F y ranci
S
sco
a
P
C
kj
n
i kj ekj
o
A dE
u
B
M
l m b kj me
n
a
a
o re n
t
A k kjn
t
r
y
ye
e
l ty a O l kjv
o
e m a iyl k e le l d a a nd kjSan
kj
L
H
e
a kj
a
y F
n
w r
d
e a m
r
r
o
d o kj n U kjt n N io e n w C a
P
r it k
l
y
C ea o sa nC kj n to t r
A
o D kj au n u
l a
n b C
m
l t i oy n
e
s
d
ta
a C
kj
o
L
u
iv
n
er
t
m
y
ore San Joaquin County
not to be used as an official map. 0 1 2 4Miles Santa Clara County
The City of Fremont does not provide services outside of its SOI.
The City of Fremont indicates in its most recent General Plan (2011) that several residential
areas were unable to be adequately serviced by the City of Fremont Fire Department (FFD)
within its goal response time. While improvements to fire service were expected to correct this
for most portions of the territory, the Hill Area would still be at risk. Additional residential
development is also planned near the base of the hills, which poses its own threat, primarily
due to the relative proximity to open brush and grassland. For this reason, these areas have
designated requirements similar to a Very High Fire Hazard Severity zone.298
298 City of Fremont, General Plan adopted December 2011, Safety, p. 10-30.
Ch. 13: City of Fremont 278
Policy Consulting Associates, LLC
Alameda Fire Municipal Service Review
Public Review Draft
The sphere of influence for the City was last reaffirmed in January 2018 and is generally
contiguous with the city limits. There is one small portion of the SOI to the northwest, adjacent
to the City of Union City, and two areas to the east in unincorporated Alameda County that
are outside of City bounds.
Accountability of a governing body is signified by a combination of several indicators. The
indicators chosen here focus on 1) agency efforts to engage and educate constituents through
outreach activities, in addition to legally required activities such as agenda posting and public
meetings, 2) a website with required content and other useful information, 3) timely ethics
training for board/councils members and an adopted reimbursement policy, 4) a defined
complaint process designed to handle all issues to resolution, 5) adopted bylaws that provide a
framework and direction for governance and administration, 6) adoption of a conflict-of-interest
code as required by law, 7) proper filing of Form 700 by the governing body members, and 8)
transparency of the agency as indicated by cooperation with the MSR process and information
disclosure at meetings, in documents and on a website.
The City of Fremont has a government structure with a City Manager and an elected mayor.
There are six council members based on six districts within the City who serve staggered four-
year terms on the City Council. Current council member names, positions, and term expiration
dates are shown in Figure 13-2.
The City Council meets every first, second, and third Tuesday of the month at 7pm at City
Hall. Agendas for each weekly meeting are posted the Thursday (or at least 72 hours) before
a regularly scheduled meeting, although there are times the agenda is posted on Fridays.
Agendas are posted online as are Board actions and meeting minutes. Through the City's
website, the public has access to live audio/visual webcasts and archived audio and/or visual
webcasts of regular Board meetings for viewing online at their convenience. Comcast
subscribers are able to watch live meetings on Channel 27.
Figure 13-2: City of Fremont Governing Body
governing body
Manner of Selection Elections at large.
4 years for supervisors, board president chosen every
Length of Term
two years
Meetings 1st, 2nd, 3rd Tuesday of each month at 7pm
Ch. 13: City of Fremont 279
Policy Consulting Associates, LLC
Alameda Fire Municipal Service Review
Public Review Draft
City Hall, Building A
City Council Chambers
3300 Capitol Ave.
Fremont, CA 94538
Agenda Distribution Posted online.
Minutes Distribution Posted online.
council members
Member Term Manner of Length of
Name District Position Expiration Selection Term
Lily Mei Mayor 2024 Elected 4 Years
Teresa Cox 6 Vice Mayor 2024 Elected 4 Years
Teresa Keng 1 Councilmember 2024 Elected 4 Years
Desrie
Campbell 2 Councilmember 2026 Elected 4 Years
Jenny Kassan 3 Councilmember 2026 Elected 4 Years
Yang Shao 4 Councilmember 2026 Elected 4 Years
Raj Salwan 5 Councilmember 2024 Elected 4 Years
contact
Contact Karena Shackelford, City Manager
Mailing Address 3300 Capitol Ave., Building A
Phone 510-284-4000
Email/Website cof@fremont.gov, Fremont.gov
The City of Fremont participates in community outreach events such as annual city festivals,
holiday activities, job fairs, summer concert series, rides for seniors and disabled residents, and
community educational programs. The FFD has specific fire prevention and emergency safety
programs available to residents, such as a smoke alarm program, fire extinguisher
demonstrations, and fire station tours.
All members of the City of Fremont's City Councilmembers have current filings for Form 700
with the California Fair Political Practices Commission, indicating transparency in with their
economic interests.
There is also a conflict-of-interest code and bylaws outlined in the municipal code as lawfully
required.
All complaints concerning the City of Fremont or any of its employees are investigated, and a
response is provided to the complainant. Constituents are able to file complaints in a number
Ch. 13: City of Fremont 280
Policy Consulting Associates, LLC
Alameda Fire Municipal Service Review
Public Review Draft
of ways, including online, via the Fremont App, and by phone. All complaints are handled by
the appropriate department and overseen by the City Manager as needed.
There is legislation in effect to help ensure public agencies adhere to accountability standards.
California AB 2257 (Government Code §54954.2) is an update to the Brown Act and
indicates requirements for methods by which an agenda for all meetings should be made
available on an agency's website. Access to meeting agendas is not to be realized through a
drop-down menu or as a secondary link, but as a direct link on the homepage of an agency's
website. To comply with this regulation, the City of Fremont is advised to create a direct link to
meeting agendas on the homepage of its website.
The City of Fremont demonstrated accountability in its disclosure of information and
cooperation with the LAFCO questionnaires and other requests for information.
While public sector management standards vary depending on the size and scope of the
organization, there are minimum standards. Well-managed organizations evaluate employees
annually, track employee and agency productivity, periodically review agency performance,
prepare a budget before the beginning of the fiscal year, conduct periodic financial audits to
safeguard the public trust, maintain relatively current financial records, conduct advanced
planning for future service needs, and plan and budget for capital needs.
The City accounts for its fire and emergency services in a number of its planning and
management documents, particularly in the annual budget and General Plan. Other planning
documents that are integral to the FFD are the City's strategic plan, local hazard mitigation
plan, and climate action plan.
The FFD is comprised of the following four branches and is overseen by the Fire Chief who
provides overall leadership and management to the Department overall: Administration,
Operations, the Fire Prevention Bureau, and Training/Emergency Medical Services.
The City conducts value-based budgeting. The goals of this process involve funding agreed-
upon service levels, identification of revenues and expenditures as one-time or continuing, and
maintenance of adequate contingency and reserve funds.
Standards for measuring staff performance should also be clear, however, information on the
evaluation process for FFD fire personnel was not available.
Ch. 13: City of Fremont 281
Policy Consulting Associates, LLC
Alameda Fire Municipal Service Review
Public Review Draft
To ensure fire service efficiency and effectiveness, FFD has set policy goals and objectives. The
FFD's primary mission is to prevent and minimize loss of life and property due to fire, medical,
and rescue emergencies, hazardous materials, and disasters. The Department also strives to
ensure that local, State and federal mandated and discretionary service levels are maintained
within the communities served.
FFD's finances are overseen by the City's finance department with budgetary approval given
by the City Council. The City's financial planning documents include an annual budget, a
capital improvement budget, and a Comprehensive Annual Financial Report (CAFR). In
addition, FFD has financial statements audited annually.
Fire department staffing needs are reviewed based on population growth, development plans,
and budgetary considerations. Employee turnover and attrition is also analyzed in order to meet
hiring demands. Response times and response levels are tools for measuring satisfactory service
levels.
With the rise of area wildfires and drought, a critical component of the City of Fremont's
planning has become its Climate Action Plan. This serves as a guiding document focused on
ways in which the community and City can reduce greenhouse gas emissions, meet the City's
long-term climate action goals, and promote a healthy, prosperous community. The City's
current plan was adopted in 2012 and outlined the goal of reducing greenhouse gas emissions
by 25 percent by 2020 based on 2005 levels.299 An update to this plan, titled Climate Ready
Fremont, is currently in the process of being drafted.
This section discusses the factors affecting service demand, such as land uses, and historical
and anticipated population growth.
The City of Fremont encompasses 92 square miles of mixed-use land with open space
comprising the largest utilization, or roughly 45 percent of the City's area. Public and
institutional spaces comprise 26.4 percent, followed by residential uses taking up 16.27 percent
of the City's land according to the 2011 GP. Of that 16.27 percent of residential space, the
vast majority is suburban-style single family homes.300
299 City of Fremont, Climate Action Plan, Adopted 2012, p. VII.
300 City of Fremont, General Plan, Adopted 2011, Land Use, p. 2-6.
Ch. 13: City of Fremont 282
Policy Consulting Associates, LLC
Alameda Fire Municipal Service Review
Public Review Draft
The City of Fremont has a diverse topography with baylands in the west and hills situated to
the east. There are three categories of open space within the City: conservation, agriculture,
and private. Conservation accounts for the largest usage of land acreage, much of which is
privately owned vacant land and limited in terms of development due to its unsuitable terrain
and limited accessibility. The City's history is rooted in agricultural use, however, after its
incorporation led to rapid growth, it gave way to more commercial and industrial uses which
are anticipated through the 2035 planning period in the GP.301
In 2002, voters approved Measure T. It applies to two portions of land, one being identified as
Hill Face Open Space, which is all land between Toe of the Hill and the ridgeline, while the
other area is defined as Hill Open Space and is considered all land beyond (mostly east of)
the ridgeline and outside of the hill face. Based on Measure T, the Hill Face Open Space
allows for development with a density of one unit per 20 acres for existing parcels. Here,
outdoor recreation uses are allowed as are grazing, agricultural uses, and some public and
quasi-public uses. Similarly, the Hill Open Space allows for a density of one unit per 20 acres
of existing parcels but also indicates future annexed parcels may hold one unit per 100 acres,
mostly for limited outdoor recreation and agricultural activities.302
Over time, residential utilization has shifted from single family homes with an average density
of 5.4 units per net acre to multi-family developments and infill sites, averaging more than 24
units per net acre. These residences are especially common near the Fremont BART station
and the City center.303
The majority of commercial land use is for general commercial use (865 acres), followed by
office use (211 acres) and mixed uses (15 acres). The largest commercial area spans from
Mowry to Stevenson from east to west and Argonaut Way to the Bart station from north to
south. This City center area has the most predominant mixed-use developments with ground
floor retail and services with residential units above.
The City of Fremont's proximity to Silicon Valley has led to more industrial developments,
particularly in the south and southwestern portions of the City. This influx of economic
opportunities has brought more distribution and warehousing to the area and has led the way
towards more industrial office space, known as "office-flex" which accommodates offices as well
as research and development.304
301 City of Fremont, General Plan adopted 2011, Land Use, p.2-12.
302 City of Fremont, General Plan adopted 2011, Land Use, p.2-30.
303 City of Fremont, General Plan adopted 2011, Land Use, p. 2-9.
304 City of Fremont, General Plan adopted 2011, Land Use, p. 2-11.
Ch. 13: City of Fremont 283
Policy Consulting Associates, LLC
Alameda Fire Municipal Service Review
Public Review Draft
The General Plan guides the development of this land. The safety element indicates goals and
policies relating to fire and emergency services, specifically. Currently, the plan identifies several
points to manage the City's wildland interface, mitigate fire hazards in the event of an
earthquake, and educate the community for preparedness in case of fire or other emergency.
According to the California Department of Finance, the population of the City of Fremont in
January 2022 was 229,476. In January of 2012, the population was 219,537, which
demonstrates a ten-year increase of four percent but an overall seven percent increase since
2010, as shown in Figure 13-3. The 2020 U.S. Census shows that over 12 percent of residents
are age 65 and over, while 23.7 percent are under 18 years old. The total percentage of the
civilian labor force over the age of 16 is nearly 68 percent and more than 60 percent of people
have a bachelor's degree, at minimum.
Figure 13-3: City of Fremont Population, 2010-2022
When the City of Fremont incorporated, it saw a rapid, 600 percent growth rate from 1956
until 1990. Since 1990, that rate of growth has slowed but is still steadily expected to increase.
The population is projected to reach approximately 256,000 by 2035 based on a five percent
Ch. 13: City of Fremont 284
Policy Consulting Associates, LLC
Alameda Fire Municipal Service Review
Public Review Draft
growth rate, according to the Association of Bay Area Governments (ABAG). The City is
aging as well. In 2010, the population of the City that was over age 44 was roughly 35 percent.
Looking forward, this demographic will have a distinct impact on community service needs,
including senior housing and emergency medical response.305
Not only does population affect development but economic growth does as well. ABAG
projects that the City of Fremont will be the sixth largest employment center in the Bay Area,
adding 35,610 jobs. Due to geographical restraints such as the Baylands and hillside, however,
much of the open space in the City is not capable of being developed and the remaining
territory is mostly developed. For this reason, infill development will be the focus in years to
come, not only for industrial and commercial needs but as a source of housing, particularly in
mixed-use projects.
Two areas of concentration for development are Warm Springs and downtown Fremont along
Capitol Avenue. The Warm Springs/South Fremont area is planning for multi-use growth
through manufacturing and education developments, as well as the addition of parks,
commercial space, and residential units. This portion of the City also boasts the Tesla factory,
which employs thousands of people, and also a critical BART station that connects various Bay
Area towns and employment centers. Likewise, the Downtown area is also focusing on transit-
oriented development. This space consists of 110 acres and its main street will be a source of
shopping, dining, entertainment, multi-family housing, and other commercial uses. The City
expects development to expand from 1.25 million square feet to 5.2 million square feet.
As seen in Figure 13-4 below, the City of Fremont has a significant number of additional major
development projects in various phases of planning and development. Each project would
greatly expand the number of dwelling units and commercial square footage within the City.
The majority of projects are residential, while there are some mixed uses as well as commercial.
These projects are being developed to fulfill the vision of the City's General Plan, and the
projects listed are not exhaustive.
The City reports that anticipated future growth will affect service demand for the FFD.
305 City of Fremont, General Plan adopted 2011, Introduction, p. i-24.
Ch. 13: City of Fremont 285
Policy Consulting Associates, LLC
Alameda Fire Municipal Service Review
Public Review Draft
Figure 13-4: City of Fremont Planned or Proposed Development Projects, 2023
city of fremont development projects
project # of dwelling units commercial square feet
Capitol Avenue Mixed Use 90 14,132
3515 Walnut Apts. 275 2,245
3900 Thornton 128 2,000
501 Crystalline Drive PRP 28
Allied Housing 54
Harbor View 68
Ardenwood @ Paseo Padre 450,420
Aron Townhomes 10
Aurora Spring Townhouses 15
Bell Street Gardens 128
Boulevard Heights 67
Capitol Villas Design Review 44 13,500
Centerville Junction 52
Centerville Plaza 18
Chase Bank 4,020
Cindy Street Homes 20
Five Corners 7,500
Fremont Bank 34,905
Fremont Bank Residences 241 5,476
Fremont
Conference/Convention Center
and Banquet Facility 70,225
Fremont Habitat 13 2,268
Fremont Hub Mixed Use 314 28,170
Fremont Plaza Pad 6,535
Fremont Technology Business
Center 435,600
High Town Square 10
Homewood Suites 113,865
Innovia 290 7,200
Leighton Business Center
Parking Garage 87,574
Lennar Innovation Multi-Family
Market Rate Rental (Lot 3) 328 4,800
Lennar Innovation Multi-Family
Market Rate Rental (Lot 4, 10) 638 8,300
Lennar Master Plan 686,070
Lennar Master Plan Innovation
Phase 2 371
Lennar Master Plan Innovation
Phase 3 202
Lennar Master Plan Innovation
Phase 2 Podiums 146
Maple Commons 11 2,820
Metro Crossing 1,000 6,000
Metro West Victoria Station
Flats 77 9,350
Miltonia Townhomes 17
Mission Chevron 4,000
Mission Falls Village 4 66
Ch. 13: City of Fremont 286
Policy Consulting Associates, LLC
Alameda Fire Municipal Service Review
Public Review Draft
Mission Falls Village 5 81
Mission Falls Village 6 70
Mission Hills Square 158 55,472
Mission Paradise 13 3,050
Mission Villas Duets 16
Montecito Townhomes and Apt. 130
New Horizon School Cup 3,840
Niles Gateway 75
Old Town Lux Homes 9,500
Orchard Heights 53
Osgood Apartments 112
Osgood Apartments South 100
Osgood II Residences 287
Osgood Residences 92
Peralta Townhomes 43
Perlegos Historic House
Relocation ad Residential
Development 10 1,946
Production and Sales Plant
Nursery 56,560
Residence Inn/Marriott and AC
Hotel 248,000
Roberts Townhomes 36
Sakoon Lux Homes 2,245
Serra Apartments by St. Anton 179
Siliconsage Centerville Mixed-
use Project 165 25,000
Single Cylinder Building – New
Construction 5,049
State St. Center 157 21,000
The Argonaut 55
The Cottages 37
The Globe Parking 6,700
Theory Flats 132
Triple E Plaza 5,440
Universal Dragon 3,028
Ursa Project 18
Valley Oak Warm Springs
Area 3 Mixed Use 184 67,013
Villa Ellsworth 17 3,500
Villas of Irvington 10
Villas of Mission 13
Walnut Residences 631
Warm Springs Area 3 310,330
Winston Dev 12
total 7,607 2,834,648
Ch. 13: City of Fremont 287
Policy Consulting Associates, LLC
Alameda Fire Municipal Service Review
Public Review Draft
To accommodate service demand through periods of growth, the FFD will need to adhere to
City planning documents, which set a variety of standards for development. Many of these
strategies are listed in FFD's Strategic Plan for 2020-2025. The actions to support these plans
and safeguard the community include protecting the wetlands and hillside, and carefully
approving building plans and enforcing fire codes to ensure safety measures, especially with the
high number of multi-family homes expected. Continually assessing departmental capacity and
demand is also recommended to ensure response times, personnel, and departmental
apparatus/vehicles/facilities are able to withstand the number of services based on the
population growth occurring.
There are no disadvantaged unincorporated communities (DUCs) that meet the basic, State-
mandated criteria within the City of Fremont's service area.
The City of Fremont Fire Department has the financial ability to continue to provide services.
City expenditures, including fire services, slowed during COVID-19 as the City enforced budget
reductions on all departments and a hiring freeze, but revenues are recovering faster than
anticipated helped by a temporary surge in auto sales.306 The City's diverse tax base buffered
the City against major adverse impacts from COVID-19.
From FY2017-18 through FY2021-22 the Fire Department's expenditures grew at a 7.6 percent
average rate, higher than inflation and also reflecting City economic growth. Growth slowed
significantly during COVID-19. City General Fund revenues have consistently grown at a rate
greater than expenditure growth. Retail sales tax, including auto sales, have continued to
provide increases. During COVID-19 the City took a number of actions to minimize growth in
306 FY2021-22 Midyear Report, 3/8/2022.
Ch. 13: City of Fremont 288
Policy Consulting Associates, LLC
Alameda Fire Municipal Service Review
Public Review Draft
staff and related salaries and reduced one-time expenditures. The City uses a paramedic tax
($15 per household) to help fund EMS.307
The City is considering a sales tax measure to augment existing revenues and continues to
pursue grants including grants for fire services and programs (it has received grants from
FEMA and Bay Area Urban Areas Security Initiative).308 The City has used various debt
funding mechanisms (e.g., G.O. bonds, lease revenues bonds, certificates of participation) to
fund (and refund prior debt) for stations and facility renovations.
The City has managed to restore and fully fund its reserves at policy levels, helped by higher-
than-expected sales tax during COVID-19 and as the economy recovers.
The City of Fremont Fire Department offers comprehensive services to the community through
its eleven fire stations and in cooperation with outside agencies, when necessary. These
capabilities include fire prevention and suppression, advanced life support, and services related
to emergency medical and hazardous materials response. Figure 13-5 details the entirety of
services provided by the FFD. If a service is offered by another agency, it is indicated in the
figure.
Figure 13-5: City of Fremont Fire Services
service agency
fire suppression services
Structural Fire Protection City of Fremont Fire Department
Wildland Fire Protection City of Fremont Fire Department
Vehicle Fire Protection City of Fremont Fire Department
Ladder Truck Capabilities City of Fremont Fire Department
Fire Suppression Hand Crew CAL FIRE – MTZ or SRA Only
Fire Suppression Dozer CAL FIRE/ALCO – MTZ or SRA Only
Helicopter Services – Fire Suppression EBRPD/CAL FIRE
307 Response to Alameda Fire and EMS MSR Follow-up Questionnaire.
308 Response to Alameda Fire and EMS MSR Follow-up Questionnaire.
Ch. 13: City of Fremont 289
Policy Consulting Associates, LLC
Alameda Fire Municipal Service Review
Public Review Draft
Boat With Fire Suppression Capabilities N/A
emergency medical services
Basic Life Support Provider City of Fremont Fire Department
Advanced Life Support – Non-Transport Provider City of Fremont Fire Department
Advanced Life Support Transport Provider Falck
Continuing Education Provider – Medical City of Fremont Fire Department
Reach Air Medical
Air Ambulance Transport Helicopter Services Services/CHP/CalStar/Lifeflight
Helicopter Landing Facilities On Site Washington Hospital
Vehicle Extrication Tools/Equipment City of Fremont Fire Department
fire prevention
Fire Safety Education – Children City of Fremont Fire Department
Fire Safety Education – Adults/Seniors City of Fremont Fire Department
Juvenile Firesetter Prevention Program City of Fremont Fire Department
Fire and Life Safety Business Inspection Program City of Fremont Fire Department
Fire Protection Planning City of Fremont Fire Department
New Commercial Construction Plan Reviews City of Fremont Fire Department
Public Education Provider (CPR, First Aid, etc.) City of Fremont Fire Department
Home Fire/Safety Inspections City of Fremont Fire Department
Fire Origin and Cause Investigations City of Fremont Fire Department
Fuel Reduction/Weed Abatement Program City of Fremont Fire Department
Smoke Detector Giveaway/Installation Program City of Fremont Fire Department
Address Sign Installation Program City of Fremont Fire Department
rescue services
Fires Responder Swift Water Rescue Program City of Fremont Fire Department
Water Rescue Program City of Fremont Fire Department
Ice Rescue Program N/A
Dive Rescue Program Alameda County Sheriff's Office
Low angle Rope Rescue Program City of Fremont Fire Department
Helicopter Short/Long Haul Rescue Capabilities CAL FIRE
Response to Boating Accidents City of Fremont Fire Department
Rescue Dog Services USAR
hazardous materials
Hazardous Materials Emergency Response –
Basic City of Fremont Fire Department
Ch. 13: City of Fremont 290
Policy Consulting Associates, LLC
Alameda Fire Municipal Service Review
Public Review Draft
Hazardous Materials Response Team City of Fremont Fire Department
support services
Firefighter Incident Support Unit City of Fremont Fire Department
Mobile Incident Command/Communications
Unit City of Fremont Fire Department
Fill Station for Self-Contained Breathing
Apparatus City of Fremont Fire Department
Mobile Breathing Support Unit City of Fremont Fire Department
Community Emergency Response Team City of Fremont Fire Department
Chaplain Services N/A
Training Academy City of Fremont Fire Department
Emergency Operations Center Capabilities City of Fremont Fire Department
miscellaneous
Public Service Assists City of Fremont Fire Department
Motor Vehicle Accident Response City of Fremont Fire Department
Welfare Checks City of Fremont Fire Department
Public Safety Answering Point City of Fremont Fire Department
Fire/EMS Dispatch City of Fremont Fire Department
Fundraising Activities Fremont Firefighters Benevolence Fund
Firefighters Association – Non-Profit Fremont Firefighters Local 1689
Auxiliary Association N/A
The FFD reports that it does not actively seek out collaboration and that it provides adequate
service levels without service sharing. The Department does, however, engage in various mutual
aid agreements with local, regional, and state providers that allow reciprocal coverage for surge
services as needed. These agreements are as follows309:
• The City of Oakland (for partnership with their California Task Force 4-USAR, which
is an urban search and rescue task force sponsored by the City of Oakland Fire
Department)
• California Department of Forestry and Fire Protection (CAL FIRE)
• Alameda County Fire Department (for dispatch services)
• Alameda County Sherriff's Office (for program grant funding)
309 City of Fremont Fire Department, SoGo Online Survey, July 2021
Ch. 13: City of Fremont 291
Policy Consulting Associates, LLC
Alameda Fire Municipal Service Review
Public Review Draft
• Southern Alameda County GIS Authority JPA (to facilitate regional GIS systems)
• California Statewide Communities Development Authority JPA (to facilitate conduit
financing for affordable housing projects)
• East Bay Community Energy Authority JPA (to help provide environmentally sound
energy alternatives to residents and businesses)
CAL FIRE augments fire services throughout the State. Generally, CAL FIRE services are
focused on wildland areas defined as State Responsibility Areas (SRA). In the case of the City
of Fremont, the eastern portion of the City that is adjacent to its border is hillside open space
in unincorporated Alameda County that ranges from moderate, high, and very high risk SRAs.
The western portion of the City is wetlands along the Bay, which are considered Federal
Responsibility Area.
Beyond CAL FIRE, many mutual aid providers supplement fire and emergency services
throughout FFD territory, as mentioned in the previous section. The most notable aid agencies
are Alameda County and the City of Oakland.
FFD reported a total of 14,590 calls for service in FY 20.310 This reflects approximately an eight
percent increase compared to the Department's 13,371 service calls in 2013. However, the
COVID-19 pandemic was said to have reduced call volume in 2020. There was a 10 percent
call decrease in 2020 compared to 2019. Peak calls for service since 2013 occurred in 2017,
which saw a 19 percent increase from the total number of calls in 2013. These statistics are
shown below in Figure 13-6. The types of calls received by the Department are reflected in
Figure 13-7. EMS/rescue calls are the most significant type of call received, followed by
miscellaneous non-emergency calls with 3,356.
Based on the most recent Standards of Coverage Assessment, which was published in 2020,
with the most up-to-date incident response is shown for FY 19, Fire Station 1 consistently
responds to the highest number of incidents, the vast majority of which are EMS/Rescue
incidents. Over a three-year evaluation period, Fire Station 1 responded to nearly 12,000
incidents. This is over 6,000 more incidents than the volume for Fire Stations 3 and 7, which
310 City of Fremont Fire Department, SoGo Online Survey, July 2021.
Ch. 13: City of Fremont 292
Policy Consulting Associates, LLC
Alameda Fire Municipal Service Review
Public Review Draft
saw the next highest level of incidents, both with less than 6,000 over the same three-year
period.311
Figure 13-6: City of Fremont Calls for Service (2013-2020)
fire and emergency service calls 2013-2020
2013 2014 2015 2016 2017 2018 2019 2020
City of
Fremont 13,371 13,396 14,669 15,489 16,348 16,201 16,097 14,590
Figure 13-7: City of Fremont Service Calls by Type, 2020
2020 fire and emergency service calls by type
Motor Fire/
Vehicle EMS/ Misc. Misc. Non- Hazardous False Total
Accidents Rescue Emerg. Emerg. Materials Call Calls
City of
Fremont 564 8,707 72 3,356 841 1,050 14,590
The City of Fremont's FY 21-22 operating budget lists 162 full-time equivalent (FTE) positions
for fire department personnel, which is approximately 16 percent of the citywide total FTE
positions and includes 47 firefighters.312 The FTE number was the same for FY 19-20 as well.
The Department reported that of these FTEs, 132 are sworn staff and that this number has
remained the same since 2018.313 The number of FTEs has increased by one each year since
FY 14-15 when there were 157 FTEs.314
Minimum daily staffing is 41 total personnel as recommended by NFPA code 1710 standards for
an effective response force. It is a combined staff of three firefighters per the Department's 11
engines, three firefighters per two ladder truck, and two Battalion Chiefs for command.315
The Department does not list reserve firefighters but does utilize volunteers for several of its
programs such as the smoke alarm program, the explorer program, and the Rehabilitation
Unit. The Smoke Alarm Program helps seniors, low-income, and physically challenged
individuals with free smoke alarm installation. The Explorer Program is a pathway to becoming
a career firefighter through training, ride-alongs and community projects, while the
311 City of Fremont, Standards of Coverage Assessment, Vol. 1, March 23, 2020, p. 43.
312 City of Fremont, FY21/22 Adopted Operating Budget, p. 170.
313 City of Fremont Fire Department, SoGo Online Survey, July 2021.
314 City of Fremont, FY19/20 Adopted Operating Budget, p. 219.
315 City of Fremont, Standards of Coverage, March 23, 2020, p. 14.
Ch. 13: City of Fremont 293
Policy Consulting Associates, LLC
Alameda Fire Municipal Service Review
Public Review Draft
Rehabilitation Unit is a group of volunteers dedicated to supporting firefighters at emergency
incidents and disasters by providing hydration and nourishment. There is also a Community
Emergency Response Team (CERT) comprised of volunteers and intended to aid with
community response in the event of a major disaster.
Good performance not only comes from adequate staffing but proper training of staff. Fire
Station 1 is considered the tactical training facility for the Department. FFD executes training
and proficiency testing of its personnel across areas such as fire suppression, emergency
medical care, hazardous materials response, water rescue operations, technical rescue, and
more, satisfying federal, state, and local laws to ensure readiness in the event of an incident or
emergency. Additional training is also needed to respond to wildland fires, according to the
Department. Firefighters attend the fire academy for 16-18 weeks and lateral hires must have
FF1 certification. An average of 36 hours of training per month are available for paid
firefighters.316
The City of Fremont Fire Department operates a tactical training center and 11 fire stations
located strategically throughout its service area. This is an average of one fire station per eight
square miles across the City's 92 square mile area. These fire stations and locations are listed
in Figure 13-7.
The following apparatus are available at each fire facility, per the Department in a July 2021
survey:
• Station 1: 1 truck, 1 engine, 1 master control unit
• Station 2: 2 engines, 1 brush truck, 1 Dodge vehicle
• Station 3: 1 engine, 1 water tender, 1 PSA Ford
• Station 4: 1 engine, 1 brush truck
• Station 5: 1 engine, 1 brush truck, 1 medical and rescue unit, 1 UTV
• Station 6: 1 engine, 1 air light unit, 1 air boat, 1 rescue boat, 4 chief officer cars, 3 Ford
vehicles
• Station 7: 2 engines, 1 truck, 1 stakebed, 5 chief officer cars
• Station 8: 1 engine, 1 chief officer car
• Station 9: 1 engine, 1 brush truck, 1 prevention vehicle, 1 stakebed, 1 UTV, 1 trailer
316 City of Fremont Fire Department, SoGo Online Survey, July 2021
Ch. 13: City of Fremont 294
Policy Consulting Associates, LLC
Alameda Fire Municipal Service Review
Public Review Draft
• Station 10: 1 engine, 1 brush truck, 1 rescue unit, 1 rehab van
• Station 11: 2 engines, 1 hazmat rescue unit
In addition to vehicles, there is other equipment maintained by the Department including self-
contained breathing apparatus, turnout suits, cardiac monitors, and CPR devices.
Figure 13-8: City of Fremont Fire Facilities
city of fremont fire department facilities
Facility Address Owner Year Built Condition
4200 Mowry Ave
Station 1 Fremont, CA 94538 City of Fremont 2010 Excellent
37299 Niles Blvd.
Station 2 Fremont, CA 94536 City of Fremont 1952 Good
40700 Chapel Way
Station 3 Fremont, CA 94538 City of Fremont 1979 Good
1000 Pine St. Fremont,
Station 4 CA 94539 City of Fremont 1990 Good
55 Hackamore Ln.
Station 5 Fremont, CA 94539 City of Fremont 1992 Good
4355 Central Ave.
Station 6 Fremont, CA 94536 City of Fremont 2009 Excellent
43600 South Grimmer
Blvd. Fremont, CA
Station 7 94538 City of Fremont 1964 Good
35659 Fremont Blvd.
Station 8 Fremont, CA 94536 City of Fremont 2008 Excellent
39609 Stevenson Pl.
Station 9 Fremont, CA 94539 City of Fremont 1992 Good
5001 Deep Creek Rd.
Station 10 Fremont, CA 94555 City of Fremont 1991 Good
47200 Lakeview Blvd.
Station 11 Fremont, CA 94538 City of Fremont 2010 Excellent
Tactical Training 7200 Stevenson Blvd.
Center Fremont, CA 94538 City of Fremont 1963 Good
The City of Fremont communicates with residents in a variety of ways to transmit important
health and safety information. These methods include posting on its website, utilizing social
media, a newsletter, texts and emails, and through the Community Alert System, AC Alert.
This enables subscribers to receive location-based notifications in the event of emergency alerts
or non-emergency announcements.
For fire dispatch services specifically, the FFD contracts with the Alameda County Regional
Communication Center (ACRECC) as its unified dispatch center. The City of Fremont Police
Department initially answers 9-1-1 calls, as it is considered the City's Public Safety Answering
Point (PSAP). Fire, medical, rescue, and emergency calls are then routed to ACRECC as
Ch. 13: City of Fremont 295
Policy Consulting Associates, LLC
Alameda Fire Municipal Service Review
Public Review Draft
appropriate. ACRECC is an accredited Emergency Medical Dispatch Center that uses a
Medical Priority Dispatch System that allows staff to immediately address caller needs.
Cooperation and consolidation of facilities is an impactful way to limit operating costs for the
City, while still effectively providing needed services. The Department has indicated they do not
share vehicles, equipment, personnel, or similar resources. The FFD does, however, share the
City of Fremont's City Hall for fire administrative services and coordinates with the ACRECC
for dispatch services, as previously stated. According to the FY 19-24 CIP, there is also an
opportunity to share the Tactical Training Center with other agencies for training exercises,
which would result in a source of revenue for the City.317
The FFD's infrastructure needs are outlined in its various planning documents, primarily the
operating budget, and the capital improvement plan. No specific facility maintenance needs
were reported in these documents; however, there is an ongoing project geared towards
expanding fiber optic cable networking throughout the City. This would benefit the Tactical
Training Center and fire stations in general through increased communications abilities.
Likewise, there is an ongoing project to design better energy systems for police and fire facilities
through solar energy, energy storage systems, and electric vehicle supply equipment.318 These
actions would create more sustainable facilities that are in line with the climate action plans for
the City.
The Department also states that developing an internal dispatching center would have an
overall positive effect for the FFD. It would reduce PSAP times while increasing dispatcher
familiarity with the service area and the City's fire policies.319
The City has described a number of challenges for its Department that are not unique to the
City of Fremont. For instance, projected population growth and economic expansion will need
to be addressed in terms of future development that is built to fire code standards, accessibility
317 City of Fremont, Capital Improvement Program FY19-24, p. 90.
318 City of Fremont, Capital Improvement Program FY19-24, p. 183.
319 City of Fremont Fire Department, SoGo Online Survey, July 2021.
Ch. 13: City of Fremont 296
Policy Consulting Associates, LLC
Alameda Fire Municipal Service Review
Public Review Draft
of response vehicles with increased traffic, and the threat of increased wildfires. The COVID-19
pandemic also affected the Department due to limited revenues.
The Department also states that high unit workloads limit service response. There are two
changes that would significantly improve FFD response in and around District 1. The first goal
would be to relocate a ladder truck from Station 1 to Station 6. Secondly, adding a paramedic
company with three personnel to Station 1 would increase citywide coverage from 13 to 14
companies.
As mentioned in the infrastructure needs section, the Department indicates, per studies
conducted through the Standards of Coverage Assessment, that utilizing an external
dispatching center causes inefficiency. Creating an internal dispatching center would allow for
more effective, streamlined calls to action.
This section reviews indicators of service adequacy, including response times, ISO rating, and
complaints received. There are many measures of a successful fire protection service. For
example, the agency would meet guidelines established by the National Fire Protection
Association (NFPA), the Center for Public Safety Excellence (CPSE) (formerly the
Commission on Fire Accreditation International) and the California EMS Agency. There are
also Public Protection Classifications (PPC) and Insurance Services Office (ISO) ratings that
likewise establish an agency's level of service.
FFD maintains individualized performance measures. The applicable response time measure for
City of Fremont according to the SOC is shown in Figure 13-9.320 Although the City indicates
service is adequate, the SOC recommends ways in which response can be improved.
Figure 13-9: City of Fremont Response Time Policy
response times for city of fremont
Agency Name Single Unit Incident Multiple Unit Incident
Arrival of first company on the scene
within 11 minutes 30 seconds for 90
Arrive within 7 minutes 30 seconds
percent of all incidents. Remaining units
from the time the company is first
City of Fremont should arrive on the scene of an incident
dispatched for 90 percent of
within 10 minutes from when the first due
incidents.
company begins responding for 90
percent of all incidents.
320 City of Fremont, Standards of Coverage Assessment, March 23, 2020, p. 1-2.
Ch. 13: City of Fremont 297
Policy Consulting Associates, LLC
Alameda Fire Municipal Service Review
Public Review Draft
In addition to the SOC response standards, the single unit incident goals the City set for itself
differ, according to its General Plan and operating budget. The City's expectations are to
arrive within 6:40 from the time the company is dispatched for 90 percent of all incidents
below Toe of the Hill.321 Of nine measurements the City tracks for effective response, only
three met the 90 percent response goal in FY 19-21. These categories include 9-1-1 calls that
are processed within 1:30, vegetation fires being contained to one acre or less, and extricating a
patient from a vehicle collision within 30 minutes, which was achieved 100 percent of the
time.322
It is recommended that engine companies not exceed a workload unit-hour utilization of 30
percent and while this number was not surpassed, engine 51, based out of Station 1, nears this
during peak evening rush hour times. Station 1, as described in the Existing Demand section,
consistently responds to significantly more incidents than any other station.
There is a four minute first due travel time goal according to NFPA 1710. The Department has
only met this goal, at most, 79 percent of the time since 2004, and this response has only
deteriorated. By FY 18-19, the response was 62.7 percent. The SOC explains that these goals
were established before mapping technology could better model geographic challenges that
places like the City of Fremont face (with hills and Baylands). In order to meet the goal as it is
presented, additional fire stations would be necessary; however, that is not recommended at
this time.323
Fire services in the community are classified by the Insurance Service Office (ISO) as an
indicator of the general adequacy of coverage. Communities with the best fire department
facilities, systems for water distribution, fire alarms and communications, and equipment and
personnel receive a rating of 1. FFD's most recent ISO rating was done in October 2020, and
it was given an ISO PPC rating of Class 02/2X. The first number means a home is no more
than five road miles from a fire station and 1,000 feet from a water supply such as a hydrant.
The second classification, X, refers to the properties further than 1,000 feet from a fire hydrant
but within five road miles of a recognized fire station.324
The City did not provide information regarding any complaints for fire service received.
321 City of Fremont, General Plan Adopted December 2011, Safety, p. 10-39.
322 City of Fremont, Adopted Operating Budget FY21-22, p. 45.
323 City of Fremont, Standards of Coverage Assessment, March 23, 2020, p. 3.
324 City of Fremont, Public Protection Classification Summary Report, October 2020, p. 7.
Ch. 13: City of Fremont 298
Policy Consulting Associates, LLC
Alameda Fire Municipal Service Review
Public Review Draft
13-1: The City of Fremont has a population of 229,476 which is a seven percent increase
since 2010. A five percent rate of growth is expected through 2035.
13-2: The City of Fremont should monitor population projections and development plans to
ensure they align with city planning efforts to adequately accommodate growth and
the related increase in demand for fire and emergency services.
13-3: The City of Fremont does not have any DUCs within or contiguous to its SOI.
13-4: The City of Fremont adequately meets its fire and emergency response facility needs.
There are 11 fire stations and one tactical training center that are fully staffed and
strategically placed throughout the City. There should, however, be continued
reevaluation of the service area and response times to ensure areas in and near
Station 1, in particular, are receiving adequate services, as the station nears response
capacity lengthening response times.
13-5: Fire-related infrastructure needs are currently being met by the City of Fremont as
planned and expensed in its capital improvement plan.
13-7: The City of Fremont Fire Department has the financial ability to continue to provide
services. While COVID-19 slowed growth in City services, the City's diverse
economic base buffered the City against major adverse impacts. The City has been
able to restore and maintain its reserves at policy levels.
13-6: Sharing the Tactical Training Center with other agencies is an opportunity to
increase revenue for the City.
13-7: It is recommended that the Department join fellow Alameda fire providers to develop
a regional, countywide dispatch strategy that employs the closest resource for the
fastest response time, regardless of agency boundaries or responsibility.
Ch. 13: City of Fremont 299
Policy Consulting Associates, LLC
Alameda Fire Municipal Service Review
Public Review Draft
13-8: The City of Fremont abides by legislative obligations for accountability and
governance practices. However, the City's website should be updated to reflect
agendas can be linked to directly from the home page of the website rather than
using the link labeled "council meetings".
13-9: The City of Fremont demonstrated transparency when sharing information for the
creation of this report.
Ch. 13: City of Fremont 300
Policy Consulting Associates, LLC
Alameda Fire Municipal Service Review
Public Review Draft
The City of Hayward is the Bay Area's sixth-largest municipality and ranks among the most
diverse in California. Incorporated in 1876, the City of Hayward is in Alameda County,
California, on the eastern shore of the San Francisco Bay, 25 miles southeast of San
Francisco, 14 miles south of Oakland, 26 miles north of San Jose, and 10 miles west of the
Livermore Valley.325 The City lies in the western portion of Alameda County, bordered by the
cities of Union City and Fremont to the south, with unincorporated Alameda County
surrounding the remainder of the City.
Hayward has been ranked the third most ethno-racially and linguistically diverse city in
America. Known as the "Heart of the Bay," it has a thriving regional center of commerce,
manufacturing activity, and trade.326 The City's thriving economy has over $19 million in annual
sales tax revenue and houses over 10,000 businesses with over 79,000 local jobs. Hayward
also has several cultural amenities including the Hayward Arts Council's Green Shutter
Gallery, Sun Gallery, and the Hayward Area Center for History & Culture.
The City of Hayward adopted its first charter on March 7, 1956. The City of Hayward
provides animal control, fire and emergency response, law enforcement, library, lighting, parks
and recreation, planning/building, and streets. Other services, such as solid waste, are provided
under contract with other service providers.327 Although the City is a multi-service provider, this
review is specific to fire protection, emergency medical, and other related services.
The City of Hayward was last included in an MSR Update by Alameda LAFCO that was
adopted in 2018. There was also a Countywide MSR update for water, wastewater, flood
control and stormwater services completed in 2021. The focus of this MSR is limited to the fire
and emergency medical services provided by the City.
325 The City of Hayward's budget Proposed FY 2022 Operating Budget.
https://www.hayward-ca.gov/sites/default/files/documents/FY-22-Proposed-Operating-Budget.pdf. p. 9.
326 City of Hayward History. https://hayward-ca.gov/discover/hayward-history.
327 Alameda Local Agency Formation Commission Resolution No. 2018-08. https://alamedaLAFCO.org/wp-
content/uploads/2021/11/2018-08-Hayward-Reaffirm-SOI.pdf.
Ch. 14: City of Hayward 301
Policy Consulting Associates, LLC
Alameda Fire Municipal Service Review
Public Review Draft
The City of Hayward covers an area of approximately 63.7 square miles; 45.3 square miles are
land, and 18.4 square miles are covered by water of the San Francisco Bay.328 Figure 14-1
depicts the City's boundaries.
Figure 14-1: City of Hayward Boundaries and SOI
City of Hayward
Range 03 West Range 02 West Range 01 West Range 01 East
htuoS 30 pihsnwoT Oakland 0 0 San Lean 0 dr G o ra
UV
n B t A o v c e k Washington Ave man H R A L
Cla witer Rd
Y d e F w S
D
e 0 l
e
0 l 6 i
p
H n UV e
o
1 s g pe
t
8
r i a
B 5
R n B
l
l d v
A v
d
C d W
H
F i
A
F n
H Y
S t
A
o
§¨¦ F 8
2
Y
n
8 S
3
F
A
0 0 S
v
2 0
e
H 4 a T r e d n e
H
n r y
Red w A o
R
od Rd
s
Y
d o
F
n
S
R
0
d
1 C
H
ro
A
w
Y
C H
F
a
S
A ny Y
0
o
7
F
UV
n S R 0 C d 0 a 9 stroV
25
alley HA B
H
Y l
A
v F
3
d
Y 0
S
F
0
S
8
3 0 1 5
6 31 5 §¨¦ 58
29
0
2
1
0
7 8 32
Palom 2 a 2 8
1
r 1
6 9
e
4 3
s
3
Rd
3 3
2
4
2 7
1
2
1 5 0 2 11
2 2 6
1
3
4 0Ple 1 a 2 s 1
2
D 3
2 5
a 0
4
S u n to b L t n a o D l e s i n u §¨¦ r n 6 P i
F
b
0
d 8
o
o l g
o
0 i s
th
n
i
e
l
i
l
t
R d
a B D
Val
s yel vA e H
B
l r v B o
e
d p l
r
v y H
n
a d a r
a
d c
l
i en R da
A
Dr d
ve
0 92 IndustrialPky 238 32 33 34 35 36
31
HAYFS03 5
0 Union City
htuoS 40 pihsnwoT Hayw 0 ard Union City Blvd A 0 lva A r rd a enw do o B o l A d vd l B va lv r d ad W o h N ip il p es l 3 F P e 6 r R e a R m d s d e o o n 2 t P 5 T B a h De o l c d o v r to r n 3 d R e 1 t d o M n P i s A k s v i 3 y o e 0 n Blvd Nile 29 s 2 0 Blvd M 21ow 28 ry A 4 v St e e 9 1 v 2 6 7e UV n F 8 s 4 o r n e 22 B m 10 3 l UV v 2 1 d o 5 38 nt 2 2 6 1 1 3 1 4 2 Niles 12 2 2 5 1 4 3 1 Niles Blv 3 d 1 0 1 9 8 7 6 UV 84 20 2 1 9 7 5 8
Alameda County Legend O Alameda County City of Hayward
S L o o ur c ce a : A l la A m g ed e a n
g i D n
L
e i
A
t
c
s e n
F
c
y
n e
C
l d a r
o
a e
F
im l d
o
d e t i r s o
r
: p
m
b T la e h
a
y e u
t
p s i
i
n u e
o
f
M
r d o p
n a
r o f m
p
o s
C
r
C
a e r t
r
s
o
i e
e
o
a
o f n
m
e
t
n
e
r s l e
d
y
m
h n
1
o a c
/7
n w
i
e
s /
d
2
n a
s 0
i n i s
2
s
i
d
3 on kj A A
F
A
C
C
i
d l l o
r i
a a
t e
j m m m a
y S
c m e e e
o t
d d
a
u n
f
a a
t
n t
i H o
i C C C t
n
i o
a
i o e t
s
u y s u
y
n n
w
B t t y o y
a
u B
r
B n
d
o o d u u a n n r d i d e a a s r r y ies C S o a u n n t F y ranci
S
sco
a
P
C
kj
n
i kj ekj
o
A dE
u
B
M
l m b kj me
n
a
a
o re n
t
A k kjn
t
r
y
ye
e
l ty a O l kjve
o
m a iyl k e le l d a a nd kjSan
kj
L
H
e
a kj
a
y F
n
w r
d
e a m
r
r
o
d o kj n U kjt n N io e n w C a
P
r it k
l
y
C ea o sa nC kj n to t r
A
o D kj au n u
l a
n b C
m
l t i oy n
e
s
d
ta
a C
kj
o
L
u
iv
n
er
t
m
y
ore San Joaquin County
not to be used as an official map. 0 1 2 4Miles Santa Clara County
The City of Hayward provides fire protection and emergency response services in the
unincorporated Fairview area via a contract with the Fairview Fire Protection District. 329 The
City also participates in geographical areas of mutual aid with Alameda County, Adjacent
Counties, and the State of California for fire protection and emergency service response.
328 Hayward 2040 General Plan Policy Document. https://www.hayward-
ca.gov/sites/default/files/Hayward_2040_General_Plan_FINAL.pdf. July 2014. p. 2-2.
329 Alameda Local Agency Formation Commission Municipal Service Review Update, Adopted January 11, 2018, p.8-10.
Ch. 14: City of Hayward 302
Policy Consulting Associates, LLC
Alameda Fire Municipal Service Review
Public Review Draft
Additionally, the City has mutual aid agreements with the Fire Chiefs Association of Alameda
County and is part of the California Master Mutual Aid Agreement.330
There are no unserved areas identified in the City of Hayward. HFD is able to provide service
throughout its bounds.
The City of Hayward's Sphere of Influence (SOI) was established by LAFCO in 1978 and
was amended in subsequent years. The current SOI for the City was last reaffirmed on
January 11, 2018. 331 The SOI extends beyond the municipal boundary toward I-238/I-538 to
the north and toward Union City to the South. The SOI does not include territory within
Hayward's city limits where it extends to the east toward Pleasanton.
Accountability of a governing body is signified by a combination of several indicators. The
indicators chosen here focus on 1) agency efforts to engage and educate constituents through
outreach activities, in addition to legally required activities such as agenda posting and public
meetings, 2) a website with required content and other useful information, 3) timely ethics
training for board/councils members and an adopted reimbursement policy, 4) a defined
complaint process designed to handle all issues to resolution, 5) adopted bylaws that provide a
framework and direction for governance and administration, 6) adoption of a conflict-of-interest
code as required by law, 7) proper filing of Form 700 by the governing body members, and 8)
transparency of the agency as indicated by cooperation with the MSR process and information
disclosure at meetings, in documents and on a website.
The City of Hayward is a charter city operating under the Council-Manager form of
government. The City Council consists of seven members, including the elected Mayor;
members serve four-year terms. Current council member names, positions, and term expiration
dates are shown in Figure 14-2.
The City Council meets on the first, third, and fourth Tuesday of each month at 7:00 p.m. on
the second floor of Hayward City Hall Council Chambers. Meeting details, agendas, and
actions minutes for each meeting are available online and at the City Clerk's office.
330 City of Hayward, SoGo Survey Responses, November 2021.
331 Alameda Local Agency Formation Commission Municipal Service Review Update, Adopted January 11, 2018, p.8-10.
Ch. 14: City of Hayward 303
Policy Consulting Associates, LLC
Alameda Fire Municipal Service Review
Public Review Draft
Constituents can also register with the City of Hayward or send a request to the City Clerk's
office to receive council agendas via e-mail on a regular basis. The public can watch the City
Council meeting live on the City's website, YouTube, Zoom, and Comcast Cable Local
Channel 15. Archived visual webcasts of regular Council meetings are also available for viewing
online.
Figure 14-2: City of Hayward Governing Body
governing body
Manner of Selection Elections at large.
Length of Term 4 years
On the first, third, and fourth Tuesday of each month at
7:00 p.m.
Meetings 2nd floor of Hayward City Hall
777 B Street
Hayward, CA 94541
Posted online, Office of the City Clerk located at City Hall,
Agenda Distribution
and email by registration.
Posted online and at the Office of the City Clerk located
Minutes Distribution
at City Hall.
council members
Term
Member Name Position Expiration Manner of Selection Length of Term
Mark Salinas Mayor 2026 Elected 4 Years
Mayor Pro
Angela Andrews Tempore 2024 Elected 4 Years
Elected –
*appointed to the
council in April. 11, 2023,
to complete the
remainder of the term of
the Council seat
vacated by Elisa
Ray Bonilla Jr. Councilmember 2024 Marquez 4 Years
Elected – *appointed to
the council on Jan. 9,
2023, to complete the
unexpired term of the
council seat vacated by
Dan Goldstein Councilmember 2024 Mark Salinas 4 Years
Julie Roche Councilmember 2026 Elected 4 Years
George Syrop Councilmember 2026 Elected 4 Years
Ch. 14: City of Hayward 304
Policy Consulting Associates, LLC
Alameda Fire Municipal Service Review
Public Review Draft
Francisco Zermeño Councilmember 2024 Elected 4 Years
contact
Contact Dustin Claussen, City Manager
Mailing Address 777 B Street, 4th Floor, Hayward, CA
Phone 510-583-4300
Email/Website dustin.claussen@hayward-ca.gov
The City of Hayward participates in community outreach events such as annual city festivals
and free hot meals food trucks provided by the Hayward Public Library in partnership with Cal
State East Bay on the first and third Wednesday of each month. The City also has several
community educational programs, including literacy and education opportunities, sustainable
and community appearance opportunities, and public safety and emergency response
opportunities. As part of the public safety and emergency response program, the Hayward Fire
Department provides Community Emergency Response Team (CERT) volunteer training so
members can assist others in their community following a disaster when professional responders
are not immediately available to help.
The City of Hayward's online tool and mobile app, Access Hayward, allows residents to file a
complaint on various topics. For HFD-specific complaints, residents can utilize the Fire-
Hazardous Materials-Emergency Services topic area or utilize the miscellaneous option to file a
specific complaint.
All of the City's elected officials have current filings for Form 700 with the California Fair
Political Practices Commission, indicating transparency in their economic interests.
Through the City, there also exists a conflict-of-interest code and bylaws, outlined in the
municipal code, as lawfully required and by which the City of Hayward must abide.
There is legislation to help ensure public agencies adhere to accountability standards.
California AB 2257 (Government Code §54954.2) is an update to the Brown Act and
indicates requirements for methods by which an agenda for all meetings should be made
available on an agency's website. The City of Hayward complies with this regulation.
The City of Hayward demonstrated accountability in its disclosure of information and
cooperation with the LAFCO questionnaires and other requests for information.
Ch. 14: City of Hayward 305
Policy Consulting Associates, LLC
Alameda Fire Municipal Service Review
Public Review Draft
While public sector management standards vary depending on the size and scope of the
organization, there are minimum standards. Well-managed organizations evaluate employees
annually, track employee and agency productivity, periodically review agency performance,
prepare a budget before the beginning of the fiscal year, conduct periodic financial audits to
safeguard the public trust, maintain relatively current financial records, conduct advanced
planning for future service needs, and plan and budget for capital needs.
The City accounts for its fire and emergency services in several of its planning and
management documents—principally in the annual budget, comprehensive annual financial
report, and General Plan.
The City of Hayward's Fire Department (HFD) was staffed by approximately 146.5 full-time
personnel in FY 21. According to the adopted budget for FY 22 and FY 23 staffing levels are
expected to stay the same.
The Fire Chief, appointed by the City Manager, leads the Department in all areas of fire
protection and overall management including overseeing all three divisions— Fire
Administration, Operation, and Special Operations. The Fire Administration Division provides
direction, leadership, financial oversight, and administrative support services for the Fire
Department. This Division also administers the Fairview Fire Protection District (FFPD)
agreement, with the Hayward Fire Chief serving as the FFPD Chief.
The Operation Division is housed in nine fire stations throughout the community and the
Fairview Fire District, along with a Training Center located adjacent to Fire Station 6 and
encompasses all suppression/EMS personnel and provides various services including firefighting,
both structural and wild land, vehicle extrication, high and low angle rescue, hazardous
materials response, and First Responder Advanced Life Support (FRALS) delivery system with
Firefighter-Paramedic.
The Special Operations Division includes the Emergency Services Office, the Fire Prevention
and Hazardous Materials programs, the Emergency Medical Services program, and the
Training program. 332
HFD did not provide the performance review process, and it is currently not available on the
website.
332 City of Hayward, Adopted FY 2021 Operating Budget. p. 171 – 173.
Ch. 14: City of Hayward 306
Policy Consulting Associates, LLC
Alameda Fire Municipal Service Review
Public Review Draft
To ensure fire service efficiency and effectiveness, HFD has set policy goals and objectives.
HFD aims to provide fire suppression and emergency medical services (EMS), supported by
prevention through responsible regulatory and educational programs.
HFD's finances are managed by the City. City financial planning documents include an annual
budget and Comprehensive Annual Financial Report (CAFR). Additionally, every year the City
adopts a ten-year Capital Improvement Program (CIP). The CIP budget is separate from the
City operating budget and funds public infrastructure projects. The City does not compile a
long-term financial plan with fiscal projections.
Hayward's 2040 General Plan is the City's overarching planning document that provides a
blueprint for growth and development by setting land use policy citywide. The General Plan
has a Community Safety element that includes goals and policies geared towards enhancing
the fire protection and emergency medical services of the Hayward Fire Department.
A critical component of the City of Hayward's planning documents is its Climate Action Plan,
which outlines strategies, policies, and programs for addressing climate change by reducing the
community's greenhouse gas (GHG) emissions. Hayward's original CAP was adopted by the
City Council on July 28, 2009, and then updated and incorporated into the City's General
Plan in 2014.333 Hayward's current GHG emission targets are 30 percent below 2005
emissions levels by 2025, 55 percent below 2005 emissions levels by 2030, and Carbon
neutrality by 2045. Some policies in the Climate Action Plan relevant to fire services are water
conservation standards, a recycled water program, and an urban forest management plan.334
This section discusses the factors affecting service demand, such as land uses, and historical
and anticipated population growth.
The City of Hayward is comprised of approximately 40,768 acres or 63.7 square miles.
According to the City's General Plan, a total of 19 land use designations are identified
including seven residential designations, two commercial designations, four mixed-use
333 City of Hayward Climate Action Plan Update. https://haywardhousingandclimateupdate.com/.
334 City of Hayward, Summary of Climate Action Plan Policies & Programs. https://www.hayward-
ca.gov/sites/default/files/documents/Climate%20Action%20Plan%20-%20Policies%20and%20Implementation%20Programs.pdf.
Ch. 14: City of Hayward 307
Policy Consulting Associates, LLC
Alameda Fire Municipal Service Review
Public Review Draft
designations, two industrial designations, three open space designations, and one public and
quasi-public designation.335 Figure 14-3 shows the land use designations in the city.
Figure 14-3: The City of Hayward Land Use Diagram
The General Plan guides the development of this land while the Community Safety element
specifically addresses the land area as it relates to fire and emergency services.
According to the 2020 Census, the City of Hayward has a total population of 162,948. The
California Department of Finance (DOF) reports a slight decrease in population to 161,081 as
of 2022 and an increase of nearly 16,859, or roughly 12 percent, since 2010, as shown in Figure
14-3. The City's population trend over the last 12 years is shown in Figure 14-4.
335 Hayward 2040 General Plan Policy Document.
https://www.haywardca.gov/sites/default/files/Hayward_2040_General_Plan_FINAL.pdf. July 2014. p. 3-3.
Ch. 14: City of Hayward 308
Policy Consulting Associates, LLC
Alameda Fire Municipal Service Review
Public Review Draft
Figure 14-4: City of Hayward Population Growth, 2010-2022
City of Hayward Population 2010-2022
170,000
160,000
150,000
140,000
130,000
120,000
110,000
100,000
4/1/10 1/1/11 1/1/12 1/1/13 1/1/14 1/1/15 1/1/16 1/1/17 1/1/18 1/1/19 1/1/20 1/1/21 1/1/22
Association of Bay Area Governments (ABAG) projections show that the City of Hayward's
total population is expected to increase by nine percent between 2020 and 2040. The City of
Hayward's population is anticipated to be approximately 160,295 by 2030 and 178,270 by
2040. The Average Annual Growth Rate (AAGR) from 2020 through 2030 is -0.23 percent,
while from 2030 through 2040, it is projected to rise to 1.07 percent.
Regarding fire and emergency services provided to the City, HFD reports that these changing
growth patterns, including an increase in population, an aging population, and higher-density
housing, will affect service demand.
According to Hayward's Strategic Roadmap for FY 21-23, the City is primarily focused on
affordable housing options, with many new high-density developments located near transit to
reduce the displacement of existing residents.336 The City's 2021 Let's House Hayward!
Homelessness Reduction Strategic Plan outlines several strategies to increase the supply of
affordable housing, including units in various stages of development, such as 1,026 rental units
providing housing for extremely low to moderate-income households and 70 ownership units
336 City of Hayward Strategic Roadmap FY2021 to FY2023 Project Listhttps://www.hayward-
ca.gov/sites/default/files/Updated%20Strategic%20Roadmap%20Document.pdf.Revised June 1, 2021.
Ch. 14: City of Hayward 309
Policy Consulting Associates, LLC
Alameda Fire Municipal Service Review
Public Review Draft
providing housing to moderate-income households. Additionally, the City indicated prioritizing
the development of affordable housing on public land as another strategy.337
The City of Hayward has several significant development projects, as shown in Figure 14-5,
that are in various phases of development. Many of these projects are mixed (527 units) and
residential facilities (2,076 units) although there are several industrial (11 projects) and
commercial facilities (4 projects) incorporated in the developmental plans as well. Additionally,
there are a few hotels and public facilities in various stages of development as per the City's
development dashboard.338 Largely, these developments are located along highly trafficked
roadways and designed to complement access to transit options.
Figure 14-5: City of Hayward Planned or Proposed Development Projects, 2023
city of hayward development projects
project # of dwelling units commercial square feet
Allied Housing Depot Road 125
22872 Main St 12
Bunker Hill 74 2,400 - 3,500
21339 Oak St 40
24764 & 24656 Mohr Dr 12
Sohay 472 20,000
Lincoln Landing 476 80,500
27287 Patrick Avenue 10
22810 Atherton St 14
Bellara 157
1190 Russell Way
603 A Steet 80 475 - 885
La Playa Commons 47 1,549 - 2,019
Hayward Mission Family
Apartments 140 3,888
Truelife - Moreau 55
Pimental Place 57
Mission Paradise 76
Sequoia Grove 10
22422 Rockaway Ln 30
Mirza - True Life 189 10,800
Legacy@Hayward 97 1637
Maple & Main 314 7,100
32513 Mission Blvd 14
337 Let's House Hayward! City of Hayward Homelessness Reduction Strategic Plan. https://www.hayward-
ca.gov/sites/default/files/documents/Let%27s%20House%20Hayward%21%20Strategic%20Plan%202021.06.25.pdf. 2021. p.52.
338 City of Hayward Development Dashboard. https://maps.hayward-ca.gov/devsvcdash/.
Ch. 14: City of Hayward 310
Policy Consulting Associates, LLC
Alameda Fire Municipal Service Review
Public Review Draft
238 Parcel group 3 & 4
966 B St 30
Mission Village 72 6,313
1441 Industrial Pkwy
U-Haul 113730
Dermody Logisticenter at
Enterprise 223583
31161 San Antonio St 86000
Logisticenter At Hwy 92
First Industrial Realty - Depot 37000
Rd
1190 Zephyr Ave 48980
Hayward Exchange @ 92
29469 Ruus 103406
First Industrial Realty -
Whitesell St 37051
Prologis Hayman 37 93515
La Vista Park 179
The Stack Center
Hayward Retail Center
Duke Realty 157725
Arthur Mac's
El Pollo Loco
Hyatt Place Hotel
Holiday Inn Express 82
total 2,864+ 1,033,252+
To accommodate growth throughout the City of Hayward, the 2040 General Plan (2014)
summarizes several long-range strategies that would allow for the increased demand on the
Fire Department. First, due to an aging stock of residential, commercial, and industrial
buildings, structural fires are expected to increase in the City, as such fire prevention efforts
such as minimizing fire risks through education, routine inspections, and requiring building
renovations and new construction to comply with fire access and building codes are highlighted.
Another goal highlighted in the City's General Plan is to enhance the fire protection and
emergency medical services of the Hayward Fire Department. This involves addressing issues
around staffing levels, emergency response times, training, fire facilities and equipment, and
coordination with ambulance service providers and hospitals. Finally, the disaster preparedness,
response, and recovery goal on the General Plan are designed to prepare residents and
Ch. 14: City of Hayward 311
Policy Consulting Associates, LLC
Alameda Fire Municipal Service Review
Public Review Draft
businesses for disasters and to ensure that the City of Hayward and other government
agencies are ready to respond to protect lives and property during an emergency. 339
Per the Census Designated Places (CDP), as of 2021, there are no disadvantaged
unincorporated communities (DUCs) that meet the basic, State-mandated criteria within or
adjacent to Hayward's city limits or SOI.
The City of Hayward Fire Department has the financial ability to continue to provide services.
However, the Department has required increasing Net General Fund contributions at the same
time that City General Fund balances have been declining. The City and the Fire Department
face ongoing challenges from pension liabilities that are funded at a "low" level,340 in addition to
pandemic impacts on revenues.
The Fire Department pursues technological improvements, for example, installing alert devices
on its vehicles; although these expenditures impose budget costs in the short-term, longer-term
benefits are anticipated. The City addresses the risk of structural budget imbalances by voter-
approved tax measures, cautious staffing increases, and strategic fiscal forecasts and planning.
Over the past five years, the Fire Department's revenue growth has been relatively static,
requiring an increasing share of General Fund contributions to keep pace with expenditures
growing at approximately the rate of inflation. In FY2021-22 the Net General Fund contribution
was expected to account for about 82 percent of total expenditures, up from 80 percent in
FY2017-18.
The City's total General Fund revenues have generally kept pace with inflation of about 3
percent annually over the past five years; however, expenditures have grown at a faster pace
4.5 percent rate, contributing to annual shortfalls and declining fund balances. In response to
339 Hayward 2040 General Plan Policy Document.
https://www.haywardca.gov/sites/default/files/Hayward_2040_General_Plan_FINAL.pdf. July 2014. p. 3-113 - 3-118.
340 City of Hayward Adopted Budget Fiscal Year 2022, Table 7, valuation as of 6/30/2019. Pension levels funded at less than
70 percent indicate "low" funding and increased risk (see State Auditor's Risk Factors).
Ch. 14: City of Hayward 312
Policy Consulting Associates, LLC
Alameda Fire Municipal Service Review
Public Review Draft
COVID-19, the City instituted hiring freezes, reduced expenditures, and obtained labor group
concessions.
The City has a voter-approved ½ cent sales tax (Measure C) that helps "to restore and
maintain Hayward city services and facilities, including firefighting/emergency medical
services..." and Measure T approved by voters in 2018 to increase the City's property transfer
tax.341 The City prepares 5-year and 10-year budget forecasts to anticipate and manage fiscal
conditions.342
City firefighters (Hayward Firefighters Local 1909) through their MOU have contributed
towards unfunded pension liabilities by paying above the State minimum towards CalPERS
and 2 percent of their salary.343
The City's fund balance in its General Fund has been declining over the past five years as the
City drew down its balance to cover annual shortfalls. Reserves in FY2017-18 represented a
"moderate" level of 20.9 percent of expenditures but declined to a "low" level of 12.2 percent of
expenditures in FY2021-22, less than two months of expenditures.
The City of Hayward provides fire protection services, including structural and wildland
firefighting, vehicle extrication, high and low-angle rescue, hazardous materials response, and
First Responder Advanced Life Support. The Fire Department also implements disaster
response and management training; provides public education on fire hazards, disaster
preparedness, and first aid; enforces the Uniform Fire Code and state and federal codes;
regulates hazardous materials storage and use; and provides emergency medical services to
patients throughout Hayward.344 Additionally, Fairview Fire Protection District has contracted
with the City of Hayward since 1993 to provide fire protection and emergency medical services
within the boundaries of the District. Figure 14-6 details the services provided by HFD. If
another agency offers a service, it is indicated in the figure.
341 City of Hayward Measure C ballot.
342 Response to Alameda Fire and EMS MSR Follow-up Questionnaire.
343 Response to Alameda Fire and EMS MSR Follow-up Questionnaire.
344 Alameda Local Agency Formation Commission Municipal Service Review Update, Adopted January 11, 2018, p.8-13.
Ch. 14: City of Hayward 313
Policy Consulting Associates, LLC
Alameda Fire Municipal Service Review
Public Review Draft
Figure 14-6: City of Hayward Fire Services
service agency
fire suppression services
Structural Fire Protection City of Hayward Fire Department
Wildland Fire Protection City of Hayward Fire Department
Vehicle Fire Protection City of Hayward Fire Department
Ladder Truck Capabilities City of Hayward Fire Department
Fire Suppression Hand Crew CAL FIRE
Fire Suppression Dozer Alameda County Fire Department/CAL FIRE
Helicopter Services – Fire Suppression CAL FIRE
Boat With Fire Suppression Capabilities N/A
emergency medical services
Basic Life Support Provider N/A
Advanced Life Support – Non-Transport Provider City of Hayward Fire Department
Advanced Life Support Transport Provider Falck Ambulance
Continuing Education Provider – Medical City of Hayward Fire Department
Air Ambulance Transport Helicopter Services REACH
Helicopter Landing Facilities On Site N/A
Vehicle Extrication Tools/Equipment City of Hayward Fire Department
fire prevention
Fire Safety Education – Children City of Hayward Fire Department
Fire Safety Education – Adults/Seniors City of Hayward Fire Department
Juvenile Firesetter Prevention Program City of Hayward Fire Department
Fire and Life Safety Business Inspection Program City of Hayward Fire Department
Fire Protection Planning City of Hayward Fire Department
New Commercial Construction Plan Reviews City of Hayward Fire Department
Public Education Provider (CPR, First Aid, etc.) City of Hayward Fire Department
Home Fire/Safety Inspections City of Hayward Fire Department
Fire Origin and Cause Investigations City of Hayward Fire Department
Fuel Reduction/Weed Abatement Program City of Hayward Fire Department
Smoke Detector Giveaway/Installation Program City of Hayward Fire Department
Address Sign Installation Program N/A
rescue services
Fires Responder Swift Water Rescue Program City of Hayward Fire Department
Ch. 14: City of Hayward 314
Policy Consulting Associates, LLC
Alameda Fire Municipal Service Review
Public Review Draft
Water Rescue Program City of Hayward Fire Department
Ice Rescue Program N/A
Dive Rescue Program N/A
Low angle Rope Rescue Program City of Hayward Fire Department
Helicopter Short/Long Haul Rescue Capabilities CAL FIRE/California Highway Patrol
Response to Boating Accidents City of Hayward Fire Department
Rescue Dog Services N/A
hazardous materials
Hazardous Materials Emergency Response –
Basic City of Hayward Fire Department
Alameda County Fire Department/City of
Hazardous Materials Response Team Fremont Fire Department
support services
Firefighter Incident Support Unit City of Hayward Fire Department
Mobile Incident Command/Communications
Unit City of Hayward Fire Department
Fill Station for Self-Contained Breathing
Apparatus City of Hayward Fire Department
Mobile Breathing Support Unit City of Hayward Fire Department
Community Emergency Response Team City of Hayward Fire Department
Chaplain Services N/A
Training Academy City of Hayward Fire Department
Emergency Operations Center Capabilities City of Hayward Fire Department
miscellaneous
Public Service Assists City of Hayward Fire Department
Motor Vehicle Accident Response City of Hayward Fire Department
Welfare Checks City of Hayward Fire Department
Public Safety Answering Point City of Hayward Police Department
Fire/EMS Dispatch City of Hayward Fire Department
Fundraising Activities City of Hayward Fire Department
Firefighters Association – Non-Profit City of Hayward Fire Department
Auxiliary Association N/A
Ch. 14: City of Hayward 315
Policy Consulting Associates, LLC
Alameda Fire Municipal Service Review
Public Review Draft
The City of Hayward Fire Department (HFD) works closely with other agencies locally,
regionally, countywide, and statewide to provide sufficient fire and emergency response services
to the community. Various collaborations reported by the Department include:345
• Eden Area Regional Occupational Program—to provide instruction and resources for
the education of Hayward area high school students;
• Chabot-Las Positas Community College District—for joint fire training center;
• Tiburico Vasquez—Tiburico Vasquez Health Center operates the Hayward Firehouse
Clinic and provides care; and
• Hayward Chamber of Commerce.
The City also takes part in aid agreements with the following agencies to support and expand
its fire, hazmat, and EMS resources for incidents such as wildland fires, emergencies, and
events that take place outside of the City:
• State of California
• Alameda County and adjacent counties
• California Master Mutual Aid Agreement
• Fire Chiefs Association of Alameda County
The California Department of Forestry and Fire Protection (CAL FIRE) augments fire services
throughout the State. Generally, CAL FIRE focuses its services on wildland areas defined as
State Responsibility Areas (SRA). For the City of Hayward, most of the area within the city
limits is a Local Responsibility Area (LRA). However, much of the area within the northeast of
the City is designated as a high fire hazard severity zone which is a State Responsibility
Area.346
Furthermore, as discussed previously, Hayward provides fire protection and emergency
response services in the unincorporated Fairview area via contract with the Fairview Fire
Protection District.
345 City of Hayward, SoGo Survey Responses, November 2021.
346 Alameda County State Responsibility Area Fire Hazard Severity Zones. November 21, 2022
Ch. 14: City of Hayward 316
Policy Consulting Associates, LLC
Alameda Fire Municipal Service Review
Public Review Draft
The Hayward Fire Department indicated it received 17,343 service calls in FY 20, of which 28
were mutual aid calls. EMS incidents account for a majority of calls, with 12,050 calls or 70
percent of all calls. In comparison, motor vehicles and false alarm accounts for the lowest
number of calls with 565 and 809 calls, respectively. Figure 14-7 shows calls received by type.347
From 2013-2020, the highest number of service calls was received in 2019 (18,410), while 2014
had the lowest number of service calls (15,775). Figure 14-8 illustrates the total number of
service calls received in the City of Hayward from 2013-2020.348
Figure 14-7: City of Hayward Calls for Service (2013-2020)
2020 fire and emergency service calls by type
Fire / Misc.
Motor False Hazardous Misc. Non- Total
EMS Vehicle Alarm Materials Emergencies Emerg. Calls
City of
Hayward 12,050 565 809 1,101 1,215 2,172 17,343
Figure 14-8: City of Hayward Service Calls by Type, 2020
fire and emergency service calls 2013-2020
2013 2014 2015 2016 2017 2018 2019 2020
City of
Hayward 15,899 15,775 15,820 16,339 18,052 17,079 18,410 17,343
As mentioned, the City of Hayward Fire Department (HFD) staffed 146.5 full-time equivalent
in FY 21. According to the FY 21 adopted budget, this has been a consistent staffing level since
FY 19, when FTE positions in the Department increased by nine compared to FY 18, which had
137.5 budgeted fire and EMS staff positions. 349
According to the Memorandum of Understanding between the City of Hayward and the
International Association of Firefighters- Local 1909, minimum staffing upon the continuation of
contractual services with FFPD, must consist of nine engine companies and two truck
347 City of Hayward, SoGo Survey Responses, November 2021.
348 City of Hayward, SoGo Survey Responses, November 2021.
349 City of Hayward, Adopted FY 2021 Operating Budget. p. 64.
Ch. 14: City of Hayward 317
Policy Consulting Associates, LLC
Alameda Fire Municipal Service Review
Public Review Draft
companies. Each apparatus must be staffed with a minimum complement of three: a captain,
an apparatus operator, and a firefighter. If the contract with FFPD is discontinued, minimum
staffing shall revert to eight engine companies, two truck companies, and 33 to 30 staff
members. 350
Regarding staff training levels, HFD indicated applicants must have a paramedic license and
CADL and upon academy completion, candidates must meet the California State Fire
Marshal Accredited Local Academy Firefighter 1 and Firefighter 2 academy requirements and
complete evaluation for certification. Other levels of training required by the agency for newly
hired paid firefighters include driver Operator 1A, Fire Control 3, Fire Control 5, Vehicle
Extrication, Confined Space Awareness, and Low Angle Rope Rescue.351
HFD offers paid firefighters an average of 44 hours of training per month. For new volunteers,
the Community Emergency Response Team (CERT) trains 150 residents yearly on a five-night
curriculum. HFD also offers an annual refresher and Neighborhood Emergency Response
Team (NERT) for those interested in furthering their education.352
The Training Division is responsible for ensuring that Hayward's Firefighters are ready to
respond to any type of emergency. Training of line personnel can range from an online
program to live drills and exercises at the Department's training center.
Additionally, HFD's Training Division conducts a 17-week fire academy for new recruits and has
also initiated a partnership with the Eden Area Regional Occupation Program's Fire Science
program. This program will expose interested youth to basic firefighting principles and
techniques, which will potentially lead them down the path of becoming the next generation of
firefighters in the City.353
The City of Hayward Fire Department operates nine engines and two aerial ladder truck
companies from nine strategically located fire stations serving both the citizens of Hayward and
FFPD. Each fire engine and truck company has at least one certified Paramedic assigned to it.
In addition to HFD's front-line emergency vehicles, the Department has the ability to staff
three Type III engines, two firefighting engines, and one Type VI wildland firefighting engine for
350 Memorandum of Understanding between the City of Hayward and the International Association of Firefighters. January 1,
2010, through December 31, 2023. p.8.
351 City of Hayward, SoGo Survey Responses, November 2021.
352 City of Hayward, SoGo Survey Responses, November 2021.
353 City of Hayward Fire Department. https://www.hayward-ca.gov/your-government/departments/fire.
Ch. 14: City of Hayward 318
Policy Consulting Associates, LLC
Alameda Fire Municipal Service Review
Public Review Draft
use in the City and to assist in the statewide mutual aid program for any natural or man-made
disasters.
HFD staffs two fire stations within the boundaries of the FFPD (Station 8 and Fire Station 9).
In addition, the grounds of Station #7 in South Hayward house the nation's first firehouse
clinic, which provides a full-service primary and preventative care center operated by Tiburcio
Vasquez Health Center. The facilities are shown in further detail in Figure 14-9.
Figure 14-9: City of Hayward Fire Facilities
city of hayward facilities
Year
Facility Address Owner Built Condition Assigned Apparatus
One Engine, One
Truck, Three
Command Vehicles,
22700 Main One Water Tender,
Street, Hayward, City of One OES Type III
Station 1 CA 94541 Hayward 1995 Good engine
One Engine, One
360 West Harder Squad, One Rescue
Road, Hayward, City of Trailer, One Mobile
Station 2 CA 94544 Hayward 1958 Good Air Unit
31982 Medinah
Street, Hayward City of One Engine, One
Station 3 CA 94544 Hayward 1956 Good Type III Engine
27836 Loyola
Avenue, Hayward, City of
Station 4 CA 94545 Hayward 1956 Good Two Engines
28595 Hayward
Boulevard,
Hayward, CA City of One Engine, One
Station 5 94542 Hayward 1975 Good Type VI Engine
1401 West Winton Two Engines, Two
Avenue, Hayward, City of ARFF Vehicles, One
Station 6 CA 94545 Hayward 1975 Excellent Truck
One Engine, Two
28270 Huntwood Trucks, One Rescue
Avenue, Hayward, City of Boat, Two Command
Station 7 CA 94544 Hayward 2015 Excellent Vehicles
25862 Five
Canyons Parkway,
Hayward, CA City of Not Type I Engine, Type III
Station 8 94552 Hayward Provided Not Provided Engine
One Engine, One
24912 Second Type VI Engine
Street, Hayward, City of
Station 9 CA 94541 Hayward 1998 Fair
28300 Huntwood
Firehouse Ave., Hayward, City of
Clinic CA94544 Hayward 2015 Not Provided N/A
Ch. 14: City of Hayward 319
Policy Consulting Associates, LLC
Alameda Fire Municipal Service Review
Public Review Draft
Workload across stations is typically measured using Unit Hour Utilization (UHU) which is
calculated by dividing the number of transports by the number of hours a unit is available for
work. Stations nearing or exceeding the 20 percent threshold indicate a strain workload. HFD
did not provide its UHU, and it is not readily available online.
There are a few ways the City of Hayward utilizes its social media outlets: Twitter, Facebook,
and YouTube, to communicate with residents and transmit important health and safety
information. The City also uses AC Alert, a unified system for Alameda County residents,
which provides critical information quickly in various situations, such as earthquakes, fires,
severe weather, unexpected road closures, missing persons, and evacuations of buildings or
neighborhoods. Additionally, in 2021 HFD shared with residents a fire service-supported
website called Zonehaven AWARE, a shared map built out across the Bay Area and the
State of California, to establish integrated databases that can be relied upon by residents and
first responders for communicating and learning about approaching fire and other emergency
conditions and managing evacuations and safe post-disaster return to residences.
The Hayward Police Department Communications Center serves as Hayward's 9-1-1 Public
Safety Answering Point (PSAP), receiving all emergency and non-emergency police, fire, and
medical calls in the City and dispatching public safety personnel to respond as appropriate.
Since 2018, city emergency dispatchers are equipped to receive and respond to mobile
telephone 9-1-1 text messages. The service gives hearing and speech-impaired members of the
community, or those in a situation where it is too dangerous to dial 9-1-1, another option to call
for help in an emergency.
In addition, as of 2021, HFD indicated that it was working to install an updated computer-
aided dispatch fire station alerting system to improve efficiency. The Department also led an
effort for dispatch needs assessment and expected this process to take about a year.
Cooperation and consolidation of facilities is an impactful way to limit operating costs for the
City while effectively providing needed services. Currently, HFD partners with community-
based organizations and other public safety agencies. Additionally, the Department indicated
that it is a part of the East Bay Regional Communications System Authority (EBRCSA), a
communications system that provides fully interoperable communications to all public agencies
within the Alameda and Contra Costa counties.
Ch. 14: City of Hayward 320
Policy Consulting Associates, LLC
Alameda Fire Municipal Service Review
Public Review Draft
Additionally, per the City's contract with FFPD, HFD staffs two fire stations within the
boundaries of the FFPD.
The Department identified two facility-sharing opportunities, Chabot College JPA and Eden
Area Regional Occupational Program at Station 6, for education and training purposes.
The first infrastructure need that HFD reported is an upgrade at Station 8, estimated to cost
around four to six million. However, neither the source of financing nor the timeline was
identified. The Department also indicated that Station 9 needs to be replaced with an industry-
standard fire station at the same location. Additionally, HFD reported that a new fire station
and training facility was under construction at Station 6. According to Hayward's FY 23-32
Capital Improvement Program, the project includes deconstructing the existing buildings and
constructing nine new buildings and structures.354 This project is financed by Fund 406-Measure
C Capital Projects, which is generated by the City of Hayward 0.5 percent sales tax for CIP
projects, including restoration and maintenance of City services and facilities. Other projects
related to the Fire Department outlined in the recommended Capital Improvement Program for
FY 24-33 include: 355
• Fire equipment updates: Project to pay for equipment upgrades for replacement due to
mutual aid response. Expenses will be paid for by mutual aid reimbursement. The
project is financed by Fund 405, which the General Fund, construction tax, Mutual Aid
Overhead, and grants for non-discretionary projects support.
• Fire Fleet Replacement: The ten-year Fleet Replacement Plan is updated annually to
identify vehicles and equipment for replacement based on available General Fund
funding, current replacement cost, cumulative maintenance costs, vehicle/equipment
condition and safety, vehicle/equipment useful life, and departmental operational needs.
The project is financed by Fund 736, generated by charges to City departments, and
used to support purchases of new and replacement vehicles and equipment.
• Fire House Clinic Improvements: This ongoing project uses revenue from the Fire
House Clinic to make necessary improvements to the facility and operations. The
project is financed by Fund 405.
354 Hayward Adopted Capital Improvement Program, Fiscal Years 2023 -2032
https://www.hayward-ca.gov/sites/default/files/pdf/COH-2023-2032-CIP.pdf. p.135.
355 Recommended Capital Improvement Program, Fiscal Years 2024-2033. https://hayward-
ca.gov/sites/default/files/documents/COH-FY2024-CIP.pdf. p.163.
Ch. 14: City of Hayward 321
Policy Consulting Associates, LLC
Alameda Fire Municipal Service Review
Public Review Draft
• Fire Radio Replacement: This recurring project is for regularly replacing the Fire
Department's Radios. The radios have an approximate life of 10 years. The following
replacement of 85 devices is in FY 23. The project is financed by Fund 405.
• Fire Stations 1-6 Improvements/Design: This project is to improve and design Fire
Stations 1 to 6. The project is financed by Fund 406.
• Firefighter Exercise Equipment: This one-time purchase is for Endless Rope, intended for
firefighter-specific training. The Endless Rope utilizes magnetic force resistance to allow
competitive bi-directional movements that mimic firefighting and technical rescue
movements. The project is financed by Fund 405.
The most significant challenge reported by HFD is ongoing financial limitations. According to
the Department, the City of Hayward continues to face challenges related to rising personnel-
related expenses, such as increases in its growing unfunded pension obligations. The City
continues to monitor those unfunded liabilities and identify strategies for continued
programmatic service levels expected of the Hayward community. 356
HFD also indicated that Hayward Firefighters Local 1909, through an MOU, has continually
met the challenges of unfunded liabilities for two decades, paying above the state minimum
towards CalPERS and two percent of their salary.357
The other challenge HFD reported is that increasing Approximate Patient Off Load Time
(APOT), which is the time between when an ambulance arrives at a hospital and when the
patient is transferred from the ambulance gurney to the care of the hospital, is negatively
impacting the private ambulance provider's ability to provide contractually obligated response
time requirements. 358
Additionally, demand for services is anticipated to increase due to changes within the
community, such as an increase in population and an aging housing stock with primitive fire
protection systems that will continue to erode infrastructure, increasing service calls. Rising sea
level is also expected to impact all flood zones as infrastructure ages. In addition, service calls
for unhoused individuals are expected to increase continually.359
356 City of Hayward, SoGo Survey Responses, November 2021.
357 City of Hayward, SoGo Survey Responses, November 2021.
358 City of Hayward, SoGo Survey Responses, November 2021.
359 City of Hayward, SoGo Survey Responses, November 2021.
Ch. 14: City of Hayward 322
Policy Consulting Associates, LLC
Alameda Fire Municipal Service Review
Public Review Draft
This section reviews indicators of service adequacy, including response times, ISO rating, and
complaints received. There are many measures of a successful fire protection service. For
example, the agency would meet guidelines established by the National Fire Protection
Association (NFPA), the Center for Public Safety Excellence (CPSE) (formerly the
Commission on Fire Accreditation International), and the California EMS Agency. There are
also Public Protection Classifications (PPC) and Insurance Services Office (ISO) ratings that
likewise establish an agency's level of service. The applicable response time measure for the
City of Hayward is shown in Figure 14-10.
Figure 14-10: City of Hayward Response Time Policy
response times for the city of hayward
Agency Name Single Unit Incident
Arrive at the scene within 5 minutes and 50 seconds of a 9-1-1 call 90 percent
City of Hayward
of the time.
The Department adopted the National Fire Protection Association (NFPA) standard
requirement for the first unit to arrive on scene within five minutes and 50 seconds of dispatch,
90 percent of the time while all remaining units shall arrive on scene within eight minutes of
dispatch.360 HFD'S fire and emergency response times are under six minutes more than 91.7
percent of the time, indicating the Department generally meets the five minutes and fifty
seconds goal set by best practice.361 The Insurance Service Office (ISO) classifies fire services
in the communities as an indicator of the general adequacy of coverage. Communities with the
best fire department facilities, systems for water distribution, fire alarms and communications,
and equipment and personnel receive a rating of 1. As of 2020, the Hayward Fire Department
has an ISO rating of 2. 362
The Department did not provide information as to whether any complaints regarding fire
service were received in FY 21.
360 Hayward 2040 General Plan Policy Document. July 2014. p. 3-115.
361 City of Hayward By the Numbers.https://www.hayward-ca.gov/discover/by-the-numbers.
362 City of Hayward, Adopted FY 2021 Operating Budget. p. 174.
Ch. 14: City of Hayward 323
Policy Consulting Associates, LLC
Alameda Fire Municipal Service Review
Public Review Draft
14-1: The City of Hayward has a population of 162,948 according to the 2020 Census,
while The California Department of Finance (DOF) reports a slightly higher number
of 163,965. The population growth has been steadily increasing with roughly an 11
percent increase since 2010.
14-2: According to ABAG projections, the City's population will decrease slightly from
2020 through 2030 with a -0.19 percent Average Annual Growth Rate (AAGR) to a
population of 160,295. Alternately, between 2030 and 2040, it is projected to rise to
0.89 percent AAGR to a population of 178,270. The City of Hayward should monitor
population projections and development plans to ensure they align with city planning
efforts to accommodate growth and the corresponding increase in service demand
adequately.
14-3: The City of Hayward does not have any DUCs within or contiguous to its SOI.
14-4: The Department is meeting the five-minute and fifty seconds response time goal set
by best practice and generally appears to have the capacity to address existing
demand. Additionally, the City's annually updated ten-year CIP appropriately plans
for capital needs to address future growth.
14-5: The City of Hayward has its fire and emergency response facility needs adequately
met by HFD, with nine staffed fire stations within its boundaries and two fire stations
within the boundaries of the Fairview Fire Protection District. There should, however,
be continued reevaluation of the service area and response times to ensure areas
outside of the city center, particularly in the east, are receiving adequate services.
14-6: HFD reported significant infrastructure needs, including upgrades at Station 8 and
Station 9 replacement with an industry-standard fire station. The department also
reported that a new fire station and training facility was under construction at Station
6. Additionally, according to the Capital Improvement Program for FY 23-32, several
infrastructural needs are budgeted for and expected to be addressed, including fire
equipment updates, fire fleet replacement, firehouse clinic improvements, fire radio
replacement, fire station 1 through 6 improvements/design, and firefighter exercise
equipment.
Ch. 14: City of Hayward 324
Policy Consulting Associates, LLC
Alameda Fire Municipal Service Review
Public Review Draft
14-7: The City of Hayward Fire Department has the financial ability to continue to provide
services. However, ongoing City structural imbalances must continue to be addressed
in order to minimize and eliminate adverse financial consequences for fire protection
services.
14-8: HFD reported that it is a part of the East Bay Regional Communications System
Authority (EBRCSA), a communications system that provides fully interoperable
communications to all public agencies within the Alameda and Contra Costa
counties. The Department also indicated that it partners with community-based
organizations and other public safety agencies. Additionally, the Department staffs
two fire stations within the boundaries of FFPD.
14-9: The Department identified two facility-sharing opportunities: Chatbot College JPA
and Eden Area Regional Occupational Program at Station 6.
14-10: It is recommended that the Department join fellow Alameda fire providers to develop
a regional, countywide dispatch strategy that employs the closest resource for the
fastest response time, regardless of agency boundaries or responsibility.
14-11: The City of Hayward abides by all legislative obligations for accountability and
governance practices.
14-12: The City of Hayward demonstrated transparency when sharing information to create
this report.
14-13: No governance structure options specific to HFD were identified over the course of
this review: however. it is recommended that the Department continue to participate
in regional planning and coordination efforts to the greatest extent possible, such as
the East Bay Regional Communications System Authority (EBRCSA) and continue
to seek to collaborate and enhance service levels on a regional level with other
providers.
Ch. 14: City of Hayward 325
Policy Consulting Associates, LLC
Alameda Fire Municipal Service Review
Public Review Draft
The City of Livermore was incorporated in 1876. The City lies in the eastern portion of
Alameda County, bordered to the west by the cities of Dublin and Pleasanton and surrounded,
for the most part, by unincorporated areas. Livermore is located near two major freeways, I-
580 and I-680, and is close to the metropolitan areas of San Francisco, Oakland, and San
Jose. 363 The City of Livermore participates in the Sister Cities program and has formalized
three Sister City relationships with Quetzeltenango, Guatemala, Yotsukaido, Japan, and
Snezhinsk, Russia.
The City of Livermore is the only city in the United States with two national laboratories:
Lawrence Livermore National Laboratory and Sandia National Laboratories-CA. The City also
has an award-winning school district, the Livermore Valley Joint Unified School District
(LVJUSD).
The City operates under a council-manager form of government. The City of Livermore
provides services including animal control, fire and emergency response, law enforcement,
library, lighting, planning/building, stormwater, streets, water, and wastewater. Other services,
such as solid waste, are provided under contract with other service providers. Fire and
emergency response is provided by the Livermore-Pleasanton Fire Department (LPFD) Joint
Powers Authority (JPA). Although the City is a multi-service provider, this review is specific to
fire protection, emergency medical, and other related services.
The City of Livermore was last included in an MSR Update by Alameda LAFCO that was
adopted in 2018. There was also a Countywide MSR update for water, wastewater, flood
control and stormwater services completed in 2021. The focus of this MSR is limited to the fire
and emergency medical services provided by the City.
363 Alameda Local Agency Formation Commission Resolution NO. 2018-09 p.1.
Ch. 15: Cities of 326
Policy Consulting Associates, LLC
Livermore/Pleasanton
Alameda Fire Municipal Service Review
Public Review Draft
The City of Pleasanton was incorporated in 1894 and named for Major General Alfred
Pleasonton of the Union Army. A typographical error by the U.S. Post Office is believed to be
responsible for the current spelling of the City's name.364 The City lies in the eastern portion of
Alameda County, bordered by the cities of Dublin to the north and portions of Livermore to
the east, and Hayward to the west.365
Located at the junction of I-580 and I-680, Pleasanton is proximate to the major business
markets of Silicon Valley, San Francisco, and the Central Valley. Additionally, the City
supports a thriving business community of more than 4,000 companies, from Fortune 500 to
home-grown innovation firms.
According to the 2020 Census, the City of Pleasanton has a total population of 79,526. The
City has a council-manager form of government.
The City of Pleasanton provides services including animal control, law enforcement, library,
lighting, parks and recreation, planning/building, stormwater, streets, water, and wastewater.366
Other services, such as solid waste, are provided under contract with other service providers.
Fire and emergency response is provided by the LPFD JPA. Although the City is a multi-
service provider, this review is specific to fire protection, emergency medical, and other related
services.
The City of Pleasanton was last included in an MSR Update by Alameda LAFCO that was
adopted in 2018. There was also a Countywide MSR update for water, wastewater, flood
control and stormwater services completed in 2021. The focus of this MSR is limited to the fire
and emergency medical services provided by the City.
The LPFD was formed in 1996 by the City Councils of the Cities of Livermore and
Pleasanton. This arrangement allows for essential fire and emergency services to be provided
jointly by both cities. Its formation is made possible through a JPA agreement, a legal construct
364 City of Pleasanton Operating Budget • FY 2023/24 - FY 2024/25, p.19.
365 Alameda Local Agency Formation Commission Resolution NO. 2018-13.
366 Wastewater treatment services are provided by contract with Dublin San Ramon Services District.
Ch. 15: Cities of 327
Policy Consulting Associates, LLC
Livermore/Pleasanton
Alameda Fire Municipal Service Review
Public Review Draft
available in the State of California that enables two or more agencies to voluntarily provide
and deliver services within a multi-jurisdictional setting.
The LPFD provides Fire and Life Safety protection to the cities of Livermore, Pleasanton, and
several square miles of unincorporated area adjacent to both cities. These areas include Happy
Valley, Castlewood (the Pleasanton Ridge) and the Veterans Administration Hospital
Livermore.
The consolidated department is quasi-governed by a JPA board. While a formal joint powers
structure was put in place, the powers assigned to the JPA board were limited: all major fiscal
and labor relations decisions are made by the two cities' City Councils, with the JPA board
serving in an advisory capacity to each body. The Board is comprised of the Mayor and a City
Council member from each city. The City Managers of the two cities serve as joint Executive
Directors and appoint the Fire Chief.
By forming the consolidated department, the partner cities avoided creating another agency
with its own overhead costs for fiscal and personnel management. The department uses
existing city support services. The City of Pleasanton provides payroll, personnel and budget
services, and the City of Livermore provides risk management and workers compensation
services. Legal services for code enforcement are provided by both cities' legal departments.
To properly allocate the joint department's management expenses, the two cities use a four-
part cost-sharing formula that takes into account factors such as the number of emergencies or
fire prevention inspections occurring in each city. Currently, Livermore is covering 54 percent of
these expenses, Pleasanton 46 percent. Each city maintains the right to determine the number
of fire stations and firefighters it needs, so growth in one city does not affect the other city's fire
service costs.
One of the management improvements resulting from the consolidation was the movement of
top officers in both departments into full-time specialty roles. Before consolidation, division chiefs
in both departments managed responsibilities such as emergency operations, training and
emergency medical services on a part-time basis. Effectiveness is improved in the consolidated
agency with full-time managers for each function. The separate fire prevention bureaus also
were consolidated; the single bureau jointly serves both cities, including their one-stop building
permit centers.
Initially, all fire station personnel remained in their parent cities but were cross trained in the
other city's stations and on its fire equipment; currently, firefighters regularly work in the other
city's stations, providing coverage for those on vacation or sick leave. The two fire union locals
Ch. 15: Cities of 328
Policy Consulting Associates, LLC
Livermore/Pleasanton
Alameda Fire Municipal Service Review
Public Review Draft
also merged, and the five-year labor agreement negotiated by the cities with the newly
combined International Association of Fire Fighters local contributes to the consolidated fire
department's long-term cost stability. The JPA immediately agreed to joint promotional testing,
and the several promotions, which since being made have contributed to the blending of the
two cities' fire services.
A single training system serves both cities' firefighters. Managed by a Battalion Chief, it uses a
modern training tower and classrooms located in Pleasanton. Emergency operations also have
been completely merged, with a single "duty officer" responding to emergencies wherever they
occur and both cities' fire equipment responding wherever needed. Dispatch services were
consolidated in Livermore's public safety communications center, as it was larger and better
suited to handle the workload created by the consolidation of the departments. The
consolidated department has focused on the creation of one "culture" and one set of operating
procedures, which combines the "best practices" that were in use in both cities.367
The City of Livermore encompasses 26 square miles and a population density of approximately
3,597 persons per square mile.368
The City of Pleasanton encompasses approximately 24.27 square miles.
LPFD provides services to several areas outside of the municipal boundaries of Livermore and
Pleasanton, including the Veterans Administration Hospital. Figure 15-1 depicts LPFD's
boundaries.
367 Municipal Services Review for Fire and Emergency Services West Placer County Area Draft Final, May 25,2017 p.80-81.
368 Alameda Local Agency Formation Commission Municipal Service Review Update, Adopted January 11, 2018, p.9-1.
Ch. 15: Cities of 329
Policy Consulting Associates, LLC
Livermore/Pleasanton
Alameda Fire Municipal Service Review
D Public Review Draft
o
u
Figure 15-1: Livermgore Pleasanton Fire Department Boundaries and SOI Unserved Areas
h
e
r
§¨¦ t y Livermore Pleasanton Fire Department
R
Ra 6 nge 8 01 0 West d Range 01 East Range 02 East
28 27 28 27 26 23 25 24 30 19 21 22 23 24 19
4 33 3 34 0 San Ram on Rd A D m ub a l d in or B V l a v l d ley Blvd Dougherty Rd Dublin Tassajara Rd 33 §¨¦ 34 35 36 31 Liver more Ave 33 28 34 27 3 L 5 26 APFS08 36 25 3 3 1 0
htuoS 30 pihsnwoT 1 2 9 6 1 22 1 1 5 0 23 2 H 11 ay 14 wa 0 rd Footh 1 ill 2 Rd 13 24 L S A t P o F n L S e a r 0 §¨¦ s i 6 d 2 P 8 g 0 o e s D ita r s icaH e B nda Dr
B
l H v L
e
o d V A p
r
O a
n
y P a l w
a
l r F e d
l
e y
A
S n R s d
v
A 0
e
D 4 M v a r i e n St Sa 1 nta s Rit L a t R d S A t PFS03 58 V L 0 i A ne P y F a S rd 0 1 Av El e Charro Rd Sta
L
n
A
le
P
y
F
B
S
l
0
vd
5
LAPFS1 L 0 AP Murrieta F Blvd S0 6
UV
7 9 L Ho 5 l m i es St ve LA rm PF 8 C o Arroyo Rd S o r 0 ll e e 7 g 9 e UV A 8 v 4 e16 15 LAPF 14 S06 0 Vasco Rd 13 ACFFS20 18 7 6 1 8 7
3Un
10
3 2 4
i
7
o
P
n
alo m
C
ar 3 e
i
5 s
t
R
y
d
11
2
26
12
1
36 25
31
7
6
0
5
8
Sunol Blvd Pleasanton
SunolRd
Pleasanton Vin V e a y ll a e r c d it o A s v R e d 8 W 4 etmore Rd
3
3
2
4
7 22
2
3
2
5
2 6 3
1
3
2
6
5 24
6
3
3
1
0 19
5
3
2
2
2 9 0
Alameda County Legend O Alameda County Livermore Pleasanton Fire Department
S L o o ur c ce a : A l la A m g ed e a n
g i D n
L
e i
A
t
c
s e n
F
c
y
n e
C
l d a r
o
a e
F
im l d
o
d e t i r s o
r
: p
m
b T la e h
a
y e u
t
p s i
i
n u e
o
f
M
r d o p
n a
r o f m
p
o s
C
r
C
a e r t
r
s
o
i e
e
o
a
o f n
m
e
t
n
e
r s l e
d
y
m
h n
1
o a c
/7
n w
i
e
s /
d
2
n a
s 0
i n i s
2
s
i
d
3 on kj A A
F
A
L
C
i
d l l o
i r
a a
v e
j m m m a
e S
c m e e
r
e
t
d d
m a
u n a a
t
n t
i o o
i C C C t
r n
i o i o e
e
t
s
u y s u
(
n
P
n B
L
t t
l i
y o y
v e
u
e
B B
a
n
r
o o
s m
d u u
a
a
o
n n r
n r
d i d
e
e
t
a a
/ o
s
P
r r y
n
i
l
e
e
s
a F s i a r n e t o D n e ) partment
C S o a u n n t F y ranci
S
sco
a
P
C
kj
n
i kj ekj
o
A dE
u
B
M
l m b kj me
n
a
a
o re n
t
A k kjn
t
r
y
ye
e
l ty a O l kjve
o
m a iyl k e le l d a a nd kjSan
kj
L
H
e
a kj
a
y F
n
w r
d
e a m
r
r
o
d o kj n U kjt n N io e n w C a
P
r it k
l
y
C ea o sa nC kj n to t r
A
o D kj au n u
l a
n b C
m
l t i oy n
e
s
d
ta
a C
kj
o
L
u
iv
n
er
t
m
y
ore San Joaquin County
not to be used as an official map. 0 0.5 1 2Miles Santa Clara County
There are no unserved areas identified in the City of Livermore. LPFD is able to provide
service throughout bounds of both cities.
There are no unserved areas identified in the City of Pleasanton. LPFD is able to provide
service throughout bounds of both cities.
Ch. 15: Cities of 330
Policy Consulting Associates, LLC
Livermore/Pleasanton
Alameda Fire Municipal Service Review
Public Review Draft
The City of Livermore's Sphere of Influence (SOI) was established by LAFCO in 1979 and
was amended in subsequent years. The SOI for the City extends slightly to the north, east,
and south of the municipal boundary.369 The City's current SOI was last reaffirmed on January
11, 2018.
The City of Pleasanton's SOI was established by LAFCO in 1976 and was amended in
subsequent years. The City's current SOI was last reaffirmed on January 11, 2018.
Accountability of a governing body is signified by a combination of several indicators. The
indicators chosen here focus on 1) agency efforts to engage and educate constituents through
outreach activities, in addition to legally required activities such as agenda posting and public
meetings, 2) a website with required content and other useful information, 3) timely ethics
training for board/councils members and an adopted reimbursement policy, 4) a defined
complaint process designed to handle all issues to resolution, 5) adopted bylaws that provide a
framework and direction for governance and administration, 6) adoption of a conflict-of-interest
code as required by law, 7) proper filing of Form 700 by the governing body members, and 8)
transparency of the agency as indicated by cooperation with the MSR process and information
disclosure at meetings, in documents and on a website.
The City of Livermore is a general law city operating under a council-manager form of
government. The City Council consists of five members, including the Mayor; members serve
four-year terms, and the elected Mayor serves a two-year term. Current council member
names, positions, and term expiration dates are shown in Figure 15-2.
The Council meets on the second and fourth Mondays of each month at 7:00 p.m. Members
of the public have the option to participate in person at the Civic Center Meeting Hall, City
Council Chambers located at 1016 S. Livermore Avenue, or remotely on Zoom. The City
369 Alameda Local Agency Formation Commission Municipal Service Review Update, Adopted January 11, 2018, p.9-1.
Ch. 15: Cities of 331
Policy Consulting Associates, LLC
Livermore/Pleasanton
Alameda Fire Municipal Service Review
Public Review Draft
reports that it is suspending public comment via zoom and participants wishing to comment on
meeting content will need to be present to comment.
The public can also watch the City Council meeting live on the City's YouTube channel. All
City Council agenda packets, minutes, public comments, and archived recordings are available
online.
Figure 15-2: City of Livermore Governing Body
governing body
Manner of Selection At large for mayor, by district for councilmember.
Length of Term 4 years for councilmembers, 2 years for the mayor.
Second and Fourth Mondays at 7:00 pm
Civic Center Meeting Hall
Meetings 1016 S. Livermore Avenue
Livermore, CA 94550
City Council Chambers
Agenda Distribution Posted online.
Minutes Distribution Posted online.
councilmembers
Member Term Manner of Length of
Name District Position Expiration Selection Term
John
Marchand Mayor 2024 Elected 4 Years
Councilmember,
Brittni Kiick 3 Vice Mayor 2024 Elected 4 Years
Ben Barrientos 2 Councilmember 2026 Elected 4 Years
Evan Branning 1 Councilmember 2026 Elected 4 Years
Bob Carling 4 Councilmember 2024 Elected 4 Years
contact
Contact Marianna Marysheva, General Manager
Mailing Address 1025 S. Livermore Ave, Livermore, CA 94550 1052
Phone (925) 960-4040
Email/Website citymanager@cityoflivermore.net
The City of Livermore participates in community outreach including summer reading programs,
Livermore Reads Together, and Arts and Authors talks. Furthermore, throughout the year the
City has various events specific to adults, teens, and armchair travelers.
Ch. 15: Cities of 332
Policy Consulting Associates, LLC
Livermore/Pleasanton
Alameda Fire Municipal Service Review
Public Review Draft
The City of Livermore has contact information and a FAQ page online for the public to file a
complaint on various topics. Additionally, complaints can be directed to specific unit or
Department; contact information for each Department is available online. For fire specific
complaints, the public can contact the Fire Chief.
All City of Livermore's City Council members have current filings for Form 700 with the
California Fair Political Practices Commission, indicating transparency in their economic
interests.
Through the City, there also exists a conflict-of-interest code and bylaws, outlined in the
municipal code, as lawfully required.
There is legislation to help ensure public agencies adhere to accountability standards.
California AB 2257 (Government Code §54954.2) is an update to the Brown Act and
indicates requirements for methods by which an agenda for all meetings should be made
available on an agency's website. The City of Livermore complies with this regulation.
The City of Livermore demonstrated accountability in its disclosure of information and
cooperation with the LAFCO questionnaires and other requests for information.
The City of Pleasanton is a general law city, which operates under the council-manager form
of government. The City Council consists of five members, including the Mayor. Members
serve four-year terms, and the elected Mayor serves a two-year term. Pleasanton has a district-
based election system, with four districts. Each district has one Councilmember who resides in
the district and who is chosen by electors residing in that district. The office of the Mayor
remains elected at-large by all voters. Current council member names, positions, and term
expiration dates are shown in Figure 15-3.
The Council meets on the first and third Tuesdays of each month at 7:00 p.m. City Council
meetings are held in-person at the City Council Chamber located at 200 Old Bernal Avenue.
The meeting is also broadcasted live on the City's YouTube channel, Channel 29, and Tri-
Valley community television. All City Council agenda packets, minutes, and archived recordings
are available online.
Ch. 15: Cities of 333
Policy Consulting Associates, LLC
Livermore/Pleasanton
Alameda Fire Municipal Service Review
Public Review Draft
Figure 15-3: City of Pleasanton Governing Body
governing body
At large. Starting March 19, 2022,
Manner of Selection
councilmembers are elected by district.
Length of Term 4 years for councilmembers, 2 years for the mayor.
First and Third Tuesdays at 7:00 pm
City Council Chamber
Meetings
200 Old Bernal Avenue
Pleasanton, CA 94566
Agenda Distribution Posted online.
Minutes Distribution Posted online.
councilmembers
Member Term Manner of Length of
Name District Position Expiration Selection Term
Karla Brown Mayor 2024 Elected 4 Years
Valerie Arkin Councilmember 2024 Elected 4 Years
Councilmember,
Jack Balch Vice Mayor 2024 Elected 4 Years
Jeff Nibert Councilmember 2026 Elected 4 Years
Julie Testa Councilmember 2026 Elected 4 Years
contact
Contact Gerry Beaudin, City Manager
123 Main Street/PO Box 520, Pleasanton, CA
Mailing Address
94566
Phone (925) 931-5002
Email/Website
The City of Pleasanton participates in community outreach events including a variety of
performing, visual, and literary arts through its Civic Arts program, as well as a variety of
community events and performances such as movies in the park, the Rose Show, and
Hometown Holidays.
For fire specific complaints, the public can contact the Fire Department.
All City of Pleasanton's City Council members have current filings for Form 700 with the
California Fair Political Practices Commission, indicating transparency in their economic
interests.
Through the City, there also exists a conflict-of-interest code and bylaws, outlined in the
municipal code, as lawfully required and by which the City of Pleasanton must abide.
Ch. 15: Cities of 334
Policy Consulting Associates, LLC
Livermore/Pleasanton
Alameda Fire Municipal Service Review
Public Review Draft
There is legislation to help ensure public agencies adhere to accountability standards.
California AB 2257 (Government Code §54954.2) is an update to the Brown Act and
indicates requirements for methods by which an agenda for all meetings should be made
available on an agency's website. The City of Pleasanton complies with this regulation.
The City of Pleasanton demonstrated accountability in its disclosure of information and
cooperation with the LAFCO questionnaires and other requests for information.
LPFD uses a joint powers authority (JPA) model with essential support services such as
Human Resources and Finance provided by the Cities of Livermore and Pleasanton
respectively. This partnership promotes more efficient administration and effective delivery of
life-safety services without the additional overhead of a completely independent JPA agency.
Under this model, the LPFD organization plan includes the JPA Board of Directors, which is
made up of the Mayor of Livermore, Mayor of Pleasanton, one councilmember from Livermore,
and one councilmember from Pleasanton. 370Current Board member names, positions, and term
expiration dates are shown in Figure 15-4.
The Board holds at least two meetings annually and may hold additional meetings if necessary.
The public can access meeting agenda, minutes, and archived documents online on LPFD's
website.
Figure 15-4: Livermore-Pleasanton Fire Department Governing Body
governing body
A subcommittee of the Livermore and Pleasanton
Manner of Selection
City Councils.
Consistent with the councilmember's length of
Length of Term
term.
At least twice a year and special meetings as
Meetings
necessary.
Agenda Distribution Posted online.
Minutes Distribution Posted online.
board members
Term Manner of Length of
Member Name District Position Expiration Selection Term
Chair, City of
John Marchand Livermore 2024 Elected 4 Years
370 1996 Joint Exercise of Powers Agreements between the City of Livermore and the City of Pleasanton, p.4.
Ch. 15: Cities of 335
Policy Consulting Associates, LLC
Livermore/Pleasanton
Alameda Fire Municipal Service Review
Public Review Draft
Vice-Chair,
City of
Karla Brown Pleasanton 2024 Elected 4 Years
Director, City
Jack Balch of Pleasanton 2024 Elected 4 Years
Director, City
Brittni Kiick of Livermore 2024 Elected 4 Years
contact
Contact Joe Testa, Fire Chief
Mailing Address 3560 Nevada Street, Pleasanton, CA 94566
Phone (925) 454-2361
Email/Website jtesta@lpfire.org
As a part of the communities' disaster response plan, the LPFD has an active Community
Emergency Response Team (CERT) program. The CERT program trains and supports
members of the community to be effective emergency response volunteers in the event of a
disaster. Volunteers are taught skills such as disaster medical care, light search and rescue,
team organization, and coordination with the Fire Department. The Fire Department hosts
CERT classes several times per year.
LPFD also has a Disaster Preparedness volunteer opportunity for the public to participate in
outreach program to help make citizens aware of the need to prepare for disasters and to
provide resources and assistance for doing so.
There is legislation to help ensure public agencies adhere to accountability standards.
California AB 2257 (Government Code §54954.2) is an update to the Brown Act and
indicates requirements for methods by which an agenda for all meetings should be made
available on an agency's website. LPFD complies with this regulation.
While public sector management standards vary depending on the size and scope of the
organization, there are minimum standards. Well-managed organizations evaluate employees
annually, track employee and agency productivity, periodically review agency performance,
prepare a budget before the beginning of the fiscal year, conduct periodic financial audits to
safeguard the public trust, maintain relatively current financial records, conduct advanced
planning for future service needs, and plan and budget for capital needs.
Ch. 15: Cities of 336
Policy Consulting Associates, LLC
Livermore/Pleasanton
Alameda Fire Municipal Service Review
Public Review Draft
The Cities of Livermore and Pleasanton account for their fire and emergency services in
several of their planning and management documents, particularly in their biannual and annual
budgets, comprehensive annual financial reports, and General Plan.
The JPA Board has limited independent power; therefore, all major decisions proposed by the
JPA Board require ratification by the respective City Councils. If such ratification is not
attained, the issue is returned to the JPA Board and executive management staff for further
work.
In this joint consensus partnership, neither city can dictate to the other. The JPA Board,
combined with the joint budget, provides an effective tool for maximizing the delivery of fire
services, controlling costs, and maintaining local control in determining service levels.
LPFD was staffed by approximately 123 full-time personnel in FY 21. The City of Pleasanton
personnel for FY 21 was 62.75 FTE, while the City of Livermore had 62.5 FTE personnel for
FY 21.
The two City Managers serve as JPA Executive Directors and provide overall administrative
direction to the Fire Chief in alignment with allocated resources and approved goals and
objectives. Human resources, finance, legal services, and various support functions are provided
by the two cities.
The Fire Chief leads the Department in all areas of fire protection and overall management.
LPFD, through the Fire Prevention Bureau, is responsible for minimizing fire risk through
positive fire code enforcement and weed abatement. The Operations Bureau prepares for and
responds to all emergency fire, medical, rescue, and hazardous materials incidents.
To ensure fire service efficiency and effectiveness, LPFD has set policy goals and objectives in
the areas of services, public information and community engagement, and workforce and
training.
LPFD's finances are managed by the Cities of Livermore and Pleasanton. All Joint fire
operating costs of LPFD are summarized and categorized into the following types:
Administrative, Prevention, Suppression, Emergency Operations, and Capital Replacement.
Administrative, emergency operations and capital replacement costs are shared 50/50 by both
cities. Fifty percent of the prevention costs incurred for development services (plan checking
and inspection services) and including salaries, other employment costs, and supplies are
shared 50/50 by both Cities. The other 50 percent of these costs are shared proportionally,
based on the level of service during any given fiscal year. Similarly, costs categorized as
Ch. 15: Cities of 337
Policy Consulting Associates, LLC
Livermore/Pleasanton
Alameda Fire Municipal Service Review
Public Review Draft
suppression will be shared by both Cities proportionally based on staffing levels within the
suppression function.371
The Cities are also responsible for providing several administrative support services to LPFD—
finance and budget, purchasing, human resources and labor relations, workers' compensation,
legal, risk, information technology, and city clerk. The city responsible for providing each
administrative support service is identified in a memorandum of understanding (MOU) signed
by each City Manager. The direct cost to provide each administrative support service is
periodically calculated by an independent consultant. The Cities shall equally share in the
direct cost of the administrative support services. 372
City of Livermore's financial planning documents include a two-year budget and an Annual
Comprehensive Financial Report (ACFR). Additionally, the City currently has a five-year
Capital Improvement Program budget (CIP) for FY 23-28. The CIP budget is separate from
the City operating budget and is both a fiscal and planning tool, which identifies capital
improvement projects, provides a schedule for the projects and identifies funding sources and
financing options. The City also has a Long-Term Financial Plan (LTFP) which creates a
framework for allocating resources according to the City's established goals and objectives.
The City of Pleasanton also has a two-year budget. Additionally, the City has a Capital
Budget and a four-year CIP, which collectively with the City's budget provide funding for
projects, programs, and services consistent with the City Council's previously adopted two-year
work plan. The City also has an ACFR.
In May 2021, LPFD adopted its first comprehensive Strategic Plan for FY 22-26, developed by
a Strategic Planning Committee comprised of the leadership team from LPFD and executive
staff from the Cities of Livermore and Pleasanton. The document is intended to serve as a
broad leadership and management framework for the Department's direction, including the
establishment of the Department's goals and objectives, and the implementation of annual
strategic actions and timelines for completion over the next five years.
Furthermore, the Cities' General Plans have a public safety element that establishes
mechanisms to reduce death, injuries, and damage to property and to address the negative
results from public safety hazards like flooding, fires, and seismic events.
371 Livermore-Pleasanton Fire Department Joint Powers Authority Amended and Restated Agreement Between the City of
Livermore and City of Pleasanton, 2016. Attachment B, Joint Fire Operations and Assigned Personnel - Cost Sharing Plan
Methodology
372 Livermore-Pleasanton Fire Department Joint Powers Authority Amended and Restated Agreement Between the City of
Livermore and City of Pleasanton, 2016. Attachment C, Administrative Support Services-Cost Allocation Plan Methodology.
Ch. 15: Cities of 338
Policy Consulting Associates, LLC
Livermore/Pleasanton
Alameda Fire Municipal Service Review
Public Review Draft
A critical component of both Cities' planning documents is their Climate Action Plan (CAP),
which outlines strategies, policies, and programs for addressing climate change by reducing the
community's greenhouse gas (GHG) emissions.
Livermore's first CAP was adopted by the City Council in November 2012 implementing
General Plan policy to reduce GHG emissions to 15 percent below 2008 conditions by 2020.
The City of Livermore exceeded the 2020 GHG goal, achieving a 17 percent reduction by
2017 three years earlier than the target date. An updated CAP was adopted on November 28,
2022. The City's 2022 CAP emission goals have been updated to: Reduce emissions to 40
percent below 1990 levels by 2030 and reach carbon neutrality by 2045.373
The City of Pleasanton completed its first GHG emissions inventory in 2007 and its first CAP
1.0 in 2012. Pleasanton surpassed the CAP 1.0 target of reducing emissions 15 percent below
2005 levels by 2020, ahead of schedule. The City of Pleasanton's Council approved a 2019-
2020 Work Plan that included a preparation of an updated Climate Action Plan (CAP
2.0). The City Council adopted the CAP 2.0 on February 15, 2022, and provided a minor
update on February 21, 2023.374
This section discusses the factors affecting service demand, such as land uses, and historical
and anticipated population growth.
The City of Livermore is comprised of approximately 26.44 square miles. According to the
City's 2002 General Plan, single-family residential land uses occupy 5,123 acres, the largest
amount of land in the City. Multi-family residential occupies 400 acres. Parks, recreation, and
open space are the second major existing use in the City, occupying 1,696 acres, while
undeveloped parcels occupy 1,785 acres, and agriculture occupies 1,068 acres. Public uses
occupy 703 acres, and industrial uses occupy 960 acres. Office uses occupy 248 acres, retail
561 acres, and churches and other institutional uses occupy 149 acres. According to the 2002
General Plan Land Use Categories, land uses consist of the following:375
373 The City of Livermore, Climate Action Plan. https://www.livermoreca.gov/departments/community-development/climate-
action-plan-draft.
374 The City of Pleasanton, Climate Action Plan 2.0. http://www.cityofpleasantonca.gov/gov/depts/os/env/cap/resources.asp.
375 City of Livermore General Plan Land Use Element, p.3-9.
Ch. 15: Cities of 339
Policy Consulting Associates, LLC
Livermore/Pleasanton
Alameda Fire Municipal Service Review
Public Review Draft
• Residential — 49.9 percent
• Agriculture, open space, and parks — 19.3 percent
• Industrial — 12.9 percent
• Retail and office — 8.2 percent
• Community facilities — 6.7 percent
• Downtown — 1.9 percent
• BART-owned — 0.6 percent
• Mixed use — 0.4 percent
The City of Pleasanton is comprised of approximately 24.27 square miles. According to the
City's 2005-2025 General Plan, the total planning area for the City is 47,853 acres. The
City's open space occupies 33,871 acres, the largest amount of land in the City. Residential
land use is the second largest in the City occupying 9,106 acres. While
industrial/commercial/office spaces occupy 3,239 acres, community facilities 859 acres, and
mixed-use 778 acres.
According to the 2020 Census, the City of Livermore has a total population of 87,955, while
The California Department of Finance (DOF) reports a slightly lower number of 87,694. The
DOF also shows a slight decrease in population to 86,149 as of 2022 and an increase of
nearly 5,181 or roughly 6 percent, from 2010 – 2022. The City's population trend over the last
12 years is shown in Figure 15-5.
Ch. 15: Cities of 340
Policy Consulting Associates, LLC
Livermore/Pleasanton
Alameda Fire Municipal Service Review
Public Review Draft
Figure 15-5: City of Livermore Population Growth, 2010-2022
City of Livermore Population 2010-2022
95,000
90,000
85,000
80,000
75,000
70,000
65,000
60,000
4/1/10 1/1/11 1/1/12 1/1/13 1/1/14 1/1/15 1/1/16 1/1/17 1/1/18 1/1/19 1/1/20 1/1/21 1/1/22
According to the 2020 Census, the City of Pleasanton has a total population of 79,526, while
the California Department of Finance reports a slightly higher number of 79,741. The DOF also
shows a slight decrease in population to 77,609 as of 2022 and an increase of nearly 7,324 or
roughly 10 percent, from 2010 – 2022. The City's population trend over the last 12 years is
shown in Figure 15-6.
Figure 15-6: City of Pleasanton Population Growth, 2010-2022
City of Pleasanton Population 2010-2022
85,000
80,000
75,000
70,000
65,000
60,000
4/1/10 1/1/11 1/1/12 1/1/13 1/1/14 1/1/15 1/1/16 1/1/17 1/1/18 1/1/19 1/1/20 1/1/21 1/1/22
Ch. 15: Cities of 341
Policy Consulting Associates, LLC
Livermore/Pleasanton
Alameda Fire Municipal Service Review
Public Review Draft
Association of Bay Area Governments (ABAG) projections show that the City of Livermore's
total population is anticipated to be approximately 99,115 by 2030 and 113,730 by 2040. The
Average Annual Growth Rate (AAGR) from 2020 through 2030 is 1.2 percent, while from
2030 through 2040, it is projected to rise by 1.4 percent.
Association of Bay Area Governments projections show that the City of Pleasanton's total
population is anticipated to be approximately 78,370 by 2030 and 87,875 by 2040. The
AAGR from 2020 through 2030 is expected to decrease to -0.17 percent, while from 2030
through 2040, it is projected to rise to 1.2 percent.
The Cities of Livermore and Pleasanton have major developments taking place as shown in
Figure 15-7. Many of the projects in the City of Livermore include affordable housing projects
as well as residential, mixed-use, parks, and commercial projects that are part of Livermore's
downtown development project. Additionally, the City's 2023 Housing Element plans for the
development of 4,570 housing units between 2023 and 2031.
The City of Pleasanton has several major projects proceeding through entitlement or approved
and under construction; these are listed below. Among these are several residential projects on
sites identified in the City's 6th Cycle Housing Element adopted in January 2023 and ratified in
September 2023. The Johnson Drive Economic Development is a significant project that adds
additional commercial square footage once built out. The EDZ project intends to capitalize on
its convenient location near two major area freeways, the I-580 and I-680, and create a
thriving commercial corridor that will include two new hotels (currently under construction) and
Costco store and gas station (estimated to open in 2024).
Regarding fire and emergency services provided to the Cities, LPFD reports that demand for
fire/EMS services is anticipated to increase due to projected population growth in the Cities
from 2020 to 2040.
Ch. 15: Cities of 342
Policy Consulting Associates, LLC
Livermore/Pleasanton
Alameda Fire Municipal Service Review
Public Review Draft
Figure 15-7: Cities of Livermore and Pleasanton Planned or Proposed Development Projects, 2023
city of livermore and pleasanton development projects
# of dwelling commercial
project units square feet location
Vineyard 2.0 23 City of Livermore
Pacific Avenue Senior
Apartments 140 City of Livermore
L Street Parking Garage City of Livermore
Blacksmith Square City of Livermore
Downtown Boutique Hotel 133 13,200 City of Livermore
Eden Housing 130 City of Livermore
Veterans Park City of Livermore
Quest Science Center 30,492 City of Livermore
SPARC 5,000 City of Livermore
Apartments** 222 14,000 City of Livermore
Isabel Neighborhood
Specific Plan 523 City of Livermore
Downtown
Second/Church St.
Apartments 42 City of Livermore
Arroyo Vista
Neighborhood Plan 434 City of Livermore
Avance Independent
Living 44 City of Livermore
Lund Ranch II 50 City of Pleasanton
Simon Residential 360 City of Pleasanton
Avalon Bay 305 City of Pleasanton
3200 Hopyard 57 City of Pleasanton
Miscellaneous Other
Residential Units 179 City of Pleasanton
Costco 148,613 City of Pleasanton
Johnson Drive EDZ
Hotels 140,000 City of Pleasanton
79,629 (demo 176,151 SF
Stoneridge Mall Sears and construct 255,420
Demo and Rebuild SF)* City of Pleasanton
34,713 (9,742 SF church
plus 24,971 SF
Greek Orthodox Church community center)* City of Pleasanton
Public Storage 205,027 City of Pleasanton
150,000 is Phase 1
(demo 163,500
commercial buildings,
new construction of
10X Genomics (Phase 1) 381,000 R&D)* City of Pleasanton
10X Genomics (Phase 1) 67,500 is Phase 2 City of Pleasanton
total 2,642+ 888,174+
i * Commercial square footage reflects "net new" square footage, where demolitions and new constructions are proposed.
Ch. 15: Cities of 343
Policy Consulting Associates, LLC
Livermore/Pleasanton
Alameda Fire Municipal Service Review
Public Review Draft
LPFD's Strategic Plan FY 22-26 outlines several long-range strategies to accommodate growth
throughout the City of Livermore and the City of Pleasanton. First, to ensure adequate fire
suppression, prevention, emergency medical, and disaster services to meet the evolving needs of
our communities and other changing conditions, action strategies such as assessing different
models of community paramedicine and identifying the costs of the various models are
highlighted.376
Second, action strategies such as implementing an instructional services agreement with Las
Positas College, conducting a training needs assessment, designing a specific training
curriculum for chief officers in both cities, identifying vendors to enhance mental health and
wellness services, and more are identified to ensure LPFD has and maintains a well-trained and
high-performing workforce through targeted and routine training and development opportunities
for managers, front-line supervisors, and fire suppression, inspection, and support personnel.377
Furthermore, reviewing and considering information technology and fire station improvements
and making approved equipment purchases as planned and funded annually are the strategies
outlined to reach LPFD's goal of prioritizing reliable and efficient facilities and equipment.378
Additionally, enhancing public awareness and engagement to strengthen LPFD partnerships
with the community, including the region's diverse communities, is also highlighted as one of
the goals of the LPFD's Strategic Plan.379
Progress reports on the goals outlined in the Strategic Plan will be provided to officials in the
cities of Livermore and Pleasanton, and the Livermore-Pleasanton Fire Department employees
on a regular basis. This will include a formal status report every six months to the Executive
Directors and an annual progress report to the Joint Powers Board. LPFD will seek feedback
about implementation from Livermore and Pleasanton, so there is an ongoing dialogue and
clear direction provided about the fire and emergency services function of the two cities. 380
Per the Census Designated Places (CDP), as of 2021, there are no disadvantaged
unincorporated communities (DUC) that meet the basic, state-mandated criteria within the
City of Livermore and City of Pleasanton service area.
376 LPFD Strategic Plan FY 2021-22 through FY 2025-26, May 2021, p. 9.
377 LPFD Strategic Plan FY 2021-22 through FY 2025-26, May 2021, p. 11.
378 LPFD Strategic Plan FY 2021-22 through FY 2025-26, May 2021, p. 12.
379 LPFD Strategic Plan FY 2021-22 through FY 2025-26, May 2021, p. 10.
380 LPFD Strategic Plan FY 2021-22 through FY 2025-26, May 2021, p. 14.
Ch. 15: Cities of 344
Policy Consulting Associates, LLC
Livermore/Pleasanton
Alameda Fire Municipal Service Review
Public Review Draft
LPFD has the financial ability to continue to provide services. The LPFD relies on contributions
from its two JPA member cities and maintains adequate levels of reserves. Its two member
cities demonstrated continued revenue growth, although the growth is less than expenditure
growth, especially during COVID-19. The LPFD continually evaluates measures to improve its
financial position.
LPFD primarily is funded by contributions from the JPA member cities of Pleasanton and
Livermore in addition to revenue from Department of Veterans Affair hospital for the 3 fire
fighters assigned in the area. The FY 2021-22 Budget proposes equal contributions of $21.6
million each to augment other JPA revenues;381 actual contributions are based on a formula
that considers a number of factors including need for firefighters and equipment, and allocation
of administrative expenses on a program-by-program basis.382 From FY 2017-18 through FY
2021-22 member city contributions grew at an average of 5.8 percent annually. The LPFD
continually evaluates its financial policies and practices to maintain a sustainable budget,
including planning for appropriate levels of staffing vs. overtime, and creating a fund to set
aside adequate reserves for planned asset replacement.383
A concern noted by LPFD is the deployment of fire fighters to help fight wildfires and the
resulting increase in overtime costs for those firefighters as well as the ones left to cover shifts
in LPFD.384 LPFD has implemented and continually reviews cost containment strategies
including a) developed a replacement program to ensure that there is funding and a clear set
of procedures for replacing apparatus and procedures; b) identified opportunities to develop,
purchase and implement technology-based improvements (e.g. paperless, reports, data
collection and analysis, online scheduling, etc.); c) increase operational efficiencies and maintain
fiscal responsibilities.385 LPFD has pursued and received various grants to assist with its costs,
including Urban Areas Security Initiative (UASI) grants.
381 Proposed Mid-Year Adjustments for the Fiscal Year 2021-22 and Mid-Term Adjustments for the Fiscal Year 2022-23 to
the Livermore-Pleasanton Fire Department JPA, May 18, 2022, pg. 2.
382 LPFD JPA Operating Budget FY 2019/2020-FY 2020/2021, pg. 7.
383 LPFD JPA Board of Directors Special Meeting May 18, 2022, Item 5 budget adjustments.
384 Response to Alameda Fire and EMS MSR Follow-up Questionnaire.
385 Response to Alameda Fire and EMS MSR Follow-up Questionnaire.
Ch. 15: Cities of 345
Policy Consulting Associates, LLC
Livermore/Pleasanton
Alameda Fire Municipal Service Review
Public Review Draft
The General Fund revenues of the contributing cities have generally been growing at a 2.7
percent to 2.9 percent annual rate, which is slower than the growth of JPA expenditures.
COVID-19 adversely affected the budgets of both cities; Livermore was particularly hard hit;
revenues were projected less than expenditures for FY 2020-21 and FY 2021-22.
The LPFD JPA's financial statements reported an unassigned fund balance of $9.5 million.
This balance represents about 21 percent of annual expenditures, a "moderate" level of
reserves that exceed a minimum of two months of operating expenditures.386 The LPFD JPA
maintains a capital reserve fund of $250,000 for the replacement and maintenance of capital
equipment.
The City of Livermore's General Fund Ending Working Capital declined in the FY 2021-22
budget to $4.5 million387 or 3.6 percent of annual expenditures, a "low" level of reserve funding.
Pleasanton, the other JPA member, projected its General Fund ending balance to be $41.1
million388 or about 31 percent of annual expenditures, a "moderate" level.
386 Financial indicators derived from California State Auditor's Methodology for Ranking California Cities Based on Fiscal Risk.
387 City of Livermore FY22 & FY23 Two Year Financial Plan, pg. 64.
388 City of Pleasanton Operating Budget FY22-FY23, pg. 44.
Ch. 15: Cities of 346
Policy Consulting Associates, LLC
Livermore/Pleasanton
Alameda Fire Municipal Service Review
Public Review Draft
The response area for LPFD is approximately 49.45 square miles, encompassing the
communities of Livermore and Pleasanton.
As an emergency response and community service organization, the department delivers fire
and emergency medical services, specialized rescue, hazardous materials mitigation,
development and code enforcement services, and public education.
According to LPFD's FY 18 – FY 19 Operating Budget, in the past seven years, significant
integration between the LPFD and Alameda County Fire Department emergency resources
has improved services throughout the valley and increased system reliability for both agencies.
Through unified communications (ACRECC) and redefined response areas, the departments
have reduced duplication of service, increased command depth, and are moving toward
seamless emergency operations. We continue to monitor the equity of shared resources to
ensure these system enhancements equally benefit both agencies.389 Figure 15-8 details the
services provided by the HFD. If another agency offers a service, it is indicated in the figure.
Figure 15-8: Cities of Livermore and Pleasanton Fire Services
service agency
fire suppression services
Structural Fire Protection Livermore-Pleasanton Fire Department
Wildland Fire Protection Livermore-Pleasanton Fire Department
Vehicle Fire Protection Livermore-Pleasanton Fire Department
Ladder Truck Capabilities Livermore-Pleasanton Fire Department
Fire Suppression Hand Crew N/A
Fire Suppression Dozer N/A
Helicopter Services – Fire Suppression N/A
Boat With Fire Suppression Capabilities N/A
emergency medical services
Basic Life Support Provider Livermore-Pleasanton Fire Department
Advanced Life Support – Non-Transport
Provider Livermore-Pleasanton Fire Department
389 Livermore-Pleasanton Fire Department Operating Budget FY2017/2018 - FY2018/2019, p.5-6.
Ch. 15: Cities of 347
Policy Consulting Associates, LLC
Livermore/Pleasanton
Alameda Fire Municipal Service Review
Public Review Draft
Continuing Education Provider – Medical Livermore-Pleasanton Fire Department
Air Ambulance Transport Helicopter Services N/A
Helicopter Landing Facilities On Site N/A
Vehicle Extrication Tools/Equipment Livermore-Pleasanton Fire Department
fire prevention
Fire Safety Education – Children Livermore-Pleasanton Fire Department
Fire Safety Education – Adults/Seniors Livermore-Pleasanton Fire Department
Juvenile Firesetter Prevention Program N/A
Fire and Life Safety Business Inspection Program Livermore-Pleasanton Fire Department
Fire Protection Planning Livermore-Pleasanton Fire Department
New Commercial Construction Plan Reviews Livermore-Pleasanton Fire Department
Public Education Provider (CPR, First Aid, etc.) N/A
Home Fire/Safety Inspections N/A
Fire Origin and Cause Investigations Livermore-Pleasanton Fire Department
Fuel Reduction/Weed Abatement Program Livermore-Pleasanton Fire Department
Smoke Detector Giveaway/Installation Program N/A
Address Sign Installation Program N/A
rescue services
Fires Responder Swift Water Rescue Program Livermore-Pleasanton Fire Department
Water Rescue Program Livermore-Pleasanton Fire Department
Ice Rescue Program N/A
Dive Rescue Program N/A
Low angle Rope Rescue Program Livermore-Pleasanton Fire Department
Helicopter Short/Long Haul Rescue Capabilities N/A
Response to Boating Accidents Livermore-Pleasanton Fire Department
Rescue Dog Services N/A
hazardous materials
Hazardous Materials Emergency Response –
Basic Livermore-Pleasanton Fire Department
Hazardous Materials Response Team Livermore-Pleasanton Fire Department
support services
Firefighter Incident Support Unit Livermore-Pleasanton Fire Department
Mobile Incident Command/Communications
Unit Livermore-Pleasanton Fire Department
Ch. 15: Cities of 348
Policy Consulting Associates, LLC
Livermore/Pleasanton
Alameda Fire Municipal Service Review
Public Review Draft
Fill Station for Self-Contained Breathing
Apparatus Livermore-Pleasanton Fire Department
Mobile Breathing Support Unit Livermore-Pleasanton Fire Department
Community Emergency Response Team Livermore-Pleasanton Fire Department
Chaplain Services Livermore-Pleasanton Fire Department
Training Academy Livermore-Pleasanton Fire Department
Emergency Operations Center Capabilities Livermore-Pleasanton Fire Department
miscellaneous
Public Service Assists Livermore-Pleasanton Fire Department
Motor Vehicle Accident Response Livermore-Pleasanton Fire Department
Welfare Checks Livermore-Pleasanton Fire Department
Public Safety Answering Point Livermore-Pleasanton Fire Department
Fire/EMS Dispatch Livermore-Pleasanton Fire Department
Fundraising Activities Livermore-Pleasanton Fire Department
Firefighters Association – Non-Profit Livermore-Pleasanton Fire Department
Auxiliary Association N/A
The Livermore-Pleasanton Fire Department (LPFD) works closely with other agencies to
provide sufficient fire and emergency response services to the community. The Department
reported collaboration with CAL OES for California fire assistance and California equipment
assignment. The Department also collaborates with FEMA-USAR for training purposes.
Additionally, LPFD also participated in mutual aid agreement with CAL FIRE for emergency
response.390
The California Department of Forestry and Fire Protection (CAL FIRE) augments fire services
throughout the State. Generally, CAL FIRE focuses its services on wildland areas defined as
State Responsibility Areas (SRA). For the City of Pleasanton, most area within the city limits is
a Local Responsibility Area (LRA). However, much of the area in the south part of the City is
designated as moderate and high fire hazard severity zones with about 24,084 to 112,041 acres,
which is a State Responsibility Area.
390 The Livermore-Pleasanton Fire Department, SoGo Survey Responses, November 2021.
Ch. 15: Cities of 349
Policy Consulting Associates, LLC
Livermore/Pleasanton
Alameda Fire Municipal Service Review
Public Review Draft
For the City of Livermore, much of the northern and northeastern part of the City is a Local
Responsibility Area, while the eastern part of the City where the Lawrence Livermore National
Laboratory is located is a Federal Responsibility Area (FRA). The rest of the area in the City
is a State Responsibility Area with a mix of moderate, high, and very high fire hazard severity
zones.391
The Livermore-Pleasanton Fire Department indicated it received 13,544 service calls in FY 20.
EMS incidents account for most calls, with 8,559 calls or 63 percent of all calls. In comparison,
miscellaneous emergencies account for the lowest number of calls with 268 calls or 19 percent
of all calls. The City of Livermore accounts for the larger portion of all calls made to LPFD in
2020 with 7,579 total calls, while the City of Pleasanton accounts for 5,308 of the total calls.
Figure 15-10 shows calls received by type.392
From 2015-2020, the highest number of service calls was received in 2019 (14,597), while 2015
had the lowest number of service calls (12,641). Figure 15-11 illustrates the total number of
service calls received in the City of Hayward from 2015-2020.393
Figure 15-9: Cities of Livermore and Pleasanton Calls by Type, 2020
2020 fire and emergency service calls by type
Fire / Misc.
Motor False Hazardous Emerg Misc. Non- Total
EMS Vehicle Alarm Materials encies Emergencies Calls
City of Not
Livermore 4,922 provided 2,179 314 164 Not provided 7,579
City of Not
Pleasanton 3,396 provided 1,666 159 87 Not provided 5,308
Not
LPFD 8,559 provided 4,177 540 268 Not provided 13,544
Figure 15-10: Cities of Livermore and Pleasanton Service Calls for Services (2013-2020)
fire and emergency service calls 2013-2020
2013 2014 2015 2016 2017 2018 2019 2020
LPFD N/A N/A 12,641 13,665 14,965 14,324 14,597 13,544
391 Alameda County State Responsibility Area Fire Hazard Severity Zones. November 21, 2022.
392 Livermore-Pleasanton Fire Department Year End Report, 2020.
393 The Livermore-Pleasanton Fire Department, SoGo Survey Responses, November 2021.
Ch. 15: Cities of 350
Policy Consulting Associates, LLC
Livermore/Pleasanton
Alameda Fire Municipal Service Review
Public Review Draft
As mentioned, Livermore-Pleasanton Fire Department (LPFD) was staffed by approximately
123 full-time personnel in FY 21. The City of Pleasanton personnel for FY 21 was 62.75 FTE
while the City of Livermore had 62.5 FTE personnel for FY 21. For the City of Pleasanton,
staffing levels for FY 22 and FY 23 have slightly increased to 63.75 and 64 FTE personnel.
Similarly, for the City of Livermore staffing levels for FY 22 and FY 23 have slightly increased
to 63.5 and 64 FTE personnel.
LPFD have a daily full-time operational minimum staffing level of 36 personnel between the
cities of Livermore and Pleasanton. Each individual city has 18 personnel: 1 Battalion Chief, 5
Fire Captains, 5 Fire Engineers, 5 Firefighter-Paramedics, and 2 Firefighter EMTs.
Regarding staff training levels, LPFD offers 10 hours of IFSAC Pro Board California State Fire
Fighter 1 for newly hired paid firefighters. Alternately, LPFD offers new volunteers 16 hours of
basic in-house training pre-COVID.
Additionally, LPFD Facilitates training and coordination of the following programs:394
• Fire Suppression training for Engine and Truck companies
• EMS training for all LPFD Personnel
• Firefighter recruit academies
• Probationary testing for new firefighters
• Promotional preparation and testing
• Annual Company Performance Evolution testing for Engine and Truck companies
• LPFD Reserve and Explorer Programs
• Safety training and injury prevention programs
Furthermore, LPFD Reserves are required to participate in a minimum of twelve hours of
service time per month in addition to scheduled training. Service can be public education
events, training division assistance, community disaster preparedness training, engine/truck
company participation, and major incident scene assistance.
The Livermore-Pleasanton Fire Department serves the two communities through 10 fire
stations, with five stations in each city. The LPFD headquarters is located in Pleasanton, as
394 Livermore-Pleasanton Fire Department, Training. https://www.lpfire.org/about-us/emergency-operations/training.
Ch. 15: Cities of 351
Policy Consulting Associates, LLC
Livermore/Pleasanton
Alameda Fire Municipal Service Review
Public Review Draft
well as the Department's fire training facility. The facilities are shown in further detail in Figure
15-11.
Figure 15-11: Cities of Livermore and Pleasanton Fire Facilities
lpfd facilities
Facility Address Owner Year Built Condition Apparatus
3560 Nevada
Street Pleasanton, 5 emergency
Station 1 CA 94566 LPFD 2000's Good response vehicles
6300 Stoneridge
Mall Rd
Pleasanton, CA 3 emergency
Station 2 94588 LPFD 1980's Poor response vehicles
3200 Santa Rita
Rd Pleasanton, 2 emergency
Station 3 CA 94566 LPFD 2022 Excellent response vehicles
1600 Oak Vista
Way Pleasanton, 3 emergency
Station 4 CA 94566 LPFD 2005 Good response vehicles
1200 Machado
Place Pleasanton, 2 emergency
Station 5 CA 94566 LPFD 1990's Good response vehicles
4550 East Ave
Livermore, CA 3 emergency
Station 6 94550 LPFD 1970's Poor response vehicles
951 Rincon Ave
Livermore, CA 3 emergency
Station 7 94550 LPFD 2000 Fair response vehicles
5750 Scenic
Avenue Livermore, 2 emergency
Station 8 CA 94550 LPFD 1990's Good response vehicles
1919 Cordoba St 2 emergency
Station 9 Livermore, CA LPFD 2016 Excellent response vehicles
330 Airway Blvd.
Livermore, CA 2 emergency
Station 10 94556 LPFD 1998 Good response vehicles
Workload across stations is typically measured using Unit Hour Utilization (UHU) which is
calculated by dividing the number of transports by the number of hours a unit is available for
work. Stations nearing or exceeding the 20 percent threshold indicate a strain workload. LPFD
did not provide its UHU, and it is not readily available online.
Ch. 15: Cities of 352
Policy Consulting Associates, LLC
Livermore/Pleasanton
Alameda Fire Municipal Service Review
Public Review Draft
The Cities of Livermore and Pleasanton have partnered with Alameda County to use their
mass notification alert system: AC Alert, to communicate with residents and transmit important
health and safety information. AC Alert is a Mass Notification System used by City and
County agencies throughout Alameda County to rapidly disseminate emergency alerts to
people who live, work in or visit Alameda County. AC Alert can send alerts by voice, text, and
email, as well as messaging Nixle subscribers, posting to social media pages, and sending
FEMA Wireless Alerts (WEA). Residents a fire service-supported website called Zonehaven
AWARE, a shared map built out across the Bay Area and the State of California, to establish
integrated databases that can be relied upon by residents and first responders for
communicating and learning about approaching fire and other emergency conditions and
managing evacuations and safe post-disaster return to residences. LPFD also utilizes Facebook
and Instagram to communicate essential safety and health information with residents in both
cities.
Additionally, the City of Livermore utilizes its social media outlets: Twitter, Facebook,
Instagram, YouTube, Vimeo, and Nextdoor, while the City of Pleasanton utilizes Facebook and
Twitter to communicate important information with residents.
The Livermore-Pleasanton Fire Department serves as the Public Safety Answering Point
(PSAP), receiving all emergency and non-emergency police, fire, and medical calls in the Cities
and dispatching public safety personnel to respond as appropriate. 395
According to LPFD's Strategic Plan FY 2021-22 through FY 2025-26, the Department is
working on installing a new alert system for dispatching alarms. LPFD is also considering
replacing, upgrading, and implementing emergency operational response software in
coordination with Alameda County Regional Emergency Communications Center –
ACRECC.396
Cooperation and consolidation of facilities is an impactful way to limit operating costs for the
City while effectively providing needed services—currently, LPFD does not share vehicles,
equipment, personnel, or services with other agencies, community organizations, or entities.
Additionally, the Department did not indicate any opportunities for shared facilities. 397
395 The Livermore-Pleasanton Fire Department, RFI.
396 LPFD Strategic Plan FY 2021-22 through FY 2025-26, May 2021 p.17.
397 The Livermore-Pleasanton Fire Department, SoGo Survey Responses, November 2021.
Ch. 15: Cities of 353
Policy Consulting Associates, LLC
Livermore/Pleasanton
Alameda Fire Municipal Service Review
Public Review Draft
However, LPFD has a goal of expanding partnerships for regional training with other fire
departments and community colleges to improve efficiency and minimize and/or reduce fiscal
impacts. 398
LPFD reported remodeling and replacement needs at Station 3 and Station 7 with estimated
costs of four million and six million, respectively. The Department listed the Capital
Improvement Budget as a funding source for these projects. The estimated timeline for Station
3 was three years which was concluded in 2022.399
According to LPFD, Station 7 needs new flooring and bathroom renovations. LPFD reports
that the bathroom renovations have been discussed with the City of Livermore Facilities
multiple times and that CIP funding would be required for the scope of the repair work.
However, LPFD reports that overall, Station 7 is in a fair condition currently and, with repairs
to restrooms, would be in "good" condition.
LPFD's strategic plan also lists additional fire station improvements scheduled for FY 25
including renovating or replacing Fire Station 2 and purchasing new generators for Fire
Stations 5 and 6.400
According to the City of Livermore FY 23-28 Capital Improvement Plan, generator
replacement at Fire Station 6 is at the preliminary study stage and is expected to cost
$80,000. The source of funding for these facility replacement costs will be Facilities
Rehabilitation Program Fees or Fund 740. The Capital Improvement Plan also includes Fire
Station 6 remodeling that will be funded by the General Fund (Fund 001) and the Facilities
Rehabilitation Program (Fund 740). The project includes:401
• Renovation and expansion.
• Relocating bedrooms to the west side of the building in the wing with the renovated
lounge, kitchen, restrooms, and locker rooms. Expand the building to make room for five
bedrooms.
• Relocate offices and visitor center to the east wing of building.
• Add a fire engine bay.
• Replace the HVAC system and roof. Parking lot and surface improvements.
398 The City of Livermore, Budget FY 2023-25, p.103.
399 The Livermore-Pleasanton Fire Department, SoGo Survey Responses, November 2021.
400 LPFD Strategic Plan FY 2021-22 through FY 2025-26, May 2021 p.17.
401 City of Livermore FY 2023-28 Capital Improvement Plan p. 86-91.
Ch. 15: Cities of 354
Policy Consulting Associates, LLC
Livermore/Pleasanton
Alameda Fire Municipal Service Review
Public Review Draft
• Parking lot and surface improvements.
However, according to the City of Livermore, the scope of work discussed on the City's CIP is
outdated and only mentions plans for renovation, addition, and remodeling. The new scope of
work within the RFP includes plans for the complete rebuilding of Station 6.
Similarly, the City of Pleasanton's Capital Improvement Program FY 24 – FY 27 includes
funded capital projects, including designing/constructing new Station 3, designing EOC at the
fire training facility, and designing Station 2 Improvements. These projects are financed by
Fund 201 and Fund 203.402
Additionally, LPFD's strategic plan includes the following equipment purchases as planned and
funded annually for FY 22:403
• Replace self-contained breathing apparatus (SCBA)
• Purchase air/light rehabilitation utility vehicle
• Replace heart monitors
• Add a new dedicated tow vehicle for rescue vehicles
• Assist with the selection of used aircraft rescue and fire-fighting (ARFF) vehicle
• Purchase reserve/training tractor-drawn aerial
• Purchase telehandler in collaboration with other City of Pleasanton departments
The most significant challenge reported by LPFD for FY 21 is an ongoing financial limitation,
due to the unprecedented wildfires in previous years LPFD JPA fire fighters were deployed to
help in the fire fighting. This resulted in an increase in overtime cost not only to those assigned
to the wildfires but also to the firefighters that were left to cover the shift in LPFD.
The Department also reported several challenges to providing adequate services including:
• Projected increased growth and development in Livermore and Pleasanton may be
more than what the current LPFD personnel and resources may be able to handle
• Finances and money
• Health and wellness of the workforce
• Changing workforce and workflow turnover time
402 City of Pleasanton Capital Improvement Program • FY 2023/24 - FY 2026/27, p. 87.
403 LPFD Strategic Plan FY 2021-22 through FY 2025-26, May 2021 p.17.
Ch. 15: Cities of 355
Policy Consulting Associates, LLC
Livermore/Pleasanton
Alameda Fire Municipal Service Review
Public Review Draft
• Responding to other region wildfires may result to a temporary depletion of available
firefighters and resources for the LPFD
This section reviews indicators of service adequacy, including response times, Insurance
Services Office (ISO) rating, and complaints received. There are many measures of a
successful fire protection service. For example, the agency would meet guidelines established by
the National Fire Protection Association (NFPA), the Center for Public Safety Excellence
(CPSE) (formerly the Commission on Fire Accreditation International), and the California EMS
Agency. There are also Public Protection Classifications (PPC) and ISO ratings that likewise
establish an agency's level of service. The applicable response time measure for the City of
Hayward is shown in Figure 15-12.
Figure 15-12: Livermore-Pleasanton Fire Department Response Time Policy
response times for lpfd
Agency Name Single Unit Incident
LPFD Arrive at the scene within 7 minutes of a 9-1-1 call 90 percent of the time.
LPFD utilizes a total reflex time standard response of seven minutes from call intake to the
arrival of the first responder on the scene. This measurement includes a compliance rate
inclusive of the following categories: one-minute call processing time; one-minute turnout time;
five minutes travel time. The total reflex time standard also includes a 90 percent compliance
rate. This means crews arrive within 7 minutes on 90 percent of all emergency calls.
LPFD's overall average total reflex time for all emergency calls in the service areas for 2020
was 6:27. The Department's average total reflex time for fire-specific response was 7:10 minutes
while EMS response times were 6:24 minutes. Therefore, as of 2020 the Department's
compliance rate was 72 percent.
Additionally, the ISO classifies fire services in the communities as an indicator of the general
adequacy of coverage. Communities with the best fire department facilities, systems for water
distribution, fire alarms and communications, and equipment and personnel receive a rating of
1. As of 2017, the LPFD has an ISO rating of 3. 404
The Department did not provide information as to whether any complaints regarding fire
service were received in FY 21.
404 Livermore-Pleasanton Fire Department Operating Budget FY 2017/2018 - FY 2018/2019 p.19.
Ch. 15: Cities of 356
Policy Consulting Associates, LLC
Livermore/Pleasanton
Alameda Fire Municipal Service Review
Public Review Draft
15-1: According to the 2020 Census, the City of Livermore has a population of 87,955,
while the California Department of Finance (DOF) reports a slightly higher number
of 87,694. The City's population has been steadily growing from 2010-2020
increasing roughly 8 percent. Between 2019-2023 the City's population decreased by
5 percent.
15-2: ABAG projections show that the City of Livermore's total population is anticipated
to increase from 2020 through 2030 to 99,115 with a 6 percent Average Annual
Growth Rate (AAGR). Similarly, between 2030 and 2040, it is projected to continue
to rise with a 7 percent AAGR to a population of 113,730. The City of Livermore
should monitor population projections and development plans to ensure they align
with city planning efforts to accommodate growth and the corresponding increase in
service demand adequately.
15-3: According to the 2020 Census, the City of Pleasanton has a total population of
79,526, while the California Department of Finance reports a slightly higher number
of 79,741. The City's population has been steadily growing from 2010-2020
increasing roughly 13 percent.
15-4: ABAG projections show that the City of Pleasanton's total population is anticipated
to decrease slightly from 2020 through 2030 to 78,370 with a -1 percent AAGR.
While between 2030 and 2040, population is projected to rise to 87,875 with a 6
percent AAGR. The City of Pleasanton should monitor population projections and
development plans to ensure they align with city planning efforts to accommodate
growth and the corresponding increase in service The Location and Characteristics
of Disadvantaged Unincorporated Communities Within or Contiguous to the
Agency's SOI
15-5: The City of Livermore does not have any DUCs within or contiguous to its SOI.
15-6: The City of Pleasanton does not have any DUCs within or contiguous to its SOI.
15-7: The Cities of Livermore and Pleasanton have their fire and emergency response
facility needs adequately met by LPFD, with five staffed fire stations in each city.
There should, however, be continued reevaluation of the service area and response
times to ensure adequate services are provided.
15-8: LPFD's strategic plan lists several station improvements scheduled for FY 25,
including renovating or replacing Fire Station 2 and purchasing new generators for
Fire Stations 5 and 6. The strategic plan also includes several equipment purchase
Ch. 15: Cities of 357
Policy Consulting Associates, LLC
Livermore/Pleasanton
Alameda Fire Municipal Service Review
Public Review Draft
plans. According to the City of Livermore FY 23-28 Capital Improvement Plan,
generator replacement at Fire Station 6 is at the preliminary study stage. The CIP
also includes plans to renovate or replace Station 6. Similarly, the City of
Pleasanton's Capital Improvement Program FY 24 – FY 27 includes funded capital
projects, including designing/constructing new Station 3, designing EOC at the fire
training facility, and designing Station 2 Improvements.
15-9: LPFD has the financial ability to continue to provide services. The LPFD relies on
contributions from its two JPA member cities and maintains adequate levels of
reserves. Its two member cities demonstrated continued revenue growth, although the
growth is less than expenditure growth, especially during COVID-19. The LPFD
continually evaluates measures to improve its financial position.
15-10: LPFD has not reported any shared facilities.
15-11: LPFD has not reported any facility-sharing opportunities. However, according to the
City of Livermore's FY 25 budget, LPFD has a goal of expanding partnerships for
regional training with other fire departments and community colleges to improve
efficiency and minimize and/or reduce fiscal impacts.
15-12: It is recommended that the Department join fellow Alameda fire providers to
develop a regional, countywide dispatch strategy that employs the closest resource
for the fastest response time, regardless of agency boundaries or responsibility.
15-13: The City of Livermore abides by all legislative obligations for accountability and
governance practices.
15-14: The City of Livermore demonstrated transparency when sharing information to
create this report.
15-15: The City of Pleasanton abides by all legislative obligations for accountability and
governance practices.
15-16: The City of Pleasanton demonstrated transparency when sharing information to
create this report.
15-17: No governance structure alternatives specific to LPFD were identified over the
course of this review; however, it is recommended that the Department continue to
seek ways to collaborate and enhance service levels on a regional level with other
providers.
Ch. 15: Cities of 358
Policy Consulting Associates, LLC
Livermore/Pleasanton
Alameda Fire Municipal Service Review
Public Review Draft
The City of Newark is one of five cities that contracts with the Alameda County Fire
Department (ACFD) for fire suppression and emergency medical services.
The City of Newark was incorporated in 1955. Located in the San Francisco Bay area,
approximately 15 miles north of San Jose, it encompasses roughly 14 square miles.
The City of Newark is considered part of the Tri-Cities area along with Union City and
Fremont. It is situated at the junction of two sub-regions of the Bay area: the East Bay, that
includes Alameda and Contra Costa counties, and the South Bay which includes Silicon
Valley. Over the years, the City of Newark's economic foundation evolved from agricultural to
manufacturing to technology.
The City is known to have a small community feel with the conveniences and advantages of
being part of a larger metropolitan region that provides access to job centers, the largest retail
shopping mall in the Bay area, and incredible park and recreational opportunities.405
The contract between ACFD and the City of Newark for fire and emergency services began in
2010 and allowed for significant budget savings in terms of personnel costs.406 The Department
works out of three stations throughout the City and allows for access to specialized response
teams.407
The City of Newark was last included in an MSR Update by Alameda LAFCO that was
adopted in 2018. There was also a Countywide MSR update for water, wastewater, flood
control and stormwater services completed in 2021. The focus of this MSR is limited to the fire
and emergency medical services provided by the City.
Consisting of 14 square miles, the City of Newark is surrounded by the City of Fremont with
boundaries formed by Interstate 880 in the northeast and by State Route 84 in the northwest.
405 City of Newark, General Plan adopted 12/12/13, p. PF-1.
406 City of Newark, Biennial Budget and Capital Improvement Plan FY20-22-, p. 46.
407 City of Newark, https://www.newark.org/departments/fire, accessed 6/13/22.
Ch. 16: City of Newark 359
Policy Consulting Associates, LLC
Alameda Fire Municipal Service Review
Public Review Draft
The Don Edwards San Francisco Bay National Wildlife Refuge adjoins the City on the
southwest side. Figure 16-1 depicts the City's boundaries and sphere of influence.
Ch. 16: City of Newark 360
Policy Consulting Associates, LLC
Alameda Fire Municipal Service Review
Public Review Draft
Figure 16-1: City of Newark Boundaries and SOI
City of Newark
Range 03 West Range 02 West Range 01 West
16 15 14 13
htuoS 40 pihsnwoT
UV 84
Fremont
0 Ardenwood Blvd
Jarvis A
2
ve
Thornto
N
n
3 e 5 w
A
a
v
rk
e
B
A
lvd
D
A
C
e
C
c
F
o
1
t
F
F
o
3
S
R
F 6
d
S
28
2
C
9
her
2
6 r
5
y St
30
F
UV 3
r
1
e
8
m
4
on
B
t B
la
l
c
v
A
o
d
w
C
R
F
d
FS27 5
32 29
20 0
S
M
te4
o
ve
w
n
2 r
s
8y
o
A
n
v
B
e
lv
2
d
1
33 Pas
UV
e
8
o
G
4
r
P
im
a
m
d
er
r 3
B
e 4 lvd Pky
UV
3
23
27
2 8 2
26 Missi
W
on
2 a
3 B 5
s
l
2
h
v
3
d
ington Blv 1 d
3 2 6
2
5
4
Newark
11 §¨¦
0
0 12 7 8 Boyce
Rd
880 9 10 Auto Mal1l1 Pky Durham R12d
htuoS
50
pihsnwoT
0
16 15
Frem
ont Blvd
0
§¨¦
680
UV
0Bay Rd
University
Ave 262
Alameda County Legend O Alameda County City of Newark
S L o o ur c ce a : A l la A m g ed e a n
g i D n
L
e i
A
t
c
s e n
F
c
y
n e
C
l d a r
o
a e
F
im l d
o
d e t i r s o
r
: p
m
b T la e h
a
y e u
t
p s i
i
n u e
o
f
M
r d o p
n a
r o f m
p
o s
C
r
C
a e r t
r
s
o
i e
e
o
a
o f n
m
e
t
n
e
r s l e
d
y
m
h n
1
o a c
/7
n w
i
e
s /
d
2
n a
s 0
i n i s
2
s
i
d
3 on kj A A
F
A
C
C
i
d l l o
r i
a a
t e
j m m m a
y S
c m e e e
o t
d d
a
u n
f
a a
t
n t
i N o
i C C C t
n
i o
e
i o e t
s
u y s u
w (
n n B
A a
t t y o y
C r
u
k F
B B n
D
o o d u u
C
a n n r
o
d i d e
n
a a s
t
r r
r
y i
a
e
c
s
t)
C S o a u n n t F y ranci
S
sco
a
P
C
kj
n
i kj ekj
o
A dE
u
B
M
l m b kj me
n
a
a
o re n
t
A k kjn
t
r
y
ye
e
l ty aO l kjve
o
ma iyl ke le ldaand kjSan
kj
L
H
e
a kj
a
y F
n
w r
d
e a m
r
r
o
d o kj n U kjt n N io e n w C a
P
r it k
l
y
C ea o sa nC kj n to t r
A
oD kj au nu
l a
n b C
m
l t i oy n
e
s
d
ta
a C
kj
o
L
u
iv
n
er
t
m
y
ore San Joaquin County
not to be used as an official map. 0 0.5 1 2Miles Santa Clara County
The City of Newark does not provide services outside of its boundaries. It does, however,
contract with ACFD who is responsible for the execution of fire suppression and emergency
medical services within the City limits as well as throughout the District and the four other
contract cities.
There have not been any areas identified as unserved by either the City of Newark or ACFD.
ACFD indicates it is able to provide services throughout the bounds of the City of Newark
with its access to three fire stations located within the City.
The City of Newark's city limits and SOI are coterminous. The current SOI for the City of
Newark was last reaffirmed January 12, 2018.408
408 Alameda LAFCO, Resolution No. 2018-10, 1/12/18.
Ch. 16: City of Newark 361
Policy Consulting Associates, LLC
Alameda Fire Municipal Service Review
Public Review Draft
Accountability of a governing body is signified by a combination of several indicators. The
indicators chosen here focus on 1) agency efforts to engage and educate constituents through
outreach activities, in addition to legally required activities such as agenda posting and public
meetings, 2) a website with required content and other useful information, 3) timely ethics
training for board members and an adopted reimbursement policy, 4) a defined complaint
process designed to handle all issues to resolution, 5) adopted bylaws that provide a framework
and direction for governance and administration, 6) adoption of a conflict-of-interest code as
required by law, 7) proper filing of Form 700 by the governing body members, and 8)
transparency of the agency as indicated by cooperation with the MSR process and information
disclosure at meetings, in documents and on a website.
The City of Newark is a General Law City with a local government served by a City Council
and City Manager. There are five City Council Members in total, four of who are elected to
staggered four-year terms. The Mayor is the fifth Council Member and is elected to a two-year
term. Current Board Member names, positions, and term expiration dates are shown in Figure
16-2.
The governing body meets every second and fourth Thursday of each month at 7pm in the
City Council Chamber at 37101 Newark Boulevard. Agendas are available by contacting the
City Clerk and are also posted online. Board actions and meeting minutes are available online.
Through the City's website, the public has access to live audio/visual webcasts via Youtube
and Zoom and archived audio and/or visual webcasts of regular Board meetings for viewing
online at their convenience. Council meetings are broadcast live on Government Access
Channel 26 as well. The City also discloses finances, plans and other public documents via the
internet.
Figure 16-2: City of Newark Governing Body
governing body
Manner of Selection Elections at large
4 years for council members with a two-term limit,
Length of Term
two-year term for Mayor
Second and fourth Thursday of each month at
7pm
City Council Chamber
Meetings 3701 Newark Blvd.
Newark, CA 94560
Also streamed on the city's Youtube channel,
government access channel 26, and Zoom
Agenda Distribution Posted online
Ch. 16: City of Newark 362
Policy Consulting Associates, LLC
Alameda Fire Municipal Service Review
Public Review Draft
Minutes Distribution Posted online
council members
Term Manner of
Member Name Position Length of Term
Expiration Selection
Mike Hannon Mayor 2024 Elected 2 Years
Maria Collazo Vice Mayor 2024 Elected 4 Years
Mike Bucci Councilmember 2026 Elected 4 Years
Luis Freitas Councilmember 2024 Elected 4 Years
Matthew Jorgens Councilmember 2026 Elected 4 Years
contact
Contact David Benoun, City Manager
Mailing Address 3701 Newark Boulevard, Newark, CA 95460
Phone 510-578-4000
Email/Website david.benoun@newark.org, www.newark.org
In cooperation with ACFD, the City of Newark participates in a variety of community outreach
events related to fire and emergency services such as CPR and fire extinguisher training, and a
community disaster preparedness program. ACFD also organizes community and school
educational programs, which stress the importance of fire prevention and juvenile fire setter
intervention.
As of 2023, all five members of the City of Newark's City Council have filings for Form 700
with the California Fair Political Practices Commission, indicating transparency in with their
economic interests.
There is also a conflict-of-interest code, and bylaws, outlined in the municipal code as lawfully
required.
All complaints concerning the City of Newark or any of its employees are investigated, and a
response is provided to the complainant. Constituents are able to file complaints in a number
of ways, including online and by phone. All complaints are handled by the appropriate
department and overseen by the City Manager as needed.
There is legislation in effect to help ensure public agencies adhere to accountability standards.
California AB 2257 (Government Code §54954.2) is an update to the Brown Act and
Ch. 16: City of Newark 363
Policy Consulting Associates, LLC
Alameda Fire Municipal Service Review
Public Review Draft
indicates requirements for methods by which an agenda for all meetings should be made
available on an agency's website. The City of Newark is in compliance with this requirement.
The City of Newark demonstrated accountability in its disclosure of information and
cooperation with the LAFCO questionnaires and other requests for information.
While public sector management standards vary depending on the size and scope of the
organization, there are minimum standards. Well-managed organizations evaluate employees
annually, track employee and agency productivity, periodically review agency performance,
prepare a budget before the beginning of the fiscal year, conduct periodic financial audits to
safeguard the public trust, maintain relatively current financial records, conduct advanced
planning for future service needs, and plan and budget for capital needs.
The City accounts for its fire and emergency services in a number of its planning and
management documents, particularly in the annual budget and General Plan. However, being
that ACFD's services are contracted, the Department abides by its own planning and
management practices as outlined below.
ACFD's FY 21 budget indicates it has 559 authorized positions. This is an increase of 12, year
over year since FY 19. Of these 559 positions, 511.42 are considered full-time equivalents for
both management and non-management positions. Additionally, the department indicates it has
100 reserve firefighters to help fulfil the variety of services offered.409 The Fire Chief oversees
four branches—Operations, Communications and Special Operations, Administrative Support
Services, Fire Prevention and Community Outreach. Each branch has its own divisions. The
Training division falls under the Operations branch, the EMS, Information Technology, and
Special Operations divisions are part of the Communications and Special Operations branch,
and the divisions for Fleet Management, Financial Services, Facilities, and Human Resources
are part of the Administrative Support Services Branch.
The Fire Chief provides the leadership and management overall. The Deputy Chief for
Operations oversees the training division, three Operation Divisions, and the reserve program.
The Administrative Services Director oversees Administrative Support Services by managing
contracts and services, facilities, financial services, fleet management, and human resources.
The Deputy Chief for Communications and Special Operations manages the Alameda County
Regional Emergency Communications Center (ACRECC), EMS, information technology,
409 Alameda County Fire Department, https://fire.acgov.org/AboutUs/aboutus.page, April 19, 2022.
Ch. 16: City of Newark 364
Policy Consulting Associates, LLC
Alameda Fire Municipal Service Review
Public Review Draft
Alameda County Operations Area & California Incident Command Certification Center
(CICCS), and Special Operations.
ACFD, as a component of the Alameda County government, is required to conduct value-
based budgeting. The goals of this process involve funding agreed-upon service levels,
identification of revenues and expenditures as one-time or continuing, and maintenance of
adequate contingency and reserve funds.
ACFD battalion chiefs evaluate operations of their respective battalions on an on-going basis.
ACFD also conducts annual personnel evaluations. Managers annually review goals and
objectives for the coming year and goal achievements for the previous year. ACFD monitors its
workload through the chief officer performance reviews, which identify staffing and resource
deficiencies.
To ensure fire service efficiency and effectiveness, ACFD has set policy goals and objectives.
ACFD aims to provide emergency response and incident management for fires, rescues,
medical emergencies, hazardous materials incidents, and disasters to all Alameda County
citizens and to ensure that local, State and federal mandated and discretionary service levels
are maintained within the communities served.
ACFD's finances are managed by the County. County financial planning documents include
an annual budget and Comprehensive Annual Financial Report (CAFR). In addition, ACFD
has financial statements audited annually. The District's capital needs are included in the
County's Capital Improvement Plan (CIP). ACFD adopted a Fire and Emergency Services
Strategic Business Plan; the most recent update was for the years 2015-2019. Additionally, the
District participates in the Region II plan for the Office of Emergency Services.410
The City of Newark works closely with ACFD to ensure contract fire services provided meet
the needs of the City. The two agencies negotiated an updated five-year contract in 2020 to
incorporate certain requirements to ensure City oversight of significant cost decisions, consisting
primarily of the expansion of the responsibilities and frequency of the Executive Management
Oversight Committee (EMOC), including an obligation of the Fire Chief to consult with the
EMOC before the Board of Supervisors take any action that would result in costs greater than
$50,000 to the City of Newark. The City indicated that services provided by ACFD have
been excellent.
The City of Newark has adopted a Climate Action Plan as required. The initial framework
was adopted by the Newark City Council on January 28, 2010. The greenhouse emission goals
410 Alameda County Fire Department, Survey Response, July 2021.
Ch. 16: City of Newark 365
Policy Consulting Associates, LLC
Alameda Fire Municipal Service Review
Public Review Draft
within the plan align with the State of California with a communitywide target of a 15 percent
decrease from 2005 levels by 2020. This plan includes reports on emission reduction projects
such as the Recreation Centers Lighting Fixture Replacement, as well as research on potential
future projects such as increasing our alternative fueled vehicle fleet and station. Although the
emission goal deadline has passed, the City has not yet produced an updated Climate Action
Plan with further emission goals.
This section discusses the factors affecting service demand, such as land uses, and historical
and anticipated population growth.
When development plans are processed, ACFD reviews plans and works with planning staff
from the County or affected city to ensure that fire codes are met, and fire access and other
issues are addressed as conditions of approval. The impacts of emergency fire and medical
services are also addressed as part of any environmental review prepared for a development
project. ACFD utilizes a collaborative process with local jurisdictions to forecast fire service
needs so that local needs and trends can be identified, and service trends developed.
There are approximately 9,000 acres of land within the City of Newark designated for a
variety of purposes. The City's General Plan indicates that much of this area has been built
out with residential, commercial and industrial uses accounting for roughly 45 percent of
developed space. Another third of the developed area is represented by salt harvesting, refining
and production facilities.411 The remaining acreage is largely dedicated to open space. Further,
much of the City's vacant land area is earmarked for additional residential development.
Currently, more than 75 percent of residential neighborhoods consist of single-family housing
with a low population density between 4 and 8 units per acre.412. Low-density areas are
considered to have less than 8.7 units per acre.413
The City of Newark has a population that has slowly but steadily increased by 57 percent
since 1970. On April 1, 2020, the recorded US census population in the City of Newark was
411 City of Newark, General Plan, p. LU-10, Adopted 12/12/13.
412 City of Newark, General Plan, p. LU-4, Adopted 12/12/13.
413 City of Newark, General Plan, p. LU-11, Adopted 12/12/13.
Ch. 16: City of Newark 366
Policy Consulting Associates, LLC
Alameda Fire Municipal Service Review
Public Review Draft
47,529.414 This represents roughly 12 percent of the ACFD's territory and is an increase of
4,956 or, just over 10 percent of the City's population since 2010, as shown in Figure 16-3. As
of July of 2021, census demographics show that the City of Newark's population is diverse with
one third of residents identified as being Hispanic or Latino while another third is Asian. There
has been a shift over time in the age of the population as the percentage of residents over 65
is increasing while those under 18 has decreased. Presently, these age ranges account for 12.5
percent and 20.6 percent of the population, respectively. Single-family dwellings are the primary
type of residence and there is a median household income of $127,619, reflecting the City's
high levels of employment and education.415
Figure 16-3: City of Newark Population, 2010-2021
City of Newark Population 2010-2022
50,000
45,000
40,000
35,000
30,000
4/1/10 1/1/11 1/1/12 1/1/13 1/1/14 1/1/15 1/1/16 1/1/17 1/1/18 1/1/19 1/1/20 1/1/21 1/1/22
Based on Association of Bay Area Governments (ABAG) growth projections, the total
population of the City of Newark is expected to increase by approximately two percent
between 2020 and 2030. In contrast, the entire area within ACFD is anticipated to grow by
an average annual growth rate of 0.8 percent by 2035.416
414 California Department of Finance, https://dof.ca.gov/wp-content/uploads/Reports/Demographic_Reports/documents/2020-
1850_STCO_IncCities.xlsx, accessed 6/13/22.
415 United States Census Bureau, https://www.census.gov/quickfacts/newarkcitycalifornia, accessed 6/13/22.
416 Association of Bay Area Governments, http://projections.planbayarea.org/, Projections 2040 by Jurisdiction download,
accessed 6/13/22.
Ch. 16: City of Newark 367
Policy Consulting Associates, LLC
Alameda Fire Municipal Service Review
Public Review Draft
Residential neighborhoods are essentially built out. Identified areas of planned and proposed
development are primarily on the western and southwestern portions of the City between
Willow Street and Enterprise Drive and Mowry and Stevenson Avenues, respectively. There are
vacant sites for development amongst the City's business parks and industrial districts with
infill development available in Old Town Newark and near NewPark Mall. 417 Such
opportunities are part of ongoing projects outlined in the City's specific plans and master plans
(the NewPark Place Specific Plan and Old Town Newark Specific Plan) that detail these long-
range planning projects that include mixed use facilities. Bayside Newark is another ongoing
project, previously known as the Dumbarton Transit Oriented Development Project, that is
geared towards creating a more efficient and connected transit-oriented community near the
Dumbarton Commuter Rail Station. Each of these projects would impact service demand and
access to fire and emergency response, due to the aforementioned growth predicted in these
areas.
Lastly, a new Civic Center has been planned and funded and is being constructed as a
replacement of the aging City Administration building where the Fire Prevention Bureau
operates.
The projects named in Figure 16-4 are currently the most significant developments taking place
within the City of Newark. These projects are almost exclusively residential builds with the AC
Marriott Hotel contributing the largest amount of commercial square footage. These plans
align with the anticipated increase in population and employment in the coming years as well
as the need for infill developments like the AC Marriott Hotel.
417 City of Newark, General Plan, p. PF-8, Adopted 12/12/13.
Ch. 16: City of Newark 368
Policy Consulting Associates, LLC
Alameda Fire Municipal Service Review
Public Review Draft
Figure 16-4: City of Newark Planned or Proposed Development Projects, 2023
city of newark development projects
# of dwelling
project units commercial square feet
AC Marriott Hotel – DR2020-002 75,704
FMC Willow and Grand Park –
370 3,600
RZ2020-001
Robson Homes – P2021-002 118
Waymark Townhomes – DR2022-011 76
total 564 79,304
ACFD stated that collaboration with the City of Newark, as well as the other cities in its
service area, will be vital to be able to meet demand through continued periods of growth. This
will include communicating forecasted needs based on analysis of the City's population
projections, development plans, and employee turnover and attrition, in order to estimate
staffing needs.418
Per the Census Designated Places (CDP), as of 2021, there are no disadvantaged
unincorporated communities (DUCs) that meet the basic, State-mandated criteria within
ACFD's service area, including the City of Newark.
The City of Newark Fire Department has the financial ability to continue to provide services.
Fire department expenditures, largely consisting of contract services from ACFD, have
increased at a slower rate than City revenue growth.
418 Alameda County Fire Department, SoGo Survey Response, July 2021.
Ch. 16: City of Newark 369
Policy Consulting Associates, LLC
Alameda Fire Municipal Service Review
Public Review Draft
City revenues generally have exceeded expenditure growth and federal COVID-19 related
financial assistance has helped to soften the impacts of the pandemic, in addition to continued
property tax growth. The Citywide revenue growth has enabled funding of fire service costs,
and the City has maintained and increased its operating and emergency reserves, although
during COVID-19 it was necessary to limit expenditures.
From FY2017-18 through FY2021-22 the Fire Department's expenditures grew at a 1.0 percent
annual average rate. A reduction in debt service payments and deferral of equipment
expenditures helped to offset contract services from Alameda County Fire Department that
grew at a faster 3.8 percent average rate over that period.
As stated in the City's financial reports, the City's financial condition at the close of fiscal year
2021 was much stronger than anticipated when compared to the beginning of the fiscal year.
Although some revenues were impacted more significantly than others, the overall impact does
not appear as drastic as most cities anticipated. Property tax revenue, representing the general
fund's largest revenue source, was not adversely impacted by the pandemic.419
The City's General Fund Emergency Reserve and Fiscal Uncertainty Reserve are both higher
than the goals specified in the current Fund Balance Policy (15 percent and 10 percent of
expenditures, respectively) as it is anticipated both reserves will be increased when the Fund
Balance Policy is updated during fiscal year 2022.420
Since 2010, the City of Newark has contracted with ACFD to provide numerous fire
suppression, fire prevention, and emergency medical services such as fire inspection, public
education, wildland and hazardous materials response, and paramedic services. There are also
three specialized response teams available to the City through ACFD: the hazardous materials
unit, urban search and rescue unit, and the water rescue team unit. Figure 16-5 details the
419 City of Newark Comprehensive Annual Financial Report (CAFR), for the year ended June 30, 2021.
420 ibid, ACFR FY2021.
Ch. 16: City of Newark 370
Policy Consulting Associates, LLC
Alameda Fire Municipal Service Review
Public Review Draft
services provided by ACFD. If a service is not provided by ACFD, but is offered by another
agency, it is indicated in the figure.
Figure 16-5: City of Newark Fire Services
service agency
fire suppression services
Structural Fire Protection Alameda County Fire Department
Wildland Fire Protection Alameda County Fire Department
Vehicle Fire Protection Alameda County Fire Department
Ladder Truck Capabilities Alameda County Fire Department
Fire Suppression Hand Crew CAL FIRE
Fire Suppression Dozer Alameda County Fire Department
Helicopter Services – Fire Suppression CAL FIRE
Boat With Fire Suppression Capabilities Berkeley Fire Department
emergency medical services
Basic Life Support Provider Alameda County Fire Department
Advanced Life Support – Non-Transport Provider Alameda County Fire Department
Advanced Life Support Transport Provider Alameda County Fire Department
Continuing Education Provider – Medical Alameda County Fire Department
Air Ambulance Transport Helicopter Services Reach Air Medical Services
Helicopter Landing Facilities On Site N/A
Vehicle Extrication Tools/Equipment Alameda County Fire Department
fire prevention
Fire Safety Education – Children Alameda County Fire Department
Fire Safety Education – Adults/Seniors Alameda County Fire Department
Juvenile Firesetter Prevention Program N/A
Fire and Life Safety Business Inspection Program Alameda County Fire Department
Fire Protection Planning Alameda County Fire Department
New Commercial Construction Plan Reviews Alameda County Fire Department
Public Education Provider (CPR, First Aid, etc.) Alameda County Fire Department
Home Fire/Safety Inspections N/A
Fire Origin and Cause Investigations Alameda County Fire Department
Fuel Reduction/Weed Abatement Program Alameda County Fire Department
Smoke Detector Giveaway/Installation Program Alameda County Fire Department
Ch. 16: City of Newark 371
Policy Consulting Associates, LLC
Alameda Fire Municipal Service Review
Public Review Draft
Address Sign Installation Program N/A
rescue services
First Responder Swift Water Rescue Program Alameda County Fire Department
Water Rescue Program Alameda County Fire Department
Ice Rescue Program U.S. Coast Guard
Dive Rescue Program Alameda County Sheriff's Office
Low angle Rope Rescue Program Alameda County Fire Department
Helicopter Short/Long Haul Rescue Capabilities California Highway Patrol
Response to Boating Accidents Alameda County Fire Department
Rescue Dog Services Alameda County Fire Department
hazardous materials
Hazardous Materials Emergency Response –
Basic Alameda County Fire Department
Hazardous Materials Response Team Alameda County Fire Department
support services
Firefighter Incident Support Unit Alameda County Fire Department
Mobile Incident Command/Communications
Unit Alameda County Fire Department
Fill Station for Self-Contained Breathing
Apparatus Alameda County Fire Department
Mobile Breathing Support Unit Alameda County Fire Department
Community Emergency Response Team Alameda County Fire Department
Chaplain Services Alameda County Fire Department
Training Academy Alameda County Fire Department
Emergency Operations Center Capabilities Alameda County Fire Department
miscellaneous
Public Service Assists Alameda County Fire Department
Motor Vehicle Accident Response Alameda County Fire Department
Alameda County Fire Department with local Police
Welfare Checks Departments
Public Safety Answering Point Alameda County Fire Department
Fire/EMS Dispatch Alameda County Fire Department
Fundraising Activities Alameda County Fire Department
Firefighters Association – Non-Profit Alameda County Fire Department
Auxiliary Association Alameda County Fire Department
Ch. 16: City of Newark 372
Policy Consulting Associates, LLC
Alameda Fire Municipal Service Review
Public Review Draft
The City of Newark is one of several agencies that collaborate with ACFD. In addition to
contracting with the cities of Dublin, Emeryville, San Leandro and Union City for fire
suppression and emergency services, ACFD has an automatic aid agreement with the City of
Oakland, the City of Tracy, the San Ramon Valley Fire Protection District, and the Livermore-
Pleasanton Fire Department. ACFD's agreement with Oakland and Berkeley includes a
mutual aid response that covers the Berkeley-Oakland Hills area. A shared automatic aid
agreement exists for providing service to Interstates 580, 880, and 680. There is also a State
Mutual Aid Plan and a countywide mutual aid agreement for all fire departments in Alameda
County.
Additionally, ACFD collaborates with the County to receive a variety of administrative services,
and to work in conjunction with the Alameda County Sheriff's Department, and Alameda
County Emergency Medical Services. An agreement also exists between ACFD and
California's Office of Emergency Services for dispatch needs.421
Regionally, ACFD's collaborations include participating in the governance of the dispatch
center in Livermore through the County Advisory Board. ACFD firefighters who are specially
trained and can be dispatched nationwide to assist with disaster response.
The California Department of Forestry and Fire Protection (CAL FIRE) augments fire services
throughout the State. Generally, CAL FIRE services are focused in wildland areas defined as
State Responsibility Areas (SRA). In ACFD's case, CAL FIRE is utilized for hand crew
services and helicopter services for fire suppression. ACFD also works hand in hand with local
police departments for welfare checks, as well as the California Highway Patrol, the County's
Sheriff's office, and the Coast Guard for assistance with rescue efforts.
For FY 20, ACFD stated there were a total of 42,363 service calls overall. This is a steady 19
percent increase since FY 13. Of those calls, 3,423, were for the City of Newark which
accounts for over eight percent of the total. The call types for the City are broken down in
Figure 16-6.
421 Alameda County Fire Department, SoGo Survey Responses, July 2021.
Ch. 16: City of Newark 373
Policy Consulting Associates, LLC
Alameda Fire Municipal Service Review
Public Review Draft
Figure 16-6: City of Newark Calls for Service (2019-2020)
2019-2020 service calls by type for contract agencies
Structure Other EMS/ Hazard. Service Good False Cancel Total
Fires Fires Rescue Cond. Calls Intent Call Enroute Calls
Newark 43 72 2,330 72 255 132 324 195 3,423
ACFD is responsible for staffing its department to directly provide services to the City of
Newark. It has allocated nine captains, nine firefighters, one deputy fire marshal, and one code
compliance officer to the City. The City, however, is also responsible for a portion of positions
shared by the department at-large. These positions include fire and deputy fire chiefs, division
chiefs, battalion chiefs, and administrative staff. Three-person staffing is considered the
minimum per day: one captain, one engineer, and one firefighter which equates to nine staff
per company. The City is also assigned a minimum of nine paramedics and 18 emergency
medical technicians as necessary.422
Objectives set by ACFD include personnel that are trained and ready for emergency response
100 percent of the time and respond to all calls for service within the service area. The
Department states that newly hired paid firefighters are required to have Firefighter Recruit
Academy training although the monthly training hours for firefighters varies.423 ACFD provides
education that meets State mandated requirements for Emergency Medical Technicians and
Paramedics and enforce State and local fire codes and standards through the review and
approval of building and facility plans. Community service objectives include coordination of
public education, events and disaster operation activities within the communities served.
The following information is specific to ACFD's operations within the City of Newark. For more
details about ACFD's facilities, see chapter four.
The City of Newark is home to three of 29 ACFD fire stations throughout the District. These
stations are shown in Figure 16-6. There is also a fire prevention bureau within the City of
Newark, as there is within each agency that contracts with ACFD. The Newark Fire
Prevention Bureau is located in the City's newly constructed David W. Smith City Hall.
422 City of Newark, General Plan, p. CSF-12, Adopted 12/12/13.
423 Alameda County Fire Department, SoGo Survey Responses, July 2021.
Ch. 16: City of Newark 374
Policy Consulting Associates, LLC
Alameda Fire Municipal Service Review
Public Review Draft
Figure 16-7: City of Newark Fire Facilities
acfd facilities
Facility Address Owner Year Built Condition
39039 Cherry St. Alameda
Station 27 Newark, CA 94560 County 1981
7550 Thornton Ave., Alameda
Station 28 Newark, CA 94560 County 2005
35775 Ruschin Dr., Alameda
Station 29 Newark, CA 94560 County 1962
City Hall, 37101
Newark Fire Newark Blvd.,
Prevention Bureau Newark, CA 94560 City of Newark 2022 Excellent
Station 27 was built in 1981 and houses one crew of three firefighters that staff one fire engine.
Station 28 is Newark's largest at 13,500 square feet. The facility opened in 2005 and also
houses a crew with three firefighters who staff a Quint, which is an apparatus that combines
the features of a ladder truck and fire engine. Station 28 is home to one battalion chief as well.
Station 29 was built in 1962 and is likewise staffed by a crew of three firefighters and one fire
engine.424
Of the City's three fire stations, the 2017 Standards of Cover Risk Assessment indicates that
the engine company at Station 29 is one of the 10 busiest with unit-hour-utilization peaking
between 2pm and 3pm at just over 11 percent.425 Still, this is well within the range of accepted
workload capacity, which is not to exceed 30 percent for a fire engine or ladder company.426
Overall, Department capacity appears sufficient based on its effective response force, capability
to respond to specialized response needs (such as hazardous materials, urban search and
rescue, and water rescue incidents), its automatic and mutual aid contracts with other Fire
Departments, and availability of resources from CAL FIRE for wildland fires.
There are a few ways the City of Newark communicates with residents to transmit important
health and safety information. These methods include broadcasting emergency messages over
radio on channel 1610am and utilizing its social media channels: Twitter, Facebook, and Nixle.
ACFD is responsible for coordinating dispatch communications for the City's service calls. The
regional 9-1-1 dispatching center is known as the Alameda County Regional Emergency
Communications Center (ACRECC) and is housed at the Lawrence Livermore National
Laboratory (LLNL) along with the Alameda County Fire Communication Center (ACFCC).
424 City of Newark, General Plan, p. CSF-11, Adopted 12/12/13.
425 Alameda County Fire Department, Volume 2 of 3 Technical Report Standards of Coverage Review, p. 52, 9/1/17.
426 Alameda County Fire Department, Volume 2 of 3 Technical Report Standards of Coverage Review, p. 51, 9/1/17.
Ch. 16: City of Newark 375
Policy Consulting Associates, LLC
Alameda Fire Municipal Service Review
Public Review Draft
ACRECC currently dispatches fire and medical calls for ACFD, the U.S. Army at Camp
Parks Combat Support Training Center in Dublin, the cities of Alameda, Fremont, Livermore
and Pleasanton, and the County EMS transport provider Paramedics Plus ambulance service.
The Consortium, now known as the Advisory Board, is managed by a governing board made
up of participating agencies. Each agency pays an annual amount with costs apportioned
based on call volume as outlined in each contract for service.
Given that 9-1-1 calls may relate to a policing, fire or medical emergency, the calls are first
routed by the telephone provider to the public safety answering point (PSAP) dispatcher. The
first-response dispatcher immediately determines the type or need of the call and routes all fire
and medical 9-1-1 calls to the ACRECC. The ACRECC simultaneously dispatches ACFD and
the County EMS transport provider for ambulance transport services.
As previously mentioned, ACFD contracts with four agencies in addition to the City of Newark
for fire and emergency response services. To do this, it shares personnel, dispatching services,
and facilities resources as necessary, not specifically in relation to the City of Newark.
Consolidating facilities and shifting personnel is not uncommon, for instance, Station 8
firefighters having been relocated to Station 20, which is the Lawrence Livermore National
Laboratory site. Another example is that Station 15 currently houses ACFD Reserve
Firefighters, apparatus and equipment even though it was previously the Office of Emergency
Services and Dougherty Regional Fire Authority Station 3.427
An ACFD goal is to pursue regional cooperation and consolidation of services. ACFD views
dispatch, administration, and the operations division as areas that would benefit from greater
regional collaboration.
ACFD reports that collaboration with regional transport companies, in conjunction with other
fire agencies and municipalities, to establish a fire-based ambulance transport model would
particularly improve efficiencies in service delivery, especially EMS delivery.428
The City of Newark has outlined several capital improvements in its FY 22 budget that affect
its fire facilities. Stations 27 and 29 are in particular need of various repairs. For Station 27,
these improvements include new fencing, painting, and replacement of the roof which leaks, at
427 Alameda County Fire Department, https://fire.acgov.org/AboutUs/facilities.page?, page accessed 3/9/22.
428 Alameda County Fire Department, SoGo Survey Responses, July 2021.
Ch. 16: City of Newark 376
Policy Consulting Associates, LLC
Alameda Fire Municipal Service Review
Public Review Draft
present. The installation of energy efficient windows has also been proposed for this site. A new
training tower is needed at Station 27 as well since the current tower does not allow for live fire
training. Similarly, Station 29 is listed as needing new paint in addition to fencing that would
prevent pedestrians from passing through the open property between Newark Boulevard and
Ruschin Drive, which interferes with emergency vehicles accessing the station. A fence with a
sliding gate that includes an emergency battery backup would prevent this.429
There are capital improvement projects specific to ACFD in the County's Annual Capital
Improvement Plan (CIP). For more information, refer to chapter 4.
The City of Newark has been clear that the Covid-19 pandemic has created uncertainty in its
various endeavors. Due to the unprecedented impact on businesses, unemployment, and
revenues, it has resulted in a loss of income streams and necessitated a shift in fiscal
priorities.430 The Coronavirus has had a similar effect on development projects since certain
activities have been limited for the sake of health and safety.431 Staffing and maintenance levels
have in turn been affected and various development projects have had to be re-prioritized.432
Altogether, these delayed projects have the potential to impact fire and emergency service
levels and facilities.
Another challenge facing the City of Newark is how future development along the western
edge of the City will impact service levels. Currently, the western edge is not within the
standard 8:00 minutes that's been identified to reach all units and this is compounded by
traffic congestion. As this area continues to be built out, it will be even more necessary to
ensure access to services in this region. This would require three engines to be moved further
west to address the issue.433
This section reviews indicators of service adequacy, including response times, complaints, and
staffing levels. There are many measures of a successful fire protection service. For example,
the agency would meet guidelines established by the National Fire Protection Association
(NFPA), the Center for Public Safety Excellence (CPSE) (formerly the Commission on Fire
Accreditation International) and the California EMS Agency. There are also Public Protection
429 City of Newark, Biennial Budget and Capital Improvement Plan FY20-22, p. 199-201.
430 City of Newark, Biennial Budget and Capital Improvement Plan FY20-22, p. 5.
431 City of Newark, Biennial Budget and Capital Improvement Plan FY20-22, p. 32.
432 City of Newark, Biennial Budget and Capital Improvement Plan FY20-22, p. 156.
433 Alameda County Fire Department, Volume 2 of 3 Technical Report Standards of Coverage Review, p. 31, 9/1/17.
Ch. 16: City of Newark 377
Policy Consulting Associates, LLC
Alameda Fire Municipal Service Review
Public Review Draft
Classifications (PPC) and Insurance Services Office (ISO) ratings that likewise establish an
agency's level of service.
ACFD has not provided information as to whether any complaints regarding fire service for the
City were received in FY 21.
Each of ACFD's contract cities abides by individualized performance measures according to its
agreement. See Figure 16-8 for agreed upon response times between ACFD and Newark.
Figure 16-8: Response Time Policies by Contract City
response times for acfd and contract cities
Agency Name Single Unit Incident Multiple Unit Incident
Arrival of first due company within 6
minutes from when they are first
Arrive within 6 minutes from the dispatched for 90 percent of incidents.
time the Company is first Remaining units should arrive on the
City of Newark
dispatched for 90 percent of all scene of an incident within 20 minutes
incidents. from when the first due company begins
responding for 90 percent of all
incidents.
Based on the City's six-minute standard for arrival after dispatch, all of the City of Newark
stations exceeded the limit by over one minute, as of 2017.434 However, ACFD has its own
response time measures that it reports to the County, the fire commission, and the contract
cities. There are four specific response times based on status of a call and the guidelines were
based on NFPA 1710 standards for fire departments and ACFD does meet its performance
goal of having the first unit on scene within 7:30 minutes of the fire dispatch call pick up 90
percent of the time.
The most recent risk assessment for ACFD was released in 2017. At that time, the number of
incidents per year for Station 27 more than doubled between 2014 and 2016 with 8 incidents in
2014, 16 in 2015, and 17 in 2016. Station 29 also saw an increase from 14 calls in both 2014
and 2015 to 29 calls in 2016. Station 28, however, saw a decrease over time, with 13 calls in
2014, 15 in 2015, and 10 in 2016. In total, this equates to 56 incidents in 2016 with a daily
incident demand of 0.15.435 Furthermore, none of the stations within the City of Newark are
currently approaching the 20 percent indicator for unit-hour utilization.436
For more specific information related to ACFD's service adequacy, please refer to Chapter 4.
434 Alameda County Fire Department, Volume 2 of 3 Technical Report Standards of Coverage Review, p. 49, 9/1/17.
435 Alameda County Fire Department, Volume 2 of 3 Technical Report Standards of Coverage Review, p. 43, 9/1/17.
436 Alameda County Fire Department, Volume 2 of 3 Technical Report Standards of Coverage Review, p. 52, 9/1/17
Ch. 16: City of Newark 378
Policy Consulting Associates, LLC
Alameda Fire Municipal Service Review
Public Review Draft
16-1: Continued growth is expected throughout the City of Newark and is likely to effect
service adequacy.
16-2: Growth is primarily anticipated in the western and southwestern portions of the City.
16-3: There are currently no DUCs identified within the City of Newark and no SOI
amendments are recommended at this time.
16-4: ACFD is currently able to provide adequate services and service response times to
the City of Newark. These measures will need to be continually reevaluated based
on population projections and anticipated development to ensure facility and
infrastructure needs are met.
16-5: There are infrastructure needs primarily focused on stations 27 and 29 that largely
concern cosmetic repairs. However, the construction of a training tower is needed to
allow for live fire training.
16-6: The City of Newark Fire Department has the financial ability to continue to provide
services. City revenues generally have exceeded expenditure growth and federal
COVID-19 related financial assistance has helped to soften the impacts of the
pandemic, in addition to continued property tax growth. The City has maintained
and increased its operating and emergency reserves, although during COVID-19 it
was necessary to limit expenditures.
16-7: Because the City of Newark contracts with ACFD, there are no identified
opportunities for shared facilities specifically relating to the City.
16-8: ACFD has outlined and should fulfill its effort to establish a fire-based ambulance
transport model. This would improve the efficiency of service and create an
alternative revenue stream for the Department.
Ch. 16: City of Newark 379
Policy Consulting Associates, LLC
Alameda Fire Municipal Service Review
Public Review Draft
16-9: It is recommended that the Department join fellow Alameda fire providers to develop
a regional, countywide dispatch strategy that employs the closest resource for the
fastest response time, regardless of agency boundaries or responsibility.
16-10: The City of Newark abides by all legislative obligations for accountability and
governance practices.
16-11: The Department demonstrated transparency when sharing information for the
creation of this report.
16-12: No governance structure alternatives specific to the City of Newark were identified
over the course of this review, however, ACFD, in contract with the City, has a goal
to pursue regional cooperation and consolidation of services. ACFD views dispatch,
administration, and the operations division as areas that would benefit from greater
regional collaboration.
Ch. 16: City of Newark 380
Policy Consulting Associates, LLC
Alameda Fire Municipal Service Review
Public Review Draft
Originally inhabited by the native Ohlones, by 1820 the King of Spain granted the Peralta
family roughly 44,800 acres of what is now the Cities of Oakland, Piedmont, Berkeley,
Emeryville, Alameda, Albany, and a portion of San Leandro. This land was used for
agricultural purposes, however, by the mid-1800s, the Gold Rush ushered in more settlers and
rapid development which led to the incorporation of the City of Oakland in 1852.
Today, the City boasts 19 miles of coastline and hillsides and is the administrative center for
Alameda County, the regional seat for the federal government, and the center of commerce
and international trade in the Bay Area. Located east of the San Francisco Bay, the City of
Oakland is the eight largest city in California and is rich with resources and diversity,
supporting a population of roughly 424,464, according to California Department of Finance
2020 data.
This is a charter city served by a City Council and City Administrator. The City of Oakland
provides a variety of services including parks and recreational services and public
transportation. Although the City is a multi-service provider, this review is specific to fire
protection, emergency medical, and other related services.
The City of Oakland was last included in an MSR Update by Alameda LAFCO that was
adopted in 2018. There was also a Countywide MSR update for water, wastewater, flood
control and stormwater services completed in 2021. The focus of this MSR is limited to the fire
and emergency medical services provided by the City.
The City of Oakland is comprised of 53.8 square miles of land area and 3.5 square miles of
lake area. Located east of San Francisco, it is bordered by many Alameda County cities. The
Cities of Berkeley and Emeryville are to the north of the City of Oakland which is adjacent to
the San Francisco Bay and the City of Alameda to its south and west. The City of San
Leandro is both to the south and east of the City while the Castro Valley and Contra Costa
County is also to the east. The City of Piedmont is completely surrounded by the City of
Ch. 17: City of Oakland 381
Policy Consulting Associates, LLC
Alameda Fire Municipal Service Review
Public Review Draft
Oakland. Figure 17-1 depicts the City's boundaries and service area for fire suppression and
emergency response.
Figure 17-1: City of Oakland Boundaries and SOI
City of Oakland
Range 05 West Range 04 West Range 03 West Range 02 West Range 01 West
h h h t t t u u u o o o S S S 1 2 3 0 0 0 p p p i i i h h h s s s n n n w w w o o o T T T 23 0 £¤ 1 1 1 4 1 01 0 0 1 §¨¦ 3 28 12 0 UV UV 1 1 C 8 7 3 M UV 5 o H 8 P F §¨¦ il a 2 2 u G l u a s 8 0 c l i r e d t 0 n 0 M 0 i o a e i f F i i s n n r B t c e s y i l y l o S v A l n tS ortsaC B d S 0 t S v t l §¨¦ 3 v 1 t e 2 3 0 6 d 0 8 t t t h 0 h h £¤ 0 B 1 S B S S 0 0 a t 0 t r t £¤ 1 y o 1 B a a 0 0 S M y d s 1 a h t o 0 w r re k Blv a d e 0 t y S S t t S 0 a 0 n C 0 F o r 0 u a 00 S n n §¨¦ a t c C y 8 n i 0 o s c B u M o n e a t r t y k e e o le Ma 0 y ri E ti §¨¦ 0 m 8 m e O 0 S Main St K t e O L A A San F P K r ab s lo A S v y e L l h O 0 a 0 F b v K 1 S y m L 1 i 0 O F A l 2 l S e K v 1 e O 0 O e 4 L d P 3 t K F K h a Shattuck Ave L S a c L S S F pr i uc 0 T e F S e t f le t gr i a S 4 ph S c A P ve O I 1 s 0 0 A l a a 5 K n O 5 r v C d 0 k P 0 O L e D K l r a F B K L r i 1 S H e l F 3 L e v a m t O 0 S F r d h bo 8 d o r K B 1 S A ay P O k 9 L 1 v y n m D e E F 0 UV o K t o B S A l 2 L it §¨¦ O o t Y 4 1 v F l 5 e e K 8 F D S 8 F n r 0 O S o S L 0 1 0 n F o t 0 K 6 5 a 8 t 3 S S O 1 UV L k h 5 e 0 0 2 k F i K t 1 l 9 R h y 7 l S 3 8 L d l B O A i §¨¦ O O 2 t F n h 8 l 9 e v 4 9 K v S K S K 8 O e B d A L 2 L l 0 L v a v F d F 2 1 F O a 6 e S S S n K 3 2 k 2 1 2 B 1 L a 0 2 1 4 0 7 n F l 3 5 M L 2 c M r O 4 7 a o o S f a S r t a e K A 2 2 r 1 g n k 2 v 3 1 i 5 e L a 3 n y a 1 0 F d P l 2 a W 0 4 i 3 6 i n n S 5 n a B e O e 2 y l d 0 h 2 v B 3 K u 3 l d v 0 2 6 L d r r 5 s F 2 O t o 4 R S K d 1 2 UV 1 L 2 6 2 3 F 5 2 6 O 4 S 3 0 0 K 2 L 3 6 0 1 0 UV 7 1 1 L a H 2 8 k F es 3 e 0 p S e 8 r C S ia 2 n a h B 1 8 lv i a 7 d R n 8 b 5 e 3 t o d 2 M t w T R 2 2 o a 0 d e 9 0 o ry n d s R R d n 1 d 9 6 y 4 3 3 P 2 le 2 as 3 3 a s n 8 t 1 Hill Rd o 1 n 6 9 4 1 9 R 5 1 d 0 3 3 2 4 2 1 7 0 1 2 5 0 3 0 1 Ma 1 2 i 3 n 2 S 2 5 2 t 1 6 1 1 3 4 4 1 Crow 2 Ca 5 n D y 1 o 1 a n 2 n 1 R 3 d v 2 1 3 1 i 2 2 l 6 l 3 e 4 5 B 1 lv 3 d 0 12 19 3 §¨¦ 0 7 0 1 0 5 6 3 3 8 3 1 1 1 8 N 0 6 9 0 o 2 2 r S 0 1 9 7 1 r 1 7 8 8 i 3 7 3 t 2 s P o 2 2 2 9 8 0 a 5 n 5 C 5 1 lo e 7 a m 8 n V 2 1 a 2 y §¨¦ 8 6 r a 2 1 0 4 9 o 6 e 2 9 1 6 l 4 3 2 s 1 8 l n 3 8 e 1 G R 0 6 y R a d 2 te R d 1 9 R d 3 2 3 2 3 d 2 2 4 7 1 8 3 7 1 2 2 0 5 0 1 C 3 2 2 4 7 1 2 1 o 3 5 2 0 11 2 n 2 C 3 1 6 2 A 3 2 4 4 B 7 0 2 2 m t 0 3 A o l r a l 3 a 2 c c 5 D a 1 d 1 6 u o 1 2 k 4 2 1 s o S u 1 t h 2 a 2 2 r n 3 2 B t 3 6 5 C 3 a 4 l b o 5 v V 2 d w l t n a i k o n y e l 1 3 l 2 R r 6 2 e s B 1 5 1 i 4 d 3 d 2 y P 3 1 l 2 he ytr guoD R t 2 v 6 d g 5 B 4 a d l e l e 3 v D 1 d 6 a 3 r 0 1 0 1 9 7 8 D s C 6 3 3 S 1 1 a 0 u a 9 n u o m l B n lv b d i 5 n 2 2 t 9 1 o l 0 3 o 7 8 i 2 5 3 T 2 n 2 9 a n 4 ss 0 a 3 2 3 3 2 2 j 8 2 3 a 1 8 1 r 1 9 1 3 6 4 a 9 6 3 3 2 2 1 1 3 2 4 7 2 5 3 0 4 7
31 32 33 34 35 36
Alameda County Legend O Alameda County City of Oakland
S L o o ur c ce a : A l la A m g ed e a n
g i D n
L
e i
A
t
c
s e n
F
c
y
n e
C
l d a r
o
a e
F
im l d
o
d e t i r s o
r
: p
m
b T la e h
a
y e u
t
p s i
i
n u e
o
f
M
r d o p
n a
r o f m
p
o s
C
r
C
a e r t
r
s
o
i e
e
o
a
o f n
m
e
t
n
e
r s l e
d
y
m
h n
1
o a c
/7
n w
i
e
s /
d
2
n a
s 0
i n i s
2
s
i
d
3 on kj A A
F
A
C
C
i
d l l o
r i
a a
t e
j m m m a
y S
c m e e e
o t
d d
a
u n
f
a a
t
n t
i O o
i C C C t
n
i o i o
a
e t
s
u y s u
k
n n B
l
t
l
t y
a
o y u
n
B B n
d
o o d u u a n n r d i d e a a s r r y ies C S o a u n n t F y ranci
S
sco
a
P
C
kj
n
i kj ekj
o
A dE
u
B
M
l m b kj me
n
a
a
o re n
t
A k kjn
t
r
y
ye
e
l ty a O l kjve
o
m a iyl k e le l d a a nd kjSan
kj
L
H
e
a kj
a
y F
n
w r
d
e a m
r
r
o C
d o kj n
o
U kjt
n
n
C
N i
t
o
o
e
r
n w
au
C a
n P C
r it k
t l
y
e oy a s s t a kj a nt
A
o D kjn u
la
b
m
lin
eda C
kj
o
L
u
iv
n
er
t
m
y
ore San Joaquin County
not to be used as an official map. 0 1 2 4Miles Santa Clara County
The City of Oakland does provide services outside of its boundaries through a series of mutual
and automatic aid agreements for fire protection and emergency service response.
There are no unserved areas identified in the City of Oakland. The City is able to provide
service throughout its bounds.
Ch. 17: City of Oakland 382
Policy Consulting Associates, LLC
Alameda Fire Municipal Service Review
Public Review Draft
The City of Oakland has a contiguous Sphere of Influence that extends to the San Francisco
Bay and includes portions of the City of San Leandro. The most recent SOI update was
adopted on January 11, 2018.
Accountability of a governing body is signified by a combination of several indicators. The
indicators chosen here focus on 1) agency efforts to engage and educate constituents through
outreach activities, in addition to legally required activities such as agenda posting and public
meetings, 2) a website with required content and other useful information, 3) timely ethics
training for board/councils members and an adopted reimbursement policy, 4) a defined
complaint process designed to handle all issues to resolution, 5) adopted bylaws that provide a
framework and direction for governance and administration, 6) adoption of a conflict-of-interest
code as required by law, 7) proper filing of Form 700 by the governing body members, and 8)
transparency of the agency as indicated by cooperation with the MSR process and information
disclosure at meetings, in documents and on a website.
The City of Oakland has a government structure with a City Administrator, an elected mayor
and eight council members (one for each of the City's seven districts and one at-large
member). Council members are elected every two years and serve staggered four-year terms
on the City Council. Current council member names, positions, and term expiration dates are
shown in Figure 17-2.
The City Council meets every first, third, and fifth Tuesday of the month at 4:00pm in the
City Hall Council Chambers. Agendas for each weekly meeting, board actions and meeting
minutes are available at the City Clerk's office and online. Through the City's website, the
public has access to the meetings via livestream or archived videos for viewing online at their
convenience. Meetings are also available for viewing on KTOP channel 10 on Comcast/Xfinity
or ATT channel 99.
Figure 17-2: City of Oakland Governing Body
governing body
Manner of Selection Elections at large.
Length of Term 4 years
Ch. 17: City of Oakland 383
Policy Consulting Associates, LLC
Alameda Fire Municipal Service Review
Public Review Draft
1st, 3rd, and 5th Tuesday of each month at 4pm
Oakland City Hall
Council Chambers, 3rd floor
Meetings
1 Frank H. Ogawa Plaza
Oakland, CA 94612
Agenda Distribution Posted online
Minutes Distribution Posted online
council members
Member Term Manner of Length of
Name District Position Expiration Selection Term
Sheng Thao Mayor 2026 Elected 4 Years
Rebecca
Kaplan At-Large Member 2024 Elected 4 Years
Dan Kalb 1 Councilmember 2024 Elected 4 Years
Nikki
Fortunato Bas 2 Councilmember 2026 Elected 4 Years
Carroll Fife 3 Councilmember 2024 Elected 4 Years
Janani
Ramachandran 4 Councilmember 2026 Elected 4 Years
Noel Gallo 5 Councilmember 2024 Elected 4 Years
Kevin Jenkins 6 Councilmember 2026 Elected 4 Years
Treva Reid 7 Councilmember 2026 Elected 4 Years
Contact
Jestin Johnson,
Contact
cityadministratorsoffice@oaklandca.gov
Mailing Address 1 Frank H. Ogawa Plaza, Oakland, CA 94612
Phone 510-238-3301
cityadministratorsoffice@oaklandca.gov,
Email/Website
www.oaklandca.gov
The City of Oakland participates in community outreach events such as annual city festivals,
holiday activities, job fairs, and community educational programs. The City's fire department
also takes part in specific fire prevention and emergency safety programs available to City of
Oakland residents as well.
All five members of the City of Oakland's City Council have current filings for Form 700 with
the California Fair Political Practices Commission, indicating transparency in their economic
interests.
Ch. 17: City of Oakland 384
Policy Consulting Associates, LLC
Alameda Fire Municipal Service Review
Public Review Draft
There is also a conflict-of-interest code, and bylaws, outlined in the municipal code as lawfully
required.
All complaints concerning the City of Oakland or any of its employees are investigated, and a
response is provided to the complainant. Constituents are able to file complaints in a number
of ways, including online, through Oak311, and by phone. All complaints are handled by the
appropriate department and overseen by the City Administrator as needed.
There is legislation in effect to help ensure public agencies adhere to accountability standards.
California AB 2257 (Government Code §54954.2) is an update to the Brown Act and
indicates requirements for methods by which an agenda for all meetings should be made
available on an agency's website, such as linking directly to City Council agendas without the
use of secondary links or drop-down menus. The City of Oakland complies with these
regulations.
The City of Oakland demonstrated accountability in its disclosure of information and
cooperation with the LAFCO questionnaires and other requests for information.
While public sector management standards vary depending on the size and scope of the
organization, there are minimum standards. Well-managed organizations evaluate employees
annually, track employee and agency productivity, periodically review agency performance,
prepare a budget before the beginning of the fiscal year, conduct periodic financial audits to
safeguard the public trust, maintain relatively current financial records, conduct advanced
planning for future service needs, and plan and budget for capital needs.
The City accounts for its fire and emergency services in a number of its planning and
management documents, particularly in the Hazard Mitigation Plan, General Plan, and Hazard
Mitigation Plan.
The Fire Chief oversees the following six divisions, providing leadership and management
overall: Fiscal and Administration Services, Field Operations Bureau, Medical Services,
Emergency Management Services, Fire Prevention Bureau, Support Services Bureau.
The City develops a biennial budget, overseen by the City Administrator's office and the
Finance Department, with input from each department, including the fire department. The
budget process is intended to reflect departmental goals as well as existing and proposed
service levels and follows general accounting best practices. The City's budget must be
adopted by the City Council.
Ch. 17: City of Oakland 385
Policy Consulting Associates, LLC
Alameda Fire Municipal Service Review
Public Review Draft
The Fiscal and Administration Division, under the Fire Chief's lead, is responsible for personnel.
It is the ultimately the Fire Chief's duty to foster employee development and provide direction
for the department and evaluating its effectiveness. Specific personnel evaluations are
conducted by battalion chiefs to evaluate operations of their respective battalions on an on-
going basis. The department also conducts annual personnel evaluations. Managers annually
review goals and objectives for the coming year and goal achievements for the previous year.
The department monitors its workload through the chief officer performance reviews, which
identify staffing and resource deficiencies.
To ensure fire service efficiency and effectiveness, the City of Oakland Fire Department (OFD)
has set policy goals and objectives. OFD aims to provide emergency response and incident
management for fires, rescues, medical emergencies, hazardous materials incidents, and
disasters throughout the City. The primary mission of the Department is to provide the highest
quality and level of courteous and responsive services to citizens of the City of Oakland.
OFD's finances are overseen by the City's finance department with budgetary approval given
by the City Council. The City's financial planning documents include a biennial budget, a
capital improvement plan, and a Comprehensive Annual Financial Report (CAFR). In addition,
OFD has financial statements audited annually.
Fire department staffing needs are reviewed based on population growth, development plans,
and budgetary considerations. Employee turnover and attrition is also analyzed in order to meet
hiring demands. Response times and response levels are tools for measuring satisfactory service
levels.
A critical component of the City of Oakland's planning is its Equitable Climate Action Plan
(ECAP). This serves as a guiding document focused on ways in which the community and City
can reduce greenhouse gas emissions to meet the City's long-term climate action goals and
promote a healthy, prosperous community. The City's current plan was adopted in 2020 and
outlines the goal of reducing climate emissions by 56 percent, transitioning away from fossil fuel
dependence, and ensuring the City's communities are able to withstand the impacts of climate
change by 2030.437
437 City of Oakland, 2030 Equitable Climate Action Plan, July 2020, p. 2
Ch. 17: City of Oakland 386
Policy Consulting Associates, LLC
Alameda Fire Municipal Service Review
Public Review Draft
This section discusses the factors affecting service demand, such as land uses, and historical
and anticipated population growth.
The City of Oakland consists of 53.8 square miles of land area and 3.5 square miles of lake
area. The General Plan emphasizes five areas of concentration for the land use which would
have unique impacts on fire and emergency services: waterfront, downtown, industry and
commerce, neighborhoods and transportation, and transit-oriented development. The City is
largely built out, however, and the primary land use, roughly 44 percent, is for residential
purposes. Therefore, mixed-use, infill developments will need to be the focus going forward.
The General Plan guides the development of this land while the safety element specifically
indicates goals and policies for the land area as it relates to fire and emergency services. The
plan lists continued efforts to enforce wildland interface regulations and the requirement for fire
protection measures in development.
The City of Oakland has a population of 424,464 based on California Department of Finance
data for 2022. This is an increase of 6 percent over a ten-year span from 2012-2022. The
number of people over the age of 16 in the civilian labor force was 68.8 percent and the City's
population is aging, with 13.5 percent of residents being over 65. In contrast, the number of
constituents under 18 years old was listed as 19.5 percent.438
Figure 17-3: City of Oakland Population 2010-2022
438 City of Oakland, 2020 US Census Data, https://www.census.gov/quickfacts/fact/table/oaklandcitycalifornia/PST045222
Ch. 17: City of Oakland 387
Policy Consulting Associates, LLC
Alameda Fire Municipal Service Review
Public Review Draft
While the population has declined since 2020, overall, the City's population is projected to
increase by 9.3 percent, to 455,000, by 2035, according to the California Department of
Finance. Most of this growth will be driven by new industry and the addition of mixed-use,
multi-family infill development. Downtown, the Coliseum Area and the waterfront are areas of
concentration for future development as they are a large part of the economic development
strategy of the City and are focused on transit-oriented development in line with the GP's
goals. The Department also reports that it has seen a significant increase in new housing in
Oak Knoll, the Quarry, and the Brooklyn Basin areas.
The City of Oakland has numerous projects, as seen in figure 17-4, that are in various stages
of development. By and large, these developments are multi-story residential and mixed-use
facilities and include projects associated with the Lake Merritt BART Transit-Oriented
Development Project. These developments follow the City's planning documents for housing in
its General Plan.
Figure 17-4: City of Oakland Planned or Proposed Development Projects, 2023
city of oakland development projects
project # of dwelling units commercial square feet
PLN20110-R01 105
PLN20107-R01 222
CMDV13321-R01-R01 20
ZP210001 400
PLN21019 117
Ch. 17: City of Oakland 388
Policy Consulting Associates, LLC
Alameda Fire Municipal Service Review
Public Review Draft
PLN21037 92
PLN21041 220
PLN21042 76
PLN21062 34 1,985
PLN21115 27 2,235
PLN21127 44
PLN21142 28 1,535
PLN21175 57
PLN21194 130
PLN21216 207
PLN1241 20
PLN21249 226,289
PUD06010-PUDF010-R01 382
PLN20108-PUDF01 97
PLN20108-PUDF02 557
PLN18532-PUDFl01 39
PLN15625-R01 124
PLN17225-R01-R01 47
PLN15378-PUDF03-R01 74
PLN15378-PUDF04-R01 38
PLN22003 38
PLN22006 520,335
PLN22046 73
PLN22066 44
PLN22080 35 4,473
PLN22084 200
PLN22117 210 2,520
PLN22119 100
PLN22171 230 750
PLN22173 289 2,999
PLN22175 2
total 4,378 763,121
Many of the City's development opportunities impact fire and emergency service response
based on infrastructure challenges. The City of Oakland is an aging community which will
present risks due to older buildings and infrastructure in the service area over the coming
years. For this reason, the City has updated its fire-protection standards and codes to reflect
local conditions. Maintaining sufficient water supply and access to fire stations will be important
as the City continues to expand as well, particularly in the downtown area due to its high
density.
The Oakland Hills, mostly above the Warren Freeway, are most at risk for wildfire. The
Department has identified mitigation, abatement, and preparedness efforts as vital in
minimizing fire hazards through periods of development. This is especially important as there is
Ch. 17: City of Oakland 389
Policy Consulting Associates, LLC
Alameda Fire Municipal Service Review
Public Review Draft
territory in the service area that is considered urban-wildland interface, and residents could
quickly become effected in the case of a wildfire disaster.
There are no communities that meet the basic, state-mandated criteria for a DUC within the
City of Oakland service area.
The City of Oakland Fire Department has the financial ability to continue to provide services.
Fire Department expenditures, similar to Citywide expenditures, continued to grow at a rate
greater than inflation although Citywide revenues were adversely affected by COVID-19
requiring the use of fund balances.
From FY2017-18 through FY2021-22 the Fire Department's expenditures grew at a 6.3 percent
annual average rate.439 City General Purpose revenues declined slightly over the same period
as a result of COVID-19, requiring the use of General Fund balances to maintain service
levels. As the economy recovers "the gap between revenues and expenditures will remain but is
expected to get smaller" according to the City's 5-Year Financial Forecast.440 The City expects
a significant shortfall each year if no corrective action is taken.
EMS services are largely funded through voter approved Measures M and N.
The City's budget forecast notes that "prior to the pandemic, the City had made progress
toward attaining a structurally balanced budget."441 The City maintained a 7.5 percent General
Purpose Fund Emergency Reserve in addition to General Fund balances. As described above,
fund balances were required to help balance the City's budget due to COVID-19 impacts.
439 City of Oakland Adopted Policy Budget, Fiscal Years 2019-2021; City of Oakland's online interactive budget book,
FY2021-2023, https://stories.opengov.com/oaklandca/published/uLZlHoVwv
440City of Oakland 5-Year Financial Forecast, Summary of FY2021-22 – FY2025-26
441 ibid, Financial Forecast
Ch. 17: City of Oakland 390
Policy Consulting Associates, LLC
Alameda Fire Municipal Service Review
Public Review Draft
The City of Oakland Fire Department offers comprehensive services to the community through
its 25 fire stations and in cooperation with outside agencies, when necessary. These capabilities
include fire prevention and suppression, advanced life support, and services related to
emergency medical and hazardous materials response. Figure 17-5 details the entirety of
services provided by the OFD. If a service is offered by another agency, it is indicated in the
figure.
Figure 17-5: City of Oakland Fire Services
service agency
fire suppression services
Structural Fire Protection City of Oakland Fire Department
Wildland Fire Protection City of Oakland Fire Department
Vehicle Fire Protection City of Oakland Fire Department
Ladder Truck Capabilities City of Oakland Fire Department
Fire Suppression Hand Crew CalFire/EPRPD
Fire Suppression Dozer CalFire/ACFD
Helicopter Services – Fire Suppression CalFire
Boat With Fire Suppression Capabilities City of Oakland Fire Department
emergency medical services
Basic Life Support Provider City of Oakland Fire Department
Advanced Life Support – Non-Transport Provider City of Oakland Fire Department
Advanced Life Support Transport Provider Alameda County EMS
Continuing Education Provider – Medical City of Oakland Fire Department
Air Ambulance Transport Helicopter Services Reach Air Medical Services/CHP/CalStar
Helicopter Landing Facilities On Site N/A
Vehicle Extrication Tools/Equipment City of Oakland Fire Department
fire prevention
Fire Safety Education – Children City of Oakland Fire Department
Fire Safety Education – Adults/Seniors City of Oakland Fire Department
Juvenile Firesetter Prevention Program N/A
Fire and Life Safety Business Inspection Program City of Oakland Fire Department
Ch. 17: City of Oakland 391
Policy Consulting Associates, LLC
Alameda Fire Municipal Service Review
Public Review Draft
Fire Protection Planning City of Oakland Fire Department
New Commercial Construction Plan Reviews City of Oakland Fire Department
Public Education Provider (CPR, First Aid, etc.) City of Oakland Fire Department
City of Oakland Fire Department, exterior
Home Fire/Safety Inspections vegetation only
Fire Origin and Cause Investigations City of Oakland Fire Department
Fuel Reduction/Weed Abatement Program City of Oakland Fire Department
Smoke Detector Giveaway/Installation Program City of Oakland Fire Department
Address Sign Installation Program N/A
rescue services
Fires Responder Swift Water Rescue Program City of Oakland Fire Department
Water Rescue Program City of Oakland Fire Department
Ice Rescue Program N/A
Dive Rescue Program N/A
Low angle Rope Rescue Program City of Oakland Fire Department
Helicopter Short/Long Haul Rescue Capabilities N/A
Response to Boating Accidents City of Oakland Fire Department
City of Oakland Fire Department via Urban
Rescue Dog Services Search and Rescue Team CA-T4
hazardous materials
Hazardous Materials Emergency Response –
Basic City of Oakland Fire Department
Hazardous Materials Response Team City of Oakland Fire Department
support services
Firefighter Incident Support Unit Red Cross
Mobile Incident Command/Communications
Unit City of Oakland Fire Department
Fill Station for Self-Contained Breathing
Apparatus City of Oakland Fire Department
Mobile Breathing Support Unit City of Oakland Fire Department
Community Emergency Response Team City of Oakland Fire Department
Chaplain Services City of Oakland Fire Department
Training Academy City of Oakland Fire Department
Emergency Operations Center Capabilities City of Oakland Fire Department
miscellaneous
Public Service Assists City of Oakland Fire Department
Motor Vehicle Accident Response City of Oakland Fire Department
Ch. 17: City of Oakland 392
Policy Consulting Associates, LLC
Alameda Fire Municipal Service Review
Public Review Draft
Welfare Checks City of Oakland Police Department
Public Safety Answering Point City of Oakland Police Department
Fire/EMS Dispatch City of Oakland Fire Department
Fundraising Activities N/A
Firefighters Association – Non-Profit N/A
Auxiliary Association N/A
The City of Oakland Fire Department engages in collaborative efforts with several agencies to
provide the most inclusive list of services to the community. These partnerships range from
local agreements, mutual response area agreements (MRA), joint powers authority agreements,
and a variety of mutual and automatic aid agreements with state and regional providers,
including:
• FEMA
• California Office of Emergency Services
• Hills Emergency Forum
• Oakland Firesafe Council
• City of Alameda
• City of Emeryville
• Cities of Oakland and San Leandro MRA
• BART District Emergency Procedures Policy Vital Fire Protection Equipment and
personnel Training Agreement
• Alameda County Fire Department
• City and County of San Francisco
• City of Berkeley
• City of Piedmont
• East Bay Regional Park District
• CAL FIRE
• Alameda County EMS
• Urban Search and Rescue Team CA-T4
Ch. 17: City of Oakland 393
Policy Consulting Associates, LLC
Alameda Fire Municipal Service Review
Public Review Draft
The California Department of Forestry and Fire Protection (CAL FIRE) augments fire services
throughout the State. Generally, CAL FIRE services are focused in wildland areas defined as
State Responsibility Areas (SRA). There is territory to the east of the City that is identified as
SRA in a very high fire hazard severity zone near Joaquin Miller Park in the hillside. The
remainder of that SRA territory falls into Contra Costa County.
In conjunction with OFD, CAL FIRE is utilized for hand crew services and helicopter services
for fire suppression. OFD also works hand in hand with local police departments for welfare
checks, ACFD, and East Bay Regional Park District Fire Department for assistance with
rescue efforts.
OFD reported a total of 62,769 calls in FY 20. This was a three percent decrease since FY 13.
Generally, the number of incident calls remain steady, however, there was a significant 33
percent drop in calls between FY 18 and FY 19. The total calls for service by year are listed in
Figure 17-6 below while the call types are shown in Figure 17-7.
Ch. 17: City of Oakland 394
Policy Consulting Associates, LLC
Alameda Fire Municipal Service Review
Public Review Draft
Figure 17-6: City of Oakland Calls for Service (2013-2020)
fire and emergency calls 2013-2020
2013 2014 2015 2016 2017 2018 2019 2020
City of
Oakland 64,378 65,617 59,147 58,187 60,997 89,990 60,765 62,769
Figure 17-7: City of Oakland Service Calls by Type, 2020
2020 fire and emergency service calls by type
Structure Other EMS/ Hazardous Service Good False Cancelled Total
Fires Fires Rescue Conditions Calls Intent Call Enroute Calls
City of Not
Oakland 3,243 51,587 2,552 1,380 134 1,274 provided 62,769
Of the City's budgeted, full-time equivalent positions in FY 21, 652.78 are for the Fire
Department. This number comprises more than 14 percent of the budget for personnel. Sworn
personnel account for 509 authorized positions while 85 are civilian personnel.442
According to NFPA 1710, minimum staffing per unit per day is considered three firefighters per
engine company and three per truck company. Additionally, every engine has at least one
paramedic on staff. All stations are reported to have one truck company. Stations 1, 3, 5, 7, 9,
13, 15, 18, 21, and 25 have two engine companies while the remainder have one.
The Department states that newly hired paid firefighters are required to have California state
Fire Marshal training or a Firefighter 1 certificate.443 OFD provides education that meets State
mandated requirements for Emergency Medical Technicians and Paramedics and enforce
State and local fire codes and standards through the review and approval of building and
facility plans. Community service objectives include coordination of public education, events and
disaster operation activities within the communities served.
As of the writing of this report, the Department is promoting a recruitment drive via open
houses and live question and answer sessions on Zoom in an effort to hire entry level
firefighters, EMTs, and paramedics.
442 City of Oakland, Adopted Operating Budget, FY19-21, p. D-10
443 City of Oakland, SoGo Online Survey, July 2021
Ch. 17: City of Oakland 395
Policy Consulting Associates, LLC
Alameda Fire Municipal Service Review
Public Review Draft
The City of Oakland has 25 fire stations located throughout its service area. These stations
are listed in Figure 17-8. The City of Oakland Fire Prevention Bureau is located in the Frank
Ogawa Plaza in the City Hall complex. The OFD also has a number of apparatus and
specialized teams including444:
• 24 engines
• 7 aerial apparatus
• Hazardous materials response team
• Technical rescue team
• Water rescue team
• Specialized wildland response apparatus
The City's CIP has identified facility projects as well. Many of the Departmental facilities are in
need of improvements to have adequate capacity for providing services. Ongoing projects
include the construction of Fire Station 29 and its training resiliency education community
complex that will also support an urban search and rescue, and community education
programs. There is also a study being conducted to determine the project scope for adding an
additional fire station in the Jack London area. A new station is being built to replace fire
station 4 as well. The plans for these stations align with the City's objectives to foster long-
term and integrated planning.
Figure 17-8: City of Oakland Fire Facilities
city of oakland fire department facilities
Facility Address Owner Year Built Condition
1603 Martin Luther King Jr.
Way
Station 1 Oakland, CA 94612 City of Oakland Not provided Not provided
47 Clay St.
Station 2 Oakland, CA 94607 City of Oakland Not provided Not provided
1445 14th St.
Station 3 Oakland, CA 94607 City of Oakland Not provided Not provided
1235 International Blvd.
Station 4 Oakland, CA 94607 City of Oakland Not provided Not provided
934 34th St.
Station 5 Oakland, CA City of Oakland Not provided Not provided
6080 Colton Blvd.
Station 6 Oakland, CA City of Oakland Not provided Not provided
1006 Amito Dr.
Station 7 Oakland, CA City of Oakland Not provided Not provided
Station 8 463 51st St. City of Oakland Not provided Not provided
444 City of Oakland, https://stories.opengov.com/oaklandca/published/YJE4IHAed, accessed 7/21/23.
Ch. 17: City of Oakland 396
Policy Consulting Associates, LLC
Alameda Fire Municipal Service Review
Public Review Draft
Oakland, CA
Station 9 City of Oakland Not provided Not provided
172 Santa Clara
Station 10 Oakland, CA City of Oakland Not provided Not provided
Station 11 City of Oakland Not provided Not provided
822 Alice St.
Station 12 Oakland, CA City of Oakland Not provided Not provided
1225 Derby Ave.
Station 13 Oakland, CA City of Oakland Not provided Not provided
Station 14 City of Oakland Not provided Not provided
455 27th St.
Station 15 Oakland, CA City of Oakland Not provided Not provided
3600 13th Ave.
Station 16 Oakland, CA City of Oakland Not provided Not provided
3344 High St.
Station 17 Oakland, CA City of Oakland Not provided Not provided
5008 Bancroft Ave.
Station 18 Oakland, CA City of Oakland Not provided Not provided
5766 Miles Ave.
Station 19 Oakland, CA City of Oakland Not provided Not provided
1401 98th Ave.
Station 20 Oakland, CA City of Oakland Not provided Not provided
13150 Skyline Blvd.
Station 21 Oakland, CA City of Oakland Not provided Not provided
Station 22 City of Oakland Not provided Not provided
7100 Foothill Blvd.
Station 23 Oakland, CA City of Oakland Not provided Not provided
5900 Shepherd Canyon Rd.
Station 24 Oakland, CA City of Oakland Not provided Not provided
2795 Butters Dr.
Station 25 Oakland, CA City of Oakland Not provided Not provided
Station 28 Not provided Not provided Not provided Not provided
Station 29 Not provided Not provided Not provided Not provided
There are multiple ways for the City of Oakland to communicate with residents to transmit
important health and safety information. These methods include posting notices on its website,
on its social media, and on the City's Comcast cable channel 10.
The Department utilizes the Oakland Fire Dispatch Center, based out of the Frank Ogawa
Plaza near City Hall, to answer incident calls for the City. This dispatch center is considered a
nationally accredited center of excellence, and all its fire dispatchers are trained as Emergency
Medical Dispatchers.
The City of Oakland Fire Department also has a Memorandum of Understanding with the
East Bay Regional Communication Systems Authority (EBRCSA) which is a two-way, P25
compliant radio communications system that allows firefighters to communicate with each other
and other agencies in the field, like police, on the same network over large distances.
Ch. 17: City of Oakland 397
Policy Consulting Associates, LLC
Alameda Fire Municipal Service Review
Public Review Draft
The Emergency Operations Center within the City also allows various City Departments (e.g.
police, fire) as well as Alameda County Office of Emergency Services to coordinate
communications in the event of a City emergency or disaster.
Cooperation and consolidation of facilities is an impactful way to limit operating costs for the
City while still effectively providing needed services. The Department shares the Emergency
Operations Center with the City of Oakland Police Department and also the County's
Emergency Services Office. The OFD also shares its training facility with the OPD while the
City of Oakland Public Works Department holds and maintains OFD vehicles at its facility.
The City of Oakland outlines its infrastructure needs primarily in its Capital Improvement
Program (CIP) and its Citywide budget. Several facility improvements or replacements were
described in the FYs 19-21 CIP. In some instances, aging structures and deferred maintenance
have impacted the ability to meet the mandate of essential service facilities (which is to be fully
operational after an earthquake or other disaster) and efficiency of some stations. Nearly every
one of the City's 25 fire stations are in need of repairs and improvements with only 8 stations
not currently identified for capital needs. A 2016 Infrastructure Bond will make these long-
awaited updates possible. The following list describes some of the infrastructure needs by fire
station:
• Fire Station 1: lighting upgrades, a kitchen remodel, updating dorms and living essentials
• Fire Station 2: lighting upgrades, interior and exterior painting, updating bathrooms
• Fire Station 3: lighting upgrades, bathroom remodeling, updating hardscapes in front of
the station, interior paint throughout
• Fire Station 4: new station needed
• Fire Station 5: lighting upgrades, a kitchen remodel, interior paint throughout, replace rear
and side fencing
• Fire Station 6: lighting upgrades, interior and exterior paint, replace exterior siding, interior
floor replacement, a kitchen remodel
• Fire Station 7: lighting upgrades, interior and exterior paint, interior floor replacement
throughout
• Fire Station 8: lighting upgrades, interior and exterior paint, bathroom updates
• Fire Station 9: overall updating needed; planned partial remodel of dorms and bathrooms
in 2022
• Fire Station 10: updates to kitchen and officer rooms needed, HVAC needed for the older
section of the station
• Fire Station 13: rear and side fence replacement
Ch. 17: City of Oakland 398
Policy Consulting Associates, LLC
Alameda Fire Municipal Service Review
Public Review Draft
• Fire Station 18: apparatus door and kitchen improvements
• Fire Station 23: site security and exterior paint needed
• Station 28: window replacement
• Citywide Fire Station electrical panel upgrades
In addressing these capital needs at fire facilities, it will allow buildings to become compliant
with energy efficiency standards and prevent further damage.
The City of Oakland Fire Department has faced, and will continue to face, challenges to
provide adequate service to its community. The COVID-19 pandemic created limited financing
that could have otherwise been spend on capital needs, but it also caused fire training setbacks
as in person trainings were restricted. As the population continues to increase, aging buildings
within the Department and within the community will need to be addressed. With more
residents expected to be living in multi-family housing in the city center, providing adequate
service to high-rise structures will also be more difficult and put more people at risk in the case
of fire incidents, and emergencies or disasters. Having outdated fire stations also presents
energy deficiencies that do not support the City's goal of sustainability. Lastly, the City states
that a skyrocketing homeless population is affecting demand due to creating a spike in calls for
medical incidents and fire suppression at encampments.
This section reviews indicators of service adequacy, including response times, ISO rating, and
complaints received. There are many measures of a successful fire protection service. For
example, the agency would meet guidelines established by the National Fire Protection
Association (NFPA), the Center for Public Safety Excellence (CPSE) (formerly the
Commission on Fire Accreditation International) and the California EMS Agency. There are
also Public Protection Classifications (PPC) and Insurance Services Office (ISO) ratings that
likewise establish an agency's level of service.
The Department's response time standards are shown in Figure 17-9. For single unit incidents,
this goal is listed as arriving within 7 minutes from dispatch 90 percent of the time. Based on
response data from 2012, shown in the most recent Standards of Coverage Assessment
available, the City met these goals 86.1 percent of the time but achieved a 7:29 response time
90 percent of the time. It is reported, however, that this 7:29 time response is still excellent for
Ch. 17: City of Oakland 399
Policy Consulting Associates, LLC
Alameda Fire Municipal Service Review
Public Review Draft
a metro area with a diverse service territory.445 At the time the report was published, 12 fire
stations (1, 3, 4, 5, 10, 12, 13, 15, 16, 17, 20, 23) were at or under a 7:30 response time and
many of these are considered the busiest in the service area.446 Again, based on the 2012
SOC, their FY 11 findings showed that fire stations 1 and 20 responded to significantly more
incidents than any other station while fire station 8 responded to the least. The difference
between Station 1 and 8, with respect to incident numbers, is roughly 4,000 incidents. To
maintain its standards and respond effectively in the face of station closures or brownouts, the
Department will need to maintain 25 fire stations and strategically close or add stations as
needed during peak hours of incident activity.
Figure 17-9: City of Oakland Response Time Standards
response times for ofd
agency name single unit incident multiple unit incident
Arrival of first company on the scene
within 4 minutes for 90 percent of all
Arrive within 7 minutes from the incidents. Remaining units should arrive
City of Oakland time the company is first dispatched on the scene of an incident within 8
for 90 percent of incidents. minutes from when the first due company
begins responding for 90 percent of all
incidents.
Fire services in the community are classified by the Insurance Service Office (ISO) as an
indicator of the general adequacy of coverage. Communities with the best fire department
facilities, systems for water distribution, fire alarms and communications, and equipment and
personnel receive a rating of 1. OFD's most recent ISO rating was done in 2021 and it was
given an ISO PPC rating of 1, which is the top classification available.447
The City did not provide information regarding any complaints for fire service received.
17-1: The City's 2022 population was 424,464 with population growth is expected to
increase by 9.3 percent to 455,000 by 2035. Along with it, employment and housing
increases will be seen.
445 City of Oakland, Standards of Coverage, April 9, 2012, p. 73
446 City of Oakland, Standards of Coverage, April 9, 2012, p. 78
447 City of Oakland, https://www.oaklandca.gov/news/2022/oakland-fire-department-receives-iso-class-1-designation, accessed,
July 20, 2023
Ch. 17: City of Oakland 400
Policy Consulting Associates, LLC
Alameda Fire Municipal Service Review
Public Review Draft
17-2: The City of Oakland should continue to monitor population projections and
development plans to ensure they align with city planning efforts to adequately
accommodate growth and the related increase in demand for services.
17-3: The City of Oakland does not have any DUCs within or contiguous to its SOI.
17-4: The City of Oakland adequately meets its fire and emergency response utilizing 25
fire stations that meet minimum staffing standards, particularly in the face of
topographical challenges and high incident calls at the busiest stations.
17-5: While some fire stations are relatively new, infrastructure needs are still many across
all of the City's aging facilities. Deferred maintenance needs should continue to be
addressed as financing is available to continue to meet operational standards.
17-6: The City of Oakland Fire Department has the financial ability to continue to
provide services. Fire Department expenditures, similar to Citywide expenditures,
continued to grow at a rate greater than inflation although Citywide revenues were
adversely affected by COVID-19 requiring the use of fund balances.
17-7: The OFD shares the City's Emergency Operations Center as well as the County's
Emergency Services Office. It also shares its training facility with the OPD.
17-8: The City's Public Works Department maintains OFD vehicles at its own facility.
17-9: It is recommended that the Department join fellow Alameda fire providers to
develop a regional, countywide dispatch strategy that employs the closest resource
for the fastest response time, regardless of agency boundaries or responsibility.
17-10: The City of Oakland abides by all legislative obligations for accountability and
governance practices.
17-11: The City of Oakland demonstrated transparency when sharing information for the
creation of this report.
Ch. 17: City of Oakland 401
Policy Consulting Associates, LLC
Alameda Fire Municipal Service Review
Public Review Draft
Incorporated in 1907, the City of Piedmont is a charter city of approximately 11,000 residents
located in Oakland Hills, overlooking the San Francisco Bay. Piedmont is centrally located,
adjacent to Oakland with San Francisco to the west and Concord and Walnut Creek to the
east. Within Piedmont's 1.7 square-mile area, there are five city parks and numerous
landscaped areas which offer wooded paths, tennis courts, children's playgrounds, and picnic
facilities.
The Piedmont city charter establishes a City Council - City Administrator form of government.
Under this form of government, the Piedmont City Council is the legislative body responsible
for setting City policy.
The City provides a full range of services including animal control, fire and emergency
response, law enforcement, lighting, parks and recreation, and planning/building. Other
services, such as solid waste, are provided under contract.448 Although the City is a multi-
service provider, this review is specific to fire protection, emergency medical, and other related
services.
The City of Piedmont was last included in an MSR Update by Alameda LAFCO that was
adopted in 2018. There was also a Countywide MSR update for water, wastewater, flood
control and stormwater services completed in 2021. The focus of this MSR is limited to the fire
and emergency medical services provided by the City.
The City of Piedmont has a boundary land area of 1.7 square miles. Figure 18-1 depicts the
City's boundaries and how they relate to the boundaries of the City of Piedmont's Fire
Department.
448 Alameda Local Agency Formation Commission Resolution No. 2018-12.
Ch. 18: City of Piedmont 402
Policy Consulting Associates, LLC
Alameda Fire Municipal Service Review
Public Review Draft
Figure 18-1: City of Piedmont Boundaries and SOI
City of Piedmont
Range 03 West
UV 24
Shattuck
Ave
51st St
evA
egelloC
Broadway Ter
UV
13
Skyline
B
1
lv
6
d
15
§¨¦
980 y
htuoS 10 pihsnwoT
Broadwa
M
y
Tel
a
egra
c
ph A
a
ve
r
4
th
0
u
th
r 0 B
S
l
t
vd Pi
B
e
ro
d
a
m
dw
o
ay
nt A
Sa
v
n
e
ta Clara Ave
PleasantValleyAve
Grand Ave Ar
L
r
a
o
k
y
e
o
shore Ave Piedm
Hig
o
hland
A
n
ve
t
PIEFS0
M
1
o
M
ra
ou
g
n
a
ta i
A
n
L
A
v
i
v
e
n C
e
rocker Ave coln Ave 0 Leimert Blvd Mount M ai o n
S
n B te
n
l r v e d
a
y B
k
lv
e
d
Rd
22
27
B r o a
d w a
Ha
S L
rri
o
s
o
o
u
n
r
S
c L c
t
ak e
es
a
id
:
e D
A l
r
la A m A g e L d e la a kae n
g i D n
s L
e
h
i
m A
t
c o
s e n
r F e
c
y
n e
A C
l
v
G
d a r
e e o
a
r
e
F
im
a
l
d
d
n
o
d e
d
t i r
a
s o
r
A
: p
m
v
b T
e
la e
C
h
a
y e u
t
p
o
s i
i
L
n u
a
e
k
o
e
f
M
s
r
u
d
h
o
o
p
n
re
a
r
A
o f m
v
p n
o
e
s
C
r
C
a e
t
r t
r
s
o
i e
e y
o
§¨¦
a
o f n
5
m
e
t
n
e
8
r s l e
d
0
y
m
h n
1
o a c
/7
n w
i
e
s /
d
2
n a
s 0
i n i s
2
s
i
d
3 on
M
L
aca
e
rth
g kj
ur
e
Bl
n
vd
d A A
F
A
C
C
M
i
d l l o
r i
a a
a
t e
j m
n
m m a
y
d
S
c m
a
e e e
o t
n
d d
a
u
a
n
f
a a
t
n
B
t
i P o
1 i
l
C C C
v
3 t
n
t i
d
i
h o i o e
e
t
s
A u y s u v
d
e n n B
m
t t y o y u
o
B B n
n
o o d u u
t
a n n r d i d e a a
P
s
a
r r
r
y i
k
e
B
s
lvd Lyman Rd
O
Tiffin Rd Lincoln Ave
Alameda County
UV
C S o
1
a u n n t F y
3
ranci
S
sco
a
P
C
kj
n
i kj ekj
o
A dE
u
B
M
l m b kj me
n
a
a
o re n
t
A k kjn
t
r
y
ye
e
l ty a O l kjve
o
m a iyl k e le l d a a nd kjSan
kj
L
H
e
a kj
a
y F
n
w r
d
e a m
r
r
o
J
d o
C
kj n
o
U kjt n
i
N
a
io
t
e n
q
w
y
C a
u
P C
r it k
l o
y
e o
i
a
n
nC f sa t kj or n P
M
au t
A
o D kj n n C i u
l
i
a
t e b
l
oy
m
l
l
i s d n
e
t
e
a
r
d
m
a
R
C
o
d
kj
o
n L
u
iv
n
t er
t
m
y
ore San Joaquin County 34
not to be used as an official map. 0 440 880 1,760 2,640Feet Santa Clara County
The City of Piedmont does not provide services outside of its boundaries.
There are no unserved areas identified in the City of Piedmont. The City is able to provide
service throughout its bounds.
The City of Piedmont's Sphere of Influence (SOI) was established by LAFCO in 1983 and is
coterminous with its boundaries. The City's current SOI was last reaffirmed on January 11,
2018.449
449 Alameda Local Agency Formation Commission Resolution No. 2018-12.
Ch. 18: City of Piedmont 403
Policy Consulting Associates, LLC
Alameda Fire Municipal Service Review
Public Review Draft
Accountability of a governing body is signified by a combination of several indicators. The
indicators chosen here focus on 1) agency efforts to engage and educate constituents through
outreach activities, in addition to legally required activities such as agenda posting and public
meetings, 2) a website with the required content and other useful information, 3) timely ethics
training for board/councils members and an adopted reimbursement policy, 4) a defined
complaint process designed to handle all issues to resolution, 5) adopted bylaws that provide a
framework and direction for governance and administration, 6) adoption of a conflict-of-interest
code as required by law, 7) proper filing of Form 700 by the governing body members, and 8)
transparency of the agency as indicated by cooperation with the MSR process and information
disclosure at meetings, in documents, and on a website.
The City of Piedmont has a Council-Manager form of government with a City Manager and
five council members who are elected at large for four-year terms and are eligible for a
maximum of two terms. Piedmont's mayor is selected by the members of the City Council.
Current council member names, positions, and term expiration dates are shown in Figure 18-2.
The Council meets on the first and third Mondays of each month at 6:00 p.m. at the City
Council Chambers at City Hall. Members of the public can also access the meeting online
through KCOM's online video service or on cable Channel 27. Meetings are also recorded
and available for viewing from the City website's Live Content and Video Archive. The City
Council agenda is posted at City Hall and online by 9:00 a.m. on the Friday preceding the
meeting. Minutes of the City Council are available and posted online within a few days after a
meeting occurs.
Figure 18-2: City of Piedmont Governing Body
governing body
Elections at large. Mayor is appointed by the
Manner of Selection
Council.
Length of Term 4 years
1st and 3rd Mondays at 6:00 p.m.
City Hall, Council Chambers
Meetings
120 Vista Avenue
Piedmont, CA 94611
Agenda Distribution Posted online and at City Hall.
Minutes Distribution Posted online.
council members
Ch. 18: City of Piedmont 404
Policy Consulting Associates, LLC
Alameda Fire Municipal Service Review
Public Review Draft
Member Term Manner of Length of
Name District Position Expiration Selection Term
Jennifer Mayor,
Cavenaugh Councilmember 2024 Elected 4 Years
Betsy
Smegal Vice Mayor,
Andersen Councilmember 2026 Elected 4 Years
Conna
McCarthy Councilmember 2024 Elected 4 Years
Jennifer
Long Councilmember 2026 Elected 4 Years
Tom
Ramsey Board President 2026 Elected 4 Years
contact
Contact David Brannigan, Fire Chief
Mailing Address 120 Vista Avenue, Piedmont, CA
Phone 510-420-3038
Email/Website dbrannigan@piedmont.ca.gov
The City of Piedmont participates in community outreach events including a variety of
performing, visual, and literary arts through its Civic Arts program, as well as a variety of
community events and performances such as movies in the park, the Rose Show, and
hometown holidays.
For fire-specific complaints, the public is directed to contact the Fire Chief.
All City of Piedmont's council members have current filings for Form 700 with the California
Fair Political Practices Commission, indicating transparency in their economic interests.
Through the City, there also exists a conflict-of-interest code and bylaws outlined in the
municipal code as lawfully required and by which the City of Piedmont must abide.
There is legislation to help ensure public agencies adhere to accountability standards.
California AB 2257 (Government Code §54954.2) is an update to the Brown Act and
indicates requirements for methods by which an agenda for all meetings should be made
available on an agency's website. The City of Piedmont complies with this regulation.
The City of Piedmont demonstrated accountability in its disclosure of information and
cooperation with the LAFCO questionnaires and other requests for information.
Ch. 18: City of Piedmont 405
Policy Consulting Associates, LLC
Alameda Fire Municipal Service Review
Public Review Draft
While public sector management standards vary depending on the size and scope of the
organization, there are minimum standards. Well-managed organizations evaluate employees
annually, track employee and agency productivity, periodically review agency performance,
prepare a budget before the beginning of the fiscal year, conduct periodic financial audits to
safeguard the public trust, maintain relatively current financial records, conduct advanced
planning for future service needs, and plan and budget for capital needs.
The City accounts for its fire and emergency services in a number of its planning and
management documents, particularly in its General Plan and Local Hazard Mitigation Plan.
The Office of the Fire Chief oversees two divisions, operations and training and the fire
prevention bureau, providing leadership and management overall. The operations and training
division encompasses emergency operations, training, and EMS services while the Fire
Prevention Bureau is responsible for fire prevention and investigations as well as public
education.
The City develops financial documents, including an annual budget, overseen by the City
Administrator's office and the Finance Department, with input from each department, including
the fire department. The budget process is intended to reflect departmental goals as well as
existing and proposed service levels and follows general accounting best practices. The City's
budget must be adopted by the City Council.
The City also adheres to personnel policies it has set forth for its fire services. All full-time
personnel begin with an 18-month probationary period during which they are evaluated by their
supervisor daily, weekly, and monthly, and undergo a series of tests. Once the probationary
period is complete, employees are reviewed on an annual basis with exceptions for assignment
transfers in the midst of the evaluation period and when further evaluation is needed if
performance goals are not being met.
Fire department staffing needs are reviewed based on population growth, development plans,
and budgetary considerations. Employee turnover and attrition is also analyzed in order to meet
hiring demands. Response times and response levels are tools for measuring satisfactory service
levels.
To ensure fire service efficiency and effectiveness, the City of Piedmont Fire Department (PFD)
has set policy goals and objectives. PFD aims to provide emergency response and incident
management for fires, rescues, medical emergencies, hazardous materials incidents, and
Ch. 18: City of Piedmont 406
Policy Consulting Associates, LLC
Alameda Fire Municipal Service Review
Public Review Draft
disasters throughout the City. The primary mission of the Department is to provide superior
and comprehensive services for the purpose of protecting life, property, and the environment.
A critical component of the City of Piedmont's planning is its Climate Action Plan (CAP) 2.0.
This serves as a guiding document focused on ways in which the community and City can
reduce greenhouse gas emissions, to meet the City's long-term climate action goals, and
promote a healthy, prosperous community. The City's current plan was adopted in 2018 and
outlines the goal of reducing greenhouse gas emissions by 40 percent by 2030 with an overall
objective to be the reduction of emissions 80 percent by 2050.450
This section discusses the factors affecting service demand, such as land uses, and historical
and anticipated population growth.
The City of Piedmont consists of 1.7 square miles of land area, approximately 86 percent of
which is used for residential purposes, the majority of which are single-family homes. The
remaining area is largely comprised of schools, civic buildings, and open space with no
industrial utilization. Parts of Grand Avenue are where the majority of multi-family housing is
located, however, much of the Civic Center area is non-residential. The largest concentration
of open space in the City is in Moraga Canyon. 451
Notably, the City of Oakland impacts the City of Piedmont's land use. This is especially
evident near the western edge of the Cities, on Kingston Avenue for example, where one City
has zoning for single family homes and across the border on the other side of the street, that
City has zoned the land for multi-family housing.452
Given geographical constraints and that the City of Piedmont is largely built out, future land
use is not expected to significantly change the landscape of the City. Slow development is
anticipated and most construction will be due to improvements on existing homes.
The City of Piedmont's population was 10,977 as of January 2022, according to California
Department of Finance data. This shows a slight increase of approximately three percent
450 City of Piedmont, Abridged Climate Action Plan 2.0, March 19, 2018, p. 1.
451 City of Piedmont, 2015-2023 General Plan and Housing Element, adopted December 1, 2014, Land Use, p. 3-2.
452 City of Piedmont, 2015-2023 General Plan and Housing Element, adopted December 1, 2014, Land Use, p. 3-8.
Ch. 18: City of Piedmont 407
Policy Consulting Associates, LLC
Alameda Fire Municipal Service Review
Public Review Draft
compared to the population in April 2010 but is a decrease of 4 percent from 2017. During
2017, the City reached a population of 11,354 which was a peak since 2010. The City's
population has a high level of education, with 99.5 percent of people over 25 years of age
having at least a high school degree; 85.7 percent have a minimum of a bachelor's degree.
Nearly half of the City's residents are either under 18 years old (27.2 percent) or over the age
of 65 (20.4 percent).
Figure 18-3: City of Piedmont Population 2010-2022
The City of Piedmont's General Plan reports that the number of households and jobs is only
expected to increase by one percent from 2010 to 2030 and most construction will be to
existing homes. The Civic Center, the Moraga Canyon/Piedmont Reservoir, and Grand
Avenue are three areas that the City has highlighted for potential development.
There is a master plan document to guide the development of the Civic Center which is on a
block bounded by Bonita, Vista, Hillside, and Magnolia. This area is intended to be community
focused. Most changes are expected to be renovations to the Recreation Center.
A vast amount of open space in the City is throughout Moraga Canyon and the Piedmont
Reservoir. Despite future planning, this portion of the City will retain its designation of open
space. This includes the Piedmont Reservoir site which is owned by the East Bay Municipal
Ch. 18: City of Piedmont 408
Policy Consulting Associates, LLC
Alameda Fire Municipal Service Review
Public Review Draft
Utility District. Due to its location, using this territory as a wooded buffer between the City of
Piedmont and the City of Oakland will be a priority.
Between Linda and Wildwood Avenues lies the commercial district on Grand Avenue. There
are no vacant lots available, but redevelopment of aging commercial properties is anticipated,
as are mixed-use projects that would include multi-family housing.
The information available for the City of Piedmont indicates the most significant development,
as shown in Figure 18-4, is accessory dwelling units (ADUs). There are thirty ADUs that were
granted permits in the City in 2022. Two projects the City has highlighted include an all-
electric ADU as well as an ADU built at 778 Kingston Ave.
Figure 18-4: City of Piedmont Planned or Proposed Development Projects, 2023
city of piedmont development projects
project # of dwelling units commercial square feet
ADU permits 30
total 30
Although growth is expected to be minimal in the coming years, as the City evolves, the GP
has expressed a need to continuously review development plans to ensure operational
effectiveness of services such as police and fire. This evaluation should also extend to City
codes in order to incorporate new technology and best practices for fire prevention. Routine
inspections of fire facilities should also be maintained to ensure access to water pressure and
fire flow will be sufficient.453
There are no disadvantaged unincorporated communities (DUCs) that meet the basic, State-
mandated criteria within or contiguous to PFD's service area.
453 City of Piedmont, 2015-2023 General Plan and Housing Element, adopted December 1, 2014, Community Services and
Facilities, p.9-24
Ch. 18: City of Piedmont 409
Policy Consulting Associates, LLC
Alameda Fire Municipal Service Review
Public Review Draft
The City of Piedmont Fire Department has the financial ability to continue to provide services.
The City projects continuing although slowing of growth in property tax and other revenues
that help fund expenditures. Property related taxes, which include parcel taxes, represent about
72 percent of City revenues. Anticipated cost increases for unfunded public safety pension
obligations will be managed by the City using trust funds established for that purpose; the City
reports that it has used surplus funds to fully fund pension liabilities through 2030.454
From FY2017-18 through FY2021-22 the Fire Department's expenditures grew at a 6.2 percent
annual average rate.455 Increases in unfunded pension liability payments were partially offset by
reductions in public safety overtime costs. Citywide revenue growth, particularly during
COVID-19, has not kept pace with Citywide expenditure growth and the annual net surplus
has narrowed.
The City has maintained or exceeded its goal of a General Fund reserve of approximately 18
percent of operating expenses. The City has established trust funds to help pay for significant
anticipated increases in unfunded pension liability obligations.
The City of Piedmont Fire Department offers comprehensive services to the community
through its sole fire station and in cooperation with outside agencies, when necessary. These
capabilities include fire prevention and suppression, advanced life support, and services related
to emergency medical and hazardous materials response. Figure 18-5 details the entirety of
services provided by the PFD. If a service is offered by another agency, it is indicated in the
figure.
454 Response to Alameda Fire and EMS MSR Follow-up Questionnaire.
455 City of Piedmont 2022-2023 Budget, Ten-Year Projection.
Ch. 18: City of Piedmont 410
Policy Consulting Associates, LLC
Alameda Fire Municipal Service Review
Public Review Draft
Figure 18-5: City of Piedmont Fire Services
service agency
fire suppression services
Structural Fire Protection City of Piedmont Fire Department
Wildland Fire Protection City of Piedmont Fire Department
Vehicle Fire Protection City of Piedmont Fire Department
Ladder Truck Capabilities City of Piedmont Fire Department
Fire Suppression Hand Crew City of Piedmont Fire Department
Fire Suppression Dozer Mutual aid agreement
Helicopter Services – Fire Suppression Mutual aid agreement
Boat With Fire Suppression Capabilities N/A
emergency medical services
Basic Life Support Provider City of Piedmont Fire Department
Advanced Life Support – Non-Transport Provider City of Piedmont Fire Department
Advanced Life Support Transport Provider City of Piedmont Fire Department
Continuing Education Provider – Medical City of Piedmont Fire Department
Air Ambulance Transport Helicopter Services Reach Air Medical Services
Helicopter Landing Facilities On Site N/A
Vehicle Extrication Tools/Equipment City of Piedmont Fire Department
fire prevention
Fire Safety Education – Children City of Piedmont Fire Department
Fire Safety Education – Adults/Seniors City of Piedmont Fire Department
Juvenile Firesetter Prevention Program N/A
Fire and Life Safety Business Inspection Program City of Piedmont Fire Department
Fire Protection Planning N/A
New Commercial Construction Plan Reviews City of Piedmont Fire Department
Public Education Provider (CPR, First Aid, etc.) City of Piedmont Fire Department
Home Fire/Safety Inspections N/A
Fire Origin and Cause Investigations City of Piedmont Fire Department
Fuel Reduction/Weed Abatement Program City of Piedmont Fire Department
Smoke Detector Giveaway/Installation Program City of Piedmont Fire Department
Address Sign Installation Program N/A
rescue services
Ch. 18: City of Piedmont 411
Policy Consulting Associates, LLC
Alameda Fire Municipal Service Review
Public Review Draft
Fires Responder Swift Water Rescue Program N/A
Water Rescue Program N/A
Ice Rescue Program N/A
Dive Rescue Program N/A
Low angle Rope Rescue Program City of Piedmont Fire Department
Helicopter Short/Long Haul Rescue Capabilities N/A
Response to Boating Accidents N/A
Rescue Dog Services N/A
hazardous materials
Hazardous Materials Emergency Response –
Basic City of Piedmont Fire Department
Hazardous Materials Response Team N/A
support services
Firefighter Incident Support Unit N/A
Mobile Incident Command/Communications
Unit N/A
Fill Station for Self-Contained Breathing
Apparatus City of Piedmont Fire Department
Mobile Breathing Support Unit N/A
Community Emergency Response Team N/A
Chaplain Services City of Piedmont Fire Department
Training Academy N/A
Emergency Operations Center Capabilities City of Piedmont Fire Department
miscellaneous
Public Service Assists City of Piedmont Fire Department
Motor Vehicle Accident Response City of Piedmont Fire Department
Welfare Checks City of Piedmont Fire Department
Public Safety Answering Point City of Piedmont Fire Department
Fire/EMS Dispatch City of Piedmont Fire Department
Fundraising Activities N/A
Firefighters Association – Non-Profit City of Piedmont Fire Department
Auxiliary Association N/A
The City of Piedmont works closely with neighboring cities and Departments, particularly the
Cities of Berkeley and Oakland and the City of Piedmont Police Department, to provide fire
Ch. 18: City of Piedmont 412
Policy Consulting Associates, LLC
Alameda Fire Municipal Service Review
Public Review Draft
and emergency services to the community. The City of Oakland is also reported to aid with
vegetation management. A series of mutual and automatic aid agreements, as well as a state
master mutual aid agreement, allow the City to utilize outside resources as needed for fire
prevention and emergency services and disasters. One mutual aid provider is the Alameda
County Fire Department and there is a contract with Alameda County EMS as well.
The California Department of Forestry and Fire Protection (CAL FIRE) augments fire services
throughout the State. Generally, CAL FIRE services are focused in wildland areas defined as
State Responsibility Areas (SRA). Much of the territory outside of the developed municipal
areas within the County is categorized as SRA. In the case of the City of Piedmont, however,
it is only considered a local responsibility area as it is not adjacent to any SRA or FRA
territory.
As mentioned in the collaboration section, the City of Piedmont relies on neighboring fire
departments when an incident exceeds the Department's capabilities. Some of these providers
include the Alameda County Fire Department, the California Office of Emergency Services,
and the Cities of Berkeley and Oakland, which abut the City of Piedmont.
The PFD indicated it received 776 calls for service in FY 20. The total calls for service in FY 19
was 1,093, indicating a decrease of 29 percent which the Department states is largely due to
the COVID-19 pandemic.456 Since FY 13, the number of incidents reported fluctuated by 25
percent at most between FY 13 and FY 16. Figures 18-6 and 18-7 show the overall statistics for
calls for service and service calls by type, respectively.
Figure 18-6: City of Piedmont Calls for Service (2013-2020)
fire and emergency service calls 2013-2020
2013 2014 2015 2016 2017 2018 2019 2020
City of
Piedmont 1,001 1,059 1,206 1,320 1,300 1,232 1,090 776
456 City of Piedmont, SoGo Online Survey, July 2021.
Ch. 18: City of Piedmont 413
Policy Consulting Associates, LLC
Alameda Fire Municipal Service Review
Public Review Draft
Figure 18-7: City of Piedmont Service Calls by Type, 2020
2020 fire and emergency service calls by type
Fires / Motor Misc.
Hazard. Vehicle EMS / Misc. Non- Mutual False Total
Materials Accident Rescue Emerg. Emerg. Aid Call Calls
City of
Piedmont 5 2 366 74 222 5 102 776
For FY 21, the City of Piedmont's adopted annual budget funded 25.4 full-time equivalent
positions, including one administrative position. This number has remained the same since FY
17. Per NFPA 1710 minimum staffing standards, both engine companies and ladder/truck
companies staff a minimum of four on-duty members. The PFD follows these guidelines,
staffing a chief, three lieutenants, three engineers, ten firefighter/paramedics, and five
firefighters.457 The Department reports there are no volunteers to supplement staffing.
The Department personnel undergo ongoing continuing education and training as necessary
and to fulfill state training mandates. Newly hired firefighters are expected to have a Firefighter
1 training certificate.
The City of Piedmont Fire Department operates out of one fire station for its service area as
described in Figure 18-8. This station is home to one type 1 fire engine, one type 2 fire truck,
one type 2 rescue ambulance, a command vehicle, a reserve type 1 engine, a reserve type 2
rescue ambulance, a type 6 wildland engine, and a utility truck.458
Figure 18-8: City of Piedmont Fire Facilities
city of piedmont facilities
Facility Address Owner Year Built Condition
120 Vista Ave.
Piedmont, CA City of
Station 1 94611 Piedmont 1907 Fair
457 City of Piedmont, 2015-2023 General Plan and Housing Element, adopted December 1, 2014, Community Services and
Facilities, p. 9-7.
458 City of Piedmont, https://piedmont.ca.gov/services___departments/fire/about_us/apparatus, accessed July 20, 2023.
Ch. 18: City of Piedmont 414
Policy Consulting Associates, LLC
Alameda Fire Municipal Service Review
Public Review Draft
The City of Piedmont communicates with residents in a variety of ways to transmit important
health and safety information. These methods include posting on its website, utilizing social
media, a newsletter, texts and emails, KCOM-TV public access television (Comcast channel
27 and AT&T U-verse channel 99), the AC Alert system, and through Zonehaven, which
provides up-to-the-minute public safety alerts.
For dispatch services, PFD shares a consolidated dispatch office with PPD. This is the
answering point for all 9-1-1 calls to the City and it is linked to the City of Oakland's Police
and Fire Department's Computer Aided Dispatch (CAD) system. The Department also utilizes
a computer-based Radio Management System as well as a JPA with the East Bay Regional
Communications System Authority to provide two-way radio communications across
jurisdictions.
The Department reported it does not share facilities and has no plans to do so in the
immediate future. That said, PFD and PPD do use the same dispatch center as mentioned in
the dispatch and communications section.
The City of Piedmont Fire Department has outlined important infrastructure needs in its
annual budget for FY 21. To begin, there is a fund earmarked for the proposed replacement of
the Department's utility vehicle in addition to its automated external defibrillators, LUCAS
device (CPR machine), and P25 compatible radios. Likewise, there is a recommendation to
obtain a new fire engine which would not only add depth to the vehicle inventory but allow the
Department to meet ISO and NFPA standards. Personal protective equipment such as
turnouts, wildland coats and pants, and safety boots have a recommended lifespan of ten years
and are due to be replaced as well. 459 The most vital infrastructure need discussed in the
budget, however, is the emergency alert system which must be replaced. Originally installed in
the 1950s, a new system would be less costly than continued repair costs. It would also aid
response times, improve dispatch reliability, and reduce energy consumption due to improved
technology. In turn, this would reduce energy consumption, which is a sustainability goal for the
City.460
459 City of Piedmont, Adopted Budget FY20-21, p. 201
460 City of Piedmont, Adopted Budget FY20-21, p. 208
Ch. 18: City of Piedmont 415
Policy Consulting Associates, LLC
Alameda Fire Municipal Service Review
Public Review Draft
In an online survey submitted by the Department, they also stated the City's aging fire station
is in need of seismic improvements.
Aging facilities and an aging population are reported to be the biggest challenges facing the
Department at this time. Older structures are less likely to be compliant with updated fire
codes and will need to be reevaluated for safety and adherence. Also, as the population ages,
more medical emergencies will occur, increasing demand for services. With only one staffed fire
station, simultaneous service calls would create a likelihood that outside services would be
needed, particularly at peak hours.461 Lastly, the City's terrain also creates challenges as it
impedes accessibility in steep areas which, in turn, slows response time.
This section reviews indicators of service adequacy, including response times, ISO rating, and
complaints received. There are many measures of a successful fire protection service. For
example, the agency would meet guidelines established by the National Fire Protection
Association (NFPA), the Center for Public Safety Excellence (CPSE) (formerly the
Commission on Fire Accreditation International) and the California EMS Agency. There are
also Public Protection Classifications (PPC) and Insurance Services Office (ISO) ratings that
likewise establish an agency's level of service.
The PFD's goal is to meet a response time of three minutes or less for 90 percent of all
calls.462 According to the GP, the Department maintains an average response time of two
minutes for EMS calls. It should also be noted that annual call volume has increased roughly
20 percent since the 1990s although the population size has remained relatively the same. A
Standard's of Coverage report was not available in order to assess further data.
Figure 18-9: City of Piedmont Response Time Policy
response times for pfd
Agency Name Single Unit Incident Multiple Unit Incident
Arrive within 3 minutes from the time
City of Piedmont the company is first dispatched for 90
percent of incidents.
461 City of Piedmont Fire Department, SoGo Online Survey, July 2021
462 City of Piedmont, 2015-2023 General Plan and Housing Element, adopted December 1, 2014, Community Services and
Facilities, p. 9-24
Ch. 18: City of Piedmont 416
Policy Consulting Associates, LLC
Alameda Fire Municipal Service Review
Public Review Draft
Fire services in the community are classified by the ISO as an indicator of the general
adequacy of coverage. Communities with the best fire department facilities, systems for water
distribution, fire alarms and communications, and equipment and personnel receive a rating of
1. The PFD's most recent ISO rating was done in 2019, and it was given an ISO PPC rating
of 3. This is an improvement from the Department's previous score of 4.
The City did not provide information regarding any complaints for fire service received,
however, it does provide various options (phone, email, etc.) to contact the PFD to discuss any
issues with the Department.
Ch. 18: City of Piedmont 417
Policy Consulting Associates, LLC
Alameda Fire Municipal Service Review
Public Review Draft
18-1: The population of the City has remained relatively steady at approximately 11,000.
18-2: Slow growth of one percent is expected between 2010 and 2030.
18-3: There are no DUCs within or contiguous to the SOI of the City of Piedmont.
18-4: The City of Piedmont Fire Department adequately meets its fire and emergency
response with the utilization of its one fire station and through aid agreements with
local, regional, and state agencies.
18-5: There are several infrastructure needs for the Department, however, updating the
emergency alert system is a priority not only due to its condition but because it will
make a big impact on response to service calls.
18-6: The City of Piedmont Fire Department has the financial ability to continue to provide
services. The City projects continuing, although slowing, growth in property tax and
other revenues that help fund expenditures. Property related taxes, which include
parcel taxes, represent about 72 percent of City revenues. Anticipated cost increases
for unfunded public safety pension obligations will be managed by the City using
trust funds established for that purpose.
18-7: The Department did not identify opportunities for sharing facilities.
18-8: It is recommended that the Department join fellow Alameda fire providers to develop
a regional, countywide dispatch strategy that employs the closest resource for the
fastest response time, regardless of agency boundaries or responsibility.
Ch. 18: City of Piedmont 418
Policy Consulting Associates, LLC
Alameda Fire Municipal Service Review
Public Review Draft
18-9: The City of Piedmont abides by all legislative obligations for accountability and
governance practices.
18-10: The City of Alameda demonstrated transparency when sharing information for the
creation of this report.
Ch. 18: City of Piedmont 419
Policy Consulting Associates, LLC
Alameda Fire Municipal Service Review
Public Review Draft
The City of San Leandro is one of five cities that contracts with the Alameda County Fire
Department for fire suppression and emergency medical services.
Incorporated in 1872, the City is a culturally and economically diverse community that
continues to grow. Covering approximately 15 square miles, the City is located in what is
considered the east bay region of the San Francisco Bay area, eight miles south of downtown
Oakland and 15 miles southeast of San Francisco. The City is considered a charming, older
suburb with walkable neighborhoods filled with conveniences.
Originally settled by Native Americans, the City of San Leandro eventually became known as
an agricultural region filled with cattle ranches, farmland, and orchards. By the mid-1800s, it
was considered the seat of Alameda County until an earthquake devastated the area and
destroyed the County Courthouse, relocating it to the City of Oakland in 1869. Post-World
War II, the City saw rapid growth and transformation. The population increased 350 percent
in just 20 years, and the economy shifted from agriculture to an industrial center filled with
warehouses, manufacturing jobs, and shopping. This time period set the stage for the modern-
day City of San Leandro.
The City is a charter city with a local government served by a City Manager and a City
Council. There are six council members and a Mayor elected at large to serve staggered four-
year terms. The City of San Leandro provides a variety of services including parks and
recreational services, and public transportation.
The contract between ACFD and the City of San Leandro for fire and emergency services
began in 1995. The department works out of five fire stations throughout the City and allows
for access to a number of specialized response teams.
The City of San Leandro was last included in an MSR Update by the Alameda LAFCO that
was adopted in 2018. There was also a Countywide MSR update for water, wastewater, flood
control and stormwater services completed in 2021. The focus of this MSR is limited to the fire
and emergency medical services provided by the City.
Ch. 19: City of San Leandro 420
Policy Consulting Associates, LLC
Alameda Fire Municipal Service Review
Public Review Draft
Altogether, the City of San Leandro is comprised of 15.4 square miles. This includes 13.3
square miles of land, or roughly 8,500 acres, as well as 2.1 square miles of water along the
San Francisco Bay. Situated 30 miles north of San Jose and 15 miles southeast of San
Francisco, the City is bound by Oakland in the north and by the unincorporated communities
of San Lorenzo and Ashland in the south. The San Francisco Bay lines the western portion of
the City and in the east, it is bounded by the East Bay hills. Figure 19-1 depicts the City's
boundaries and sphere of influence.
Figure 19-1: City of San Leandro Boundaries and SOI
City of San Leandro
Range 03 West Range 02 West
htuoS 20 pihsnwoT
Mecartne
H
y
o l
R
ly
d I
S
sla
t
nd D M r aitland
O
Dr
ak
0
la
H
n
arbor Bay Pky
d
UV 61
0
A
0
irport H
O
D e
a
g r
k
e
p
nb
o
e
r
r
t
g
0 S
er
t Rd
D
S
oo
a
li
n
ttl
e
L
D
e
r
andro
S
A
St
a
C
n
FF
0 L
S UV
e
1 6 0
a
1
n A
9
d C
8t
F r
h
M
o F
A
a
S
S
v
r an i
e
1
n Le
1
a an d B ro
§¨¦
B D l
8
l v vd
8
u A d
0
t C C t
M
o a
a
F
c
n l
a
l F a
r
A
t
n S
h
v
u
A 0
r
e 9
B
v
l
e
W
v
Ba
a
d
n
s
cr
h
of
i
t
n
A
g
ve
ton Ave
A
A
C
UVC
1
F
8
F
F
5
F
S
S
Hesper
1
ian Blvd
1
3
2 F
iar mon
§¨¦
t
58
D
A 0
r
C F F o F o
L
t S h
a
i
k
l 2 l
e
B 4
C
lv
h
d
ab
0
otRd
Castro
Se
V
v
a
e
l
n
le
H
y
i
B
lls
lvd
Red wood Rd
htuoS
30 pihsnwoT 0
0 Grant Ave
Lewe
A
ll
C
in
F
g
F
B
S
lv
2
d
2
UV
UV
238
Grove
Way
185
Bockman Rd 0
Hayward
Alameda County Legend O Alameda County City of San Leandro
S L o o ur c ce a : A l la A m g ed e a n
g i D n
L
e i
A
t
c
s e n
F
c
y
n e
C
l d a r
o
a e
F
im l d
o
d e t i r s o
r
: p
m
b T la e h
a
y e u
t
p s i
i
n u e
o
f
M
r d o p
n a
r o f m
p
o s
C
r
C
a e r t
r
s
o
i e
e
o
a
o f n
m
e
t
n
e
r s l e
d
y
m
h n
1
o a c
/7
n w
i
e
s /
d
2
n a
s 0
i n i s
2
s
i
d
3 on kj A A
F
A
C
C
i
d l l o
r i
a a
t e
j m m m a
y S
c m e e e
o t
d d
a
u n
f
a a
t
n t
i S o
i C C C t
n
i
a
o i o e t
s
u
n
y s u
(
n n B
A L
t t y o y
C e
u
F
B B
a
n
D
o o
n
d u u
C
a
d
n n r
o r
d i d e
n o
a a s
t
r r
r
y i
a
e
c
s
t)
C S o a u n n t F y ranci
S
sco
a
P
C
kj
n
i kj ekj
o
A dE
u
B
M
l m b kj me
n
a
a
o re n
t
A k kjn
t
r
y
ye
e
l ty a O l kjve
o
m a iyl k e le l d a a nd kjSan
kj
L
H
e
a kj
a
y F
n
w r
d
e a m
r
r
o
d o kj n U kjt n N io e n w C a
P
r it k
l
y
C ea o sa nC kj n to t r
A
o D kj au n u
l a
n b C
m
l t i oy n
e
s
d
ta
a C
kj
o
L
u
iv
n
er
t
m
y
ore San Joaquin County
not to be used as an official map. 0 0.5 1 2Miles Santa Clara County
The City of San Leandro does not provide services outside of its boundaries. It does, however,
contract with ACFD who is responsible for the execution of fire suppression and emergency
medical services within its City limits as well as throughout other cities in its District.
Ch. 19: City of San Leandro 421
Policy Consulting Associates, LLC
Alameda Fire Municipal Service Review
Public Review Draft
There have not been any areas identified as unserved by either the City of San Leandro or
ACFD. ACFD indicates it is able to provide services throughout the bounds of the City of San
Leandro with its access to five fire stations located within the City.
The City of San Leandro's city limits and SOI are contiguous, with areas of the planning area
extending beyond the City limits in the east and southeast. These portions of the sphere
located outside of the City limits include the unincorporated areas of Ashland, Hillcrest Knolls,
parts of the Castro Valley, and open land.463 The City of San Leandro has not made an effort
to annex Ashland or the western Castro Valley; however, it has expressed interest in amending
the SOI to include the former San Leandro Rock Quarry, which is east of the City.464 The
current SOI for the City of San Leandro was last reaffirmed on January 12, 2018.
Accountability of a governing body is signified by a combination of several indicators. The
indicators chosen here focus on 1) agency efforts to engage and educate constituents through
outreach activities, in addition to legally required activities such as agenda posting and public
meetings, 2) a website with the required content and other useful information, 3) timely ethics
training for board members and an adopted reimbursement policy, 4) a defined complaint
process designed to handle all issues to resolution, 5) adopted bylaws that provide a framework
and direction for governance and administration, 6) adoption of a conflict-of-interest code as
required by law, 7) proper filing of Form 700 by the governing body members, and 8)
transparency of the agency as indicated by cooperation with the MSR process and information
disclosure at meetings, in documents and on a website.
The City of San Leandro has a government structure with a City Manager and a City
Council. There are six City Council Members based in six districts, in addition to the Mayor.
Each is elected at large to serve staggered four-year terms. Current council member names,
positions, and term expiration dates are shown in Figure 19-2.
The governing body meets regularly on the first and third Monday of each month at 6:30 pm
in the City Council Chamber at 835 E. 14th Street. Work session meetings are held at 6:30
pm on the second Monday of every month and the fourth Monday as necessary. Meetings are
463 City of San Leandro, General Plan, p. 1-4, 2015
464 City of San Leandro, General Plan, p. 3-104, 2015
Ch. 19: City of San Leandro 422
Policy Consulting Associates, LLC
Alameda Fire Municipal Service Review
Public Review Draft
live-streamed on the City's Council Meeting Agendas Page of the City's website and through
public access TV on Comcast channel 15 and AT&T U-verse channel 99. Agendas are made
available online, posted outside City Hall, or by contacting the City Clerk's office before each
meeting. Board actions and meeting minutes are available online and through the City Clerk's
office. The City also discloses finances, plans, and other public documents online.
Figure 19-2: City of San Leandro Governing Body
governing body
Manner of Selection Elections at large
4-year staggered terms for council members and
Length of Term
Mayor, each with a 2-term limit
First and third Monday each month
City Council Chamber
Meetings 835 E. 14th Street, City of San Leandro, CA 94577
Also streamed on the City's website, Comcast
channel 15, and AT&T U-verse channel 99
Posted online, posted at City Hall, and via the City
Agenda Distribution
Clerk
Minutes Distribution Posted online, and via the City Clerk
council members
Term Manner of
Member Name Position Expiration Selection Length of Term
Juan Gonzalez III Mayor 2026 Elected 4 Years
Council Member,
Celina Reynes District 1 2026 Elected 4 Years
Vice Mayor,
Council Member
Bryan Azevedo District 2 2024 Elected 4 Years
Council Member,
Victor Aguilar Jr. District 3 2026 Elected 4 Years
Council Member,
Fred Simon District 4 2024 Elected 4 Years
Council Member,
Xouhoa Bowen District 5 2026 Elected 4 Years
Council Member,
Pete Ballew District 6 2024 Elected 4 Years
contact
Contact Fran Robustelli, City Manager
Mailing Address 835 E. 14th Street, City of San Leandro, CA 94577
Phone 510-577-3319
frobustelli@sanleandro.org
Email/Website
www.sanleandro.org
Ch. 19: City of San Leandro 423
Policy Consulting Associates, LLC
Alameda Fire Municipal Service Review
Public Review Draft
In cooperation with ACFD, the City of San Leandro participates in various community
outreach events related to fire and emergency services, such as CPR and fire extinguisher
training and a community disaster preparedness program. ACFD also organizes community
and school educational programs, which stress the importance of fire prevention and juvenile
fire setter intervention.
As of 2021, all of the City of San Leandro's council members have filings for Form 700 with
the California Fair Political Practices Commission, indicating transparency in their economic
interests.
Through its Community Care Initiative, all complaints concerning the City of San Leandro or
any of its employees are investigated, and a response is provided to the complainant.
Constituents may file complaints in several ways, including online and by phone. There is also
a 311 mobile application and a website called MySL, where residents may report maintenance
issues. All complaints are handled by the appropriate department and overseen by the City
Manager as needed.
There is also legislation in effect to help ensure special districts adhere to accountability
standards. One, California AB 2257 (Government Code §54954.2), is an update to the Brown
Act and indicates requirements for methods by which an agenda for all meetings should be
made available on an agency's website. The City of San Leandro is in compliance with each of
these regulations.
The City of San Leandro demonstrated accountability in its disclosure of information and
cooperation with the LAFCO questionnaires and other requests for information.
While public sector management standards vary depending on the size and scope of the
organization, there are minimum standards. Well-managed organizations evaluate employees
annually, track employee and agency productivity, periodically review agency performance,
prepare a budget before the beginning of the fiscal year, conduct periodic financial audits to
safeguard the public trust, maintain relatively current financial records, conduct advanced
planning for future service needs, and plan and budget for capital needs.
The City accounts for its fire and emergency services in several of its planning and
management documents, particularly in the annual budget and General Plan. However, as
ACFD's services are contracted, the department abides by its own planning and management
practices as outlined below.
Ch. 19: City of San Leandro 424
Policy Consulting Associates, LLC
Alameda Fire Municipal Service Review
Public Review Draft
The ACFD's FY 21 budget indicates it has 559 authorized positions. This is an increase of 12,
year over year, since the 2019 fiscal year. Of these 559 positions, 511.42 are considered full-
time equivalents for management and non-management positions. Additionally, the department
indicates it has 100 reserve firefighters to help fulfill various services offered. The Fire Chief
oversees four branches–Operations, Communications and Special Operations, Administrative
Support Services, Fire Prevention and Community Outreach. Each branch has its own
divisions. The Training division falls under the Operations branch, the EMS, Information
Technology, and Special Operations divisions are part of the Communications and Special
Operations branch, and the divisions for Fleet Management, Financial Services, Facilities, and
Human Resources are part of the Administrative Support Services Branch.
The Fire Chief provides leadership and management overall. The Deputy Chief for Operations
oversees the training division, three Operation Divisions, and the reserve program. The
Administrative Services Director oversees Administrative Support Services by managing
contracts and services, facilities, financial services, fleet management, and human resources.
The Deputy Chief for Communications and Special Operations manages the Alameda County
Regional Emergency Communications Center (ACRECC), EMS, information technology,
Alameda County Operations Area & California Incident Command Certification Center
(CICCS), and Special Operations.
ACFD, as a component of the Alameda County government, is required to conduct value-
based budgeting. The goals of this process involve funding agreed-upon service levels,
identifying revenues and expenditures as one-time or continuing, and maintaining adequate
contingency and reserve funds.
ACFD battalion chiefs evaluate the operations of their respective battalions on an ongoing
basis. ACFD also conducts annual personnel evaluations. Managers annually review goals and
objectives for the coming year and goal achievements for the previous year. ACFD monitors its
workload through the chief officer's performance reviews, identifying staffing and resource
deficiencies.
ACFD has set policy goals and objectives to ensure fire service efficiency and effectiveness.
ACFD aims to provide emergency response and incident management for fires, rescues,
medical emergencies, hazardous materials incidents, and disasters to all Alameda County
citizens and to ensure that local, State and federal mandated and discretionary service levels
are maintained within the communities served.
Ch. 19: City of San Leandro 425
Policy Consulting Associates, LLC
Alameda Fire Municipal Service Review
Public Review Draft
The County manages ACFD's finances. County financial planning documents include an
annual budget and Comprehensive Annual Financial Report (CAFR). In addition, ACFD has
financial statements audited annually. The County's Capital Improvement Plan (CIP) includes
the District's capital needs. ACFD adopted a Fire and Emergency Services Strategic Business
Plan; the most recent update was for 2015-2019. Additionally, the District participates in the
Region II plan for the Office of Emergency Services.
The City of San Leandro also has a work plan in place to review services provided by ACFD.
These management practices are largely outlined in the City's contract with ACFD, which is
executed on a continuous term. Response times and response levels are indicated in this
contract and are tools for measuring satisfactory service levels. The City agrees to cooperate
with ACFD to forecast staffing needs as necessary based on population growth and
development plans and analyze employee turnover and attrition to meet hiring demands. The
Fire Chief is designated to act as the direct liaison to the City Manager and is obligated to
attend, or provide a representative to attend, meetings as requested, including City Council
meetings, and to discuss the budget, operations, and other topics as necessary. The ACFD
Fire Marshall must attend all the required meetings relating to the City's ability to meet its fire
prevention needs. As a means of accountability and transparency, ACFD also provides
requested reports to the City Manager, takes part in yearly audits of financial performance,
must provide written notice of service level changes, and allows two City representatives to be
a part of the ACFD Advisory Fire Commission.465
A critical component of the City of San Leandro's planning documents is its Climate Action
Plan (CAP), which serves as a comprehensive strategy to reduce greenhouse gas (GHG)
emissions and adapt to changing climate conditions. The City's current CAP, adopted in 2021,
is an update to the City's previous 2009 plan and provides updated information, an expanded
set of GHG reduction strategies, climate adaptation strategies, and a planning horizon of
2050. The plan outlines the City's goal of achieving emissions reductions of 40 percent below
2005 levels by 2030 and 80 percent below 2005 levels by 2050.466
This section discusses the factors affecting service demand, such as land uses and historical
and anticipated population growth.
465 ACFD, Agreement between the City of San Leandro and ACFD Regarding Fire and Emergency Response Services,
Beginning September 20, 2005.
466 San Leandro 2021 Climate Action Plan, July 2021, p. ES-1 – ES-2.
Ch. 19: City of San Leandro 426
Policy Consulting Associates, LLC
Alameda Fire Municipal Service Review
Public Review Draft
When development plans are processed, ACFD reviews plans and works with planning staff
from the County or affected city to ensure that fire codes are met, and fire access and other
issues are addressed as conditions of approval. The impacts of emergency fire and medical
services are also addressed as part of any environmental review prepared for a development
project. ACFD utilizes a collaborative process with local jurisdictions to forecast fire service
needs so that local needs and trends can be identified, and service trends developed.
The City of San Leandro consists of approximately 8,500 acres of land. The entirety of the
City is essentially built out and nearly half of this space is for existing residential use. There are
roughly 1,360 acres of industrial use land which represents the next largest land use in the City
at almost 20 percent. Parks and open spaces represent roughly 1,000 acres which is
approximately 14 percent of land uses. The 2015 GP states that only 2.6 percent of land is
vacant. There is an average residential density of 9.5 units per acre with most higher density
housing, that can be as high as 90 units per acre, located near the Downtown area.
Single family detached homes represent 2,600 acres of land in the City. While there is retail
space in the downtown area, the largest amount of commercial retail acreage is located along
East 14th Street, Washington Avenue, MacArthur Boulevard and Marina Boulevard. Industrial
uses are primarily situated in the west and northwest regions of the City as well as in the
central portion east of I-880 and south of Marina Boulevard. Most of the public and
institutional space within the City of San Leandro, which accounts for six percent of land use,
is scattered throughout various neighborhoods. Parks and open space comprise over 14 percent,
or roughly 1,000 acres, of the land use in the City. Of this acreage, approximately 450 acres
consist of wetlands in the southwest side of the City.
There exist three square miles in the east and southeast of the San Leandro Planning Area
that is beyond the City's bounds in unincorporated Alameda County. The City of San Leandro
has the responsibility of advising the County of its land use. There are several land use
objectives for this region, including the potential to annex the City's former rock quarry into its
SOI, and collaborating with the City of Oakland about areas of mutual concern.467
According to the California Department of Finance's US Census results, the City of San
Leandro has a population of 91,008 as of April 1, 2020. The population has mostly seen steady
467 City of San Leandro, General Plan, p. 3-106, 2015
Ch. 19: City of San Leandro 427
Policy Consulting Associates, LLC
Alameda Fire Municipal Service Review
Public Review Draft
growth year after year, with a marked increase of more than double between 1950 and 1960.
The City represents roughly 23 percent of the ACFD's territory based on the 2022 population
estimates within the District. This is a population increase of 6,058, or just over six percent,
since 2010, as seen in Figure 19-3. The median household income for the City is $86,604.
Roughly 65 percent of the population over 16 years of age is in the labor force and 83 percent
of the population over age 25 holds a high school degree or higher.
Figure 19-3: City of San Leandro Population, 2010-2022
City of San Leandro Population 2010-2022
95,000
90,000
85,000
80,000
75,000
70,000
4/1/10 1/1/11 1/1/12 1/1/13 1/1/14 1/1/15 1/1/16 1/1/17 1/1/18 1/1/19 1/1/20 1/1/21 1/1/22
Based on the Association of Bay Area Governments (ABAG) growth projections, the total
population of the City of San Leandro is expected to increase by slightly more than five
percent between 2020 and 2030. In contrast, the entire area within ACFD is anticipated to
grow by an average annual growth rate of 0.8 percent by 2035. Increases in the number of
housing units and jobs are also expected. ABAG data shows the total number of housing units
is projected to grow by roughly five percent between 2020 and 2040 to 36,920, and the total
number of jobs is also projected to increase by just over eight percent, or roughly 4,915, in that
same timeframe.
The City of San Leandro is mostly built out with limited availability of vacant land. Vacant
space is concentrated in industrial areas near the City's significant arterials, with some
vacancies in the San Leandro Hills. Eight acres at the north end of Preda Street are already
Ch. 19: City of San Leandro 428
Policy Consulting Associates, LLC
Alameda Fire Municipal Service Review
Public Review Draft
committed to residential development. Otherwise, most development opportunities will rely on
land that has not been developed to its full potential or underutilized commercial and industrial
properties; however, the City states this potential can vary depending on the definition of what
is underutilized and based on other environmental and design challenges.
The City has identified various areas of planned and proposed developments. In 2017, the City
of San Leandro established an Opportunity Zone Dashboard to track community development
that provides tax incentives for such investments. One Opportunity Zone is the Bay Fair
Transit Oriented Development which encompasses 154 acres of largely retail and commercial
uses. Described as a higher-density mixed-use transit village near the BART Station, there is a
Bay Fair TOD Specific Plan to support the long-term vision of this project. Another highlighted
Opportunity Zone is the 30-acre San Leandro Business Center which would be an industrial
use development. The City has also stated it would like to prioritize the Monarch Bay Shoreline
Development Project, which is proposed to add 500 housing units, a hotel, two restaurants, a
public park, and a library. There are also plans for additional residential, commercial, and
industrial spaces already underway, such as the Parrott St. Apartments. These projects would
impact service demand and fire and emergency response access due to the aforementioned
growth predicted in these areas.
Many of the development projects within the City of San Leandro are intended to develop its
publicly owned shoreline with housing options as well as retail and other commercial space.
Significant development projects are shown in Figure 19-4. These plans are part of the Bay Fair
Transit-Oriented Development Plan, which aims to create a sustainable, walkable community
hub with convenient access to many mixed-use spaces.
Figure 19-4: City of San Leandro Planned or Proposed Development Projects, 2023
city of san leandro development projects
project # of dwelling units commercial square feet
Washington Ave. Apts. 72
E. 14th St. Housing 221
Loro Landing 62
Maplelane 39
Alvarado-Antonio 687
Poppy Lane 18
Bancroft Housing 42
Bay Fair 497
Town Hall Square 180
Centro Callan 196
268 Parrott Street 26
Multi-restaurant 10,600
Sl Tech Campus 396,000
Creekside Plaza 77,000
Ch. 19: City of San Leandro 429
Policy Consulting Associates, LLC
Alameda Fire Municipal Service Review
Public Review Draft
total 2,040 483,600
ACFD stated that collaboration with the City of San Leandro, as well as the other cities in its
service area, will be vital to be able to meet demand through continued periods of growth. This
will include communicating forecasted needs based on analysis of the City's population
projections, development plans, and employee turnover and attrition in order to estimate
staffing needs.
Per the Census Designated Places (CDP), as of 2021, there are no disadvantaged
unincorporated communities (DUCs) that meet the basic, State-mandated criteria within the
ACFD's service area, including the City of San Leandro.
The City of San Leandro Fire Department has the financial ability to continue to provide
services. Its contract with ACFD has grown at a moderate rate slightly lower than other
Citywide services, helping the City to manage reduced revenues during COVID-19. Although
the City drew on its reserves during the pandemic, it still retains healthy reserves and
anticipates future economic growth and fiscal stability.
From FY2017-18 through FY2021-22 the Fire Department's expenditures grew at a 3.2 percent
annual average rate, comparable to the rate of inflation over that period.468 Contract services
from the Alameda County Fire Department (ACFD) represent nearly the entire fire
department budget with the exception of periodic capital and equipment related expenditures.
EMT reimbursements from Alameda County ($679,000 in FY2021-22) partially offset
expenditures.
468 City of San Leandro City Manager's Proposed Budget Fiscal Years 2022 and 2023; City Council's Adopted Budget Fiscal
Years 2020 and 2021.
Ch. 19: City of San Leandro 430
Policy Consulting Associates, LLC
Alameda Fire Municipal Service Review
Public Review Draft
Fire department funding from the City's General Fund represents the balance of needed funds.
The City's General Fund has experienced annual revenue growth averaging 2.5 percent that
has been slower than continuing average annual expenditure growth of 4.4 percent from
FY2017-18 through FY2021-22. Budget shortfalls caused by COVID-19 have been mitigated
through the use of fund balances and reserves, and funding from the federal government's
American Rescue Plan. The City projects long-term improvements in its fiscal stability from
ongoing economic developments and related increases in the City's economic base and tax
revenues.
The City allocates its unrestricted fund balances towards major emergencies, economic
uncertainty, and other potential future uses. As of June 30, 2021, the City's fund balances
totaled approximately $66 million, or about 45 percent of General Fund expenditures, a "high"
level of reserves.
Since 1995, the City of San Leandro has contracted with ACFD to provide fire suppression,
fire prevention, and emergency medical services such as fire inspection, public education,
wildland and hazardous materials response, and paramedic services. Three specialized response
teams are available to the City through ACFD: the hazardous materials unit, the urban search
and rescue unit, and the water rescue team unit. Figure 19-5 details the services provided by
ACFD. If another agency offers a service, it is indicated in the figure.
Figure 19-5: City of San Leandro Fire Services
service agency
fire suppression services
Structural Fire Protection Alameda County Fire Department
Wildland Fire Protection Alameda County Fire Department
Vehicle Fire Protection Alameda County Fire Department
Ladder Truck Capabilities Alameda County Fire Department
Fire Suppression Hand Crew CAL FIRE
Fire Suppression Dozer Alameda County Fire Department
Helicopter Services – Fire Suppression CAL FIRE
Ch. 19: City of San Leandro 431
Policy Consulting Associates, LLC
Alameda Fire Municipal Service Review
Public Review Draft
Boat With Fire Suppression Capabilities Berkeley Fire Department
emergency medical services
Basic Life Support Provider Alameda County Fire Department
Advanced Life Support – Non-Transport Provider Alameda County Fire Department
Advanced Life Support Transport Provider Alameda County Fire Department
Continuing Education Provider – Medical Alameda County Fire Department
Air Ambulance Transport Helicopter Services Reach Air Medical Services
Helicopter Landing Facilities On Site N/A
Vehicle Extrication Tools/Equipment Alameda County Fire Department
fire prevention
Fire Safety Education – Children Alameda County Fire Department
Fire Safety Education – Adults/Seniors Alameda County Fire Department
Juvenile Firesetter Prevention Program N/A
Fire and Life Safety Business Inspection Program Alameda County Fire Department
Fire Protection Planning Alameda County Fire Department
New Commercial Construction Plan Reviews Alameda County Fire Department
Public Education Provider (CPR, First Aid, etc.) Alameda County Fire Department
Home Fire/Safety Inspections N/A
Fire Origin and Cause Investigations Alameda County Fire Department
Fuel Reduction/Weed Abatement Program Alameda County Fire Department
Smoke Detector Giveaway/Installation Program Alameda County Fire Department
Address Sign Installation Program N/A
rescue services
First Responder Swift Water Rescue Program Alameda County Fire Department
Water Rescue Program Alameda County Fire Department
Ice Rescue Program U.S. Coast Guard
Dive Rescue Program Alameda County Sheriff's Office
Low angle Rope Rescue Program Alameda County Fire Department
Helicopter Short/Long Haul Rescue Capabilities California Highway Patrol
Response to Boating Accidents Alameda County Fire Department
Rescue Dog Services Alameda County Fire Department
hazardous materials
Hazardous Materials Emergency Response –
Basic Alameda County Fire Department
Ch. 19: City of San Leandro 432
Policy Consulting Associates, LLC
Alameda Fire Municipal Service Review
Public Review Draft
Hazardous Materials Response Team Alameda County Fire Department
support services
Firefighter Incident Support Unit Alameda County Fire Department
Mobile Incident Command/Communications
Unit Alameda County Fire Department
Fill Station for Self-Contained Breathing
Apparatus Alameda County Fire Department
Mobile Breathing Support Unit Alameda County Fire Department
Community Emergency Response Team Alameda County Fire Department
Chaplain Services Alameda County Fire Department
Training Academy Alameda County Fire Department
Emergency Operations Center Capabilities Alameda County Fire Department
miscellaneous
Public Service Assists Alameda County Fire Department
Motor Vehicle Accident Response Alameda County Fire Department
Alameda County Fire Department with local
Welfare Checks Police Departments
Public Safety Answering Point Alameda County Fire Department
Fire/EMS Dispatch Alameda County Fire Department
Fundraising Activities Alameda County Fire Department
Firefighters Association – Non-Profit Alameda County Fire Department
Auxiliary Association Alameda County Fire Department
The City of San Leandro is one of several agencies that collaborate with ACFD. In addition to
contracting with the cities of Dublin, Emeryville, Newark, and Union City for fire suppression
and emergency services, ACFD has an automatic aid agreement with the City of Oakland,
the City of Tracy, the San Ramon Valley Fire Protection District, and the Livermore-
Pleasanton Fire Department. ACFD also has a mutual response agreement with the Oakland
Fire Department to provide coverage to the Bay-O-Vista area and the South Oakland Hills. A
shared automatic aid agreement exists for providing service to Interstates 580, 880, and 680.
There is also a State Mutual Aid Plan and a countywide mutual aid agreement for all fire
departments in Alameda County.
Additionally, ACFD collaborates with the County to receive a variety of administrative services
and to work in conjunction with the Alameda County Sheriff's Department and Alameda
Ch. 19: City of San Leandro 433
Policy Consulting Associates, LLC
Alameda Fire Municipal Service Review
Public Review Draft
County Emergency Medical Services. ACFD and California's Office of Emergency Services
also have an agreement for dispatch needs.
Regionally, ACFD's collaborations include participating in the governance of the dispatch
center in Livermore through the County Advisory Board. ACFD firefighters who are specially
trained can be dispatched nationwide to assist with disaster response.
The California Department of Forestry and Fire Protection (CAL FIRE) augments fire services
throughout the State. Generally, CAL FIRE services are focused in wildland areas defined as
State Responsibility Areas (SRA). In conjunction with ACFD, CAL FIRE is utilized for hand
crew services and helicopter services for fire suppression. ACFD also works hand-in-hand with
local police departments for welfare checks as well as the California Highway Patrol, the
County's Sheriff's office, and the Coast Guard for assistance with rescue efforts.
For FY 20, ACFD stated there were a total of 42,363 service calls overall. This is a steady 19
percent increase since FY 13. Of those calls, 10,228, were for the City of San Leandro which
accounts for 25 percent of the total. The call types are broken down in Figure 19-5.
Between 2014 and 2016, the most recent analysis period for the Standards of Cover, the
number of incidents per year for all of the stations in the City was 3,008. This represents
roughly 52 percent of total incidents for all ACFD stations. Based on the top ten stations with
the most incidents, half of these stations are in the City of San Leandro, with Station 24
comprising the most incidents during the 2014-2016 timeframe with 1,032. Figure 19-6 shows
the number of calls for FY 20 for each type of service for the City.
Figure 19-6: City of San Leandro Service Calls by Type, 2020
2019-2020 service calls by type for contract agencies
Structure Other Hazardous Service Good False Cancelled
Fires Fires EMS/Rescue Condition Calls Intent Call Enroute Total
San
Leandro 131 176 7,004 177 869 593 519 759 10,228
ACFD is responsible for staffing its Department to provide services to the City of San Leandro
directly. ACFD follows minimum daily staffing requirements per unit. These standards include
Ch. 19: City of San Leandro 434
Policy Consulting Associates, LLC
Alameda Fire Municipal Service Review
Public Review Draft
3-4 firefighters per day for Engine Units, Aerial Ladder Truck Companies and Quints, and four
firefighters per Technical Rescue Unit. These staffing guidelines ensure an Effective Response
Force for serious fires and wildland areas and a multiple-unit force (first alarm response)
designed to contain the emergency without the need for greater alarms.
ACFD's objectives include personnel trained and ready for emergency response 100 percent of
the time and responding to all calls for service within the service area. The Department states
that newly hired paid firefighters are required to have Firefighter Recruit Academy training,
although the monthly training hours for firefighters vary.
ACFD provides education for staff that meets State mandated requirements for Emergency
Medical Technicians and Paramedics, and the staff also assists in enforcing State and local fire
codes and standards through the review and approval of building and facility plans.
Community service objectives for ACFD staff include coordination of public education, events,
and disaster operation activities within the communities served. The City's GP, however, has
indicated a goal to restore staffing levels beyond those of ACFD in an effort to adequately
provide emergency preparedness training and education. This is particularly relevant as the
City of San Leandro is located on the Hayward Fault and is at an increased risk of wildland
fires. 469
The following information is specific to ACFD's operations within the City of San Leandro. For
more details about ACFD's facilities, see chapter four.
The City of San Leandro is home to six of 29 ACFD fire stations throughout the District.
These stations are shown in Figure 19-7. There is also a fire prevention bureau within the City
of San Leandro, as there is one within each agency that contracts with ACFD.
Figure 19-7: City of San Leandro Fire Facilities
acfd facilities
Facility Address Owner Year Built Condition
450 Estudillo
Ave., San
Station 9 Leandro, CA City of San
(formerly station 1) 94577 Leandro Not provided Not provided
Station 10 2194 Williams St.,
(formerly station San Leandro, CA City of San
2) 94577 Leandro Not provided Not provided
469 City of San Leandro, 2015 General Plan, p. 6-14, 6-4.
Ch. 19: City of San Leandro 435
Policy Consulting Associates, LLC
Alameda Fire Municipal Service Review
Public Review Draft
Station 11 14903 Catalina
(formerly station St., San Leandro, City of San
3) CA 94577 Leandro Not provided Not provided
Station 12 1065 143rd Ave.,
(formerly station San Leandro, CA City of San
4) 94577 Leandro Not provided Not provided
Station 13 637 Fargo Ave.,
(formerly station San Leandro, CA City of San
5) 94577 Leandro 1953 Not provided
1430 164th Ave.,
San Leandro, CA City of San
Station 24 94578 Leandro Not provided Not provided
835 East 14th
Street, San
San Leandro Fire Leandro, CA City of San
Prevention Office 94577 Leandro Not provided Not provided
890 Lola St., San
Leandro, CA City of San
Training Facility 94577 Leandro Not provided Not provided
Of the fire stations within the City of San Leandro, Station 11 currently serves the largest area
at approximately four-square miles. It hosts an engine company and is responsible for water
rescue for the San Francisco Bay. Its rigid hull boat is kept at the San Leandro Marina.
Station 12 houses both an engine and truck company but also contains the HazMat Response
vehicles and the Battalion Chief for Battalion four. The City is also home to a training facility
consisting of a four-story cement tower, a one-story wooden residence-type structure, auto
extrication training capabilities, as well as other areas such as a classroom and office area. The
City of San Leandro has the largest number of critical facilities and infrastructure of all five of
ACFD's contracted cities with 43. This is notable as inaccessibility issues or damage during a
significant emergency could impact service.
According to the 2017 Standards of Cover Risk Assessment (SOC), none of the City's engine
or ladder companies approach maximum thresholds for unit-hour utilization, indicating
additional units do not need to be added during peak hours at this time. Station 12 was the
only station within the City to exceed five minutes (5:37 minutes) of travel time to a call which
is slightly over the four-minute goal for best practices. However, this is a typical response time
amongst all ACFD stations, with only one station being under the four-minute threshold.470
470 Alameda County Fire Department, Volume 2 of 3 Technical Report Standards of Coverage Review, p. 47, 9/1/17.
Ch. 19: City of San Leandro 436
Policy Consulting Associates, LLC
Alameda Fire Municipal Service Review
Public Review Draft
There are a few ways the City of San Leandro communicates with residents to transmit
important health and safety information. These methods include broadcasting emergency
messages over public access television channels Comcast channel 15 and AT&T U-Verse
channel 99, local radio channel AM 1610, and utilizing its multiple social media channels such
as Facebook, Twitter, Linkedin, Nextdoor, and Youtube.
ACFD is responsible for coordinating dispatch communications for the City's service calls. The
regional 9-1-1 dispatching center is known as the Alameda County Regional Emergency
Communications Center (ACRECC) and is housed at the Lawrence Livermore National
Laboratory (LLNL) along with the Alameda County Fire Communication Center (ACFCC).
ACRECC currently dispatches fire and medical calls for ACFD, the U.S. Army at Camp
Parks Combat Support Training Center in Dublin, the cities of Alameda, Fremont, Livermore,
and Pleasanton, and the County EMS transport provider Paramedics Plus ambulance service.
The Consortium, now known as the Advisory Board, is managed by a governing board made
up of participating agencies. Each agency pays an annual amount with costs apportioned
based on call volume as outlined in each contract for service.
Given that 9-1-1 calls may relate to a policing, fire, or medical emergency, the telephone
provider first routes the calls to the public safety answering point (PSAP) dispatcher. The first-
response dispatcher immediately determines the type or need of the call and routes all fire and
medical 9-1-1 calls to the ACRECC. The ACRECC simultaneously dispatches ACFD and the
County EMS transport provider for ambulance transport services.
As previously mentioned, ACFD contracts with four agencies in addition to the City of San
Leandro for fire and emergency response services. To do this, it shares personnel, dispatching
services, and facility resources as necessary, not specifically in relation to the City.
Consolidating facilities and shifting personnel is not uncommon, for instance, Station 8
firefighters having been relocated to Station 20, which is the Lawrence Livermore National
Laboratory site. Another example is that Station 15 currently houses ACFD Reserve
Firefighters, apparatus and equipment even though it was previously the Office of Emergency
Services and Dougherty Regional Fire Authority Station 3.471
471 Alameda County Fire Department, https://fire.acgov.org/AboutUs/facilities.page?, page accessed 3/9/22.
Ch. 19: City of San Leandro 437
Policy Consulting Associates, LLC
Alameda Fire Municipal Service Review
Public Review Draft
An ACFD goal is to pursue regional cooperation and consolidation of services. ACFD views
dispatch, administration, and the operations division as areas that would benefit from greater
regional collaboration.
ACFD reports that collaboration with regional transport companies, in conjunction with other
fire agencies and municipalities, to establish a fire-based ambulance transport model would
particularly improve efficiencies in service delivery, especially EMS delivery.472
The City of San Leandro has made various improvements and purchases to support its
facilities in recent years. This has included the purchase of a fire pumper truck, two fire
engines, completing a parking lot project for Station 13, and replacing two fire stations rather
than funding a seismic retrofit of existing stations. Looking forward, funded projects currently
affecting fire and emergency response facilities include replacing the HVAC equipment at
Station 12 and most notably, replacing Station 13 with a new 6,000 square foot facility due to
lack of space and heavy use over nearly 70 years.473
There are also capital improvement projects specific to ACFD in the County's Annual Capital
Improvement Plan (CIP). For more information, refer to chapter 4.
The City of San Leandro, like many other cities, noted a challenge being faced is managing
the City's service needs while facing increasing costs and the need to grow revenue,
particularly in light of the COVID-19 pandemic as a result of the unprecedented impact on
businesses, unemployment, and revenues. Still, there are several active development projects,
especially in terms of shoreline development throughout the City which affects fire and
emergency response, most noticeably due to traffic congestion. As stated in the service
adequacy section, the SOC has indicated that various response times could be improved,
although none are presently passing a threshold to necessitate additional stations or units be
implemented.
This section reviews indicators of service adequacy, including response times, ISO rating, and
complaints received. There are many measures of a successful fire protection service. For
472 Alameda County Fire Department, SoGo Survey Responses, July 2021
473 City of San Leandro, CIP FY20-21, p. 260
Ch. 19: City of San Leandro 438
Policy Consulting Associates, LLC
Alameda Fire Municipal Service Review
Public Review Draft
example, the agency would meet guidelines established by the National Fire Protection
Association (NFPA), the Center for Public Safety Excellence (CPSE) (formerly the
Commission on Fire Accreditation International), and the California EMS Agency. There are
also Public Protection Classifications (PPC) and Insurance Services Office (ISO) ratings that
likewise establish an agency's level of service.
ACFD has not indicated whether any complaints regarding fire service for the City were
received in FY 21.
Each of ACFD's contract cities abides by individualized performance measures according to its
agreement. See Figure 19- 8 for agreed-upon response times between ACFD and the City of
San Leandro.
Figure 19-8: Response Time Policies by Contract City
response times for acfd and contract cities
Agency Name Single Unit Incident Multiple Unit Incident
Arrival of first due company within 5
minutes from when they are first
dispatched for 90 percent of incidents.
Arrive within 5 minutes from
Remaining units in first alarm
the time the Company is first
City of San Leandro assignment should arrive on the scene
dispatched for 90 percent of all
of an incident within 10 minutes or less
incidents.
from when the first due company begins
responding for 90 percent of all
incidents.
Based on the City's five-minute standard for arrival after dispatch, all the City of San Leandro
stations exceeded the limit by over one minute as of 2017.279 However, ACFD has its own
response time measures that it reports to the County, the fire commission, and the contract
cities. There are four specific response times based on the status of a call and the guidelines
are based on NFPA 1710 standards for fire departments. ACFD does meet its performance
goal of having the first unit on scene within 7:30 minutes of the fire dispatch call pick-up 90
percent of the time.
The most recent risk assessment for ACFD was released in 2017. This report shows that the
number of incidents per year for Stations 9 and 10 increased significantly between 2014 and
2016 by 23 percent and 54 percent, respectively. Station 10 nearly saw a doubling of incidents
between 2014 and 2015 alone, increasing from 36 to 66. Stations 11, 12, and 13 had a relatively
steady number of incidents, with an overall decrease in the same timeframe. Station 9 had, by
far, the highest total number of incidents, with 959, while Station 11 had the least, with 26.280
Ch. 19: City of San Leandro 439
Policy Consulting Associates, LLC
Alameda Fire Municipal Service Review
Public Review Draft
For more specific information related to the Department's overall service adequacy, please refer
to Chapter 4.
Ch. 19: City of San Leandro 440
Policy Consulting Associates, LLC
Alameda Fire Municipal Service Review
Public Review Draft
19-1: The City's current population is 91,008. Continued growth is expected and is likely
to affect service adequacy in the future.
19-2: The City of San Leandro is essentially built out. Any future growth is primarily
focused on the area near the BART station, such as the Bay Fair TOD, and on
shoreline development.
19-3: There are currently no DUCs identified within the City of San Leandro and no SOI
amendments are recommended at this time.
19-4: ACFD is currently able to provide adequate services and service response times to
the City of San Leandro. These measures will need to be continually reevaluated
based on population projections and anticipated development to ensure facility and
infrastructure needs are met.
19-5: The primary infrastructure need is completing the replacement of Fire Station 13.
19-6: The City of San Leandro Fire Department has the financial ability to continue to
provide services. Its contract with ACFD has grown at a moderate rate, slightly
lower than other Citywide services, helping the City to manage reduced revenues
during COVID-19. Although the City drew on its reserves during the pandemic, it
still retains healthy reserves and anticipates future economic growth and fiscal
stability.
19-7: Because the City of San Leandro contracts with ACFD, there are no identified
opportunities for shared facilities specifically relating to the City.
19-8: ACFD has outlined and should fulfill its effort to establish a fire-based ambulance
transport model. This would improve efficiency of service and create an alternative
revenue stream for the Department.
Ch. 19: City of San Leandro 441
Policy Consulting Associates, LLC
Alameda Fire Municipal Service Review
Public Review Draft
19-9: It is recommended that the Department join fellow Alameda fire providers to
develop a regional, countywide dispatch strategy that employs the closest resource
for the fastest response time, regardless of agency boundaries or responsibility.
19-10: The City of San Leandro abides by all legislative obligations for accountability and
governance practices.
19-11: The City of San Leandro demonstrated transparency when sharing information for
the creation of this report.
19-12: No governance structure alternatives specific to the City of San Leandro were
identified over the course of this review, however, ACFD, in contract with the City,
has a goal to pursue regional cooperation and consolidation of services. ACFD
views dispatch, administration, and the operations division as areas that would
benefit from greater regional collaboration.
Ch. 19: City of San Leandro 442
Policy Consulting Associates, LLC
Alameda Fire Municipal Service Review
Public Review Draft
The City of Union City is one of five cities that contracts with the Alameda County Fire
Department (ACFD) for fire suppression and emergency medical services.
Incorporated as a general law city in 1959, the City of Union City was the result of joining the
Cities of Alvarado and Decoto.474 Located in the "East Bay" of the San Francisco Bay area, it
is along the I-880 corridor in the Silicon Valley. Situated roughly 20 miles north of San Jose
and 20 miles south of the City of Oakland, it is primarily comprised of low-density residential
housing and provides easy access to regional transportation options.475
As of the 2020 US Census, the City had a total recorded population of 70,143.476 Rooted in
diversity, over 45 percent of its residents were born outside the United States. While more than
90 percent of the workforce commutes outside of City bounds for employment, the City of
Union City is still home to a growing number of industries ranging from retail and warehousing
to technology and the medical field, with Walmart being one of the biggest employers in the
area.477 478
The City of Union City is served by a City Council and City Manager. It provides various
services, including parks, youth and family services, and transportation.
The City of Union City was last included in an MSR Update by the Alameda LAFCO that
was adopted in 2018. There was also a Countywide MSR update for water, wastewater, flood
control and stormwater services completed in 2021. The focus of this MSR is limited to the fire
and emergency medical services provided by the City.
474 City of Union City, Budget Book, FY19-20 and 20-21 Biennial Operating Budget and FY19-20 and 23-24 Five-Year Capital
Improvement Plan, p. 19
475 City of Union City, Union City General Plan, Introduction, p. 1
476 2020 US Census, https://www.census.gov/quickfacts/fact/table/unioncitycitycalifornia/POP010220, accessed 12/16/22.
477 City of Union City, Budget Book, FY19-20 and 20-21 Biennial Operating Budget and FY19-20 and 23-24 Five-Year Capital
Improvement Plan, p. 19
478 City of Union City, Union City General Plan, Introduction, p. 2.
Ch. 20: City of Union City 443
Policy Consulting Associates, LLC
Alameda Fire Municipal Service Review
Public Review Draft
The City of Union City is comprised of 19.4 square miles. The cities of Hayward and Fremont,
which are also ACFD contract cities, surround the City to the north and south, respectively.
There are hillsides on the eastern border of the City and the San Francisco Baylands to the
west.479 Figure 20-1 depicts the City's boundaries, which are also the service area for services
provided by contract by ACFD.
Figure 20-1: City of Union Boundaries and SOI
Union City
Range 02 West Range 01 West
htuoS 30 pihsnwoT Cla witer Rd 0 Depot Rd Hesperian
Blvd
Tennyson R
I
M
n
d i
d
ss
u
io
s
n
t
B
r
l
i
v
a
d UV
l
2
P
3
ky
8 25 0 30
31
32
29 20
33
2 2 8 1
34
2 2 7 2 Palomares
Rd 35
26 23
36
25 24
31
0 0
5
0
Whipple Rd Union City 4 3 2 1 6
htuoS 40 pihsnwoT
0
0
Hayw
Fr
a
e
r
m
d
ont
Union
City Blvd Smith St A A
Dye
l
r
C v
St
a
A A r
F
d
r
e
a
n C w
F d
o
0
o F
o
d
S
B lv F
B
d
3
§¨¦
l
S
v 2 8 d
3
80
0
Alva
N
ra
e
d
w 3
o
5 a r
N
k
i
B
le
l
s
vd
Rd A
P
C
a
36
s
F
e
F
F
o
r
S
P
e
a
m
3
2
d
5
1
o
r
n
e
t
A
P
3 B 0
D C
k
e
l
c
v
y
UV
ot F o
d
R
8
d F
3 4 T 1
S
ho
3
rn
3
ton
M
A
is
v
s
e
ion Blvd
Ni
3
le
2
s
2
UV
9
B 2
2 P
l
0
3 v
e
d 8
ral M ta ow 3 2 B r 3 8y l A v ve d 21 UV 84 Steve
9
2
1
n 7
6
son
UV
B
8
lv
4
d 22
N 10 il
1
e
M
5
s
i
B
s
l
s
v
i
d
on 26 Blvd 23
14
11
25 24
13
12UV 84
§¨¦ 680 3 1 0
1
9
8
7
Alameda County Legend O Alameda County Union City
S L o o ur c ce a : A l la A m g ed e a n
g i D n
L
e i
A
t
c
s e n
F
c
y
n e
C
l d a r
o
a e
F
im l d
o
d e t i r s o
r
: p
m
b T la e h
a
y e u
t
p s i
i
n u e
o
f
M
r d o p
n a
r o f m
p
o s
C
r
C
a e r t
r
s
o
i e
e
o
a
o f n
m
e
t
n
e
r s l e
d
y
m
h n
1
o a c
/7
n w
i
e
s /
d
2
n a
s 0
i n i s
2
s
i
d
3 on kj A A
F
A
U
C
i
d l l o
r n
a a
e
j m m m a
i o S
c m e e e
t n
d d
a
u n a a
t
n t
C i o
i C C C t
i n
i o
t
i o e t
s y
u y s u
(
n n B
A
t t y o y
C
u
F
B B n
D
o o d u u
C
a n n r
o
d i d e
n
a a s
t
r r
r
y i
a
e
c
s
t)
C S o a u n n t F y ranci
S
sco
a
P
C
kj
n
i kj ekj
o
A dE
u
B
M
l m b kj me
n
a
a
o re n
t
A k kjn
t
r
y
ye
e
l ty a O l kjve
o
m a iyl k e le l d a a nd kjSan
kj
L
H
e
a kj
a
y F
n
w r
d
e a m
r
r
o
d o kj n U kjt n N io e n w C a
P
r it k
l
y
C ea o sa nC kj n to t r
A
o D kj au n u
l a
n b C
m
l t i oy n
e
s
d
ta
a C
kj
o
L
u
iv
n
er
t
m
y
ore San Joaquin County
not to be used as an official map. 0 0.5 1 2Miles Santa Clara County
The City of Union City does not provide services outside of its boundaries but does contract
with ACFD, which is responsible for the execution of fire and emergency medical services
within the city limits. However, ACFD fire stations that serve the City of Union City may
provide services outside the city limits based on auto and mutual aid agreements.
479 City of Union City, Union City General Plan, Introduction, p. 1.
Ch. 20: City of Union City 444
Policy Consulting Associates, LLC
Alameda Fire Municipal Service Review
Public Review Draft
There are no unserved areas in the City of Union City. ACFD is able to provide services
throughout its bounds with access to the fire stations located throughout the city limits.
The City of Union City's sphere of influence was first established in 1979 and later amended.
At present, the SOI is coterminous with the city limits, and no changes are anticipated. The
current SOI was last reaffirmed on January 12, 2018.480
Accountability of a governing body is signified by a combination of several indicators. The
indicators chosen here focus on 1) agency efforts to engage and educate constituents through
outreach activities, in addition to legally required activities such as agenda posting and public
meetings, 2) a website with the required content and other useful information, 3) timely ethics
training for board/councils members and an adopted reimbursement policy, 4) a defined
complaint process designed to handle all issues to resolution, 5) adopted bylaws that provide a
framework and direction for governance and administration, 6) adoption of a conflict-of-interest
code as required by law, 7) proper filing of Form 700 by the governing body members, and 8)
transparency of the agency as indicated by cooperation with the MSR process and information
disclosure at meetings, in documents, and on a website.
The City of Union City has a government structure with a City Manager, an elected mayor,
and four council members serving staggered four-year terms on the City Council. Current
council member names, positions, and term expiration dates are shown in Figure 20-2.
The City Council meets every second and fourth Tuesday of the month at 7:00 pm at City
Hall in Union City, CA. Agendas for each weekly meeting are accessible from the City Clerk
and made available online. Board actions and meeting minutes are available online and
through the City Clerk as well. Through the City's website, the public can access live
audio/visual webcasts and archived audio and/or visual webcasts of regular Board meetings for
viewing online at their convenience. Public meetings are also aired on UCTV channel 15.
Figure 20-2: City of Union City's Governing Body
governing body
Elections at large for mayor and by district for
Manner of Selection
council members
480 Alameda LAFCO, Resolution No. 2018-15, Reaffirm the Existing Soi for the City of Union City, 1/12/18.
Ch. 20: City of Union City 445
Policy Consulting Associates, LLC
Alameda Fire Municipal Service Review
Public Review Draft
4-year terms with a limit of three full consecutive
Length of Term
terms
2nd and 4th Tuesday of each month at 7pm
Council Chambers at City Hall
Meetings
34009 Alvarado-Niles Road, Union City, California
94587
Agenda Distribution Posted online, and through the City Clerk
Minutes Distribution Posted online and available through the City Clerk
council members
Member Term Manner of Length of
Name District Position Expiration Selection Term
Carol Dutra-
Vernaci Mayor 2024 Elected 4 Years
Councilmember
Gary Singh 1 & Vice Mayor 2024 Elected 4 Years
Jaime Patino 2 Councilmember 2026 Elected 4 Years
Jeff Wang 3 Councilmember 2026 Elected 4 Years
Scott
Sakakihara 4 Councilmember 2026 Elected 4 Years
contact
Contact Joan Malloy, City Manager
Mailing Address 34009 Alvarado-Niles Rd., Union City, CA 94587
Phone 510-675-5344
Email/Website joanm@unioncity.org
The City of Union City participates in community outreach events such as annual city festivals,
holiday activities, job fairs, and community educational programs. ACFD also has specific fire
prevention and emergency safety programs available to City residents.
While the Mayor's most recent Form 700 filing is from 2018, the four remaining council
members have current filings for Form 700 with the California Fair Political Practices
Commission, indicating transparency in their economic interests.
There is a conflict-of-interest code, and bylaws, outlined in the municipal code as lawfully
required.
All complaints concerning the City of Union City or any of its employees are investigated, and
a response is provided to the complainant. Constituents can file complaints in several ways,
including online and by phone. All complaints are handled by the appropriate department and
overseen by the City Manager as needed.
Ch. 20: City of Union City 446
Policy Consulting Associates, LLC
Alameda Fire Municipal Service Review
Public Review Draft
There is legislation to help ensure public agencies adhere to accountability standards.
California AB 2257 (Government Code §54954.2) is an update to the Brown Act and
indicates requirements for methods by which an agenda for all meetings should be made
available on an agency's website, such as mandating a direct link (not in a dropdown menu) to
an agenda on the primary (home) page of an agency's website. While the City of Union City
does post agendas online, they are not currently in compliance with this regulation as there is
not a direct link to these documents on the City's homepage.
The City of Union City demonstrated accountability in its disclosure of information and
cooperation with the LAFCO questionnaires and other requests for information.
While public sector management standards vary depending on the size and scope of the
organization, there are minimum standards. Well-managed organizations evaluate employees
annually, track employee and agency productivity, periodically review agency performance,
prepare a budget before the beginning of the fiscal year, conduct periodic financial audits to
safeguard the public trust, maintain relatively current financial records, conduct advanced
planning for future service needs, and plan and budget for capital needs.
The City of Union City accounts for its fire and emergency services in a number of its
planning and management documents, particularly in its agreement with ACFD, its annual
budget, and the General Plan. The City is likewise following a Climate Action Plan and a
Hazard Mitigation Plan in an effort to curb the significant impacts of climate change and its
potential to affect the City. With regard to fire and emergency response services, rising sea
levels, flooding, and wildfires are predicted to increase. Wildfires are expected to increase due
to drought, high winds, and heat waves brought on by rising temperatures from greenhouse
gas emissions. Although wildfire risk is relatively low in the City of Union City, the eastern
portions of the City near the hillsides are at a higher risk. These concerns inform aspects of
the City's various planning documents, which outline prevention efforts such as vegetation
management, greenhouse gas reduction, and fire prevention education and training.
Development considerations are also paramount, particularly with respect to their location and
preventing further building in higher-risk areas.
Being that the City contracts with ACFD for services, ACFD abides by its own planning and
management practices, as referenced here. ACFD's FY 21 budget indicates it has 559
authorized positions. This is an increase of 12, year over year, since FY 19. Of these 559
positions, 511.42 are considered full-time equivalents for management and non-management
Ch. 20: City of Union City 447
Policy Consulting Associates, LLC
Alameda Fire Municipal Service Review
Public Review Draft
positions. Additionally, the department indicates it has 100 reserve firefighters to help fulfill
various services offered. The Fire Chief oversees four branches–Operations, Communications
and Special Operations, Administrative Support Services, Fire Prevention and Community
Outreach. Each branch has its own divisions. The Training division falls under the Operations
branch, the EMS, Information Technology and Special Operations divisions are part of the
Communications and Special Operations branch, and the divisions for Fleet Management,
Financial Services, Facilities, and Human Resources are part of the Administrative Support
Services Branch.
The Fire Chief provides the leadership and management overall. The Deputy Chief for
Operations oversees the training division, three Operation Divisions, and the reserve program.
The Administrative Services Director oversees Administrative Support Services by managing
contracts and services, facilities, financial services, fleet management, and human resources.
The Deputy Chief for Communications and Special Operations manages the Alameda County
Regional Emergency Communications Center (ACRECC), EMS, information technology,
Alameda County Operations Area & California Incident Command Certification Center
(CICCS), and Special Operations.
ACFD, as a component of the Alameda County government, is required to conduct value-
based budgeting. The goals of this process involve funding agreed-upon service levels,
identifying revenues and expenditures as one-time or continuing, and maintaining adequate
contingency and reserve funds.
ACFD battalion chiefs evaluate the operations of their respective battalions on an ongoing
basis. ACFD also conducts annual personnel evaluations. Managers annually review goals and
objectives for the coming year and goal achievements for the previous year. ACFD monitors its
workload through the chief officer performance reviews which identify staffing and resource
deficiencies.
ACFD has set policy goals and objectives to ensure fire service efficiency and effectiveness.
ACFD aims to provide emergency response and incident management for fires, rescues,
medical emergencies, hazardous materials incidents, and disasters to all Alameda County
citizens and to ensure that local, State and federal mandated and discretionary service levels
are maintained within the communities served.
The County manages ACFD's finances. County financial planning documents include an
annual budget and Comprehensive Annual Financial Report (CAFR). In addition, ACFD has
financial statements audited annually. The County's Capital Improvement Plan (CIP) includes
Ch. 20: City of Union City 448
Policy Consulting Associates, LLC
Alameda Fire Municipal Service Review
Public Review Draft
the District's capital needs. ACFD adopted a Fire and Emergency Services Strategic Business
Plan; the most recent update was for the years 2015-2019. Additionally, the District participates
in the Region II plan for the Office of Emergency Services.
The City of Union City cooperates with ACFD to forecast staffing needs as necessary based
on population growth and development plans and analyze employee turnover and attrition to
meet hiring demands. Response times and response levels are indicated in the City's contract
with ACFD and are tools for measuring satisfactory service levels. The Fire Chief is designated
to act as the direct liaison to the City Manager and is obligated to attend, or provide a
representative to attend, meetings as requested, including City Council meetings, and to
discuss the budget, operations, and other topics as necessary. The ACFD Fire Marshall is
obligated to attend all necessary meetings relating to the City's ability to meet its fire
prevention needs. As a means of accountability and transparency, ACFD also provides
requested reports to the City Manager, takes part in yearly audits of financial performance,
must provide written notice of service level changes, and allows two City representatives to be
a part of the ACFD Advisory Fire Commission. There are automatic month-to-month
extensions of the contract, and any changes to the agreement are initiated by the City
Manager. 481
The City's Climate Action Plan (CAP) is a critical component of its planning documents and
a key tool that helps decrease a community's share of greenhouse gas (GHG) emissions
contributing to global climate change. In the City, most GHG emissions come from energy use
in buildings and fuel for transportation, with water- and waste-related emissions contributing
relatively smaller proportions. The City of Union City's CAP presents a strategy to achieve the
City Council's goal of reducing GHG emissions 20 percent below 2005 levels by 2020.
Additionally, the CAP includes strategies to help make the City a more attractive place to live
through decreased traffic congestion, better air quality, cheaper energy and water bills, less
waste, greener streets, additional local amenities, and more local jobs.482
This section discusses the factors affecting service demand, such as land uses and historical
and anticipated population growth.
481 ACFD, Agreement between the City of San Leandro and ACFD Regarding Fire and Emergency Response Services,
Beginning September 20, 2005.
482 Union City Climate Action Plan, https://www.unioncity.org/379/Climate-Action-
Plan#:~:text=Union%20City%27s%20CAP%20presents%20a,levels%20by%20the%20year%202020.
Ch. 20: City of Union City 449
Policy Consulting Associates, LLC
Alameda Fire Municipal Service Review
Public Review Draft
When development plans are processed, ACFD reviews plans and works with planning staff
from the County or affected city to ensure that fire codes are met, and fire access and other
issues are addressed as conditions of approval. The impacts of emergency fire and medical
services are also addressed as part of any environmental review prepared for a development
project. ACFD utilizes a collaborative process with local jurisdictions to forecast fire service
needs so that local needs and trends can be identified, and service trends developed.
The City of Union City consists of approximately 19.4 square miles. Roughly 58 percent (7,100
acres) of the City's land area is open space, including shoreline to the west and hillsides to the
east which have been identified as vital wildlife habitats. This open space is also integral to
recreational opportunities for residents as it provides parks, sporting fields, and various social
programs.286 Due to the physical constraints presented by the landscape of the City, its
remaining buildable land area is approximately 9 square miles. However, it is largely built out
and primarily designed for residential use. The General Plan indicates a current focus on
development for non-residential purposes for economic growth and a desire to create a more
transit-oriented community.286
The General Plan guides the development of this land, while the safety element specifically
indicates goals and policies for the land area as it relates to fire and emergency services. The
plan lists continued efforts to prevent construction in unsafe areas subject to flooding and
extreme fire hazards and ensure developments can be economically serviced by fire and other
emergency service providers.
The City of Union City has a population of 70,037 as of April 1, 2020, based on the California
Department of Finance's U.S. Census results. While the population has remained relatively
stable, with only slight increases year over year, the 2020 population total is only one percent
greater than it was in 2010. The population peaked at 73,375 in 2019, however, which marks a
five percent decrease in 2020 but approximately a five percent increase from 2010, as seen in
Figure 20-3. This population estimate also accounts for roughly 18 percent of the total ACFD
service area.
The median income in the City is $95,625, and 65 percent of residents are homeowners,
reflecting the high number of low-density residential units within the City. The City states that
Ch. 20: City of Union City 450
Policy Consulting Associates, LLC
Alameda Fire Municipal Service Review
Public Review Draft
almost 60 percent of its population is adults between 18 and 65 years old. Approximately 35
percent of residents obtained a college degree.483
483 City of Union City, Budget Book, FY19-20 and 20-21 Biennial Operating Budget and FY19-20 and 23-24 Five-Year Capital
Improvement Plan, p. 18.
Ch. 20: City of Union City 451
Policy Consulting Associates, LLC
Alameda Fire Municipal Service Review
Public Review Draft
Figure 20-3: City of Union City Population Growth, 2010-2022
City of Union City Population 2010-2022
80,000
75,000
70,000
65,000
60,000
4/1/10 1/1/11 1/1/12 1/1/13 1/1/14 1/1/15 1/1/16 1/1/17 1/1/18 1/1/19 1/1/20 1/1/21 1/1/22
The Association of Bay Area Governments anticipates 2,400 households will be added to the
City of Union City between 2010 and 2040 along with 7,100 jobs. The City is working
diligently to accommodate mixed-use developments alongside transit corridors and employment
centers to support its economic development goals as well as its strategic land use plans. At
the same time, the City is dedicated to preserving and protecting its natural hillside and
Baylands.484
There are two primary development projects currently taking place in the City of Union City,
as seen in Figure 20-4. Both are residential projects. One of these developments is part of the
Hillside Area Plan and will consist of up to 350 single-family homes. The other project is for
the Seven Hills Development and is expected to add approximately 141 dwelling units in the
form of both single-family and multifamily housing.
484 City of Union City, Union City 2040 General Plan, adopted 12/10/19, Land Use p. 89.
Ch. 20: City of Union City 452
Policy Consulting Associates, LLC
Alameda Fire Municipal Service Review
Public Review Draft
Figure 20-4: City of Union City Planned or Proposed Development Projects, 2023
city of union city development projects
project # of dwelling units commercial square feet
Hillside Area Plan 350
Seven Hills Development 141
total 491
ACFD stated that collaboration with the City of Union City, as well as the other cities in its
service area, will be vital to be able to meet demand through continued periods of growth. This
will include communicating forecasted needs based on analysis of the City's population
projections, development plans, and employee turnover and attrition to estimate staffing needs.
When development plans are processed, ACFD reviews plans and works with planning staff
from the County or affected City to ensure that fire codes are met, and fire access and other
issues are addressed as conditions of approval. The impacts of emergency fire and medical
services are also addressed as part of any environmental review prepared for a development
project. ACFD utilizes a collaborative process with local jurisdictions to forecast fire service
needs so that local needs and trends can be identified, and service trends developed.
Per the Census Designated Places (CDP), as of 2021, there are no disadvantaged
unincorporated communities (DUC) that meet the basic, State-mandated criteria within
ACFD's service area, including the City of Union City.
The Union City Fire Department has the financial ability to continue to provide services. Its
contract with ACFD has grown at a moderate rate slightly lower than other Citywide services,
helping the City to manage reduced revenues during COVID-19. Although the City drew on
its reserves during the pandemic, it still retains healthy reserves and anticipates future
economic growth and fiscal stability.
Ch. 20: City of Union City 453
Policy Consulting Associates, LLC
Alameda Fire Municipal Service Review
Public Review Draft
From FY2017-18 through FY2021-22 the Fire Department's expenditures grew at a 3.0 percent
annual average rate, comparable to the rate of inflation over that period.485 Contract services
from the Alameda County Fire Department (ACFD) represent nearly the entire fire
department budget with the exception of periodic capital and equipment related expenditures.
EMS Enhancement Revenues ($344,300 in FY2021-22) partially offset expenditures. Revenues
from Community Facilities Districts also helps offset a portion of costs.
In March 2020 the City's public safety parcel tax was not renewed by voters, resulting in a
loss of approximately $2 million to the fire budget plus comparable losses to other public safety
functions, increasing the amount of General Fund revenues required to maintain fire services.
However, the voters approved a utility users' tax that helped fill budget shortfalls. Overall, City
revenues grew and average of 7.6 percent from FY2017-18 through FY2021-22, slightly less
than expenditure growth of 9.3 percent.
COVID-19 and loss of the public safety parcel tax contributed to significant reductions in the
General Fund's ending balance; the balance in FY2017-18 represented a healthy 45.7 percent
of General Fund expenditures, but declined to 23.7 percent in FY2021-22, which still represents
a "moderate" level of reserve funding.486
In July 2010, the City of Union City consolidated City fire services by contracting with ACFD
to provide numerous fire suppression, fire prevention, and emergency medical services such as
fire inspection, public education, wildland and hazardous materials response, and paramedic
services. Three specialized response teams are available to the City through ACFD: the
hazardous materials unit, the urban search and rescue unit, and the water rescue team unit.
Figure 20-5 details the services provided by the ACFD. If another agency offers a service, it is
indicated in the figure.
485 City of Union City Fiscal Year 2021-22 and 2022-23 Operating Budget.
486 MicropolicyPress.com, based on State Auditor fiscal risk indicators.
Ch. 20: City of Union City 454
Policy Consulting Associates, LLC
Alameda Fire Municipal Service Review
Public Review Draft
Figure 20-5: City of Union City Fire Services
service agency
fire suppression services
Structural Fire Protection Alameda County Fire Department
Wildland Fire Protection Alameda County Fire Department
Vehicle Fire Protection Alameda County Fire Department
Ladder Truck Capabilities Alameda County Fire Department
Fire Suppression Hand Crew CAL FIRE
Fire Suppression Dozer Alameda County Fire Department
Helicopter Services – Fire Suppression CAL FIRE
Boat With Fire Suppression Capabilities Berkeley Fire Department
emergency medical services
Basic Life Support Provider Alameda County Fire Department
Advanced Life Support – Non-Transport Provider Alameda County Fire Department
Advanced Life Support Transport Provider Alameda County Fire Department
Continuing Education Provider – Medical Alameda County Fire Department
Air Ambulance Transport Helicopter Services Reach Air Medical Services
Helicopter Landing Facilities On Site N/A
Vehicle Extrication Tools/Equipment Alameda County Fire Department
fire prevention
Fire Safety Education – Children Alameda County Fire Department
Fire Safety Education – Adults/Seniors Alameda County Fire Department
Juvenile Firesetter Prevention Program N/A
Fire and Life Safety Business Inspection Program Alameda County Fire Department
Fire Protection Planning Alameda County Fire Department
New Commercial Construction Plan Reviews Alameda County Fire Department
Public Education Provider (CPR, First Aid, etc.) Alameda County Fire Department
Home Fire/Safety Inspections N/A
Fire Origin and Cause Investigations Alameda County Fire Department
Fuel Reduction/Weed Abatement Program Alameda County Fire Department
Smoke Detector Giveaway/Installation Program Alameda County Fire Department
Address Sign Installation Program N/A
rescue services
First Responder Swift Water Rescue Program Alameda County Fire Department
Ch. 20: City of Union City 455
Policy Consulting Associates, LLC
Alameda Fire Municipal Service Review
Public Review Draft
Water Rescue Program Alameda County Fire Department
Ice Rescue Program U.S. Coast Guard
Dive Rescue Program Alameda County Sheriff's Office
Low angle Rope Rescue Program Alameda County Fire Department
Helicopter Short/Long Haul Rescue Capabilities California Highway Patrol
Response to Boating Accidents Alameda County Fire Department
Rescue Dog Services Alameda County Fire Department
hazardous materials
Hazardous Materials Emergency Response –
Basic Alameda County Fire Department
Hazardous Materials Response Team Alameda County Fire Department
support services
Firefighter Incident Support Unit Alameda County Fire Department
Mobile Incident Command/Communications
Unit Alameda County Fire Department
Fill Station for Self-Contained Breathing
Apparatus Alameda County Fire Department
Mobile Breathing Support Unit Alameda County Fire Department
Community Emergency Response Team Alameda County Fire Department
Chaplain Services Alameda County Fire Department
Training Academy Alameda County Fire Department
Emergency Operations Center Capabilities Alameda County Fire Department
miscellaneous
Public Service Assists Alameda County Fire Department
Motor Vehicle Accident Response Alameda County Fire Department
Alameda County Fire Department with local
Welfare Checks Police Departments
Public Safety Answering Point Alameda County Fire Department
Fire/EMS Dispatch Alameda County Fire Department
Fundraising Activities Alameda County Fire Department
Firefighters Association – Non-Profit Alameda County Fire Department
Auxiliary Association Alameda County Fire Department
The City of Union City works closely with neighboring cities and Alameda County to provide
needed services to the community. The most extensive collaborative efforts are for fire,
emergency, and law enforcement services. The City is one of five agencies that collaborate
Ch. 20: City of Union City 456
Policy Consulting Associates, LLC
Alameda Fire Municipal Service Review
Public Review Draft
with ACFD. In addition to contracting with the cities of Newark, Emeryville, San Leandro, and
Dublin for fire suppression and emergency services. ACFD's automatic aid agreement is with
the City of Oakland, the City of Tracy, the San Ramon Valley Fire Protection District, and the
Livermore-Pleasanton Fire Department. ACFD also has a mutual aid response agreement with
Oakland and Berkeley that covers the Berkeley-Oakland Hills area. A shared automatic aid
agreement exists for providing service to Interstates 580, 880, and 680 as well. Lastly, there is
a State Mutual Aid Plan and a countywide mutual aid agreement for all fire departments in
Alameda County.
ACFD, as a component of the County, receives various administrative services and works in
conjunction with the Alameda County Sheriff's Department and Alameda County Emergency
Medical Services. ACFD and California's Office of Emergency Services also have an
agreement for dispatch needs.
Regionally, ACFD's collaborations include participating in the governance of the dispatch
center in Livermore through the County Advisory Board. ACFD firefighters who are specially
trained can also be dispatched nationwide to assist with disaster response.
The California Department of Forestry and Fire Protection (CAL FIRE) augments fire services
throughout the State. Generally, CAL FIRE services are focused in wildland areas defined as
State Responsibility Areas (SRA). Much of the territory outside the developed municipal areas
within the County is categorized as SRA. The City of Union City has areas of high fire hazard
severity zones, primarily to the east.
In conjunction with ACFD, CAL FIRE is utilized for hand crew services and helicopter services
for fire suppression. ACFD also works hand in hand with local police departments for welfare
checks, as well as the California Highway Patrol, the County's Sheriff's office, and the Coast
Guard for assistance with rescue efforts.
ACFD indicated it received a total of 42,363 service calls in FY 20.487 This was an increase of
roughly 19 percent since 2013. Of the service calls in 2020, 5,323 (~12.5 percent) were for the
City of Union City. The call types are broken down in Figure 20-6. This is consistent with the
487 Alameda County Fire Department, Sogo Online Survey Response, July 2021.
Ch. 20: City of Union City 457
Policy Consulting Associates, LLC
Alameda Fire Municipal Service Review
Public Review Draft
City's assertion that the Department receives approximately 5,600 calls per year.488 The most
recent publication of the AFCD standards of coverage review in 2017 indicated that as of
2016, Station 33 had the highest number of total incidents amongst all of the City's stations
with 108.489
Figure 20-6: City of Union Calls for Service (2013-2020)
2020 service calls by type for contract agencies
Structure Other EMS / Hazard. Service Good False Cancel
Fires Fires Rescue Cond. Calls Intent Call Enroute Total
Union
City 57 141 3,736 42 366 253 376 352 5,323
ACFD is responsible for staffing its department to directly provide services to the City of Union
City. The City is responsible for a .5 FTE City employee for clerical support for the Fire
Prevention Division including fire and deputy fire chiefs, division chiefs, battalion chiefs, and
administrative staff.
Minimum staffing per unit per day is considered three firefighters per engine and truck
company.490 According to the contract between ACFD and the City for fire and emergency
services, ACFD is to maintain three-person companies per shift, including one captain, one
engineer, and one firefighter. A minimum of one of these staff must be a licensed paramedic.
This equates to nine personnel across the City's three fire stations. These staffing levels
decreased from 36-line personnel for four fire stations throughout the City as outlined in the
FY 18 – FY 19 budget. This reflects that three fire stations are still operating since Station 30
closed. Additionally, the City's agreement with ACFD outlines that ACFD is to provide one
Fire Marshal, one Deputy Fire Marshal, and one Code Compliance Officer.
ACFD's objectives include personnel trained and ready for emergency response 100 percent of
the time and responding to all calls for service within the service area. The Department states
that newly hired paid firefighters are required to have Firefighter Recruit Academy training,
although the monthly training hours for firefighters vary.491 ACFD provides an education that
meets State mandated requirements for Emergency Medical Technicians and Paramedics and
488 City of Union City, Budget Book, FY19-20 and 20-21 Biennial Operating Budget and FY19-20 and 23-24 Five-Year Capital
Improvement Plan, p. 104
489 Alameda County Fire Department, Volume 2 of 3 Technical Report Standards of Coverage Review, p. 43, 9/1/17.
490 Alameda County Fire Department, Volume 2 of 3 Technical Report Standards of Coverage Review, p. 19, 9/1/17.
491 Alameda County Fire Department, SoGo Survey Responses, July 2021.
Ch. 20: City of Union City 458
Policy Consulting Associates, LLC
Alameda Fire Municipal Service Review
Public Review Draft
enforces State and local fire codes and standards through reviewing and approving building
and facility plans. Community service objectives include coordinating public education, events,
and disaster operation activities within the communities served.
The following information is specific to ACFD's operations within the City of Union City. For
more details about ACFD's facilities, see chapter four.
The City of Union City is home to three of the 29 ACFD fire stations throughout the District
and a fire prevention bureau, all shown in Figure 20-7. A fourth fire station, station 30, was
closed in 2019 as a financial savings measure. It is estimated that $3.2 million would be saved
annually as a result of this closure.492 Of its operational fire stations, Station 31 houses a truck
and a reserve fire engine and is staffed by three firefighters, per contract terms. Station 32 was
previously fire station 2 and serves the City's Alvarado District. It houses an engine, a reserve
engine, and is likewise staffed by three firefighters. Lastly, the newest fire station in the City is
Station 33, which is notably the first LEED-certified green building within the City of Union
City. This station houses two engines, one of which is a Type III fire engine intended for
wildland firefighting. Station 33 also staffs three firefighters and is intended to serve the City's
Decoto District. The City's fire prevention bureau is located in its City Hall.
Figure 20-7: City of Union Fire Facilities
city of union city acfd facilities
Facility Address Owner Year Built Condition
33555 Central
Ave., Union City, City of Union
Station 31 CA 94587 City 1975 Not Provided
31600 Alvarado
Blvd., Union City, City of Union
Station 32 CA City 1984 Not Provided
33942 7th St.,
Union City, CA City of Union
Station 33 94587 City 2009 Not Provided
34009 Alvarado-
Union City Fire Niles Rd., Union City of Union
Prevention Bureau City, CA 94587 City Not Provided Not Provided
Overall, Department capacity appears sufficient, particularly in non-peak hours in centralized
areas of the City. Based on the City's three current fire stations, the 2017 Standards of Cover
Risk Assessment indicate none of these stations near the cautionary 20 percent unit-hour
492 City of Union City, Budget Book, FY19-20 and 20-21 Biennial Operating Budget and FY19-20 and 23-24 Five-Year Capital
Improvement Plan, p. 13
Ch. 20: City of Union City 459
Policy Consulting Associates, LLC
Alameda Fire Municipal Service Review
Public Review Draft
utilization threshold, indicating a strained workload.296 However, for multi-unit coverage, it is
recommended in the risk assessment that three engines be moved west as the City's western
edges cannot be reached within the travel time goal of 8:00 minutes.493
The City of Union City communicates with residents in a few ways to transmit important
health and safety information. These methods include broadcasting emergency messages over
local television channel UCTV15, online, and utilizing its social media channels: Twitter,
Facebook, Instagram, and YouTube.
ACFD is responsible for coordinating dispatch communications for the City's service calls. The
regional 9-1-1 dispatching center is known as the Alameda County Regional Emergency
Communications Center (ACRECC) and is housed at the Lawrence Livermore National
Laboratory (LLNL) along with the Alameda County Fire Communication Center (ACFCC).
ACRECC currently dispatches fire and medical calls for ACFD, the U.S. Army at Camp
Parks Combat Support Training Center in Dublin, the cities of Alameda, Fremont, Livermore,
and Pleasanton, and the County EMS transport provider Paramedics Plus ambulance service.
The Consortium, now known as the Advisory Board, is managed by a governing board made
up of participating agencies. Each agency pays an annual amount with costs apportioned
based on call volume as outlined in each contract for service.
Given that 9-1-1 calls may relate to a policing, fire, or medical emergency, the telephone
provider first routes the calls to the public safety answering point (PSAP) dispatcher. The first-
response dispatcher immediately determines the type or need of the call and routes all fire and
medical 9-1-1 calls to the ACRECC. The ACRECC simultaneously dispatches ACFD and the
County EMS transport provider for ambulance transport services.
Cooperation and consolidation of facilities is an impactful way to limit operating costs for the
City while effectively providing needed services. As previously mentioned, ACFD provides
contract services to four agencies in addition to the City of Union City for fire and emergency
response services. To do this, it shares personnel, dispatching services, and facilities resources
as necessary, not specifically in relation to the City of Union City. Consolidating facilities and
shifting personnel is not uncommon; for instance, Station 8 firefighters have been relocated to
493 ACFD, Standards of Coverage Review, 9/1/2017, p. 31.
Ch. 20: City of Union City 460
Policy Consulting Associates, LLC
Alameda Fire Municipal Service Review
Public Review Draft
Station 20, which is the Lawrence Livermore National Laboratory site. Another example is that
Station 15 currently houses ACFD Reserve Firefighters, apparatus, and equipment, even
though it was previously the Office of Emergency Services and Dougherty Regional Fire
Authority Station 3.
An ACFD goal is to pursue regional cooperation and consolidation of services. ACFD views
dispatch, administration, and the operations division as areas that would benefit from greater
regional collaboration.
ACFD reports that collaboration with regional transport companies, in conjunction with other
fire agencies and municipalities, to establish a fire-based ambulance transport model would
improve service delivery efficiencies, especially EMS delivery.
Per the contractual agreement between the City of Union City and ACFD, the City is
responsible for maintaining the grounds, building repairs, appliances, and other systems
considered obligatory for operation. ACFD is responsible for the daily maintenance of these
facilities and systems. To that end, the City's budget for FY 20 and FY 21 states that fire
stations 30 and 31 need various infrastructure improvements. In particular, station 30 is
mentioned as needing to replace its kitchen island due to water damage resulting from a
plumbing leak, and station 31 is outlined to receive a kitchen renovation, window replacement,
and restroom rehabilitation.494 In addition to these specific projects, ACFD lists its own capital
improvement projects in the County's Annual CIP. For more information, refer to Chapter 4.
There are two primary challenges facing the City of Union City, the first being financial
constraints. As with most other agencies, the COVID-19 pandemic negatively impacted the
local economy by limiting revenues, especially in the form of tax revenue. This fiscal downturn
took place in addition to the fiscal stress that was already facing the City and led to the
closure of fire station 30 in 2019. The other significant challenge facing the City is inadequate
access to fire services in outlying areas and during peak traffic congestion. In each instance,
travel times are negatively affected and should be improved to maintain ACFD's ability to
reach its response time goals.
494 City of Union City, FY2019-20 and 2020-21 Biennial Operating Budget and FY2019-20 through FY2023-24 Five-Year
Capital Improvement Plan, pgs. 221, 225.
Ch. 20: City of Union City 461
Policy Consulting Associates, LLC
Alameda Fire Municipal Service Review
Public Review Draft
Additionally, climate change is anticipated to be a challenge in the coming years. The hillside
areas in the eastern portion of the City are considered to be at a higher risk for wildfire and
the detrimental effects of climate change are expected to increase this risk even further.495
This section reviews indicators of service adequacy, including response times, ISO rating, and
complaints received. There are many measures of a successful fire protection service. For
example, the agency would meet guidelines established by the National Fire Protection
Association (NFPA), the Center for Public Safety Excellence (CPSE) (formerly the
Commission on Fire Accreditation International), and the California EMS Agency. There are
also Public Protection Classifications (PPC) and Insurance Services Office (ISO) ratings that
likewise establish an agency's level of service.
Each of ACFD's contract cities maintains individualized performance measures according to its
agreement. The applicable response time measure for the City of Union City is shown in
Figure 20-8.
Figure 20-8: City of Union City Response Time Policy
response times for acfd and contract cities
Agency Name Single Unit Incident Multiple Unit Incident
Arrival of first company on the scene
within 8 min 30 sec for 90 percent of all
Arrive within 8 min 30 sec from
incidents. Remaining units should arrive
the time the Company is first
City of Union City on the scene of an incident within 20 min
dispatched for 90 percent of
15 sec from when the first due company
incidents.
is dispatched for 90 percent of all
incidents.
Residential first alarm response, otherwise known as the Effective Response Force, has a goal
of eight minutes of travel time or 11:30 minutes total response time for a minimum of three
engine companies, one truck company, and one Battalion Chief to arrive. Only some areas of
each urban core are accessible within this timeframe and the situation worsens with the
addition of congestion through the coverage area. In the southern ACFD coverage area, this is
notable since the western edges of Union City are not accessible within 8:00 minutes of all
units.496
Despite these response times, most fire stations in the District provide service in less than 8:00
minutes within the most urbanized areas. Any time that is gained by adding stations would not
495 City of Union City, General Plan Safety Element, Chapter 6, adopted 12/10/2019, p. 209.
496 Alameda County Fire Department, Volume 2 of 3 Technical Report Standards of Coverage Review, p. 31, 9/1/17.
Ch. 20: City of Union City 462
Policy Consulting Associates, LLC
Alameda Fire Municipal Service Review
Public Review Draft
be cost-effective.300 However, the outermost edges of the City of Union City, along with the
City of Dublin and the City of Newark, see significant impacts on the arrival times of multiple
units due to traffic congestion, street design, freeways that bisect the ACFD service area and
incident demand at peak hours. For these reasons, the 2016 Standards of Coverage Review
recommends that three engines must be moved west and indicates that the Battalion Chief is
located too far northeast in the City to help meet response time standards.497
Furthermore, all three of the City's stations exceed the 4:00 minute travel time goal in urban
areas, which is expected 90 percent of the time. Instead, Stations 31, 32, and 33 have the
following average response times in urban areas, respectively: 6:13, 5:37, and 5:49. Meanwhile,
the call to arrival time, also considered the time from dispatch to turnout, is as follows for all
three stations, all of which exceed the department's 7:30 goal: Station 31–8:43, Station 32–8:43,
and Station 33–8:19.498
Fire services in the communities are classified by the Insurance Service Office (ISO), as an
indicator of the general adequacy of coverage. Communities with the best fire department
facilities, systems for water distribution, fire alarms and communications, and equipment and
personnel receive a rating of 1. ACFD's most recent ISO rating was done in 2015, and it was
given an ISO PPC rating of 01/1Y, which is the top classification available. The first number
means a home is no more than five road miles from a fire station and 1,000 feet from a water
supply such as a hydrant. The second classification, Y, refers to properties further than 1,000
feet from a fire hydrant but within five road miles of a recognized fire station.499
ACFD has not provided information as to whether any complaints regarding fire service for the
City of Union City were received in FY 21.
497 Alameda County Fire Department, Volume 2 of 3 Technical Report Standards of Coverage Review, p. 31-32, 9/1/17.
498 Alameda County Fire Department, Volume 2 of 3 Technical Report Standards of Coverage Review, p. 48-49, 9/1/17.
499 Alameda County, Public Protection Classification Summary Report, p. 7, July 2015.
Ch. 20: City of Union City 463
Policy Consulting Associates, LLC
Alameda Fire Municipal Service Review
Public Review Draft
20-1: The City of Union City has a population of 70,037 and has seen slow growth,
increasing its population five percent since 2010.
20-2: The City should continue to adhere to its land use plans as it endeavors to focus on
economic growth and creating a transit-oriented community with a focus on mixed-
use developments.
20-3: The City of Union City does not have any DUCs within or contiguous to its SOI.
20-4: The City of Union City's facility needs are adequately met by ACFD. Efforts should
be made to move three engine companies west to be better able to access edges of
the City that are currently unable to meet the goals for effective response times in
multi-unit incidents.
20-5: Infrastructure needs are currently being met by the City of Union City as planned
and current needs are represented appropriately in its budget for capital
improvements.
20-6: The Union City Fire Department has the financial ability to continue to provide
services. Its contract with ACFD has grown at a moderate rate, slightly lower than
other Citywide services, helping the City to manage reduced revenues during
COVID-19. Although the City drew on its reserves during the pandemic, it still
retains healthy reserves and anticipates future economic growth and fiscal stability.
20-7: The City's fire service structure relies heavily on facility and resource sharing with
ACFD, the County, and other providers in the region. No further opportunities for
facility sharing were identified with regard to the City of Union City's fire services.
Ch. 20: City of Union City 464
Policy Consulting Associates, LLC
Alameda Fire Municipal Service Review
Public Review Draft
20-8: It is recommended that the Department join fellow Alameda fire providers to develop
a regional, countywide dispatch strategy that employs the closest resource for the
fastest response time, regardless of agency boundaries or responsibility.
20-9: The City of Union City should add a direct link (not within a dropdown menu) to
agendas on its website's homepage. This action would put the City in compliance
with all legislative obligations for accountability and governance practices.
20-10: The City of Union City demonstrated transparency when sharing information for the
creation of this report.
20-11: No governance structure alternatives specific to the City of Union City were
identified over the course of this review, however, ACFD, in contract with the City,
has a goal to pursue regional cooperation and consolidation of services. ACFD views
dispatch, administration, and the operations division as areas that would benefit from
greater regional collaboration.
Ch. 20: City of Union City 465
Policy Consulting Associates, LLC
Alameda Fire Municipal Service Review
Public Review Draft
agency name title
Alameda County Fire Department Irene DeJong Administrative Services Director
Alameda County Fire Department William McClurg Fire Chief
East Bay Regional Park District Khari Helae Fire Captain
Emergency Medical Services CSA Lauri McFadden Director
Emergency Medical Services CSA William McClurg Deputy Director
Fairview Fire Protection District Mike Preston General Manager
Fairview Fire Protection District Tara Reyes Fire Services Supervisor
City of Alameda Cody Moxley Fire Division Chief
City of Alameda Monique Raqueno Fire Administrative Services
Manager
City of Alameda Jim Colburn Deputy Chief of EMS and
Support Services
City of Albany Nicole Almaguer City Manager
City of Albany James Boito Fire Chief
City of Berkeley David Sprague Deputy Chief
City of Berkeley Abraham Roman Fire Chief
City of Dublin Linda Smith City Manager
City of Dublin/ACFD William McDonald Fire Chief
City of Emeryville Christine Daniel Former City Manager
City of Emeryville/ACFD William McDonald Fire Chief
City of Fremont Kyle Adams Battalion Chief
City of Fremont Corina Campbell Fire Department Business
Manager
City of Fremont Donna Do Fire Department Management
Analyst II
City of Hayward Tara Reyes Fire Services Supervisor
City of Hayward Garrett Contreras Fire Chief
City of Livermore Aaron Lacey Deputy Chief
City of Newark/ACFD William McDonald Fire Chief
Contributors 466
Policy Consulting Associates, LLC
Alameda Fire Municipal Service Review
Public Review Draft
City of Oakland Alison Rigau Administrative Assistant to
Deputy Chief
City of Oakland Reginald Freman Fire Chief
City of Oakland Michael Hunt Fire Department Chief of Staff
City of Piedmont David Brannigan Fire Chief
City of Pleasanton Nelson Fialho Former City Manager
City of Pleasanton Aaron Lacey Deputy Chief
City of Pleasanton Monique McLaughlin Fire Department Office
Manager
City of San Leandro Fran Robustelli City Manager
City of San Leandro Eric Engelbart Deputy City Manager
City of San Leandro/ACFD William McDonald Fire Chief
City of Union City/ACFD William McDonald Fire Chief
Alameda LAFCO Rachel Jones Executive Officer Alameda
LAFCO
Contributors 467
Policy Consulting Associates, LLC
Alameda Fire Municipal Service Review
Public Review Draft
Appendix A 468
Policy Consulting Associates, LLC
Alameda Fire Municipal Service Review
Public Review Draft
Appendix A 469
Policy Consulting Associates, LLC