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CAALAVERAS LAAFCO COUNTYYWIDE FIRE MUNICIPAL SERVICE REVIEW C A LL AV E R A S F II R E M UU N I CC I PA L S EE RV II C E R E VV I E WW F I NN A L Resoluttion Adoptted June 17, 2013 Prepared for tthe CCalaveras Local Agency Formation CCommission byy John Benooit and Policyy Consultingg Associatess, LLC. TABLE OFF CONTENTS ]É{Ç UUxÇÉ|à 9 cÉÄ|vvçç VÉÇáâÄà|Çz TTááÉv|tàxá? ____V 1 CALAVERAS LAFCO COUNTYWIDE FIRE MUNICIPAL SERVICE REVIEW ]É{Ç UxÇÉ|à 9 cÉÄ|vç VÉÇáâÄà|Çz TááÉv|tàxá? __V CALAVERAS LAFCO COUNTYWIDE FIRE MUNICIPAL SERVICE REVIEW TA B L E O F C O N T E N T S ACRONYMS ................................................................................................................................................................ 6 PREFACE .................................................................................................................................................................... 8 CONTEXT ................................................................................................................................................................ 8 CREDITS .................................................................................................................................................................. 8 1. EXECUTIVE SUMMARY .............................................................................................................................. 10 SERVICE PROVIDERS ................................................................................................................................................ 10 SPHERE OF INFLUENCE ............................................................................................................................................ 10 GROWTH AND SERVICE DEMAND ............................................................................................................................ 11 PLANNING AND MANAGEMENT ............................................................................................................................... 11 ACCOUNTABILITY .................................................................................................................................................... 11 FINANCING .............................................................................................................................................................. 12 INFRASTRUCTURE NEEDS ........................................................................................................................................ 12 SERVICE ADEQUACY ............................................................................................................................................... 13 GOVERNANCE STRUCTURE OPTIONS ....................................................................................................................... 13 2. LAFCO AND MUNICIPAL SERVICES REVIEWS ................................................................................... 15 LAFCO OVERVIEW ................................................................................................................................................. 15 MUNICIPAL SERVICES REVIEW ORIGINS .................................................................................................................. 16 MUNICIPAL SERVICES REVIEW LEGISLATION .......................................................................................................... 18 MUNICIPAL SERVICES REVIEW PROCESS ................................................................................................................. 19 SPHERE OF INFLUENCE UPDATES ............................................................................................................................ 20 DISADVANTAGED UNINCORPORATED COMMUNITIES .............................................................................................. 21 3. FIRE SERVICES ............................................................................................................................................. 23 GROWTH & POPULATION PROJECTIONS ................................................................................................................... 23 FIRE AND EMS SERVICES ........................................................................................................................................ 28 SERVICE FINANCING ................................................................................................................................................ 51 GOVERNANCE STRUCTURE OPTIONS ....................................................................................................................... 57 4. ALTAVILLE-MELONES FIRE PROTECTION DISTRICT ..................................................................... 60 AGENCY OVERVIEW ................................................................................................................................................ 60 FIRE AND EMS SERVICES ........................................................................................................................................ 67 ALTAVILLE-MELONES FIRE PROTECTION DISTRICT DETERMINATIONS ................................................................... 73 5. CENTRAL CALAVERAS FIRE AND RESCUE PROTECTION DISTRICT ......................................... 75 AGENCY OVERVIEW ................................................................................................................................................ 75 FIRE AND EMS SERVICES ........................................................................................................................................ 84 CENTRAL CALAVERAS FIRE AND RESCUE PROTECTION DISTRICT ........................................................................... 90 6. COPPEROPOLIS FIRE PROTECTION DISTRICT .................................................................................. 93 AGENCY OVERVIEW ................................................................................................................................................ 93 FIRE AND EMS SERVICES ...................................................................................................................................... 101 COPPEROPOLIS FIRE PROTECTION DISTRICT DETERMINATIONS ............................................................................ 107 7. EBBETTS PASS FIRE PROTECTION DISTRICT .................................................................................. 109 AGENCY OVERVIEW .............................................................................................................................................. 109 FIRE AND EMS SERVICES ...................................................................................................................................... 119 EBBETTS PASS FIRE PROTECTION DISTRICT DETERMINATIONS ............................................................................. 129 8. FOOTHILL FIRE PROTECTION DISTRICT .......................................................................................... 131 AGENCY OVERVIEW .............................................................................................................................................. 131 TABLE OF CONTENTS ]É{Ç UxÇÉ|à 9 cÉÄ|vç VÉÇáâÄà|Çz TááÉv|tàxá? __V 2 CALAVERAS LAFCO COUNTYWIDE FIRE MUNICIPAL SERVICE REVIEW FIRE AND EMS SERVICES ...................................................................................................................................... 139 FOOTHILL FIRE PROTECTION DISTRICT DETERMINATIONS .................................................................................... 145 9. JENNY LIND FIRE PROTECTION DISTRICT ....................................................................................... 147 AGENCY OVERVIEW .............................................................................................................................................. 147 FIRE AND EMS SERVICES ...................................................................................................................................... 155 JENNY LIND FIRE PROTECTION DISTRICT DETERMINATIONS ................................................................................. 161 10. MOKELUMNE HILL FIRE PROTECTION DISTRICT ......................................................................... 163 11. MURPHYS FIRE PROTECTION DISTRICT ........................................................................................... 164 AGENCY OVERVIEW .............................................................................................................................................. 164 FIRE AND EMS SERVICES ...................................................................................................................................... 172 MURPHYS FIRE PROTECTION DISTRICT DETERMINATIONS .................................................................................... 178 12. SAN ANDREAS FIRE PROTECTION DISTRICT ................................................................................... 181 AGENCY OVERVIEW .............................................................................................................................................. 181 FIRE AND EMS SERVICES ...................................................................................................................................... 190 SAN ANDREAS FIRE PROTECTION DISTRICT DETERMINATIONS ............................................................................. 196 13. WEST POINT FIRE PROTECTION DISTRICT ...................................................................................... 198 AGENCY OVERVIEW .............................................................................................................................................. 198 FIRE AND EMS SERVICES ...................................................................................................................................... 206 WEST POINT FIRE PROTECTION DISTRICT DETERMINATIONS ................................................................................ 212 14. CITY OF ANGELS CAMP ........................................................................................................................... 214 AGENCY OVERVIEW .............................................................................................................................................. 214 FIRE AND EMS SERVICES ...................................................................................................................................... 223 CITY OF ANGELS CAMP FIRE DEPARTMENT DETERMINATIONS ............................................................................ 230 15. CALIFORNIA DEPARTMENT OF FORESTRY AND FIRE PROTECTION SERVICES ................. 233 AGENCY OVERVIEW .............................................................................................................................................. 233 TUOLUMNE-CALAVERAS UNIT .............................................................................................................................. 234 INTERVIEWS ......................................................................................................................................................... 237 TABLE OF CONTENTS ]É{Ç UxÇÉ|à 9 cÉÄ|vç VÉÇáâÄà|Çz TááÉv|tàxá? __V 3 CALAVERAS LAFCO COUNTYWIDE FIRE MUNICIPAL SERVICE REVIEW L I S T O F F I G U R E S FIGURE 1-1: FIRE AND EMS SERVICE PROVIDERS IN CALAVERAS COUNTY ........................................................ 10 FIGURE 1-2: EXISTING BOUNDARIES AND SPHERES OF INFLUENCE ..................................................................... 10 FIGURE 2-1: COMMISSION MEMBERS, 2013 ......................................................................................................... 16 FIGURE 2-2: DISADVANTAGED UNINCORPORATED COMMUNITIES ...................................................................... 22 FIGURE 3-1: POPULATION GROWTH RATES IN CALAVERAS COUNTY AND CALIFORNIA, 2001-2012 ................... 24 FIGURE 3-2: NEW RESIDENTIAL BUILDING PERMITS, 2000-2012 ........................................................................ 24 FIGURE 3-3: PLANNED OR PROPOSED DEVELOPMENT IN UNINCORPORATED CALAVERAS, 2012 ......................... 25 FIGURE 3-4: COUNTYWIDE DOF POPULATION PROJECTIONS .............................................................................. 26 FIGURE 3-5: ANNUALIZED GROWTH PROJECTIONS BY METHOD .......................................................................... 27 FIGURE 3-6: FIRE SERVICE PROVIDERS IN CALAVERAS COUNTY ......................................................................... 29 FIGURE 3-7: FIRE AND EMS PROVIDERS IN CALAVERAS COUNTY ....................................................................... 30 FIGURE 3-8: FIRE AGENCY SERVICE CALLS BY TYPE, 2011 ................................................................................ 36 FIGURE 3-9: TOTAL SERVICE CALLS BY REPORTING AGENCY, 2011 ................................................................... 37 FIGURE 3-10: FIRE AGENCY RATIO OF MUTUAL AID CALLS, 2011 ....................................................................... 37 FIGURE 3-11: SERVICE CALLS PER 1,000 RESIDENTS, 2011 ................................................................................... 38 FIGURE 3-12: FIRE STATION CONDITION AND APPARATUS .................................................................................... 42 FIGURE 3-13: CALFIRE TRACKED RESPONSE TIMES ............................................................................................... 46 FIGURE 3-14: SERVICE AREA PER FIRE STATION ................................................................................................... 48 FIGURE 3-15: FIREFIGHTERS PER 1,000 RESIDENTS, 2012 ...................................................................................... 48 FIGURE 3-16: FIRE AGENCY MANAGEMENT PRACTICES ........................................................................................ 49 FIGURE 3-17: REVENUE SOURCES (FY 10-11) ....................................................................................................... 52 FIGURE 3-18: SPECIAL TAXES, FY 12 .................................................................................................................... 53 FIGURE 3-19: OPERATING EXPENDITURES PER CAPITA (FY 10-11) ....................................................................... 54 FIGURE 3-20: OPERATING EXPENDITURES PER SERVICE CALL (FY 10-11) ............................................................ 54 FIGURE 3-21: RESERVE LEVELS, FY 10-11 ............................................................................................................ 55 FIGURE 4-1: AMFPD LIST OF LAFCO APPROVED BORDER CHANGES ............................................................... 61 FIGURE 4-2: ALTAVILLE-MELONES FPD BOUNDARIES AND SOI ........................................................................ 62 FIGURE 4-3: ALTAVILLE-MELONES FIRE PROTECTION DISTRICT GOVERNING BODY .......................................... 63 FIGURE 4-4: AMFPD NUMBER OF CALLS BY YEAR, 2006-2011 ......................................................................... 65 FIGURE 4-5: AMFPD SERVICE MATRIX .............................................................................................................. 67 FIGURE 4-6: ALTAVILLE-MELONES FPD FIRE SERVICE PROFILE ........................................................................ 72 FIGURE 5-1: CENTRAL CALAVERAS FIRE AND RESCUE PROTECTION DISTRICT BOUNDARIES AND SOI .............. 77 FIGURE 5-2: CENTRAL CALAVERAS FIRE AND RESCUE PROTECTION DISTRICT GOVERNING BODY .................... 78 FIGURE 5-3: CCFRPD NUMBER OF CALLS BY YEAR, 2007-2011 ........................................................................ 80 FIGURE 5-4: CCFRPD SERVICE MATRIX ............................................................................................................. 84 FIGURE 5-5: CCFRPD FIRE SERVICE PROFILE .................................................................................................... 89 FIGURE 6-1: COPPEROPOLIS FPD BOUNDARIES AND SOI .................................................................................... 95 FIGURE 6-2: COPPEROPOLIS FIRE PROTECTION DISTRICT GOVERNING BODY ..................................................... 96 FIGURE 6-3: CFPD NUMBER OF CALLS BY YEAR, 2007-2011 ............................................................................. 98 FIGURE 6-4: CFPD SERVICE MATRIX ................................................................................................................ 101 FIGURE 6-4: COPPEROPOLIS FPD FIRE SERVICE PROFILE .................................................................................. 106 FIGURE 7-1: EPFPD LIST OF LAFCO APPROVED BORDER CHANGES ............................................................... 110 FIGURE 7-2: EBBETTS PASS FIRE PROTECTION DISTRICT BOUNDARIES AND SOI .............................................. 111 FIGURE 7-3: EBBETTS PASS FIRE PROTECTION DISTRICT GOVERNING BODY .................................................... 112 FIGURE 7-4: EPFPD NUMBER OF CALLS BY YEAR, 2007-2011 ......................................................................... 115 FIGURE 7-5: EPFPD LONG-TERM DEBT BALANCE (END OF FY 10-11) ............................................................. 118 FIGURE 7-6: EPFPD SERVICE MATRIX .............................................................................................................. 120 FIGURE 7-7: EBBETTS PASS FPD FIRE SERVICE PROFILE ................................................................................... 128 FIGURE 8-1: FOOTHILL FIRE PROTECTION DISTRICT BOUNDARIES AND SOI ..................................................... 133 FIGURE 8-2: FOOTHILL FIRE PROTECTION DISTRICT GOVERNING BODY ........................................................... 134 FIGURE 8-3: FFPD NUMBER OF CALLS BY YEAR, 2009-2011 ............................................................................ 137 FIGURE 8-4: FFPD SERVICE MATRIX ................................................................................................................ 139 FIGURE 8-5: FOOTHILL FIRE PROTECTION DISTRICT SERVICE PROFILE ............................................................. 144 FIGURE 9-1: JLFPD LIST OF LAFCO APPROVED BORDER CHANGES ................................................................ 147 LIST OF FIGURES ]É{Ç UxÇÉ|à 9 cÉÄ|vç VÉÇáâÄà|Çz TááÉv|tàxá? __V 4 CALAVERAS LAFCO COUNTYWIDE FIRE MUNICIPAL SERVICE REVIEW FIGURE 9-2: JENNY LIND FIRE PROTECTION DISTRICT BOUNDARIES AND SOI .................................................. 149 FIGURE 9-3: JENNY LIND FIRE PROTECTION DISTRICT GOVERNING BODY ........................................................ 150 FIGURE 9-4: JLFPD NUMBER OF CALLS BY YEAR, 2009-2011 .......................................................................... 152 FIGURE 9-5: JLFPD SERVICE MATRIX ............................................................................................................... 155 FIGURE 9-6: JENNY LIND FIRE PROTECTION DISTRICT SERVICE PROFILE .......................................................... 160 FIGURE 11-1: MFPD LIST OF LAFCO APPROVED BORDER CHANGES . .............................................................. 164 FIGURE 11-2: MURPHYS FPD BOUNDARIES AND SOI .......................................................................................... 166 FIGURE 11-3: MURPHYS FIRE PROTECTION DISTRICT GOVERNING BODY ........................................................... 167 FIGURE 11-4: MFPD NUMBER OF CALLS BY YEAR, 2007-2011 .......................................................................... 169 FIGURE 11-5: MFPD SERVICE MATRIX ............................................................................................................... 172 FIGURE 11-6: MURPHYS FIRE PROTECTION DISTRICT SERVICE PROFILE ............................................................. 177 FIGURE 12-1: SAFPD LIST OF LAFCO APPROVED BORDER CHANGES ............................................................... 182 FIGURE 12-2: SAN ANDREAS FIRE PROTECTION DISTRICT BOUNDARIES AND SOI .............................................. 183 FIGURE 12-3: SAN ANDREAS FIRE PROTECTION DISTRICT GOVERNING BODY .................................................... 184 FIGURE 12-4: SAFPD NUMBER OF CALLS BY YEAR, 2007-2011 ......................................................................... 186 FIGURE 12-5: SAFPD SERVICE MATRIX .............................................................................................................. 190 FIGURE 12-6: SAN ANDREAS FIRE PROTECTION DISTRICT SERVICE PROFILE ...................................................... 195 FIGURE 13-1: WEST POINT FIRE PROTECTION DISTRICT BOUNDARIES AND SOI ................................................. 200 FIGURE 13-2: WEST POINT FIRE PROTECTION DISTRICT GOVERNING BODY ....................................................... 201 FIGURE 13-3: WPFPD NUMBER OF CALLS BY YEAR, 2007-2011 ........................................................................ 203 FIGURE 13-4: WPFPD SERVICE MATRIX ............................................................................................................. 206 FIGURE 13-5: WEST POINT FPD FIRE SERVICE PROFILE ...................................................................................... 211 FIGURE 14-1: CITY OF ANGELS BOUNDARY HISTORY ......................................................................................... 214 FIGURE 14-2: CITY OF ANGELS BOUNDARIES AND SOI ....................................................................................... 216 FIGURE 14-3: CITY OF ANGELS CAMP GOVERNING BODY ................................................................................... 217 FIGURE14-4: RECENT AND PROJECTED POPULATION GROWTH, 2000-2030 ........................................................ 219 FIGURE14-5: FIRE AND EMS SERVICE CALLS, 2006-2011 .................................................................................. 220 FIGURE14-6: HOUSING CONSTRUCTION PERMITS, 1996-2011 ............................................................................ 220 FIGURE 14-7: ANGELS CAMP FIRE SERVICE MATRIX .......................................................................................... 223 FIGURE 14-8: CITY OF ANGELS FIRE DEPARTMENT SERVICE PROFILE ................................................................ 229 FIGURE 15-1: TCU ACRES BY OWNERSHIP .......................................................................................................... 234 FIGURE 15-2: FIRE PREVENTION ACTIVITIES AND LOCATIONS ............................................................................ 236 LIST OF FIGURES ]É{Ç UxÇÉ|à 9 cÉÄ|vç VÉÇáâÄà|Çz TááÉv|tàxá? __V 5 CALAVERAS LAFCO COUNTYWIDE FIRE MUNICIPAL SERVICE REVIEW AC RON YMS ADWF: Average dry weather flow af: Acre-feet afa: Acre-feet per annum AMFPD: Altaville-Melones Fire Protection District BLS: Basic Life Support BOE California Board of Equalization CC&R Covenants, Conditions and Restrictions CCFRPD: Central Calaveras Fire and Rescue Protection District CEQA: California Environmental Quality Act CFPD: Copperopolis Fire Protection District CHP: California Highway Patrol CIP: Capital improvement plan CSDA: California Special District Association CY: Calendar year DFG: California Department of Fish and Game DME: Durable Medical Equipment DOF: California Department of Finance EMS: Emergency Medical Services EMT: Emergency Medical Technician EPFPD: Ebbetts Pass Fire Protection District 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 FF: Firefighter FFPD: Foothill Fire Protection District FPD: Fire Protection District FTE: Full-Time Equivalent FY: Fiscal year GIS: Geographic Information Systems GM: General Manager GP: General Plan ISO: Insurance Services Organization JHA: Jurisdiction having authority JLFPD: Jenny Lind Fire Protection District JPA: Joint Powers Authority LAFCO: Local Agency Formation Commission MCL: Maximum Contaminant Level mg: Millions of gallons MFPD: Murphys Fire Protection District MHFPD: Mokelumne Hill Fire Protection District MSR: Municipal service review NA: Not applicable ACRONYMS ]É{Ç UxÇÉ|à 9 cÉÄ|vç VÉÇáâÄà|Çz TááÉv|tàxá? __V 6 CALAVERAS LAFCO COUNTYWIDE FIRE MUNICIPAL SERVICE REVIEW NFPA: National Fire Protection Association NP: Not provided OASA: Out-of-Area Service Agreement OES: Office of Emergency Services OIT: Operator in training OPR: Governor’s Office of Planning and Research PSAP: Public Safety Answering Point SAFPD: San Andreas Fire Protection District SDMRA: Special District Risk Management Authority SOI: Sphere of influence SR: State Route USFS: United States Forest Service WPFPD: West Point Fire Protection District ACRONYMS ]É{Ç UxÇÉ|à 9 cÉÄ|vç VÉÇáâÄà|Çz TááÉv|tàxá? __V 7 CAALAVERAS LAAFCO COUNTYYWIDE FIRE MUNICIPAL SERVICE REVIEW PREEFACC E Prepared for thee Calaveras Local Agenncy Formatioon Commission (LAFCOO), this repoort is a servicee specific mmunicipal serrvices revieew—a state-required ccomprehenssive study oof fire services within Calaaveras Counnty. This MSR focuses on local agencies and other muniicipal service providers in Calaveraas County that proviide fire suppression and emerggency medical services. Thhe intentionn of this doccument is too provide a ddetailed desscription off how fire servvices are offfered in Calaveras County. LAFCOO has not addopted all ccontent founnd in this repoort; only the determinaations at thhe end of eaach chapterr are adopteed as part oof the LAFCO rresolution. CONTEXTT Calavveras LAFCOO is requireed to preparre this MSRR by the Corrtese-Knox-Hertzberg LLocal Governmment Reorgaanization AAct of 2000 (Governmeent Code §556000, et seeq.), which took effect onn January 1, 2001. The MSR reviews servicees providedd by public agencies wwhose boundarries and govvernance are subject too LAFCO. Aggencies prooviding fire--related services are the ffocus of this review. CRREDITS The authors exxtend their appreciation to those individuaals at many agencies that providedd planning and financcial informaation and ddocuments used in thhis report. The contribuutors are listted individuually at the eend of this rreport. Calavveras LAFCOO Executivee Officer, Johhn Benoit, pprovided prroject directtion and revview. Jerome KKeene preppared mapss and provided GIS annalysis. Thiis report wwas prepareed by Policy CConsulting AAssociates, LLC, and cco-authoredd by Jenniffer Stephennson and OOxana Wolfson. Oxana WWolfson served as prroject manaager. Jennnifer Stepheenson provvided researchh analysis. The llocal agencies have prrovided a suubstantial pportion of the information includeed in this docuument. Eachh local agency providedd budgets, fiinancial statements, vaarious planss, and responded to questionnaires. The servicce providers participatted in interrviews coveering topics suuch as workkload, staffinng, facilities, regional coollaborationn, and service challengees. PREFACE ]É{Ç UUxÇÉ|à 9 cÉÄ|vvçç VÉÇáâÄà|Çz TTááÉv|tàxá? ____V 8 CAALAVERAS LAAFCO COUNTYYWIDE FIRE MUNICIPAL SERVICE REVIEW 1 . E XEEC U TIIVE SSU M MM A RYY This report is a Municipal Service Revview (MSR) of fire servvices providded in Calavveras County pprepared for the Calaveeras Local AAgency Formmation Commmission (LLAFCO). An MSR is a Statee-required ccomprehenssive study oof services wwithin a dessignated geoographic areea, in this case, Calaveraas County. The MSRR requiremeent is codiified in thee Cortese-KKnox- Hertzberrg Local Goovernment Reorganizaation Act off 2000 (Govvernment CCode §560000 et seq.). Affter MSR finndings are aadopted, LAAFCO will beegin updating the spheeres of influuence (SOIs) oof the agenccies coveredd in this reeport. The City of Anngels Camp’s SOI was most recently updated in 2012, and wwill not be uupdated subbsequent too this revieww. SSERVICEE PROVIIDERS Figuure 1-1: FFire and EMSS Service Providers in CCalaveras Coounty This report foccuses on tthe City off Fire and EMSS Angels CCamp and sspecial distrricts under LAFCO jjurisdiction in Calaverras County Altaville-MMelones Fire PProtection Diistrict that provide fire annd emergenncy medical Central Callaveras Fire aand Rescue Protection Disstrict services (EMS). TThese provviders last Copperopoolis Fire Protection Districct reviewedd in an MSRR in 2006. AAs shown in Ebbetts Paass Fire Proteection District Figure 11-1, 11 firee and EMSS providers Foothill Fiire Protectionn District were reeviewed as part of thhis review. Jenny Lindd Fire Protecttion District This MSSR also includes inforrmation on Murphys FFire Protectioon District other governmentaal service providers, Mokelumnne Hill Fire Prrotection Disttrict such as the Califoornia Depaartment off San Andreas Fire Protection Districtt Forestryy and Fire Protectionn and the West Poinnt Fire Protecttion District United SStates Foreest Service,, to better City of Anggels Camp Firre Departmennt depict the servicce configuuration in Calaveraas County annd their relaation to prooviders in thhe County. SPPHERE OOF INFLUENCE Figurre 1-2: Existing Booundaries annd Spheres oof Influencee Each of the ffire Boundarry Area SSOI Area Agency SOI Descripption providerrs in Calaveeras (square miles) (squuare miles) County, with the Altavillle-Melones FPDD 777 77 Coterminouus SOI exceptioon of Centtral Centrall Calaveras FRPPD 114 154 Annexablee SOI Calaveraas FRPD aand Copperropolis FPD 187 187 Coterminouus SOI City of Angels Cammp, Ebbettss Pass FPD 180 180 Coterminouus SOI have SOOIs which are Foothilll FPD 101 101 Coterminouus SOI coterminnous to thheir Jenny LLind FPD 611 61 Coterminouus SOI boundarries. The SOIs Murphyys FPD 477 47 Coterminouus SOI for Centtral Calaveeras Mokeluumne Hill FPD 355 35 Coterminouus SOI San Anddreas FPD 666 66 Coterminouus SOI FRPD annd the Cityy of West Point FPD 108 108 Coterminouus SOI Angels Camp exteend City of AAngels Camp FFD 3.66 9.6 Annexablee SOI beyond thheir EXECUTIVVE SUMMARYY ]É{Ç UUxÇÉ|à 9 cÉÄ|vvçç VÉÇáâÄà|Çz TTááÉv|tàxá? ____V 10 CAALAVERAS LAAFCO COUNTYYWIDE FIRE MUNICIPAL SERVICE REVIEW boundarry areas and are definned as “annnexable SOIIs,” meaning LAFCO anticipates tthose areas that are withiin the SOI bbut presentlly outside tthe agency’ss bounds wwill eventuallly be annexedd into its bounds and wwill be serveed by the aggency in question. The existing service area sizee and SOI for each agenncy covered in this MSRR is shown inn Figure 1-22. GROWTH AND SERVICCE DEMAAND Each fire agencyy considerss its custommer base to be the resiidents, busiinesses, visiitors, structures, and opeen spaces inn its services area, as well as peeople traveling throughh the area. Thhere were 5,600 fire, EMS, and other emeergency ressponse servvice calls mmade countywwide in 20111. EPFPD annd SAFPD reesponded thhe highest nnumber of caalls; AMFPDD and MHFPD had the lowwest servicee demand. AA majority oof the calls iin the County were meedical emergenncy calls. Therre were appproximatelyy 44,840 ressidents in CCalaveras Coounty in 20012. Since 22000, the nummber of resiidents has grown by 111 percent. Projectionns for futurre growth ddiffer depending on the source (Caalifornia Deepartment oof Finance,, California Departmennt of Transportation, andd the Counnty’s planneed and propposed deveelopments), range betwween 0.36 andd 2.28 perceent average annual growwth over thhe next two decades. Baased on planned and prooposed devvelopments,, the fasteest growingg communnities are eexpected too be Copperoopolis, San AAndreas, Muurphys, Valleey Springs, Vallecito, annd Arnold. PLANNNING ANND MANNAGEMENT Pre-pplanning for future cappital improvement neeeds is considered a beest managemment practice,, which is recommended for alll public aggencies regaardless of size. Withh the exceptioon of EPFPPD, none oof the agenncies revieewed had adopted a formal caapital improveement plan (CIP). AMFFPD, FFPD, JLFPD, MFFPD, and MMHFPD repoortedly connduct some plaanning for ccapital imprrovements iin their straategic planss; however, several of tthese plans weere outdateed or in thee process off being commpleted. Cityy of Angels Camp FD’ss and CFPD’s ccapital imprrovement neeeds are inccluded in eaach agency’ss annual buddget. SAFPDD and WPFPD do not plan for future ccapital imprrovement neeeds. CIPs ccan be tailored to the nneeds of the aggency, but should incluude a list of anticipatedd replacemeent and improvement nneeds with an anticipatedd timeline foor completion and a finnancial plann for achievving those ggoals. It is recoommended that a CIP hhave a plannning horizon of at leastt five years and be upddated annuallyy to reflect ccurrent condditions. A simmilar situatiion exists wwith regard tto growth pplanning. AMMFPD, EPFPPD FFPD, JLLFPD, MFPD, MMHFPD and SAFPD do llimited growwth planninng in their respective sttrategic plans or through informally tracking planned devvelopments in their service areas. CFPD is inn the process of completting its straategic plan where this kind of grrowth plannning may ooccur. CCFRPD and WPFPDD do not assess future service neeeds with resspect to antticipated growth in popullation and service demmand. The City of Anggels Camp FD is the ssole agencyy that conductss formal advvanced growwth planninng for its enttire fire servvice area. ACCOUUNTABILLITY Of thhe 11 agenciies reviewed, five mainntain websittes where ddocuments aand informaation are madde availablee to the puublic—CCFRRPD, EPFPDD, MFPD, WWPFPD, andd City of Anngels Camp. WWhile there is a websitee with inforrmation reggarding MHFFPD, the content of thee site EXECUTIVVE SUMMARYY ]É{Ç UUxÇÉ|à 9 cÉÄ|vvçç VÉÇáâÄà|Çz TTááÉv|tàxá? ____V 11 CAALAVERAS LAAFCO COUNTYYWIDE FIRE MUNICIPAL SERVICE REVIEW is not deetermined bby the Distrrict. It is a recommennded practicce that disttricts mainttain a website where all district inforrmation is reeadily availaable to consstituents. Geneerally, the diistricts in thhe County faace a lack of public inteerest in disttrict activitiies as demonsttrated by aa lack of coontested ellections andd interested candidates for boarrd of director positions. Of the agenncies reviewwed, the currrent boardds of AMFPD, FFPD, JLLFPD, EPFPD, aand WPFPDD were the oonly electedd governing bodies; thee remainderr of the agenncies had boarrds that connsisted of onne or more aappointed ddirectors. Overrall, all disttricts reviewwed demonnstrated acccountabilityy by perfoorming outrreach activitiess beyond what is legallly required,and have a system in pplace to adddress custommers’ complainnts. Howevver, all agenncies, with the excepttion of EPFFPD and Anngels Campp FD, lacked accountabilitty in their cooperation with LAFCOO during thee MSR process. Informaation and docuuments proovided by districts requuired multiiple follow-uup attemptts. MHFPD ffailed to respond to several requests for informaation; howevver, ultimattely provideed the requeested informattion. CCFRPPD, JLFD, annd SAFPD faailed to provvide particuular requestted informaation. In additiion, multiplle inadequacies to propper governaance, accountability, trransparencyy and operatioons were ideentified for MHFPD oveer the course of this revview. FINNANCINGG Therre are differrences amoong the firee agencies of Calaveraas County iin their funnding sources, funding addequacy, and expendituure levels. Fire agenciies in Calavveras Countyy are funded pprimarily byy property taxes and sspecial taxes, which are constrainned by stateewide initiativees that have been passsed by voteers over thee years. Annother signiificant sourrce of funding is charges for servicees. The Cityy of Angels Camp reliees heavily oon general fund revenues and transiient occupancy tax. For tthe most ppart, the firre service pproviders laack the finnancial abiliity to makee the transitioon from calll and volunnteer staff to paid stafff. A majoritty of the aggencies repoorted significant challengges in adequuately funding services. Only AMMFPD and AAngels Cammp FD reportedd that their ffinancing wwas adequate. All agenciies reportedd a decline iin revenuess, due to a declline in propperty valuess. Other chaallenges to ffinancing innclude increeases in thee cost of fuel, apparatus maintenannce, liabilitty insurancce, physicalls, trainingg, and perssonal protectivve equipment costs. INFFRASTRUCTUREE NEEDSS Local fire agencies serving Calaveras CCounty operrate 26 fire stations. Of these, 12 wwere reportedd to be in good or exxcellent conndition, ninne in fair ccondition annd five in poor condition. Facilitiess and apparratus belongging to all ffire agenciees require rreplacemennts or upgrades of varyinng degrees. FFPD and MHFPD arre in need of additionnal fire stattions. Angels CCamp FD is ccurrently inn the process of makingg improvements to its SStation 1. Dispaatch servicees are provided by CallFire Emerggency Commmand Centeer located inn San Andreas through a contract wiith Calaveraas County. GGenerally, alll fire agenccies are satiisfied with thee level of ddispatch serrvice. The oonly excepttions are FFFPD and JLLFPD, whichh are currentlyy evaluatingg other disppatch optionns. All local fire servicee providers in Calaveraas are currentlyy working together too set up a countywidee closest-unnit response system uunder which both, the neaarest agenccy and the aagency withh jurisdictioon, would bbe dispatcheed to EXECUTIVVE SUMMARYY ]É{Ç UUxÇÉ|à 9 cÉÄ|vvçç VÉÇáâÄà|Çz TTááÉv|tàxá? ____V 12 CAALAVERAS LAAFCO COUNTYYWIDE FIRE MUNICIPAL SERVICE REVIEW each inccident. Thiss change iss expected to be implemented oover the neext year annd is expectedd to greatly enhance effficiency of rresponse ammong the various providers. SERVICEE ADEQUACY The fire and EMMS adequaccy measurees reviewedd here incluude firefighhter certificaation rates, response timees, Insurancce Service OOffice (ISO) rratings, andd coverage aadequacy. Among fire provviders in Caalaveras, Citty of Angelss Camp FD,, JLFPD andd FFPD have the highest FFirefighter I certification rates in the Countyy. The higheest EMT I ccertificationn rate belongs to MFPD. CCCFRPD hass some of thhe lowest ceertification rates for both Firefighhter I and EMTT I. AMFPD hhas the lowest EMT I ceertification ratio among the providders. Durinng the courrse of this reeview, it waas discovereed that whiile most firee agencies cclaim to track response ttimes, they were unwilling or unaable to provvide the requested meedian and 90thh percentile response ttimes for wwhich most sstandards aapply. Mosst agencies were able to pprovide aveerage respoonse times. Only EPFPPD, CCFRPDD and WPFPPD were abble to provide their mediaan and 90th percentile response tiimes. Respoonse times are the primmary indicatorr of an agenncy’s abilityy to provide emergencyy services, aand as such,, each of thee fire agenciess should make efforts to track their responnse times aand analyzee the resullts to identify where impprovements can be maade. CalFiree, which is the dispatccher for thee fire providerrs, tracks tthe numberr and response timess for each incident reesponded tto all agenciess. However, the numbeer of calls and responsse times proovided by aall the providers differed from CalFirre’s recordss. Fire proviiders shouldd coordinatte with CalFFire to betteer log and tracck each indiividual inciddent and reesponse timmes so data is consistennt and accuurate. Accordinng to CalFire, the fasttest responnder on aveerage in Caalaveras Coounty is SAAFPD; CCFRPD has the lonngest averagge response time. The ISO classifiies fire serrvice in commmunities from 1 to 10, indicatting the genneral adequaccy of coveraage. The besst ISO ratingg of four inn urban areaas belongs to EPFPD. CCFPD has an ISSO rating off 10. Most oof the fire aggencies in CCalaveras haave a rating of eight in their rural andd remote arreas. The sservice areaa sizes for eeach fire staation differr for each provider. AMMFPD serves the most expansive areea per statiion. Densely populated areas tennd to have smaller service areas peer station. Foor instance, City of Anggels Camp FDD has the smmallest servvice area peer fire station inn the Countty. GGOVERNNANCE STRUCTUURE OPTTIONS Durinng the course of this MSR process, it wass identified that consoolidation off fire providerrs in Calaaveras County is thee preferredd governannce structuure alternaative. Consoliddation prommotes efficieency, professsionalism aand public ssafety. The primary beenefit of consoolidation is eeconomies oof scale which are achiieved throuugh pooling of resourcees. In Calaveraas there aare two bbasic geographical cconsolidatioon options——regional and countywwide. Countyywide consoolidation woould, by deffinition, invvolve all locaal fire providers in the County. Reegional connsolidation would bee divided iinto three distinct aareas: Northweestern Calaaveras (Fooothill FPD aand Jenny Lind FPD), which haas already been completeed, SR 4 Corridor (Murphys FPDD, Altaville--Melones FFPD, Angelss Camp FD,, and possiblyy Ebbetts Paass FPD) annd SR 26 Corridor (Mookelumne HHill FPD, Ceentral Calavveras EXECUTIVVE SUMMARYY ]É{Ç UUxÇÉ|à 9 cÉÄ|vvçç VÉÇáâÄà|Çz TTááÉv|tàxá? ____V 13 CALAVERAS LAFCO COUNTYWIDE FIRE MUNICIPAL SERVICE REVIEW FRPD, West Point FPD, and possibly San Andreas FPD). All the providers in the County closely collaborate and appear to be open to consolidation and/or resource sharing in some form, which they demonstrated through formal and informal discussions with one other. EXECUTIVE SUMMARY ]É{Ç UxÇÉ|à 9 cÉÄ|vç VÉÇáâÄà|Çz TááÉv|tàxá? __V 14 CAALAVERAS LAAFCO COUNTYYWIDE FIRE MUNICIPAL SERVICE REVIEW 2 . LLA FCCO ANND MM U N I C I PA L SE RV I CEES R EEV I EWWS This report is prrepared purrsuant to leegislation ennacted in 20000 that reqquires LAFCCO to conduct a comprehhensive review of muniicipal servicce delivery and updatee the spherres of influencee (SOIs) off all agencies under LLAFCO’s jurrisdiction. This chaptter providees an overvieww of LAFCO’’s history, ppowers and responsibillities. It discusses the oorigins and legal requiremments for prreparation of the municipal servicces review (MSR). Finaally, the chaapter reviews the processs for MSR reeview, MSR approval annd SOI updaates. LAFCOO OVERVVIEW Afterr World Warr II, Californnia experiennced dramattic growth iin populatioon and econnomic developmment. Withh this boomm came a deemand for hhousing, jobbs and pubblic servicess. To accommodate this ddemand, maany new loccal governmment agencies were forrmed, often with little forrethought ass to the ultimate governance struuctures in aa given region, and exiisting agenciess often commpeted for expansion areas. The lack of ccoordinationn and adeqquate planningg led to a muultitude of ooverlappingg, inefficientt jurisdictional and servvice boundaaries, and the ppremature cconversion of Californiia’s agricultuural and oppen-space laands. Recognizing this problem, in 1959, GGovernor EEdmund G. Brown, Srr. appointedd the Commisssion on Metropolitan AArea Probleems. The CCommission's charge wwas to studyy and make recommendattions on thee "misuse oof land resoources" and the growinng complexiity of local goovernmentaal jurisdicttions. Thhe Commission's reccommendattions on local governmmental reorgganization wwere introdduced in thee Legislaturre in 1963, resulting inn the creation of a Local AAgency Formmation Commmission, orr "LAFCO," ooperating inn every counnty. LAFCCO was formmed as a couuntywide aggency to disscourage urrban sprawwl and encouurage the orderly formaation and development of locaal governmment agenciies. LAFCCO is responsiible for coordinating loogical and ttimely changges in locall governmenntal boundaaries, including annexatioons and detaachments oof territory, incorporatiions of citiees, formatioons of special districts, annd consoliddations, meergers and dissolutionns of districts, as weell as reviewinng ways too reorganize, simplify,, and streaamline goveernmental structure. The Commisssion's efforrts are focuused on enssuring that services arre providedd efficientlyy and economiically while agriculturaal and open--space landss are proteccted. To bettter inform itself and the communityy as it seekss to exercisse its charge, LAFCO conducts serrvice reviewws to evaluatee the provisiion of municcipal services within thhe County. LAFCCO regulatees, through approval, denial, connditions annd modificaation, bounndary changes proposed by public aagencies orr individualls. It also regulates tthe extensioon of public sservices byy cities andd special ddistricts ouutside theiir boundaries. LAFCCO is empoweered to inittiate updatees to the SSOIs and prroposals innvolving thee dissolutioon or consoliddation of sppecial districcts, mergerrs, establishhment of suubsidiary diistricts, andd any reorganiization inclluding such actions. Otherwise,, LAFCO aactions muust originatte as petitionss or resolutiions from afffected voteers, landownners, cities oor districts. LAFCO && MSRS ]É{Ç UUxÇÉ|à 9 cÉÄ|vvçç VÉÇáâÄà|Çz TTááÉv|tàxá? ____V 15 CAALAVERAS LAAFCO COUNTYYWIDE FIRE MUNICIPAL SERVICE REVIEW Calavveras LAFCOO consists oof seven reggular membbers: two mmembers from the Calavveras County BBoard of Supervisors, ttwo city couuncil members, two special districct memberss, and one publlic member who is apppointed by thhe other meembers of thhe Commisssion. There is an alternatee in each cattegory. All Commissionners are apppointed to ffour-year teerms. Figure 2--1: Commmission Memmbers, 2013 Appoinnting Agency MMembers Alternnate Membeers Two Commmissioners aree appointed by the Board of Supervisoors from the Booard’s membership. The Boarrd Meritaa Callaway Debbie PPonte of Supervvisors also appooints a third supervisor to serrve Darrenn Spellman as the alteernate County mmember of thee Commission. Two Commmissioners aree appointed by the City of Anggels from amoong its City Couuncil members. The City also Jack Lyynch Stuart Raaggio appoints aan alternate Citty member in tthe same manner Bob Soobon as it appoints a regular ccity member. Independdent special disttricts elect twoo regular Commissiion members ffrom among thheir governing Tony TTyrrell board meembers. Indepeendent special ddistricts also Don Youung John Lavaroni appoint an alternate member in the samme manner as iits regular mmembers. One Commmissioner is apppointed from tthe general pubblic by vote of the other six rregular (votingg) members of the Commissiion. The Commmission also apppoints an alternnate public meember who is selected in the ssame manner aas Anita PPaque Paul Stein the regulaar public membber. Neither thhe regular nor tthe alternate public member may be an offficer or employyee of the Cityy, the County, oor a special disttrict having territory within the Couunty. MUUNICIPAAL SERVICES REEVIEW OORIGINS The MMSR requirrement was enacted byy the Legisllature montths after thee release off two studies rrecommendding that LAAFCOs condduct reviewss of local aggencies. The “Little Hooover Commisssion” focussed on the need for ooversight aand consolidation of sspecial disttricts, whereass the “Commmission on LLocal Goverrnance for tthe 21st Cenntury” focused on the need for regioonal planninng to ensurre adequatee and efficieent local govvernmentall services aas the Californiia populatioon continues to grow. Little Hooverr Commiission In Maay 2000, the Little Hooover Commiission releaased a reporrt entitled SSpecial Districts: Relics off the Past oor Resourcees for the FFuture? Thhis report foocused on governancee and financiall challengess among inndependentt special diistricts, andd the barriiers to LAFFCO’s pursuit of district cconsolidatioon and disssolution. Thhe report raaised the cooncern thatt “the underlyiing patchwwork of sppecial disttrict goverrnments haas becomee unnecesssarily redundaant, inefficieent and unacccountable.”” In paarticular, thhe report raised conceern about aa lack of viisibility andd accountabbility among ssome indepeendent speccial districtss. The reporrt indicatedd that many special disttricts LAFCO && MSRS ]É{Ç UUxÇÉ|à 9 cÉÄ|vvçç VÉÇáâÄà|Çz TTááÉv|tàxá? ____V 16 CALAVERAS LAFCO COUNTYWIDE FIRE MUNICIPAL SERVICE REVIEW hold excessive reserve funds and some receive questionable property tax revenue. The report expressed concern about the lack of financial oversight of the districts. It asserted that financial reporting by special districts is inadequate, that districts are not required to submit financial information to local elected officials, and concluded that district financial information is “largely meaningless as a tool to evaluate the effectiveness and efficiency of services provided by districts, or to make comparisons with neighboring districts or services provided through a city or county.”1 The report questioned the accountability and relevance of certain special districts with uncontested elections and without adequate notice of public meetings. In addition to concerns about the accountability and visibility of special districts, the report raised concerns about special districts with outdated boundaries and outdated missions. The report questioned the public benefit provided by health care districts that have sold, leased or closed their hospitals, and asserted that LAFCOs consistently fail to examine whether they should be eliminated. The report pointed to service improvements and cost reductions associated with special district consolidations, but asserted that LAFCOs have generally failed to pursue special district reorganizations. The report called on the Legislature to increase the oversight of special districts by mandating that LAFCOs identify service duplications and study reorganization alternatives when service duplications are identified, when a district appears insolvent, when district reserves are excessive, when rate inequities surface, when a district’s mission changes, when a new city incorporates and when service levels are unsatisfactory. To accomplish this, the report recommended that the State strengthen the independence and funding of LAFCOs, require districts to report to their respective LAFCO, and require LAFCOs to study service duplications. Commission on Local Governance for the 21st Century The Legislature formed the Commission on Local Governance for the 21st Century (“21st Century Commission”) in 1997 to review statutes on the policies, criteria, procedures and precedents for city, county and special district boundary changes. After conducting extensive research and holding 25 days of public hearings throughout the State at which it heard from over 160 organizations and individuals, the 21st Century Commission released its final report, Growth Within Bounds: Planning California Governance for the 21st Century, in January 2000.2 The report examines the way that government is organized and operates and establishes a vision of how the State will grow by “making better use of the often invisible LAFCOs in each county.” The report points to the expectation that California’s population will double over the first four decades of the 21st Century, and raises concern that our government institutions were designed when our population was much smaller and our society was less complex. The report warns that without a strategy open spaces will be swallowed up, expensive 1 Little Hoover Commission, 2000, page 24. 2 The Commission on Local Governance for the 21st Century ceased to exist on July 1, 2000, pursuant to a statutory sunset provision. LAFCO & MSRS ]É{Ç UxÇÉ|à 9 cÉÄ|vç VÉÇáâÄà|Çz TááÉv|tàxá? __V 17 CAALAVERAS LAAFCO COUNTYYWIDE FIRE MUNICIPAL SERVICE REVIEW freeway extensionswill be neeeded, job centers will bbecome farthher removeed from houusing, and this will lead too longer commmutes, increased pollution and mmore stressfful lives. Growth Within BBounds ackknowledges that local governmennts face unnprecedenteed challenges in their abiility to finannce service delivery sinnce voters ccut propertyy tax revenues in 19788 and the Legislature shiffted properrty tax reveenues from local goverrnment to sschools in 11993. The repoort asserts tthat these fiinancial straains have crreated goveernmental eentrepreneuurism in whichh agencies coompete for sales tax revenue and mmarket sharre. The 21st Century Commmission recoommended that effecctive, efficiient and eeasily understaandable government be encouraaged. In acccomplishinng this, the 21st Cenntury Commisssion recommmended coonsolidationn of small, inefficient or overlappping proviiders, transparrency of muunicipal service deliverry to the peeople, and aaccountabillity of muniicipal service pproviders. TThe sheer nnumber of sppecial distrricts, the repport assertss, “has provvoked controveersy, includding several legislative attempts too initiate district conssolidations,””3 but cautionss LAFCOs thhat decisionns to consoolidate distrricts shouldd focus on tthe adequacy of services,, not on the number of districts. Growwth Within BBounds statted that LAFCOs cannoot achieve their fundammental purpposes without a compreheensive knowwledge of thhe services aavailable wiithin its couunty, the currrent efficienccy of providding servicee within varrious areass of the couunty, futuree needs for each service, and expansion capaciity of each service proovider. Commprehensivve knowledgge of water annd sanitary providers, the report argued, woould promoote consoliddations of wwater and saniitary districcts, reduce wwater costs and promoote a more ccomprehenssive approaach to the use of water rresources. FFurther, thee report assserted thaat many LAAFCOs lack such knowleddge and shoould be reqquired to conduct succh a revieww to ensuree that muniicipal services are logicallly extended to meet Callifornia’s future growthh and development. MSRss would reqquire LAFCOO to look brroadly at alll agencies wwithin a geeographic reegion that provvide a partiicular municcipal service and to exaamine conssolidation orr reorganizaation of servicce providerss. The 21st Century Coommission rrecommendded that thee review incclude water, wwastewater, and other municipal services thhat LAFCO judges to bbe important to future ggrowth. Thee Commissiion recommmended thaat the serviice review be followeed by consoliddation studies and bee performeed in conjunction wiith updates of SOIs. The recommendation wwas that servvice reviewws be designned to makee nine deterrminations, each of which was incoorporated verbatim iin the subsequently adopted leegislation. The legislatuure since connsolidated tthe determinations intoo seven requuired findinngs. MUNICIPAL SSERVICEES REVIEW LEGGISLATIOON The Cortese-Knox-Hertzberg Local Goovernment Reorganizaation Act off 2000 requires LAFCO rreview and update SOOIs not less than everyy five yearss and to reeview muniicipal services before uppdating SOIIs. The reqquirement ffor servicee reviews aarises fromm the identified need for a more coordinated aand efficiennt public seervice struccture to suppport Californiia’s anticipaated growthh. The servvice review provides LLAFCO withh a tool to sstudy existing and futuure public service cconditions comprehennsively annd to evaluate 3 Commission on Local Govvernance for thhe 21st Century, 2000, page 70. LAFCO && MSRS ]É{Ç UUxÇÉ|à 9 cÉÄ|vvçç VÉÇáâÄà|Çz TTááÉv|tàxá? ____V 18 CAALAVERAS LAAFCO COUNTYYWIDE FIRE MUNICIPAL SERVICE REVIEW organizaational optioons for accoommodatingg growth, ppreventing uurban sprawwl, and ensuuring that critiical servicess are providded efficienttly. Effecctive Januarry 1, 2008,, Governmeent Code §556430 requuires LAFCO to conduuct a review of municippal servicess provided in the couunty by reegion, sub-rregion or oother designatted geograpphic area, ass appropriatte, for the sservice or seervices to bbe reviewedd, and prepare a written sttatement off determinattion with reespect to eacch of the folllowing topiics:  GGrowth and population projectionss for the affeected area;  TThe location and characcteristics of any disadvaantaged uniincorporateed communiities wwithin or conntiguous to the SOI (efffective July 1, 2012);  Present and planned caapacity of ppublic faciliities and addequacy of public servvices, inncluding innfrastructure needs orr deficienccies (includding needs or deficienncies reelated to seewers, municipal and industrial wwater, and sstructural fiire protectioon in any disadvanntaged, uninncorporatedd communitties within oor contiguous to the spphere of influence);  Financial abiility of agenncies to provvide servicees;  Sttatus of, andd opportuniities for shaared facilitiees;  AAccountabiliity for commmunity servvice needs, including ggovernmental structuree and operational eefficiencies;; and  AAny other mmatter relatted to effecttive or efficcient servicce delivery, as requireed by coommission policy. MUUNICIPAL SERVIICES REVIEW PPROCESSS For local agenciees, the MSR process invvolves the foollowing steeps:  OOutreach: LAAFCO outreach and expplanation off the projectt  DData Discoveery: providee documentts and respoond to LAFCCO questionns  Profile Revieew: internal review andd comment on LAFCO ddraft profilee of the agenncy  Public Revieww Draft MSRR: review aand commennt on LAFCOO draft MSRR  LAFCO Heariing: attend and providde public commments on MSR MSRss are exemmpt from CCalifornia EEnvironmenntal Qualityy Act (CEQQA) pursuannt to §15262 (feasibility or planninng studies) or §15306 (informatioon collectioon) of the CCEQA Guidelinnes. LAFCO’s actions tto adopt MSSR determinations aree not considdered “projects” subject tto CEQA. The MMSR processs does not require LAAFCO to inittiate changees of organiization baseed on service rreview findings, only tthat LAFCO identify pootential government structure opttions. Howeverr, LAFCO, other locaal agenciess, and the public mmay subsequently usee the determinnations to analyze prospective cchanges of organizatioon or reorgganization oor to establishh or amend SOIs. Withhin its legall authorizattion, LAFCOO may act wwith respectt to a recommended channge of organnization or reorganizattion on its own initiattive (e.g., ceertain types of consolidations), or in rresponse to a proposal (i.e., initiated by resoluution or pettition by landoowners or reegistered vooters). LAFCO && MSRS ]É{Ç UUxÇÉ|à 9 cÉÄ|vvçç VÉÇáâÄà|Çz TTááÉv|tàxá? ____V 19 CAALAVERAS LAAFCO COUNTYYWIDE FIRE MUNICIPAL SERVICE REVIEW Oncee LAFCO haas adopted the MSR ddeterminatiions, it must update tthe SOIs foor 10 independent districcts. The LLAFCO Commmission deetermines aand adopts the spherees of influencee for each agency. A CEQA deteermination is made byy LAFCO onn a case-by-case basis for each sphhere of inflluence action and eacch change of organizzation, oncee the proposed project characterisstics are ssufficiently identified to assess environmental impacts. SPHERE OF INNFLUENCCE UPDAATES The CCommissionn is chargedd with develloping and uupdating thhe Sphere off Influence ((SOI) for each city and special districct within thee county.4 An SOOI is a LAFCCO-approved plan that designates an agency’ss probable ffuture bounndary and servvice area. Spheres arre planningg tools usedd to providde guidancee for indivvidual boundarry change prroposals annd are intennded to encoourage efficcient provisiion of organnized communnity servicees and prevvent dupliccation of seervice delivvery. Terriitory cannoot be annexedd by LAFCO tto a city or aa district unnless it is wiithin that aggency's spheere. The purposes oof the SOI include thee following:: to ensuree the efficieent provisioon of services,, discouragge urban spprawl and ppremature conversionn of agriculltural and open space lannds, and preevent overlaapping jurissdictions annd duplicatioon of servicces. LAFCCO cannot rregulate lannd use, dictate internaal operationns or adminnistration off any local ageency, or set rates. LAFCO is empowered to ennact policiees that indirrectly affectt land use deciisions. On aa regional llevel, LAFCO promotess logical annd orderly development of communnities as it considers and decidees individuual proposaals. LAFCOO has a role in reconciliing differennces between agency plans so tthat the moost efficient urban service arrangemments are created for tthe benefit oof current aand future aarea residennts and propperty owners. The Cortese-Knox-Hertzberrg (CKH) AAct requires to developp and deterrmine the SOI of each locaal governmental agenccy within thhe county annd to revieww and updaate the SOI eevery five yearrs. LAFCOs are empowwered to addopt, updatee and amend the SOI. They may ddo so with or without ann applicatioon and anyy interestedd person mmay submitt an applicaation proposinng an SOI ammendment. While SOIs are required too be updatted every fiive years, aas necessaryy, this doess not necessarrily define the planninng horizon of the SOI. The termm or horizoon of the SOI is determinned by eachh LAFCO. In the casee of Calaverras LAFCO, the Commmission’s pollicies state thaat an agency’s near terrm SOI shalll generally include lannd that is aanticipated tto be annexedd within the next five yeears, while tthe agency’’s long-termm SOI shall include landd that is withinn the probable growth boundaryy of an ageency and thherefore annticipated tto be annexedd in the nextt 20 years. LAFCCO may reccommend ggovernmentt reorganizzations to particular agencies inn the county, uusing the SOOIs as the baasis for thosse recommeendations. 4 The initiaal statutory mandate, in 1971,, imposed no ddeadline for commpleting spherre designations. When most LLAFCOs failed to actt, 1984 legislatiion required all LAFCOs to estaablish spheres oof influence by 1985. LAFCO && MSRS ]É{Ç UUxÇÉ|à 9 cÉÄ|vvçç VÉÇáâÄà|Çz TTááÉv|tàxá? ____V 20 CAALAVERAS LAAFCO COUNTYYWIDE FIRE MUNICIPAL SERVICE REVIEW In deetermining the SOI, LAAFCO is reqquired to coomplete an MSR and aadopt the sseven determinnations prevviously disccussed. In addition, in adopting or amendiing an SOI, LAFCO mmust makee the following determinnations:  Present and planned laand uses in the area, iincluding aggricultural and open-sspace laands;  Present and probable neeed for public facilities and servicees in the areea;  Present capaacity of pubblic facilitiess and adequuacy of pubblic service that the aggency provides or iis authorizeed to provide;  Existence off any social or economic commuunities of iinterest in the area if the Commission determiness these are rrelevant to tthe agency; and  Present and probable nneed for wwater, wasteewater, andd structurall fire protection faacilities andd services off any disadvvantaged unnincorporatted communnities withinn the exxisting spheere of influeence. The CCKH Act stiipulates sevveral proceddural requirrements in updating SSOIs. It requires that speecial districtts file writtten statemeents on thee class of sservices proovided and that LAFCO cclearly estaablish the loocation, natture and exxtent of services provvided by sppecial districts. By sttatute, LAFFCO must nnotify affectted agenciees 21 days before hollding the ppublic hearing tto consider the SOI andd may not uupdate the SSOI until afteer that hearring. The LAAFCO Executivve Officer mmust issue a report including recommmendations on the SSOI amendmments and updates under cconsideration at least ffive days beefore the pubblic hearingg. DDISADVAANTAGEDD UNINCCORPORRATED CCOMMUNNITIES On OOctober 7, 2011, Goveernor Browwn signed SB 244, wwhich makes two prinncipal changes to the Corttese-Knox-HHertzberg Loocal Governnment Reorrganization Act of 20000. SB 244 reqquires LAFCCOs to: (1) deny any applicationn to annex to a city tterritory thhat is contiguoous to a ddisadvantagged unincoorporated ccommunityy (DUC) unnless a seecond applicatiion is submmitted to annnex the disaadvantagedd communitty as well; aand (2) evaluate disadvanntaged uninncorporatedd communities in a munnicipal servvice review (MSR) uponn the next upddate of a sphhere of influuence after JJune 30, 20112. The iintent of thhe statute iss to encouraage investmment in disaadvantaged unincorporrated communnities that often lack baasic infrastruucture by mmandating cities and LAAFCOs to incclude them in land use plaanning. SB 2444 defines ddisadvantagged unincorrporated community ass any area wwith 12 or mmore registereed voters, oor as determmined by ccommission policy, whhere the meedian houseehold income iis less than 80 percent of the statewide annuaal median. SB 244 also reqquires LAFCCOs to consiider disadvvantaged unnincorporated communnities when deeveloping sppheres of innfluence. Uppon the nexxt update off a sphere off influence oon or after Julyy 1, 2012, SSB 244 requuires LAFCOO to include in an MSR (in preparaation of a spphere of influuence updaate): 1) TThe locatioon and chharacteristiccs of any disadvanttaged unincorpporated commmunities wwithin or coontiguous too the spherre; and 2) TThe present and LAFCO && MSRS ]É{Ç UUxÇÉ|à 9 cÉÄ|vvçç VÉÇáâÄà|Çz TTááÉv|tàxá? ____V 21 CALAVERAS LAFCO COUNTYWIDE FIRE MUNICIPAL SERVICE REVIEW planned capacity of public facilities, adequacy of public services and infrastructure needs or deficiencies including needs or deficiencies related to sewers, municipal and industrial water, and structural fire protection in any disadvantaged unincorporated community within or contiguous to the sphere of influence. In determining spheres of influence, SB 244 authorizes LAFCO to assess the feasibility of and recommend reorganization and consolidation of local agencies to further orderly development and improve the efficiency and affordability of infrastructure and service delivery. LAFCOs should revise their local policies to include the requirements imposed by SB 244 to ensure they fulfill their obligations under this legislation. Figure 2-2: Disadvantaged Unincorporated Communities The policy describing the Disadvantaged population threshold by which Census Designated Place Unincorporated Calaveras LAFCO will define a Community? community is yet to be determined. Arnold CDP No Hence, this report does not list Avery CDP Yes DUCs in Calaveras County as Copperopolis CDP No defined by the commission. Dorrington CDP Yes However, information on median Forest Meadows CDP No income is available at a census designated place level, which gives Mokelumne Hill CDP No a general idea of which areas in the Mountain Ranch CDP No County may be classified as Murphys CDP Yes disadvantaged unincorporated Rail Road Flat CDP Yes communities. As shown in Figure 2- Rancho Calaveras CDP No 2, six census designated places in San Andreas CDP Yes Calaveras are considered DUCs. Vallecito CDP No It should be noted that the Valley Springs CDP No intent of the legislation is to ensure Wallace CDP No that these communities are not West Point CDP Yes excluded by potential service providers; however; in the case of Calaveras County, a majority of the territory lies within a designated fire service provider’s bounds. The only exception is the Sheep Ranch area, which is outside of Central Calaveras Fire and Rescue Protection District’s bounds, but is receiving services at the same level as all other areas in the County through a contract with the County. LAFCO & MSRS ]É{Ç UxÇÉ|à 9 cÉÄ|vç VÉÇáâÄà|Çz TááÉv|tàxá? __V 22 CAALAVERAS LAAFCO COUNTYYWIDE FIRE MUNICIPAL SERVICE REVIEW 3 . FFI REE S E RRV I C EES This chapter proovides an ooverview of fire and emmergency mmedical servvice provideers in Calaveraas County. TThe most reecent municcipal servicce review (MMSR) for thhe Calaverass fire service pproviders wwas completted in 2005. For a dettailed description of eaach local agency, please reefer to the aagency-speccific chapterrs of this repport. Calavveras Countty is locatedd on the eastern side oof the Centrral Valley, eeast of Stockton, Californiia. It is a paart of the hiistoric Mothher Lode reegion of thee Sierra Nevvada Mounttains. The Cityy of Angels CCamp is the only incorpporated city in the Counnty. The County enccompasses 11,028 squarre miles annd is characcterized by rolling foothills beginninng at an elevation of around 3000 feet aboove sea level to mounntainous terrain reachingg an elevatioon of 8,100 feet. The CCounty is 666 percent ruural, 21 perrcent residential, and threee percent commerciaal, includingg Calaveras Big Trees State Parkk—a preservve of Giant Seequoia treees, located in the Couunty severaal miles easst of the ttown of Arrnold. Calaveraas County inncludes a poortion of thee Stanislauss National FForest and hhas several llakes scatteredd throughouut. The cclimate of tthe area is ssemi-arid wwith the rainny season ooccurring inn the winterr and dry hot summers. TThe arid summers, as wwell as the combinatioon of weathher, topograaphy, vegetatioon, and humman activityy, contributee to the highh fire hazardd of the Couunty. GRROWTH && POPUULATIONN PROJECTIONS This section revviews historrical and recent populaation and eeconomic grrowth, projeected growth, and growthh areas. Historrical Growth Therre were 40,554 residennts in Calavveras Countty in 2000 according tto 2000 Census. The poppulation in tthe unincorrporated commmunities was 37,5500, composinng 93 perceent of the Couunty’s entire populatioon. Since 2000, the countywidde population experieenced growth of about 122 percent, ffrom 40,5544 to 45,5788 in 2010, and after thhat a declinne to 44,840 iin 2012.5 The population in thhe unincorpporated commmunities experienceed an overall increase from 37,550 too 41,088 between 20000 and 2012.. The popullation in thee City of Angells Camp inccreased fromm 3,004 in 2000 to 3,8836 in 20100, an increaase of almosst 28 percent. In the lastt two years,, the populaation of thee City declinned to an eestimated 33,752. The County annually averaged one percennt positive ppopulation ggrowth fromm 2000 to 20012. The population growth ratte in unincoorporated CCalaveras CCounty has been beloww the statewidde growth rrate over the last fivee years, as shown in Figure 3-1.. Growth inn the unincorpporated areeas peaked in 2003 annd 2004 at two perceent annual ggrowth, butt has declinedd ever since,, ultimately declining too negative 00.5 percent iin 2012. 5 Populatioon in 2000 andd 2010 based oon Census dataa. Population iin 2012 as estiimated by Califfornia Departmment of Finance. FIRE SERRVICES ]É{Ç UUxÇÉ|à 9 cÉÄ|vvçç VÉÇáâÄà|Çz TTááÉv|tàxá? ____V CAALAVERAS LAAFCO COUNTYYWIDE FIRE MUNICIPAL SERVICE REVIEW FFigure 3-1: Populationn Growth Raates in Calavveras Countyy and Califoornia, 2001-2012 The growth raate in Angeels 6.0% Camp wwas higher tthan both tthe 5.0% countywwide and statewide 4.0% growth rrates from 22001 through 3.0% 2008. In 2009 and 22010, the raate 2.0% declinedd to loweer than tthe 1.0% statewidde average but sttill 0.0% remained higher tthan the raate -1.0% experiennced in unnincorporatted areas of the Countyy. In 2011 and -2.0% 20001 2002 2003 2004 2005 20066 2007 2008 20009 2010 2011 2012 2012, thhe growth raate in the City Unincoorporated Caalifornia Angeels Camp fell beloow both thhe State and unincorpporated terrritory growwth rates. Calaverass County’s populationn density iis 44 residentts per squarre mile, including bothh incorporated and unnincorporateed areas. TThere are apprroximately 22.3 persons per househhold countywwide. Developmentt Historicaal Developmment Figure 3-2: New Ressidential Buiilding Permmits, 2000-20012 The number off new residdential permits issued in unincorpoorated Calaveraas County peaked in 20005 at 856 andd has since ddeclined to 29 in 2012, aas shown in Figuree 3-2. Betweenn 2000 and 2012, the CCity of Angels iissued eighht percent oof the building permits aapproved in the County. Similar too the Countty, the number of permits issued bby the City hass drastically declined over the last 112 years, from 89 permmits in 2000 to one permit issued in 2012. Planned & Proposedd Developmment Therre are 45 approved or proposed residenntial permit applicatioons withinn the unincorpporated porrtion of the County. Thhese planneed and propposed develoopments coonsist of over 11,000 addditional dweelling units. Althoughh the timingg of many ddevelopmennts is uncertain due to cuurrent econnomic conditions, existting potenttial developments illusstrate that poppulation couuld increase by as maany as 25,3300 in the coming yeaars, due to new residenttial development.6 Devvelopments with pendiing applicattions or undder construction 6 Based onn the total nummber of planned and proposeed dwelling uniits, and the avverage populatiion per househhold in unincorporrated Calaveras County, accordding to the Depaartment of Finaance. FIRE SERRVICES ]É{Ç UUxÇÉ|à 9 cÉÄ|vvçç VÉÇáâÄà|Çz TTááÉv|tàxá? ____V CALAVERAS LAFCO COUNTYWIDE FIRE MUNICIPAL SERVICE REVIEW in unincorporated Calaveras County, as of December 2012, are shown in Figure 3-3. The communities with the most development potential over the next 20 years include Copperopolis, San Andreas, Murphys, Valley Springs, Vallecito and Arnold. Figure 3-3: Planned or Proposed Development in Unincorporated Calaveras, 2012 Development Units Status SR 12 Area Charboneau Estates (Valley Springs) 64 lots In approval process. Crestview Estates (near Wallace) 37 lots In approval process, but status is uncertain EP&G Properties (Spring Valley Estates II) 35 lots In approval process, but status is uncertain Las Tres Marias (near Wallace) 15 lots Tentative map approved Meadow View Estates (Widhalm) 11 lots In approval process, but status is uncertain Mendonca (near Wallace) 6 lots In approval process Mission Ranch (Valley Springs) 219 lots and 2 commercial parcels Review is ongoing Stamper Ranch 21 lots Tentative map approved, but ownership has changed Ventana 50 lots In approval process SR 26 Area Calaveras River Estates 5 lots Tentative map approved Calaveras River Heights 25 lots On hold Courtyard at La Contenta Shopping Center Review is ongoing Del Verde Subdivision 91 lots In approval process; ownership changed Gold Creek Estates Units 1,2,3 385 lots Final map approved. Under construction Hogan Oaks 1 and Hogan Oaks 2 122 lots In approval process New Hogan Lake Estates (Platner) 83 lots Final map approved North Vista Plaza 156 lots Final map approved. Under construction Old Golden Oaks 96 lots In approval process Olive Orchard Estates 50 lots Final map approved. Under construction George Rose 6 lots Tentative map approved North Vista Plaza 156 units Final map approved Vista Plaza II 38 units Final map apppropvped Vosti Properties 24 lots approved. Bolin property 18 lots In approval process Briski property 25 lots In approval process Schroven property 20 lots In approval process Zinfandel Estates (Robinson) 4 lots In approval process Copperopolis SR 4 Area Copper Town Square and Condos 39 to 69 units and commercial space Final map approved Sawmill Lake 800 units and village Review is ongoing Vineyard Estates 18 lots Review is ongoing Saddle Creek 1,650 lots Final map approved 2,275 lots, 400 permanent units, Oak Canyon Ranch 800 transient units Tentative map approved. Ownership changed. Tuscany Hills 300 lots Tentative map approved. Ownership changed. Copper Valley Ranch 2,400 lots In approval process. Review is ongoing. Angels Camp/Murphys/Arnold SR 49 and SR 4 Areas Forest Meadows (various applications) 220 lots In approval process. Review is ongoing. Murphys Rocky Hill (Murphys) 43 lots Review is ongoing Mitchell Ranches (in Vallecito) 113 lots Review is ongoing Coyote Creek (near Douglas Flat) 104 lots In approval process Sutton Enterprises on SR 49 at Carson Hil 14 lots In approval process Nielsen (Melones) 5 lots Review is ongoing Rasmussen (Melones) 5 lots Review is ongoing Wilson (Melones) 4 lots Review is ongoing Field (Melones) 4 lots Review is ongoing Novogradac (Camp Connell area) 15 lots Review is ongoing Khosla (Sheep Ranch Road) 44 lots In approval process FIRE SERVICES ]É{Ç UxÇÉ|à 9 cÉÄ|vç VÉÇáâÄà|Çz TááÉv|tàxá? __V CAALAVERAS LAAFCO COUNTYYWIDE FIRE MUNICIPAL SERVICE REVIEW Withhin the Cityy’s limits, there are five develoopment proojects apprroved or uunder construcction that aare anticipaated to connsist of bettween 255 and 285 new resideential dwellingg units. Pennding develoopment activity consistts of one neww planned ssubdivisionn, and build-ouut of existingg approvedd projects. AApproved inn 2006, Thee Classics oon the Ridgee is a new 55--unit subdivvision locatted on 12.5 acres, withhin the Greeenhorn Creek Golf Coourse Communnity. Consttruction of the project is anticipaated to begiin sometimme in or prior to 2014. EExisting proojects that have not yet been fullly built-outt include Greenhorn CCreek (130-160 units), Anngel Oaks (224 units), Sttelte Park ((20 units), aand Ron Daavis Townhoomes (27 unitts). Build-oout of the planned andd proposed developmeent projects within thee City would inncrease the population by betweenn 587 and 656 residentts at existingg densities. 7 The Angels Caamp 2020 General PPlan reportted that thhere were 93 vacannt or underdeeveloped ressidential paarcels withinn the City wwith capacityy for at least 3,200 dweelling units. AAt existing ddensities, buuild-out of tthe vacant oor underdeeveloped paarcels withinn the City wouuld increasee the populaation by appproximatelyy 6,925 residdents.8 Population Projectioons Countywwide Figuure 3-4: CCountywide DOF Populaation Projecctions Popuulation projections for the Counnty vary deppending on the dataa source that is used. The Caliifornia Department of Finance (DOF) pprojects a countywwide popuulation of 48,312 bby 2020 andd 53,001 by 2030. TThis would amount to an increease over the 2010 population of six percent and 16 perceent, respecttively. The DOF pprojections through 2060 aree shown in FFigure 3-4. As part of the GGeneral Plaan update, tthe County is in the pprocess of pputting togeether population projecttions throuugh build oout of thee plan. Population projectionss are anticipatted to be released to the public in April 20013. In lieuu of updateed General Plan projectioons, the Couunty has useed DOF population projjections as part of its HHousing Elemment Update tthat was adoopted in 2010. The CCalifornia DDepartment of Transpoortation (DOOT) also maakes populaation projections for each county in the State. TThe DOT reeleased proojections in October 20012 for a peeriod through 2040. The DOT projecctions for Caalaveras aree relatively conservativve compared the 7 The 2012 population perr household for the City of Angels is approximmately 2.3, accorrding to the Deppartment of Finnance. 8 Angels Camp 2020 Generral Plan, Appenddices: Housing, 2009, p. 2-24. FIRE SERRVICES ]É{Ç UUxÇÉ|à 9 cÉÄ|vvçç VÉÇáâÄà|Çz TTááÉv|tàxá? ____V CALAVERAS LAFCO COUNTYWIDE FIRE MUNICIPAL SERVICE REVIEW DOF projections. In 2020, the DOT anticipates that Calaveras will have a population of 45,159, and in 2030 the population will reach 46,833, with overall growth rates of negative one percent and four percent for each 10 year period, respectively. Another method of projecting population is to use planned and proposed developments as a guide. There are over 11,000 new housing units planned or proposed in Calaveras County (including the City of Angels), as of the drafting of this report. Once absorbed, the countywide population will grow by about 26,000, if new homeowners’ households are comparable in size to existing households. A conservative estimate of project initiation, completion and absorption would be about 20 years, particularly due to the uncertain future of the housing market. Given this assumption, the countywide population could grow to 70,840 at build-out of all planned and proposed development projects, which is assumed to be around 2033. This would be an increase of 58 percent over the countywide population in 2012. Figure 3-5: Annualized Growth Projections by Method Method 2010-2020 2020-2030 DOF Projections 0.58% 0.93% Department of Transportation Projections -0.1% 0.36% Planned and Proposed Developments Projections 2.28% 2.28% A comparison of the annualized growth rates through 2030 for each of the projection methods discussed is shown in Figure 3-5. As shown, the DOF and DOT projections are fairly conservative with annualized growth rates of less than one percent. Anticipated growth based on existing planned and proposed projects appears significant with 2.3 percent annual growth over the 20 year period. City of Angels Camp Because neither the DOF nor the DOT releases projections specific to the City of Angels, and the City’s growth rates have not always mirrored those of the County, the City has put together its own projections in the General Plan. The projections are based on a combination of historical growth in the City, the Regional Housing Needs Allocation Study, and the Water and Wastewater Master Plans. The City's housing needs projections are based on regional figures indicating an annual growth rate of approximately three percent. The City's water and wastewater management plans have most recently been based on a two percent growth rate (with provisions for reassessing those growth rates). Historically, the city annual average growth rate over a 20-year period has been 3.2 percent; however, reflecting the effects of the recession beginning in 2008, the City Council directed that the projected growth rate be 1.8 percent to 2.5 percent to better reflect current economic conditions. The General Plan states that the growth rate will be updated frequently to reflect changing conditions. FIRE SERVICES ]É{Ç UxÇÉ|à 9 cÉÄ|vç VÉÇáâÄà|Çz TááÉv|tàxá? __V CAALAVERAS LAAFCO COUNTYYWIDE FIRE MUNICIPAL SERVICE REVIEW FIRRE AND EMS SEERVICESS This section proovides an ooverview off fire protecction and emmergency mmedical serrvices providedd by local agencies in CCalaveras County. Forr a detailed descriptionn of each service providerr, refer to thhe agency’s rrespective cchapter in thhis documeent. Servicce Proviiders This report foccuses on fiire and emmergency mmedical serrvice providders locateed in Calaveraas County, wwhich are unnder the jurrisdiction off Calaveras LAFCO. As shown in Fiigure 3-6, onee city and 10 special districts wwere reviewwed as partt of this Muunicipal Service Review. In adddition, this review inclludes a chappter on the California DDepartmentt of Forestryy and Fire Protection (CallFire) and ddescribes seervices provvided by othher non-LAAFCO agenciies to provide a comprehhensive desscription off the structture of firee and emerrgency respponse services in Calaveraas County. The types of seervices provvided by eaach agencyy varies deppending on staff expertise, training and certificcation, as wwell as availlability of specialized eequipment or vehicles, and other reesources. FFor examplee, only certtain facilitiees have laddder truckss and helicoopter pads. FFigure 3-6 details the various seervices proovided by eeach agencyy under LAAFCO jurisdicttion. The bbounds of eeach of thesse agencies are shown in Figure 33-7. Central Calaveras FFRPD is the onnly district inn Calaveras County thaat has a servvice area larrger than itss boundary area. Due to aa reorganizzation of Coounty Fire tthat occurrred in 19999 and 20000, Murphys FPD, Central Calaveras FFRPD, Jennyy Lind FPDD, and Footthill FPD beegan proteccting areas that previoussly had beeen a part oof County FFire’s servicce area, buut unlike JLLFPD and FFFPD, CCFRPD has not annnexed thesee areas to daate. FIRE SERRVICES ]É{Ç UUxÇÉ|à 9 cÉÄ|vvçç VÉÇáâÄà|Çz TTááÉv|tàxá? ____V CALAVERAS LAFCO COUNTYWIDE FIRE MUNICIPAL SERVICE REVIEW Figure 3-6: Fire Service Providers in Calaveras County Service FIRE SERVICES ]É{Ç UxÇÉ|à 9 cÉÄ|vç VÉÇáâÄà|Çz TááÉv|tàxá? __V 29 DPFMA DPRFCC DPFC DPFPE DPFF DPFLJ DPFM DPFHM DPFAS DPFPW DFCA Structural fire protection            Wildland fire protection            Vehicle fire protection            Ladder truck capabilities     Emergency medical services            Basic life support            Advanced life support   Advanced life support transport  Hazardous materials emergency response            Fire prevention            Fire safety education            First responder swift water rescue         Low angle rope rescue       Public service assists            Oxygen filling for breathing apparatuses        Helicopter facilities        Jaws of Life tools            Response to boating accidents        Water rescue         Dive and ice rescue   Fire investigation            Home inspections         Business inspections         Public Education (CPR, First Aid, Etc.)            Continuing Education Provider            Community Emergency Response Team            n nn n n n nn n n n n n n n n n n n nn n n n n n n n n n n n n nnn n n nn n ytnuoC niuqaoJ naS Salt Springs Reservior Alpine County 43 Amador County West Point FPD 25 1 26 27 Ebbetts Pass FPD 2 4013 29 Central Calaveras FRPD ·|}þ 37 4 Mokelumne Hill FPD Pardee Reservoir ·|}þ 38 26 14 3 4 15 5 35 Calaveras County Fire PTruooteluctmionne D Cisotruicnttsy and Fire Departments Camanche Reservoir 36 San Andreas FPD Altaville-Melones FPD 31 Foo ·|}þ thill FPD 34 41 16 City of Angels Camp FD 30 12 7 6 Central Calaveras FRPD New Hogan Reservoir ·|}þ Protected by Central Calaveras FRPD 49 Copperopolis FPD 32 17 Ebbetts Pass FPD 33 8 ·|}þ 26 Altaville-Melones FPD Murphys FPD F Je o n o n th y i L ll i n F d P D FPD 42 9 18 Mokelumne Hill FPD 10 22 Murphys FPD Jenny Lind FPD 19 21 San Andreas FPD West Point FPD n ·|}þ District/City Fire Facilities Salt Spring Valley Reservior 11 49 n Non-District & Non-City Facilities Waterbodies Copperopolis FPD County Boundary 23 New Melones Reservior Highways 12 ·|}þ Other Counties 4 Parcels 24 Stanislaus County Tulloch Reservior « 0 5 10 20 30 Miles CALAVERAS LAFCO COUNTYWIDE FIRE MUNICIPAL SERVICE REVIEW Altaville-Melones Fire Protection District Altaville-Melones Fire Protection District (AMFPD) provides structure fire protection, wildland fire protection, vehicle fire suppression, and emergency medical services, and responds to boating accidents on New Melones Lake. AMFPD serves the largest area per fire station. Services are provided by 20 sworn personnel from one fire station. Besides the chief and the assistant chief, all the firefighters are volunteers. AMFPD has eight Firefighter I and four EMT I certified personnel. Central Calaveras Fire Rescue and Protection District Central Calaveras Fire and Rescue Protection District (CCFRPD) provides structure, wildland and vehicle fire suppression, and emergency medical services (EMS). CCFRPD’s service area extends beyond the district boundaries. Services to the Sheep Ranch area are provided under an agreement with the County of Calaveras, which dates back to 2002. The District is staffed by 21 sworn personnel and one administrative assistant. Of the sworn personnel three are full-time paid staff and one is a part-time paid chief. All other firefighters are volunteers. The District operates out of five fire stations. CCFRPD has one of the lowest certification rates in the County, with five Firefighter I and five EMT I certified personnel. The District’s volunteer recruitment efforts are ongoing. Copperopolis Fire Protection District Copperopolis Fire Protection District (CFPD) provides structure fire protection, wildland fire protection, and paramedic services. CFPD is served by 29 sworn personnel, six of which are paid full-time staff. Of the sworn personnel, 21 are Firefighter I and 20 are EMT I certified. The District tries to recruit more volunteers through word of mouth and direct advertisement in local publications. The District’s chief also serves as the fire chief for Murphys FPD. CFPD operates out of three fire stations. Ebbetts Pass Fire Protection District Ebbetts Pass Fire Protection District (EPFPD) provides structural, vehicle and wildland fire suppression, paramedic level response to medical emergencies, technical rescue response, hazardous materials response, fire prevention, code enforcement, regional emergency command and control, and community education. EPFPD, out of all the reviewed fire providers in Calaveras County, is the only district that provides ambulance services. The District is served by 53 sworn staff (of which 22 are full-time paid staff) and one executive secretary. EPFPD has 22 Firefighter I, 10 EMT-B and 12 EMT-P certified personnel. The District has four stations served by four battalions. Foothill Fire Protection District Foothill Fire Protection District (FFPD) provides structure fire protection, wildland fire protection, emergency medical response, fire prevention services, home inspections, hazardous materials assistance, and public service assistance. FFPD and Jenny Lind FPD are FIRE SERVICES ]É{Ç UxÇÉ|à 9 cÉÄ|vç VÉÇáâÄà|Çz TááÉv|tàxá? __V 31 CALAVERAS LAFCO COUNTYWIDE FIRE MUNICIPAL SERVICE REVIEW in the process of consolidating; in the meantime they share resources though a joint powers authority (JPA). FFPD has 25 sworn personnel—one part-time fire chief, one full-time deputy chief, three full-time captains, and 20 volunteer firefighters—and one administrative assistant. All administrative staff are shared with Jenny Lind FPD through the joint powers authority. JLFPD has 20 Firefighter I, and 18 EMT, and three paramedic certified personnel. JLFPD, along with FFPD, possesses the highest Firefighter I certification rate in the County. FFPD operates out of two fire stations. Jenny Lind Fire Protection District Jenny Lind Fire Protection District (JLFPD) provides structural fire protection, wildland fire protection, emergency medical response, fire prevention services, home inspections, hazardous materials assistance, and public service assistance. As previously mentioned, JLFPD and FFPD are in the process of consolidating and presently share resources though a JPA. JLFPD has 25 sworn personnel—one part-time fire chief, one full-time deputy chief, three full-time captains, and 20 volunteer firefighters—and one administrative assistant. All administrative staff are shared with FFPD through the JPA. FFPD has 20 Firefighter I, and 13 EMT, and five paramedic certified personnel. FFPD, along with JLFPD, possesses the highest Firefighter I certification rate in the County. The District currently operates two fire stations. Mokelumne Hill Fire Protection District Mokelumne Hill Fire Protection District (MHFPD) provides structural fire protection, wildland fire protection, and emergency medical response. MHFPD has 17 sworn personnel, of whom three staff are part-time and the remainder are volunteers. There are12 Firefighter I and four EMT I-certified personnel. MHFPD has the highest ratio of firefighters per 1,000 residents and one of the lowest EMT I certification rates in the County. The District operates out of one fire station. Murphys Fire Protection District Murphys Fire Protection District (MFPD) provides structural, wildland and all other categories of fire protection, including response to medical emergencies, vehicle accidents and public service assists. The District operates out of two fire stations with 33 sworn personnel. It has the second highest ratio of sworn personnel per 1,000 residents. There are 24 EMT, six first responder and 23 Firefighter I-certified personnel, which are some of the highest certification rates in Calaveras County. The District’s chief also serves as the fire chief for Copperopolis FPD. San Andreas Fire Protection District San Andreas Fire Protection District (SAFPD) provides structure and wildland fire protection, hazardous materials and emergency medical first responder services along with emergency medical technician non-transport service. FIRE SERVICES ]É{Ç UxÇÉ|à 9 cÉÄ|vç VÉÇáâÄà|Çz TááÉv|tàxá? __V 32 CALAVERAS LAFCO COUNTYWIDE FIRE MUNICIPAL SERVICE REVIEW SAFPD owns and operates two fire stations. One of the stations is staffed seven days a week, 24 hours a day by at least one paid personnel. There are 30 sworn personnel, of whom 14 are Firefighter I and 11 are EMT I certified. SAFPD has the lowest median and 90th percentile response times in Calaveras County. West Point Fire Protection District West Point Fire Protection District (WPFPD) provides structural, vehicle and wildland fire suppression, basic life support response to medical emergencies, fire prevention and community education to the community of West Point and surrounding area. The District has 23 sworn personnel and three support staff including a chaplain. There are 11 Firefighter I and 14 EMT-1-certified personnel. WPFPD operates out of two fire stations. City of Angels Camp Fire Department The City of Angels Camp, more commonly known as the City of Angels, provides several municipal services including, water, wastewater, fire protection, police, street and road, parks and recreation, and street lighting services. With regard to fire services, the City provides fire prevention (including structure inspections) and suppression, and emergency medical services in the form of basic life support. The City of Angels Fire Department is a combination fire department that consists of two full-time and 23 paid on-call/part-time firefighters. Of all the city firefighters, 21 are Firefighter I certified and 16 are EMT 1 certified, the others are first responder certified. The City Fire Department operates out of two fire stations. Context There are 11 local emergency medical and fire service providers in Calaveras County. With an average of just over 5,600 fire and emergency service calls a year, the agencies provide fire protection and rescue service to 1,028 square miles of territory. Fire agencies of Calaveras County respond to structure fires, wildland fires, medical emergencies, water rescue, technical rope rescue, hazardous materials spills, public service assistance calls, and other emergencies. Fires in Calaveras County occur in both urban and wildland settings and generally are classified as either structural fires or wildland fires. The County land use policies in the 1996 General Plan had allowed development in areas of high fire hazard, which created an urban/wildland interface fire problem with many homes located throughout wildland areas. Structure fires can easily spread to wildland areas; vice versa, wildland fires often threaten residential subdivisions. After the Old Gulch fire that occurred in Calaveras in 1992, the Federal Emergency Management Agency (FEMA) recommended the County adopt hillside development standards for homes located on or near excessive slopes. The County has not adopted such standards to date. CalFire and the United States Forest Service (USFS) are primarily responsible for wildland fire protection; however, CalFire does assist local fire protection districts in structural fire protection and other emergency responses. CalFire and USFS are not FIRE SERVICES ]É{Ç UxÇÉ|à 9 cÉÄ|vç VÉÇáâÄà|Çz TááÉv|tàxá? __V 33 CALAVERAS LAFCO COUNTYWIDE FIRE MUNICIPAL SERVICE REVIEW reviewed in this report, other than to describe their relation to the 10 local fire districts and the city fire department. The Tuolumne-Calaveras Unit (TCU) of CalFire is headquartered in San Andreas. CalFire has nine fire stations, a conservation camp, and a lookout located throughout various parts of the County. In addition, CalFire provides contract dispatch services to all of the fire districts and Angels Camp FD through its Fire Protection Emergency Command Center located in San Andreas. USFS is responsible for wildland fire protection on U.S. forestlands. The Forest Service does not provide structural fire protection and relies upon CalFire and the Ebbetts Pass FPD to provide structural fire protection for those structures that might be located on private parcels within and around the U.S. forests. USFS maintains two fire stations in Calaveras County—one in Hathaway Pines and another in Dorrington. The fire stations are staffed during the day from about May until November, during fire season. CalFire and federal wildland fire protection agencies, such as USFS and the U.S. Bureau of Land Management (BLM) 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, CalFire and the federal agencies attempt to balance the amount of responsible acreage. Calaveras County local fire agencies do not have statutory responsibility for wildland fire protection, but they do respond to wild fires and get reimbursed from the state or federal governments. Calaveras County has designated the Mountain-Valley Emergency Medical Services Agency as the local emergency medical service agency (LEMSA) 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. In July 2005, the Mountain Valley EMS Agency entered into two agreements for such services within Calaveras County—one agreement is with Ebbetts Pass FPD and another with American Legion Ambulance. The County is divided into three exclusive operating areas for the provision of ambulance service. American Legion Ambulance provides services in the North and South Zones and Ebbetts Pass Fire District serves the East Zone. The Calaveras County Sheriff’s Department provides dispatch for all ambulance services within the County. Fire first response agencies are dispatched by CalFire in San Andreas. Only two of the 11 local fire agencies provide advanced life support—Ebbetts Pass Fire Protection District in the East Zone and Copperopolis Fire Protection District in the southwest portion of the County. The remaining fire agencies provide basic life support first response services. Patients are typically transported to Mark Twain Medical Center in San Andreas or Sonora Regional Medical Center in neighboring Tuolumne County. Calaveras County Fire Department (County Fire) previously provided fire services in Calaveras County, but changed its role in the 1999-2000 reorganization. Prior to the reorganization, County Fire was responsible for fire protection in the Vallecito, Sheep Ranch and Burson areas and had fire stations, equipment and personnel to provide such services. These responsibilities were transferred along with tax revenues and facilities to FIRE SERVICES ]É{Ç UxÇÉ|à 9 cÉÄ|vç VÉÇáâÄà|Çz TááÉv|tàxá? __V 34 CALAVERAS LAFCO COUNTYWIDE FIRE MUNICIPAL SERVICE REVIEW the local fire protection districts. Currently, County Fire provides various support services to the local fire protection districts. County Fire has an agreement with CalFire to provide dispatch services from its Fire Protection Emergency Command Center located in San Andreas. The County pays CalFire approximately $250,000 per year for these services. The County also used to finance workers compensation insurance for local fire districts, but this practice was discontinued in May 2004. In addition, Calaveras County purchased water tenders for most of the districts in the County—Central FRPD, Mokelumne Hill FPD, Murphys FPD, Ebbetts Pass FPD, Jenny Lind FPD, San Andreas FPD, West Point FPD, and Foothill FPD. The County gave $150,000 to Copperopolis FPD to purchase a water tender on its own. Altaville-Melones FPD chose not to obtain a water tender from the County and instead received $10,000 to pay for a new engine in an old chassis. Mutual and Automatic Aid Agreements There are extensive mutual and automatic aid arrangements for fire and emergency medical services that cross jurisdictional boundaries throughout Calaveras County. Mutual aid refers to reciprocal service provided under a mutual aid agreement, a pre-arranged plan and contract between agencies for reciprocal assistance upon request by the first- response agency. In addition, the fire service providers rely on automatic aid primarily for coverage of areas with street access limitations and freeways. Automatic aid is based on the concept that the nearest available unit responds first. It refers to reciprocal service provided under an automatic aid agreement, a prearranged plan or contract between agencies for an automatic response for service with no need for a request to be made (i.e., the assisting provider is dispatched directly). All public safety agencies are required to provide mutual aid in times of extreme disaster as part of the California Governor’s Office of Emergency Services Master Mutual Aid Agreement. California Disaster and Civil Defense Master Mutual Aid Agreement calls for all the parties to the agreement to voluntarily aid and assist each other in the event that a disaster should occur, by the interchange of services and facilities, including, but not limited to fire, police, medical and health, communication and transportation services and facilities, to cope with the problems of rescue, relief, evacuation, rehabilitation, and reconstruction. The 11 fire agencies, CalFire, State Office of Emergency Services, and USFS work together to provide mutual aid for structure fires, wildland fires, vehicle accident extrication, and mass casualty incidents (MCI). The County Fire Chief’s Association and Calaveras Foothills Fire Safe Council further reflect the County’s fire agencies’ regional collaboration. The County Fire Chief’s Association is comprised of all fire chiefs in the County. They meet once a month to discuss common issues and jointly apply for grants. The Calaveras Foothills Fire Safe Council serves all of Calaveras County and the western portion of Alpine County. The Council promotes public education, reducing fuel hazards around homes and communities, recycling or burning of yard debris, and building community support for fire suppression and prevention in the region. FIRE SERVICES ]É{Ç UxÇÉ|à 9 cÉÄ|vç VÉÇáâÄà|Çz TááÉv|tàxá? __V 35 CAALAVERAS LAAFCO COUNTYYWIDE FIRE MUNICIPAL SERVICE REVIEW Servicce Demaand Therre were appproximatelyy 5,600 calls for fire, EMS and oother emerrgency respponse services in the Coounty in 20011. In otther wordss, there weere about 115 service calls throughoout the Couunty on an aaverage dayy. A call forr service does not indiccate the nummber of responnses by each jurisdictioon, as multiple jurisdicttions may rrespond to aa single call.. The number of calls is ass reported bby each agenncy and inccludes false alarms. Figure 3--8: Fire AAgency Serviice Calls by Type, 2011 A maajority of thhe calls (71 percent) inn the Countyy were meddical emerggencies, whiich is similar tto call pattterns experrienced in most areass of the Staate. Mokelumne Hill FPD appears to be an eexception too this pattern, as distrrict-reported data showws that onlly 39 percent of calls weere medical in nature. However, MHFPD’s bbreakdown of service calls differs frrom that reeported by CalFire; CaalFire reporrted that appproximatelly 65 perceent of MHFPD’s calls in 20011 were foor emergenncy medicall services. TThis inconsiistency betwween the Distrrict and CaalFire-reported data is not exclussive to MHFFPD, there aappears to be a variationn in recordss between CCalFire and all of the firre agencies,, which is discussed furrther below. Calls for fire-rellated eventss (structuree, vehicle annd wildlandd) and hazaardous mateerials accounteed for eightt percent off the incident volume oon average throughouut the Countty, as shown inn Figure 3-8. Rural diistricts withh extensive wildland areas and a greater willdfire hazard ttend to havee a higher shhare of callss related to fire. Jennyy Lind FPD aand Foothilll FPD reportedd unusually low rates of fire-relateed calls withh only four ccalls each inn 2011. FIRE SERRVICES ]É{Ç UUxÇÉ|à 9 cÉÄ|vvçç VÉÇáâÄà|Çz TTááÉv|tàxá? ____V 36 Figur As mmentioned, tthere appears to be discrepaancies betwween CalFire’ss and each agency’ss reccords regardinng number and type of service callls, as well as response ttimes for eeach inciident (discussed in the Service Adeqquacy section oof this chappter). As showwn in Figuree 3-9, the tottal numberr of recordedd incidents does not matcch with CalFire data fo for Ebbeetts Pass FPD, for wh reportedd a total of 8825 calls. T fire agenncies and CCalFire with access, aand reliability of inform Figur Durinng 2011, thee fire agenciess provvided support to neighbooring providerrs in the forrm of 440 aautomatic and mutual aid responses, which was approximmately eight percent of all respoonses within thhe County. The ratio of automatic and mutual aid respoonses varied by agencyy, as shown iin Figure 3-10. Mokelummne Hill FPD reporteddly had the highest pe being mutual or automatic aid unable tto provide tthe number mutual aaid responsees. FIRE SERRVICES ]É{Ç U sllaC diA lautuM CAALAVERAS LAAFCO COUNTYYWIDE FIRE MUNICIPAL SERVICE REVIEW re 3-9: Totaal Service Caalls by Repoorting Agenccy, 2011 or any of thhe 11 agenciies. The most significaant differennce is hich the Disstrict reporrted 1,148 calls in 20011, and CaalFire There is an oopportunityy for greaterr collaborattion between the h regard too records kkeeping to eenhance effficiency, ease of mation. re 3-10: Fire Agencyy Ratio of MMutual Aid Caalls, 2011 25% 20% 15% 10% 5% 0% ercentage of mutual aiid assists, wwith 20 perrcent of its calls d of some foorm. San Anndreas FPDD and West Point FPD wwere r of mutual aid calls inn 2011 as tthese districcts do not ttrack UxÇÉ|à 9 cÉÄ|vvçç VÉÇáâÄà|Çz TTááÉv|tàxá? ____V 37 CAALAVERAS LAAFCO COUNTYYWIDE FIRE MUNICIPAL SERVICE REVIEW Figgure 3-11: Service Callls per 1,0000 Residents, 2011 Distrricts counntywide averagedd 116 servicce calls per 1,0000 residents in 2011.9 The voluume of service ddemand maay vary betweenn jurisddictions based onn the popullation’s age and access to pprimary healthcaare, visitor ccounts, highwayy miles and risk of wildlandd fires withhin the agency’ss boundariees. The number of service ccalls per 1,000 residentts varied froom 61 in Jennny Lind FPPD to 301 wwithin SAFPD’s service areea. Each of the jurisdictions exxperiences different ppeak periods of demannd. Urban aareas tend to eexperience most servicce calls durring daytimee hours on weekdays, while rurall and wilderneess areas haave the highhest calls foor service inn the eveninngs and on wweekends wwhen residentts have retuurned homee from workk. For exammple, the Citty of Angelss Camp receives most callls between 7am and 8ppm. While EPFPD repoorted that itts peak demmand times were mainly vvacation peeriods, suchh as Thankksgiving, Chhristmas, NNew Years, Memorial Day, Independence Day, Labor Day,, and schoool breaks whhen people stay home and there is an influx off recreationaal tourists. The eentire Counnty is classified as modderate to veery high firee hazard seeverity baseed on CalFire aanalysis of fuels, terraain and weaather. Terrritory in thee upcountryy portion oof the County, east of San Andreas to the Alpine county line,, was rankeed as a very high fire haazard severity zone. Areeas along thhe San Joaqquin and Sttanislaus coounty lines are considdered moderatte fire hazarrd, while thhe remaindeer of the Coounty is rateed as high ffire hazard. The wildlandd interface areas—where structuures and deevelopment meet or inntermingle with undevelooped wildlaands or veggetative fuell—are expaanding as mmore peoplee build hommes in such areeas. Infrasstructurre Needs and Deficienccies Dispatchh and Commmunicationss Connectiviity Emerrgency 911 calls are innitially routed to a Pubblic Safety AAnswering PPoint (PSAPP)—a facility eequipped annd staffed tto receive 9911 calls, annd may onlly be transfferred one time. For all calls from laandlines in Calaveras CCounty the PPSAP is thee Calaveras County Sheeriff’s Office. EEmergency 911 calls ffrom cellulaar phones are initiallyy routed too the Califoornia Highwayy Patrol, andd then to thhe Sheriff. TThe dispatchher at the Shherriff’s Offfice immediiately determinnes whether a 911 call is related tto a police, ffire or mediical emergency. All firee and 9 Service caalls as reportedd by each agency. Populationn is the estimatted residential ppopulation in tthe providers’ sservice area based on GIS analysiss of 2010 Censuus data. FIRE SERRVICES ]É{Ç UUxÇÉ|à 9 cÉÄ|vvçç VÉÇáâÄà|Çz TTááÉv|tàxá? ____V 38 CALAVERAS LAFCO COUNTYWIDE FIRE MUNICIPAL SERVICE REVIEW medical 911 calls in Calaveras County are routed to California Department of Forestry and Fire Protection's (CalFire) Emergency Command Center (ECC) in San Andreas, which in turn dispatches the appropriate local jurisdiction responder. ECC is a part of the Tuolumne- Calaveras Unit (TCU) which serves the majority of Calaveras and Tuolumne Counties, and the eastern portions of San Joaquin and Stanislaus Counties. Sherriff’s dispatch center also provides pre-arrival EMS instructions and coordinates dispatch and posting of ALS transport units. CalFire provides dispatch services to fire service providers in Calaveras though a contract with the County. There is currently no fee charged to local government fire protection agencies by Calaveras County for this service. Dispatching is handled through joint use of the command frequency assigned to the Tuolumne-Calaveras Unit. The CalFire Office of Emergency Services and County assigned tactical frequencies are also available for local use. When multiple agencies respond to an incident, responders are coordinated via CalFire dispatch. At the same time, dispatch will assign command and tactical frequencies for the incident. Within Calaveras County all agencies share common frequencies. The first on- scene unit shall assume incident command (IC) and coordinate arriving units. All communication systems are interoperable with adjacent providers. ECC coordinates the response and assigns tactical channels if needed. Fire protection agencies in Calaveras County are currently working together to set up a countywide closest-unit response system. Under this system both the nearest agency and the agency with jurisdiction would be dispatched to each incident. The chiefs of each of the agencies have agreed, and are working to implement the change over the next year. Generally, most agencies indicated that they were satisfied with dispatch services. EPFPD commented on excellent coordination between the Sheriff’s Office and ECC. WPFPD is fully satisfied as inappropriate dispatches are rare. The City of Angels Camp reported that improvements could be made to dispatching by transitioning to a “closest available resource” response plan, where the closest resource is dispatched regardless of which agency’s boundaries the incident is within. FFPD and JLFPD are dissatisfied with the current dispatch service and are evaluating other dispatch options. These districts are concerned that CalFire units are given priority for check backs to ECC and there is little or no chance for local fire crews to check in upon response about conditions at the scene. Another concern for both districts is that dispatch for the County is handled on a single channel, while other areas typically rely on one channel for dispatch and another channel for incident reporting. Facility and Equipment Conditions There are currently 26 fire stations in use in the County that are owned and operated by the local fire protection agencies. Table 3-12 summarizes the station locations, conditions and equipment of each provider. Agencies provided the facility age and an assessment of each facility’s condition and deficiencies. Of the 26 stations in use by local fire service providers in Calaveras County, 12 were reported as being in good or excellent condition, eight in fair condition and six in poor FIRE SERVICES ]É{Ç UxÇÉ|à 9 cÉÄ|vç VÉÇáâÄà|Çz TááÉv|tàxá? __V 39 CALAVERAS LAFCO COUNTYWIDE FIRE MUNICIPAL SERVICE REVIEW condition. The following infrastructure deficiencies and needs were identified by the agencies:  Altaville-Melones FPD: The District did not identify any short-term infrastructure needs. Long-term needs outlined in the strategic plan include constructing onsite living quarters at Station 1, purchasing an emergency stand-by generator for Station 1, buying exhaust extractors (or alternatives), purchasing washer/extractor for personal protection equipment, and continuing to upgrade/replace communications equipment.  Central Calaveras FRPD: The District reported that it did not have any imminent apparatus needs, given that a lot of updates had taken place in the last two years. The District purchased two fire engines and replaced three others. Last year, the District put up a new modular building at the Jesus Maria Station that now contains administrative and sleeping quarters. No other major improvements are planned at this time. However, according to the District, all stations have unmet maintenance needs.  Copperopolis FPD: CFPD was planning a minor remodel of Station 1 in FY 12-13; however, the project has been postponed, due to financial constraints. This project is expected to cost approximately $120,000 and will be funded from reserve funds. The District also needs to upgrade certain fire apparatus; however, financial constraints have been an obstacle.  Ebbetts Pass FPD: EPFPD currently does not need any new facilities or facility upgrades. However, in the near future the District will be looking at the possibility of upgrading Station 2 in order to accommodate 24-hour staffing and performing septic and bedroom upgrades at Station 3. EPFPD will also be looking into plumbing, septic and bathroom upgrades at Station 4.  Foothill FPD: Station 2 was identified as being dated and no longer meeting the needs of the District. FFPD has hired an architect to help evaluate how the District may be able to maximize additional living quarters. Additionally, a new station in the community of Wallace would greatly reduce response times to the area, given that the nearest station is over six miles away in Burson. However, the District does not currently have sufficient funds to develop a station in the area.  Jenny Lind FPD: The District did not identify a need for new facilities or facility upgrades. However, since Station 2 was reported to be in poor condition, unidentified improvements are necessary. JLFPD reported that it needed one type I urban interface pumper, that would allow the District to reduce the number of engines in its fleet by purchasing apparatus that can serve multiple functions.  Mokelumne Hill FPD: The only existing fire station in Mokelumne Hill is not adequate to serve the entire District effectively. A fire station is needed in the community of Paloma, and potentially Golden Hills, to better serve the communities and reduce response times. Currently, the District does not have sufficient funds to purchase either land or the building. Station 1 needs improvements, including an elevator and sprinklers, in order to meet code requirements. These needs are discussed further in the MHFPD chapter. Other infrastructure needs include replacing old equipment and personal protective equipment. FIRE SERVICES ]É{Ç UxÇÉ|à 9 cÉÄ|vç VÉÇáâÄà|Çz TááÉv|tàxá? __V 40 CALAVERAS LAFCO COUNTYWIDE FIRE MUNICIPAL SERVICE REVIEW  Murphys FPD: MFPD reported that both of its stations need living quarters and backup emergency generators. The District would like to relocate Station 2 to a larger lot and replace it with a bigger building and living quarters. It was reported that a lack of available revenue had restricted MFPD from implementing these improvements. The addition of living quarters at Station 1 will occur in 2013-2014 and cost about $120,000. Financing will be derived from the capital improvement reserve. In addition, the District needs to replace its 26-year old type 1 fire engine and two 23-year old type 2 engines. There is also a need to replace the old 1993 chassis on the firefighter support unit.  San Andreas FPD: It was reported that both fire stations were in need of upgrades. One of the stations which is currently just a garage, is in need of a complete remodel. In addition, electrical wiring needs to be repaired and engines updated. There is also a need for an additional space for administrative work and a four-wheel drive engine for several rural areas where there is snow or the ground is extremely wet.  West Point FPD: The District has a long-term goal of adding living quarters to Station 1. At present there is no financing available for this improvement. The County purchased a water tender, and recently, transferred ownership to WPFPD. The District is now in the process of fully equipping the tender. The Fire Chiefs Association has formed a water mitigation committee to deal with this issue.  City of Angels Camp FD: The City did not identify any unfunded fire infrastructure, vehicle or equipment needs. Station 1 is presently undergoing improvements and expansion, which include addition of a physical fitness room, bathroom/shower facility, and additional storage. The upgrades are anticipated to be completed in 2013 and will total $25,000. These improvements are being funded through the City’s general fund. FIRE SERVICES ]É{Ç UxÇÉ|à 9 cÉÄ|vç VÉÇáâÄà|Çz TááÉv|tàxá? __V 41 CALAVERAS LAFCO COUNTYWIDE FIRE MUNICIPAL SERVICE REVIEW Figure 3-12: Fire Station Condition and Apparatus Station Location Condition Apparatus Altaville-Melones Fire Protection District Station 1 122 South Main Street, Angels Camp, CA Excellent 3 fire engines, 3 administration vehicles, 1 rescue engine, 1 water tender Central Calaveras Fire and Rescue Protection District Station 1 19927 Jesus Maria Road, Mokelumne Hill, CA Good Not provided by the District Station 2 6338 Swiss Ranch Road, Mountain Ranch, CA Fair Not provided by the District Station 3 80 41 Washington Street, Mountain Ranch, CA Poor Not provided by the District Station 4 15815 Highway 26, Glencoe, CA Poor Not provided by the District Station 5 11309 Sheep Ranch Road, Sheep Ranch, CA Fair Not provided by the District Copperopolis Fire Protection District Station 1 370 Main St., Copperopolis, CA Poor 1 ICS Type 1 engine, 1 ICS Type 2 engine, I ICS Type 3 engine, 1 3000 gal. water tender, 3 utility vehicles. Station 2 1927 Quiver St., Copperopolis, CA Good 1 ICS Type 1 engine, 1 ICS Type 3 engine, 1 medic unit Station 3 9164 Poole Station Rd., Copperopolis., CA Fair 1 ICS Type 6 engine Ebbetts Pass Fire Protection District Station 1 1037 Blagen Road, Arnold, CA Excellent Truck 431, Medic Engine 435, Medic Engine 436, Water Tender 431, Engine 431, medic 435, medic 433, and medic 431. Station 2 5510 Meko Drive, Arnold CA Very Good Engine 432 and medic 432 Station 3 40 Canyon View, Arnold, CA Good Medic Engine 437 and medic 437 Station 4 2038 Moran Road, Arnold, CA Very Good Engine 434 Foothill Fire Protection District Station 1 3255 Helisma Rd. Good 3 fire engines, 1 water tender, 2 utility/command Burson CA, 95225 vehicles Station 2 129 E. SR 12 Valley Springs CA, 95252 Fair 2 fire engines Jenny Lind Fire Protection District Station 1 6501 Jenny Lind Road, Valley Springs, CA Good 3 fire engines, 1 water tender, 2 utility/command 95225 vehicles Station 2 2232 Danaher Drive, Valley Springs, CA Poor 2 fire engines 95252 Mokelumne Hill Fire Protection District MHFPD 8160 Church Street, Mokelumne Hill, CA Excellent 1 type I structure engine, 2 type II urban interface Station engines, 1 type III engine, 1 light rescue unit, 1 type I water tender, and 1 command vehicle. Murphys Fire Protection District Station 1 37 Jones Street, Murphys, CA 95247 Fair 2 type 1 fire engines, 1 type 2 fire engine, 2 type 3 fire engines, 1 type 1 3,000-gallon water tender, 1 firefghter support unit, 3 utility vehicles, 3 staff/command vehicles. Station 2 3424 Main Street, Vallecito, CA 95251 Fair 1 type 2 fire engines, 1 type 3 fire engine (AMFPD). San Andreas Fire Protection District Station 1 37 Church Hill Road, San Andreas, CA Fair 1 type 1 engine, 1 aerial/truck, 1 type 3 engine, 1 rescue unit, 1 breathing support vehicle. Station 2 20 East St. Charles St, San Andreas, CA Fair 1 type 1 water tender, 1 type 1 engine, 2 type 2 engines, 1 type 3 engine. West Point Fire Protection District Station 1 195 Spink Rd Poor 2 type 1 engines, 1 type 2 engine, 1 type 3 engince, 1 watertender, 1 utility, 1 Chiefs vehicle Station 2 3910 Railroad Flat Rd Poor Red Cross Response Trailer City of Angels Camp Fire Department Station 1 1404 Vallecito Road Good One type I fire engine, one type III fire engine and three fire department staff vehicles Station 2 200 Monte Verde Street Good One type I fire engine, one fire support van FIRE SERVICES ]É{Ç UxÇÉ|à 9 cÉÄ|vç VÉÇáâÄà|Çz TááÉv|tàxá? __V 42 CALAVERAS LAFCO COUNTYWIDE FIRE MUNICIPAL SERVICE REVIEW Shared Facilities Facility Sharing and Collaboration Fire and EMS providers in the County rely on each other for mutual and automatic aid assistance to optimize response times and engage in sharing of fire station space with other organizations. Fire agencies throughout the County rely on CalFire for dispatching. Many providers share their stations with other agencies for occasional use. In addition to sharing of facilities the agencies practice extensive collaboration and participate in local and regional organizations.  AMFPD keeps its Type 3 engine at the Murphys FPD Vallecito fire station.  CFPD currently has a contractual agreement with Murphys FPD to share financial/bookkeeping services. The two agencies also share a common chief. CFPD and MFPD are working on a contract for sharing of other resources.  EPFPD occasionally provides training to other EMS & fire providers at EPFPD facilities. EPFPD also jointly maintains a two-pad landing facility with USFS in Hathaway Pines  FFPD provides strike team resources to Cal EMA. FFPD and JLFPD recently completed the consolidation process.  JLFPD is currently working with the State to become a resource for Cal EMA for water, earthquake and fire rescue.  MHFPD has a fuel reduction plan with CalFire and gave input on bridge closures in the County.  MFPD regularly collaborates with fire service providers in the County for various grants. The District shares its Station 2 with Altaville-Melones FPD for engine storage. The classroom at Station 1 is used for various training classes sponsored by the Training Officer’s Association, CalFire and USFS.  SAFPD’s Station 1 is used as a training center by Mother Lode Interagency Training Officer's Association.  WPFPD occasionally participates in joint training exercises with neighboring and other County providers.  City of Angels FD’s Station 1 is used for city council meetings and other organization meetings as requested. Station 2 is shared with the City's Police Department. All local fire providers in Calaveras County are members of the California Fire Chief’s Association. Similarly, all local fire providers in the County, with the exception of the City of Angels FD, are members of the Fire Districts Association of California. CCFRPD, CFPD and MFPD take part in the California Special District Association. AMFPD, EPFPD, MFPD, WPFPD participate in the Motherlode Interagency Training Officers Association. In addition:  JLFPD is a member of National Fire Incident Command Team. FIRE SERVICES ]É{Ç UxÇÉ|à 9 cÉÄ|vç VÉÇáâÄà|Çz TááÉv|tàxá? __V 43 CALAVERAS LAFCO COUNTYWIDE FIRE MUNICIPAL SERVICE REVIEW  West Point FPD participates in the Citizen Emergency Response Teams (CERT) and the Amador-Calaveras Consensus Group.  SAFPD and MFPD are members of Mother Lode Interagency Training Officer’s Association.  MFPD is a member of the Nor Cal Training Officers Association.  Ebbetts Pass FPD participates in the Emergency Medical Service Oversight Committee (EMSOC), Multi-Agency Coordinating Group (MAC), Local Continuing Quality Improvement (LCQI), Calaveras County Search and Rescue (CCSAR), Office of Emergency Services (County OES), Calaveras County Emergency Preparedness Healthcare Coalition (PPH), Citizen Emergency Response Teams (CERT), and Crisis Intervention Services Management (CISM). All 11 local fire service providers in Calaveras County collaborated through the County Fire Chiefs’ Association, and in 2012, all agencies were awarded a $1.8 million SAFER Recruitment and Retention of Volunteer Fire Fighters grant. These funds will be used to implement a regional volunteer benefit program in order to retain existing firefighters and attract new volunteers. Benefits that are part of this regional program include insurance packages, childcare expenses, tuition assistance for higher education, and a Length of Service Award program or other retirement benefits, such as 401k contributions. Additionally, the grant includes a marketing program to recruit new volunteers through television advertising, an informational website and an online application process. Facility Sharing Opportunities Opportunities for future facility sharing include further access to station space for outside organizations and other fire providers, joint training opportunities, and additional ways of collaboration which would increase efficiency and safety.  All of the agencies are working to implement a closest first responder dispatch system, which would provide more efficient services to customers and faster response times.  CCFRPD’s Station 4 in Glencoe is in a good location for sharing with Mokelumne Hill FPD and West Point FPD; some joint training sessions have already been held there.  CFPD reported that co-location with CalFire is a possibility in the future. The Copperopolis CalFire station is located directly across the street from CFPD’s Station 1 and it would be logical to have a single joint facility, as was reported by the District.  FFPD and JLFPD recently completed the consolidation process.  After the construction of living quarters at MFPD’s station 1, the Calaveras County Sheriff's Office could use one of the offices for a sub-station.  An opportunity for further facility sharing and collaboration may be a joint service endeavor between the City of Angels FD and Altaville-Melones FPD. FIRE SERVICES ]É{Ç UxÇÉ|à 9 cÉÄ|vç VÉÇáâÄà|Çz TááÉv|tàxá? __V 44 CALAVERAS LAFCO COUNTYWIDE FIRE MUNICIPAL SERVICE REVIEW Service Adequacy This section contains a discussion on service adequacy indicators, which is intended to identify outliers—providers with relatively high service levels and those providers that could take steps to improve certain aspects of service provision. The fire and emergency medical service adequacy measures discussed here include firefighter certification rates, response times, ISO ratings, coverage adequacy, best management practices, and accountability indicators. Firefighter Certification According to the California State Fire Marshal, all volunteer and call firefighters must acquire Firefighter I certification; however, there is no time limit as to how long they may work before attaining certification. Firefighter I certification requires completion of the 259–hour Firefighter I course, which includes training on various fireground tasks, rescue operations, fire prevention and investigation techniques, and inspection and maintenance of equipment. In addition to the course, Firefighter I certification also requires that the applicant have a minimum of six months of volunteer or call experience in a California fire department as a firefighter performing suppression duties. 10 Among fire providers in Calaveras County, City of Angels Camp FD has the highest Firefighter I certification rate of 84 percent. JLFPD and FFPD also have some of the highest certification rates in Calaveras County of 80 percent for Firefighter I; JLFPD has the second highest rate of 72 percent for EMT I certification. MFPD has the highest EMT I certification rate of 73 percent. On the other side of the spectrum, CCFRPD has some of the lowest certification rates for Firefighter I and EMT I with 24 percent for both. The provider with the lowest EMT I certification rate of 20 percent is AMFPD. Response Times Response times reflect the time elapsed between the dispatch of personnel and the arrival of the first responder on the scene. As such, response times do not include the time required to transport a victim to the hospital. The response times include the dispatching time of fire personnel. Response times are generally faster for more compact service areas and longer in large districts. Response times also vary depending on the number and location of stations and firefighters available. Particularly in cases involving patients who have stopped breathing or are suffering from heart attacks, the chances of survival improve when the patient receives medical care quickly. Similarly, a quick fire suppression response can potentially prevent a structure fire from reaching the “flashover” point at which very rapid fire spreading occurs— generally in less than 10 minutes.11 The National Fire Protection Association (NFPA) has issued a performance standard for volunteer and combination fire departments (NFPA 1720). This standard, among other guidelines, identifies target response time performance for structure fires. The response 10 State Fire Marshall, Course Information and Required Materials, 2007, p. 44. 11 NFPA Standard 1710, 2004. FIRE SERVICES ]É{Ç UxÇÉ|à 9 cÉÄ|vç VÉÇáâÄà|Çz TááÉv|tàxá? __V 45 CALAVERAS LAFCO COUNTYWIDE FIRE MUNICIPAL SERVICE REVIEW time is measured from the completion of the dispatch notification to the arrival time of the first-responder at the scene. Though not a legal mandate, NFPA 1720 does provide a useful benchmark against which to measure fire department performance. NFPA 1720 recommends that the response times for structure fire be nine minutes in urban demand zones at least 90 percent of the time, 10 minutes in suburban zones at least 80 percent of the time and 14 minutes in rural zones at least 80 percent of the time. Response times in remote zones are directly dependent on travel distances.12 All fire service providers in Calaveras County, except for the City of Angels Camp Fire Department, fall within the definition of a rural demand zone. The City of Angels Camp FD is an urban demand zone. Emergency response time standards vary by level of urbanization of an area: the more urban an area, the faster a response has to be. Calaveras County is not broken down into wilderness, rural and urban designations for medical response time standards. Instead, Mountain Valley Emergency Medical Services Agency has divided Calaveras County into three zones for EMS and ambulance services. The northern and southern zones are served by American Legion and the eastern zone (which is the same as the EPFPD boundary area) is served by Ebbetts Pass FPD. In the northern and southern zones the response time guideline is 20 minutes 90 percent of the time, and 13 minutes 90 percent of the time in the eastern zone. These standards are intended for the ambulance contract providers; however, they indicate what is considered appropriate response times for medical emergencies. Only EPFPD, CCFRPD and WPFPD were able to provide their median and 90th percentile response times. CalFire, being the agency that provides dispatch services for the local fire service providers in Calaveras County, tracks each incident’s response time for all fire agencies in the County. It also calculates average and 90th percentile response times, as shown in Figure 3-13. Figure 3-13: CalFire tracked response times Average 90th percentile It should be noted that Agency response times response times CalFire’s methodology for Altaville-Melones FPD 7.08 14.7 tracking response times Central Calaveras FRPD 11.8 23.95 differs from that of the Copperopolis FPD 6.61 11.75 agencies. While the agencies Ebbetts Pass FPD 5.25 12.5 generally start timing from Foothill FPD 5 10.35 the time the engines leave the Jennny Lind FPD 4.31 9.2 Murphys FPD 2.88 6.9 facility, CalFire starts timing Mokelumne Hill FPD 5.61 10.2 after checking back in with San Andreas FPD 1.67 3.9 the responder after dispatch, West Point FPD 6.45 14.75 which is often when the Angels Camp FD 1.96 5.2 District is already en route to the scene. Consequently, response times reported by CalFire for each incident tend to be shorter than those recorded by each district. In addition, if CalFire is busy with several incidents, logging arrival can be delayed. It is recommended 12 Urban demand zone has population density of more than 1,000 people per square mile; suburban zone—between 500 and 1,000 people per square mile, rural zone—less than 500 people per square mile, and remote zone is identified by eight or more miles of travel distance to an incident. FIRE SERVICES ]É{Ç UxÇÉ|à 9 cÉÄ|vç VÉÇáâÄà|Çz TááÉv|tàxá? __V 46 CALAVERAS LAFCO COUNTYWIDE FIRE MUNICIPAL SERVICE REVIEW that all fire providers track their response times for each incident and collaborate with CalFire on information and data exchange, which would allow for more structured response and enhanced efficiency and consistency. According to CalFire, the shortest average response time of 1.67 minutes belongs to SAFPD. City of Angels Camp FD follows with an average response time of 1.96 minutes. On the other side of the spectrum is CCFRPD with an 11.8-minute average response time. In regards to the 90th percentile response times, the results are similar—the fastest performers are SAFPD and Angels Camp FD with 3.9 and 5.2 minutes, respectively. The longest 90th percentile response time of almost 25 minutes belongs to CCFRPD. CCFRPD is the only fire service provider in Calaveras County for which its 90th percentile response time does not meet Mountain Valley Emergency Medical Services Agency standards for response to medical emergencies. ISO Ratings The Insurance Service Office (ISO), an advisory organization, classifies fire service in communities from 1 to 10, indicating the general adequacy of coverage. Communities with the best systems for water distribution, fire department facilities, equipment and personnel and fire alarms and communications receive a rating of 1. A Public Protection Classification (PPC) rating has a direct bearing on the cost of property insurance for every home and building in a community. In the case of split classifications, the first class generally applies to properties within five miles of a station and 1,000 feet of a hydrant. The second class applies to areas within five miles of a station but beyond 1,000 feet of a hydrant. Unlike the aforementioned NFPA performance standards that set different response time goals for volunteer and professional fire departments, ISO standards are the same regardless of staffing type and whether an area is rural or urban. ISO ratings differ for every fire provider. Fire providers in Calaveras County have ISO ratings ranging from four to 10. Many providers have multiple ratings depending on the location of hydrants and stations in the area. The best ISO rating of four was received by Ebbetts Pass FPD in its more densely developed areas. Copperopolis FPD has an ISO rating of 10. Most of the districts in Calaveras County have a rating of eight in their rural and remote areas. FIRE SERVICES ]É{Ç UxÇÉ|à 9 cÉÄ|vç VÉÇáâÄà|Çz TááÉv|tàxá? __V 47 CALAVERAS LAFCO COUNTYWIDE FIRE MUNICIPAL SERVICE REVIEW Coverage Adequacy Figure 3-14: Service Area per Fire Station In urban areas, fire stations are typically located strategically within ACFD five minutes driving distance from WPFPD potential victims. In rural areas, fire stations tend to be located SAFPD strategically within 15 minutes driving MHFPD distance. The driving distance is MFPD affected not only by the size of the service area, but also by congestion, JLFPD topography and street layouts. FFPD The service area sizes for each fire EPFPD station differ for each fire provider, as CFPD shown in Figure 3-14. The median fire station in Calaveras County serves CCFRPD approximately 34 square miles. AMFPD Altaville-Melones FPD serves the most 0 20 40 60 80 100 expansive area of 77.5 square miles served per station on average. Densely populated areas tend to have smaller service areas. For example, the average service area for the City of Angels Camp is 1.75 miles per fire station. Figure 3-15: Firefighters per 1,000 residents, 2012 14 Calaveras providers rely primarily on volunteer and call firefighters. By 12 comparison, in a mature urban area, the staffing configuration is typically four paid 10 firefighters per station at all times. The number of firefighters serving 8 within a particular jurisdiction is another 6 indicator of service adequacy; however, it is approximate. The providers’ call 4 firefighters may have differing availability and reliability. A district with more call 2 firefighters could have fewer resources if scheduling availability (i.e., full-time work 0 schedule) is restricted. Figure 3-15 illustrates the number of firefighters each provider has as a rate per 1,000 residents served. Staffing levels in Calaveras vary from three call firefighters per 1,000 residents in Jenny Lind FPD to 13 in MHFPD. Several districts expressed concerns about the increased requirements for volunteer and call personnel regarding training and protective equipment. These requirements are FIRE SERVICES ]É{Ç UxÇÉ|à 9 cÉÄ|vç VÉÇáâÄà|Çz TááÉv|tàxá? __V 48 CALAVERAS LAFCO COUNTYWIDE FIRE MUNICIPAL SERVICE REVIEW making a once economical choice more costly, placing limits on the number of volunteer staff that can be maintained by each district. Firefighters in Calaveras County vary in age from 16 to 83, with an extensive range of experience. The median age of a call firefighter in the County is 28. Rural providers tend to have a higher median age of call firefighters. Jurisdictions’ staffing levels have remained relatively constant, as the agencies have been able to fill open positions. While there are no reported formal retention programs, the providers’ staffing strategies are to retain trained staff and ensure that qualified and reliable staff continue to donate their time. As previously described, each fire provider has received grant funding and support to enhance volunteer firefighter recruitment and retention efforts. Management 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, prepare a budget before the beginning of the fiscal year, conduct periodic financial audits to safeguard the public trust, maintain relatively current financial records, plan and budget for capital needs, and conduct planning for future growth. Figure 3-16: Fire Agency Management Practices Management Practice An evaluation of the adequacy of management practices is shown in Figure 3-16. The first four indicators are self-explanatory. Adequate capital planning involves a multi-year capital improvement plan (or comparable planning effort) for capital replacement and, if relevant, expansion. Advance growth planning is adequate when it discloses existing capacity and anticipated needs throughout the existing service area. Seven of the 11 providers evaluate staff at least annually. CCFRPD and MFPD reported completing evaluations of only paid personnel. AMFPD and WPFPD do not perform employee evaluations. Nearly all of the providers prepare timely budgets, complete financial audits on a regular basis and were able to provide up-to-date financial records. Although SAFPD possesses up-to-date financial records it has provided only partial financial data for this report. FIRE SERVICES ]É{Ç UxÇÉ|à 9 cÉÄ|vç VÉÇáâÄà|Çz TááÉv|tàxá? __V 49 DPFMA DPRFCC DPFC DPFPE DPFF DPFLJ DPFM DPFHM DPFAS DPFPW DFCA Evaluate Employees Annually N I A A A A I N A N A Prepare Timely Budget A A A A A A A A A A A Periodic Financial Records A A A A A A A A A A A Current Financial Records A A A A A A A A A A A Capital Planning I I I A I I I I N N I Advance Growth Planning I N N I I I I I I N A Note: A= Practiced adequately, I= Practiced, but improvement needed, N= Not practiced CALAVERAS LAFCO COUNTYWIDE FIRE MUNICIPAL SERVICE REVIEW Out of all reviewed providers, only EPFPD has adopted a formal capital improvement plan (CIP). AMFPD, FFPD, JLFPD, MFPD, and MHFPD plan for their capital improvements in their strategic plans. CCFRPD does not have a CIP, but plans for some of its equipment needs in the apparatus replacement plan. City of Angels Camp FD’s and CFPD’s capital improvement needs are included in each agency’s annual budget. SAFPD and WPFPD neither adopt capital improvement plans nor include their capital improvement needs in any other formal documents. It is recommended that all agencies adopt capital improvement plans to identify long-term financing needs and funding sources for these needs. City of Angels Camp is the only agency that conducts advanced growth planning for its service area, including fire service area. AMFPD, EPFPD, FFPD, JLFPD MFPD, MHFPD, and SAFPD do limited growth planning in their respective strategic plans and/or through tracking planned developments within their service areas. CFPD is in the process of compiling a strategic plan where some of this growth planning may occur. CCFRPD and WPFPD do not conduct growth planning or anticipate service needs throughout their service areas. Accountability and Governance Accountability of a governing body is signified by a combination of several indicators. The indicators chosen here are limited to: 1) constituent interest in the agency’s activities as indicated by presence of interested candidates for board elections, 2) agency efforts to engage and educate constituents through outreach activities, in addition to legally required activities such as agenda posting and public meetings, and 3) transparency of the agency as indicated by cooperation with the MSR process and information disclosure. For all the local agencies reviewed in this report, the established manner of board selection is elections by the voters within the respective agency. In the event of an absence of interested candidates, the County Board of Supervisors appoints board members. If there is only one interested candidate, that person runs unopposed and becomes a board member. Generally, there is a lack of contested elections for all local fire providers in Calaveras County, similar to other rural counties in California. All current members of CCFRPD’s governing body were appointed. One to two current directors in CFPD, MFPD, MHFPD, and City of Angels Camp were also appointed. The entire current governing bodies of AMFPD, FFPD, JLFPD, EPFPD, and WPFPD were elected. All agencies prepare and post meeting agendas and make minutes available as required. Additional outreach efforts include websites and educational and awareness programs. All the agencies conduct community outreach activities where they participate in community events and organize educational activities. Several providers have websites to offer information by way of constituent outreach, including CCFRPD, MFPD, City of Angels Camp, EPFPD, and WPFPD. While there is a website with information regarding MHFPD, the content of the site is not determined by the District. The five other providers do not have websites. It is recommended that every public service provider maintain a website in order to keep constituents aware of the agency’s activities. Of the agencies reviewed in this report, a majority did not demonstrate accountability in their disclosure of information and cooperation with LAFCO during the MSR process. Only two agencies—EPFPD and the City of Angels—provided all the requested information FIRE SERVICES ]É{Ç UxÇÉ|à 9 cÉÄ|vç VÉÇáâÄà|Çz TááÉv|tàxá? __V 50 CAALAVERAS LAAFCO COUNTYYWIDE FIRE MUNICIPAL SERVICE REVIEW in timelyy manner. TThe rest of tthe districtss showed oonly partial accountability as, although the requuested information waas eventually provideed, multiplee follow-up attempts wwere requiredd. MHFPD ffailed to reespond to several reqquests for informationn; howeverr, the District uultimately pprovided thhe requestedd information. CCFRPD, JLFPD, annd SAFPD ffailed to providde particulaar requestedd informatioon, as indicated in the report as “nnot provideed” in the text or with the abbreviatioon NP in thee relevant figgures. Durinng the revview proceess it wass also revvealed thatt MHFPD had addittional accountaability issuees. There haave been coomplaints too the Counttyy District AAttorney’s OOffice, the County’s Buildding Departtment, the California Division of Occupatioonal Safetyy and Health AAdministratiion (Cal OSHHA), the Civvil Grand Juury and LAFFCO allegingg illegality inn the governance and opperation off MHFPD. AAllegations against thee District wwere relateed to violationns of the Brrown Act, illlegally remmoving a Booard membeer, failure tto use a biddding process for hiring coontractors, to name a ffew. The Civvil Grand Juury releasedd a final repoort in June 2013 regardinng its revieew of MHFPPD. Covereed in the rreview weree 1) Brownn Act violationns, includinng two diffeerent agenddas for a mmeeting, plaaying audioo recording of a closed seession, and disclosing details and subject of aa closed sesssion, amonng others, 22) the Cal OSHAA investigattion, 3) lackk of approppriate buildiing permit dduring renoovations, 4)) lack of Ameriicans with DDisabilities Act (ADA) aaccessibilityy at the firee station, annd 5) the need to enforce zero tolerannce regarding firefightters respondding to callss while undder the influuence of alcohool. SSERVICEE FINANNCING The financial abbility of ageencies to prrovide servvices is affeccted by avaailable finanncing sources and financing constraints, as well as managemment practiices. This section discuusses the majoor financing constrainnts faced by fire servvice provideers, identifiies the revvenue sources currently aavailable to the servicee providerss, and assessses the finnancial abiliity of agenciess to provide services. Revenuee Sources Fire sservice provviders rely on a varietyy of revenuee sources too fund fire aagency operating costs, prrimarily prooperty taxess, special taxxes, service charges, annd intergoveernmental ffunds and grannts. The varrious fundinng sources foor each firee agency aree shown in FFigure 3-17.. FIRE SERVVICES ]É{Ç UUxÇÉ|à 9 cÉÄ|vvçç VÉÇáâÄà|Çz TTááÉv|tàxá? ____V 51 CAALAVERAS LAAFCO COUNTYYWIDE FIRE MUNICIPAL SERVICE REVIEW Figure 3--17: Revennue Sourcess (FY 10-11) Apprroximately 70 percentt of the Caalaveras firre agenciess’ operatingg budgets wwere funded tthrough ad valorem prroperty taxx and speciaal property tax revenuues in FY 10-11. Service ccharges in the form of EEMS billing revenue, reeimbursemeent from thee State for uuse of strike teeams, and other charrges for serrvices consstituted 13 percent oof total revvenue sources. The agenccies periodiccally receivee intergovernmental fuunds, grantss and donattions, when avveraged out account forr about fourr percent of the operating budget. Fire ffunding souurces differ markedly bbetween thee City of Anggels Camp aand the disttricts. The Cityy relies heavvily on Geneeral Fund reevenues as well as trannsient occuppancy tax (TTOT) revenues, which thee districts do not receivve. Ad Valorrem Propertty Taxes Property taxes mmade up 46 percent of revenues aamong the CCalaveras firre providers. As a fundinng source, pproperty taxxes are connstrained byy statewidee initiatives that have been passed bby voters ovver the yearss. Proposition 13,, which Caalifornia votters approvved in 19778, limits tthe ad valoorem propertyy tax rate, limits growwth of the assessed vvalue of prooperty, andd requires vvoter approval of certainn local taxes. Generallyy, this meaasure fixes tthe ad valoorem tax att one percent of value, exxcept for taxxes to repayy certain votter approveed bonded inndebtednesss. In responsee to the adooption of Prroposition 113, the Legisslature enaccted Assembly Bill 8 (AAB 8) in 1979 to establishh property taax allocation formulas.. Generally, AB 8 allocaates propertty tax revenue to the locall agencies wwithin each ttax rate areaa based on tthe proporttion each aggency receivedd during thee three fiscaal years precceding adopption of Prooposition 133. This allocaation formula benefits loccal agenciess which hadd relatively high tax raates at the ttime Propossition 13 was eenacted. FIRE SERVVICES ]É{Ç UUxÇÉ|à 9 cÉÄ|vvçç VÉÇáâÄà|Çz TTááÉv|tàxá? ____V 52 CALAVERAS LAFCO COUNTYWIDE FIRE MUNICIPAL SERVICE REVIEW Proposition 98, which California voters approved in 1988, requires the State to maintain a minimum level of school funding. In 1992 and 1993, the Legislature began shifting billions of local property taxes to schools in response to State budget deficits. Local property taxes were diverted from local governments into the Educational Revenue Augmentation Fund (ERAF) and transferred to school districts and community college districts to reduce the amount paid by the State general fund. Local agencies throughout the State lost significant property tax revenue due to this shift. Special Taxes and Benefit Assessments Figure 3-18: Special Taxes, FY 12 The most significant Adjusted financing constraints for fire Special Tax per for and EMS services are legal Improved Parcel1 Last Updated Inflation requirements that limit CCFRPD $65 2008 property taxes and require CFPD $150 1997, 2002 voter approval of new taxes EPFPD $128 1999, 2004 and tax increases. Five of the MHFPD $75 2005 10 special districts WPFPD $79 2011 X supplement funding with Notes: 1) Combined special tax levied for districts with two approved special special tax revenue—Central taxes. Calaveras FRPD, Copperopolis FPD, Ebbetts Pass FPD, Mokelumne Hill FPD, and West Point FPD. MFPD attempted to pass a special tax measure twice; however, voters rejected it both times. Of the five districts that levy a special tax, CFPD levies the largest sum at $150 per improved parcel per year. This amount is a combination of two special taxes approved by CFPD voters. Ebbetts Pass FPD also levies two separate special taxes. Only WPFPD’s special tax was approved with the ability to adjust to account for inflation. WPFPD’s board may increase the special tax up to two percent in any given year; however, to date, the District has chosen not to increase the tax. A special tax requires approval by two thirds of voters. Several fire districts in the State have also made use of benefit assessment revenue, which requires a simple majority for voter approval. West Point FPD voters passed a benefit assessment measure in 2006; however, the District was subsequently involved in multi-year litigation, which questioned the validity of the voter-approved benefit assessment, as the benefit to each parcel was purportedly general, not distinct as required by law. The Third Appellate Court found in favor of the plaintiff; however, the California Supreme Court dismissed that decision as moot. In response to the litigation, West Point FPD’s benefit assessment was allowed to expire in 2011, voters instead approved a special tax. Service Charges Service charges comprised 13 percent of revenues among the fire providers. Service charges include fees charged for contract services, fire inspection and building approvals, billing for providing emergency medical and ambulance services, reimbursement from the State for use of strike teams, and charges to non-residents for services rendered. FIRE SERVICES ]É{Ç UxÇÉ|à 9 cÉÄ|vç VÉÇáâÄà|Çz TááÉv|tàxá? __V 53 CALAVERAS LAFCO COUNTYWIDE FIRE MUNICIPAL SERVICE REVIEW Of the service providers, only Ebbetts Pass FPD provides ambulance services, for which it charges. Each of the fire agencies occasionally respond to state fires with their strike teams and get reimbursed for it from the State of California Department of Forestry and Fire. District duty on a strike team or task force is compensated at predetermined rates depending on the rank of the firefighter and the type of the equipment used for the fire. Of the 11 fire agencies, three agencies—Altaville-Melones FPD, San Andreas FPD, and Ebbetts Pass FPD—charge non-residents for certain services provided. San Andreas FPD charges for response to vehicle accidents involving non-residents, while Ebbetts Pass FPD charges for ambulance services to non-residents. Operating Expenditures Figure 3-19: Operating Expenditures per Capita (FY 10-11) The municipal fire AMFPD providers in Calaveras CCFRPD County spent approximately CFPD $8 million in FY 10-11 on fire EPFPD operations, which is the FFPD equivalent of $164 per capita. JLFPD The median provider spent MFPD $91 per capita. Operating MHFPD expenditures per capita, SAFPD shown in Figure 3-19, reflect WPFPD the level of service for fire ACFD providers. The least amount $0.00 $100.00 $200.00 $300.00 $400.00 of money per capita was spent by Jenny Lind FPD and Foothill FPD. Ebbetts Pass FPD expends the most per capita, as it provides additional ambulance services not provided by other agencies. Similarly, Copperopolis FPD spent on average more than other agencies in the County, as it offers a higher paid staffing ratio that provide advanced life support. Figure 3-20: Operating Expenditures per Service Call (FY 10-11) A similar situation exists with operating expenditures AMFPD per service call, as is clear CCFRPD from Figure 3-20. Those CFPD agencies with the lowest EPFPD expenditures per call tend FFPD JLFPD to rely more heavily on MFPD volunteer and call MHFPD firefighters, which greatly SAFPD reduces costs. SAFPD has WPFPD the lowest cost per call, ACFD most likely due to the low paid staffing level compared FIRE SERVICES ]É{Ç UxÇÉ|à 9 cÉÄ|vç VÉÇáâÄà|Çz TááÉv|tàxá? __V 54 CAALAVERAS LAAFCO COUNTYYWIDE FIRE MUNICIPAL SERVICE REVIEW to the large volumee of calls recceived by thhe District. It should be noted thaat SAFPD didd not provide its actual exxpendituress for FY 10-11, and theese estimatee are based on the Disttrict’s budget ffor FY 10-111. Ebbetts PPass FPD haas the higheest expendittures per seervice call, wwhich are attribbutable to tthe additionnal ambulannce services provided. Capital FFinancing Fire sservice provviders in Caalaveras Couunty make uuse of reserrve funds, grants, donations and loanns for capitaal purchasess. Very few of the fire agenciees have adoppted goals oor policies rregarding leevels of reseerves to be maaintained; although, maany have infformal mannagement prractices to mmaintain ceertain reserve levels. Addditionally, of the 11 ffire agenciees, only thrree (AMFPDD, CCFRPD,, and EPFPD) have somee kind of ccurrent plaan or capittal improveement list in place, wwhich indicatess what leveel of reservves are neceessary to fuund future projects annd purchasees, in additionn to weatherring any kinnd of emergeency. Pre-pplanning for future cappital improvement neeeds is considered a beest managemment practice,, which is recommennded for all public aagencies reegardless of size. Caapital improveement planss (CIP) can be tailored to the needds of the aggency, but sshould incluude a list of annticipated rreplacemennt and imprrovement needs with aan anticipated timelinne for completiion and a ffinancial plaan for achieeving those goals. It is recommeended that aa CIP have a pplanning hoorizon of at least five yyears and bbe updated annually too reflect currrent conditions. An adeqquate CIP caan minimize deferred mmaintenancce, ensure thhat rates arre set to cover anticipatedd costs, and curtail the nneed for inddebtedness.. Fire providers rely on ttheir financcial reservees to weather recesssions, to ccover unexpeccted capital projects and as a form of savings tto accumulaate what is needed to mmake requiredd capital immprovementts or replaccements. UUnrestrictedd financial reserves reeflect savings tthat can be used for anny fire-related purposee, and are tthe most fleexible fundss and most useeful for susttaining servvice levels dduring toughh economicc times or foor unanticippated capital pprojects. RRestricted rreserves aree dedicatedd to a Boarrd-designated use, succh as future caapital improvements. Combined restricted aand unrestrricted reserrves in termms of months oof operatingg expendituures for eachh agency aree shown in Figure 3-211. Figure 3-211: Reserve Levels, FY 110-11 MFPDD has tthe higheest reserve levels ammong the 11 providerrs with funnds to covver over three years of operating expendittures; however, thhis district is also onee of the feew agenciess that mainntains severral reserve funds earmarked ffor various capital improvemeent purposes. JLFPD also maintaiins comparaatively high reserves; tthe District iindicated thhat it planned to spendd down thesse reserves in FIRE SERVVICES ]É{Ç UUxÇÉ|à 9 cÉÄ|vvçç VÉÇáâÄà|Çz TTááÉv|tàxá? ____V 55 CALAVERAS LAFCO COUNTYWIDE FIRE MUNICIPAL SERVICE REVIEW the coming year for some capital improvements and additional staffing. Gann Limit Proposition 4 was passed by California voters in 1979, defining what is referred to as the Gann Limit—a spending limit for government services funded by the proceeds of taxes, including property taxes. The limit, originally computed in FY 1978-79, increases annually with cost-of-living and population growth. State law requires that each agency calculate its annual appropriations limit as part of its annual financial audit.13 Additionally, the governing body of each local jurisdiction is required to establish by resolution its appropriations limit and make other necessary determinations for the following fiscal year.14 In addition to being required by law, it is a recommended practice that each agency identify their Gann Limit as part of the budget process to ensure the limit will not be exceeded prior to adoption of the budget and start of the fiscal year. It appears that of the 11 agencies reviewed here, only four (AMFPD, CFPD, FFPD and SAFPD) identify their Gann Limit as part of their annual audit. JLFPD has incorrectly stated in its annual audit that it was not subject to the Gann Limit. While both the City of Angels Camp and MFPD do not address their appropriations limit as part of the annual audits, both annually adopt a limit through a resolution process prior to the start of the fiscal year. Notably, CFPD exceeded its Gann Limit in FYs 06 and 07; consequently, the District presented a measure to the voters in 2009 to increase the District’s appropriation limit by an additional $550,000 for each of the fiscal years from FY 06 to FY 14. Again, in 2012, the district voters reapproved the additional appropriations limit. All other districts that report their Gann Limit as part of the annual audit were well within the identified appropriations limit. While, there is little concern that agencies are currently exceeding their appropriations limits given the recent recession, resulting in decline in revenue sources, conservative spending on the part of the agencies, and use of reserves to cover expenditures, it is required that each local agency identify its appropriations limit. Consequently, it is recommended that all of the fire agencies ensure that State legal requirements are being met annually prior to the start of the fiscal year and in annual audits. Financial Ability All providers’ financial ability to provide services is constrained by available revenues and legal limitations on revenue increases. Most of the agencies reviewed in this report have experienced declines in revenues, due to declines in property values, in the face of a growing demand for services. The financial situation of the fire providers has been impacted by a number of significant expenditure increases, including fuel, apparatus maintenance, liability insurance, physicals, training, and personal protective equipment costs. 13 California Constitution, Article XIIIB §1.5. 14 California Government Code §7910(a). FIRE SERVICES ]É{Ç UxÇÉ|à 9 cÉÄ|vç VÉÇáâÄà|Çz TááÉv|tàxá? __V 56 CAALAVERAS LAAFCO COUNTYYWIDE FIRE MUNICIPAL SERVICE REVIEW Withh the exception of AMMFPD and thhe City of Angels Cammp, the ageencies geneerally reportedd that curreent financinng levels wwere not adequate to pprovide thee fire protection service levels desirred, and inndicated thaat additionaal funding to offer paaid staffing was needed to provide adequate service levvels to meeet both exiisting and future demmand. Available financingg does not yield adeqquate revennues to traansition froom call to paid firefighteers. Servicee levels are minimal; however, prooviders havve been proactive in finnding new reveenue sourcees such as sppecial taxess and grantss. Serviice providers need to evaluate and update special taxes to ensurre that theyy are achievinng cost recoovery, and sshould indeex rates to increase auutomaticallyy with inflaation. Additionnally, agenccies should consider ccharging noon-residentss for servicces rendereed in order to recoup costs for whichh these custtomers are nnot paying tthrough prooperty taxess. GGOVERNNANCE STRUCTUURE OPTTIONS This section disscusses issuues with andd alternativves to the ccurrent orgaanization of fire service in Calaveraas County in light off current ffinancial coonstraints aand anticippated demand. It identiifies optionns to the ccurrent govvernment sttructure off fire proviision, including consolidation of servvice providers. Geneerally, consolidation oof fire provviders prommotes efficiency, profeessionalismm and public saafety. The primary beenefit of consolidationn is econommies of scalee, which maay be achievedd in severral areas. Larger fire provideers can more efficienntly coordinate deploymment of firee personnel when muultiple inciddents occur simultaneously or large incidents occur, as they control staffingg at a greatter numberr of adjacent fire stattions. Consoliddation may offer opportunities too share andd/or reconffigure fire sstation locations and apparatus, partticularly in the more urbanized poortions of thhe County. This may aapply to trainiing and communicatioon facilitiess, as well aas fire stattions. Newwly consoliddated districts reported observing cost savinngs from rreduced maanagement personnel and insurancce costs.15 OOther cost saaving opporrtunities maay be the cloosing of reddundant stations and the eliminatioon of surpluus adminisstrative staff. Combinning resourrces may aallow districts to sell surpplus vehicless, reducing tthe overall age of fleet.. A maajority of thee districts inn the Countty rely on paart-time admministrativee staff, incluuding chiefs annd other offfiicers. This staffing connstraint limiits public acccess to stafff and minimmizes the timee these stafff can direct towards prrofessional management efforts, ssuch as straategic planningg. Through sharing of ffull-time addministrativve staff, conssolidation ccould allow for a higher ddegree of mmanagementt and improved accouuntability too the public. Additionnally, larger mmore professionally runn agencies have greatter public vvisibility and invite greeater public innterest in ttheir operattions. As tthese providders consollidate and grow, enhaanced accountaability will bbe required. Conssolidation coould take mmany forms legally and geographiccally. Theree are three bbasic legal appproaches: consolidaate providers into a newly formmed fire ddistrict withh an independently eleccted boardd, consolidaate provideers into exxisting firee agencies, and formatioon of a joinnt powers aauthority for provisionn of fire serrvice. Conssolidation innto a 15 Marin LAAFCO, 2004. FIRE SERVVICES ]É{Ç UUxÇÉ|à 9 cÉÄ|vvçç VÉÇáâÄà|Çz TTááÉv|tàxá? ____V 57 CALAVERAS LAFCO COUNTYWIDE FIRE MUNICIPAL SERVICE REVIEW newly formed fire district has the advantages of offering local control and accountability to participating areas and the opportunity to develop funding and service configuration approaches that benefit all participants. Consolidation into an existing agency has the advantages of fewer transition costs; disadvantages include pre-existing financing structures that limit compatible consolidation partners, as well as reduced local control and accountability for consolidating agencies. A joint powers authority offers the advantages of a more ephemeral and potentially more limited consolidation (e.g., training), continued accountability and local control, and a potential structure to overcome inherent financial incompatibilities among the providers towards future consolidation. There are two basic geographic approaches to consolidation: a more regional approach among neighboring providers and countywide. The advantage of focusing on neighboring agencies is that these providers are more likely to have compatible needs with respect to service level enhancements and available financing; whereas, agencies with different land use composition, demand, and service levels may lack the compatibility necessary to reap any benefits from consolidation. Consolidation of similar providers that already conduct mutual and automatic aid response for one another, and participate in other joint activities, such as training, could potentially reduce administrative, training and facility costs, capitalize on pooled resources, and promote more comprehensive planning efforts for fire service facilities and needs in each sub-area/region of the County. These regional consolidations would likely consist of the following groupings, based on history of collaborations and similarity in geography and service levels:  Northwestern Calaveras: Foothill FPD and Jenny Lind FPD originally established a JPA through which the two districts shared in administration costs. The two districts recently completed the consolidation process.  SR 4 Corridor: There is the potential of consolidation of Murphys FPD, Altaville- Melones FPD and Copperopolis FPD. Both MFPD and AMFPD expressed the desire to include each other’s boundary areas in their SOIs as a first step towards consolidation. In addition, Murphys FPD is looking into a cooperative fire services agreement with Copperopolis FPD, with which it already has a common chief. However, because Copperopolis FPD is a member of Calpers, while Murphys FPD is not, the two districts may have to reconcile this difference first before proceeding with consolidation. Additionally, given than Altaville-Melones FPD service area encompasses the City of Angels Camp, the two agencies play close supporting roles within each other’s service areas, and AMFPD’s station is located inside the city limits, there may be an opportunity for consolidation of some portions or all of the two agencies’ fire-related services. It may also be appropriate to include Ebbetts Pass FPD in this potential consolidation; however, the District serves an isolated area along the eastern border of the County with low residential density and different service challenges than the other districts considered here. Additionally, Ebbetts Pass FPD, similar to Copperopolis FPD, is also a member of Calpers.  SR 26 Corridor: Given the geographical proximity and close working relationship of Mokelumne Hill FPD, Central Calaveras FRPD and West Point FPD, these districts may be suitable for consolidation. These providers generally served small rural FIRE SERVICES ]É{Ç UxÇÉ|à 9 cÉÄ|vç VÉÇáâÄà|Çz TááÉv|tàxá? __V 58 CALAVERAS LAFCO COUNTYWIDE FIRE MUNICIPAL SERVICE REVIEW areas with limited resources to provide adequate financing for services. The districts conduct extensive joint training exercises, and appear generally compatible, based on similarity of service levels and service areas. The districts have had informal discussions; all parties are reportedly interested in enhancing sharing and collaboration through shared resources and joint training. The districts are looking into a shared services agreement; however, there has been no outcome to these negotiations to date. While land use in the San Andreas area is somewhat denser than the rural communities served by Mokelumne Hill FPD, Central Calaveras FRPD and West Point FPD, it may be appropriate for San Andreas FPD to be considered for inclusion in this regional consolidation, given that SAFPD responds regularly within MHFPD’s and CCFRPD’s bounds through mutual aid. Countywide consolidation of all of the fire providers is an option. The fire agencies have demonstrated extensive collaboration with one another in the form of joint grant applications and a future response system, which may be indicative of the potential for consolidation of all providers countywide. The fire agencies have agreed to begin a response system where both the nearest provider and the provider having jurisdiction are dispatched simultaneously to allow for faster response times and enhanced efficiency. It is anticipated that this will be implemented over the next year. This is a significant step towards countywide consolidation, given that in essence bounds will no longer determine the first responder to an incident. However, there are several challenges to countywide consolidation, including differing conditions among the various providers, such as service levels, funding sources, retirement plans, and demand levels. The providers appear to be open to consolidation in some form and have initiated informal discussions among one another. It is recommended that consolidation be encouraged while the timing appears to be ripe. FIRE SERVICES ]É{Ç UxÇÉ|à 9 cÉÄ|vç VÉÇáâÄà|Çz TááÉv|tàxá? __V 59 CAALAVERAS LAAFCO COUNTYYWIDE FIRE MUNICIPAL SERVICE REVIEW 4 . ALLTAVVI L L EE- M E LLO N EES FII R E PROTEECT IO N DDI ST RR I CT Altavville-Melonees Fire Protection District (AMFPPD) provides structurre fire, wilddland fire, and vehicle firee suppressioon, and emeergency meedical servicces. In addittion, the Disstrict responds to boatingg accidents oon New Mellones Lake. AGENCYY OVERVVIEW Backgground AMFPD was formmed in 19411 for the purpose of prooviding firee protection to the residdents of the Diistrict. The pprincipal acct that goveerns the District is the Fire Protecction Districct Law of 19987.16 The prinncipal act eempowers ffire districtts to providde fire prottection, resscue, emerggency medical, hazardouss material rresponse, ammbulance, aand any othher servicess relating too the protectioon of lives and propeerty.17 Districts must aapply and oobtain LAFFCO approvval to exercise services aauthorized bby the prinncipal act bbut not alrready proviided (i.e., laatent powers) by the district at the end of 2000..18 AMFPD is located in the southeastern portionn of Calavveras Countty. The Disstrict surroundds the City of Angels Camp. AMFFPD borderss Copperoppolis FPD inn the southh, San Andreas FPD in thee northwestt, Central Calaveras FRRPD in the nnorth, Murpphys FPD inn the northeasst, and Tuolumne Counnty in the southeast. Boundarries AMFPD is entirely withiin Calaveraas County. The present bounnds encommpass approximmately 77.55 square miiles and include New MMelones Lakke and the communitiies of Altaville, Fricot Cityy and New MMelones Cammp Ground. Sincee its formattion, the Diistrict has uundergone six detachmments and one annexaation. The detaached areas were annexxed by the CCity of Angeels Camp. Thhe annexatiion took plaace in 2000 annd included territory thhat previously belongeed to Countty Fire. District’s bounndary changes are shown in Figure 4--1. 16 Health annd Safety Code §§13800-13970. 17 Health annd Safety Code §§13862. 18 Governmment Code §568224.10. AMFPD ]É{Ç UUxÇÉ|à 9 cÉÄ|vvçç VÉÇáâÄà|Çz TTááÉv|tàxá? ____V 60 CAALAVERAS LAAFCO COUNTYYWIDE FIRE MUNICIPAL SERVICE REVIEW Figure 4--1: AMFPPD List of LAAFCO Approvved Border Changes Sphere oof Influence In 20005, duringg the SOI uppdates, LAFFCO chose tto keep AMMFPD’s sphere of influuence coterminnous with itts boundariees. Extra-territorial Seervices The District hass mutual annd automattic aid agreeements witth neighborring fire service providerrs, such as Murphys FFPD, Angless Camp FD,, and San AAndreas FPPD, and as such, occasionnally responnds outsidee its bounddaries in thhese areas. AMFPD allso occasioonally responds to wildlannd fires throoughout the State. Areas off significancce An area of signiificance for AMFPD is the territory of Murphys FPD. The two disttricts have strong collaboorative ties and are connsidering coonsolidation, along with Copperoopolis FPD. AMFPD ]É{Ç UUxÇÉ|à 9 cÉÄ|vvçç VÉÇáâÄà|Çz TTááÉv|tàxá? ____V 61 ^_ ^_ ^_ ^_ ^_ ^_ ^_ ^_ Protected by Central Calaveras FRPD FPD ·|}þ Mountain Ranch 49 n Sheep Ranch ·|}þ San Andreas FPD 12 ^_ n Calaveras County SUNSET ST San n Andreas MILL S AV MOUNTAIN RANCH RD MICHEL RD Central Calaveras FRPD Protected by Central Calaveras FRPD n n n D N C A N i l i o e t t s y w n a t v r - o Hi D i c f l o l i t A e s gF t - a n r M i F n g r i c i e e e R r t l l e F o A e F C sa n e i a l c r P r e t m e iv s l a r oi F p t F v o ii a r P e F i t c s l D a e i l l c i e c t il t i - i e i M t s o ie e n s l o D n is e t s r H C P O W i o a i t c a g h r u t t c h e n e e w r r t l y b s C a o y o B d s u o i n u e t s n ie d s ary HWY 49 CALAVERITAS RD San C A EM n EN d T P r LA e N a T s RD FPD R O O L C D K G Y U R L D CH RD FRECCERO RD FR P I O C ND O E T R O C S IT A Y W R Y D ESMERELDA RD ARRASTRA LN SHEEP RANCH RD FO E LE b ND b OR e F t RD ts F P UL a LE s N s RD F N H P WY D 4 ·|}þ 4 Other Fire Protection Districts PONDEROSA WY Foo HU t N h T R i D l H l O G F AN P DAM D RD WALKER TRAIL R C D OO n PER H LN EISER CANYON RD CONCH JA O Q T A U S PA T IM D RI E A A R D T O A R W S Y T n POOL STATION R D OAK V CA A R L O L L E K Y E R N D NEDY DR FOURTH C C R O O S S G SI R NG AV R E D M E A R CH D AM RANC D H O G R T D OWN RD ^_ Altav N C C i M O l i l A W t e IN y K S IC T K o n n R n f D n A G ^_ AR n DNE g R LN els A C n a g mn e n S M A l IN s ST p C F a D mp RA D NC A H M R S R U B A D R Y N P H D L Y O N S H M W G IN Y R A G 4 D O E R RD D FREN R C E H P D G Y H U I S L L C L H H R O D R N D RD n SIX S C H M A E R IL L S E T O R E N D R S n T LN BATTE N RD MOANING J CA O VE N R M E D n S W IL S L u IA T M S S r S H T n WY p 4 hy SK s U M N K T F G D U P L A P C V E H D I N S N R SY D LVA B N IG C IA A F G U M L U A T P P L T I C O N C R H I N A N D R D E D D E R IT R D C O H S A R W D Y Salt Spring Va SA l L l T e S y PR I R N e G s S e V r A v L i L o E R Y r O RD CK C CR o EE p K p RD ero S p H o AD l Y i LN s A F lpin P e Cou D nty BONANZ B A U MI C NE K W SK Y IN RD PINTO DR HUN GE T L E D R R I N S O G T A R S N D T A R P A P L D A L L IO O N O W S Y A RD n ANGELS CREEK ACCESS RD WHITTLE RD H M WY 49 OORE DR AIROLA P R A D RROTTS FERRY RD ^_ MORGAN RD FILLY LN « New Melones Reservior ^_ CANTLE RD STAGECOACH RD HODSON RD nMA n IN ST 0 0.5 1 2 3 4 5 Miles ^_ ^_ ^_ ^_ ^_ CALAVERAS LAFCO COUNTYWIDE FIRE MUNICIPAL SERVICE REVIEW Accountability and Governance 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 MSR process and information disclosure. The principal act orders that the board of directors of a fire protection district must have an odd number of members, with a minimum of three and a maximum of 11 members. Directors may be appointed or elected.19 AMFPD is governed by a three-member board of directors elected at large to staggered four-year terms. Current board member names, positions, and term expiration dates are shown in Figure 4-3. The Board meets on the fourth Wednesday of every month at 5:30 in the afternoon at the District’s office. Board meeting agendas are posted at the AMFPD office and post office in Altaville, and mailed to the mailing list. Minutes are also mailed to the mailing list and available upon request. Figure 4-3: Altaville-Melones Fire Protection District Governing Body Altaville-Melones FPD District Contact Information Contact: Jim Rosbrook, Chief Address: 122 South Main Street, Angels Camp, CA 95221 Telephone: 209-736-4461 Email/website: amfdchief@goldrush.com Board of Directors Member Name Position Term Expiration Manner of Selection Length of Term Don Pierano Secretary December 2013 Elected 4 years Don Warner Chair December 2015 Elected 4 years Mike Fullaway Director December 2013 Elected 4 year Meetings Date: Fourth Wednesday of every month at 5:30PM. Location: Meetings are held at the District's office. Agenda Distribution: Posted at the office, Altaville post office and mailed to mailing list. Minutes Distribution: Mailed to mailing list and available upon request. In addition to the required agendas and minutes, the District tries to reach its constituents through fundraisers held by the firefighters association and educational activities in schools. If a customer is dissatisfied with the District’s services, complaints may be submitted in writing and addressed to the Board of Directors. The District’s chief and administrative 19 Health and Safety Code §13842. AMFPD ]É{Ç UxÇÉ|à 9 cÉÄ|vç VÉÇáâÄà|Çz TááÉv|tàxá? __V 63 CALAVERAS LAFCO COUNTYWIDE FIRE MUNICIPAL SERVICE REVIEW captain are responsible for handling complaints. The District reported that there were no complaints in 2011. During the course of this MSR process AMFPD demonstrated partial accountability in its disclosure of information and cooperation with Calaveras LAFCO. The District responded to the initial questionnaires and cooperated with interview and document requests; however, follow-up questions and profile review required multiple follow-up attempts. Planning and Management Practices 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’s mission statement states: The Altaville-Melones Fire Protection District is committed to protecting the people and property within our community. We will be responsive to the needs of our citizens by providing rapid, professional, humanitarian services essential to the health, safety and well-being of the community. AMFPD has 20 staff members—one chief and 18 volunteers. The fire chief is a part-time paid employee who contributes 30 hours a week. Volunteer firefighters do not get compensated. The District receives secretarial services from Murphys FPD through a contract. The chief is responsible for day-to-day operations, and reports to the chief. Volunteer firefighters are overseen by the chief. The District’s management practice is to have the Board evaluate the chief, who in turn evaluates the volunteers. However, evaluations have not taken place for the last few years. AMFPD reports that there has been no need for evaluations as no problems have arisen. AMFPD reported that it did not perform formal evaluations of overall district performance, such as benchmarking or annual reports. The District tracks its employee workload through incident and training logs. Logs, as reported by the District, help assign appropriate people to specific duties, thus increasing efficiency. The District’s financial planning efforts include an annually adopted budget and annually audited financial statements. AMFPD does not adopt a capital improvement plan (CIP), but plans its capital improvements in its strategic plan. The most recent strategic plan was adopted in 2008 and has a planning horizon five years. The District attempts to update its capital improvement needs annually. Existing Demand and Growth Projections This section discusses the factors affecting service demand, such as land uses, and historical and anticipated population growth. AMFPD ]É{Ç UxÇÉ|à 9 cÉÄ|vç VÉÇáâÄà|Çz TááÉv|tàxá? __V 64 CALAVERAS LAFCO COUNTYWIDE FIRE MUNICIPAL SERVICE REVIEW Land Use Land uses within the District consist of general agriculture, agricultural preserve, residential agriculture, and residential. The District’s bounds encompass approximately 77.5 square miles. Population There are approximately 2,759 residents within the District, based on census block group population in the 2010 Census.20 The population density within the District is 36 people per square mile. Existing Demand The District reported that its peak demand times occurred from four in the afternoon to midnight, and during weekends. Calls for medical emergencies are consistently high in volume throughout the year, similar to other fire service providers in the region. Figure 4-4: AMFPD Number of Calls by Year, 2006-2011 The District reported that it 400 had observed a decrease in 350 service demand in the last few 300 years. As shown in Figure 4-4, the number of calls has consistently 250 declined between 2008 and 2011. 200 The initial drop in service demand 150 coincides with the start of the 100 economic recession in 2008, and 50 could be explained by residents leaving the area. 0 2006 2007 2008 2009 2010 2011 Projected Growth and Development AMFPD anticipates moderate growth in population and similarly in service demand within the District in the next few years. The District reported that it forecasts growth and service demand through its strategic plan. However, no formal population projections have been made by AMFPD. There are currently 120 acres for sale to a developer near the Vallecito area, by the District’s border with Murphys FPD. In addition, a five-acre parcel is anticipated to be developed in Carson Hill. The District reported that it had sufficient capacity to serve anticipated future growth, as it previously had been able to handle a higher volume of calls. AMFPD did not identify any areas within its future growth area to which it would be difficult to provide an adequate level of service. The State Department of Finance (DOF) projects that the population of Calaveras County will grow by eight percent in the next 10 years. Thus, the average annual 20 Census Block Groups 1 and 2 in Census Tract 1.21 and Census Block Groups 1 and 2 in Census Tract 1.22, minus population of the City of Angels Camp in Calaveras County. AMFPD ]É{Ç UxÇÉ|à 9 cÉÄ|vç VÉÇáâÄà|Çz TááÉv|tàxá? __V 65 CALAVERAS LAFCO COUNTYWIDE FIRE MUNICIPAL SERVICE REVIEW population growth in the County is anticipated to be approximately 0.8 percent. Based on these projections, the District’s population would increase from 2,759 in 2010 to approximately 2,980 in 2020. It is anticipated that demand for service within the District will increase minimally, based on the DOF population growth projections through 2020. Growth Strategies The District is not a land use authority, and does not hold primary responsibility for implementing growth strategies. The land use authority for unincorporated areas is the County. The County’s General Plan is presently being updated. Some of the fire districts reported that the County sought input from them on General Plan update. AMFPD did not provide input on the General Plan update. With regard to possible governance structure alternatives, there is a potential for consolidation of Murphys FPD with Altaville-Melones FPD. Both districts have expressed the desire to include each other’s boundary areas into their respective SOIs as a first step towards consolidation. It was previously reported that AMFPD may also become a party in the reorganization that was being considered by Copperopolis FPD and Murphys FPD; however, as of the revision of this report, discussions regarding reorganization had ceased. Financing The financial ability of agencies to provide services is affected by available financing sources and financing constraints. This section discusses the major financing constraints faced by the District and identifies the revenue sources currently available to the District. The District reported that its financing levels were adequate to deliver services. Negative effects of the recession are mitigated by revenues received from service charges collected from non-residents. The District’s revenue in FY 10-11 was $100,482, of which 65 percent was received from property taxes, 11 percent from intergovernmental revenues, one percent from use of money and property, three percent from charges for services, and 20 percent from other revenues. The District’s general operations are funded primarily by property taxes. AMFPD charges fees for providing services to non-residents. The District also occasionally responds to state fires with its fire engine and gets reimbursed for it from the State of California. AMFPD’s expenditures amounted to $183,896 in FY 10-11—25 percent was spent on salaries and benefits, 63 percent on services and supplies, and 12 percent on debt service. The District’s long-term debt consisted of a loan for a fire engine. In 2008, the District obtained financing from Municipal Finance Corporation for a fire truck. The lease required three annual payments of $21,929, including interest and matured in March 2011. The final lease payment was made in January 2011. The District has a formal policy to maintain financial reserves for capital and contingency purposes. One of the financial reserve funds had a balance of $60,000 at the end of FY 10-11, which is earmarked for future capital improvement needs. The second minor reserve account contains a small amount of money for contingencies. AMFPD ]É{Ç UxÇÉ|à 9 cÉÄ|vç VÉÇáâÄà|Çz TááÉv|tàxá? __V 66 CAALAVERAS LAAFCO COUNTYYWIDE FIRE MUNICIPAL SERVICE REVIEW The District doees not participate in aany joint poower authorities (JPAss) or other joint financingg mechanismms. FIRRE AND EMS SEERVICESS Servicce Overvview AMFPD providees compreheensive fire pprotection sservices to residents oof the Distriict. A detailed descriptionn of the servvices offeredd by AMFPDD is shown iin Figure 4-5. The DDistrict receeives secrettarial services from Muurphys FPD tthrough a contract. Figure 4-5: AMFPD Seervice Matrix SService Providded ? Strructural firee protectionn Yess Wildland fire protection Yess Veehicle fire protection Yess Laadder truck capabilitiess Noo Emmergency mmedical servvices Yess Baasic life suppport Yess Addvanced lifee support Noo Addvanced lifee support transport Noo Haazardous mmaterials emergency ressponse Yess Firre preventioon Yess Firre safety edducation Yess Firrst respondder swift waater and loww angle ropee rescue Yess Puublic servicee assists Yess Oxxygen fillingg for breathing apparattuses Yess Heelicopter faccilities Noo Jawws of Life toools Yess Reesponse to bboating acciidents Yess Water rescuee Yess Divve and ice rrescue Noo Firre investigaation Yess Hoome inspecttions Noo Collaaboration AMFPD reportedd that it hadd automaticc aid agreemments with MMurphys FPPD, Angels CCamp FP, and SSan Andreaas FPD. In adddition, the District is ccurrently wworking on aan automatiic aid agreemeent with Coopperopolis FPD. AMFPPD maintainns a masterr mutual aiid contract with the Statee of Californnia. AMFPD participated in the countywidee grant (regaarding voluunteer recruuitment fundding) through the Calaverras Fire Chieefs Associattion. The Diistrict also ttook part inn the countyywide water tender prograam, and is aa member off the Fire Diistricts Assoociation of CCalifornia. AMFPD ]É{Ç UUxÇÉ|à 9 cÉÄ|vvçç VÉÇáâÄà|Çz TTááÉv|tàxá? ____V 67 CALAVERAS LAFCO COUNTYWIDE FIRE MUNICIPAL SERVICE REVIEW The District is working with all other agencies in the County to set up a countywide closest-unit response system. Under this system both the nearest agency and the agency with jurisdiction would be dispatched to each incident. The Chiefs of each of the agencies have agreed to this, and are working to implement the change over the next year. With regard to facility sharing, the District keeps its type 3 engine at Murphys FPD fire Station 2. An opportunity for further facility sharing and collaboration may be a joint service endeavor with the City of Angels Camp where AMFPD has a station. At present, there have been no discussions with the City regarding a joint service endeavor. The District and the City have an automatic aid agreement through which the two agencies support one another. Dispatch and communications The District's emergency dispatch and communication needs are served through a Calaveras County contract with the California Department of Forestry and Fire Protection's (CalFire) Emergency Command Center (ECC) in San Andreas. There is currently no fee charged to local government fire protection agencies by Calaveras County for this service. Dispatching is handled through joint use of the command frequency assigned to the Tuolumne-Calaveras Unit. The CalFire, Office of Emergency Services and County assigned tactical frequencies are also available for local use. The Calaveras County Sheriff's Office serves as the Primary Public Safety Answering Point where all landline calls within the County are originally directed. Fire incidents are directed to the ECC. Volunteers are alerted by "pager." Staffing AMFPD has 20 sworn personnel— one chief and 18 volunteers. The fire chief is a part- time paid employee. Volunteers do not get compensated. The median age of the firefighters is approximately 25 according to the District, with a range from 18 to 70. To recruit more volunteers, the District is relying on funding from the recently awarded countywide SAFER Recruitment and Retention of Volunteer Firefighters grant. According to the California State Fire Marshal, all paid, volunteer and call firefighters must acquire Firefighter I certification; however, there is no time limit as to how long they may work before attaining certification. Firefighter I certification requires completion of the 259-hour Firefighter I course, which includes training on various fireground tasks, rescue operations, fire prevention and investigation techniques, and inspection and maintenance of equipment. In addition to this course, Firefighter I certification also requires that the applicant have a minimum of six months of volunteer or call experience in a California fire department as a firefighter performing suppression duties.21 AMFPD has eight Firefighter I and 4 EMT I certified personnel. 21 State Fire Marshal, Course Information and Required Materials, 2007, p. 44 AMFPD ]É{Ç UxÇÉ|à 9 cÉÄ|vç VÉÇáâÄà|Çz TááÉv|tàxá? __V 68 CALAVERAS LAFCO COUNTYWIDE FIRE MUNICIPAL SERVICE REVIEW AMFPD conducts a majority of its training in house. Firefighters are required to train eight to 12 hours per month. Training needs have recently increased with the District having acquired additional staff. Facilities and Capacity AMFPD owns and operates one fire station built in 1951, which was reported to be in excellent condition. The station is staffed Monday through Friday from 8am to 5pm by two part-time staff. The District’s station houses three fire engines, three administration vehicles, one rescue vehicle, and one water tender. For water supply, the District uses its own 3,200-gallon water tender, as well as water tenders that belong to neighboring fire districts and are accessible through mutual aid, and three private water tenders available to AMFPD. Some subdivisions within the District have fire hydrants. Currently, district facilities have sufficient capacity to provide adequate services within its current service area and future growth areas. No need for additional stations was identified. The District’s station is in excellent working condition. Current response times meet Mountain Valley Emergency Medical Services Agency standards for response to medical emergencies. Infrastructure Needs AMFPD did not identify any short-term infrastructure needs. Long-term needs outlined in the strategic plan include constructing onsite living quarters at Station 1, purchasing an emergency stand-by generator for Station 1, purchasing exhaust extractors (or alternatives), purchasing washer/extractor for personal protection equipment, and continuing the upgrade/replacement of the communications equipment. Challenges One of the challenges identified by AMFPD is the decrease in revenues, due to the recent economic recession. Areas in the northern part of the District were reported to be the most challenging to serve, in particular the area at the far eastern end of Fricot City Road. Service Adequacy While there are several benchmarks that may define the level of fire service provided by an agency, indicators of service adequacy discussed here include ISO ratings, response times, and level of staffing and station resources for the service area. Fire services in the communities are classified by the Insurance Service Office (ISO), an advisory organization. This classification indicates the general adequacy of coverage, with classes ranking from 1 to 10. Communities with the best fire department facilities, systems for water distribution, fire alarms and communications, and equipment and personnel receive a rating of 1. AMFPD has an ISO rating of five in urban areas and eight in rural areas. The District was last evaluated in 2004. AMFPD ]É{Ç UxÇÉ|à 9 cÉÄ|vç VÉÇáâÄà|Çz TááÉv|tàxá? __V 69 CALAVERAS LAFCO COUNTYWIDE FIRE MUNICIPAL SERVICE REVIEW The National Fire Protection Association (NFPA) has issued a performance standard for volunteer and combination fire departments (NFPA 1720). This standard, among other guidelines, identifies target response time performance for structure fires. The response time is measured from the completion of the dispatch notification to the arrival time of the first-responder at the scene. Though not a legal mandate, NFPA 1720 does provide a useful benchmark against which to measure fire department performance. NFPA 1720 recommends that the response times for structure fire be nine minutes in urban demand zones at least 90 percent of the time, 10 minutes in suburban zones at least 80 percent of the time and 14 minutes in rural zones at least 80 percent of the time. Response times in remote zones are directly dependent on travel distances.22 All fire service providers in Calaveras County, except for the City of Angels Camp Fire Department, fall within the definition of a rural demand zone. The City of Angels Camp FD is an urban demand zone. Emergency response time standards vary by level of urbanization of an area: the more urban an area, the faster a response should be. Calaveras County is not broken down into wilderness, rural and urban designations for response time standards like other counties. Instead, Mountain Valley Emergency Medical Services Agency has divided Calaveras County into three zones for EMS and ambulance services. The northern and southern zones are served by American Legion and the eastern zone (which is the same as the Ebbetts Pass FPD boundary area) is served by Ebbetts Pass FPD. In the northern and southern zones the response time guideline is 20 minutes 90 percent of the time, and 13 minutes 90 percent of the time in the eastern zone. These standards are intended for the ambulance contract providers; however, they indicate what is considered appropriate response times for medical emergencies. The District does not track response times for each incident. CalFire tracks response times for AMFPD incidents. It should be noted that CalFire’s methodology for tracking response times differs from that of the districts. While the districts generally start timing from the time the engines leave the facility, CalFire starts timing after checking back in with the responder after dispatch, which is often when the District is already en route to the scene. Consequently, response times reported by CalFire for each incident tend to be shorter than those recorded by each district. It was reported that in 2011 the District’s average response time was 7.08 minutes and the 90th percentile response time was 14.7 minutes. An area that AMFPD can improve upon is tracking its response times, being aware of its average, median and 90th percentile response times and collaborating with CalFire on data exchange, which would allow for more structured response and enhanced efficiency and consistency. The service area size23 for each fire station varies between fire districts. The median fire station in Calaveras County serves approximately 34 square miles. Although EPFPD serves the most expansive area (195 square miles), AMFPD stations serve larger area per station, with 77.5 square miles served per station on average. Densely populated areas tend to 22 Urban demand zone has population density of more than 1,000 people per square mile; suburban zone—between 500 and 1,000 people per square mile, rural zone—less than 500 people per square mile, and remote zone is identified by eight or more miles of travel distance to an incident. 23 Service area refers to the area that the agency will respond to, based on a first responder map used by the Sherriff’s office. AMFPD ]É{Ç UxÇÉ|à 9 cÉÄ|vç VÉÇáâÄà|Çz TááÉv|tàxá? __V 70 CALAVERAS LAFCO COUNTYWIDE FIRE MUNICIPAL SERVICE REVIEW have smaller service areas. For example, the average service area for the City of Angels Camp Fire Department’s fire station is 1.75 square miles. The number of firefighters serving within a particular jurisdiction is another indicator of level of service; however, it is approximate. The providers’ call firefighters may have differing availability and reliability. A district with more firefighters could have fewer resources if scheduling availability is restricted. Staffing levels in Calaveras County vary from 3.2 sworn firefighters per 1,000 residents in the JLFPD service area to 13 in MHFPD. By comparison, AMFPD has approximately seven firefighters per 1,000 residents. AMFPD ]É{Ç UxÇÉ|à 9 cÉÄ|vç VÉÇáâÄà|Çz TááÉv|tàxá? __V 71 CALAVERAS LAFCO COUNTYWIDE FIRE MUNICIPAL SERVICE REVIEW Figure 4-6: Altaville-Melones FPD Fire Service Profile Fire Service Facilities Firestation Location Condition Staff per Shift Vehicles Station 1 122 South Main Street, Excellent Staffed by two part-time 3 fire engines, 3 administration vehicles, 1 Angels Camp, CA 95221 personnel 8AM till 5PM rescue engine, 1 water tender Facility Sharing Current Practices: AMFPD keeps its Type 3 engine at the Murphys FPD Vallecito fire station. Future opportunities: The District is currently looking into doing closest unit response with Central Calaveras FRPD and San Andreas FPD, which would provide more efficient services to customers and faster response times. AMFPD is also working on an automatic aid agreement with CFPD. Infrastructure Needs and Deficiencies AMFPD did not identify any short-term infrastructure needs. Long-term needs outlined in the strategic plan include constructing onsite living quarters at Station 1, purchasing an emergency stand-by generator for Station1, purchasing exhaust extractors, purchasing washer/extractor for P.P.E., and continuing the upgrade/replacement of the communications equipment. District Resource Statistics Service Configuration Service Demand Staffing Base Year 2012 Configuration Base Year 2012 Statistical Base Year 2011 Fire Stations in District 1 Fire Suppression Direct Total Service Calls 249 Stations Serving District 1 EMS Direct % EMS 66% Sq. Miles Served per Station1 77.5 Ambulance Transport ALA, EPFPD % Fire/Hazardous Materials 2% Total Staff2 20 Hazardous Materials Direct % False 11% Total Full-time Firefighters 0Air Rescue/Ambulance Helicopter PHI % Misc. emergency 5% Total Call Firefighters 20Fire Suppression Helicopter CalFire % Non-emergency 16% Total Sworn Staff per Station3 20Public Safety Answering Point Sheriff % Mutual Aid Calls 5% Total Sworn Staff per 1,000 7Fire/EMS Dispatch CalFire Calls per 1,000 people 90 Service Adequacy Service Challenges Areas in the northern part of the District were reported to be the hardest to Response Time Base Year 2011 serve. Especially challenging is the area at the far eastern end of Fricot City Rd. Average Response Time (min) 7.08 Training 90th Percentile Response Time (min) 14.7 AMFPD conducts a majority of its training in house. Firefighters are required to ISO Rating 5/8 (2004) train eight to 12 hours per month. Mutual & Automatic Aid Agreements The District has automatic aid agreements with Murphys FPD, Angels Camp FD, San Andreas FPD. The District is currently working on an automatic aid agreement with Copperopolis FPD. AMFPD maintains a master mutual aid contract with the State of California. Notes: 1) Primary service area (square miles) per station. 2) Total staff includes sworn and non-sworn personnel. 3) Based on ratio of sworn full-time and call staff to the number of stations. Actual staffing levels of each station vary. AMFPD ]É{Ç UxÇÉ|à 9 cÉÄ|vç VÉÇáâÄà|Çz TááÉv|tàxá? __V 72 CAALAVERAS LAAFCO COUNTYYWIDE FIRE MUNICIPAL SERVICE REVIEW AALTAVILLE-MELLONES FFIRE PROTECTION DISTTRICT DETERRMINATIONS Growtth and PPopulatiion Projjectionss  AAltaville-Mellones Fire Protection District (AAMFPD) cuurrently haas an estimmated population oof 2,759.  Since 2008, tthe District has experieenced a decrrease in serrvice demannd.  AAMFPD anticcipates modderate growwth in popuulation withhin the Disttrict in the next feew years. There are cuurrently 1200 acres for sale to a deeveloper neear the Valllecito area by the bborder withh Murphys FPD. In adddition, a fivee-acre parccel is anticippated too be developped in Carsoon Hill. The Location and Chharacterristics oof Disadvantageed Unincorporatted Commmunitiees Within or Coontiguous to thhe Agenccy’s SOI  BBased on 22010 Censuus income informatioon for Cennsus Designnated Placees in Calaveras CCounty, theere are no communities that mmeet the definition of a disadvantageed unincorpporated commmunity wwithin or addjacent to AAMFPD’s boounds and sphere oof influence.. Present and PPlannedd Capaciity of Puublic Faacilities and Adequuacy of Public SServicess, Includding Inffrastruccture Needss and Deeficiencies  TThe Districtt’s existing facilities hhave the capacity to adequatelyy serve currrent demand andd possible future growwth. No neeed was ideentified by AMFPD foor an additional station. Thee existing sstation is iin excellentt conditionn. The Disttrict’s reesponse timmes meet Moountain Valley Emergeency Medicaal Services AAgency respponse tiime standarrds.  AAMFPD did not identify any shoort-term inffrastructuree needs. Loong-term nneeds outlined in thhe strategicc plan includde construccting onsite living quartters at Statiion 1, purchasing aan emergenncy stand-bby generatoor for Stattion 1, purcchasing exhhaust exxtractors, ppurchasing aa washer/eextractor for personal protection equipmentt, and coontinuing thhe upgrade//replacemeent of the coommunicatioons equipmment.  AAMFPD doess not have aa capital impprovement pplan (CIP), bbut instead plans its caapital immprovemennts in its strrategic plann. The Distrrict should cconsider addopting a caapital immprovemennt plan to identify lonng-term finnancing neeeds and soources for tthese needs.  AAn area thaat AMFPD could imprrove upon is tracking and calcculating its 90th percentile reesponse time. AMFPD ]É{Ç UUxÇÉ|à 9 cÉÄ|vvçç VÉÇáâÄà|Çz TTááÉv|tàxá? ____V 73 CALAVERAS LAFCO COUNTYWIDE FIRE MUNICIPAL SERVICE REVIEW  AMFPD services appear to be adequate. The District has adequate response times and an ISO rating which is comparable to other providers in the County. Financial Ability of Agencies to Provide Services  The District reports that current financing levels are adequate to deliver services.  Although the recent recession had a negative effect on AMFPD revenues, the District reported that income received from service charges collected from non-residents has been an additional income source ensuring adequate financing.  The District’s general operations are funded primarily by property taxes.  AMFPD does not have long-term debt.  The District maintains two financial reserve funds—one for apparatus replacement and another for contingencies. Status of, and Opportunities for, Shared Facilities  AMFPD collaborates with Murphys FPD, Angels Camp FD and San Andreas FPD via automatic aid agreements. AMFPD maintains a master mutual aid contract with the State of California.  AMFPD participated in a countywide grant through the Calaveras Fire Chiefs Association and countywide water tender program. The District is a member of the Fire Districts Association of California.  The District is working with all other agencies in the County to set up a countywide closest-unit response system. Under this system both the nearest agency and the agency with jurisdiction would be dispatched to each incident. The chiefs have agreed to this, and are working to implement the change over the next year.  The District keeps its type 3 engine at Murphys FPD fire station.  An opportunity for further facility sharing and collaboration may be a joint service endeavor with the City of Angels Camp. Accountability for Community Service Needs, Including Governmental Structure and Operational Efficiencies  AMFPD demonstrated partial accountability in its disclosure of information and cooperation with Calaveras LAFCO. The District responded to the initial questionnaires and cooperated with interview and document requests; however, follow-up questions and profile review required multiple follow-up attempts.  AMFPD practices public outreach efforts; however, the District lacks a website where district information is made available to public. It is recommended for every public service provider to maintain a website in order to keep their constituents aware of the agency’s activities.  Governance structure options include consolidation with Murphys FPD and a three- way reorganization with Murphys FPD and Copperopolis FPD. AMFPD ]É{Ç UxÇÉ|à 9 cÉÄ|vç VÉÇáâÄà|Çz TááÉv|tàxá? __V 74 CAALAVERAS LAAFCO COUNTYYWIDE FIRE MUNICIPAL SERVICE REVIEW 5 . C E NTTR ALL C ALL AV EE R AS F I R EE AN DD RRESCUUE PRROTEECT I OO N DDI ST RR I CT Centrral Calaveras Fire andd Rescue PProtection DDistrict (CCCFRPD) provides struccture, wildlandd and vehicles fire supppression, and EMS. AGENCYY OVERVVIEW Backgground CCFRRPD was forrmed in 1999 throughh the consollidation of GGlencoe Raiil Road Flatt Fire Protectioon District and Mounntain Rancch Fire Prootection Diistrict.24 Thhe two disttricts consoliddated to proovide more efficient firre protectioon and emeergency meddical servicces to the commmunities of Glencoe, Raail Road Flat, Mountainn Ranch andd Sheep Ranch. The pprincipal acct that goveerns the District is the Fire Protecction Districct Law of 19987.25 The prinncipal act eempowers ffire districtts to providde fire prottection, resscue, emerggency medical, hazardouss material rresponse, ammbulance, aand any othher servicess relating too the protectioon of lives and propeerty.26 Districts must aapply and oobtain LAFFCO approvval to exercise services aauthorized bby the prinncipal act bbut not alrready proviided (i.e., laatent powers) by the district at the end of 2000..27 CCFRRPD is locatted in the central northern portioon of Calaveeras Countyy. The Distrrict is adjacentt to four othher fire provviders—Weest Point FPPD to the noorth, Altavillle-Meloness FPD to the soouth, and Saan Andreas FFPD and Mookelumne HHill FPD to the west. Eaast of the Disstrict is the community off Sheep Rannch, which iss located in the CCFRPDD’s service area but ouutside of the district bounddaries. (This is the onlyy territory wwithin Calavveras Countty that is ouutside of a fire protection district’s boundaries).. Adjacent tto Sheep Raanch is Ebbeetts Pass FPPD to the east and Murphyys FPD to thhe south. Boundarries CCFRRPD’s bounndary is entirely witthin Calaveeras Countty. The ppresent boounds encompaass approximately 115.5 square mmiles. Sincee formationn, when Gleencoe Rail Road Flat and Mounttain Ranch Fire Protection Districtss consolidated into CCFRPD, the Diistrict has nnot undertakken any bouundary channges. 24 LAFCO reesolution 99-022. 25 Health annd Safety Code §§13800-13970. 26 Health annd Safety Code §§13862. 27 Governmment Code §568224.10. CCFRPD ]É{Ç UUxÇÉ|à 9 cÉÄ|vvçç VÉÇáâÄà|Çz TTááÉv|tàxá? ____V 75 CALAVERAS LAFCO COUNTYWIDE FIRE MUNICIPAL SERVICE REVIEW Sphere of Influence The Sphere of Influence for the District was first adopted in 1999, at the time of CCFRPD’s formation, as coterminous with the District’s boundaries.28 It was further revised in 2005, after the completion of the MSR for the District. The SOI was expanded from being coterminous with the district boundaries to include Sheep Ranch, Swiss Ranch and Freccero Road, which CCFRPD had been already serving through a contract with the County. The current SOI is 154 square miles compared to about 115.5 square miles of boundary area. Extra-territorial Services CCFRPD’s service area extends beyond the district boundaries. Services to the Sheep Ranch area are provided under an agreement with the County of Calaveras, which dates back to 2002. The Calaveras County Fire Department (County Fire), under the governance of the County of Calaveras, has changed its role since the 1999 and 2000 reorganizations of the local fire protection districts. Prior to the reorganization, County Fire was responsible for fire protection in Sheep Ranch area, among others, and had fire stations, equipment and personnel to provide such services. These responsibilities were transferred along with tax revenues and facilities to the local fire protection districts, including CCFRPD. The District has automatic aid agreements with West Point FPD, Mokelumne Hill FPD, San Andreas FPD, Murphys FPD, and Ebbetts Pass FPD. CCFRPD also responds to wildfires with its strike team outside of its boundaries and gets reimbursed by the State. Areas of Significance One area of significance for CCFRPD is the southeastern portion of Sheep Ranch. The District reported that there was another (private) fire service provider, Called Mountain Fire Rescue, operating in that area. 28 Resolution number 99-02. CCFRPD ]É{Ç UxÇÉ|à 9 cÉÄ|vç VÉÇáâÄà|Çz TááÉv|tàxá? __V 76 ^_ ^_ ^_ ^_ ^_ Amador County ^_ n n^_ ^_ Cen Ca tr l a av l e C r a a la s v C e o r u a n s t F y ire STANLEY RD JUNE A ^_V n FAY W ST ilseyville 06N37 06N35 06N03 06N96Y ^_ n C P C O F H i e r e t i r o g h n n e h t e t t a e r r F w r c n a a a F a t l l c d e i y C F i r d l s R i a e R t b l P i P a e e y D v r s s o C e S c r t e e O a u n c s I t e t r F i a o R P l n P C r D D o a i l t s a e t v r e c ic r t a t i s s o F n R D PD ist ^_ ric C W P O t T o a t a h o & r u t c e w n e e r S r t n l y b s C O s o o B I d u o i n u e t s n ie d s ary G UP le PE n R c DO o R e RA n Y RD DR XOF DEARDORFF R SA D W YER I N RD DEP R EN E D S E E N R C V E O R IR D RD SCHLINKMAN WY N RA R ILR a OA i D l F L B A R T L R U D o E a M d OU F NT la AI t N RD Wes S t IL V P ER o M i O n UN t T A F IN P R B D O D SSE RD 06N 06Y WONDER WY 06N M 40 I 06 T N C 41 HELL 0 M 6N03 I Y LL RD 06 0 0 N 6 6 2 N N 1 0 2 4 5 n ^_ 06N44 Amador County PO RIDGE RD NDEROSA WY SIMPSON RD TOP DOLLAR RD 06N50 AIRSTRIP 05N96Y BIG BAR RD IAN CT ·|}þ 26 PRUSSIAN HILL RD TO NE TL 06N46 Pardee Re · s |}þ 4 er 9 voir W CENTE ^_ R ST n M HW o Y k 26 elumne Hill PARAM AE RD DOE RD MASON RD 05 N50 SUMMIT LEVEL R 05 D N40 BE M AL R o ANC C k H E RD N e T l RA · u |}þ 2 L H m I 6 LL R n D N e EILSO N H RD ill HA LL F A L S O D P R M S B D A O R U D T ·|}þ H I R D S I P R V O E R R T R HI A L N L C RD H RD San VIC T A O HA R n W Y V d L E N R R r D ea S s AD M F IE A L R P N AN D ATHA LN n P D O O ND S E T ROSA E WY R RD W H P ISKE O Y S N LID D E E RD RO W S E S A T S W O T Y R W Y M O R D U EN R R R D D RAY CREEK R J D ESUS MA B R A IA K E R R D RILEY WY EAS n T MU A R V R E M N A U Y E o C A R u E n EK t a R W D i n OL D R CE S D E S R A a M A R n I I n U W L G R Y N c R O A R A h n D D N F T L A TL T RD LAKE O S L ID T L E I S V D E R R O D B A A K N L N N ER M R n D ILLER R ANCH O RD AK G L O N LD MOUNTAINR D SWISS RANCH RD CUN H A U N R B I M N B S A T G R R H O D M N A R G O K D M R R I R D N R K IN D R G G D LORY 0 5 R N D 35Y 05N56 05 05 N N78Y 49Y 05N91 0 Y 5N49 n n ^_ 49 Alpine County LORINDA LN 04N36 Foothil N l e F w P H D oga ·|}þ n 1 R 2 ese H W r Y v 12 oir H WY 49 P S OO a L ST n A ^_ TIO N n R A D L n E P O S O d N P a E A r S R n nT e D H W A a R Y 4 D 9 n s d F r P ea D s M C IL E LS AV MEN C T A P LA L V A E N R T M I T R U A D R S R R AY D DALE LN MOUN R O T O L A C D IN K G Y R U R L A D C N H C R H D RD MICHEL RD FRECCER A O R l D tav PO A N i L D S l A E A M l R e N O O G A S R A - S A D N M T W O T N O Y H e N I E L l L R o R D D n HI e DD s E N F V C A A P L V L E D E C Y IT R Y D RD Murp ES h M y E F R R s I E C 0 O L T F D C A I P T R Y D D R 0 D .5 SHEEP RANC 1 H M A R I D N n ST Sheep 2 F R O a L n E F N U c S D L C h O L O E R N T F T R R D R D D 3 Eb N b HW e Y t 4 ts P A 4 V a E s RY s S H F EE P P R D AN 04 H C N H W 5 4 R Y M 0 D « 4 i ·|}þ le 4 s VALLEY VIE W M DR ORR 04N IS 50 RD n n n ^_ ^_ ^_ ^_ ^_ ^_ ^_ ^_ ^_ CALAVERAS LAFCO COUNTYWIDE FIRE MUNICIPAL SERVICE REVIEW Accountability and Governance 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 MSR process and information disclosure. The principal act orders that the board of directors of a fire protection district must have an odd number of members, with a minimum of three and a maximum of 11 members. Directors may be appointed or elected.29 CCFRPD is governed by a five-member board of directors elected at large to staggered four-year terms. Three of the current members were elected and two appointed. The District anticipates a vacancy in the near future as one of the board members is about to retire. Current board member names, positions, and term expiration dates are shown in Figure 5-2. The Board meets on the second Thursday of every month at 6:30 in the afternoon at the District’s fire station on Jesus Maria Road. Board meeting agendas are posted at the two post offices in the District, at all five CCFRPD fire stations, and on the district website. Minutes are published in a newspaper and on the website. Figure 5-2: Central Calaveras Fire and Rescue Protection District Governing Body Central Calaveras FRPD District Contact Information Contact: Fire Chief, Jeff Stone Address: 19927 Jesus Maria Rd, Mokelumne Hill, CA 95245 Telephone: (209)754-4330 Email/website: ccrfpd@centralcalaverasfire.org Board of Directors Member Name Position Term Expiration Manner of Selection Length of Term Carl Mills President December 2015 Appointed 4 years John Valentine Vice-President December 2013 Appointed 4 years Donald Overacker Secretary December 2013 Appointed 4 year Donald Leach Treasurer December 2015 Appointed 4 years Todd Barr Director December 2013 Appointed 4 years Meetings Date: Second Thursday of every month at 6:30pm. Location: Meetings are held at Station on Jesus Maria. Agenda Distribution: Posted at two post offices, all five fire stations and on the website. Minutes Distribution: Published on website and in a newspaper. 29 Health and Safety Code §13842. CCFRPD ]É{Ç UxÇÉ|à 9 cÉÄ|vç VÉÇáâÄà|Çz TááÉv|tàxá? __V 78 CALAVERAS LAFCO COUNTYWIDE FIRE MUNICIPAL SERVICE REVIEW In addition to the required agendas and minutes, the District tries to reach its constituents through its website and the firefighter association. CCFRPD teaches first aid and CPR classes, participates in community events, and enters one of its pieces of equipment into the local car show every year. If a customer is dissatisfied with the District’s services, complaints may be submitted to the Board of Directors at board meetings. The District’s fire chief is responsible for handling complaints and giving a complainant contact information for the Board of Directors. The District reported that there were no complaints in 2011. CCFRPD demonstrated partial accountability in its disclosure of information and cooperation with Calaveras LAFCO. The District responded to the initial questionnaires and cooperated with interview and document requests; however, follow-up questions and profile review required multiple follow-up attempts. Some of the requested information has not been provided and is not included in this report. Planning and Management Practices 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’s mission statement states: The CCFRPD is dedicated to the protection of life, health, property and the environment by delivering quality life and fire safety services. Daily operations of the District are managed by the chief with the support of the administrative assistant. Staff includes three full-time paid firefighters, one full-time administrative assistant, one part-time paid fire chief, and 17 volunteer firefighters. Three of the 17 volunteers are volunteer residents, which means they work the same schedule as paid firefighters and receive a monthly stipend. The remaining volunteers get an annual stipend based on a point system. Besides being responsible for the day-to-day operations of the District, the chief supervises employees and assigns operational and administrative tasks. The Board also assigns administrative tasks that support board responsibilities and actions. The chief is responsible and accountable to the Board for managing district operational and administrative activities and processes, except for those specifically managed by the Board. To ensure effective district operations, the fire chief may assign these responsibilities to fire officers, firefighters, and administrative support, but retains accountability for those responsibilities. The chief evaluates his paid subordinates annually; the chief is evaluated by the Board. Volunteers are not evaluated. CCFRPD reported that it did not perform formal evaluations of overall district performance, such as benchmarking or annual reports. The District tracks its paid employees’ workload through timesheets submitted for every pay period. Staff also uses a daily log system where they log tasks they perform during the day, including maintenance. CCFRPD ]É{Ç UxÇÉ|à 9 cÉÄ|vç VÉÇáâÄà|Çz TááÉv|tàxá? __V 79 CALAVERAS LAFCO COUNTYWIDE FIRE MUNICIPAL SERVICE REVIEW Equipment is checked weekly at each station. CCFRPD uses a point system for volunteers; points are issued every time they go on calls or participate in training. The District reported that its online records management system allows for a more efficient and quick means to identify any maintenance or staffing needs. The District’s financial planning efforts include an annually adopted budget and annually audited financial statements. CCFRPD does not adopt a capital improvement plan (CIP), but adopts an apparatus replacement plan. At the beginning of 2012, the apparatus committee reviewed the plan and concluded that there were no short-term needs. The District also adopts a strategic plan. The latest plan was adopted in 2005 and is currently being updated. In addition, CCFRPD lists its strategic goals on its website. Existing Demand and Growth Projections This section discusses the factors affecting service demand, such as land uses, and historical and anticipated population growth. Land Use Land uses within the District consist of general agriculture, agricultural preserve, residential agriculture, timber production, and residential. The District’s bounds encompass approximately 115.5 square miles. Population There are approximately 2,743 residents within the District, based on census place and block group population in the 2010 Census.30 The population density within the District is 18 people per square mile. Existing Demand The District reported that it did not have peak demand periods or seasons. Calls for medical emergencies are consistently high in volume throughout the year, similar to other fire service providers in the region. Figure 5-3: CCFRPD Number of Calls by Year, 2007-2011 The District reported that it 500 had observed a decrease in 450 service demand in the last few 400 years. As shown in Figure 5-3, the 350 number of calls has dropped over 300 the last five years. The District’s 250 opinion is that the decrease may 200 be due to fewer medical 150 emergency calls as people prefer 100 to avoid costs associated with 50 0 2007 2008 2009 2010 2011 30 Census Block Group 6 in Census Tract 4 and Census Places Rail Road Flat and Mountain Ranch in Calaveras County. CCFRPD ]É{Ç UxÇÉ|à 9 cÉÄ|vç VÉÇáâÄà|Çz TááÉv|tàxá? __V 80 CALAVERAS LAFCO COUNTYWIDE FIRE MUNICIPAL SERVICE REVIEW emergency services by driving themselves to the hospital. Projected Growth and Development CCFRPD anticipates minimal growth in population and similarly in service demand within the District in the next few years. However, no formal population projections have been made by CCFRPD. There are no planned developments within the District. According to CCFRPD, there are no areas where development may occur in the future within the district boundaries. The only anticipated growth may come from annexations; however, the area in question (Sheep Ranch) is already being served through an agreement with the County. The District reported that it has sufficient capacity to serve anticipated future growth. CCFRPD did not identify any areas within its future growth area to which it would be difficult to provide an adequate level of service. The State Department of Finance (DOF) projects that the population of Calaveras County will grow by eight percent in the next 10 years. Thus, the average annual population growth in the County is anticipated to be approximately 0.8 percent. Based on these projections, the District’s population would increase from 2,743 in 2010 to approximately 2,962 in 2020. It is anticipated that demand for service within the District will increase minimally based on the DOF population growth projections through 2020. Growth Strategies The District is not a land use authority, and does not hold primary responsibility for implementing growth strategies. The land use authority for unincorporated areas is the County. The County’s General Plan is presently being updated. Some of the fire districts reported that the County sought input from them on General Plan update. The District reported that it contributed to the County General Plan update. Given the lack of anticipated growth in the area, the District has not found it necessary to put into place strategies to address growth induced service needs. With regard to possible governance structure alternatives, the District may annex the Sheep Ranch territory which it presently provides services; however, the District expressed concerns that if it were to annex the area, the District’s revenue may change. On the other hand, currently, residents of Sheep Ranch, Swiss Ranch and Freccero Road areas pay for fire services, but do not participate in any decision making related to those services. Another governance option is consolidation with West Point FPD and Mokelumne Hill FPD. The districts have had informal discussions; all parties are reportedly interested in enhancing sharing and collaboration through shared resources and joint training. Financing The financial ability of agencies to provide services is affected by available financing sources and financing constraints. This section discusses the major financing constraints faced by the District and identifies the revenue sources currently available to the District. The District reports that current financing levels are inadequate and unsustainable to deliver services. The economic recession caused revenue levels to decrease, due to CCFRPD ]É{Ç UxÇÉ|à 9 cÉÄ|vç VÉÇáâÄà|Çz TááÉv|tàxá? __V 81 CALAVERAS LAFCO COUNTYWIDE FIRE MUNICIPAL SERVICE REVIEW declining property tax revenue. According to CCFRPD, unless there is an improvement in property tax revenue, the District will be struggling to maintain three paid firefighters. The District has already cut some personnel and training hours, postponed replacement of equipment, and switched utility providers. In an attempt to improve its financial situation CCFRPD applies for grants. The District has recently applied for two Federal Emergency Management Agency (FEMA) Assistance to Firefighters grants. The first grant, in the amount of $90,000, is for structural firefighting personal protective equipment, such as turnout pants, coats, helmets, boots, etc. If received, this money would purchase 30 sets of turnouts compliant with the latest National Fire Protection Association (NFPA) standards. The second grant was for the purchase of a Type 2 engine to replace engines 122 and E125. The amount requested was $350,000, with matching fund requirement of $17,000. As of the drafting of this report, it is unknown whether the District was approved for either grant. The District’s total revenue for FY 10-11 was $661,383. Revenue sources included property tax revenue (20 percent), special tax (27 percent), a portion of property taxes for services to Sheep Ranch (20 percent), sale of surplus property (26 percent), strike team state reimbursement (three percent), federal grant (two percent), interest (one percent) and other revenue (one percent). CCFRPD collects $65 parcel tax from its district residents passed in 2008. The special tax, which has no expiration date, brings in about $179,000 per year. The District is reimbursed by the County for providing fire protection and rescue services to Sheep Ranch, Swiss Ranch, and Freccero Road. The District receives a flat share of property taxes collected from these areas. In FY 10-11, the amount collected was $134,150. District duty on a Strike Team or Task Force is compensated by the Department of Forestry and Fire at predetermined rates depending on the rank of the firefighter and the type of the equipment. CCFRPD’s expenditures were $739,816 in FY 10-11. Of this amount, 42 percent was spent on personnel costs, 37 percent on capital purchases, two percent on each of safety clothing, insurance, workers compensation insurance, auto maintenance, special department, fuel and oil costs, and utilities, and one percent on building maintenance. Other minor expenses included uniform replacement, communications, food, household, equipment maintenance, medical-dental lab, employment physicals, membership dues, office expenses, postage, professional services, bank charges, training, mileage, travel, miscellaneous, LAFCO fees, equipment purchases, and interest. Capital purchases in FY 10- 11 included new model 34, type 2 fire engine, and the purchase and installation of a modular building used for offices and crew quarters. The District does not have a capital improvement plan, but has an apparatus improvement plan. The plan was last reviewed by the apparatus committee at the beginning of 2012. There are currently no apparatus improvement needs, since a lot of updates have been completed in the last two years. Other capital improvement needs are usually brought up at board meetings. When needs are identified, the Board appoints a committee to resolve the issues. CCFRPD ]É{Ç UxÇÉ|à 9 cÉÄ|vç VÉÇáâÄà|Çz TááÉv|tàxá? __V 82 CALAVERAS LAFCO COUNTYWIDE FIRE MUNICIPAL SERVICE REVIEW The District’s long-term debt is represented by a lease agreement for $297,743 for a new fire truck with an option to purchase. Rental payments, including interest at 4.55 percent, are due on August 20th of each year. At the end of FY 10-11, the balance was $257,743.31 The District has a management practice to keep a financial reserve. Historically, the reserve was designated for specific needs, such as apparatus replacements. Currently, however, the reserve is kept for emergency purposes. At the end of FY 10-11, the District had $34,240 in its reserve fund. The District participates in a joint venture under a joint powers agreement (JPA) for workers compensation insurance. 31 CCFRPD, Audited Financial Statements, FY 10-11, p. 15. CCFRPD ]É{Ç UxÇÉ|à 9 cÉÄ|vç VÉÇáâÄà|Çz TááÉv|tàxá? __V 83 CAALAVERAS LAAFCO COUNTYYWIDE FIRE MUNICIPAL SERVICE REVIEW FIRRE AND EMS SEERVICESS Servicce Overvview A dettailed descrription of thhe fire relatted servicess provided by the Disttrict is showwn in Figure 5-4. Figure 5-4: CCFRPD Service Matrrix CCalaveraas Countyy Fire Seervices MMatrix SService Providded ? Strructural firee protectionn Yess Wildland fire protection Yess Veehicle fire protection Yess Laadder truck capabilitiess Noo Emmergency mmedical servvices Yess Baasic life suppport Yess Addvanced lifee support Noo Addvanced lifee support transport Noo Haazardous mmaterials emergency ressponse Yess Firre preventioon Yess Firre safety edducation Yess Firrst respondder swift waater and loww angle ropee rescue Yess Puublic servicee assists Yess Oxxygen fillingg for breathing apparattuses Yess Heelicopter faccilities Yess Jawws of Life toools Yess Reesponse to bboating acciidents Noo Water rescuee Yess Divve and ice rrescue Yess Firre investigaation Yess Hoome inspecttions Yess CCFRRPD providees structuree, wildland aand vehiclee fire suppreession functtions along with emergenncy medical response.. The Distrrict also reesponds to vehicle acccidents, sppecial rescues, hazardous materials inncidents, puublic service assists, annd providess fire prevenntion educatioon. The District provides servvices withinn the areass of Sheep Ranch, Swwiss Ranch,, and Frecceroo Road undder an agreeement withh Calaveras County. WWithin thesee areas, CCFFRPD agreed tto provide emergencyy, such as fire and EEMS/first rresponder services, and a minimumm of one sstructure/wwildland enggine or resscue vehiclee to responnd to inciddents. Under thhe agreemeent, the Sheep Ranch fiire station bbecame thee responsibility of CCFFRPD, along wiith all the mmaintenancee and costs pertaining tto the physsical structuure and grouunds. CCFRPD ]É{Ç UUxÇÉ|à 9 cÉÄ|vvçç VÉÇáâÄà|Çz TTááÉv|tàxá? ____V 84 CALAVERAS LAFCO COUNTYWIDE FIRE MUNICIPAL SERVICE REVIEW Ownership of five vehicles was also transferred from Calaveras County Fire Department to the District. Collaboration The District has automatic aid agreements with West Point FPD, Mokelumne Hill FPD, San Andreas FPD, Murphys FPD, and Ebbetts Pass FPD. Whether CCFRPD responds through automatic aid in a specific area depends on dispatch. The District usually responds on SR 26 under automatic agreement with West Point FPD and Mokelumne Hill FPD, in southern areas off Mountain Road with San Andreas FPD, and Sheep Ranch—with Murphys FPD and Ebbetts Pass FPD. Murphys FPD and Ebbetts Pass FPD occasionally respond into Sheep Ranch. CCFRPD is a member of the Calaveras County Fire Chief’s Association, California Fire Chief’s Association and California Special District Association for workers compensation insurance. Dispatch and communications The District's emergency dispatch and communication needs are served through a Calaveras County contract with the California Department of Forestry and Fire Protection's (CalFire) Emergency Command Center (ECC) in San Andreas. There is currently no fee charged to local government fire protection agencies by Calaveras County. Dispatching is handled through joint use of the command frequency assigned to the Tuolumne-Calaveras Unit. The CalFire, Office of Emergency Services and County assigned tactical frequencies are also available for local use. The Calaveras County Sheriff's Office serves as the Primary Public Safety Answering Point where all landline calls within the County are originally directed. Fire incidents are directed to the ECC. Off-duty paid personnel and volunteers are alerted by "pager." Staffing CCFRPD has 21 sworn personnel—one part-time fire chief, three full-time paid firefighters, and 17 volunteers. The three volunteer firefighters receive a monthly stipend for working full time, and the rest of the volunteers receive an annual stipend based on points earned. The median age of the firefighters is 40, with a range from 20 to 76. CCFRPD’s volunteer recruitment efforts are ongoing. The District tries to recruit more volunteers through its website and posted signs. According to the California State Fire Marshal, all paid, volunteer and call firefighters must acquire Firefighter I certification; however, there is no time limit as to how long they may work before attaining certification. Firefighter I certification requires completion of the 259-hour Firefighter I course, which includes training on various fireground tasks, rescue operations, fire prevention and investigation techniques, and inspection and maintenance of equipment. In addition to this course, Firefighter I certification also requires that the applicant have a minimum of six months of volunteer or call experience in CCFRPD ]É{Ç UxÇÉ|à 9 cÉÄ|vç VÉÇáâÄà|Çz TááÉv|tàxá? __V 85 CALAVERAS LAFCO COUNTYWIDE FIRE MUNICIPAL SERVICE REVIEW a California fire department as a firefighter performing suppression duties.32 CCFRPD has five Firefighter I and five EMT certified personnel. The remainder are trained volunteer firefighters and first responders. The District’s volunteers spend at least 60 hours annually in training; paid firefighters spend in excess of 150 training hours annually. Trainings occur at 6:30 PM every second and fourth Tuesday of each month at Station 1. Facilities and Capacity CCFRPD owns and operates five fire stations. The main station, Station 1, is located on Jesus Maria Road. Apparatus Bay in Station 1 was built in 1999 and reported to be in good condition. Crew quarters were constructed in 2011 and similarly reported to be in good condition. For the rest of the stations acquisition and construction dates were reported to be unknown. Station 2 located on Swiss Ranch Road and Station 5 on Sheep Ranch Road in Sheep Ranch are in fair condition. Station 3 on Washington Street in Mountain Ranch and Station 4 on SR 26 in Glencoe were said to be in poor condition. Number and types of vehicles housed in each fire station were not provided by CCFRPD. All stations, except for Station 1, are staffed exclusively by volunteers. The District’s water reserves are represented by fire hydrants throughout the District maintained by CCWD, CPUD and private water sources. Currently, the District facilities appear to have marginally sufficient capacity to provide adequate services within its boundary area and service area. Although all stations within the District are in working state, four out of five stations are in poor or fair condition. The District’s 90th percentile response time does not meet Mountain Valley Emergency Medical Services Agency standards for response to medical emergencies. Infrastructure Needs As was mentioned already in the Planning and Management, and Financing sections of this chapter, the District has an apparatus replacement plan. CCFRPD reported that it did not have any imminent apparatus needs, since a lot of updates had taken place in the last two years. The District purchased two fire engines and replaced three others. Last year, the District put up a new modular building at the Jesus Maria station that now contains administrative and sleeping quarters. No other major improvements are planned at this time. However, according to the District, all stations have unmet maintenance needs. The District currently has no plans to construct additional facilities. Challenges The District’s service area is very rural. CCFRPD reports that while a lot of areas are challenging to get to, there are no particular roads that are more challenging than others. Some forest roads were reported to be extremely hard to reach. 32 State Fire Marshal, Course Information and Required Materials, 2007, p. 44 CCFRPD ]É{Ç UxÇÉ|à 9 cÉÄ|vç VÉÇáâÄà|Çz TááÉv|tàxá? __V 86 CALAVERAS LAFCO COUNTYWIDE FIRE MUNICIPAL SERVICE REVIEW Another major challenge is the economic situation, which has caused a decrease in property tax revenue for the District. Service Adequacy While there are several benchmarks that may define the level of fire service provided by an agency, indicators of service adequacy discussed here include ISO ratings, response times, and level of staffing and station resources for the service area. Fire services in the communities are classified by the Insurance Service Office (ISO), an advisory organization. This classification indicates the general adequacy of coverage, with classes ranking from 1 to 10. Communities with the best fire department facilities, systems for water distribution, fire alarms and communications, and equipment and personnel receive a rating of 1. CCFRPD has an ISO rating of 8b. The District was last evaluated in 2001. The National Fire Protection Association (NFPA) has issued a performance standard for volunteer and combination fire departments (NFPA 1720). This standard, among other guidelines, identifies target response time performance for structure fires. The response time is measured from the completion of the dispatch notification to the arrival time of the first-responder at the scene. Though not a legal mandate, NFPA 1720 does provide a useful benchmark against which to measure fire department performance. NFPA 1720 recommends that the response times for structure fire be nine minutes in urban demand zones at least 90 percent of the time, 10 minutes in suburban zones at least 80 percent of the time and 14 minutes in rural zones at least 80 percent of the time. Response times in remote zones are directly dependent on travel distances.33 All fire service providers in Calaveras County, except for the City of Angels Camp Fire Department, fall within the definition of a rural demand zone. The City of Angels Camp FD is an urban demand zone. Emergency response time standards vary by level of urbanization of an area: the more urban an area, the faster a response should be. Calaveras County is not broken down into wilderness, rural and urban designations for response time standards like other counties. Instead, Mountain Valley Emergency Medical Services Agency has divided Calaveras County into three zones for EMS and ambulance services. The northern and southern zones are served by American Legion and the eastern zone (which is the same as the Ebbetts Pass FPD boundary area) is served by Ebbetts Pass FPD. In the northern and southern zones the response time guideline is 20 minutes 90 percent of the time, and 13 minutes 90 percent of the time in the eastern zone. These standards are intended for the ambulance contract providers; however, they indicate what is considered appropriate response times for medical emergencies. CCFRPD tracks its response times for each incident. It takes the District different amounts of time to respond from each of its five fire stations: an average of 24.25 minutes from Sheep Ranch station, 12.60 minutes from Swiss Ranch, 19.92 minutes from Mountain Ranch station, 18.69 from Glencoe/Rail Road Flat station, and 12.30 minutes from Jesus 33 Urban demand zone has population density of more than 1,000 people per square mile; suburban zone—between 500 and 1,000 people per square mile, rural zone—less than 500 people per square mile, and remote zone is identified by eight or more miles of travel distance to an incident. CCFRPD ]É{Ç UxÇÉ|à 9 cÉÄ|vç VÉÇáâÄà|Çz TááÉv|tàxá? __V 87 CALAVERAS LAFCO COUNTYWIDE FIRE MUNICIPAL SERVICE REVIEW Maria station. For mutual aid calls, the average response time was reported to be 51.71 minutes. It was also reported that the District’s overall average response time to all areas within its boundaries in 2011 was 18.36 minutes. The District reportedly responded within 25 minutes 90 percent of the time to incidents within its bounds. CalFire also tracks response times for each of CCFRPD’s incidents. It should be noted that CalFire’s methodology for tracking response times differs from that of the districts. While the districts generally start timing from the time the engines leave the facility, CalFire starts timing after checking back in with the responder after dispatch, which is often when the District is already en route to the scene. Consequently, response times reported by CalFire for each incident tend to be shorter than those recorded by each district. It was reported by CalFire that in 2011 CCFRPD’s average response time was 11.8 minutes and the 90th percentile response time was 24 minutes. The District’s 90th percentile response time does not meet Mountain Valley Emergency Medical Services Agency standards for response to medical emergencies. Another area that CCFRPD could improve upon is being aware of its average, median and 90th percentile response times and collaborating with CalFire on data exchange, which would allow for more structured response and enhanced efficiency and consistency. The service area size34 for each fire station varies between fire districts. The median fire station in Calaveras County serves approximately 34 square miles. Although EPFPD serves the most expansive area (195 square miles), AMFPD stations serve larger area per station, with 77.5 square miles served per station on average. Densely populated areas tend to have smaller service areas. For example, the average service area for the City of Angels Camp Fire Department’s fire station is 1.75 square miles. By comparison, each fire station in CCFRPD serves approximately 23 square miles. The number of firefighters serving within a particular jurisdiction is another indicator of level of service; however, it is approximate. The providers’ call firefighters may have differing availability and reliability. A district with more firefighters could have fewer resources if scheduling availability is restricted. Staffing levels in Calaveras County vary from 3.2 sworn firefighters per 1,000 residents in JLFPD’s service area to 13 in MHFPD. By comparison, CCFRPD has approximately eight firefighters per 1,000 residents. 34 Service area refers to the area that the agency will respond to, based on a first responder map used by the Sherriff’s office. CCFRPD ]É{Ç UxÇÉ|à 9 cÉÄ|vç VÉÇáâÄà|Çz TááÉv|tàxá? __V 88 CALAVERAS LAFCO COUNTYWIDE FIRE MUNICIPAL SERVICE REVIEW Figure 5-5: CCFRPD Fire Service Profile Fire Service Facilities Firestation Location Condition Staff per Shift Vehicles Station 1 19927 Jesus Maria Road, Good Staffed 24 hours a day by a NP Mokelumne Hill, CA paid firefighter Station 2 6338 Swiss Ranch Road, Fair Unstaffed NP Mountain Ranch, CA Station 3 80 41 Washington Street, Poor Unstaffed NP Mountain Ranch, CA Station 4 15815 Highway 26, Poor Unstaffed NP Glencoe, CA Station 5 11309 Sheep Ranch Road, Fair Unstaffed NP Sheep Ranch, CA Facility Sharing Current Practices: The District has automatic aid agreements with West Point FPD, Mokelumne Hill FPD, San Andreas FPD, Murphys FPD, and Ebbetts Pass FPD. Future opportunities: Station 4 in Glencoe is in a good location for sharing with Mokelumne Hill FPD and West Point FPD; some joint training sessions have already been held there. However there is limited parking and facilities are in need of maintenance. Infrastructure Needs and Deficiencies All fire stations have unmet maintenance needs. District Resource Statistics Service Configuration Service Demand Staffing Base Year 2012 Configuration Base Year 2011 Statistical Base Year 2011 Fire Stations in District 5 Fire Suppression Direct Total Service Calls 323 Stations Serving District 5 EMS Direct % EMS 69% Sq. Miles Served per Station1 23 Ambulance Transport American Legion % Fire/Hazardous Materials 13% Total Staff2 22 Hazardous Materials Direct % False 1% Total Full-time Firefighters 3Air Rescue/Ambulance Helicopter Private % Misc. emergency 12% Total Call Firefighters 18Fire Suppression Helicopter CalFire % Non-emergency 5% Total Sworn Staff per Station3 4Public Safety Answering Point Sheriff % Mutual Aid Calls 8% Total Sworn Staff per 1,000 8Fire/EMS Dispatch CalFire Calls per 1,000 people 215 Service Adequacy Service Challenges Response Time Base Year 2011 Rural roads and decrease in tax revenue are challenged identified by CCFRPD. Average Response Time (min) 11.8 Training 90th Percentile Response Time (min) 24 Volunteers train at least 60 hours annually; paid firefighters spend in excess of ISO Rating 8b (2001) 150 hours annually in training. Mutual & Automatic Aid Agreements The District has automatic aid agreements with West Point FPD, Mokelumne Hill FPD, San Andreas FPD, Murphys FPD, and Ebbetts Pass FPD. Notes: 1) Primary service area (square miles) per station. 2) Total staff includes sworn and non-sworn personnel. 3) Based on ratio of sworn full-time and call staff to the number of stations. Actual staffing levels of each station vary. CCFRPD ]É{Ç UxÇÉ|à 9 cÉÄ|vç VÉÇáâÄà|Çz TááÉv|tàxá? __V 89 CAALAVERAS LAAFCO COUNTYYWIDE FIRE MUNICIPAL SERVICE REVIEW CEENTRAL CALAVEERAS FIRE AND RESCUE PROTECTION DISTRICT Growtth and PPopulatiion Projjectionss  Central Calaveras Fire and Rescuee Protectionn District ((CCFRPD) ccurrently haas an estimated poopulation off 2,743.  OOver the lastt few years tthe District has experieenced a decrrease in serrvice demannd.  NNo or slow rresidential ggrowth is exxpected withhin the Disttrict. CCFRPPD reportedd that thhere were nno planned or proposeed developmments withiin its bounddaries. The only growth is exppected to coome from poossible annexations. The Location and Chharacterristics oof Disadvantageed Unincorporatted Commmunitiees Within or Coontiguous to thhe Agenccy’s SOI  BBased on 22010 Censuus income informatioon for Cennsus Designnated Placees in Calaveras Coounty, the Rail Road FFlat Censuss Designateed Place meeets the inccome definition of a disadvanttaged uninccorporated ccommunityy. The commmunity is loccated wwithin and aadjacent to CCCFRPD’s bounds, and is entirely wwithin the DDistrict’s spphere of influence. The area is receivinng fire and EMS servicces at the same level aas all other areas iin the Countty by CCFRPPD through a contract wwith the Couunty. Present and PPlannedd Capaciity of Puublic Faacilities and Adequuacy of Public SServicess, Includding Inffrastruccture Needss and Deeficiencies  TThe District’’s existing ffacilities doo not have capacity too adequatelly serve currrent demand andd possible fuuture growwth. Four of the five staations are iin fair and poor coondition annd require multiple uppgrades. Thhe District’s 90th perccentile respponse tiime does noot meet Mouuntain Valleey Emergenncy Medical Services Aggency standdards foor responsee to medical emergenciees.  Innfrastructurre needs innclude defeerred mainttenance at each of thhe District’ss fire sttations.  AApparatus rreplacementt needs aree identifiedd in the apparatus repplacement plan. OOther capitaal improvemments are planned for at board meetings as needed.. The DDistrict shouuld considerr adopting aa capital immprovementt plan to ideentify long--term fiinancing neeeds and souurces for theese needs.  AAn area that CCFRPD coould improvve upon is bbeing awaree of its averaage, mediann and 90th percenttile responsse times annd collaboraating with CalFire on data exchaange, wwhich wouldd allow forr more structured response andd enhancedd efficiencyy and coonsistency. CCFRPD ]É{Ç UUxÇÉ|à 9 cÉÄ|vvçç VÉÇáâÄà|Çz TTááÉv|tàxá? ____V 90 CALAVERAS LAFCO COUNTYWIDE FIRE MUNICIPAL SERVICE REVIEW  CCFRPD services appear to be marginally adequate. The District has higher response times than Mountain Valley Emergency Medical Services Agency standards. The District’s ISO is high compared to urban service providers, but similar to rural providers and those in the County.  Each fire station in CCFRPD serves approximately 30.8 square miles, compared to a median fire station in Calaveras County of 34 square miles. CCFRPD has approximately eight firefighters per 1,000 residents. By comparison, staffing levels in Calaveras County vary from 3.2 sworn firefighters per 1,000 residents in JLFPD’s service area to 13 in MHFPD. CCFRPD appears to have sufficient number of sworn personnel. Financial Ability of Agencies to Provide Services  The District reports that current financing levels are inadequate and unsustainable to deliver services.  The current economic conditions and rising supply prices were identified as the primary financing constraints for the District.  CCFRPD has tried to remedy the lack of financing by cutting paid personnel and switching to cheaper utility providers.  The District receives a flat share of property taxes collected from Sheep Ranch, Swiss Ranch and Freccero Road for providing services to these areas under an agreement with Calaveras County.  The District’s long-term debt is represented by a lease agreement for a new fire truck with an option to purchase. At the end of FY 10-11, the balance was $257,743. Status of, and Opportunities for, Shared Facilities  CCFRPD collaborates with San Andreas FPD, West Point FPD, Mokelumne Hill FPD, Murphys FPD, and Ebbetts Pass FPD through automatic and mutual aid agreements. CCFRPD is a member of the Calaveras County Fire Chief’s Association, California Fire Chief’s Association and California Special District Association.  The District currently does not share its facilities with other agencies.  CCFRPD reported that Station 4 would be well suited for sharing with Mokelumne Hill FPD and West Point FPD for training purposes; however, there is limited parking and the facilities are in need of maintenance. Accountability for Community Service Needs, Including Governmental Structure and Operational Efficiencies  CCFRPD demonstrated partial accountability in its disclosure of information and cooperation with Calaveras LAFCO. The District responded to the initial questionnaires and cooperated with interview and document requests; however, follow-up questions and profile review required multiple follow-up attempts. Some CCFRPD ]É{Ç UxÇÉ|à 9 cÉÄ|vç VÉÇáâÄà|Çz TááÉv|tàxá? __V 91 CALAVERAS LAFCO COUNTYWIDE FIRE MUNICIPAL SERVICE REVIEW of the requested information has not been provided and is not included in this report.  CCFRPD practices extensive outreach efforts, including a website where district information is made available.  Governance structure options include annexation of Sheep Ranch, Swiss Ranch and Freccero Road areas, and consolidation with Mokelumne Hill and West Point FPDs. No actions have been undertaken to date in regards to either option. CCFRPD ]É{Ç UxÇÉ|à 9 cÉÄ|vç VÉÇáâÄà|Çz TááÉv|tàxá? __V 92 CAALAVERAS LAAFCO COUNTYYWIDE FIRE MUNICIPAL SERVICE REVIEW 6.. COPPPERRO P OO L I S FF I R EE PROTEECT IO N DDI ST RR I CT Coppperopolis FFire Protection District (CFPD) provides structure fire protecction, wildlandd fire protecction, and emmergency mmedical respponse. AGENCYY OVERVVIEW Backgground CFPDD was originnally formed as an independent special distrrict in 1937 by the deccision of local ccitizens. The pprincipal acct that goveerns the District is the Fire Protecction Districct Law of 19987.35 The prinncipal act eempowers ffire districtts to providde fire prottection, resscue, emerggency medical, hazardouss material rresponse, ammbulance, aand any othher servicess relating too the protectioon of lives and propeerty.36 Districts must aapply and oobtain LAFFCO approvval to exercise services aauthorized bby the prinncipal act bbut not alrready proviided (i.e., laatent powers) by the district at the end of 2000..37 CFPDD is locatedd in the souuthwestern portion off Calaveras County and is adjacent to Jenny Lind FPD in tthe west, Fooothill FPD in the nortthwest, San Andreas FPD in the nnorth, and Altaaville-Melonnes FPD in thhe east. Addditionally, tthe Districtt abuts Tuollumne Counnty to the South of CFPD aand Stanislaus and San Joaquin Couunties to thee West. Boundarries CFPDD’s boundarry is entirely within Caalaveras Couunty. The ppresent bouunds encommpass approximmately 187 square milles and incllude the towwn of Coppperopolis annd several large subdivisions such as Copper Coove, Poker FFlat, and Sadddle Creek. Sincee the formaation of the District, thhere has been one bouundary channge. In 2000, an area preeviously prootected by AAMFPD wass annexed into CFPD aas part of Calaveras Coounty Fire Reorganizationn #2. Sphere oof Influence In 20005, during the SOI uppdates, LAFCCO elected to keep thee CFPD sphhere of influuence coterminnous with itts boundariees. Extra-territorial Seervices The DDistrict hass mutual aidd agreemennts with all ssurroundinng fire proviiders. CFPDD also responds to wildfirees outside oof its boundaaries and geets reimburrsed by the SState. 35 Health annd Safety Code §§13800-13970. 36 Health annd Safety Code §§13862. 37 Governmment Code §568224.10. CFPD ]É{Ç UUxÇÉ|à 9 cÉÄ|vvçç VÉÇáâÄà|Çz TTááÉv|tàxá? ____V 93 CALAVERAS LAFCO COUNTYWIDE FIRE MUNICIPAL SERVICE REVIEW Areas of Significance Two areas of significance were identified for CFPD—Murphys FPD and Altaville- Melones FPD. There is a possibility of CFPD reorganizing with one or both of these districts. The potential for reorganization is discussed in more detail in the Growth Strategies section of this chapter. CFPD ]É{Ç UxÇÉ|à 9 cÉÄ|vç VÉÇáâÄà|Çz TááÉv|tàxá? __V 94 ·|}þ Mountain Ranch 49 n ·|}þ Sheep Ranch 12 n n n n FRECCERO RD ·|}þ n 4 n n n n n n n n nnn n n n nn n Stanislaus County ytnuoC niuqaoJ naS San Andreas FPD Foothill FPD DAVIS DR n n C O D N H o t i o i s g h p n t h e p r - w r i D e c F r a i t s o i y F t r p s r e i F o r i c P i e l t r i r s F F e o C a F H i t a W c r P e P C e Y i c l D l 1 r o i a t 2 F t i o i a v o p e t c n e s p e i l r D i e c OSPITAL RD t a i i t r s e s i o t s o r C p i n c o S o tO s u D U SHELT ON RD l T i n H W i s W s A t PETTIN GER RD R O t y R R r E T C W P O H N i o a t c R R a h r u D D t t c e n e Jen e ny r L r t ind l F y O b P s C D L O o P o I B A C V L LN d E A u o R O i n u O R e C L t s n H L i J A e N d e RDs a n RD r M IL n T y ON y B Q A L U B R D E D A W S R L I I K I L N E E G i S S O EL E S T T n Y A L K N d S R C F O D X D L R P AN D F H O W R Y 2 D 6 PAC S H a N E E l O W t R H S D O p G F r A i N o n P g o Y V th al i le l G l y ANN F R RD e N P s e D e w r H v U H i N o o T H r O G R g AN D a D n AM R R D eservo RO S i A r L C T K HE S C IS P R E R R E I C E N A G K N S Y R O V D N A R L D LEY RD JAQUIM S A D a R n R A IATA n W Y dre CE a M PO E O s L N STAT IO T N F R D P P LA D NT R C D ALAV C H E W O R S Y S IT A T 4 A G P 9 A S P L R R A L D A I L O O V N R O A E O S W A C R l R K Y D D t Y Co p a R perop D o v lis O FPD L i D l GU l LC e H R - Al D ta M vi A ll l e ta - v M i e ll l e o - n M e e s C e l F on PD e O s FP l D W D ST o O O K C G n K T IC O T K O W e N N R s R D R F D D P R F O IC N P O D S T E M R D C A O I I T N S Y S A T W R Y D Ci S M t D A U A y R N E P R S D H B o M Y O M S Y E M f O R G L I N E R O N A F L A G R R D D O E E A E N n C R R D H R D D G g R D U R L E e C D H H l I R L s L D S R D I C X M a IL A m E IR R O P D A L R S M A R p H R O E A D M T E T I P S N F F S R u S E D H A R T W R N r Y Y C 4 p N R H H D R W h D Y 4 ys M ur F phys FPD PD PAINT RD WHITTLE RD HW Y 49 B MORGAN RD FILLY LN Copperopolis FPD CHUCKW U C A KB G OA O R N D D D R R HWY 4 New Melones Reservior TELEGRAPH RD POMMEL WY QUIVER ST CHEYENNE RD OBYR NES FERRY RD Alpine County Tul L l IT o TL c E h JO H R N e RD servior POKER FLAT RD « 0 0.5 1 2 3 4 5 Miles CALAVERAS LAFCO COUNTYWIDE FIRE MUNICIPAL SERVICE REVIEW Accountability and Governance 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 MSR process and information disclosure. The principal act orders that the board of directors of a fire protection district must have an odd number of members, with a minimum of three and a maximum of 11 members. Directors may be appointed or elected.38 CFPD is governed by a five-member board of directors elected at large to staggered four-year terms. Current board member names, and positions are shown in Figure 6-2. The Board meets on the second Thursday of every month at 6:30 in the evening at the District’s Station 1. Board meeting agendas are posted at Station 1, the post office and a bulletin board at the town center. Minutes are available at the following meeting and upon request. Figure 6-2: Copperopolis Fire Protection District Governing Body Copperopolis FPD District Contact Information Contact: Fire Chief, Steve Kovacs Address: P.O. Box 131, Copperopolis, CA 95228 Telephone: 209-785-2393 Email/website: cfpd1@caltel.com Board of Directors Member Name Position Term Expiration Manner of Selection Length of Term John Maness Chair 2015 Elected 4 years Steve Marks Secretary 2017 Elected 4 years Keith Andersen Director 2015 Appointed 2 years Jerry Andress Director 2017 Elected 4 years Ed Gouzenne Director 2015 Elected 4 years Meetings Date: Second Thursday of every month at 6:30PM. Location: Meetings are held at Station 1. Agenda Distribution: Posted at Station 1, post office and bulletin board. Minutes Distribution: Available upon request. In addition to the required agendas and minutes, the District tries to reach its constituents through fire prevention education activities, community events such as a chili cook off and monthly bingo, and a local online blog. 38 Health and Safety Code §13842. CFPD ]É{Ç UxÇÉ|à 9 cÉÄ|vç VÉÇáâÄà|Çz TááÉv|tàxá? __V 96 CALAVERAS LAFCO COUNTYWIDE FIRE MUNICIPAL SERVICE REVIEW If a customer is dissatisfied with the District’s services, complaints may be submitted to the chief or the Board of Directors. The chief is responsible for handling complaints to completion. CFPD reported that it had no complaints in 2011. CFPD demonstrated partial accountability in its disclosure of information and cooperation with Calaveras LAFCO. The District responded to the initial questionnaires and cooperated with interview and document requests; however, follow-up questions and profile review required multiple follow-up attempts. Planning and Management Practices 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. CFPD has six full-time paid employees—one chief, one fire captain, two engineers, and two paramedics. The District’s chief also serves as the fire chief for Murphys FPD. There are 22 volunteers who do not receive any compensation. In addition, the District has two interns who receive a daily stipend in exchange for a 72 hour shift. The chief is responsible for the day-to-day operations of the District. The Board of Directors oversees the chief, who supervises all other personnel. Employee work load is tracked through time sheets, a station log, and activity reports for each incident. The chief conducts annual employee evaluations of paid and volunteer staff. The chief is evaluated annually by the Board. CFPD reported that it did not perform district-wide evaluations of performance, such as annual reports or benchmarking with similar service providers. The District’s financial planning efforts include an annually adopted budget and annually audited financial statements. CFPD does not adopt a capital improvement plan (CIP); the District reviews its capital improvement needs annually during the budget process. CFPD is developing its Strategic Plan in 2013. Existing Demand and Growth Projections This section discusses the factors affecting service demand, such as land uses, and historical and anticipated population growth. Land Use Land uses within the District consist of general agriculture, residential agriculture, agriculture preserve, rural residential, residential, commercial, open space, and recreational. The District’s bounds encompass approximately 187 square miles. CFPD ]É{Ç UxÇÉ|à 9 cÉÄ|vç VÉÇáâÄà|Çz TááÉv|tàxá? __V 97 CALAVERAS LAFCO COUNTYWIDE FIRE MUNICIPAL SERVICE REVIEW Population There are approximately 4,627 residents within the District, based on census block group and census block population in the 2010 Census.39 The population density within the District is 25 people per square mile. Existing Demand The District reported that there was no time period that was statistically busier than others. Calls for medical emergencies are consistently high in volume throughout the year, similar to other fire districts in the region. Figure 6-3: CFPD Number of Calls by Year, 2007-2011 The District reported that it 490 had observed some change in 480 service demand in the last few 470 years. As shown in Figure 6-3, 460 the number of calls increased by 450 eight percent from 2007 to 2011. 440 Projected Growth and 430 Development 420 CFPD anticipates moderate 410 growth in population and 2007 2008 2009 2010 2011 similarly in service demand within the District in the next few years. However, no formal population projections have been made by the District. CFPD does not currently forecast its service needs, but is planning to do so in the future by the means of a master plan. The State Department of Finance (DOF) projects that the population of Calaveras County will grow by eight percent in the next 10 years. Thus, the average annual population growth in the County is anticipated to be approximately 0.8 percent. Based on these projections, the District’s population would increase from 4,627 in 2010 to approximately 4,997 in 2020. It is anticipated that demand for service within the District will increase minimally based on the DOF population growth projections through 2020. A Copperopolis Community Plan is in the midst of being developed. A Community Plan Advisory Committee has been established and they have begun brainstorming sessions. At present, there are over 4,300 planned or proposed units in the Copperopolis area, of which, about 1,800 permits are in pre-existing subdivisions. The larger potential development projects in and near the Copper Cove service area are Copper Valley Ranch (2,400 units), Sawmill Lake (800 units approved) and Oak Canyon Ranch (676 units). Should these developments come to fruition, significant population growth and increased demand for services would be anticipated. 39 Census Block Group 1 in Census Tract 1.20 and Census Blocks 2032, 2016, 2000, and 2020 in Census Tract 2.20 in Calaveras County. CFPD ]É{Ç UxÇÉ|à 9 cÉÄ|vç VÉÇáâÄà|Çz TááÉv|tàxá? __V 98 CALAVERAS LAFCO COUNTYWIDE FIRE MUNICIPAL SERVICE REVIEW The District reported that it hardly had sufficient capacity to serve current demand. Should growth occur, CFPD would need a higher staffing level and additional equipment to address the resulting increase in demand. The District will need to look at additional funding sources to ensure sustainable financing. Growth Strategies The District is not a land use authority, and does not hold primary responsibility for implementing growth strategies. The land use authority for unincorporated areas is the County. The County’s General Plan is presently being updated. Some of the fire districts reported that the County had sought input from them on the General Plan update. CFPD reported that it contributed to the County General Plan update. With regard to possible governance structure alternatives, CFPD is exploring the advantages and disadvantages of a cooperative agreement for shared services with Murphys FPD. There is the potential that AMFPD could be included in such a reorganization, given that it lies between CFPD and MFPD and already has a cooperative agreement with MFPD. However, several challenges to full consolidation have been identified by the districts, including a difference in pension benefit plans for paid staff (CFPD is a member of CalPers) and a desire to retain local control by board members and residents. CFPD and MFPD have discussed reconciling the difference in pension plans through a JPA, instead of a full consolidation. Financing The financial ability of agencies to provide services is affected by available financing sources and financing constraints. This section discusses the major financing constraints faced by the District and identifies the revenue sources currently available to the District. The District reported that its financing levels were not adequate to deliver services. Revenues have declined by about 35 percent in the last five years. CFPD has been forced to eliminate four firefighter and one office manager positions. It is likely that one more position will be cut within the next year. The District has applied for a grant to fund five additional positions. Because CFPD’s revenues consist primarily of property taxes, the decline in property values has had a negative effect on the District’s finances. The District’s revenue in FY 10-11 totaled $1,175,045, 96 percent of which was operating revenue and four percent was non-operating revenue. Operating revenue sources consisted primarily of property taxes (57 percent) and special taxes (41 percent). Minor sources of revenue were state homeowner’s property tax relief, reimbursements, charges for services, and other revenue. Non-operating revenue was derived from interest and other miscellaneous revenue sources. The District’s general operations are funded primarily by property taxes and two special taxes. Special taxes amount to $75 each per improved parcel (or a total of $150) and are intended to benefit EMS and fire services. These taxes have no sunset, but in the November 2012 election, residents voted to re-affirm the appropriation limit to allow the District to continue to spend the revenue from these special taxes. CFPD however reported that the EMS special tax did not fund the cost of the paramedic program in its entirety. CFPD ]É{Ç UxÇÉ|à 9 cÉÄ|vç VÉÇáâÄà|Çz TááÉv|tàxá? __V 99 CALAVERAS LAFCO COUNTYWIDE FIRE MUNICIPAL SERVICE REVIEW CFPD does not charge any other fees. The District occasionally responds to state fires with a fire engine or water tender and gets reimbursed for it from the State of California. CFPD’s expenditures amounted to $1,380,695 in FY 10-11, with 98 percent being operating expenses and two percent non-operating expenses. Of all operating expenses, 48 percent was spent on salaries and wages, 14 percent on benefits, seven percent on depreciation, five percent on health and life insurance, five percent on workers compensation insurance, four percent on maintenance, four percent on professional services, three percent on structures and improvements, two percent on clothing, household and uniforms, two percent on fuel, and two percent on small tools, equipment and supplies. The rest was spent on liability insurance, travel and transportation, utilities, office expense, training, retirement health costs, LAFCO fees, and other expenses. Non- operating expenditures consisted of interest. The District does not have a capital improvement plan. Capital improvement needs are reviewed annually at board meetings. A Capital Improvement Plan will be included in the 2013 Strategic Plan. The District had long-term debt represented by a loan used to buy Engine 238, but CFPD completed payments on it earlier than required. The District has no policy regarding a financial reserve. However, at the end of FY 10- 11, CFPD had $548,680 available in six reserve funds, including a contingency reserve, a fleet replacement fund, an SCBA trust fund, a cash reserve, a capital improvement trust fund, and a loan receivable fund. In FY 12-13, CFPD developed fund accounts to begin addressing each of the large equipment replacement needs. Funds will be saved for replacement of specific vehicles, equipment and facilities. The District tries to avoid using debt in financing its capital improvements. The District is a member of Fire Agencies Self Insurance System (FASIS) for self- insurance of worker’s compensation insurance. CFPD ]É{Ç UxÇÉ|à 9 cÉÄ|vç VÉÇáâÄà|Çz TááÉv|tàxá? __V 100 CAALAVERAS LAAFCO COUNTYYWIDE FIRE MUNICIPAL SERVICE REVIEW FIRRE AND EMS SEERVICESS Servicce Overvview CFPDD provides comprehennsive fire prrotection seervices to rresidents of the Distriict. A detailed descriptionn of the servvices providded by CFPDD is shown inn Figure 6-44. Figure 6--4: CFPD Service Mattrix Calaaveras CCounty Fire Servvices Mattrix Service Proovided ? Structurral fire prottection Yes Wildland fire proteection Yes Vehicle fire protecttion Yes Ladder truck capabbilities No Emergency medicaal services Yes Basic liffe support Yes Advanceed life suppport Yes Advanceed life suppport transpoort No Hazardoous materiaals emergenncy responsse Yes Fire preevention Yes Fire saffety educatioon Yes First ressponder swwift water No Low anggle rope resscue Yes Public service assissts Yes Filling foor breathinng apparatuses Yes Helicoptter facilitiess Yes Jaws of Life tools Yes Response to boatinng accidentss Yes Water rrescue Yes Dive and ice rescuee No Fire invvestigation Yes Home innspections Yes Businesss Inspectionn Yes Public EEducation (CCPR, First AAid, Etc.) Yes Continuuing Educatiion Provideer Yes Community Emergency Respoonse Team Yes CFPDD provides sservices to other agencies. The DDistrict provvides hydraant maintennance services to Calaveraas County WWater Districct through aa contract. CFPD also hhas a fire enngine and wateer tender, wwhich the Diistrict makees available to the Statee as needed.. CFPDD receives sservices fromm other ageencies as wwell. Sierra CConservatioon Center haas an engine, wwhich it sommetimes usees to responnd within CFPD boundaries. This aautomatic aaid to CFPD ]É{Ç UUxÇÉ|à 9 cÉÄ|vvçç VÉÇáâÄà|Çz TTááÉv|tàxá? ____V 101 CALAVERAS LAFCO COUNTYWIDE FIRE MUNICIPAL SERVICE REVIEW the Poker Flat area lowers insurance rates for the residents. In addition, CalFire responds in the CFPD service area during the declared fire season. Collaboration CFPD reported that it has automatic aid agreements with Sierra Conservation Center San Andreas FPD, Altaville-Melones FPD and Jenny Lind FPD. If location of an incident is close to district boundaries, then both district teams are dispatched until the location is confirmed. There are no areas in other providers’ service areas where CFPD responds on a regular basis. CFPD is has an agreement with Murphys FPD to share financial and bookkeeping services. In addition, CFPD entered a statewide mutual aid agreement. CFPD is a member of the Fire Chiefs’ Association and the Fire District’s Association of California. Dispatch and Communications The District's emergency dispatch and communication needs are served through a Calaveras County contract with the California Department of Forestry and Fire Protection's (CalFire) Emergency Command Center (ECC) in San Andreas. There is currently no fee charged to local government fire protection agencies by Calaveras County for this service. Dispatching is handled through joint use of the command frequency assigned to the Tuolumne-Calaveras Unit. The CalFire, Office of Emergency Services and County assigned tactical frequencies are also available for local use. The Calaveras County Sheriff's Office serves as the Primary Public Safety Answering Point (PSAP) where all landline calls within the County are originally directed. Fire incidents are directed to the ECC. Off-duty paid personnel and volunteers are alerted by "pager." Staffing CFPD has 29 sworn personnel—one chief, one fire captain, five engineers, and 22 volunteer firefighters. The fire chief, captain and four engineers are full-time staff; all other firefighters are not compensated. Paid employees are paid bi-monthly at an hourly rate. The median age of the firefighters is 34, with a range from 18 to 52. The District tries to recruit more volunteers through word of mouth and direct advertisement in local publications. In addition, CFPD is participating in a countywide volunteer recruitment grant through the Calaveras County Chiefs Association. According to the California State Fire Marshal, all paid, volunteer and call firefighters must acquire Firefighter I certification; however, there is no time limit as to how long they may work before attaining certification. Firefighter I certification requires completion of the 259-hour Firefighter I course, which includes training on various fireground tasks, rescue operations, fire prevention and investigation techniques, and inspection and maintenance of equipment. In addition to this course, Firefighter I certification also requires that the applicant have a minimum of six months of volunteer or call experience in CFPD ]É{Ç UxÇÉ|à 9 cÉÄ|vç VÉÇáâÄà|Çz TááÉv|tàxá? __V 102 CALAVERAS LAFCO COUNTYWIDE FIRE MUNICIPAL SERVICE REVIEW a California fire department as a firefighter performing suppression duties.40 CFPD has 21 Firefighter I and 20 EMT I certified personnel. CFPD conducts a majority of its training in house. Minimum paid employee training standards are Firefighter I, EMT, HazMat First Responder Operations, ICS-200, NIMS 700 and 800, and Driver/Operator 1A 1B for Engineers and above. Paid employees spend approximately 180 hours in training each year. Volunteers are offered monthly training with the goal of achieving 48 hours of training per volunteer. Volunteers must complete a fire academy or have a Firefighter I certificate before becoming an active member. Facilities and Capacity CFPD owns and operates three fire stations. Station 1 was built in 1974 and is used as a fire station, training center and a shop. It is staffed 24/7 by four paid staff and eight volunteer firefighters. The station, which was reported to be in fair condition, houses one ICS Type 1 engine, one ICS Type 2 engine, one ICS Type 3 engine, one 3,000-gallon water tender, and three utility vehicles. Station 2, built in 1992, is also staffed 24/7 by two paid personnel and 10 volunteers. The station is in good condition and contains one ICS Type 1 engine, one ICS Type 3 engine, and one medic unit. Station 3, built in 1976, is staffed by two volunteers. It is considered to be in fair condition. The station houses one ICS Type 6 engine. CCWD is the water provider for CFPD. Areas within the District that are not served by CCWD rely on private wells for water. CFPD utilizes water tenders in those areas. Currently, the District’s facilities appear to have sufficient capacity to provide adequate services to current demand and short-term future growth. No need for additional or expanded stations was identified; however, a plan is being formulated to remodel Station 1. All existing stations are in good working condition. The challenge lies not in facilities, but in outdated equipment and a lack of paid personnel. Current response times meet Mountain Valley Emergency Medical Services Agency standards for response to medical emergencies. Infrastructure Needs CFPD was planning a minor remodel of Station 1 in FY 12-13; however, the project has been postponed due to financial constraints. This project is expected to cost approximately $120,000 and will be funded from reserve funds. The District also needs to upgrade fire apparatus; however, financial constraints have been an obstacle. Federal grants will be sought in the coming years to fund the necessary apparatus replacements. 40 State Fire Marshal, Course Information and Required Materials, 2007, p. 44 CFPD ]É{Ç UxÇÉ|à 9 cÉÄ|vç VÉÇáâÄà|Çz TááÉv|tàxá? __V 103 CALAVERAS LAFCO COUNTYWIDE FIRE MUNICIPAL SERVICE REVIEW Challenges The primary challenge facing the District is the current economic downturn and resulting declining revenues. Secured property tax revenues have dropped by more than 35 percent over the past five years, which resulted in deferred equipment and vehicle replacement, facility upgrades and caused employee lay-offs. Service Adequacy While there are several benchmarks that may define the level of fire service provided by an agency, indicators of service adequacy discussed here include ISO ratings, response times, and level of staffing and station resources for the service area. Fire services in the communities are classified by the Insurance Service Office (ISO), an advisory organization. This classification indicates the general adequacy of coverage, with classes ranking from 1 to 10. Communities with the best fire department facilities, systems for water distribution, fire alarms and communications, and equipment and personnel receive a rating of 1. CFPD has an ISO rating of seven to 10, depending upon distance from a fire station and fire hydrants. The District was last evaluated in 1995. The National Fire Protection Association (NFPA) has issued a performance standard for volunteer and combination fire departments (NFPA 1720). This standard, among other guidelines, identifies target response time performance for structure fires. The response time is measured from the completion of the dispatch notification to the arrival time of the first-responder at the scene. Though not a legal mandate, NFPA 1720 does provide a useful benchmark against which to measure fire department performance. NFPA 1720 recommends that the response times for structure fire be nine minutes in urban demand zones at least 90 percent of the time, 10 minutes in suburban zones at least 80 percent of the time and 14 minutes in rural zones at least 80 percent of the time. Response times in remote zones are directly dependent on travel distances.41 All fire service providers in Calaveras County, except for the City of Angels Camp Fire Department, fall within the definition of a rural demand zone. The City of Angels Camp FD is an urban demand zone. Emergency response time standards vary by level of urbanization of an area: the more urban an area, the faster a response should be. Calaveras County is not broken down into wilderness, rural and urban designations for response time standards like other counties. Instead, Mountain Valley Emergency Medical Services Agency has divided Calaveras County into three zones for EMS and ambulance services. The northern and southern zones are served by American Legion and the eastern zone (which is the same as the Ebbetts Pass FPD boundary area) is served by Ebbetts Pass FPD. In the northern and southern zones the response time guideline is 20 minutes 90 percent of the time, and 13 minutes 90 percent of the time in the eastern zone. These standards are intended for the ambulance contract providers; however, they indicate what is considered appropriate response times for 41 Urban demand zone has population density of more than 1,000 people per square mile; suburban zone—between 500 and 1,000 people per square mile, rural zone—less than 500 people per square mile, and remote zone is identified by eight or more miles of travel distance to an incident. CFPD ]É{Ç UxÇÉ|à 9 cÉÄ|vç VÉÇáâÄà|Çz TááÉv|tàxá? __V 104 CALAVERAS LAFCO COUNTYWIDE FIRE MUNICIPAL SERVICE REVIEW medical emergencies. CFPD reported that from January 1, 2012 to November 30, 2012, the estimated average response time was 8 minutes 57 seconds. CalFire tracks response times for CFPD incidents. It should be noted that CalFire’s methodology for tracking response times differs from that of the districts. While the districts generally start timing from the time the engines leave the facility, CalFire starts timing after checking back in with the responder after dispatch, which is often when the District is already en route to the scene. Consequently, response times reported by CalFire for each incident tend to be shorter than those recorded by each district. It was reported that in 2011 the District’s average response time was 6.6 minutes and the 90th percentile response time was 11.75 minutes. An area that CFPD can improve upon is tracking its response times, being aware of its average, median and 90th percentile response times and collaborating with CalFire on data exchange, which would allow for more structured response and enhanced efficiency and consistency. The service area size42 for each fire station varies between fire districts. The median fire station in Calaveras County serves approximately 34 square miles. Although EPFPD serves the most expansive area (195 square miles), AMFPD stations serve larger area per station, with 77.5 square miles served per station on average. Densely populated areas tend to have smaller service areas. For example, the average service area for the City of Angels Camp Fire Department’s fire station is 1.75 square miles. By comparison, each fire station in CFPD serves approximately 62 square miles. The number of firefighters serving within a particular jurisdiction is another indicator of level of service; however, it is approximate. The providers’ call firefighters may have differing availability and reliability. A district with more firefighters could have fewer resources if scheduling availability is restricted. Staffing levels in Calaveras County vary from 3.2 sworn firefighters per 1,000 residents in JLFPD’s service area to 13 in MHFPD. By comparison, CFPD has approximately six firefighters per 1,000 residents. 42 Service area refers to the area that the agency will respond to, based on a first responder map used by the Sherriff’s office. CFPD ]É{Ç UxÇÉ|à 9 cÉÄ|vç VÉÇáâÄà|Çz TááÉv|tàxá? __V 105 CALAVERAS LAFCO COUNTYWIDE FIRE MUNICIPAL SERVICE REVIEW Figure 6-4: Copperopolis FPD Fire Service Profile Fire Service Facilities Firestation Location Condition Staff per Shift Vehicles Station 1 370 Main St., Poor Two paid staff and eight 1 ICS Type 1 engine, 1 ICS Type 2 engine, I ICS Copperopolis, CA volunteers Type 3 engine, 1 3000 gal. water tender, 3 utility vehicles. Station 2 1927 Quiver St., Good One paid staff and 10 volunteers 1 ICS Type 1 engine, 1 ICS Type 3 engine, 1 Copperopolis, CA medic unit Station 3 9164 Poole Station Rd., Fair Staffed by volunteers 1 ICS Type 6 engine Copperopolis., CA Facility Sharing Current Practices: CFPD currently has a contractual agreement with Murphys FPD to share financial/bookkeeping services. The agencies are working on a contract for sharing of other resources. Future opportunities: Co-location with CalFire is a possibility in the future. The Copperopolis CalFire station is located directly across the street from CFPD Station 1 and it would make sense to co-locate the agencies, as was reported by the District. Infrastructure Needs and Deficiencies Main infrastructure needs include Station 1 upgrades and replacement of fire apparatus. District Resource Statistics Service Configuration Service Demand Staffing Base Year 2012 Configuration Base Year 2011 Statistical Base Year 2011 Fire Stations in District 3 Fire Suppression Direct Total Service Calls 476 Stations Serving District 3 EMS Direct % EMS 67% Sq. Miles Served per Station1 62 Ambulance Transport American Legion % Fire/Hazardous Materials 8% Total Staff2 29 Hazardous Materials Direct % False 3% Total Full-time Firefighters 6Air Rescue/Ambulance HelicopterAirMed Reach % Misc. emergency 15% Total Call Firefighters 22Fire Suppression Helicopter CalFire % Non-emergency 7% Total Sworn Staff per Station3 9Public Safety Answering Point Sheriff % Mutual Aid Calls 1% Total Sworn Staff per 1,000 6Fire/EMS Dispatch CalFire Calls per 1,000 people 103 Service Adequacy Service Challenges The biggest challenge for the District is the reduction in secured tax revenues Response Time Base Year 2011 which resulted in failure to replace apparatus or hire staff. Average Response Time (min) 6.6 Training Minimum paid staff training standards are FF1, EMT, HazMat First Responder 90th Percentile Response Time (min) 11.75 Oerations, ECS-200, NIMS 700&800 and Driver/Operator 1A 1B for Engineers ISO Rating 7-10 (1995)and above. Volunteers must complete fire academy or be FF1 certified. Mutual & Automatic Aid Agreements CFPD has automatic and mutual aid agreements with all surrounding fire districts. Notes: 1) Primary service area (square miles) per station. 2) Total staff includes sworn and non-sworn personnel. 3) Based on ratio of sworn full-time and call staff to the number of stations. Actual staffing levels of each station vary. CFPD ]É{Ç UxÇÉ|à 9 cÉÄ|vç VÉÇáâÄà|Çz TááÉv|tàxá? __V 106 CAALAVERAS LAAFCO COUNTYYWIDE FIRE MUNICIPAL SERVICE REVIEW COPPPEROPOLLIS FIREE PROTEECTION DISTRICT DETERRMINATIONS Growtth and PPopulatiion Projjectionss  CFPD currenntly has an eestimated poopulation off 4,627.  TThe District reported thhat it had obbserved littlle change inn service demand in thee last feew years. TThere was an increasse in calls over the laast three too four years of approximateely five perccent.  CFPD anticippates modeerate growthh in populaation and siimilarly in service demmand wwithin the District in the next few yyears, due tto a significaant numberr of plannedd and proposed developmentss. A Copperoopolis Commmunity Plann is being deeveloped ass part of the Countyy General Pllan update. The Location and Chharacterristics oof Disadvantageed Unincorporatted Commmunitiees Within or Coontiguous to thhe Agenccy’s SOI  BBased on 22010 Censuus income informatioon for Cennsus Designnated Placees in Calaveras CCounty, theere are no communities that mmeet the definition of a disadvantageed unincorpporated commmunity witthin or adjaacent to CFPPD’s boundss and spphere of inffluence. Present and PPlannedd Capaciity of Puublic Faacilities and Adequuacy of Public SServicess, Includding Inffrastruccture Needss and Deeficiencies  Currently, thhe District’’s facilities appear to have sufffiicient capaacity to proovide adequate seervices to existing deemand andd short-termm future ggrowth. Currrent reesponse times meet Mountain Valley Emmergency Medical Services Aggency sttandards foor response to medicall emergenciies. Service capacity iss constraineed by outdated equuipment andd a lack of ppaid personnnel.  CFPD wouldd require aadditional sstaffing leveel and equuipment to address fuuture growth. Thee District wwill need too look at aadditional ffunding souurces to ennsure suustainable ffinancing.  Innfrastructurre needs incclude Station 1 renovattions and appparatus repplacements.  TThe District does not haave a capitaal improvemment plan. CCapital imprrovement nneeds are reviewed annually at board meetings. IIt is a recoommended practice foor all districts to adopt a capital improvement plan to allow for more effeective innfrastructurre improvemment and reelated financcing planninng.  AAn area thatt CFPD couldd improve uupon is calcculating its median andd 90th perceentile reesponse timmes and collaborating wwith CalFire on informaation exchannge. CFPD ]É{Ç UUxÇÉ|à 9 cÉÄ|vvçç VÉÇáâÄà|Çz TTááÉv|tàxá? ____V 107 CALAVERAS LAFCO COUNTYWIDE FIRE MUNICIPAL SERVICE REVIEW  CFPD services appear to be adequate. The District has adequate response times. ISO is high compared to urban service providers, but similar to rural providers and those in the County. Financial Ability of Agencies to Provide Services  The District reported that its current financing levels were not adequate to deliver services. Revenues have declined by over 35 percent in the last five years, due to a decrease in property values.  In response to declining financing levels, CFPD had to defer upgrades and maintenance, and cut staff positions.  Grants were identified as a possible additional source of financing to fulfill necessary apparatus replacement and personnel needs.  The District’s general operations are funded primarily by property taxes and two special taxes. Special taxes amount to $75 each per parcel and are intended to benefit EMS and fire service.  CFPD does not have any long-term debt. The District tries to avoid using debt in financing its capital improvements. Status of, and Opportunities for, Shared Facilities  The District has mutual aid agreements with all surrounding fire districts.  CFPD is currently working on an agreement with Murphys FPD to share resources. Both districts currently employ the same fire chief.  The Copperopolis CalFire station is located across the street from CFPD Station 1, which presents a good opportunity for the two agencies to share one facility. Accountability for Community Service Needs, Including Governmental Structure and Operational Efficiencies  CFPD demonstrated partial accountability in its disclosure of information and cooperation with Calaveras LAFCO. The District responded to the initial questionnaires and cooperated with interview and document requests; however, follow-up questions and profile review required multiple follow-up attempts.  CFPD practices extensive outreach efforts; however, the District lacks a website where district information is made available to the public. It is recommended that every public service provider have a website to keep constituents aware of the agency’s activities.  In regards to governance structure options, it was reported that reorganization with Murphys FPD and Altaville-Melones FPD is a strong possibility. Certain logistical obstacles have to be resolved before the three agencies proceed with reorganization. CFPD ]É{Ç UxÇÉ|à 9 cÉÄ|vç VÉÇáâÄà|Çz TááÉv|tàxá? __V 108 CAALAVERAS LAAFCO COUNTYYWIDE FIRE MUNICIPAL SERVICE REVIEW 77. E BBBETTTS PAASS FF I R E PROTEECT IO N DDI ST RR I CT Ebbeetts Pass Firre Protectioon District (EPFPD) proovides strucctural, vehiccle and wilddland fire supppression, pparamedic level respoonse to meedical emeergencies, ttechnical reescue responsee, hazardouus materials responsee, fire prevvention, coode enforceement, reggional emergenncy commannd and conttrol, and commmunity edducation. AGENCY OOVERVIEW Backgground Ebbeetts Pass FFPD was foormed on December 7, 196443 to providee structurall fire protectioon during wwinter perioods when the local CalFire station was not sstaffed. Serrvices delivered have evollved from wwildland andd structurall firefightingg to includee first respoonder advance life supporrt emergenccy medical service, advvanced life support trransport serrvice, fire prevvention, pubblic safety edducation, annd emergenncy hazardous materialls response.. The pprincipal acct that goveerns the District is the Fire Protecction Districct Law of 19987.44 The prinncipal act eempowers ffire districtts to providde fire prottection, resscue, emerggency medical, hazardouss material rresponse, ammbulance, aand any othher servicess relating too the protectioon of lives and propeerty.45 Districts must aapply and oobtain LAFFCO approvval to exercise services aauthorized bby the prinncipal act bbut not alrready proviided (i.e., laatent powers) by the district at the end of 2000..46 EPFPPD is locatedd in the norrtheastern pportion of CCalaveras Coounty. The District borrders Amador County in the north,, Alpine Coounty in thhe east andd Tuolumnee County inn the southeasst. EPFPD iis adjacent to West Pooint FPD inn the northwest, Murpphys FPD inn the south, annd the Sheep Ranch areea (protecteed by Centraal Calaverass FRPD) in tthe west. Boundarries Sincee its formatiion the Disttrict has unddertaken seeven annexaations and oone detachmment. The mosst recent annexation occcurred in 22000, when EPFPD addded about 180 square mmiles of adjaccent land ppreviously pprotected bby the Calaaveras County Fire DDepartment. The District’ss boundary changes aree shown in Figure 7-1. 43 LAFCO reesolution 64-055. 44 Health annd Safety Code §§13800-13970. 45 Health annd Safety Code §§13862. 46 Governmment Code §568224.10. EPFPD ]É{Ç UUxxÇÉ|à tÇw cÉÄ|vvçç VÉÇáâÄà|Çz TááÉv|tàxá? ___V 109 CALAVERAS LAFCO COUNTYWIDE FIRE MUNICIPAL SERVICE REVIEW Figure 7-1: EPFPD List of LAFCO Approved Border Changes Project Name Type of Action Year Recording Agency Ebbetts Pass Fire Protection District Formation 1964 LAFCO American Forest Properties Inc. Annexation 1970 LAFCO, BOE Big Trees Village Annexation 1973 LAFCO, BOE Amatti/Folenddorf Detachment 1982 LAFCO Timber Trails Annexation 1983 LAFCO Nob Hill Estates Annexation 1988 LAFCO Love Creek Annexation 1991 LAFCO 1997 Annexation Annexation 1997 LAFCO, BOE Calaveras County Fire Reorganization #1 Annexation 2000 BOE The District is approximately 195 square miles in size, encompassing a narrow corridor of privately owned lands to the north and south of SR 4 between Murphys and the Calaveras-Alpine county line. The current western boundary of the District begins approximately one mile east of Murphys with the eastern boundary ending at the Calaveras-Alpine county line. The District is surrounded by national forest lands. Sphere of Influence The EPFPD’s sphere of influence (SOI) was last updated in 2005 when it was reaffirmed to be coterminous with the District’s boundaries. Extra-territorial Services EPFPD provides paramedic emergency response and emergency transit services to western Alpine County and areas of Tuolumne County accessed from SR 4. EPFPD has automatic aid agreements with Murphys FPD and Bear Valley FPD in Alpine County Fire for fire, rescue and EMS responses as needed on the border areas, and mutual aid agreements with CalFire and California State Parks. CalFire and California State Parks respond to incidents as first responders. EPFPD provides paramedic response and transport services to the Bear Valley/Alpine County area. In addition to the fire suppression and EMS first response agreements with Murphys FPD and Bear Valley FPD, EPFPD provides mutual aid EMS transport response to the other paramedic zones of Calaveras County. The District also has mutual aid agreements with CalFire and California State Parks. Areas of Significance An area of significance for EPFPD is Bear Valley Ski Resort in Alpine County. Considering the fact that the District responds in that area as part of its automatic aid agreement with Bear Valley FPD, growth and resort expansion are expected to affect EPFPD demand for services, which could potentially result in a need to expand the District’s capacity. EPFPD ]É{Ç UxÇÉ|à tÇw cÉÄ|vç VÉÇáâÄà|Çz TááÉv|tàxá? __V 110 ^_ ^_ ^_ ^_ ^_ ^_ ^_ El Dorado County Calaveras County Salt Springs Reservior Ebbetts Pass Fire Protection District Ebbetts Pass FPD & SOI County Boundary Alpine County Other Fire Protection Districts Waterbodies n District Fire Facilities Amador CoPaurncetlys n Other Counties Alpine County Non-District Fire Facilities ^_ Highways Towns Amador County ^_ Pine Grove HWY 26 SKULL FLAT RD LILY GAP R D WINTON RD OLD R W D est Point FPD n CABBAGE PATCH RD SPICER MEADOW RD ^_ SUMNER RD SP S IN TA K N R L D EY RD W n^_ enst ^_ Point Wilse B y A v L i D l l M e OUNTAIN RD SCHAAD RD BAILEY RIDGE RD n TREE LN BLUE MOUNTAIN RD ^_ Glenncoe HWY 26 INDEPENDENCE RD Rail Road Flat SILVER MOUNTAIN RD MITCHELL MILL RD n ^_ Amador County PONDEROSA WY RIDGE RD AIRSTRIP nHWY 4 n ·|}þ 49 ^_ n ·|}þ 26 Cent P r R a US l S I C AN a HI l L a L R v D eras FRPD BOARDS CROSSING RD ·|}þ 26 ·|}þ 12 ·|}þ 49 ^_ n n VICT S OR a H Y A W L n V N ER RD A M n UR d RA r YD e AL a E s L W N E F n DO S S T T E P R M R U D D RRA M Y W O C HIS U R K N E E T Y E A S K L I ID N E R R R D D AN P CH JE r R S D o US t M e A c RI t P A O e R N D d DER n O b SA A y W VE M Y N U C o E C A e u A W V n n E O C t S t L I a T D U n r Y i E N R n a n M D R l I D R G R C a AN n a T c l T a L h B A v lp A in e e N C N o r u E n n R t a y RD s FR n P SW S I D S h S R e A e NC S p H C R R O D T a T A R n R C D M c U ST N h R N O K N IN G IR G R K H D R A D M RD VALLEY VIE W DR SUM 04 n N M 4 n 3 n I P T INE D L R EV M O E n R L B A L R N A D ^_ G R n L D EN O C RD V A E N M C D E W R A Y E D R E O h K O W R C i D D t K R e R D Pines CBTSP FIRE RO AD Tuolumne County HW Y 49 CALAVERITAS RD OLD GULCH RD FRECCE F R R O IC R O D T CITY RD ESMERELDA RD SHEEP RANCH RD WY 4 FULLEN RD ·|}þ 4 UTICA DITCH RD « DOGTOWN RD SAN DOMINGO RD n N H UTICA DITCH RD Murphys FPD Altaville-Melones FPD DARBY LN n S HW SKUNK RANCH RD 0 0.5 1 2 3 4 5 Y 4 New Melones Reservior Miles n Protected by Foothill ^_ n ^_ ^_ ^_ ^_ ^_ ^_ ^_ ^_ CALAVERAS LAFCO COUNTYWIDE FIRE MUNICIPAL SERVICE REVIEW Accountability and Governance 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 MSR process and information disclosure. The principal act orders that the board of directors of a fire protection district must have an odd number of members, with a minimum of three and a maximum of 11 members. Directors may be appointed or elected.47 EPFPD is governed by a five-member board of directors elected at large to staggered four-year terms. All of the current board members were elected. Current board member names, positions, and term expiration dates are shown in Figure 7-3. The Board meets on the third Wednesday of every month at nine in the morning at Station 1, located at 1037 Blagen Road in Arnold, CA. Board meeting agendas are posted at Station 1, Station 3, the post office and on the district website. Minutes are available upon request. Figure 7-3: Ebbetts Pass Fire Protection District Governing Body Ebbetts Pass FPD District Contact Information Contact: Fire Chief, David Baugher Address: 1037 Blagen Road, P.O. Box 66, Arnold, CA 95223 Telephone: 209-795-1646 Fax: 209-795-3460 Email/website: jlfd@comcast.net, www.epfd.org Board of Directors Member Name Position Term Expiration Manner of Selection Length of Term Scott McKinney Vice Chair November 2013 Elected 4 years Dan Leary Chair November 2013 Elected 4 years Tom Sullivan Director November 2015 Elected 4 year Jon Dashner Director November 2015 Elected 4 years Ron Andrade Director November 2015 Elected 4 years Meetings Date: Third Monday of every month at 9am. Location: Meetings are held at Station 1 located at 1037 Blagen Road, Arnold, CA Agenda Distribution: Posted at Station1, Station 3, post office, and on the website. Minutes Distribution: Available upon request. In addition to the required agendas and minutes, the District tries to reach its constituents through collaboration with community groups, monthly Ebbetts Pass (EPPOC) 47 Health and Safety Code §13842. EPFPD ]É{Ç UxÇÉ|à tÇw cÉÄ|vç VÉÇáâÄà|Çz TááÉv|tàxá? __V 112 CALAVERAS LAFCO COUNTYWIDE FIRE MUNICIPAL SERVICE REVIEW Homeowners’ Association meetings, fire drills at local schools, children’s fire awareness week, fire safety talks at the library, and news articles in various newspapers. If a customer is dissatisfied with the District’s services, complaints may be submitted using a formal public complaint process set up by EPFPD. Members of the public may submit complaints in person, by a third party, by phone, mail, email, and anonymously. Regardless of the manner by which the complaint is delivered, the person receiving the complaint must complete an EPFPD complaint form. Completed complaint forms are submitted directly to the chief who determines who will have responsibility for the investigation. A written decision from the chief may be requested by the individual filing the complaint. The District reported that there was one complaint in 2011. EPFPD demonstrated accountability in its disclosure of information and cooperation with Calaveras LAFCO. The District responded to the questionnaires and cooperated with interview and document requests. Planning and Management Practices 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’s mission statement states: The Ebbetts Pass FPD shall provide for life and property safety from the threat of fires, medical emergencies, and hazardous materials release, this will be accomplished through planning, prevention, education, incident mitigation, and appropriate application of technology. The organization of the District is structured around four service divisions or areas: 1) Fire and Public Safety, providing fire and safety education, fire safe inspection services, and code enforcement; 2) Operations, coordinating and maintaining resources for emergency response; 3) Training, coordinating and delivering training for employees and volunteers; and 4) Administration, providing management and administrative support. EPFPD employs 54 personnel—one full-time fire chief, one full-time executive secretary, one part-time fire prevention officer, three full-time battalion chiefs, three full- time captains, six full-time engineers, nine firefighters, six intern firefighters, two cadets, four per-diem paramedics, and 18 volunteer firefighters. Thirteen of the full-time employees are licensed and accredited paramedics, 12 of the full-time employees and interns are Emergency Medical Technicians (EMT), 12 of the volunteer firefighters and interns are EMTs and three are paramedics. Operations of the District are managed by a fire chief and an executive secretary. Additional administrative support is provided by line personnel on an assignment basis. Administrative responsibilities include preparation and recommendation of annual budgets for Board approval, tracking payroll and account expenditures, policy recommendations for Board approval, issuance of various permits including door-yard burning and campfires, review and approval of business license applications, processing EPFPD ]É{Ç UxÇÉ|à tÇw cÉÄ|vç VÉÇáâÄà|Çz TááÉv|tàxá? __V 113 CALAVERAS LAFCO COUNTYWIDE FIRE MUNICIPAL SERVICE REVIEW records and reports, administration of employment and promotional processes, provision of general assistance to callers and visitors, public information and relations during emergencies and disasters, asset tracking and inventory control, training, and maintenance of apparatus and facilities. The fire chief is accountable to the Board of Directors and oversees the assistant chief and executive secretary. The assistant chief supervises the battalion chiefs and prevention officer. Captains and engineers, who manage firefighters, report to the battalion chiefs.48 The District tracks its employees’ workload by maintaining daily and training rosters and keeping time cards. EPFPD also keeps incident reports for daily calls and patient care reports for medical responses. Tracking staff workload helps EPFPD identify incidents of overload and switch tasks accordingly. All district personnel are evaluated annually by the chief, who is evaluated by the Board of Directors. EPFPD reported that it did not perform formal evaluations of overall district performance, such as benchmarking or annual reports. Paramedic transport unit response times are audited monthly for response time contract compliance by the Mountain Valley EMS Agency, the Calaveras County Emergency Medical Services Oversight Committee and the EPFPD administration. EPFPD is required by contract to maintain a 90 percent compliance rate for paramedic response times to all EMS responses in the Calaveras County Zone 3. The District has over 99 percent compliance rate. The District’s financial planning efforts include an annually adopted budget and annually audited financial statements. EPFPD conducts its capital improvement projects through a Capital Improvement Plan with a five-year planning horizon, which is updated every five to seven years. The District also adopts a strategic plan; the most recent strategic plan was adopted in January 2007. Existing Demand and Growth Projections This section discusses the factors affecting service demand, such as land uses, and historical and anticipated population growth. Land Use Land uses within the District are recreational, agricultural preserve, timber production, residential, rural residential, general forest, public service, commercial, professional offices, residential agriculture, and light industrial. The District’s bounds encompass approximately 195 square miles. Privately owned lands within the District are designated as State Responsibility Areas (SRA) and are classified as a "High Fire Severity Hazard Zone." The California Department of Forestry provides primary jurisdictional responsibility for wildland fire protection except in those areas of the Stanislaus National Forest protected by the United States Forest Service. Privately owned lands are predominately made up of lots and parcels 48Engineers at Station 3 are directly supervised by the battalion chief; however, they are still subordinate in rank to the station captain within the chain of command. EPFPD ]É{Ç UxÇÉ|à tÇw cÉÄ|vç VÉÇáâÄà|Çz TááÉv|tàxá? __V 114 CALAVERAS LAFCO COUNTYWIDE FIRE MUNICIPAL SERVICE REVIEW within established residential subdivisions. From west to east, major residential subdivisions include: Forest Meadows, Sunrise Point, Canyon View, Ebbetts Pass Highlands, Lakemont Pines, Meadowmont, Pinebrook, Fly-In Acres, Lilac Park, Blue Lake Springs, Big Trees Village, Cottage Springs, Gann's Meadow, Big Meadow, Tamarack, Sky High Ranch and Sherman Acres. Population Depending on means of determining population, the estimated residential population of the District ranges from 10,636 to 18,840. However, the population served is significantly higher during tourist seasons. Based on author’s analysis of Census 2010 census tract data, there are approximately 10,636 residents within the District.49 The population density within the District is 55 people per square mile. The District reported that there were about 14,000 people living full time within the EPFPD boundaries according to Census 2010. The District reported that it served about 8,000 improved lots, of which 150 were commercial structures. Based on average household size throughout the County of 2.4 people, the estimated population of EPFPD would be 18,840. However, there are many vacation homes and vacation rentals in the areas. Additionally, there is one State Park and multiple camping areas operated by the U.S. Forest Service. During peak vacation periods, the population of the District can reportedly reach levels of over 40,000 people. The District reported that there had been a recent increase in the transient vacationing population. Existing Demand The District reported that its peak demand times were mainly vacation periods, such as Thanksgiving, Christmas, New Years, Memorial Day, Independence Day, Labor Day, and school breaks. Calls for medical emergencies are consistently high in volume throughout the year, similar to other fire districts in the region. Figure 7-4: EPFPD Number of Calls by Year, 2007-2011 The District reported that it 1200 had observed an increase in service demand over the last few 1150 years of about five percent, with an exception of 2011 when light 1100 winter and fewer vacationers caused fewer accidents. 1050 As shown in Figure 7-4, the 1000 number of calls steadily increased from 2007 to 2011. 950 2007 2008 2009 2010 2011 49 Census Tracts 4, 5.04, 5.03, and 5.01 in Calaveras County. EPFPD ]É{Ç UxÇÉ|à tÇw cÉÄ|vç VÉÇáâÄà|Çz TááÉv|tàxá? __V 115 CALAVERAS LAFCO COUNTYWIDE FIRE MUNICIPAL SERVICE REVIEW Projected Growth and Development EPFPD anticipates significant growth in population and similarly in service demand within the District in the next decade. However, no formal population projections have been made by the District. EPFPD reported that current active growth was limited to one or two permits, but high growth is anticipated within the next decade, due to multiple housing projects, condominium developments, and expansion of the ski resort in Alpine County where the District responds through automatic aid. The District identified two planned developments within its boundaries. Forest Meadows consists of 300 to 500 planned units; plans have been submitted to the Calaveras County Planning Department for review. Cedar Ridge consists of about 100 planned lots, but the development is moving slowly as contractors are only selling one to two lots at a time. EPFPD tracks demographic changes and environmental trends and adjusts its staff and resources accordingly. The District reported that it had sufficient capacity to serve the anticipated future growth; however, the Forest Meadows area may require another fire station in the future. The District has had some discussions with Alpine County Fire Department about staffing a paramedic rescue transport unit in the ski resort region permanently. The District did not identify any areas within its future growth where it would have difficulties providing service. Sometimes roads are not cleared of snow as soon they need to be, thus slowing response times; however, all of the District’s engines and ALS paramedic transport unit are four-wheel drive and custom made for difficult road conditions. Additionally, the District maintains a fleet of three snow plows which aid during incidents in the winter months. The State Department of Finance (DOF) projects that the population of Calaveras County will grow by eight percent in the next 10 years. Thus, the average annual population growth in the County is anticipated to be approximately 0.8 percent. Based on these projections, the District’s population would increase from 10,636 in 2010 to approximately 11,487 in 2020. It is anticipated that demand for service within the District will increase minimally, based on the DOF population growth projections through 2020. Growth Strategies The District is not a land use authority, and does not hold primary responsibility for implementing growth strategies. The land use authority for unincorporated areas is the County. The County’s General Plan is presently being updated. Some of the fire districts reported that the County sought input from them on General Plan update. EPFPD did not provide any input on the General Plan update. With regard to possible governance structure alternatives, the District reported that there were some past inquiries about consolidation with Murphys FPD or Bear Valley FPD of Alpine County, but as of now there are no specific plans and there have been no formal discussions between the agencies. Financing The financial ability of agencies to provide services is affected by available financing sources and financing constraints. This section discusses the major financing constraints faced by the District and identifies the revenue sources currently available to the District. EPFPD ]É{Ç UxÇÉ|à tÇw cÉÄ|vç VÉÇáâÄà|Çz TááÉv|tàxá? __V 116 CALAVERAS LAFCO COUNTYWIDE FIRE MUNICIPAL SERVICE REVIEW The District reported that its financing levels were adequate to deliver services. The State borrowed eight percent of property tax revenues from the District in 2009; the District is expecting to be paid back in 2013 and use this money for capital improvements. No other challenges to financing were reported. The District’s total revenue for FY 10-11 was $3,889,068, which consisted of operating and non-operating revenues. Operating revenues amounted to $3,844,861 and consisted mainly of property taxes (45 percent), special taxes (30 percent), fees for emergency medical services (17 percent), and Special District Expense (three percent). The remainder of the revenue came from homeowner’s property tax relief, federal grants, reimbursements, services, miscellaneous, and other revenues. Non-operating revenue included interest, donation from Ebbetts Pass Firefighters’ Association,50 and other revenues. The District is funded primarily through property taxes, two voter-approved special tax measures and ambulance paramedic transport fees. The District's first special tax measure was approved in 1999. Voters approved the necessary funding to hire three firefighter paramedics and purchase equipment needed to provide first responder advanced life support medical services. The special tax levies $11 on unimproved lots and $39 on improved lots. The second special tax was approved in 2004. Voters approved funding to hire six additional employees and purchase necessary equipment to staff a second fire station and provide a second full-time staffed paramedic transport unit. The special tax levies $27 on unimproved lots and $89 on improved lots. Residents are not subject to out- of-pocket expenses for utilization of the ambulance service. Non-residents are charged for ambulance services. An ALS base rate is $1,523.90, a BLS base rate is $1,172.02, mileage rate is $41.03 per mile, and night charge from 7PM till 7AM is $234.45. The District also collects fees for industry standard training classes provided to other fire agency personnel at EPFPD by EPFPD staff who are instructors in industry standard courses. EPFPD does not have a standard fee schedule for such courses. Fees are individually set to approximately cover the cost of a course. EPFPD’s expenditures amounted to $4,189,486 in FY 10-11, divided into operating and non-operating expenses. Of the $4,048,477 in operating expenses, 51 percent was spent on salaries and wages, 11 percent on health insurance, seven percent on retirement, three percent on worker’s compensation, three percent on administrative fees, two percent on repairs and maintenance, three percent on safety, clothes and equipment, and 10 percent on depreciation. The rest was spent on property/liability insurance, health maintenance, office expenses, emergency care and rescue, professional services, communications, small tools and safety equipment, training, travel and transportation, utilities, refunds, miscellaneous, food and household, equipment, and special department expenses. Non- operating expenses are represented by interest on long-term debt. The District has a capital improvement plan with a planning horizon of five years. EPFPD finances its capital improvements through loans, financial reserves, and donations from the Firefighters’ Association. 50 Ebbetts Pass Firefighters’ Association is a separate 501(c)(4) corporation that promotes fire safety awareness and training, and provides cash and equipment to the District. EPFPD ]É{Ç UxÇÉ|à tÇw cÉÄ|vç VÉÇáâÄà|Çz TááÉv|tàxá? __V 117 CALAVERAS LAFCO COUNTYWIDE FIRE MUNICIPAL SERVICE REVIEW EPFPD’s long-term debt is represented by three loans. The first one, which amounted to $3,000,000, was taken out in FY 04-05 for the construction of a new fire station on Blagen Road. The loan period is 20 years with a fixed interest rate of 4.65 percent. This loan was later amended to include an additional $500,000 to help complete the construction of a new fire station. During FY 06-07, the District also took out a bridge loan in the amount of $175,000 which was needed to help complete construction of the new station. This bridge loan was a short term loan which was paid off in FY 10-11. In addition to these two loans, the District has a lease purchase agreement with the Municipal Finance Corporation that was used for the purpose of financing the purchase of a fire engine in 2005. Annual payments on this agreement are made by the Ebbetts Pass Firefighters’ Association and are not included as expenditures within the District’s budgets. The approximate amount of existing debt, if carried to full term, related to these agreements at the end of FY 10-11 is shown in Figure 7-5. Figure 7-5: EPFPD Long-Term Debt Balance (end of FY 10-11) Loan Balance EPFPD has a formal Lease Option Agreement for New Fire Station $3,132,363.96 adopted Lease Option Agreement Amended $567,970.92 policy to keep Lease Purchase of Apparatus $95,187.96 four Total Existing Debt $3,795,522.84 designated reserve funds: 1) the Apparatus/vehicle Replacement Fund was established to provide funds for cash purchases of apparatus and other vehicles; 2) the Building Fund was established to provide for lease purchase payments and one-time purchases related to existing and future payments of property and future building projects; 3) the Emergency/contingency Fund was established as a reserve for unanticipated expenditures and emergencies. Savings for future purchases, such as SCBA replacement are included in this account. Also included in this account is a fund for payout of personnel costs related to separation from service. Finally, two emergency medical service trust funds were established to maintain long-term funding for the firefighter/paramedic and ambulance program. Any funds collected from the voter approved special taxes and not expended during the year are allocated to these funds. These funds are to be used to extend the longevity of the ALS first responder paramedic and paramedic rescue transport programs once the funds collected from the special tax are no longer adequate to fund the programs. Balances of all four reserve funds are at about 30 percent of the District’s operating budget. EPFPD participates in two joint powers authorities (JPAs)—the Special District Risk Management Authority for insurance and the Fire Agencies Insurances Risk Authority for liability and property insurance. EPFPD ]É{Ç UxÇÉ|à tÇw cÉÄ|vç VÉÇáâÄà|Çz TááÉv|tàxá? __V 118 CAALAVERAS LAAFCO COUNTYYWIDE FIRE MUNICIPAL SERVICE REVIEW FIRRE AND EMS SEERVICESS Servicce Overvview Ebbeetts Pass FPDD provides “all risk” emmergency reesponse:  Fire suppreession—EPFPD provvides strucctural, vehhicle and wildland fire suuppression..  Emergency medical reesponse—EEPFPD provvides paraamedic level responsse to mmedical emeergencies oon parameddic staffed aand equippped engine companiess and paramedic trransport serrvice units.  TTechnical Reescue Respoonse—EPFPPD providess industry sttandard waater rescue, over thhe bank roope rescue,, structurall collapse response rrescue, as well as veehicle exxtrication rrescue, large mudslidees, toweringg trees fallinng on occuupied structtures, and water reescues in Claass V river rrapids.  HHazardous MMaterials Reesponse—EEPFPD provvides first reesponder leevel response to hazardous mmaterials inccidents.  Fire Preventtion and Coode Enforceement—EPFFPD inspectts all multi-residentiall and coommercial occupancies on an annnual basis foor compliannce with thee Californiaa Fire Code.  RRegional Emmergency CCommand aand Controll—The EPFFPD main station training cllassroom is designed too be used ass a regional emergencyy operationss center.  Education off the Commmunity—EPFFPD personnnel providee first aid, caardiopulmoonary reesuscitationn (CPR) andd automateed external defibrillatoor (AED) trrainings forr the coommunity. All aspectss of the Ammerican Heaart Associattion’s Chainn of Survivaal are provided by EPFPD. The sservices proovided by EPPFPD are shhown in thee service maatrix in Figure 7-6. EPFPD ]É{Ç UUxxÇÉ|à tÇw cÉÄ|vvçç VÉÇáâÄà|Çz TááÉv|tàxá? ___V 119 CALAVERAS LAFCO COUNTYWIDE FIRE MUNICIPAL SERVICE REVIEW Figure 7-6: EPFPD Service Matrix Calaveras County Fire Services Matrix Service Provided ? Structural fire protection Yes Wildland fire protection Yes Vehicle fire protection Yes Ladder truck capabilities Yes Emergency medical services Yes Basic life support Yes Advanced life support Yes Advanced life support transport Yes Hazardous materials emergency response Yes Fire prevention Yes Fire safety education Yes First responder swift water and low angle rope rescue Yes Public service assists Yes Oxygen filling for breathing apparatuses Yes Helicopter facilities No Jaws of Life tools Yes Response to boating accidents Yes Water rescue Yes Dive and ice rescue Yes Fire investigation Yes Home inspections Yes Business Inspection Yes Public Education (CPR, First Aid, Etc.) Yes Continuing Education Provider Yes Community Emergency Response Team Yes Collaboration There are three geographic areas within the Ebbetts Pass FPD served by other agencies. EPFPD works jointly with these agencies on a first response and mutual-aid basis for wildland fire incidents within the District and has no compensation arrangements with these agencies for routine response. CalFire has two fire stations (Arnold and Hermit Springs) within the District boundaries and an additional fire station within the EMS response area (Skull Creek), and is responsible for the SRA areas within the District. Calaveras Big Trees State Park has fire response equipment located at the Park Headquarters and is responsible for wildland fire response within the park. The United State Forest Service (USFS) has two fire stations and one ranger station within the EPFPD and is responsible for wildland fire response within the Federal Response Areas in the District. EPFPD ]É{Ç UxÇÉ|à tÇw cÉÄ|vç VÉÇáâÄà|Çz TááÉv|tàxá? __V 120 CALAVERAS LAFCO COUNTYWIDE FIRE MUNICIPAL SERVICE REVIEW In addition, Ebbetts Pass FPD participates in multiple regional collaboration efforts within Calaveras County, such as the Calaveras Chiefs Association, Emergency Medical Service Oversight Committee (EMSOC), Multi-Agency Coordinating Group (MAC), Local Continuing Quality Improvement (LCQI), Calaveras County Search and Rescue (CCSAR), Office of Emergency Services (County OES), Calaveras County Emergency Preparedness Healthcare Coalition (PPH), Citizen Emergency Response Teams (CERT), Crisis Intervention Services Management (CISM), and Motherlode Training Officers Association (MITOA). EPFPD jointly maintains a two pad landing facility with USFA in Hathaway Pines. Dispatch and Communications The District's emergency dispatch and communication needs are served through a Calaveras County contract with the California Department of Forestry and Fire Protection's (CalFire) Emergency Command Center (ECC) in San Andreas. There is currently no fee charged to local government fire protection agencies by Calaveras County for this service. EPFPD pays $25 per Paramedic Rescue Transport Dispatch to Calaveras County, and the County collects a 0.25 percent sales tax which is used to help fund dispatch centers. Dispatching is handled through joint use of the command frequencies assigned to the Tuolumne-Calaveras Unit. The CalFire, Office of Emergency Services and County assigned tactical frequencies are also available for local use. The Calaveras County Sheriff's Office serves as the Primary Public Safety Answering Point where all landline calls within the County are originally directed. Fire incidents are directed to the ECC. Off-duty paid personnel and volunteers are alerted by "pager." The District has upgraded mobile and portable radios with programmable 24- and 128- channel radios. Each apparatus has a mobile radio and carries a minimum of two portable radios. Programmable radios provide the capability of reconfiguring frequencies to meet the varied communication needs of mutual aid incidents. Should the emergency dispatching provider ever be changed, programmable radios provide the District with the capability to convert to new frequencies without additional cost. EPFPD reported that when multiple agencies respond to an incident, responders are coordinated via CalFire Dispatch, at the same time dispatch will assign command and tactical frequencies for the incident. Within Calaveras County, all agencies share common frequencies. The first on-scene unit assumes Incident Command (IC) and coordinates arriving units. All communication systems are interoperable with adjacent providers. CalFire Command Center coordinates the response. If needed, tactical channels are assigned by CalFire ECC. All first responders that EPFPD responds with are dispatched by CalFire ECC. Staffing EPFPD has 53 sworn personnel—one full-time fire chief, one part-time fire prevention officer, three full-time battalion chiefs, three full-time captains, six full-time engineers, nine firefighters, six firefighter interns, two cadets, four per-diem paramedics, and 18 volunteer firefighters. Thirteen of the full-time employees are licensed and accredited paramedics, 12 of the full-time employees and interns are emergency medical technicians. Volunteers are EPFPD ]É{Ç UxÇÉ|à tÇw cÉÄ|vç VÉÇáâÄà|Çz TááÉv|tàxá? __V 121 CALAVERAS LAFCO COUNTYWIDE FIRE MUNICIPAL SERVICE REVIEW paid training and incident response stipends, and when appropriate on an hourly basis for extended incidents. The training stipend is $20 per training class and the response stipend is $10 per call per volunteer. When an incident expands to a level of involvement that requires volunteer assignment for extended periods, that volunteer is paid on an hourly basis. The median age of the District’s firefighters is 27, with a range from 20 to 61. EPFPD recruits volunteers for both, the Volunteer Firefighter Division and the Ebbetts Pass Community Emergency Response Team (CERT). CERT team is a specialized group of volunteer citizens who were trained to take abatement actions from a safe location, provide first aid to injured citizens and recognize potential hazards. Recruitment of volunteer firefighters and emergency response team members is accomplished through distribution of brochures in the front office, public notices posted on the community bulletin board, friends of current volunteers and staff, word of mouth, and networking. Additionally, EPFPD has received funding and support to enhance volunteer firefighter recruitment efforts. In 2012, EPFPD, in conjunction with 10 other fire districts in Calaveras County, was awarded a $1.8 million-SAFER Recruitment and Retention of Volunteer Fire Fighters grant. These funds will be used to implement a regional volunteer benefit program in order to retain existing firefighters and attract new volunteers. Benefits that are part of this regional program include insurance packages, childcare expenses, tuition assistance for higher education, and a Length of Service Award program or other retirement benefits, such as 401K contributions. Additionally, the grant includes a marketing program to recruit new volunteers through television advertising, an informational website and an online application process. According to the California State Fire Marshal, all paid, volunteer and call firefighters must acquire Firefighter I certification; however, there is no time limit as to how long they may work before attaining certification. Firefighter I certification requires completion of the 259-hour Firefighter I course, which includes training on various fireground tasks, rescue operations, fire prevention and investigation techniques, and inspection and maintenance of equipment. In addition to this course, Firefighter I certification also requires that the applicant have a minimum of six months of volunteer or call experience in a California fire department as a firefighter performing suppression duties.51 EPFPD has 22 Firefighter I, 10 EMT-B and 12 EMT-P certified personnel. Volunteers are fully trained in suppression, rescue and EMS operations. The District has adopted the California State Fire Marshal's Training and Education System's and International Fire Service Training Association’s (IFSTA) Essentials of Firefighting as the standards on which volunteer and career training programs are based. The District has also adopted California Fire Service Training and Education System (CFSTES), United States Forest Service (USFS), CalFire, and California Incident Command Certification System (CICCS) curriculums as standards for supplemental and advanced training for all personnel. The District provides significant financial support for training of career firefighters and firefighter paramedics. EPFPD pays for all costs associated with maintenance of required 51 State Fire Marshal, Course Information and Required Materials, 2007, p. 44 EPFPD ]É{Ç UxÇÉ|à tÇw cÉÄ|vç VÉÇáâÄà|Çz TááÉv|tàxá? __V 122 CALAVERAS LAFCO COUNTYWIDE FIRE MUNICIPAL SERVICE REVIEW certifications and paramedic licenses and provides each employee with $800 and two days of paid relief coverage to pay for classes, workshops, etc. The District also pays for the cost to send employees to special or unique training opportunities, if the District feels such classes would benefit emergency operations. The majority of ongoing skill maintenance and training of volunteers is delivered "in- house" by the District's paid division. Training is currently delivered Thursday evenings and occasionally on weekends. Training goals have historically been based upon efforts to meet legislative training mandates and ISO training standards. Recent observations of emergency incident operations indicate there is a declining correlation between the number of drill hours documented by volunteers and their actual performance at the emergency incident. This observation has promoted the need to de-emphasize "quantity" of training hours and to place emphasize on "quality" of training and the measurement of performance as the primary training goal. EPFPD follows a 48-hour on-duty followed by 96 hours off-duty schedule. Every 48 hour period staff is scheduled to train for a minimum of three hours. This translates to 360 hours a year or 30 hours per month of training for employed staff. The training make-up follows a general training format that breaks down into six hours of fire suppression training, six hours of medical training, six hours of specialized drills, and six hours of training with the firefighter volunteers. The final six hours of training focuses on classroom training which can cover fire ground tactics, medical study or management review. Training for the District’s volunteer firefighters begins with a mini volunteer training orientation that takes about 16 hours to complete. The Calaveras County Fire Chiefs Association holds an annual volunteer training academy that encompasses 240 hours of certified National Fire Protection Association Training. New recruits are encouraged to attend the Academy. For recruits who are not able to attend the Academy, the District holds regular training that coincides with the California State Fire Marshal’s requirements for a Firefighter I certification. Based upon a two-year calendar for full certification, new recruits receive approximately 90 hours of fire suppression training per year. Additionally, volunteers receive annual medical training to achieve California EMT-B certification and maintain continuing educational requirements. EPFPD volunteers receive about 50 hours a year of medical training. Finally, volunteers receive 90 hours a year of specialized training focusing on fire suppression, medical response, and District-specific training, which focuses on District-specific scenarios relating to emergency response in a rural environment. EPFPD reported that a challenge to attain these certification levels was the amount of training required. Volunteers are expected to show up for weekly training and special drills on a regular basis, which can be difficult in the current economic environment. Providing all-risk multi-disciplined emergency response which is supported by the community has allowed EPFPD to attempt to solve the challenge of retention of skilled emergency responders. Facilities and Capacity Ebbetts Pass FPD service area is separated into four smaller areas called battalions, each with its own fire station: EPFPD ]É{Ç UxÇÉ|à tÇw cÉÄ|vç VÉÇáâÄà|Çz TááÉv|tàxá? __V 123 CALAVERAS LAFCO COUNTYWIDE FIRE MUNICIPAL SERVICE REVIEW  Battalion 1 covers the greater Arnold area from east of Tanwood Mobile Home Park, east to Calaveras Big Trees State Park, and the adjoining subdivisions in between. It is served by Ebbetts Pass Station 1 located at 1037 Blagen Road in Arnold, CA. The station is a new facility in excellent condition acquired in 2007 and staffed 24/7. Six employees staff the station continuously (a battalion chief, captain, engineer, and two firefighters) and two administrative employees (the fire chief and secretary) staff the office during business hours. Two firefighter- interns are on duty during each shift. There are currently six volunteers available to staff the station. Station 1 houses truck 431, medic engine 435, medic engine 436, water tender 431, and engine 431. Both ALS engines carry a full set of paramedic level advanced life support medical response equipment. Fire suppression, and technical and medical response equipment at Station 1 includes one medic 435, medic 433, and medic 432.  Battalion 2 covers the Dorrington/Camp Connell areas from Calaveras Big Trees State Park east along SR 4 to the Alpine County line by Sky High Ranch subdivision and the adjoining subdivisions in between. Ebbetts Pass FPD Station 2 is located at 5510 Meko Drive in Dorrington, CA. The station, acquired in 1996, was reported to be in very good condition. It is staffed on a volunteer basis. There are currently two volunteers available to staff the station. It can be used to house a response crew with a fully stocked paramedic rescue transport unit and engine already on site, if the area is isolated by a downed tree or mudslide. The station is accessible to the public to power portable home medical devices during extended power outages. There is a 911 phone at the front door, if the station is vacant. Station 2 houses medic 432 and engine 432, both of which have fire suppression, EMS, ice, water and technical rescue equipment and advanced life saving equipment.  Battalion 3 covers the Avery/Hathaway and Pines/Forest Meadows areas from Tanwood Mobile Home Park west SR 4 to the upper end of Utica Powerhouse Road and the subdivisions in between. Station 3, acquired in 1971, is located at 40 Canyon View Drive and was reported to be in good condition. The station is staffed 24/7 continuously with two employees (an engineer and firefighter, minimally an EMT and FFP). The Station is accessible to the public to power portable home medical devices during extended power outages. It also serves as safe surrender site and has a 911 phone at the front door in case the station is vacant. There are currently six volunteers available to staff the station. Fire suppression equipment and full set of paramedic level ALS medical equipment are carried on medic engine 437.  Battalion 4 covers the Blue Lake Springs/Pinebrook/Meadowmont area on the south side of SR 4. EPFPD Station 4 was acquired in 1972 and was reported to be in very good condition. It is located at 2038 Moran Road. The station is staffed on a volunteer basis. It also has a 911 phone at the front door if the station is vacant. Currently, there are three volunteers available to staff the station. Fire suppression equipment at Station 4 includes engine 434. The District interacts with water purveyors providing water for fire protection purposes. The two major water purveyors are the Calaveras County Water District and the EPFPD ]É{Ç UxÇÉ|à tÇw cÉÄ|vç VÉÇáâÄà|Çz TááÉv|tàxá? __V 124 CALAVERAS LAFCO COUNTYWIDE FIRE MUNICIPAL SERVICE REVIEW Blue Lake Springs Water Company. A majority of the District's residential developments have an adequate number of fire hydrants; exceptions include Snowshoe Springs, Hathaway Pines, parts of Blue Lake Springs and areas east of Meko Drive. Blue Lake Springs Water Company has developed a master plan for phased improvement of the water distribution and hydrant system. Fire flows to hydrants are gravity fed, which limits pressures in some areas. Duration of water flow varies and is dependent upon available storage. CCWD maintains three zones within EPFPD—the Forest Meadow Zone, Meadowmont Zone, and Big Trees Zone. The total volume for the three zones is 7,104,300 gallons. The emergency reserve capacity of the District is 7,500 gallons. Ebbetts Pass FPD Ordinance 2012-1 requires provision of adequate water supplies for fire protection with the development of parcels creating a building density greater than one house per five acres. In commercial areas, hydrants must be installed, if a new building is not within 250 feet of an existing hydrant. The District strives to conduct hydrant maintenance and flow testing on a biennial basis. Repair of hydrants is the responsibility of the water purveyor. In 1999, a hydrant maintenance agreement was negotiated with CCWD. As part of the agreement, CCWD reimburses EPFPD $5 per hydrant for basic maintenance and flow testing. Currently, the District’s facilities have sufficient capacity to provide adequate services within EBFPD’s current service area. No need for an additional fire station or expansion was identified by EPFPD. All stations within the District are currently in good or excellent condition. Current response times meet Mountain Valley Emergency Medical Services Agency standards for response to medical emergencies. In regards to future growth areas, the increase in tourist activity within the ski resort in Alpine County triggered discussions with Alpine County Fire Department about having an ambulance station in that area staffed by EBFPD personnel. In addition, the District is planning to construct a fifth station in the Forest Meadows to better serve the area’s growing population. Infrastructure Needs EPFPD currently does not need any new facilities or facility upgrades. However, in the near future the District will be looking at the possibility of upgrading Station 2 in order to accommodate 24-hour staffing and performing septic and bedroom upgrades at Station 3. EPFPD will also be looking into plumbing, septic and bathroom upgrades at Station 4. The District is currently not constructing or planning additional fire service facilities; however, it has held discussions to construct a new fire station in the lower end of EPFPD near Forest Meadows. It was reported that EPFPD had a need for new apparatus, which has not been purchased, due to financing constraints. The State of California, during the 2009 fiscal emergency declared by the Governor, borrowed eight percent of the District’s property tax revenue. Those funds would have boosted the apparatus replacement fund by over $160,000 and allowed the purchase of one type I fire engine to replace the E435. EPFPD ]É{Ç UxÇÉ|à tÇw cÉÄ|vç VÉÇáâÄà|Çz TááÉv|tàxá? __V 125 CALAVERAS LAFCO COUNTYWIDE FIRE MUNICIPAL SERVICE REVIEW Challenges There are various geographical areas within the District that are considered difficult to serve. The west end of EPFPD lies at an elevation of about 2,000 feet; travelling eastward the District rises to an elevation of approximately 7,000 feet. The emergency medical response area extends eastward to the crest of the Sierra Nevada Mountain Range. To the south lie the Stanislaus River Canyon system and the Carson-Iceberg Wilderness Area. To the north is the Mokelume River system and Mokelume Wilderness Area. These remote areas offer challenges to prompt medical and fire response. The challenges EPFPD faces include limited access, poor roads, limited visibility, and long travel times. Other service challenges include the inclement weather within the District boundaries. The demands of work, increasing call volume, and significant training mandates have made it increasingly difficult for citizens to balance family, work, and be an active volunteer firefighter. In addition, the demographics and working environment within the various communities cannot be relied upon to provide a sufficient pool of citizens from which adequate numbers of volunteer firefighters might be recruited. The number of volunteers available to respond to incidents, especially during working hours is minimal. While the overall number of volunteers needed for incident support remains minimally adequate, the turnover and availability of volunteers assigned to certain outlying stations varies and the guarantee of a response from outlying stations at any given time is uncertain. Ongoing efforts to recruit citizens living near outlying stations having a shortage of volunteers have met with little success. The ability to maintain and enhance the delivery of emergency services will be increasingly dependent upon career firefighters. Service Adequacy While there are several benchmarks that may define the level of fire service provided by an agency, indicators of service adequacy discussed here include ISO ratings, response times, and level of staffing and station resources for the service area. Fire services in the communities are classified by the Insurance Service Office (ISO), an advisory organization. This classification indicates the general adequacy of coverage, with classes ranking from 1 to 10. Communities with the best fire department facilities, systems for water distribution, fire alarms and communications, and equipment and personnel receive a rating of 1. EPFPD has an ISO rating of four in more densely developed areas and eight in rural areas. The District was last evaluated in 2009. The National Fire Protection Association (NFPA) has issued a performance standard for volunteer and combination fire departments (NFPA 1720). This standard, among other guidelines, identifies target response time performance for structure fires. The response time is measured from the completion of the dispatch notification to the arrival time of the first-responder at the scene. Though not a legal mandate, NFPA 1720 does provide a useful benchmark against which to measure fire department performance. NFPA 1720 recommends that the response times for structure fire be nine minutes in urban demand zones at least 90 percent of the time, 10 minutes in suburban zones at least 80 percent of the time and 14 minutes in rural zones at least 80 percent of the time. Response times in EPFPD ]É{Ç UxÇÉ|à tÇw cÉÄ|vç VÉÇáâÄà|Çz TááÉv|tàxá? __V 126 CALAVERAS LAFCO COUNTYWIDE FIRE MUNICIPAL SERVICE REVIEW remote zones are directly dependent on travel distances.52 All fire service providers in Calaveras County, except for the City of Angels Camp Fire Department, fall within the definition of a rural demand zone. The City of Angels Camp FD is an urban demand zone. Emergency response time standards vary by level of urbanization of an area: the more urban an area, the faster a response should be. Calaveras County is not broken down into wilderness, rural and urban designations for response time standards like other counties. Instead, Mountain Valley Emergency Medical Services Agency has divided Calaveras County into three zones for EMS and ambulance services. The northern and southern zones are served by American Legion and the eastern zone (which is the same as the Ebbetts Pass FPD boundary area) is served by Ebbetts Pass FPD. In the northern and southern zones the response time guideline is 20 minutes 90 percent of the time, and 13 minutes 90 percent of the time in the eastern zone. These standards are intended for the ambulance contract providers; however, they indicate what is considered appropriate response times for medical emergencies. The District tracks its response times for each incident. EBFPD reported that EPFPD’s median response time was four minutes and 90th percentile response time was eight minutes. CalFire also tracks response times for EPFPD incidents. It should be noted that CalFire’s methodology for tracking response times differs from that of the districts. While the districts generally start timing from the time the engines leave the facility, CalFire starts timing after checking back in with the responder after dispatch, which is often when the District is already en route to the scene. Consequently, response times reported by CalFire for each incident tend to be shorter than those recorded by each district. It was reported that in 2011 the District’s average response time was 5.25 minutes and the 90th percentile response time was 12.50 minutes. The service area size53 for each fire station varies between fire districts. The median fire station in Calaveras County serves approximately 34 square miles. Although EPFPD serves the most expansive area (195 square miles), AMFPD stations serve larger area per station, with 77.5 square miles served per station on average. Densely populated areas tend to have smaller service areas. For example, the average service area for the City of Angels Camp Fire Department’s fire station is 1.75 square miles. The number of firefighters serving within a particular jurisdiction is another indicator of level of service; however, it is approximate. The providers’ call firefighters may have differing availability and reliability. A district with more firefighters could have fewer resources if scheduling availability is restricted. Staffing levels in Calaveras County vary from 3.2 sworn firefighters per 1,000 residents in JLFPD service area to 13 in MHFPD District. There are approximately five firefighters per 1,000 residents in EBFPD. 52 Urban demand zone has population density of more than 1,000 people per square mile; suburban zone—between 500 and 1,000 people per square mile, rural zone—less than 500 people per square mile, and remote zone is identified by eight or more miles of travel distance to an incident. 53 Service area refers to the area that the agency will respond to, based on a first responder map used by the Sherriff’s office. EPFPD ]É{Ç UxÇÉ|à tÇw cÉÄ|vç VÉÇáâÄà|Çz TááÉv|tàxá? __V 127 CALAVERAS LAFCO COUNTYWIDE FIRE MUNICIPAL SERVICE REVIEW Figure 7-7: Ebbetts Pass FPD Fire Service Profile Fire Service Facilities Firestation Location Condition Staff per Shift Vehicles Station 1 1037 Blagen Road, Excellent 6 sworn personnel Truck 431, Medic Engine 435, Medic Engine Arnold, CA 436, Water Tender 431, Engine 431, medic 435, medic 433, and medic 431. Station 2 5510 Meko Drive, Arnold Very Good Unstaffed Engine 432 and medic 432 CA Station 3 40 Canyon View, Arnold, Good 2 sworn personnel Medic Engine 437 and medic 437 CA Station 4 2038 Moran Road, Very Good Unstaffed Engine 434 Arnold, CA Facility Sharing Current Practices: EPFPD occassionally provides training to other EMS & fire providers at EPFPD facilities. EPFPD jointly maintains a two-pad landing facility with USFA in Hathaway Pines. Future opportunities: No future opportunities for facility sharing were identified. Infrastructure Needs and Deficiencies The District in the near future will need upgrades at Station 2 and Station 3. There may be a need for a new station in Forest Meadows area. District Resource Statistics Service Configuration Service Demand Staffing Base Year 2012 Configuration Base Year 2012 Statistical Base Year 2011 Fire Stations in District 4 Fire Suppression Direct Total Service Calls 1,148 Stations Serving District 4 EMS Direct % EMS 63% Sq. Miles Served per Station1 49 Ambulance Transport Direct % Fire/Hazardous Materials 11% Total Staff2 54 Hazardous Materials Direct % False 3% Total Full-time Firefighters 22Air Rescue/Ambulance HelicopterPHI, Calstar % Misc. emergency 14% Total Call Firefighters 31Fire Suppression Helicopter CalFire % Non-emergency 9% Total Sworn Staff per Station3 13Public Safety Answering Point Sheriff % Mutual Aid Calls 15% Total Sworn Staff per 1,000 5Fire/EMS Dispatch CalFire Calls per 1,000 people 82 Service Adequacy Service Challenges Georgraphy and weather are the biggest challenges for EPFPD. Volunteerism is Response Time Base Year 2011 on the decline. Average Response Time (min) 5.25 Training 90th Percentile Response Time (min) 12.5 Employed staff trains 360 hours a year. Volunteers receive training to ISO Rating 4/8 (2009) Firefighter I and EMT-B certifications. Mutual & Automatic Aid Agreements The District has automatic aid agreements with Murphys FPD and Bear Valley/Alpine County Fire and mutual aid agreements with CalFire and California State Parks. Notes: 1) Primary service area (square miles) per station. 2) Total staff includes sworn and non-sworn personnel. 3) Based on ratio of sworn full-time and call staff to the number of stations. Actual staffing levels of each station vary. EPFPD ]É{Ç UxÇÉ|à tÇw cÉÄ|vç VÉÇáâÄà|Çz TááÉv|tàxá? __V 128 CAALAVERAS LAAFCO COUNTYYWIDE FIRE MUNICIPAL SERVICE REVIEW EBBEETTS PAASS FIREE PROTEECTION DISTRICT DETERRMINATIONS Growtth and PPopulatiion Projjectionss  Ebbetts Passs Fire Protecction Districct (EPFPD) currently hhas an estimmated populaation of 10,636.  OOver the lastt few years,, the Districct has experrienced an increase in sservice demmand, wwith an exception of laast year whhen servicee demand wwent slightly down duue to unusually warm winterr and conseequently fewwer accidennts on highwways and aat the skki resort.  EPFPD anticipates growwth in popullation and ssimilarly in service demmand withinn the DDistrict in the next feww years. Thhis increase is anticippated due to two planned developmentts, the expaansion of BBear Valley Ski Resortt, and a surrge in trannsient vacationing ppopulation. The Location and Chharacterristics oof Disadvantageed Unincorporatted Commmunitiees Within or Coontiguous to thhe Agenccy’s SOI  BBased on 22010 Censuus income informatioon for Cennsus Designnated Placees in Calaveras Coounty, the AAvery and Dorringtonn Census Designated PPlaces meet the inncome deffinition off disadvanntaged uniincorporateed commuunities. Both coommunitiess are locatedd within EPFPD’s bounnds and spheere of influeence. Present and PPlannedd Capaciity of Puublic Faacilities and Adequuacy of Public SServicess, Includding Inffrastruccture Needss and Deeficiencies  DDistrict facilities have sufficient capacity tto provide adequate services wwithin EBFPD’s currrent serviice area. CCurrent ressponse times meet MMountain VValley Emergency MMedical Servvices Agenccy standardss for responnse to mediccal emergenncies.  Capital imprrovement pprojects are planned inn a Capital Improvement Plan wwith a planning horrizon of fivee years. Thee plan is upddated everyy five to seveen years.  TThe District reported thhat it did noot have any immediate infrastructuure needs. SSome shhort-term nneeds includde upgradess to Stationss 2 and 3. Inn addition, tthere is a plan to acquire another type II engine annd a possibble need foor a stationn in the Forest MMeadows areea.  EPFPD serviices appear to be adeqquate basedd on responnse times, sttaffing levell and ISSO rating. Financial Abiility of Agenciees to Proovide Seervices  TThe District rreports thatt current finnancing leveels are adeqquate to deliiver servicees. EPFPD ]É{Ç UUxxÇÉ|à tÇw cÉÄ|vvçç VÉÇáâÄà|Çz TááÉv|tàxá? ___V 129 CALAVERAS LAFCO COUNTYWIDE FIRE MUNICIPAL SERVICE REVIEW  The only challenge to financing identified by the District was the fact that EPFPD had deferred replacing equipment, due to the State borrowing funds a few years ago.  The District expects to receive the money borrowed by the State in 2013 and to purchase a type I fire engine.  The District’s main financing sources are property taxes, two voter-approved special tax measures and ambulance transport fees.  Residents do not pay out-of-pocket fees for the ambulance service provided by EPFPD. Non-residents are charged for ambulance services.  The District has a policy to hold three financial reserves—the first is for purchases of apparatus and other vehicles; second is a building fund and third is an emergency/contingency fund. In addition, two emergency medical service trust funds were established to maintain long-term funding for the firefighter/paramedic and ambulance program.  EPFPD has three outstanding long-term loans. The current debt balance is approximately $3.8 million. Status of, and Opportunities for, Shared Facilities  The District has automatic aid agreements with Murphys FPD and Bear Valley/Alpine County Fire Department and mutual aid agreements with CalFire and California State Parks.  Ebbetts Pass FPD is a member of an extensive number of collaborative organizations.  The District occasionally uses its facilities to provide training services to other fire service providers.  EPFPD jointly maintains a two-pad landing facility with USFA in Hathaway Pines.  EPFPD did not identify additional opportunities for facility sharing. Accountability for Community Service Needs, Including Governmental Structure and Operational Efficiencies  EPFPD demonstrated accountability in its disclosure of information and cooperation with Calaveras LAFCO. The District responded to the questionnaires and cooperated with the document requests.  The District has a website through which it keeps its constituents up to date on EPFPD activities.  Governance structure options include consolidation with Murphys FPD or Bear Valley FPD of Alpine County. However, no serious discussions have occurred to date. EPFPD ]É{Ç UxÇÉ|à tÇw cÉÄ|vç VÉÇáâÄà|Çz TááÉv|tàxá? __V 130 CAALAVERAS LAAFCO COUNTYYWIDE FIRE MUNICIPAL SERVICE REVIEW 8.. FOOOT HIIL L FFI R E PROT ECTT I O N D ISST R ICCT Foothhill Fire Prootection Disstrict (FFPDD) provides structure fiire protectioon, wildlandd fire protectioon, emergeency mediccal responsse, fire preevention seervices, homme inspecttions, hazardous materials assistancee, and publicc service assistance. AGENCYY OVERVVIEW Backgground Foothhill Fire Prootection Disstrict was fformed in 22000. The Calaveras CCounty Board of Supervissors and Caalaveras LAAFCO, in 1999 and 20000, took forrmal actionns to implemment reorganiization of the fire pprotection districts inn Calaverass County. At that time, responsiibility for fire protectioon was trannsferred fromm Valley Spprings Publiic Utility Disstrict to the neewly createdd Foothill Fiire Protection District. The pprincipal acct that goveerns the District is the Fire Protecction Districct Law of 19987.54 The prinncipal act eempowers ffire districtts to providde fire prottection, resscue, emerggency medical, hazardouss material rresponse, ammbulance, aand any othher servicess relating too the protectioon of lives and propeerty.55 Districts must aapply and oobtain LAFFCO approvval to exercise services aauthorized bby the prinncipal act bbut not alrready proviided (i.e., laatent powers) by the district at the end of 2000..56 FFPDD is located in the nortthwestern pportion of CCalaveras Coounty. The District borrders Jenny Liind FPD in the southwwest, Coppeeropolis FPDD in the soouth, and Saan Andreass and Mokelummne Hill FPDs in the eaast. FFPD iss adjacent tto San Joaquuin County in the westt and Amador County in tthe north. Boundarries The DDistrict servves the commmunities off Valley Sprrings, Bursoon and Wallaace along thhe SR 12 corriddor, as welll as the areaa around Neew Hogan RReservoir. The District’ss boundaryy area encompaasses approoximately 1001 square mmiles. The DDistrict has undertakenn one annexxation sincee its formation. The Disttrict, througgh an agreemeent with thee County of Calaveras, hhistorically provided services to the area souuth of New Hoggan Reservooir. Althouggh outside oof the Distriict’s boundaaries, the arrea was annnexed into the District in 2007. Thee single annnexation enncompassedd 13,517 acrres south oof the reservoir.57 54 Health annd Safety Code §§13800-13970. 55 Health annd Safety Code §§13862. 56 Governmment Code §568224.10. 57 LAFCO Reesolution 2007-0003. FFPD ]É{Ç UUxxÇÉ|à tÇw cÉÄ|vvçç VÉÇáâÄà|Çz TááÉv|tàxá? ___V 131 CALAVERAS LAFCO COUNTYWIDE FIRE MUNICIPAL SERVICE REVIEW Sphere of Influence In 2005, during the sphere of influence (SOI) updates, FFPD’s SOI was expanded from being coterminous to include the New Hogan Lake area. A portion of this area was annexed in 2007, as described above. In 2009, the remainder of the territory within the SOI but outside the District’s bounds was transferred to Jenny Lind FPD’s SOI. This area included the Southern New Hogan Lake area (approximately 6,501 acres) and the Cane Lane area (about 27 acres).58 FFPD’s boundary and SOI are now coterminous. Extra-territorial Services The District responds to wildland fires and gets reimbursed from the State for its strike team assignments and any incident requiring FFPD’s equipment for more than two hours. FFPD occasionally provides services outside of its bounds through several mutual aid agreements with other surrounding fire districts, including Jenny Lind, Mokelumne Hill, and San Andreas FPDs, the Clements Fire Department located in San Joaquin County, and Jackson Valley FPD in Amador County. Areas of Significance Of particular significance to FFPD is Jenny Lind FPD, with which the District recently completed consolidation. The districts formed the Calaveras Consolidated Fire Protection Joint Powers Authority, which became effective July 1, 2012, and subsequently received LAFCO approval for a full formal consolidation in May 2013. 58 LAFCO Resolution 2009-0001. FFPD ]É{Ç UxÇÉ|à tÇw cÉÄ|vç VÉÇáâÄà|Çz TááÉv|tàxá? __V 132 ^_ ^_ ^_ ^_ ^_ ^_ ^_ ^_ ^_ ^_ ·|}þ 26 ·|}þ ^_ 49 n HWY 26 Calaveras County Foothill Fire Protection District ·|}þ Foothill FPD & SOI County Boundary WIN ST 26 G Other Fire Protection Districts Waterbodies Mokelumne Hill FPD n n District Fire Facilities Amador C P O a o th r u c e e n r l s t C y ounties Amador County Pardee Reservoir GOODELL RD ^_ ^_ Non-District Fire Facilities ^_ MAIN ST Highways Towns WY 49 ^_ ^_ PENN MINE RD PARDEE DAM R D CAMPO SECO RD PA G IL L LA O M M R A D RD BEAL RANCH RD NEILS ON RD H LOMBARD ·|}þ I 4 DR 9 Camanche Reservoir CAMANCHE PARKWAY SOUTH PATTISON R D S H T U O N N T E E L R N D C R HILE CAMP RD DA ^_ PHNE n STValley Springs DOUBLE SPRINGS RD HWY 12 San Andreas FP ·|}þ 1 D 2 ^_ n San Andreas FPD M EAG AN LN n BURS ON RDSTURM WY EVANS RD QUAIL OAKS RD WHALEN RD FERSEYNA WY GER RD NEW HOn GAN PY ^_ ^_ ^_ ^_ San Joaquin County Alp S in O e U C TH W o O RT u H n R t D y OSPITAL RD MILES RD WARR PETTIN EN A E ME R ALD M L R N D D O A S N LN A RD HWY 26 OLI C V NL ENIHPESOJ E A R O O RC L H L A N RD H M R n I E D L A L D V C O A A S W S L IDY R D E O A D K G R S A R D NE R R B P E M B L R AL C K D E C W S B E A I L N Y A U L S I L R N T E D Y R R n D US H A H RTV E IC R K S S D O IL N R L V N ER RAPID V S I S R T D A DEL LAGO DR N G AN e N R w D Hogan Reservoir Copperopolis n FPD SHELT ON RD AMIEL WY JOHNSO RD ELTRYM N TL MILT O O P K A N L N LN R O D LL DR O R IELLY M S A J In T N e ST n N n A H y L A L U T S L L T Y i L n N L d AN F FO P RD D PACHEO RD 0 0.5 PALOMIN O R IDG E RD 1 2 3 HOGAN DAM RD 4 WALKER T 5 R M A i IL le R s D « ^_ ^_ ^_ ^_ ^_ ^_ ^_ ^_ ^_ ^_ ^_ ^_ ^_ ^_ ^_ ^_ ^_ CALAVERAS LAFCO COUNTYWIDE FIRE MUNICIPAL SERVICE REVIEW Accountability and Governance 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 MSR process and information disclosure. The principal act orders that the board of directors of a fire protection district must have an odd number of members, with a minimum of three and a maximum of 11 members. Directors may be appointed or elected.59 FFPD is governed by a five-member board of directors elected at large. Two members serve two-year terms and three members serve four-year terms. Current board member names, positions, and term expiration dates are shown in Figure 8-2. The Board meets on the second Wednesday of every month at seven in the evening at FFPD’s Station 1. Board meeting agendas are posted at Station 1, several post offices and on the District’s website. Minutes are available on the website and upon request. Figure 8-2: Foothill Fire Protection District Governing Body Foothill Fire Protection District District Contact Information Contact: Chief Kim Olson Address: 3255 Helisma Road, Valley Springs, CA 95252 Telephone: 209-772-0202 Fax: 209-772-0202 Email/website: chief@foothillfire.org Board of Directors Member Name Position Term Expiration Manner of Selection Length of Term David Sant Chair 2015 Elected 4 years Ronald Spradlin Vice Chair 2015 Elected 4 years Ken Glissman Board Member 2016 Elected 4 years Tim Runion Board Member 2016 Elected 4 years Jeff Palm Board Member 2015 Elected 4 years Meetings Date: Second Wednesday of the month at 7:00pm Location: Fire Station 1 - 3255 Helisma Road Agenda Distribution: Posted at Station 1, Wallace, Camp Seco, Valley Spings and Burson post offices, and Minutes Distribution: Recorded and posted on website, and hard copy available on request. In addition to the District’s governing body, the services of FFPD and Jenny Lind FPD are overseen by the Calaveras Consolidated Fire Protection JPA governing body. The JPA board consists of the boards of both districts. JPA meetings are held on the fourth Wednesday of the month at seven in the evening at FFPD’s Station1. 59 Health and Safety Code §13842. FFPD ]É{Ç UxÇÉ|à tÇw cÉÄ|vç VÉÇáâÄà|Çz TááÉv|tàxá? __V 134 CALAVERAS LAFCO COUNTYWIDE FIRE MUNICIPAL SERVICE REVIEW In addition to the required agendas and minutes, the District tries to reach its constituents through involvement at various events, including the Christmas Parade, Halloween Festival and other community events. Additionally, FFPD makes visits to childcare facilities. FFPD and Calaveras Consolidated Fire Protection JPA maintain websites where documents and information are made available to the public. If a customer is dissatisfied with the District’s services, complaints are accepted in writing either by letter or via the complaint form. Complaints may also be directed to the Board at the regular meetings. The fire chief is responsible for handling complaints. Should a complaint not be resolved to the complainant’s satisfaction, then it is referred to the Board for resolution. The District reported that there were no complaints in 2011. During the MSR process in 2005, the District did not fully respond to LAFCO’s data request so additional information about the FFPD was not included in the report. During the course of this MSR process FFPD demonstrated partial accountability in its disclosure of information and cooperation with Calaveras LAFCO. The District responded to the questionnaires and cooperated with interview and document requests; however, FFPD’s response to written questionnaires required multiple follow-up attempts. Planning and Management Practices 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’s mission statement states: The Foothill Fire Protection District will provide fire protection and any other services related to the protection of life and property, to advance a safe district and to maintain a high quality of fire safety to the residents of the unincorporated areas of Calaveras County, including Valley Springs, Burson, Wallace and Campo Seco. The District has one part-time fire chief, one full-time deputy chief, three full-time captains, one part-time administrative assistant (all shared through the JPA with FFPD) and approximately 20 volunteer firefighters. Captains are responsible for day-to-day operations of the District. The chief is responsible for administration and budget. The chief reports to the Board of Directors and oversees the deputy chief. The deputy chief manages the administrative assistant, administrative captains and captains. The firefighters report to the captains. Volunteer captains perform quarterly evaluations of the volunteer firefighters. The captains and administrative assistant are reviewed by the chief. The chief is evaluated by the Board of Directors. FFPD does not conduct regular evaluations of the District’s overall performance through either benchmarking or annual reports. The District has in the past completed occasional annual reports, the most recent of which was done in 2009. Additionally, FFPD conducted benchmarking of fees charged by other similar fire service providers as part of its strategic planning process in 2008. FFPD ]É{Ç UxÇÉ|à tÇw cÉÄ|vç VÉÇáâÄà|Çz TááÉv|tàxá? __V 135 CALAVERAS LAFCO COUNTYWIDE FIRE MUNICIPAL SERVICE REVIEW The District tracks staff workload through an apparatus maintenance log, daily, weekly and monthly staffing, training, and maintenance schedules. FFPD also tracks calls and responses through an emergency report system. The District’s financial planning efforts include an annually adopted budget and annually audited financial statements. FFPD does not adopt a plan specific to capital improvement needs, but plans for capital improvements in the Jenny Lind/Foothill joint strategic plan, which is currently being developed. The District reported that it formed a planning committee with Jenny Lind FPD to look at long-term needs, since numerous changes are anticipated now that consolidation with Jenny Lind FPD is complete. Capital improvement needs will be updated annually. Additionally, FFPD previously completed a strategic plan in 2008, which outlines long-term goals through 2018 and planned capital replacement needs. Existing Demand and Growth Projections This section discusses the factors affecting service demand, such as land uses, and historical and anticipated population growth. Land Use Primary land uses within the District are residential, agriculture preserve, residential agriculture, and commercial. The District’s bounds encompass the Valley Springs Community Plan Area and the La Contenta Community Center. The District’s boundary area is approximately 101 square miles. Population There are about 6,563 residents within FFPD, based on census place population in the 2010 Census.60 The population density within the District is 65 people per square mile. Existing Demand The District reported that its peak demand times were from 10 in the morning until about seven in the evening. Calls for medical emergencies are consistently high in volume throughout the year, similar to other fire districts in the region. The District reported that it had observed a slight increase in call volume in the last few years. FFPD attributed this increase to an influx of people moving into cheaper real estate in the area. 60 Estimates of GIS consultant based on Census 2010 blocks. FFPD ]É{Ç UxÇÉ|à tÇw cÉÄ|vç VÉÇáâÄà|Çz TááÉv|tàxá? __V 136 CALAVERAS LAFCO COUNTYWIDE FIRE MUNICIPAL SERVICE REVIEW Figure 8-3: FFPD Number of Calls by Year, 2009-2011 As shown in Figure 8-3, the 900 number of calls has increased 800 significantly over the last three 700 years; from 697 calls in 2009 to 600 835 calls in 2011. 500 Projected Growth and 400 Development 300 FFPD anticipates growth in 200 population and similarly in service 100 demand within the District in the 0 next few years; however, no 2009 2010 2011 formal population projections have been made by the District. Several tentative maps for developments have been approved within the District’s boundaries. Proposed developments are concentrated around Valley Springs and Wallace. Should these developments come to fruition, then the District anticipates significant growth and a resulting increase in demand. While FFPD reported that it presently has the capacity to provide an adequate level of service to the existing level of demand, any further growth would require full-time staff to respond within a reasonable time. The State Department of Finance (DOF) projects that the population of Calaveras County will grow by eight percent in the next 10 years. Thus, the average annual population growth in the County is anticipated to be approximately 0.8 percent. Based on these projections, the District’s population would increase from 6,563 in 2010 to approximately 7,088 in 2020. It is anticipated that demand for service within the District will increase minimally based on the DOF population growth projections through 2020. Growth Strategies The District is not a land use authority, and does not hold primary responsibility for implementing growth strategies. The land use authority for unincorporated areas is the County. The County’s General Plan is presently being updated. Some of the fire districts reported that the County sought input from them on General Plan update. FFPD submitted a letter with input on the General Plan update and issues concerning fire service provision. FFPD projects the future level of demand based on the status of planned and proposed developments. The District closely tracks the stage of each development and ensures that equipment and water sources are sufficient for providing services. With regard to governance structure alternatives, FFPD and Jenny Lind FPD recently transitioned from a joint powers authority to a fully consolidated district called Calaveras Consolidated Fire Protection District. FFPD ]É{Ç UxÇÉ|à tÇw cÉÄ|vç VÉÇáâÄà|Çz TááÉv|tàxá? __V 137 CALAVERAS LAFCO COUNTYWIDE FIRE MUNICIPAL SERVICE REVIEW Financing The financial ability of agencies to provide services is affected by available financing sources and financing constraints. This section discusses the major financing constraints faced by the District and identifies the revenue sources currently available to the District. The District reported that its financing levels were not adequate to deliver services. The recent economic recession has caused a decrease in FFPD’s revenues, as a result of declining property values. FFPD has been forced to make significant cost reductions by eliminating two paid positions—a battalion chief and assistant chief—as well as, defering equipment and vehicle replacement. The District’s revenue for FY 10-11 was $278,825. Revenue sources included property taxes (56 percent), sale of assets (34 percent) revenues from grants and contributions (five percent), charges for services (four percent), and interest (one percent). The District has established a fee structure to recoup costs associated with issuance of permits, inspections and plan reviews. The District does not charge fees for emergency fire or medical responses. FFPD’s expenditures amounted to $301,823 in FY 10-11. Of this amount, 64 percent was spent on salaries, employee benefits, services and supplies, 31 percent on the principal and interest payments on a long-term loan, and six percent on capital outlays. In 2002, the District obtained financing from Westamerica Bank for two fire trucks and other equipment. The lease called for annual payments ranging from $26,000 to $49,000 and matured in December 2011. FFPD elected to pay the remaining liability in full at the end of FY 10-11. The District no longer has any long-term liabilities. The District has a management practice to retain 25 percent of expenditures in a reserve fund for contingencies. The District also maintains a committed reserve fund for specified uses. There is no established practice as to how much is retained in the committed reserve fund. At the end of FY 10-11, FFPD retained an unassigned fund balance of $157,548 and a committed reserve fund balance of $4,464. In July 2012, FFPD entered into a JPA with Jenny Lind FPD, as a first step in the consolidation process. The two agencies shared in the costs of coordinated planning, administration, operation and financing of services to the two service areas. Member financial contributions into the JPA were determined by the joint Board of Directors on an annual basis. However, as a result of the recently approved consolidation, the newly formed district will now share all financing. FFPD ]É{Ç UxÇÉ|à tÇw cÉÄ|vç VÉÇáâÄà|Çz TááÉv|tàxá? __V 138 CAALAVERAS LAAFCO COUNTYYWIDE FIRE MUNICIPAL SERVICE REVIEW FIRRE AND EMS SEERVICESS Servicce Overvview FFPDD provides comprehennsive fire prrotection seervices to rresidents of the Distriict. A detailed descriptionn of the servvices offeredd by FFPD iss shown in FFigure 8-4. Figure 8-4: FFPD Servvice Matrix CCalaveraas Countyy Fire Seervices MMatrix Foothhill Fire PProtection Distrrict SService Providded ? Strructural firee protectionn Yess Wildland fire protection Yess Veehicle fire protection Yess Laadder truck capabilitiess Yess Emmergency mmedical servvices Yess Baasic life suppport Yess Addvanced lifee support Noo Addvanced lifee support transport Noo Haazardous mmaterials emergency ressponse Yess Firre preventioon Yess Firre safety edducation Yess Firrst respondder swift waater and loww angle ropee rescue Yess Puublic servicee assists Yess Oxxygen fillingg for breathing apparattuses Yess Heelicopter faccilities Noo Jawws of Life toools Yess Reesponse to bboating acciidents Yess Water rescuee Yess Divve and ice rrescue Noo Firre investigaation Yess Hoome inspecttions Yess Otther (pleasee indicate) Noo In adddition to these servicces, FFPD provides conntract fire pprotection services to East Bay Munnicipal Utiliity District and the Neew Hogan LLake Federaal Agency, aas well as sstrike team serrvices to Callifornia Emeergency Management AAgency. FFPD ]É{Ç UUxxÇÉ|à tÇw cÉÄ|vvçç VÉÇáâÄà|Çz TááÉv|tàxá? ___V 139 CALAVERAS LAFCO COUNTYWIDE FIRE MUNICIPAL SERVICE REVIEW Collaboration FFPD practices significant collaboration and cost sharing through its JPA with JLFPD, as well as its various automatic and mutual aid agreements. Additionally, FFPD is a member of the Calaveras County Fire Chiefs’ Association. Dispatch and communications The District's emergency dispatch and communication needs are served through a Calaveras County contract with the California Department of Forestry and Fire Protection's (CalFire) Emergency Command Center (ECC) in San Andreas. There is currently no fee charged to local government fire protection agencies by Calaveras County. Dispatching is handled through joint use of the command frequency assigned to the Tuolumne-Calaveras Unit. The State Office of Emergency Services and County assigned tactical frequencies are also available for local use. The Calaveras County Sheriff's Office serves as the Primary Public Safety Answering Point where all landline calls within the County are originally directed. Fire incidents are directed to the ECC. Off-duty paid personnel and volunteers are alerted by "pager." FFPD reported that there were significant deficiencies in dispatch service. The District’s primary concern is that CalFire units are given priority for check backs to the Command Center and there is little or no chance for local fire crews to check in upon response about conditions at the scene. Dispatch for the County is handled on a single channel, while other areas typically rely on one channel for dispatch and another channel for incident reporting. Similar to JLFPD, the District is evaluating its dispatching options. Staffing FFPD has 25 sworn personnel—one part-time fire chief, one full-time deputy chief, three full-time captains, and 20 volunteer firefighters. All personnel are shared with JLFPD through the JPA. Captains are paid $85 per 24-hour shift, engineers are paid $75 per 24- hour shift, and firefighters receive a stipend of $65 per 24-hour shift, disbursed once a month. Volunteers receive monthly benefit from a countywide SAFER grant, based on points earned from attending training and other district activities. The median age of the firefighters is 27, with a range from 18 to 61. According to the California State Fire Marshal, all paid, volunteer and call firefighters must acquire Firefighter I certification; however, there is no time limit as to how long they may work before attaining certification. Firefighter I certification requires completion of the 259-hour Firefighter I course, which includes training on various fireground tasks, rescue operations, fire prevention and investigation techniques, and inspection and maintenance of equipment. In addition to this course, Firefighter I certification also requires that the applicant have a minimum of six months of volunteer or call experience in a California fire department as a firefighter performing suppression duties.61 FFPD has 20 Firefighter I, and 13 EMT, and five paramedic certified personnel. It is FFPD’s goal to have 100 percent of its volunteers Firefighter II certified. 61 State Fire Marshal, Course Information and Required Materials, 2007, p. 44 FFPD ]É{Ç UxÇÉ|à tÇw cÉÄ|vç VÉÇáâÄà|Çz TááÉv|tàxá? __V 140 CALAVERAS LAFCO COUNTYWIDE FIRE MUNICIPAL SERVICE REVIEW As a volunteer agency, FFPD reported that achieving certification can be a challenge for all firefighters, given that volunteers have other work and private obligations hindering attendance at all training events and the retention rate among volunteers has been declining in recent years. Certifying the current members at a Firefigher I level and mandatory eight months of weekly evening instruction and drills every other Saturday require significant time commitment by the purely volunteer staff. This training schedule is designed to achieve the 100 percent Firefighter certification goal. In addition to the ongoing training schedule, new volunteers enter into a six-month agreement during which they must complete predetermined lesson plans with written and manipulated skill assignments. New recruits are tracked and evaluated by their assigned captain on a quarterly basis. FFPD tries to recruit more volunteers by advertising at local junior colleges and through a high school Regional Occupational Program. Facilities and Capacity The District currently operates two fire stations. Station 1 is located in Burson on Hellisima Road. The station was built by the District in 2006 and is considered to be in good condition. The station is staffed with two firefighters from 9pm to 9am. Station 1 houses three fire engines, one water tender, and two utility/command vehicles. Station 2 is located in Valley Springs and was recently purchased for $50,000 from the Valley Springs Public Utility District. The station was built in 1956 and is considered to be in fair condition. The station is staffed with two firefighters from 9am to 9pm and houses two fire engines. For water supply, the District uses one water tender. It appears that currently there is marginally sufficient capacity to provide adequate services. Station 2 is in fair condition and requires upgrades or replacement; however, Station 1 is in good working condition. Current response times meet Mountain Valley Emergency Medical Services Agency standards for response to medical emergencies. Infrastructure Needs Station 2 was identified as being dated and no longer meeting the needs of the District. Station 2 was recently purchased from Valley Springs Public Utility District. FFPD has hired an architect to help evaluate how the District may be able to maximize additional living quarters. Additionally, a new station in the community of Wallace would greatly reduce response times to the area, given that the nearest station is over six miles away in Burson. However, the District does not currently have sufficient funds to develop a station in the area. Challenges FFPD reported that response times to the area around Wallace and Southward Estates can be longer than other areas of the District given the distance of the nearest station. No other areas were identified as being particularly difficult to serve or access. FFPD ]É{Ç UxÇÉ|à tÇw cÉÄ|vç VÉÇáâÄà|Çz TááÉv|tàxá? __V 141 CALAVERAS LAFCO COUNTYWIDE FIRE MUNICIPAL SERVICE REVIEW Limited financing was also identified as a challenge for the District. The decline in revenue over the last few years has resulted in deferred maintenance. The District has applied for a grant to get two new engines; however, funding is still necessary to refurbish or replace Station 2. Service Adequacy While there are several benchmarks that may define the level of fire service provided by an agency, indicators of service adequacy discussed here include ISO ratings, response times, and level of staffing and station resources for the service area. Fire services in the communities are classified by the Insurance Service Office (ISO), an advisory organization. This classification indicates the general adequacy of coverage, with classes ranking from 1 to 10. 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 six in urban (hydrated) areas and eight in rural areas. The most recent evaluation was completed in 1983. The National Fire Protection Association (NFPA) has issued a performance standard for volunteer and combination fire departments (NFPA 1720). This standard, among other guidelines, identifies target response time performance for structure fires. The response time is measured from the completion of the dispatch notification to the arrival time of the first-responder at the scene. Though not a legal mandate, NFPA 1720 does provide a useful benchmark against which to measure fire department performance. NFPA 1720 recommends that the response times for structure fire be nine minutes in urban demand zones at least 90 percent of the time, 10 minutes in suburban zones at least 80 percent of the time and 14 minutes in rural zones at least 80 percent of the time. Response times in remote zones are directly dependent on travel distances.62 All fire service providers in Calaveras County, except for the City of Angels Camp Fire Department, fall within the definition of a rural demand zone. The City of Angels Camp FD is an urban demand zone. Emergency response time standards vary by level of urbanization of an area: the more urban an area, the faster a response should be. Calaveras County is not broken down into wilderness, rural and urban designations for response time standards like other counties. Instead, Mountain Valley Emergency Medical Services Agency has divided Calaveras County into three zones for EMS and ambulance services. The northern and southern zones are served by American Legion and the eastern zone (which is the same as the Ebbetts Pass FPD boundary area) is served by Ebbetts Pass FPD. In the northern and southern zones the response time guideline is 20 minutes 90 percent of the time, and 13 minutes 90 percent of the time in the eastern zone. These standards are intended for the ambulance contract providers; however, they indicate what is considered appropriate response times for medical emergencies. Based on response time data recorded by CalFire in 2011, FFPD’s average response time was five minutes and the 90th percentile response time was 10.35 minutes. It should 62 Urban demand zone has population density of more than 1,000 people per square mile; suburban zone—between 500 and 1,000 people per square mile, rural zone—less than 500 people per square mile, and remote zone is identified by eight or more miles of travel distance to an incident. FFPD ]É{Ç UxÇÉ|à tÇw cÉÄ|vç VÉÇáâÄà|Çz TááÉv|tàxá? __V 142 CALAVERAS LAFCO COUNTYWIDE FIRE MUNICIPAL SERVICE REVIEW be noted that CalFire’s methodology for tracking response times differs from that of the districts. While the districts generally start timing from the time the engines leave the facility, CalFire starts timing after checking back in with the responder after dispatch, which is often when the District is already en route to the scene. Consequently, response times reported by CalFire for each incident tend to be shorter than those recorded by each district. An area that FFPD can improve upon is tracking its response time for each incident and collaborating with CalFire on data exchange, which would allow for more structured response and enhanced efficiency and consistency. The service area size63 for each fire station varies between fire districts. The median fire station in Calaveras County serves approximately 34 square miles. Although EPFPD serves the most expansive area (195 square miles), AMFPD stations serve larger area per station, with 77.5 square miles served per station on average. Densely populated areas tend to have smaller service areas. For example, the average service area for the City of Angels Camp Fire Department’s fire station is 1.75 square miles. By comparison, each fire station in FFPD serves approximately 50.5 square miles. The number of firefighters serving within a particular jurisdiction is another indicator of level of service; however, it is approximate. The providers’ call firefighters may have differing availability and reliability. A district with more firefighters could have fewer resources if scheduling availability is restricted. Staffing levels in Calaveras County vary from 3.2 sworn firefighters per 1,000 residents in JLFPD’s service area to 13 in MHFPD. By comparison, there are 3.8 firefighters per 1,000 residents in FFPD.64 63 Service area refers to the area that the agency will respond to, based on a first responder map used by the Sherriff’s office. 64 Based on shared full-time staffing with JLFPD. FFPD ]É{Ç UxÇÉ|à tÇw cÉÄ|vç VÉÇáâÄà|Çz TááÉv|tàxá? __V 143 CALAVERAS LAFCO COUNTYWIDE FIRE MUNICIPAL SERVICE REVIEW Figure 8-5: Foothill Fire Protection District Service Profile Fire Service Facilities Firestation Location Condition Staff per Shift Vehicles Station 1 3255 Helisma Rd. Good Seven days a week from 9PM 3 fire engines, 1 water tender, 2 Burson CA, 95225 till 9AM by two firefighters utility/command vehicles Station 2 129 E. SR 12 Valley Fair Seven days a week from 9AM 2 fire engines Springs CA, 95252 till 9PM by two firefighters Facility Sharing Current Practices: FFPD is a member of the Calaveras Fire Chiefs’ Association and provides strike team resources to Cal EMA. FFPD and JLFPD share resources through a JPA which a first step towards consolidation. Future opportunities: FFPD and JLFPD plan to combine their resouces through a consolidation process. Infrastructure Needs and Deficiencies Station 2 is in fair condition and requires upgrades or replacement. District Resource Statistics Service Configuration Service Demand Staffing Base Year 2012 Configuration Base Year 2012 Statistical Base Year 2011 Fire Stations in District 2 Fire Suppression Direct Total Service Calls 835 Stations Serving District 2 EMS Direct % EMS 82% Sq. Miles Served per Station1 50.5 Ambulance Transport American Legion % Fire/Hazardous Materials 0% Total Staff2 26 Hazardous Materials Direct % False 4% Total Full-time Firefighters3 4Air Rescue/Ambulance Helicopter PHI, Reach % Misc. emergency 7% Total Call Firefighters 20Fire Suppression Helicopter CalFire % Non-emergency 6% Total Sworn Staff per Station4 12.5Public Safety Answering Point Sheriff % Mutual Aid Calls 6% Total Sworn Staff per 1,000 3.8Fire/EMS Dispatch CalFire Calls per 1,000 people 131 Service Adequacy Service Challenges Response Time Base Year 2011 Declining revenues with increased demand for services was identified as the Average Response Time (min) 5 Training 90th Percentile Response Time (min) 10.4 FFPD offers its paid and volunteer firefighters 75 hours per month of training. Minimum requirements: paid staff- FF1/EMT/CPR; volunteers- ISO Rating 6/8 (1983) VVF/1st responder/CPR. Mutual & Automatic Aid Agreements FFPD has mutual aid agreements with Jenny Lind, Mokelumne Hill, and San Andreas FPDs, the Clements Fire Department located in San Joaquin County, and Jackson Valley FPD in Amador County. Notes: 1) Primary service area (square miles) per station. 2) Total staff includes sworn and non-sworn personnel. 3) Shared with FFPD through JPA. 4) Based on ratio of sworn full-time and call staff to the number of stations. Actual staffing levels of each station vary. FFPD ]É{Ç UxÇÉ|à 9 cÉÄ|vç VÉÇáâÄà|Çz TááÉv|tàxá? __V 144 CAALAVERAS LAAFCO COUNTYYWIDE FIRE MUNICIPAL SERVICE REVIEW FOOTTHILL FFIRE PROTECTIOON DISTTRICT DDETERMINATIONNS Growtth and PPopulatiion Projjectionss  Foothill Fire Protection District (FFFPD) had a populationn of approxiimately 6,5663 as of the 2010 CCensus.  TThe District reported thhat it had obbserved a sllight increase in call voolume in thee last feew years. FFFPD attribuuted this inccrease to ann influx of ppeople moviing into cheeaper reeal estate inn the area.  FFPD anticippates growtth in populaation and siimilarly in service demmand withinn the DDistrict in thhe next few years. Sevveral tentatiive maps foor developmments have been approved wwithin the District’s boundariies. Propposed devvelopments are cooncentratedd around Vaalley Springgs and Wallaace. Shouldd these deveelopments ccome too fruition, then the Disstrict anticippates signifficant growwth and a reesulting incrrease inn demand. The Location and Chharacterristics oof Disadvantageed Unincorporatted Commmunitiees Within or Coontiguous to thhe Agenccy’s SOI  BBased on 22010 Censuus income informatioon for Cennsus Designnated Placees in Calaveras CCounty, theere are no communities that mmeet the definition of a disadvantageed unincorpporated commmunity witthin or adjaacent to FFPPD’s boundss and spphere of inffluence. Present and PPlannedd Capaciity of Puublic Faacilities and Adequuacy of Public SServicess, Includding Inffrastruccture Needss and Deeficiencies  WWhile FFPD appears to have the caapacity to pprovide an aadequate leevel of serviice to thhe existing level of demand, baseed on respoonse times, any further growth wwould reeportedly reequire full-ttime staff too respond wwithin a reassonable time.  FFPD’s serviices appearr to be adeqquate basedd on response times aand ISO rattings. TThe District hhas a low sttaffing levell compared to other prooviders in thhe County.  Sttation 2 waas identified as being dated andd no longer meeting thhe needs oof the DDistrict. FFPPD has hired an architeect to help evaluate hoow the Distrrict may bee able too maximize additional lliving quartters.  AA new statioon in the commmunity off Wallace wwould greatlyy reduce reesponse timmes to thhe area; howwever, the DDistrict doees not currently have suufficient funnds to deveelop a sttation in thee area. Financial Abiility of Agenciees to Proovide Seervices  TThe District reported thhat its financing levels were not addequate to deliver servvices. TThe recent economic recession has caused a decrease in FFFPD’s reveenues, as a rresult FFPD ]É{Ç UUxÇÉ|à 9 cÉÄ|vvçç VÉÇáâÄà|Çz TTááÉv|tàxá? ____V 145 CALAVERAS LAFCO COUNTYWIDE FIRE MUNICIPAL SERVICE REVIEW of declining property values. FFPD has been forced to make significant cost reductions by eliminating two paid positions, as well as, defer equipment and vehicle replacement.  The District will greatly benefit from a joint strategic and capital improvement plan, which is in the process of being developed with Jenny Lind FPD.  The District maintains healthy reserves equivalent to six months of annual expenditures. Status of, and Opportunities for, Shared Facilities  FFPD practices significant collaboration and cost sharing through its JPA with JLFPD, as well as its various automatic and mutual aid agreements. Additionally, FFPD is a member of the Calaveras County Fire Chiefs’ Association.  The recent consolidation of FFPD and Jenny Lind FPD is an opportunity for enhanced facility sharing and cost reduction.  No future opportunities for facility sharing were identified. Accountability for Community Service Needs, Including Governmental Structure and Operational Efficiencies  During the course of this MSR process FFPD demonstrated partial accountability in its disclosure of information and cooperation with Calaveras LAFCO. The District responded to the questionnaires and cooperated with interview and document requests; however, FFPD’s response to written questionnaires required multiple follow-up attempts.  The District tries to reach its constituents through involvement at various community events, and through visits to childcare facilities. Additionally, FFPD and Calaveras Consolidated Fire Protection JPA maintain websites where documents and information are made available to the public.  Jenny Lind FPD and Foothill FPD have recently completed the consolidation process, forming the Calaveras Consolidated Fire Protection District. FFPD ]É{Ç UxÇÉ|à 9 cÉÄ|vç VÉÇáâÄà|Çz TááÉv|tàxá? __V 146 CAALAVERAS LAAFCO COUNTYYWIDE FIRE MUNICIPAL SERVICE REVIEW 9 . J E NNNY LIIN D FFI R EE PROOT ECCT I O NN D ISST R ICCT Jennyy Lind Fire Protection District (JLFPD) providdes structure fire prottection, wilddland fire prottection, emeergency meedical respoonse, fire prevention sservices, hoome inspecttions, hazardous materials assistancee, and publicc service assistance. AGENCYY OVERVVIEW Backgground JLFPDD was formed in 1948 to provide ffire protectiion servicess to the commmunity. The pprincipal acct that goveerns the District is the Fire Protecction Districct Law of 19987.65 The prinncipal act eempowers ffire districtts to providde fire prottection, resscue, emerggency medical, hazardouss material rresponse, ammbulance, aand any othher servicess relating too the protectioon of lives and propeerty.66 Districts must aapply and oobtain LAFFCO approvval to exercise services aauthorized bby the prinncipal act bbut not alrready proviided (i.e., laatent powers) by the district at the end of 2000..67 JLFPDD is locatedd in the wesstern part oof Calaverass County. Thhe District bborders Fooothill FPD in thhe north annd east, and Copperopoolis FPD in tthe southeaast. JLFPD iss adjacent too San Joaquin aand Stanislaaus Countiees in the wesst. Boundarries JLFPDD provides service to the area soouth of thee town of VValley Sprinngs along SRR 26, including the Ranchho Calaveraas subdivision. In addittion, after hhaving anneexed the former territoryy of Calaverras County Fire Departtment, the DDistrict noww also provvides servicces to the Miltoon area. Thee District’s bboundary arrea encomppasses approoximately 661 square mmiles. Figure 9--1: JLFPDD List of LAFFCO Approveed Border Chhanges Projecct Name Type of Acttion YYear Reecording Ageency Jenny Lind Fire Protecttion District Formation 1948 LAAFCO S 1/2 OF SSW 1/4, SE 1//4, S 1/2 OF NE 1/4 OF SEC. 31 S 1/2 OF S 1/2 OF SEC 32 T4N.R10E Annexation 1957 BOE Rancho Caalaveras Annexation 1972 LAAFCO, BOE Linkletterr Properties, Inc (Valley Hills Estates) Detachmentt 1983 LAAFCO Calaverass County Fire RReorganization #4 Annexation 2000 BOE Milton Annexation 2009 LAAFCO 65 Health annd Safety Code §§13800-13970. 66 Health annd Safety Code §§13862. 67 Governmment Code §568224.10. JLFPD ]É{Ç UUxÇÉ|à 9 cÉÄ|vvçç VÉÇáâÄà|Çz TTááÉv|tàxá? ____V 147 CALAVERAS LAFCO COUNTYWIDE FIRE MUNICIPAL SERVICE REVIEW The District has undertaken four annexations and one detachment since its formation. The most recent annexation took place in 2009 and included the community of Milton. The District’s historical boundary changes are shown in Figure 9-1. Sphere of Influence In 2005, during the SOI updates, the District’s sphere of influence was expanded from being coterminous to include the Milton area. In 2009, the sphere of influence was adjusted to include the Southern New Hogan Lake area (approximately 6,501 acres) and the Cane Lane area (about 27 acres), which were removed from the Foothill FPD SOI at the same time. These areas were concurrently annexed into JLFPD, which made the SOI, once again, coterminous with the District’s boundaries. Extra-territorial Services The District responds to wildland fires and gets reimbursed from the State for its strike team assignments and any incident requiring JLFPD’s equipment for more than two hours. JLFPD provides fire protection to Calaveras County facilities and properties through a contract with the County. JLFPD has mutual aid agreements with San Andreas FPD, Foothill FPD, and Linden Peters Rural County Fire Protection District and Clements Rural Fire Protection District of San Joaquin County. Areas of Significance Of particular significance to Jenny Lind FPD is Foothill FPD, with which the District recently completed consolidation. The districts originally formed the Calaveras Consolidated Fire Protection Joint Powers Authority, which became effective July 1, 2012. In May 2013, the districts received LAFCO approval for formal consolidation. JLFPD ]É{Ç UxÇÉ|à 9 cÉÄ|vç VÉÇáâÄà|Çz TááÉv|tàxá? __V 148 ^_ ^_ ^_ ^_ ^_ ^_ ^_ ^_ ^_ ^_ ^_ ^_ ^_ ^_ ^_ ^_ ^_n n n ^_ n ^_ ^_ n ^_ n ^_ ^_ ^_ ^_ ^_ ^_ ^_ ^_ ^_ ^_ ^_ ^_ ^_ ^_ ^_ ^_ ^_ ^_ ^_ ^_ ^_ ^_ ^_ ^_ ^_ ^_ ^_ ytnuoC niuqaoJ naS ·|}þ 49 ·|}þ 12 n n J O D N H e t i o i n s g h n n t h e r - y w r i D c L F a i t s i i y F n t r s r e i F d r i c P i e F t r r P F F e o C a D i t a c r P e e & i c l l r i a t J F t S i o e i a v o O e t c n n e s I e i l r n D i c t a y i i t s e s i t L s o r C i i n c n o t s u d D n ^_ is t t y r C W P O i T o a t c a h o r u t t c e w n e e r r t n l y b s C s o o B d u o i n u e t s n ie d s ary Q H U W E Y S 1 T 2 O R C D LIFF CT SO F U E T R H S W E O Y B N R R A TH A W N R Y D D DR REG NITTEP Y CT H C BURS I ON RD L A L R V O A L L L E N DR EVANS R R B O E S D Q R S U K DR E A SE IL Y L O N AKS B R U D TLER L H N ARTVICKSO N LN VISTA DEL LAGO DR F NE o W o HO t G h AN i P l Y l FPD New Hogan Reservoir San Andreas FPD San Joaquin County OSPITAL RD MILES RD SHELT ON RD WARREN R D D AN J A O RE G O G Y R R D R H D NSON T H L WY 2 O 6 PA O L K L L N N IV O E L O L R D C R HA D R R SLLO HCIN D R G D O R A IE B L O LY R M S A S IN T T G S A T L R N A ER B P N M A L H LD F C W A O C I U N R A T S D U L T Y L P E A L Y N C RD HEO U R S D HER DR CANE LN PALOMIN O RIDG E RD G ANN RD HOGAN DAM RD WALKER TRAIL RD COOPER LN SOUTH GULCH RD HUNT RD Copperopolis FPD M ILTON RD SALT SPRINGS VALLEY RD ROCK CREEK RD Alpine County Salt Spring Valley Reservior Stanislaus County « 0 0.5 1 2 3 4 5 Miles CALAVERAS LAFCO COUNTYWIDE FIRE MUNICIPAL SERVICE REVIEW Accountability and Governance 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 MSR process and information disclosure. The principal act orders that the board of directors of a fire protection district must have an odd number of members, with a minimum of three and a maximum of 11 members. Directors may be appointed or elected.68 JLFPD is governed by a five-member board of directors elected at large to staggered four-year terms. Current board member names, positions, and term expiration dates are shown in Figure 9-3. The Board meets on the third Wednesday of every month at seven in the evening at the District’s Station 1. Board meeting agendas are posted at the fire station and the post office, and mailed and emailed to the District’s mailing list. Minutes are available upon request. Figure 9-3: Jenny Lind Fire Protection District Governing Body Jenny Lind FPD District Contact Information Contact: Kim Olson, Fire Chief Address: 6501 Jenny Lind Road Valley Springs CA 95252 Telephone: (209) 786-2227 Email/website: jlfd@comcast.net Board of Directors Member Name Position Term Expiration Manner of Selection Length of Term Bruce Brown Chair November 2014 Elected 4 years Dennis Peterson Vice Chair November 2014 Elected 4 years Keith Hafley Director November 2015 Elected 4 year Bob Hazelton Director November 2015 Elected 4 years Sam Harris Director November 2015 Elected 4 years Meetings Date: Third Wednesday of every month at 7PM. Location: Meetings are held at Station 1. Agenda Distribution: Posted at the station and at the post office. Minutes Distribution: Available upon request. In addition to the District’s governing body, the services of Jenny Lind FPD and FFPD are overseen by the Calaveras Consolidated Fire Protection JPA governing body. The JPA board consists of the boards of both districts. JPA meetings are held on the fourth Wednesday of the month at 7 in the evening at FFPD’s Station1. 68 Health and Safety Code §13842. JLFPD ]É{Ç UxÇÉ|à 9 cÉÄ|vç VÉÇáâÄà|Çz TááÉv|tàxá? __V 150 CALAVERAS LAFCO COUNTYWIDE FIRE MUNICIPAL SERVICE REVIEW In addition to the required agendas and minutes, the District tries to reach its constituents through various events and fundraisers held by the firefighters association. JLFPD is in the process of establishing a Citizens Emergency Response Team (CERT), which would be used for organizing shelters and evacuations. CERT will include non-emergency staff who will be Red Cross trained. If a customer is dissatisfied with the District’s services, complaints may be submitted by mail, email or over the phone. The fire chief is responsible for handling complaints. The District reported that there were no complaints in 2011. JLFPD demonstrated partial accountability in its disclosure of information and cooperation with Calaveras LAFCO. The District responded to the questionnaires and cooperated with interview and document requests; however, JLFPD’s response to written questionnaires required multiple follow-up attempts. Some of the requested information has not been provided and is not included in this report. Planning and Management Practices 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. JLFPD’s mission statement states: It is the mission of the Jenny Lind Fire Protection District to deliver those services necessary to provide protection of life and property threatened by the hazards of fire, recue emergencies, and other peril. To be supportive of, and render aid to, medically challenged persons. To assist our community as a whole, or individually, during time of disaster. To provide professional assistance to our community while maintaining a positive attitude at all times. JLFPD has one part-time fire chief, one full-time deputy chief, three full-time captains, one part-time administrative assistant, (all shared through the JPA with FFPD) and 20 volunteer firefighters. Captains are responsible for day-to-day operations of the District. The chief is responsible for administration and budget. The chief reports to the Board of Directors and oversees the deputy chief. The deputy chief manages the administrative assistant, two administrative captains and three captains. The firefighters report to captains. The District reported that it performed informal employee evaluations annually. The Board of Directors also evaluates the chief annually. JLFPD does not conduct any evaluations of the District’s overall performance through either benchmarking or annual reports. The District reported that it was challenging to compare JLFPD to other districts, because of the differences in demographics. The District tracks staff workload through timesheets filled out by paid employees and logs for volunteer firefighters. Tracking personnel workload helps JLFPD ensure that appropriate staff is available when necessary. The District’s financial planning efforts include an annually adopted budget and annually audited financial statements. JLFPD does not adopt a capital improvement plan JLFPD ]É{Ç UxÇÉ|à 9 cÉÄ|vç VÉÇáâÄà|Çz TááÉv|tàxá? __V 151 CALAVERAS LAFCO COUNTYWIDE FIRE MUNICIPAL SERVICE REVIEW (CIP), but plans for capital improvements in the Jenny Lind/Foothill joint strategic plan, which is currently being developed. The District reported that it formed a planning committee with Foothill FPD to look at long-term needs, since numerous changes are anticipated now that consolidation with Foothill FPD is complete. Capital improvement needs will be updated annually. Existing Demand and Growth Projections This section discusses the factors affecting service demand, such as land uses, and historical and anticipated population growth. Land Use Primary land uses within the District are residential, agriculture preserve, residential agriculture, and light industrial. The District’s bounds encompass approximately 61 square miles. Population There are approximately 7,927 residents within JLFPD, based on census place population in the 2010 Census.69 The population density within the District is 130 people per square mile. Existing Demand The District reported that its peak demand times were from 10 in the morning until about seven in the evening. Calls for medical emergencies are consistently high in volume throughout the year, similar to other fire districts in the region. Figure 9-4: JLFPD Number of Calls by Year, 2009-2011 The District reported that it 550 had observed an increase in call 540 volume in the last few years. 530 520 As shown in Figure 9-4, the number of calls dramatically 510 increased from 2009 to 2010 and 500 slightly fell between 2010 and 490 2011. The number of calls for 480 2007 and 2008 was not provided 470 by the District. 460 2009 2010 2011 Projected Growth and Development JLFPD anticipates growth in population and similarly in service demand within the District in the next few years. However, no formal population projections have been made by the District. New units are anticipated in Orchard Estates, Brother’s Lane and Ranch 69 Estimates of GIS expert based on Census 2010 blocks. JLFPD ]É{Ç UxÇÉ|à 9 cÉÄ|vç VÉÇáâÄà|Çz TááÉv|tàxá? __V 152 CALAVERAS LAFCO COUNTYWIDE FIRE MUNICIPAL SERVICE REVIEW Calaveras. It was estimated by the District that one to two thousand lots are approved and will be developed in the next few years. The District reported that it had sufficient capacity to serve current demand through its JPA with Foothill FPD. JLFPD’s goal is to have two people onsite at all times and respond within four minutes. This goal is currently being met through a JPA. JLFPD station 3 has one full-time captain and one firefighter 24/7, with one chief officer available at all times. JLFPD believes that to sufficiently serve future growth, the District needs increased tax revenue and an additional full-time firefighter position. Tax revenue is expected to increase, due to newly built-out lots and a possible future special assessment. Additional funds may be needed to pay a stipend to a firefighter who could staff one of the District’s stations 24/7. The District plans to reach out to college students with fire science majors. The State Department of Finance (DOF) projects that the population of Calaveras County will grow by eight percent in the next 10 years. Thus, the average annual population growth in the County is anticipated to be approximately 0.8 percent. Based on these projections, the District’s population would increase from 7,927 in 2010 to approximately 8,561 in 2020. It is anticipated that demand for service within the District will increase minimally based on the DOF population growth projections through 2020. Growth Strategies The District is not a land use authority, and does not hold primary responsibility for implementing growth strategies. The land use authority for unincorporated areas is the County. The County’s General Plan is presently being updated. Some of the fire districts reported that the County sought input from them on General Plan update. JLFPD did not give any input on the General Plan update, since it had not been sought by the County. JLFPD plans its future service demand based on past call volume and planned developments within the District. In addition, the District looks at the County’s budget projections, which dictate JLFPD’s staffing and budget. With regard to governance structure alternatives, JLFPD and Foothill FPD, which formerly operated as a dual-district JPA, recently completed the process of consolidation. Financing The financial ability of agencies to provide services is affected by available financing sources and financing constraints. This section discusses the major financing constraints faced by the District and identifies the revenue sources currently available to the District. The District reported that its financing levels were not adequate to deliver services. The recent economic recession has caused a decrease in JLFPD’s revenues of about 30 to 40 percent. To improve its financial situation, the District has made efforts to recruit more volunteers and apply for grants. In addition, JLFPD is hoping to pass a special assessment in the future and receive additional tax revenue from newly constructed dwellings. The District’s revenue for FY 10-11 was $411,277. Revenue sources included property taxes (79 percent), revenues from use of money and property (two percent), state homeowners property tax relief (one percent), and miscellaneous revenue (18 percent). JLFPD ]É{Ç UxÇÉ|à 9 cÉÄ|vç VÉÇáâÄà|Çz TááÉv|tàxá? __V 153 CALAVERAS LAFCO COUNTYWIDE FIRE MUNICIPAL SERVICE REVIEW The District occasionally responds to state fires with its strike team and gets reimbursed for it from the State of California. JLFPD’s expenditures amounted to $312,460 in FY 10-11. Of this amount, 40 percent was spent on salaries and employee benefits, 50 percent on services and supplies, nine percent on capital assets, and less than one percent on the LAFCO assessment. The District does not have any long-term debt. The District has a management practice to keep three financial reserve funds—a capital improvements reserve, an apparatus reserve, and a general reserve. There is no policy for a minimum balances, but JLFPD attempts to maintain about five to 10 percent of operating budget. Currently, reserves exceed the intended amount. At the end of FY 10-11, the general reserve had a balance of $524,545, the capital improvement reserve had $140,073 and the apparatus reserve had $15,429. The District is planning to dip into reserves in the coming year for some capital improvements and staffing to maintain an adequate level of service to the increase in demand for service. In July 2012, JLFPD entered into a JPA with Foothill FPD, as a first step in the consolidation process. Subsequently, the two districts applied to LAFCO for complete consolidation, which was approved in May 2013. JLFPD ]É{Ç UxÇÉ|à 9 cÉÄ|vç VÉÇáâÄà|Çz TááÉv|tàxá? __V 154 CAALAVERAS LAAFCO COUNTYYWIDE FIRE MUNICIPAL SERVICE REVIEW FIRRE AND EMS SEERVICESS Servicce Overvview JLFPDD provides comprehennsive fire pprotection sservices to residents oof the Distriict. A detailed descriptionn of the servvices offeredd by JLFPD iis shown in Figure 9-5.. Figure 9--5: JLFPDD Service Maatrix Calaverras Countty Fire Serrvices Maatrix Servvice Provvided ? Structuraal fire protecttion YYes Wildlandd fire protection YYes Vehicle fiire protectionn YYes Ladder trruck capabilitties YYes Emergenncy medical seervices YYes Basic life support YYes Advancedd life supportt NNo Advancedd life supportt transport NNo Hazardouus materials eemergency reesponse YYes Fire prevvention YYes Fire safetty education YYes First respponder swift water and low angle ropee rescue YYes Public service assists YYes Oxygen fiilling for breaathing apparaatuses YYes Helicopteer facilities NNo Jaws of LLife tools YYes Responsee to boating aaccidents NNo Water reescue YYes Dive and ice rescue NNo Fire investigation YYes Home insspections YYes Business Inspection YYes Public Edducation (CPRR, First Aid, Ettc.) YYes Continuinng Education Provider YYes Communnity Emergenccy Response TTeam YYes In adddition, JLFPPD providess fire protecction to the landfill andd Calaveras County faciilities and propperties throough a contrract with thhe County. The landfill is located on the terrritory recently annexed innto the District, but JLFFPD would like to mainntain a conttract in ordder to be comppensated. Because JLFPD territory ccontains rivvers and lakkes, the Diistrict is inn the process of implemeenting a watter rescue tteam. The teeam will woork in coopeeration withh the Sherifff and include rrescue workk in area cavves. Curreently, EMS calls withhin the JLFFPD territoory are conntracted ouut to a prrivate ambulannce provider—Americaan Legion Ambulance. JJLFPD expreessed an asspiration to start JLFPD ]É{Ç UUxÇÉ|à 9 cÉÄ|vvçç VÉÇáâÄà|Çz TTááÉv|tàxá? ____V 155 CALAVERAS LAFCO COUNTYWIDE FIRE MUNICIPAL SERVICE REVIEW providing ambulance services on its own. The District reported that by offering advanced life support and transportation, JLFPD could provide a faster response. Collaboration JLFPD and Foothill FPD, recently completed the consolidation process, forming Calaveras Consolidated Fire Protection District. In addition, JLFPD has mutual aid agreements with San Andreas FPD, and Linden Peters Rural County Fire Protection District and Clements Rural Fire Protection District of San Joaquin County. JLFPD is a member of Fire Chiefs’ Association and National Fire Incident Command Team. The District is currently working with the State to become a resource for Cal OES for water, earthquake and fire rescue. Dispatch and communications The District's emergency dispatch and communication needs are served through a Calaveras County contract with the California Department of Forestry and Fire Protection's (CalFire) Emergency Command Center (ECC) in San Andreas. There is currently no fee charged to local government fire protection agencies by Calaveras County. Dispatching is handled through joint use of the command frequency assigned to the Tuolumne-Calaveras Unit. The State Office of Emergency Services and County assigned tactical frequencies are also available for local use. The Calaveras County Sheriff's Office serves as the Primary Public Safety Answering Point where all landline calls within the County are originally directed. Fire incidents are directed to the ECC. Off-duty paid personnel and volunteers are alerted by "pager." JLFPD reported that there were significant deficiencies in dispatch service. The District currently scans the Sheriff’s dispatch channel for medical calls within its boundaries. Several times JLFPD engines arrived to scenes before CalFire dispatched the District. The District is currently evaluating other dispatch options. Staffing JLFPD has 25 sworn personnel—one part-time fire chief, one full-time deputy chief, three full-time captains, and 20 volunteer firefighters. All personnel are shared with FFPD through the JPA. Captains are paid $85 per 24-hour shift, engineers receive $75, and firefighters receive a stipend of $65 per 24-hour shift, disbursed once a month. Volunteers receive monthly benefit from a countywide SAFER grant, based on points earned from attending training and other district activities. The median age of the firefighters is 27, with a range from 18 to 61. According to the California State Fire Marshal, all paid, volunteer and call firefighters must acquire Firefighter I certification; however, there is no time limit as to how long they may work before attaining certification. Firefighter I certification requires completion of the 259-hour Firefighter I course, which includes training on various fireground tasks, rescue operations, fire prevention and investigation techniques, and inspection and maintenance of equipment. In addition to this course, Firefighter I certification also requires that the applicant have a minimum of six months of volunteer or call experience in JLFPD ]É{Ç UxÇÉ|à 9 cÉÄ|vç VÉÇáâÄà|Çz TááÉv|tàxá? __V 156 CALAVERAS LAFCO COUNTYWIDE FIRE MUNICIPAL SERVICE REVIEW a California fire department as a firefighter performing suppression duties.70 JLFPD has 20 Firefighter I, and 18 EMT, and three paramedic certified personnel. The District reported that its staffing level had recently increased to include two full- time positions. JLFPD conducts training in house, and requires Firefighter 1/EMT/CPR training levels from its paid staff and VVF/First Responder/CPR levels of training from its volunteers. The District offers 75 hours of training a month to its paid and volunteer firefighters. A challenge identified by the District regarding staffing and training is that the schedules of volunteers are often difficult to accommodate. JLFPD tries to recruit more volunteers by advertising at local junior colleges and through a high school Regional Occupational Program (ROP). Facilities and Capacity JLFPD owns and operates two fire stations. Station 1 was acquired in 2002 and is staffed 24/7. Station 1, which was reported to be in good condition, houses three fire engines, one water tender, and two utility/command vehicles. Station 2, the exact date of acquisition of which was reported to be unknown, is considered to be in poor condition. The station does not have a regular staffing schedule, but 20 volunteers are generally available to staff the station. Station 2 houses two fire engines. For water supply, the District uses one water tender. Although the District reported that it did not have sufficient capacity to serve current demand or anticipated future growth, it appears that currently there is marginally sufficient capacity to provide adequate services. Station 2 is in poor condition and requires upgrades; however, Station 1 is in good working condition. Current response times meet Mountain Valley Emergency Medical Services Agency standards for response to medical emergencies. Infrastructure Needs The District did not identify a need for new facilities or facility upgrades. However, since Station 2 was reported to be in poor condition, unidentified improvements are necessary. JLFPD reported that it needed one type I urban interface pumper, that would allow the District to reduce the number of engines in its fleet by purchasing apparatus that can serve multiple functions. Challenges JLFPD did not identify any areas within the District, which are difficult to serve. 70 State Fire Marshal, Course Information and Required Materials, 2007, p. 44 JLFPD ]É{Ç UxÇÉ|à 9 cÉÄ|vç VÉÇáâÄà|Çz TááÉv|tàxá? __V 157 CALAVERAS LAFCO COUNTYWIDE FIRE MUNICIPAL SERVICE REVIEW The District reported that it had become increasingly more challenging for its volunteers to meet state and federal training requirements, since they have to complete over 215 hours of training, before entering a burning structure or performing a rescue. The recent economic recession also created challenges by causing a decrease in the District’s revenues through decline in property values. Service Adequacy While there are several benchmarks that may define the level of fire service provided by an agency, indicators of service adequacy discussed here include ISO ratings, response times, and level of staffing and station resources for the service area. Fire services in the communities are classified by the Insurance Service Office (ISO), an advisory organization. This classification indicates the general adequacy of coverage, with classes ranking from 1 to 10. Communities with the best fire department facilities, systems for water distribution, fire alarms and communications, and equipment and personnel receive a rating of 1. JLFPD has an ISO rating of six in urban areas and eight in rural areas. The last date of evaluation is reported to be unknown. The National Fire Protection Association (NFPA) has issued a performance standard for volunteer and combination fire departments (NFPA 1720). This standard, among other guidelines, identifies target response time performance for structure fires. The response time is measured from the completion of the dispatch notification to the arrival time of the first-responder at the scene. Though not a legal mandate, NFPA 1720 does provide a useful benchmark against which to measure fire department performance. NFPA 1720 recommends that the response times for structure fire be nine minutes in urban demand zones at least 90 percent of the time, 10 minutes in suburban zones at least 80 percent of the time and 14 minutes in rural zones at least 80 percent of the time. Response times in remote zones are directly dependent on travel distances.71 All fire service providers in Calaveras County, except for the City of Angels Camp Fire Department, fall within the definition of a rural demand zone. The City of Angels Camp FD is an urban demand zone. Emergency response time standards vary by level of urbanization of an area: the more urban an area, the faster a response should be. Calaveras County is not broken down into wilderness, rural and urban designations for response time standards like other counties. Instead, Mountain Valley Emergency Medical Services Agency has divided Calaveras County into three zones for EMS and ambulance services. The northern and southern zones are served by American Legion and the eastern zone (which is the same as the Ebbetts Pass FPD boundary area) is served by Ebbetts Pass FPD. In the northern and southern zones the response time guideline is 20 minutes 90 percent of the time, and 13 minutes 90 percent of the time in the eastern zone. These standards are intended for the ambulance contract providers; however, they indicate what is considered appropriate response times for medical emergencies. 71 Urban demand zone has population density of more than 1,000 people per square mile; suburban zone—between 500 and 1,000 people per square mile, rural zone—less than 500 people per square mile, and remote zone is identified by eight or more miles of travel distance to an incident. JLFPD ]É{Ç UxÇÉ|à 9 cÉÄ|vç VÉÇáâÄà|Çz TááÉv|tàxá? __V 158 CALAVERAS LAFCO COUNTYWIDE FIRE MUNICIPAL SERVICE REVIEW Although the District reported that it tracked its response times for each incident, median and 90th percentile response times were not provided by JLFPD. CalFire tracks response times for JLFPD incidents. It should be noted that CalFire’s methodology for tracking response times differs from that of the districts. While the districts generally start timing from the time the engines leave the facility, CalFire starts timing after checking back in with the responder after dispatch, which is often when the District is already en route to the scene. Consequently, response times reported by CalFire for each incident tend to be shorter than those recorded by each district. It was reported that in 2011 the District’s average response time was 4.3 minutes and the 90th percentile response time was 9.2 minutes. An area that JLFPD can improve upon is tracking its response times, being aware of its average, median and 90th percentile response times and collaborating with CalFire on data exchange, which would allow for more structured response and enhanced efficiency and consistency. The service area size72 for each fire station varies between fire districts. The median fire station in Calaveras County serves approximately 34 square miles. Although EPFPD serves the most expansive area (195 square miles), AMFPD stations serve larger area per station, with 77.5 square miles served per station on average. Densely populated areas tend to have smaller service areas. For example, the average service area for the City of Angels Camp Fire Department’s fire station is 1.75 square miles. By comparison, each fire station in JLFPD serves approximately 30.5 square miles. The number of firefighters serving within a particular jurisdiction is another indicator of level of service; however, it is approximate. The providers’ call firefighters may have differing availability and reliability. A district with more firefighters could have fewer resources if scheduling availability is restricted. Staffing levels in Calaveras County vary from 3.2 sworn firefighters per 1,000 residents in JLFPD’s service area73 to 13 in MHFPD District. 72 Service area refers to the area that the agency will respond to, based on a first responder map used by the Sherriff’s office. 73 Based on shared full-time staffing of the JPA with FFPD. JLFPD ]É{Ç UxÇÉ|à 9 cÉÄ|vç VÉÇáâÄà|Çz TááÉv|tàxá? __V 159 CALAVERAS LAFCO COUNTYWIDE FIRE MUNICIPAL SERVICE REVIEW Figure 9-6: Jenny Lind Fire Protection District Service Profile Fire Service Facilities Firestation Location Condition Staff per Shift Vehicles Station 1 6501 Jenny Lind Road, Good Staffed 24/7 3 fire engines, 1 water tender, 2 Valley Springs, CA 95225 utility/command vehicles Station 2 2232 Danaher Drive, Poor Unstaffed 2 fire engines Valley Springs, CA 95252 Facility Sharing Current Practices: JLFPD is a member of Fire Chiefs’ Association and National Fire Incident Command Team. The District is currently working with the State to become a resource for Cal EMA for water, earthquake and fire rescue. JLFPD and FFPD share resources through a JPA which a first step towards consolidation. Future opportunities: JLFPD and FFPD plan to combine their resouces through a consolidation process. Infrastructure Needs and Deficiencies Station 2 is in poor condition and requires upgrades. There is a need for 2 type I urban interface pumpers. District Resource Statistics Service Configuration Service Demand Staffing Base Year 2012 Configuration Base Year 2012 Statistical Base Year 2011 Fire Stations in District 2 Fire Suppression Direct Total Service Calls 525 Stations Serving District 2 EMS Direct % EMS 74% Sq. Miles Served per Station1 30.5 Ambulance Transport American Legion % Fire/Hazardous Materials 1% Total Staff2 26 Hazardous Materials Direct % False 7% Total Full-time Firefighters3 4Air Rescue/Ambulance Helicopter PHI, Reach % Misc. emergency 11% Total Call Firefighters 20Fire Suppression Helicopter CalFire % Non-emergency 8% Total Sworn Staff per Station4 12.5Public Safety Answering Point Sheriff % Mutual Aid Calls 7% Total Sworn Staff per 1,000 3.2Fire/EMS Dispatch CalFire Calls per 1,000 people 66 Service Adequacy Service Challenges Lack of financing and stringent training requirments for volunteers were Response Time Base Year 2011 identified as the District's major challenges. Average Response Time (min) 4.3 Training JLFPD offers its paid and volunteer firefighters 75 hours per month of training. 90th Percentile Response Time (min) 9.2 Minimum requirements: paid staff- FF1/EMT/CPR; volunteers- VVF/1st ISO Rating 6/8 (unknown) responder/CPR. Mutual & Automatic Aid Agreements JLFPD has mutual aid agreements with San Andreas FPD, and Linden Peters Rural County Fire Protection District and Clements Rural Fire Protection District of San Joaquin County. Notes: 1) Primary service area (square miles) per station. 2) Total staff includes sworn and non-sworn personnel. 3) Shared with FFPD through JPA. 4) Based on ratio of sworn full-time and call staff to the number of stations. Actual staffing levels of each station vary. JLFPD ]É{Ç UxÇÉ|à 9 cÉÄ|vç VÉÇáâÄà|Çz TááÉv|tàxá? __V 160 CAALAVERAS LAAFCO COUNTYYWIDE FIRE MUNICIPAL SERVICE REVIEW JENNYY LIND FFIRE PRROTECTIION DISSTRICT DDETERMMINATIOONS Growtth and PPopulatiion Projjectionss  Jeenny Lind FFire Protectiion District (JLFPD) currrently has an estimateed population of 7,927.  TThe District observed ann increase inn call volumme in the lasst few yearss.  JLLFPD anticipates growwth in population and ssimilarly in service demmand withinn the DDistrict in tthe next feew years. New units are anticiipated in OOrchard Esttates, BBrother’s Laane and Ranncho Calaveeras. It was estimated by the Disttrict that onne to twwo thousand lots are appproved and will be deeveloped in the next feww years. The Location and Chharacterristics oof Disadvantageed Unincorporatted Commmunitiees Within or Coontiguous to thhe Agenccy’s SOI  BBased on 22010 Censuus income informatioon for Cennsus Designnated Placees in Calaveras CCounty, theere are no communities that mmeet the definition of a disadvantageed unincorpporated commmunity wwithin or addjacent to JLFPD’s bounds and sphere oof influence.. Present and PPlannedd Capaciity of Puublic Faacilities and Adequuacy of Public SServicess, Includding Inffrastruccture Needss and Deeficiencies  AAlthough the District rreported thhat it did nnot have suufficient caapacity to sserve cuurrent demmand or anticipated futuure growth,, due to lackk of personnel and funnding, itt appears thhat currentlyy there is mmarginally ssufficient caapacity to prrovide adeqquate seervices. One of the twwo stations is in good working coondition. Cuurrent respponse tiimes meet Mountain-VValley Emeergency Meedical Serviices Agencyy standards for reesponse to mmedical emergencies.  JLLFPD does not adopt a capital improvemeent plan (CCIP), but plans for caapital immprovemennts in the Jenny Lind//Foothill joint strategiic plan, whhich is currently being develooped.  TThe District did not identify a needd for new faacilities or ffacility upgrades. Howwever, siince Stationn 2 was repoorted to be in poor conndition, yet uunidentifiedd improvemments appear to bbe necessarry. In addittion, JLFPD reportedlyy needs twwo type I uurban innterface pummpers.  AAn area that JLFPD coulld improve upon is calcculating its median andd 90th perceentile reesponse timmes and collaborating wwith CalFire on informaation exchannge.  Services proovided by tthe District are adequuate based on firefighhter certificaation raates, responnse times annd its ISO raating. JLFPD ]É{Ç UUxÇÉ|à 9 cÉÄ|vvçç VÉÇáâÄà|Çz TTááÉv|tàxá? ____V 161 CALAVERAS LAFCO COUNTYWIDE FIRE MUNICIPAL SERVICE REVIEW  Each fire station in JLFPD serves approximately 30.5 square miles, by comparison the median fire station in Calaveras County serves 34 square miles. The District has the lowest ratio of firefighters per 1,000 residents, which could indicate capacity concerns with regard to staffing levels, particularly in the case of a primarily volunteer fire department such as JLFPD. Financial Ability of Agencies to Provide Services  The District reported that its financing levels were not adequate to deliver services. The recent economic recession has caused a decrease in JLFPD’s revenues of about 30 to 40 percent.  To improve its financial situation, the District has made efforts to recruit more volunteers and apply for grants. In addition, JLFPD is hoping to pass a special tax measure in the future and receive additional tax revenue from newly constructed dwellings.  The District has a management practice to keep three financial reserve funds—a capital improvements reserve, an apparatus reserve, and a general reserve. The District maintains a health reserve fund comparable to 29 months of operating expenditures. Status of, and Opportunities for, Shared Facilities  JLFPD and Foothill FPD currently collaborate and share resources through a JPA.  JLFPD has mutual aid agreements with San Andreas FPD, and Linden Peters Rural County and Clements Rural Fire Protection Districts in San Joaquin County.  JLFPD is a member of the Fire Chiefs’ Association and the National Fire Incident Command Team. The District is currently working with the State to become a resource for Cal EMA for water, earthquake and fire rescue.  The recent consolidation of JLFPD and Foothill FPD is an opportunity for enhanced facility sharing and cost reduction. Accountability for Community Service Needs, Including Governmental Structure and Operational Efficiencies  JLFPD demonstrated partial accountability in its disclosure of information and cooperation with Calaveras LAFCO. The District responded to the questionnaires and cooperated with the document requests; however, the response required multiple follow-up attempts.  JLFPD practices outreach efforts; however, the District lacks a website where information could be made available to public. It is recommended that every public service provider have a website to keep constituents aware of the agency’s activities.  Jenny Lind FPD and Foothill FPD recently completed the consolidation process. JLFPD ]É{Ç UxÇÉ|à 9 cÉÄ|vç VÉÇáâÄà|Çz TááÉv|tàxá? __V 162 CALAVERAS LAFCO COUNTYWIDE FIRE MUNICIPAL SERVICE REVIEW 10. MOK ELUM NE HILL F I R E PROTECTION D I STR I CT RESERVED FOR MHFPD UPON ADOPTION MHFPD ]É{Ç UxÇÉ|à 9 cÉÄ|vç VÉÇáâÄà|Çz TááÉv|tàxá? __V 163 CAALAVERAS LAAFCO COUNTYYWIDE FIRE MUNICIPAL SERVICE REVIEW 1 1. MMU R PH YS F I R EE PROOT ECCT I O NN D ISST R ICCT Murpphys FPD ((MFPD) proovides strucctural, wilddland and aall other caategories off fire protectioon, includinng response to medical emergenciees, vehicle aaccidents annd public service assists. AGENCYY OVERVVIEW Backgground MFPDD was formmed in 19355, after seveeral severe fires occurrred during the early 1930s and the ccommunity lost two sawmills and a lumber drrying yard. The pprincipal acct that goveerns the District is the Fire Protecction Districct Law of 19987.74 The prinncipal act eempowers ffire districtts to providde fire prottection, resscue, emerggency medical, hazardouss material rresponse, ammbulance, aand any othher servicess relating too the protectioon of lives and propeerty.75 Distrricts must aapply and obtain LAFFCo approvval to exercise services aauthorized bby the prinncipal act bbut not alrready proviided (i.e., laatent powers) by the district at the end of 2000..76 MFPDD is locateed in the ssoutheastern portion of Calaveraas County. The Distriict is adjacentt to Altavillee-Melones FFPD in the wwest, Ebbetts Pass FPD in the northheast, and SSheep Ranch inn the northh (protecteed by Centtral Calaverras FRPD). MFPD borrders Tuoluumne County in the southeast. Boundarries The DDistrict’s booundaries enncompass thhe SR 4 corridor betweeen the Cityy of Angels CCamp and Ebbetts Pass FPPD. MFPD’s boundary aarea is about 47 squaree miles. Figure 11-1: MFPDD List of LAFCO Approveed Border Chhanges . Project NName Tyype of Actionn Yeaar Reccording Agenncy Murphyss Fire Protecttion District Foormation 19335 LAAFCO Undescriibed contiguoous territory Annnexation 19663 LAAFCO, BOE Unknownn Annnexation 19665 BOOE Amati/Foolendorf Annnexation 19882 LAAFCO Wyldewoood Annnexation 19882 LAAFCO Big Valleyy Annnexation 19886 LAAFCO, BOE Vallecito (County Firee Reorg #1) Annnexation 20000 LAAFCO, BOE 74 Health annd Safety Code §§13800-13970. 75 Health annd Safety Code §§13862. 76 Governmment Code §568224.10. MFPD ]É{Ç UUxxÇÉ|à tÇw cÉÄ|vvçç VÉÇáâÄà|Çz TááÉv|tàxá? ___V 164 CALAVERAS LAFCO COUNTYWIDE FIRE MUNICIPAL SERVICE REVIEW Sphere of Influence The Sphere of Influence for the District was first adopted in 1986. The most recent update of the District’s SOI took place in 2005, when it was affirmed to be conterminous with MFPD boundaries. Extra-territorial Services The District responds to wildland fires inside and outside its boundaries for initial attack. MFPD also responds to wildland fires for extended attack, for which the District gets reimbursed. MFPD has automatic aid agreements with Ebbetts Pass FPD, Altaville-Melones FPD, City of Angels Camp FD, and Central Calaveras FRPD, and mutual aid agreements with other fire service providers in the County. The District frequently responds in Six Mile Village and on Murphys Grade Road in Altaville-Melones FPD, due to its proximity to these areas. Areas of Significance Two areas of significance were identified for MFPD—Copperopolis FPD and Altaville- Melones FPD. There is a possibility of MFPD reorganizing with one or both of these districts. The potential for reorganization is discussed in more detail in the Growth Strategies section of this chapter. MFPD ]É{Ç UxÇÉ|à tÇw cÉÄ|vç VÉÇáâÄà|Çz TááÉv|tàxá? __V 165 ^_ ^_ ^_ ^_ ^_ ^_ ^_ ^_ Sheep Ranch ^_ n n n n n CEME M O D N H NT t i o i u Ps g h n L r t h e Ar - p N w r i D T h c F a R i t y s D i y s F t r S s r e i F F a r i C c P P i e n A t r D r L F A F e o C A V a & i Et a c r R n P e I e i Tc S l d l A r i a t O F S t i o r R i a M v o I e D e t c n e s e ai u l r D is c r t a i i t p s Fe s i O t sP o h r A C K i D n y c o G t s R s R u D O O O V C n ^_ E i L K D sY R t D G Rt y D U r L C W P O C i D T o a H E t c L aR h o r S u D O t t c e L w n e e L r N r t n l y b s C s o o B d u o i n u e t s n ie d s ar F y RECC F E R R E O P C RD C r ER o O t R e D cte C F d R e IC P n O O b N T t y D C r E I T a C R Y O R l e S D A C n W a t Y r la a v l e C r a a l s a v F e R r P a D s FRP E D SMERELDA RD ARRASTRA LN SHEEP RANCH RD FOLENDORF RD Eb F b UL e L t EN t R A s D N G P EL a N S C s H R W s EE Y K 4 F RD PD SAN H D W A W L Y W Y O 4 N O N D L D N R ·|}þ 4 ADIT 4 RD D 0 A 4 R N B 9 Y 4 R A USSE 04 L N L 50 RD CAROL KENNEDY DR FOURTH CROSSING RD DOGTOWN RD Altaville-Melones FPD DILTZ LN SAN DO D M A I R N P B G O Y O ND L R E N R D O F S RE A N C W H G Y ULCH RD SHELTER LN JONES n ST n MT DAVIS RD P B E I N G N F S L Y A LV T A R N D IA G S UL K C U H N R U K D T R IC A A N C D H IT C R H D RD PONDEROSA WY COSGRAVE RD MEACHAM RANCH RD Altaville-Melones FPD MURPHYS GRADE RD n SIX MILE RD S HWY 4 MAIN ST Murphys FPD CAMP NINE RD n OAK VALLEY RD HWY 49 Altaville ^_ -Melones A FPD lt H a N W v M Y A i 4 l IN le ST C n A i n t n C n y g a ^_ o e m l f s A p C n a F m g D e p ls n S M VALLECITO RD RANCH RD BORBE RANCH RD R P ED Y HI S LL H R O D N RD P C O A A RS G O R N S D T n BAT M TE N RD AIN M S OA T NING CAVE RD SKUNK GULCH POO COW KICK RD AIN ST TUNE DR L STATIO Co N RD pperopolis FPD PIN GELDING Cop R pe D ropolis FPD Alpine County GUN CLUB RD MOORE DR PARROTTS FERRY RD ^_ HUNT RD BONANZA MINE WY APPA TO L DR OOSA RD HUNTER S R T C O HE A ST N NU R T S W T D A Y L P LIO A N I W N Y T R D D UNN LN n ANGELS CREEK ACCESS RD WHITTLE RD HWY 49 AIROLA RD 0 N 0. e 5 w Melo 1 nes Reservior 2 3 4 5 M « iles ^_ ^_ ^_ ^_ ^_ ^_ CALAVERAS LAFCO COUNTYWIDE FIRE MUNICIPAL SERVICE REVIEW Accountability and Governance 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 MSR process and information disclosure. The principal act orders that the board of directors of a fire protection district must have an odd number of members, with a minimum of three and a maximum of 11 members. Directors may be appointed or elected.77 MFPD is governed by a five-member board of directors elected at large to staggered four-year terms. Current board member names, positions, and term expiration dates are shown in Figure 11-3. The Board meets on the second Wednesday of every month at four in the afternoon at the District’s Station 1. Board meeting agendas are posted at both MFPD fire stations and in the newspaper. Minutes are available upon request. Figure 11-3: Murphys Fire Protection District Governing Body Murphys FPD District Contact Information Contact: Fire Chief, Steve Kovacs Address: P.O. Box 1260, 37 Jones Street Murphys, CA 95247 Telephone: 209-728-3864 Email/website: murfire@comcast.net Board of Directors Member Name Position Term Expiration Manner of Selection Length of Term Helen Behrbaum Director November 2015 Elected 4 years Robert Loeffler President November 2015 Elected 4 years Linda Dreblow Director November 2013 Elected 4 year Tom Scheller Director November 2013 Appointed 4 years Michael Schwartz Vice President November 2013 Elected 4 years Meetings Date: Second Wednesday of every month at 4PM. Location: Meetings are held at Station 1. Agenda Distribution: Posted at both stations and in newspapers. Minutes Distribution: Available upon request. In addition to the required agendas and minutes, the District tries to reach its constituents through fundraisers, and a public education program held at the station, which is popular with schools. Occasionally, MFPD participates in public hearings and workshops as needed. 77 Health and Safety Code §13842. MFPD ]É{Ç UxÇÉ|à tÇw cÉÄ|vç VÉÇáâÄà|Çz TááÉv|tàxá? __V 167 CALAVERAS LAFCO COUNTYWIDE FIRE MUNICIPAL SERVICE REVIEW If a customer is dissatisfied with the District’s services, complaints may be submitted in person or over the phone. A complaint undergoes an investigation, and the complainant is notified of a decision. The MFPD chief is responsible for handling complaints. The District reported that there were no complaints in 2011. MFPD demonstrated partial accountability in its disclosure of information and cooperation with Calaveras LAFCO. The District responded to the questionnaires and cooperated with interview and document requests; however, multiple follow-ups were required. Planning and Management Practices 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 mission of Murphys FPD is to protect the quality of life for residents, businesses and visitors in the community. MFPD will accomplish this by providing the most effective, efficient and professional fire prevention, suppression and emergency medical services with a commitment to excellence. The MFPD fire chief is responsible for the District’s day to day operations, and oversees the medical director, administrative secretary, two chaplains, EMS battalion chief, assistant chief of operations, fire marshal, division chief, and Murphys Firefighters Association. The assistant chief of operations oversees the training and operations battalion chiefs. The battalion chief of operations manages five captains and all interns. The six engineers report to the captains, and the 15 firefighters report to engineers. The fire marshal is in charge of the public education officer. Employee workload is tracked through timesheets filled out by part-time employees. Volunteer workload is tracked via training and call logs, and incident reports. In addition, the District puts together a daily schedule of tasks, which helps staff complete the required workload. The District reported that it performed regular employee evaluations of part- time paid staff only and not volunteers. The chief evaluates his subordinates, and is, in turn, evaluated by the Board annually. It was reported that MFPD does not perform district-wide evaluations of services offered, such as benchmarking with other similar providers or annual reports. Informal evaluations are conducted through trainings, programs, and internal and external feedback. The District’s financial planning efforts include an annually adopted budget and annually audited financial statements. MFPD does not adopt a capital improvement plan (CIP), but plans for capital improvements in its strategic plan. The most recent strategic plan was adopted in 2011, and has a planning horizon of five years. The strategic plan also calls for the adoption of an apparatus replacement plan, which is currently being developed. MFPD ]É{Ç UxÇÉ|à tÇw cÉÄ|vç VÉÇáâÄà|Çz TááÉv|tàxá? __V 168 CALAVERAS LAFCO COUNTYWIDE FIRE MUNICIPAL SERVICE REVIEW Existing Demand and Growth Projections This section discusses the factors affecting service demand, such as land uses, and historical and anticipated population growth. Land Use Primary land uses within the District are residential, recreational, commercial, light industrial, and general agriculture. The District’s bounds encompass approximately 47 square miles. Population There are approximately 2,655 residents within MFPD, based on Census place population in the 2010 Census.78 The population density within the District is 56 people per square mile. Existing Demand The District reports that its peak demand hours are from eight in the morning to midnight. Calls for medical emergencies are consistently high in volume throughout the year, similar to other fire districts in the region. Figure 11-4: MFPD Number of Calls by Year, 2007-2011 The District reported that it 600 had observed an increase in call 500 volume in the last few years, due to an increase in the number of 400 wineries, and consequently, the 300 number of visitors in the area. 200 As shown in Figure 11-4, the number of calls experienced a 100 fairly steady increase from 2006 0 to 2011. 2006 2007 2008 2009 2010 2011 Projected Growth and Development MFPD anticipates growth in population and similarly in service demand within the District in the next few years. However, no formal population projections have been made by the District. Three subdivisions were approved before the economic downturn, which have been on hold since. The largest proposed development is in the Vallecito area and consists of 110 new units, which will double the size of the community. The community of Douglas Flat is expecting 108 units, which also is anticipated to double the size of the town. Forty six new units are anticipated in Murphys. The District reported that it had sufficient capacity to serve current demand, but not anticipated future growth. MFPD reported that it required a piece of property to which it could relocate its Vallecito fire station and build sleeping quarters, in order to increase 78 Census Places Murphys and Vallecito in Calaveras County. MFPD ]É{Ç UxÇÉ|à tÇw cÉÄ|vç VÉÇáâÄà|Çz TááÉv|tàxá? __V 169 CALAVERAS LAFCO COUNTYWIDE FIRE MUNICIPAL SERVICE REVIEW personnel availability in the southern portion of the District. In addition, with an increase in service demand, MFPD is anticipating difficulties in maintaining up-to-date and reliable equipment. The State Department of Finance (DOF) projects that the population of Calaveras County will grow by eight percent in the next 10 years. Thus, the average annual population growth in the County is anticipated to be approximately 0.8 percent. Based on these projections, the District’s population would increase from 2,655 in 2010 to approximately 2,867 in 2020. It is anticipated that demand for service within the District will increase minimally based on the DOF population growth projections through 2020. Growth Strategies The District is not a land use authority, and does not hold primary responsibility for implementing growth strategies. The land use authority for unincorporated areas is the County. The County’s General Plan is presently being updated. Some of the fire districts reported that the County sought input from them on General Plan update. MFPD reported that it contributed to the County General Plan update. MFPD plans its future service demand based on projected growth and anticipated call volume. The District uses the strategic plan as a tool to develop the best approaches to accommodate any increase in service demand. With regard to possible governance structure alternatives, there is the potential of consolidation of MFPD with Altaville-Melones FPD. Both districts expressed the desire to include each other’s boundary areas into their SOIs as a first step towards consolidation. In addition, Murphys FPD is looking into a Cooperative Fire Services Agreement with Copperopolis FPD, with which it already has a common chief. However, because Copperopolis FPD is a member of Calpers, while Murphys FPD is not, the two districts may have to reconcile this difference first before proceeding with consolidation. Financing The financial ability of agencies to provide services is affected by available financing sources and financing constraints. This section discusses the major financing constraints faced by the District and identifies the revenue sources currently available to the District. The District reported that its financing levels were not adequate to deliver services. Challenges include the recent economic recession and consequential drop in property tax revenue caused by the drop in the assessed valuation of properties. MFPD attempted to pass a special tax measure twice; however, voters rejected it both times. An additional challenge lies in the fact that although service demand has increased over the last 10 years, due to growth in the winery business in the area, the District has not received additional revenue to pay for this service increase. The District’s revenue for FY 10-11 was $341,007. Revenue sources primarily included property taxes (57 percent), state firefighter reimbursements (24 percent), charges for current services (seven percent), and state grants (three percent). The remainder of income was derived from interest, state homeowners property tax, state miscellaneous, state district equipment reimbursement, and other revenue sources. The charges for current services are received in form of cost reimbursements from Copperopolis FPD for MFPD ]É{Ç UxÇÉ|à tÇw cÉÄ|vç VÉÇáâÄà|Çz TááÉv|tàxá? __V 170 CALAVERAS LAFCO COUNTYWIDE FIRE MUNICIPAL SERVICE REVIEW the secretarial services and Bret Harte High School Fire Technology ROP program. The District charges no other fees. District occasionally responds to state fires with its fire apparatus and gets reimbursed for it from the State of California. MFPD’s expenditures amounted to $328,681 in FY 10-11. Of this amount, 27 percent was spent on a new hire, 24 percent on salaries and wages, nine percent on principle on long-term debt, five percent on maintenance, five percent on workers comp, four percent on utilities, four percent on capital assets, three percent on gas and oil expenses, and three percent on general liability insurance. The rest was spent on pension, social security, Medicare, insurance, uniform allowance, clothing/personal supplies, safety clothing and equipment, communications, food, household expenses, medical supplies, memberships, office expenses, professional fees, legal notices, rents and leases, small tools, special department expense, training, travel expense, interest, LAFCO assessment, loan to the State, and capital improvements. In September 1999, the District obtained financing for a fire engine. The lease requires annual payments of $19,226 including interest of five percent, and matures in August 2014. In addition, during FY 09-10, MFPD purchased a fire engine for $108,100, out of which the District financed $80,000. The lease requires annual payments of $18,223 including interest of 4.5 percent, and matures in September 2014; however, this lease was paid off in full during FY 11-12. The District has a long-term management practice to maintain financial reserves. Reserves are held in the form of six trust funds—a contingency/emergency reserve (with a balance of $100,000 at the end of FY 10-11), a fleet replacement trust fund ($270,000), Self-Contained Breathing Apparatus (SCBA) trust fund ($25,000), reserve for cash ($500), capital improvement trust fund ($126,317), and Proposition 1A loan receivable ($19,363). The District is a member of Fire Agencies Self Insurance System (FASIS) for worker’s compensation insurance and uses Fire Agency Insurance Risk Authority (FAIRA) for property and liability insurance. MFPD ]É{Ç UxÇÉ|à tÇw cÉÄ|vç VÉÇáâÄà|Çz TááÉv|tàxá? __V 171 CAALAVERAS LAAFCO COUNTYYWIDE FIRE MUNICIPAL SERVICE REVIEW FIRRE AND EMS SEERVICESS Servicce Overvview MFPDD provides comprehennsive fire pprotection sservices to residents oof the Distriict. A detailed descriptionn of the servvices offeredd by MFPD iis shown in Figure 11-55. MFPDD also proovides conntract serviices to othher agencies. Altavillle-Melones FPD reimburses MFPD ffor secretariial services as needed based on a flat hourly rate. MFPDD also providess secretariaal services tto Copperoppolis FPD on a monthlly basis. MFFPD providees an instructoor to Bret HHarte High School for its fire techhnology proogram. The school receives money ffrom the Sttate and payys MFPD $15,120 a yeear. In adddition, the DDistrict provvides personnel to the UU.S. Forest Service, mostly in suummer monnths, and ggets reimbuursed depending on the raanks of perssonnel and ddays of respponse. Figure 11-5: MFPDD Service Maatrix Calaveraas Countty Fire Seervices MMatrix Servicce Providded ? Structurral fire proteection Yess Wildlandd fire protecction Yess Vehicle ffire protectiion Yess Ladder ttruck capabilities No Emergenncy medical services Yess Basic lifee support Yess Advanceed life suppoort No Advanceed life suppoort transporrt No Hazardoous materialls emergency response Yess Fire preevention Yess Fire safeety education Yess First ressponder swiift water andd low angle rope rescuee No Low anggle rope resccue Yess Public seervice assistts Yess Oxygen filling for brreathing appparatuses Yess Helicoptter facilities Yess Jaws of LLife tools Yess Responsse to boatingg accidents Yess Water reescue No Dive andd ice rescue No Fire inveestigation Yess Home innspections Yess Businesss Inspectionn Yess Public Education (CPR, First Aidd, Etc.) Yess Continuiing Educatioon Provider Yess Communnity Emergeency Responnse Team Yess MFPD ]É{Ç UUxxÇÉ|à tÇw cÉÄ|vvçç VÉÇáâÄà|Çz TááÉv|tàxá? ___V 172 CALAVERAS LAFCO COUNTYWIDE FIRE MUNICIPAL SERVICE REVIEW Collaboration MFPD reported that it had automatic aid agreements with Ebbetts Pass FPD, Altaville- Melones FPD, City of Angels Camp FD, and Central Calaveras FRPD, and mutual aid agreements with other fire service providers in the County. MFPD also regularly collaborates with fire service providers in the County on various grants. The District shares Station 2 with Altaville-Melones FPD, where AMFPD houses one of its fire engines. MFPD contributes to the Countywide Multi-hazard Mitigation Plan and the Disaster Plan. MFPD is a member of the County and State Fire Chiefs’ Associations, Fire Districts Association of California, California Special Districts Association, Nor Cal Training Officers Association, and Motherlode Inter-agency Training Officers Association. Dispatch and communications The District's emergency dispatch and communication needs are served through a Calaveras County contract with the California Department of Forestry and Fire Protection's (CalFire) Emergency Command Center (ECC) in San Andreas. There is currently no fee charged to local government fire protection agencies by Calaveras County. Dispatching is handled through joint use of the command frequency assigned to the Tuolumne-Calaveras Unit. The State Office of Emergency Services and County assigned tactical frequencies are also available for local use. The Calaveras County Sheriff's Office serves as the Primary Public Safety Answering Point where all landline calls within the County are originally directed. Fire incidents are directed to the ECC. Off-duty paid personnel and volunteers are alerted by "pager." Staffing MFPD has 33 sworn personnel—one fire chief, three battalion chiefs, one assistant chief of operations, fire marshal, one division chief, five captains, six engineers, and 15 firefighters. The District reported that its staffing level had not changed in the last few years. Paid employees are compensated based on job duties and rank. Firefighters receive $15 an hour, engineers receive $18 an hour and captains get $22 an hour. There are four part-time personnel and no full-time employees. The median age of the firefighters is 34.5, with a range from 16 to 69. MFPD conducts training in house. Part-time employees are required to train eight hours per week and volunteers eight hours per month. The challenge identified by the District is a lack of available time for volunteer firefighters to meet all training mandates. New firefighters attend the County Firefighter Academy from January through May. MFPD takes applications for volunteer firefighters throughout the year and brings on all qualified candidates in December of each year in preparation for the January academy. According to the California State Fire Marshal, all paid, volunteer and call firefighters must acquire Firefighter I certification; however, there is no time limit as to how long they may work before attaining certification. Firefighter I certification requires completion of the 259-hour Firefighter I course, which includes training on various fireground tasks, rescue operations, fire prevention and investigation techniques, and inspection and MFPD ]É{Ç UxÇÉ|à tÇw cÉÄ|vç VÉÇáâÄà|Çz TááÉv|tàxá? __V 173 CALAVERAS LAFCO COUNTYWIDE FIRE MUNICIPAL SERVICE REVIEW maintenance of equipment. In addition to this course, Firefighter I certification also requires that the applicant have a minimum of six months of volunteer or call experience in a California fire department as a firefighter performing suppression duties.79 MFPD has 24 EMT, six first responder and 23 Firefighter I certified personnel. Facilities and Capacity MFPD owns and operates two fire stations. Station 1 was built in 1996 and is currently used as a fire station. The classroom is used for various training classes sponsored by the Training Officer’s Association, CalFire and USFS. The station is staffed from eight in the morning till four in the afternoon Monday through Sunday by one part-time fire chief, one part-time secretary, one part-time firefighter, one firefighter intern, and 25 volunteer firefighters, engineers and captains. Station 1, which was reported to be in fair condition, houses two type 1 fire engines, one type 2 fire engine, two type 3 fire engines, one type 1 3,000-gallon water tender, one firefighter support unit, three utility vehicles, and three staff/command vehicles assigned to chief officers. Station 2, located in a building owned by the District on a privately-owned piece of land, was acquired in 2000 and reported to be in fair condition. The station is staffed by five volunteer firefighters and two captains, and houses one type 2 engine and one type 3 fire engine that belongs to AMFPD. Water for the District is provided through the domestic supply from Union Public Utility District (UPUD) in areas where hydrants are present. In areas with no hydrants, MFPD responds with its 3,000-gallon water tender and two mutual aid water tenders. Currently, the District’s facilities appear to have marginally sufficient capacity to provide adequate services to current demand and future growth. Existing stations are in fair condition and require additions and upgrades; the District reported a need for multiple vehicle replacements. MFPD anticipates challenges with outdated equipment and lack of personnel in meeting additional demand due to future growth. However, current response times meet Mountain Valley Emergency Medical Services Agency standards for response to medical emergencies. Infrastructure Needs MFPD reported that both of its stations needed living quarters and backup emergency generators. The District would like to relocate Station 2 to a larger lot and replace it with a bigger building and living quarters. It was reported that a lack of available revenue had restricted MFPD from implementing these improvements. The addition of living quarters at Station 1 will occur in 2013-2014 and cost about $120,000. Financing will be derived from the capital improvement reserve. In addition, the District needs to have its 26-year old type 1 fire engine and two 23-year old type 2 engines replaced. There is also a need to replace the old 1993 chassis on the 79 State Fire Marshal, Course Information and Required Materials, 2007, p. 44 MFPD ]É{Ç UxÇÉ|à tÇw cÉÄ|vç VÉÇáâÄà|Çz TááÉv|tàxá? __V 174 CALAVERAS LAFCO COUNTYWIDE FIRE MUNICIPAL SERVICE REVIEW firefighter support unit. MFPD is in the process of developing an apparatus replacement plan to address these needs. Challenges The District reported that there are areas on Pennsylvania Gulch Road, Skunk Ranch Road, French Gulch Road, Sheep Ranch Road, and in Murphys Pines that have long response times, due to their rural nature. Another significant challenge is the lack of available volunteer staff. MFPD anticipates difficulty maintaining updated and reliable equipment and personnel when the District experiences growth in the future. Service Adequacy While there are several benchmarks that may define the level of fire service provided by an agency, indicators of service adequacy discussed here include ISO ratings, response times, and level of staffing and station resources for the service area. Fire services in the communities are classified by the Insurance Service Office (ISO), an advisory organization. This classification indicates the general adequacy of coverage, with classes ranking from 1 to 10. Communities with the best fire department facilities, systems for water distribution, fire alarms and communications, and equipment and personnel receive a rating of 1. MFPD has an ISO rating of five in urban areas and eight in rural areas. The District was last evaluated in 2003. The National Fire Protection Association (NFPA) has issued a performance standard for volunteer and combination fire departments (NFPA 1720). This standard, among other guidelines, identifies target response time performance for structure fires. The response time is measured from the completion of the dispatch notification to the arrival time of the first-responder at the scene. Though not a legal mandate, NFPA 1720 does provide a useful benchmark against which to measure fire department performance. NFPA 1720 recommends that the response times for structure fire be nine minutes in urban demand zones at least 90 percent of the time, 10 minutes in suburban zones at least 80 percent of the time and 14 minutes in rural zones at least 80 percent of the time. Response times in remote zones are directly dependent on travel distances.80 All fire service providers in Calaveras County, except for the City of Angels Camp Fire Department, fall within the definition of a rural demand zone. The City of Angels Camp FD is an urban demand zone. Emergency response time standards vary by level of urbanization of an area: the more urban an area, the faster a response should be. Calaveras County is not broken down into wilderness, rural and urban designations for response time standards like other counties. Instead, Mountain Valley Emergency Medical Services Agency has divided Calaveras County into three zones for EMS and ambulance services. The northern and southern zones are served by American Legion and the eastern zone (which is the same as the Ebbetts Pass 80 Urban demand zone has population density of more than 1,000 people per square mile; suburban zone—between 500 and 1,000 people per square mile, rural zone—less than 500 people per square mile, and remote zone is identified by eight or more miles of travel distance to an incident. MFPD ]É{Ç UxÇÉ|à tÇw cÉÄ|vç VÉÇáâÄà|Çz TááÉv|tàxá? __V 175 CALAVERAS LAFCO COUNTYWIDE FIRE MUNICIPAL SERVICE REVIEW FPD boundary area) is served by Ebbetts Pass FPD. In the northern and southern zones the response time guideline is 20 minutes 90 percent of the time, and 13 minutes 90 percent of the time in the eastern zone. These standards are intended for the ambulance contract providers; however, they indicate what is considered appropriate response times for medical emergencies. The District tracks response times for each incident; however does not calculate its median and 90th percentile response times. MFPD reported that its average response times were six minutes in Murphys area, seven minutes in Douglas Flat area and eight minutes in Vallecito area. CalFire tracks response times for MFPD incidents. It should be noted that CalFire’s methodology for tracking response times differs from that of the districts. While the districts generally start timing from the time the engines leave the facility, CalFire starts timing after checking back in with the responder after dispatch, which is often when the District is already en route to the scene. Consequently, response times reported by CalFire for each incident tend to be shorter than those recorded by each district. It was reported that in 2011 the District’s average response time was 2.9 minutes and the 90th percentile response time was 6.9 minutes. An area that MFPD can improve upon is tracking its response times, being aware of its median and 90th percentile response times and collaborating with CalFire on data exchange, which would allow for more structured response and enhanced efficiency and consistency in data gathering. The service area size81 for each fire station varies between fire districts. The median fire station in Calaveras County serves approximately 34 square miles. Although EPFPD serves the most expansive area (195 square miles), AMFPD stations serve larger area per station, with 77.5 square miles served per station on average. Densely populated areas tend to have smaller service areas. For example, the average service area for the City of Angels Camp Fire Department’s fire station is 1.75 square miles. By comparison, each fire station in MFPD serves approximately 23.5 square miles. The number of firefighters serving within a particular jurisdiction is another indicator of level of service; however, it is approximate. The providers’ call firefighters may have differing availability and reliability. A district with more firefighters could have fewer resources if scheduling availability is restricted. Staffing levels in Calaveras County vary from 3.2 sworn firefighters per 1,000 residents in JLFPD’s service area to 13 in MHFPD. By comparison, MFPD has approximately 12 firefighters per 1,000 residents. 81 Service area refers to the area that the agency will respond to, based on a first responder map used by the Sherriff’s office. MFPD ]É{Ç UxÇÉ|à tÇw cÉÄ|vç VÉÇáâÄà|Çz TááÉv|tàxá? __V 176 CALAVERAS LAFCO COUNTYWIDE FIRE MUNICIPAL SERVICE REVIEW Figure 11-6: Murphys Fire Protection District Service Profile Fire Service Facilities Firestation Location Condition Staff per Shift Vehicles Station 1 37 Jones Street, Murphys, Fair Monday through Sunday from 2 type 1 fire engines, 1 type 2 fire engine, 2 CA 95247 8AM till 4PM by 4 part-time type 3 fire engines, 1 type 1 3,000-gallon personnel. water tender, 1 firefghter support unit, 3 utility vehicles, 3 staff/command vehicles. Station 2 3424 Main Street, Fair Staffed by volunteers 1 type 2 fire engines, 1 type 3 fire engine Vallecito, CA 95251 (AMFPD). Facility Sharing Current Practices: MFPD regularly collaborates with fire service providers in the County for various grants. The District shares its Station 2 with Altaville-Melones FPD, where AMFPD houses one of its fire engines. Classroom at Station 1 is used for various training classes sponsored by the Training Officer’s Association, CalFire and USFS. Future opportunities: After the construction of living quarters at station 1, the Calaveras County Sheriff's Office could use one of the offices for a sub-station. Infrastructure Needs and Deficiencies The District needs living quarters and backup emergency generators at both stations. MFPD needs to replace one 26 year old type1 engine, two 23 year old type 2 engines and 1993 chassis on firefighter support unit. District Resource Statistics Service Configuration Service Demand Staffing Base Year 2012 Configuration Base Year 2012 Statistical Base Year 2011 Fire Stations in District 2 Fire Suppression Direct Total Service Calls 465 Stations Serving District 2 EMS Direct % EMS 71% Sq. Miles Served per Station1 23.5 Ambulance Transport American Legion % Fire/Hazardous Materials 10% Total Staff2 33 Hazardous Materials Direct % False 2% Total Full-time Firefighters 0Air Rescue/Ambulance Helicopter PHI, Reach % Misc. emergency 5% Total Call Firefighters 33Fire Suppression Helicopter CalFire, USFS % Non-emergency 12% Total Sworn Staff per Station3 16.5Public Safety Answering Point Sheriff % Mutual Aid Calls 14% Total Sworn Staff per 1,000 12Fire/EMS Dispatch CalFire Calls per 1,000 people 174 Service Adequacy Service Challenges Lack of financing, aging stations and equipment, lack of personnel, and few Response Time Base Year 2011 difficult to serve roads. Average Response Time (min) 2.9 Training 90th Percentile Response Time (min) 6.9 Paid staff trains 8 hours per week. Volunteers are required to train 8 hours per ISO Rating 5/8 (2003) month. Mutual & Automatic Aid Agreements MFPD has automatic aid agreements with Ebbetts Pass FPD, Altaville-Melones FPD, City of Angels Camp FD, and Central Calaveras FRPD, and mutual aid agreements with other fire service providers in the County. Notes: 1) Primary service area (square miles) per station. 2) Total staff includes sworn and non-sworn personnel. 3) Based on ratio of sworn full-time and call staff to the number of stations. Actual staffing levels of each station vary. MFPD ]É{Ç UxÇÉ|à tÇw cÉÄ|vç VÉÇáâÄà|Çz TááÉv|tàxá? __V 177 CAALAVERAS LAAFCO COUNTYYWIDE FIRE MUNICIPAL SERVICE REVIEW MURRPHYS FIRE PROOTECTIOON DISTTRICT DDETERMINATIONNS Growtth and PPopulatiion Projjectionss  MMurphys Firre Protection District ((MFPD) currently has aan estimateed populatioon of 2,655.  TThe District observed aan increasee in call vollume in thee last few yyears, due tto an inncrease in thhe amount oof winery toourism in thhe area.  MMFPD anticipates growth in population and ssimilarly in service demmand withinn the DDistrict in tthe next few years. TThree subdiivisions weere approveed prior too the economic doownturn, whhich have thhe potential to be develloped in thee future. The Location and Chharacterristics oof Disadvantageed Unincorporatted Commmunitiees Within or Coontiguous to thhe Agenccy’s SOI  BBased on 22010 Censuus income informatioon for Cennsus Designnated Placees in Calaveras CCounty, thee Murphys Census DDesignated Place meeets the inccome definition of a disadvanttaged uninccorporated ccommunityy. The commmunity is loccated wwithin MFPDD’s bounds aand sphere of influencee. Present and PPlannedd Capaciity of Puublic Faacilities and Adequuacy of Public SServicess, Includding Inffrastruccture Needss and Deeficiencies  BBoth of the DDistrict’s staations are inn fair condittion and reqquire upgrades, thus haaving mmarginal cappacity to proovide adequuate servicees within MMFPD’s curreent service area. MMFPD reporrtedly does not have uup-to-date eequipment aand sufficieent personnnel to seerve futuree growth. HHowever, at present, thhe District has been aable to mainntain suufficient ressponse timees and a relaatively high firefighter to resident ratio.  MMFPD does not adoppt a capittal improveement plan, but plaans for caapital immprovemennts in its strategic plan. An apparatus replacemeent plan iis in developmentt.  Innfrastructurre needs innclude livingg quarters and backupp emergenccy generatoors at both fire stattions and reeplacement of outdatedd fire enginees.  AAn area that MFPD coulld improve upon is calcculating its median andd 90th perceentile reesponse timmes and collaborating wwith CalFire on informaation exchannge.  Services proovided by thhe District are adequaate based oon responsee times, its high fiirefighter too resident raatio, and its ISO rating.  Each fire staation in MFPD serves aapproximattely 23.5 sqquare miles,, by comparrison thhe median ffire station in Calaveras County seerves 34 squuare miles. The Districct has thhe second hhighest ratioo of firefightters per 1,000 residentts, which coould mean thhat it has a sufficieent staffing level to resppond to all incidents. OOn the otherr hand, a disstrict MFPD ]É{Ç UUxÇÉ|à 9 cÉÄ|vvçç VÉÇáâÄà|Çz TTááÉv|tàxá? ____V 178 CALAVERAS LAFCO COUNTYWIDE FIRE MUNICIPAL SERVICE REVIEW with more call firefighters could have fewer resources if scheduling availability (i.e., full-time jobs) is restricted. Financial Ability of Agencies to Provide Services  The District reported that its current financing levels were not adequate to deliver services.  Challenges in financing include the recent economic recession and consequential drop in property tax revenue caused by the drop in assessed valuation of properties. An additional challenge is the increase in service demand for which the District is not compensated, due to growth in the winery business in the area.  The District is funded primarily by property taxes. A special tax has twice been denied by voters.  MFPD has one outstanding loan, which was used to purchase a fire engine.  The District has a management practice to maintain six financial reserve funds— contingency/emergency reserve, fleet replacement trust fund, SCBA trust fund, reserve for cash, capital improvement trust fund, and loans receivable fund. At the end of FY 10-11, the District maintained reserves equivalent to over three years of operating expenditures. Status of, and Opportunities for, Shared Facilities  MFPD has automatic aid agreements with Ebbetts Pass FPD, Altaville-Melones FPD, City of Angels Camp FD, and Central Calaveras FRPD, and mutual aid agreements with other fire service providers in the County.  MFPD is a member of the County and State Fire Chiefs’ Associations, Fire Districts Association of California, California Special Districts Association, Nor Cal Training Officers Association, and Motherlode Inter-agency Training Officers Association. The District also collaborates with other fire providers in applying for grants.  MFPD contributes to the Countywide Multi-hazard Mitigation Plan and the Disaster Plan.  The District shares Station 2 with Altaville-Melones FPD, where AMFPD houses one of its fire engines.  MFPD and Copperopolis FPD share a common fire chief.  After the construction of living quarters at Station 1, the Calaveras County Sherriff’s Office will be able to use one of the station’s offices for its substation. Accountability for Community Service Needs, Including Governmental Structure and Operational Efficiencies  MFPD demonstrated partial accountability in its disclosure of information and cooperation with Calaveras LAFCO. The District responded to the questionnaires and cooperated with the document requests; however, the response required multiple follow-up requests. MFPD ]É{Ç UxÇÉ|à 9 cÉÄ|vç VÉÇáâÄà|Çz TááÉv|tàxá? __V 179 CALAVERAS LAFCO COUNTYWIDE FIRE MUNICIPAL SERVICE REVIEW  MFPD practices outreach efforts; however, the District lacks a website where information can be made available to the public. It is recommended that every public service provider have a website to keep constituents aware of the agency’s activities.  In regards to governance structure options, consolidation with Altaville-Melones FPD and/or Copperopolis FPD is a possibility. MFPD ]É{Ç UxÇÉ|à 9 cÉÄ|vç VÉÇáâÄà|Çz TááÉv|tàxá? __V 180 CAALAVERAS LAAFCO COUNTYYWIDE FIRE MUNICIPAL SERVICE REVIEW 122. SA N AAN DRR E AS F I R EE PROTEECT IO N DDI ST RR I CT San Andreas Fiire Protectiion Districtt (SAFPD) pprovides sttructure annd wildlandd fire protectioon, hazardoous materialls and emerrgency mediical first ressponder serrvices along with emergenncy medical technician non-transpport service.. AGENCYY OVERVVIEW Backgground SAFPPD was originally formeed as the Saan Andreas Protective Hook and LLadder Commpany in 1858 to provide ffire protection servicess to the towwn of San Anndreas and tthe surrounnding area. In 1912, residdents of Sann Andreas elected to fform the Saan Andreas Fire Protection District.882 The pprincipal acct that goveerns the District is the Fire Protecction Districct Law of 19987.83 The prinncipal act eempowers ffire districtts to providde fire prottection, resscue, emerggency medical, hazardouss material rresponse, ammbulance, aand any othher servicess relating too the protectioon of lives and propeerty.84 Districts must aapply and oobtain LAFFCO approvval to exercise services aauthorized bby the prinncipal act bbut not alrready proviided (i.e., laatent powers) by the district at the end of 2000..85 SAFPPD is locatedd in the wesstern portioon of Calaveeras Countyy. The Distriict is adjaceent to Mokelummne Hill FPDD in the norrth, Copperropolis FPD in the soutth, Foothill FFPD in the wwest, Central CCalaveras FRRPD in the eeast, and Altaville-Meloones in the ssoutheast. Boundarries SAFPPD’s boundaary is entireely within Calaveras Coounty. The ppresent bouunds encommpass approximmately 66 sqquare miless. The District haas undertakken 11 annnexations since its forrmation. The most reecent annexatiion took pllace in 20000 and invoolved territtory that wwas previouusly includeed in Calaveraas County FFire Departtment. The 2000 Counnty Fire reoorganization increasedd the SAFPD bboundary arrea to 66 square miless. The Distrrict’s historrical boundaary changes are shown inn Figure 12--1. 82 San Andrreas Fire Protecction District, Sttrategic Plan, Occtober 2006-Seeptember 2011. 83 Health annd Safety Code §§13800-13970. 84 Health annd Safety Code §§13862. 85 Governmment Code §568224.10. SAFPD ]É{Ç UUxÇÉ|à 9 cÉÄ|vvçç VÉÇáâÄà|Çz TTááÉv|tàxá? ____V 181 CALAVERAS LAFCO COUNTYWIDE FIRE MUNICIPAL SERVICE REVIEW Figure 12-1: SAFPD List of LAFCO Approved Border Changes Project Name Type of Action Year Recording Agency San Andreas FPD Formation 1912 LAFCO NE 1/4 OF NE1/4 OF SEC. 20. T4RN,R12E M.D.N. Annexation 1952 BOE Toyanza Sub Annexation 1963 BOE Oak Park Estates Annexation 1966 LAFCO "territory" Annexation 1968 LAFCO, BOE PORTION SEC'S. 7,8,17,18,20,21 & 28, T.4N., R.12E. Annexation 1969 BOE Canepa Ranch Annexation 1980 LAFCO Mt. Shadows Annexation 1982 LAFCO Oak Shadows Annexation 1984 LAFCO Vista de los Robles/Kiernan Annexation Unknown LAFCO Silver Pines Annexation Unknown LAFCO Calaveras County Fire Reorganization #1 Annexation 2000 LAFCO, BOE Sphere of Influence The sphere of influence (SOI) for the District was first adopted in 1986 as coterminous with its boundaries. It was further updated in 2005, when the SOI was reaffirmed to be coterminous. Extra-territorial Services The District provides services outside of its boundary area through automatic aid agreements with Jenny Lind FPD, Foothill FPD, Mokelumne Hill FPD, Central Calaveras FRPD, and Altaville-Melones FPD, and mutual aid agreements with the rest of the fire service providers in Calaveras County. Although the District does not have a complete strike team of its own, it does send its equipment to state fires as part of a strike team. SAFPD sends out two engines, a command vehicle with a strike team leader and a water tender as-needed. Areas of Significance One area of significance for SAFPD is where the District borders Mokelumne Hill FPD. The stretch of the highway in that area is divided down the centerline between the two districts making it challenging to coordinate a response. Other areas of interest include the Golden Hill Subdivision where the District would like to respond exclusively. SAFPD reported that it had the ability to respond quicker to that area. Bringing the boundary to North Lombardi Road would make the dispatch a lot easier; and the area would be better served. SAFPD ]É{Ç UxÇÉ|à 9 cÉÄ|vç VÉÇáâÄà|Çz TááÉv|tàxá? __V 182 ^_ ^_ ^_ ^_ ^_ ^_ ^_ ^_ ^_ ^_ ·|}þ 26 ·|}þ ^_ 49 n W Fire C a P S l r a a o v n t e e A r c a n t s i d o C r n o e u D as n is t t y rict G WIN ST WIN M NI E RD ·|}þ 26 VICTORY LN WET GULCH H R ISK D EY SLIDE RD JESUS MARIA RD G San Andreas FPD & SOI County Boundary ^_ n n O D N H t i o i s g h n t h e r - w r i D c P F a i t a s i y F r t r s d r e ir i e c P e e t r F R F o a e i t s c r e e e i c l r i t F v t i o i a o e i c n r s i l D it i i s e t s ricts ^_ W P O T a t a h o r t c e w e e r r n l b s C s o o d u i n G eOO t s i D e EL s L RD ALDER ST Mok HW e Y l 2 u 6 mne Hill FPD N EILSON R D HALLAS DR HAW VER RD SADIE M LN ARANATHA LN PONDEROSA WY ^_ ^_ ^_ PARDEE DAM RD C W A AT M ERT P OW O N R S D ECO RD Foothill FPD G P IL A LA L M O R M D A RD DOUBLE SPRINGS RD HWY 12 BEAL RANCH RD CENTRAL HILL RD EDNA D L R OMBARD ·|}þ I 4 D R R I 9 VER RANCH R G D OLD STRIKE RD LEONARD RD WRENN RD LORINDA LN n DO C ST e E n R RD t W r ES a T l M C UR a RA l Y a C v RE e EK r R a D s FRPD n Mountain Ranch ·|}þ 12 ANDREAS VISTA MURRAYDALE LN Protected by Central San Andreas ^_ DAP ^_ HNE STnValley Sp L r I i M n E g CR s EEK RD SUNSET S n T POPE STn MIL L S AV MOUNTAIN RANCH RD Calaveras FRPD ^_ ^_ n D BLA U K N E N L N R QU S D A IL IL V O E A R KS R R A D PIDS R H D WY 26 VISTA DEL LAGO DR NEW H N On e GA w N P H Y o S g R a A n NC R HE e RO s R e D rvoir HWY 49 C CE A M L E A N V T E R PL IT A A N S T R D RD COSTA R O D AK GR R O O V C O E K L Y R D D R G D ULC DE H L R S D OL LN FRIC F O R T E C C IT C Y F E R R R E O D C RD CERO P O RD NDEROSA WY HARTVICKSON LN Alpine County O L STATI ON RD CAROL KENNEDY DR FOURTH CROSSING RD DOGTOWN RD ^_ ^_ CO BA N L N D W E IN R ST DR Jenny Lind FP PAL O M D INO RIDGE RD HO G A G NN A RD N DAM RD Coppe n ropolis FPD JAQUIM CO A N D C R HO ST RIATA W Y 0 UPPER AND PO Y 0 R . D 5 1 2 Al C t O a SG v 3 R i A l VE l e RD -Melone 4 s FPD 5 « DOGTOWN RD Miles n Protected by Foothill ^_ ^_ ^_ ^_ ^_ ^_ ^_ ^_ ^_ ^_ ^_ ^_ ^_ ^_ ^_ ^_ ^_ CALAVERAS LAFCO COUNTYWIDE FIRE MUNICIPAL SERVICE REVIEW Accountability and Governance 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 MSR process and information disclosure. The principal act orders that the board of directors of a fire protection district must have an odd number of members, with a minimum of three and a maximum of 11 members. Directors may be appointed or elected.86 SAFPD is governed by a five-member board of directors elected at large to staggered four-year terms. Three of the current members were elected and two were appointed. Current board member names, positions, and term expiration dates are shown in Figure 12-3. All current board members will hold seats till 2014, at which point all of them will be up for re-election—two for two-year terms and three for four-year terms. The District reported that conducting board elections during the same years as for the County Board of Supervisors would cut SAFPD costs. The Board meets on the second Wednesday of every month at seven in the evening at the District’s fire station. Board meeting agendas are posted at the fire station, drug store and general store. Minutes are available upon request. Figure 12-3: San Andreas Fire Protection District Governing Body San Andreas FPD District Contact Information Contact: Fire Chief, Don Young Address: 37 Church Hill Road, San Andreas, CA 95249 Telephone: (209)754-4693 Email/website: safpd@goldrush.com Board of Directors Member Name Position Term Expiration Manner of Selection Length of Term Ken Snyder Chair December 2014 Elected 4 years David Serra Vice Chair December 2014 Appointed 4 years William Wennhold Secretary/Treasurer December 2014 Elected 4 year Larry Buswell Director December 2014 Elected 4 years Al Ohlau Director December 2014 Appointed 4 years Meetings Date: Second Wednesday of every month at 7pm. Location: Meetings are held at the fire station. Agenda Distribution: Posted at the station, drug store and general store. Minutes Distribution: Available upon request. 86 Health and Safety Code §13842. SAFPD ]É{Ç UxÇÉ|à 9 cÉÄ|vç VÉÇáâÄà|Çz TááÉv|tàxá? __V 184 CALAVERAS LAFCO COUNTYWIDE FIRE MUNICIPAL SERVICE REVIEW In addition to the required agendas and minutes, the District tries to reach its constituents through fundraisers held at the station, participating in community events, such as local auto shows, and going to field and farm days at high schools. At these events, the firefighters show children the fire engines and teach them CPR and first aid. SAFPD collaborates with hospitals and various community organizations. If a customer is dissatisfied with the District’s services, complaints may be submitted over the phone or via a letter to the chief or the Board of Directors. Complaints are investigated, after which the complainant is notified of the outcome. Chief and assistant chief are responsible for handling complaints. If complains concern the administrative staff, it is the Board of Directors’ duty to resolve these issues. The District reported that there were no complaints in 2011. SAFPD demonstrated partial accountability in its disclosure of information and cooperation with Calaveras LAFCO. The District responded to the initial questionnaires and cooperated with interview and document requests; however, follow-up questions and profile review required multiple follow-up attempts. Planning and Management Practices 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’s mission statement says: The San Andreas Fire Protection District is dedicated to protect the quality of life for our citizens and visitors through the protection of life, property and the environment. This is accomplished by providing fire suppression, prevention, education and emergency medical services. The District will use effective and efficient technologies to meet the dynamic needs of the community; while providing training, encouragement and values to our members. The District employs 30 staff—one chief, one assistant chief, one battalion chief, six captains, six engineers, three operators, and 12 firefighters. Six staff members are paid and the remainder receive a stipend. The SAFPD fire station is staffed seven days a week, 24 hours a day by at least one paid personnel. The chief is responsible for the overall operations of the District, while the assistant chief is the day-to-day administrator. The assistant chief has full authority in the chief’s absence. The fire chief is accountable to the District’s Board of Directors and oversees the assistant chief, who in turn manages the battalion chief. The captains supervise the engineers and report to the battalion chief. Operators are subordinate to engineers; firefighters are accountable to operators. The District’s personnel are evaluated annually by the chief and a member of the Board of Directors if needed. The chief is evaluated by the Board of Directors. SAFPD reported that it did not perform formal evaluations of overall District performance, such as benchmarking or annual reports. SAFPD ]É{Ç UxÇÉ|à 9 cÉÄ|vç VÉÇáâÄà|Çz TááÉv|tàxá? __V 185 CALAVERAS LAFCO COUNTYWIDE FIRE MUNICIPAL SERVICE REVIEW The District tracks its paid employees’ workload through a calendar that is submitted to the accounting department. The District maintains logs to record workload in the form of calls, responding staff, training and equipment maintenance. The District’s financial planning efforts include an annually adopted budget and annually audited financial statements. SAFPD does not adopt a capital improvement plan (CIP), but plans for capital improvements on an as-needed basis. The District also adopts a strategic plan; the planning horizon of the most recent plan was 2006-2011. SAFPD is planning to update its strategic plan in 2013. Existing Demand and Growth Projections This section discusses the factors affecting service demand, such as land uses, and historical and anticipated population growth. Land Use Land uses within the District are general agriculture, agricultural preserve, residential agriculture, environmental protection, industrial, commercial, general forest, and residential. The District’s bounds encompass approximately 66 square miles. Population There are approximately 3,128 residents within the District, based on census block population in the 2010 Census.87 The population density within the District is 46 people per square mile. Existing Demand Figure 12-4: SAFPD Number of Calls by Year, 2007-2011 The District reported that its 1000 peak demand times varied across 900 days and seasons. Calls for 800 medical emergencies are 700 consistently high in volume 600 throughout the year, similar to 500 other fire districts in the region. 400 The District reported that it 300 had observed an increase in 200 service demand in the last few 100 years. 0 2007 2008 2009 2010 2011 As shown in Figure 12-4, the number of calls received by the District has increased over the last few years. The District’s opinion is that the increase may be due to people moving into San Andreas and the City of 87 Census Blocks 4012, 4013, 4029, 1011, 1037, 1043, 1039, 4014, 1012, 1048, 1044, 1049, 2015, 2010, 2027, 2034, 4043, 4039, 4038, 4037, 4036, 4033, 4028, 3019, 3015, 4024, 4041, 4017, 3007, 2035, 2036, 2040, 2041, 3003, 3004, 3005, 2030, 2031, 2039, 2038, 2037, 2028, 2020, 1041, 3000, 4016 in Census Tract 3 and Census Block 1023 in Census Tract 2.10 in Calaveras County. SAFPD ]É{Ç UxÇÉ|à 9 cÉÄ|vç VÉÇáâÄà|Çz TááÉv|tàxá? __V 186 CALAVERAS LAFCO COUNTYWIDE FIRE MUNICIPAL SERVICE REVIEW Angels Camp, as well as a rise in the transit population caused by two major highways running through the District’s bounds. Projected Growth and Development SAFPD anticipates growth in population and similarly in service demand within the District in the next few years. However, no formal population projections have been made by the District. It was reported that an increase in population is anticipated, due to growing County government and commercial businesses. The County is building a new jail and a courthouse in San Andreas. Doctors are opening clinics in buildings that had been previously built but had not been occupied. A majority of the growth is expected to be commercial and county-service related and to occur in the town of San Andreas, along SR 49 and in the northeastern part of SAFPD. Residential growth is scattered and expected to be slow but steady in the next few years. A few subdivisions were previously planned, but later canceled, due to the downturn in the economy. Call volume is also anticipated to increase, due to growth in the City of Angels Camp and transit population traveling through SAFPD. In terms of planned development, new multi-family units within the District are planned south of Highway 49, west of Russell Road, and north of Highway 49, along Main Street and along Gold Strike Way. Multi-family units are also planned in the vicinity of the Highway 12/49 junction. Commercial development is planned south of Highway 49, east of Pool Station Road, and in the southeastern portion of the District along Highway 49. Industrial areas are planned west of Angels Road and along Airport Road, in the south of the District, and along Highway 49. The future growth area of the District encompasses the planned multi-family and industrial development areas.88 The State Department of Finance (DOF) projects that the population of Calaveras County will grow by eight percent in the next 10 years. Thus, the average annual population growth in the County is anticipated to be approximately 0.8 percent. Based on these projections, the District’s population would increase from 3,128 in 2010 to approximately 3,386 in 2020. It is anticipated that demand for service within the District will increase minimally based on the DOF population growth projections through 2020. The District reported that it had sufficient capacity to serve anticipated future growth. SAFPD has the necessary equipment and personnel and will not have to recruit more staff in order to serve future growth areas. SAFPD did not identify any areas within its future growth area to which it would be difficult to provide an adequate level of service. Growth Strategies The District is not a land use authority, and does not hold primary responsibility for implementing growth strategies. The land use authority for unincorporated areas is the County. The County’s General Plan is presently being updated. Several of the fire districts reported that the County had sought input from them on the General Plan update. The District reported that it had provided limited contribution to the General Plan update. 88 Calaveras County, San Andreas Community Plan Land Use Designations Map, January 2008. SAFPD ]É{Ç UxÇÉ|à 9 cÉÄ|vç VÉÇáâÄà|Çz TááÉv|tàxá? __V 187 CALAVERAS LAFCO COUNTYWIDE FIRE MUNICIPAL SERVICE REVIEW With regard to possible governance structure alternatives and SOI changes, the District would like to see the border between Mokelumne Hill FPD and San Andreas FPD clearly defined to enhance efficiency. Currently, the stretch of SR49 that goes up to Mokelumne Hill, is split down the centerline between the two districts. SAFPD reported that fire providers in the County were increasingly dropping borders. There is the potential for consolidation of SAFPD with Mokelumne Hill FPD; however, the matter has not been discussed formally between the two districts. Another governance structure option that interests SAFPD is annexation of the Golden Hill Subdivision, which is currently in Mokelumne Hill FPD, and the inclusion of the entire Double Springs Subdivision in its boundaries, which is currently in both SAFPD and Foothill FPD. Financing The financial ability of agencies to provide services is affected by available financing sources and financing constraints. This section discusses the major financing constraints faced by the District and identifies the revenue sources currently available to the District. The District reported that its financing levels were marginally adequate to deliver services. SAFPD equipment is becoming dated and needs to be replaced fairly soon; however, decreased property values have resulted in a decline in district revenues, creating a challenge in replacing aging equipment. In addition, the District suffered a decrease in financing when the State took $17,000 from SAFPD about 10 years ago through ERAF shift. Rising prices for fuel and utilities also increased costs for the District. The District’s total revenue for FY 10-11 was $247,380. Revenue sources included property tax revenue (85 percent), interest income (one percent), strike team reimbursements (seven percent), building exaction fee (three percent), EMS billing (one percent), and miscellaneous revenue (three percent). Funding for operations comes from three sources, with the primary source being secured property taxes. Additionally, SAFPD bills direct time and materials for non- resident vehicle accidents and collects new construction impact fees. In 2002, in order to cover the costs of providing services to non-resident vehicle accidents along the throughfares of SR 49, 12, and 26 and all roadways within San Andreas FPD, the District established a fee schedule. The schedule is subject to a yearly automatic increase attributed to inflation, not to exceed two percent per year. In FY 02-03, the rates were $186.05 for the first run apparatus and personnel, $60 per hour to the nearest half an hour for each additional apparatus hour, plus the actual cost per hour for personnel, and $45 per hour for specialized and extrication equipment. In the same year, 2002, the Board of Directors also determined that there was a need to offset the cost of equipment and personnel needed to continue to provide adequate fire protection, damage control, safety for firefighting personnel and the delivery of other fire services, as the result of commercial and residential growth within the San Andreas FPD. Fees are charged for construction of any building, including garages, barns, and other outbuildings and additions. For residential construction there is a one-time fee of 0.25 SAFPD ]É{Ç UxÇÉ|à 9 cÉÄ|vç VÉÇáâÄà|Çz TááÉv|tàxá? __V 188 CALAVERAS LAFCO COUNTYWIDE FIRE MUNICIPAL SERVICE REVIEW cents per square foot. For commercial and industrial construction, including multi-family dwellings, there is a one-time fee of 0.75 cents per square foot. SAFPD does not charge any other fees. The District occasionally responds to state fires with its strike team and gets reimbursed for it from the State of California. SAFPD has not provided information regarding its expenditures in FY 10-11. The District reported that overages in expenses for the past several years had been covered by financial reserves. The District does not have a capital improvement plan. SAFPD plans for its capital improvement projects on an as-needed basis. SAFPD does not have long-term debt. The District has a management practice to hold two financial reserve funds. At the end of FY 10-11, the reserve fund for construction for specific line items contained over $40,000. The reserve fund for contingencies had a balance of about $30,000 to $40,000. The District does not participate in any joint powers agreements (JPAs). SAFPD ]É{Ç UxÇÉ|à 9 cÉÄ|vç VÉÇáâÄà|Çz TááÉv|tàxá? __V 189 CAALAVERAS LAAFCO COUNTYYWIDE FIRE MUNICIPAL SERVICE REVIEW FIRRE AND EMS SEERVICESS Servicce Overvview SAFPPD providess structure ffire protectiion, wildlannd fire proteection to 1.66 square milles of local ressponsibility area, hazarrdous materrials and EMMS first respponder servvices along with EMT levvel non-trannsport EMS service. Thhe District iis an Autommatic Externnal Defibrilllator (AED) aand CPR prrovider throough the aappropriate agencies. The servicces provideed by SAFPD aare describeed in detail in Figure 122-5. Figure 12-5: SAFPD Serrvice Matrixx CCalaveraas Countyy Fire Seervices MMatrix SService Providded ? Strructural firee protectionn Yess Wildland fire protection Yess Veehicle fire protection Yess Laadder truck capabilitiess Yess Emmergency mmedical servvices Yess Baasic life suppport Yess Addvanced lifee support Noo Addvanced lifee support transport Noo Haazardous mmaterials emergency ressponse Yess Firre preventioon Yess Firre safety edducation Yess Firrst respondder swift waater and loww angle ropee rescue Noo Puublic servicee assists Yess Oxxygen fillingg for breathing apparattuses Yess Heelicopter faccilities Yess Jawws of Life toools Yess Reesponse to bboating acciidents Yess Water rescuee Yess Divve and ice rrescue Noo Firre investigaation Yess Hoome inspecttions Yess Collaborration The District haas automattic aid agrreements wwith Jenny Lind FPDD, Foothill FPD, Mokelummne Hill FPPD, Centrall Calaverass FRPD, and Altaville--Melones FFPD. Mutuaal aid agreemeents were sset up withh Copperopolis FPD, CCity of Angeels FD, Murphys FPD,, and Ebbetts Pass FPD. In additionn, SAFPD hhas mutual and autommatic aid agreements with CalFire aand the Statte Office of EEmergency Services. SAFPPD is a memmber of thee Calaverass County Fiire Chief’s AAssociation, Californiaa Fire Chief’s AAssociation, and Motherr Lode Interragency Traaining Officeer’s Association. SAFPD ]É{Ç UUxÇÉ|à 9 cÉÄ|vvçç VÉÇáâÄà|Çz TTááÉv|tàxá? ____V 190 CALAVERAS LAFCO COUNTYWIDE FIRE MUNICIPAL SERVICE REVIEW Dispatch and communications The District's emergency dispatch and communication needs are served through a Calaveras County contract with the California Department of Forestry and Fire Protection's (CalFire) Emergency Command Center (ECC) in San Andreas. There is currently no fee charged to local government fire protection agencies by Calaveras County. Dispatching is handled through joint use of the command frequency assigned to the Tuolumne-Calaveras Unit. The CalFire Office of Emergency Services and County assigned tactical frequencies are also available for local use. The Calaveras County Sheriff's Office serves as the Primary Public Safety Answering Point where all landline calls within the County are originally directed. Fire incidents are directed to the ECC. Off-duty paid personnel and volunteers are alerted by "pager." Staffing SAFPD has 30 sworn personnel—one fire chief, one assistant chief, one battalion chief, six captains, six engineers, three operators, and 12 firefighters. One staff member is full time, four are part time, and two receive a stipend. The rest are volunteers. Board members are reimbursed for attending meetings. The chair of the Board gets $100 per meeting; the rest of the board members receive $60 per meeting. The median age of the firefighters is 28, with a range from 18 to 74. The District reported that it had enough volunteers and did not face challenges with recruitment. According to the California State Fire Marshal, all paid, volunteer and call firefighters must acquire Firefighter I certification; however, there is no time limit as to how long they may work before attaining certification. Firefighter I certification requires completion of the 259-hour Firefighter I course, which includes training on various fireground tasks, rescue operations, fire prevention and investigation techniques, and inspection and maintenance of equipment. In addition to this course, Firefighter I certification also requires that the applicant have a minimum of six months of volunteer or call experience in a California fire department as a firefighter performing suppression duties.89 SAFPD has 14 Firefighter I and 11 EMT certified personnel. The District’s firefighters train every Tuesday evening between the hours of 6:30 and 10. Paid and volunteer firefighters have the same training requirements. Facilities and Capacity SAFPD owns and operates two fire stations, which were both reported to be in fair condition. Station 1, which was built in 1951, is located at 37 Church Hill Road in San Andreas. Station 1 houses equipment and personnel, and serves as a training center for Mother Lode Interagency Training Officer’s Association. Vehicles housed in Station 1 include one type 1 engine, one aerial/track, one type 3 engine, one rescue unit, and one breathing support vehicle. 89 State Fire Marshal, Course Information and Required Materials, 2007, p. 44 SAFPD ]É{Ç UxÇÉ|à 9 cÉÄ|vç VÉÇáâÄà|Çz TááÉv|tàxá? __V 191 CALAVERAS LAFCO COUNTYWIDE FIRE MUNICIPAL SERVICE REVIEW Station 2, which was built in 1950s and purchased by the District in 2002, is located on East Saint Charles Road. It houses one type 1 water tender, one type 1 engine, two type 2 engines, and one type 3 engine. Water to the District is provided by Calaveras Public Utility District. Calaveras PUD has the ability to supply water for an extended fire event if needed. Currently, SAFPD’s facilities have enough capacity to provide adequate services within the District’s existing service area. Several upgrades are needed at the existing facilities; however, all present stations are in working condition and no need for additional facilities was identified. Current response times meet Mountain Valley Emergency Medical Services Agency standards for response to medical emergencies. SAFPD reported that because it had sufficient equipment and personnel, the District did not anticipate any difficulties serving future growth areas. Infrastructure Needs SAFPD plans its capital improvement projects on an as-needed basis. It was reported that both fire stations were in need of upgrades. One of the stations which is currently just a garage, is in need of a complete remodel. In addition, electrical wiring needs to be repaired and engines updated. There is also a need for an additional space for administrative work and a four-wheel drive engine for several rural areas where there is snow or the ground is extremely wet. The District reports that it frequently applies for and receives federal grants for new equipment. With money from one of these grants, SAFPD was able to purchase a breathing apparatus in 2008. The District is in search of additional grant funding to cover other facility and equipment needs. Challenges The District reported challenges with regard to financing of services, mostly attributable to declining revenues as a result of decreasing property values and the State restructuring revenue sources and borrowing funds, combined with increased costs related to rising supply prices and dated equipment. Service Adequacy While there are several benchmarks that may define the level of fire service provided by an agency, indicators of service adequacy discussed here include ISO ratings, response times, and level of staffing and station resources for the service area. Fire services in the communities are classified by the Insurance Service Office (ISO), an advisory organization. This classification indicates the general adequacy of coverage, with classes ranking from 1 to 10. Communities with the best fire department facilities, systems for water distribution, fire alarms and communications, and equipment and personnel receive a rating of 1. SAFPD has an ISO rating of five, which covers out to five miles from Station 1. Beyond five miles, the ISO rating is eight. The District was last evaluated in 2007. SAFPD ]É{Ç UxÇÉ|à 9 cÉÄ|vç VÉÇáâÄà|Çz TááÉv|tàxá? __V 192 CALAVERAS LAFCO COUNTYWIDE FIRE MUNICIPAL SERVICE REVIEW The National Fire Protection Association (NFPA) has issued a performance standard for volunteer and combination fire departments (NFPA 1720). This standard, among other guidelines, identifies target response time performance for structure fires. The response time is measured from the completion of the dispatch notification to the arrival time of the first-responder at the scene. Though not a legal mandate, NFPA 1720 does provide a useful benchmark against which to measure fire department performance. NFPA 1720 recommends that the response times for structure fire be nine minutes in urban demand zones at least 90 percent of the time, 10 minutes in suburban zones at least 80 percent of the time and 14 minutes in rural zones at least 80 percent of the time. Response times in remote zones are directly dependent on travel distances.90 All fire service providers in Calaveras County, except for the City of Angels Camp Fire Department, fall within the definition of a rural demand zone. The City of Angels Camp FD is an urban demand zone. Emergency response time standards vary by level of urbanization of an area: the more urban an area, the faster a response should be. Calaveras County is not broken down into wilderness, rural and urban designations for response time standards like other counties. Instead, Mountain Valley Emergency Medical Services Agency has divided Calaveras County into three zones for EMS and ambulance services. The northern and southern zones are served by American Legion and the eastern zone (which is the same as the Ebbetts Pass FPD boundary area) is served by Ebbetts Pass FPD. In the northern and southern zones the response time guideline is 20 minutes 90 percent of the time, and 13 minutes 90 percent of the time in the eastern zone. These standards are intended for the ambulance contract providers; however, they indicate what is considered appropriate response times for medical emergencies. SAFPD does not track response time for each incident. CalFire tracks response times for SAFPD incidents. It should be noted that CalFire’s methodology for tracking response times differs from that of the districts. While the districts generally start timing from the time the engines leave the facility, CalFire starts timing after checking back in with the responder after dispatch, which is often when the District is already en route to the scene. Consequently, response times reported by CalFire for each incident tend to be shorter than those recorded by each district. It was reported that in 2011 the District’s average response time was 1.67 minutes and the 90th percentile response time was 3.9 minutes. An area that SAFPD can improve upon is tracking its response times, being aware of its median and 90th percentile response times and collaborating with CalFire on data exchange, which would allow for more structured response and enhanced efficiency and consistency in data gathering. The service area size91 for each fire station varies between fire districts. The median fire station in Calaveras County serves approximately 34 square miles. Although EPFPD serves the most expansive area (195 square miles), AMFPD stations serve larger area per station, with 77.5 square miles served per station on average. Densely populated areas tend to 90 Urban demand zone has population density of more than 1,000 people per square mile; suburban zone—between 500 and 1,000 people per square mile, rural zone—less than 500 people per square mile, and remote zone is identified by eight or more miles of travel distance to an incident. 91 Service area refers to the area that the agency will respond to, based on a first responder map used by the Sherriff’s office. SAFPD ]É{Ç UxÇÉ|à 9 cÉÄ|vç VÉÇáâÄà|Çz TááÉv|tàxá? __V 193 CALAVERAS LAFCO COUNTYWIDE FIRE MUNICIPAL SERVICE REVIEW have smaller service areas. For example, the average service area for the City of Angels Camp Fire Department’s fire station is 1.75 square miles. By comparison, each fire station in SAFPD serves approximately 33 square miles. The number of firefighters serving within a particular jurisdiction is another indicator of level of service; however, it is approximate. The providers’ call firefighters may have differing availability and reliability. A district with more firefighters could have fewer resources if scheduling availability is restricted. Staffing levels in Calaveras County vary from 3.2 sworn firefighters per 1,000 residents in JLFPD’s service area to 13 in MHFPD. By comparison, SAFPD has approximately 10 firefighters per 1,000 residents. SAFPD ]É{Ç UxÇÉ|à 9 cÉÄ|vç VÉÇáâÄà|Çz TááÉv|tàxá? __V 194 CALAVERAS LAFCO COUNTYWIDE FIRE MUNICIPAL SERVICE REVIEW Figure 12-6: San Andreas Fire Protection District Service Profile Fire Service Facilities Firestation Location Condition Staff per Shift Vehicles Station 1 37 Church Hill Road, San Fair 5 sworn personnel 1 type 1 engine, 1 aerial/truck, 1 type 3 Andreas, CA engine, 1 rescue unit, 1 breathing support vehicle. Station 2 20 East St. Charles St, San Fair Unstaffed 1 type 1 water tender, 1 type 1 engine, 2 type Andreas, CA 2 engines, 1 type 3 engine. Facility Sharing Current Practices: SAFPD Station 1 is used as a training center by Calaveras County Training Officer's Association. Future opportunities: No future opportunities for facility sharing were identified. Infrastructure Needs and Deficiencies The District needs upgrades on both stations, repairs on electrical wiring, new engines, 4-wheel drive engine, and space for administrative work. District Resource Statistics Service Configuration Service Demand Staffing Base Year 2012 Configuration Base Year 2012 Statistical Base Year 2011 Fire Stations in District 2 Fire Suppression Direct Total Service Calls 942 Stations Serving District 2 EMS Direct % EMS 78% Sq. Miles Served per Station1 34 Ambulance Transport American Legion % Fire/Hazardous Materials 9% Total Staff2 30 Hazardous Materials Direct % False 3% Total Full-time Firefighters 1Air Rescue/Ambulance Helicopter PHI, Reach % Misc. emergency 8% Total Call Firefighters 29Fire Suppression Helicopter CalFire % Non-emergency 2% Total Sworn Staff per Station3 15Public Safety Answering Point Sheriff % Mutual Aid Calls NP Total Sworn Staff per 1,000 10Fire/EMS Dispatch CalFire Calls per 1,000 people 303 Service Adequacy Service Challenges Response Time Base Year 2011 Rising supply prices, declining property prices, dated equipment. Average Response Time (min) 1.67 Training 90th Percentile Response Time (min) 3.9 Volunteers train every Tuesday evening between the hours of 6:30 and 10 in ISO Rating 5/8 (2007) the evening. Paid and volunteer firefighters have the same requirements. Mutual & Automatic Aid Agreements The District has automatic aid agreements with Jenny Lind FPD, Foothill FPD, Mokelumne Hill FPD, Centeral Calaveras FRPD and Altaville-Melones FPD and mutual aid agreements with the rest of fire providers in the County. SAFPD has automatic aid agreements with CalFire and OES. Notes: 1) Primary service area (square miles) per station. 2) Total staff includes sworn and non-sworn personnel. 3) Based on ratio of sworn full-time and call staff to the number of stations. Actual staffing levels of each station vary. SAFPD ]É{Ç UxÇÉ|à 9 cÉÄ|vç VÉÇáâÄà|Çz TááÉv|tàxá? __V 195 CAALAVERAS LAAFCO COUNTYYWIDE FIRE MUNICIPAL SERVICE REVIEW SAN ANDREAAS FIREE PROTEECTION DISTRICCT DETERRMINATIONS Growtth and PPopulatiion Projjectionss  San Andreas Fire Protecction Districct (SAFPD) currently hhas an estimmated populaation of 3,128.  OOver the lastt few years, the Districtt has experieenced an inncrease in seervice demaand.  SAAFPD anticipates growwth in popullation and ssimilarly in service demmand withinn the DDistrict in thhe next feww years. Ann increase iss anticipateed, due to ggrowing Coounty government and commeercial businnesses. An iincrease in transit throough the Disstrict iss also anticippated to impact demannd for servicces. The Location and Chharacterristics oof Disadvantageed Unincorporatted Commmunitiees Within or Coontiguous to thhe Agenccy’s SOI  BBased on 22010 Censuus income informatioon for Cennsus Designnated Placees in Calaveras Coounty, the San Andreeas Census Designatedd Place meeets the inccome definition of a disadvanttaged uninccorporated ccommunityy. The commmunity is loccated wwithin SAFPDD’s bounds and spheree of influencce. Present and PPlannedd Capaciity of Puublic Faacilities and Adequuacy of Public SServicess, Includding Inffrastruccture Needss and Deeficiencies  DDistrict facillities have ssufficient caapacity to pprovide adeequate servvices withinn the cuurrent service area andd to anticipated futuree growth. Cuurrent respoonse times meet MMountain Vaalley Emerggency Medical Servicees Agency standards for responsse to mmedical emeergencies. SSAFPD repoorted it hadd adequate equipmentt and persoonnel, and did not anticipate aany difficulties in conttinuing a similar level of servicess into thhe future.  Capital improvement projects arre plannedd for on aan as-needded basis. It is reecommendeed that the District initiate muulti-year caapital planning to ennsure reevenues aree sufficient tto meet antiicipated neeeds.  Innfrastructurre needs incclude upgraades to bothh fire stationns, electricaal wiring reppairs, engine replaacements, purchase of a 4-wheel ddrive enginne, and addiitional spacce for administrativve needs.  AAn area thatt SAFPD coould improvve upon is tracking itts responsee times for each inncident and calculatingg its median and 90th peercentile ressponse timees.  TThe District’s services aappear to bbe adequatee based on iits ISO ratinng and respponse tiimes. On avverage, the District ressponds to inncidents fasster that all other providers SAFPD ]É{Ç UUxÇÉ|à 9 cÉÄ|vvçç VÉÇáâÄà|Çz TTááÉv|tàxá? ____V 196 CALAVERAS LAFCO COUNTYWIDE FIRE MUNICIPAL SERVICE REVIEW in the County. The District could improve upon its firefighter certification ratio, which is among the lowest in the County. Financial Ability of Agencies to Provide Services  The District reports that current financing levels are marginally adequate to deliver services.  Challenges to financing include a need to replace outdated equipment, decreased property values, and rising supply prices.  Grants were identified as a potential additional source of financing to enhance funding of services.  The District has a management practice to maintain two financial reserve funds— one for contingencies and another for construction of specific line items. At the end of FY 10-11, the District’s reserves were comparable to four months of operating expenditures. Status of, and Opportunities for, Shared Facilities  The District has automatic aid agreements with CalFire, the State Office of Emergency Services, Jenny Lind FPD, Foothill FPD, Mokelumne Hill FPD, Central Calaveras FRPD, and Altaville-Melones FPD, and mutual aid agreements with Copperopolis FPD, City of Angels FD, Murphys FPD, and Ebbetts Pass FPD.  SAFPD is a member of the Calaveras County Fire Chief’s Association, California Fire Chief’s Association, and Mother Lode Interagency Training Officer’s Association.  Station 1 is used as a training facility by the Mother Lode Interagency Training Officer’s Association.  SAFPD did not identify additional opportunities for facility sharing. Accountability for Community Service Needs, Including Governmental Structure and Operational Efficiencies  SAFPD demonstrated partial accountability in its disclosure of information and cooperation with Calaveras LAFCO. The District responded to the questionnaires and cooperated with the document requests; however, the response required multiple follow-up requests.  SAFPD practices extensive outreach efforts; however, the District lacks a website where information could be made available to public. It is recommended that every public service provider have a website to keep constituents aware of the agency’s activities.  Governance structure options include consolidation with Mokelumne Hill FPD, Central Calaveras FRPD, and West Point FPD and annexation of the Golden Hill and Double Springs Subdivisions.  It is recommended that the border between Mokelumne Hill FPD and San Andreas FPD, which runs along the centerline of SR49, be adjusted to enhance efficiency. SAFPD ]É{Ç UxÇÉ|à 9 cÉÄ|vç VÉÇáâÄà|Çz TááÉv|tàxá? __V 197 CAALAVERAS LAAFCO COUNTYYWIDE FIRE MUNICIPAL SERVICE REVIEW 133. WWESTT P O II NT FF I R EE PROTEECT IO N DDI ST RR I CT Westt Point Fire Protection District (WWPFPD) proovides strucctural, vehiccle and wilddland fire supppression, baasic life suppport respoonse to meddical emergencies, fire preventionn and communnity educatioon to the coommunity of West Poinnt and surroounding areaa. AGENCY OOVERVIEW Backgground Westt Point Firee Protection District (WPFPD) wwas formedd in 1948 to providee fire protectioon to the residents of thhe District. The pprincipal acct that goveerns the District is the Fire Protecction Districct Law of 19987.92 The prinncipal act eempowers ffire districtts to providde fire prottection, resscue, emerggency medical, hazardouss material rresponse, ammbulance, aand any othher servicess relating too the protectioon of lives and propeerty.93 Districts must aapply and oobtain LAFFCO approvval to exercise services aauthorized bby the prinncipal act bbut not alrready proviided (i.e., laatent powers) by the district at the end of 2000..94 The District is llocated in tthe northeaastern portiion of the CCalaveras CCounty. WPPFPD borders Amador Coounty in thee north, Ebbbetts Pass FPD in the east and ssouth, the SSheep Ranch aarea (proteccted by Cenntral Calaveeras FRPD)) in the souuth, and Ceentral Calavveras FRPD in the west. Boundarries Sincee its formattion, the District has undertakenn one anneexation, whhich occurreed in 2000, whhen WPFPDD added aboout 82 squaare miles of adjacent laand previously protecteed by the Calavveras Countty Fire Depaartment.95 The District is aapproximattely 108 squuare miles in size, enccompassingg the area aalong portionss of SR 26 beetween the north and tthe south forrks of the MMokelumne River. Sphere oof Influence WPFPD’s spheree of influencce (SOI) was last updatted in 20055, when it wwas reaffirmed to be cotermminous withh the District’s boundaaries. 92 Health annd Safety Code §§13800-13970. 93 Health annd Safety Code §§13862. 94 Governmment Code §568224.10. 95 WPFPD, AAudited Financial Statement FY 10-11, p. 8. WPFPD ]É{Ç UUxxÇÉ|à tÇw cÉÄ|vvçç VÉÇáâÄà|Çz TááÉv|tàxá? ___V 198 CALAVERAS LAFCO COUNTYWIDE FIRE MUNICIPAL SERVICE REVIEW Extra-territorial Services WPFPD provides services outside of its boundaries through automatic and mutual aid agreements. WPFPD maintains automatic aid agreements with Mokelumne Hill FPD, San Andreas FPD, and Central Calaveras FRPD. Additionally, the District participates in a statewide master mutual aid agreement and has an agreement with CalFire to provide support during the summer months. The District maintains a strike force, and occasionally responds to fires around the State. Areas of Significance The District reports that the Skunk Hollow area is an area of significance, as it lies within Central Calaveras FRPD’s bounds but WPFPD can often respond before CCFRPD when necessary. The area is remote with poor roads, and can get muddy during rainy periods. Additionally, WPFPD reported that it generally could respond along SR 26 to the south of the District’s bounds before others arrived to the scene. WPFPD ]É{Ç UxÇÉ|à tÇw cÉÄ|vç VÉÇáâÄà|Çz TááÉv|tàxá? __V 199 ^_ ^_ ^_ ^_ ^_ El DoradCoa Claovuenrtays County West Point Fire Protection District West Point FPD & SOI County Boundary Other Fire Protection Districts Waterbodies n Parcels District Fire Facilities n Non-District Fire Facilities ^_ Other Counties 08N50 Highways Towns 07N58 ^_ ^_ ^_ G U l P e PE n R S c D U O o M R N e R E n R A R Y D RD DR XOF A HIG m DON R C D D a E E D A d R A D H O W R o R Y L F 2 r N F 6 R S D P C IN o I W N K S H T D E W u R A E S D Y N P T n 2 E L P 6 N E t O D Y y I E N R N T D C PI E O N R E D ER n R S ^_ D CH n L A I l N pin K e B M C W o A A un R N t e y N W ^_ E s Y Y t W S n K Y P U N L o R L W A R F H I i L L I n R A D a i O T D l A L t J E i R Y s U D N l N D F R N V L e S A A R B L T R L L y R D E D o Y v R a i D l d le L F O l N a E t S L T IL A B Y R A G L R D A D P M R O D U S W N IL T I R N G I O V L A D D TL T G E I E O N R C N R R M D R E O S D U T N W T Y 0 A 7 I N N 45 B Y R L B D U OS E S M E O R U 0 N D 7N T 0 A 9Y I 0 N 6N 06 Y R SC 0 D H O 7 A L N AD D 4 R 4 D RD 07N S 08 K 7 Y U N NK 6 W 0 3 H 7 O Y O L N L N I L 4 L 8 D O Y Y E W R G L B W A 0 0 N A Y 7 P 6 S I N L F N U 0 O E 2 3 G Y 0 L 7 Y A 0 6 S R 7 N R O M 4 N ID 0 M 4 0 I S 6 T G 6 N P R C 4 Y 0 E 1 R D 6 H R I N N E D 5 G L 7 S Y L 0 M 6 0 N0 7 3 I Y 0 L N L 7 R 0 N D 6 0 1 0 Y 6 4 7 N Y N 3 3 0 5 2 7N 0 2 6N 7 03 Y 0 X 0 7N 6 0 N 4 2 0 6 N 0 1 6 4 N 7B 03 06N n 0 5 0 0 6 6 6 7 Y N N 0 N 3 7 9 0 2 3 N 6 0 6 07 0 N 7 2 0 4 N 6 6 8 4 N N 7 0 2 9 7 5 6 0 Y 0 N T 7 7 N 6 N 6 2 1 1 N 9 1 0 0 1 Y 6 6 N 5 N 04 0 0 0 0 7 7 4 9 N Y A 2 N 0 0 7 6 7 7 0 4 N 6 N N 0 0 2 4B 3 8 A 0 0 C 06N 7 7 0 49 N N 7 0 0 1 N 3 6 7 0 N 0 3 N 0 8 0 6 1 E 6 X 3 0 N Y b 7 48 N 0 0 0 b 7 7 0 7 N N 7 N e 0 0 0 3 6 7 0 6 4 3 6 N 7 N 0 t N A 6 4 0 6 9 0 t N 8 3 0 s 6 7 N P 90 0 0 a 0 6 7 7 N N s N 7 2 4 s 0 0 8 0 1 7 7 N Y C 0 N 4 6 F 0 0 5 N 7 7 6 P 0 3 N 6 0 0 0 N D 3 6 0 7 7 3 0 N N N 7 7 1 4 N Y 0 4 6 8 0 4 9 6 7 0 7 N 6 N 7 N 0 3 A 8 0 9 5 7 Y N 0 2 7N 6 4 0 3 6 0 N 6 0 0 0 N 3 6 7 C 0 0 N N 7 2 0 4 0 0 N 0 9 6 9 6 1 7 N N N 8 6 0 7 6 5 0 Y 0 6 8 2 7 7 N 0 N N 6 7 4 N 2 0 7 06 8 4 0 N 5 0 0 E 6 7 6 7 5 N N N 1 0 0 2 7 6 0 0 N 6 4 Y Y 7 N 3 4 N 9 7 2 8 C 0 8 0 Y 6 G 6 0 N 0 N 7N 0 1 7 6 3 6 N 0 N 1 4 7 8 11 N 6 06 0 24 N Y 0 2 6 N 6Y 58 n ^_ ^_ ·|}þ 26 Mokelum JES PO n U ND S E e M R A O H R SA IA i W l R Y l D FPD PARAM AE RD R P ID R G U E SS R IA D N H S I I L M L P R S D ON RD TO NE TL DO S R E A R IL D ROAD S F M L I A T T H R R D D TOP DOLL MA A SO R N R R C D D B e AN n NE t R r R a D l Calaveras FRPD 0 0 5 6 N N 9 4 6 4 Y SWIS P S r R 06 A o N C NC 4 t a H 6 e R l D c a t v e e 5 d 0 N6 r 7Y a b s y F C R e P n D tral 0 5N4 0 0 6 A N50 0 0 0 . 5 5 N 0 4 6N51 0 05N 1 0 06 9 N5 Y 7 05N41 0 2 5N60 06N S 5 U 3 MMIT 0 L 7 E N V 0 0 E 5 3 0 8 L N 6 F R N 5 D 5 1 5 05 06N N 5 7 2 7 A Y 06N56 0 0 6N 6 4 N 5 5 2 6A NA VAJO 06 0 D 6 N R N 5 7 2 1 5 Y M « ile O s T SIE T A R R P A Y W 06N A 5 n 9 DR 05 Hn N W 7 Y 5 4 n ^_ ^_ ^_ ^_ CALAVERAS LAFCO COUNTYWIDE FIRE MUNICIPAL SERVICE REVIEW Accountability and Governance 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 MSR process and information disclosure. The principal act orders that the board of directors of a fire protection district must have an odd number of members, with a minimum of three and a maximum of 11 members. Directors may be appointed or elected.96 WPFPD recently went from a three to a five- member board of directors elected at large. Three board members hold three year terms, the other two board members hold two year terms. All of the current board members were elected. Current board member names, positions, and term expiration dates are shown in Figure 13-2. The Board meets on the second Tuesday of every month at 6:30 in the evening at Station 1, located at 195 Spink Road in West Point, CA. Board meeting agendas are posted at Stations 1 and 2 and the post office. Minutes are available upon request from the clerk. Figure 13-2: West Point Fire Protection District Governing Body West Point Fire Protection District District Contact Information Contact: Chief Jim Carroll Address: 195 Sprink Road, West Point, CA 95255 Telephone: 209-293-7000 Fax: None Email/website: wpfd@westpointfire.org Board of Directors Member Name Position Term Expiration Manner of Selection Length of Term Al Arieta Board Member 2013 Elected 4 years Jory Kleven Board Member 2015 Elected 4 years Carl Mills Board Member 2015 Elected 4 years Steve Schoenthaler Board Member 2013 Elected 4 years Greg Pryor Board Member 2013 Elected 4 years Meetings Date: Second Tuesday of the month at 6:30pm Location: Fire Station 1 195 Spink Road Agenda Distribution: Stations 1 and 2 and the post office. Minutes Distribution: Available upon request. In addition to the required agendas and minutes, the District tries to reach its constituents through prevention education programs such as prevention week and educational projects with students. The District also maintains a website where 96 Health and Safety Code §13842. WPFPD ]É{Ç UxÇÉ|à tÇw cÉÄ|vç VÉÇáâÄà|Çz TááÉv|tàxá? __V 201 CALAVERAS LAFCO COUNTYWIDE FIRE MUNICIPAL SERVICE REVIEW information is made available to the public. Additionally, WPFPD has conducted fundraising to fund substantial legal defense costs. The Firefighter’s Association augments these outreach efforts through various fundraising events, such as the Lumberjack Days and Chili Cook Off. If a customer is dissatisfied with the District’s services, complaints are generally submitted to the chief or directly to a board member. The chief usually oversees complaint resolution, unless it needs to be addressed by the Board at a regular meeting. The District has received several complaints regarding the recent lawsuit97 and the new special tax; however, in 2011, there were reportedly no complaints regarding fire services offered by WPFPD. WPFPD demonstrated partial accountability in its disclosure of information and cooperation with Calaveras LAFCO. While, the District ultimately responded to the questionnaires and cooperated with interview and document requests, there appears to be a lack of an organized and professional means for public information requests and responses. Planning and Management Practices 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’s mission statement states: The West Point Fire Protection District is a dedicated organization of professionals who through adequate staffing and training will serve the community, protect life and property through prevention, education and emergency medical services. WPFPD is comprised of one part-time paid chief, three full-time paid staff members, three firefighter interns, 16 volunteers, one chaplain and two firefighter support members. The firefighters and engineers report to the captains, who in turn report the chief. The chief reports to the Board at the monthly meetings. The District tracks its employees’ workload through training logs and apparatus check sheets. At one time, district employees completed basic time sheets; however, at present, time sheets are not used. Overall district workload is determined by number and type of calls. The District does not conduct regular evaluations of employees. The District does not have an adopted operations or administration manual defining requirements for regular employee evaluations. The District has copied Murphys FPD’s administration manual, but has not yet implemented the policies. 97 The lawsuit which questioned the validity of a voter-approved benefit assessment has now come to an end. WPFPD ]É{Ç UxÇÉ|à tÇw cÉÄ|vç VÉÇáâÄà|Çz TááÉv|tàxá? __V 202 CALAVERAS LAFCO COUNTYWIDE FIRE MUNICIPAL SERVICE REVIEW WPFPD reported that it did not perform formal evaluations of overall district performance, such as benchmarking or annual reports. The District’s financial planning efforts include an annually adopted budget and biennially audited financial statements. WPFPD does not conduct capital improvement planning, due to extreme existing financing constraints. The District does not have any other planning documents to guide its efforts, such as a strategic or master plan. Existing Demand and Growth Projections This section discusses the factors affecting service demand, such as land uses, and historical and anticipated population growth. Land Use Land uses within the District are primarily timberlands/mineral resource areas, wildlife botanical area, agricultural preserve, and residential center with a 40-acre lot minimum. The District’s bounds encompass approximately 108 square miles. Privately owned lands within the District are designated as State Responsibility Areas (SRA) and are classified as a "High Fire Severity Hazard Zone." The California Department of Forestry provides primary jurisdictional responsibility for wildland fire protection except in those areas of the Stanislaus National Forest protected by the United States Forest Service. Privately owned lands are predominately made up of lots and parcels within established residential subdivisions. Population Based on GIS analysis of Census 2010 block data, there are approximately 2,458 permanent residents within the District. The population density within the District is 22 people per square mile. Existing Demand The District reported that its peak demand times were mainly between one and three in the afternoon. Calls for medical emergencies are consistently high in volume throughout the year, similar to other fire districts in the region. Figure 13-3: WPFPD Number of Calls by Year, 2007-2011 The District reported 500 that similar to population 450 growth, demand for services 400 has remained relatively 350 consistent over last few 300 years. Number of calls fell 250 from 387 in 2007 to 352 in 200 2011. As shown in Figure 150 13-3, total annual service calls have fluctuated slightly 100 over the five-year period. 50 0 2007 2008 2009 2010 2011 WPFPD ]É{Ç UxÇÉ|à tÇw cÉÄ|vç VÉÇáâÄà|Çz TááÉv|tàxá? __V 203 CALAVERAS LAFCO COUNTYWIDE FIRE MUNICIPAL SERVICE REVIEW Projected Growth and Development The State Department of Finance (DOF) projects that the population of Calaveras County will grow by eight percent in the next 10 years. Thus, the average annual population growth in the County is anticipated to be approximately 0.8 percent. Based on these projections, the District’s population would increase from 2,458 in 2010 to approximately 2,655 in 2020. It is anticipated that demand for service within the District will increase minimally, based on the DOF population growth projections through 2020. WPFPD anticipates no to minimal growth in population and similarly in service demand within the District in the next few years. However, no formal population projections have been made by the District. WPFPD reports that there are presently no potential developments within its bounds; however, there may be some long-term potential for growth once the economy recovers. There is a lack of economic activity in the area, as logging, the primary industry and employer, has failed. Given the lack of employment and industry, there is little draw of new residents to the area. WPFPD reported that it faced capacity constraints with regards to serving existing demand. The current staffing level reportedly offers no depth to coverage, in other words if any staff member is unable to cover their shift, then it is challenging to respond to all calls as there is minimal back up personnel. While there are many areas with long response times, due to the remote rural nature of the District, the lack of adequate facilities and equipment compounds the District’s inability to provide swift services. Growth Strategies The District is not a land use authority, and does not hold primary responsibility for implementing growth strategies. The land use authority for unincorporated areas is the County. The County’s General Plan is presently being updated. Some of the fire districts reported that the County sought input from them on General Plan update. WPFPD reported that it had not provided input on the County’s General Plan update to date. With regard to possible governance structure alternatives, WPFPD has indicated interest in consolidation with Central Calaveras FRPD and Mokelumne Hill FPD given that the three districts are in close proximity, face similar issues, and have a similar setup for service provision. To date, discussions of consolidation have been informal; reorganization of this type is likely a long-term prospect. At present, WPFPD is reportedly looking into forming joint powers authorities with other districts, particularly with regard to training. Financing The financial ability of agencies to provide services is affected by available financing sources and financing constraints. This section discusses the major financing constraints faced by the District and identifies the revenue sources currently available to the District. The District reported that financing was inadequate to provide services due to several constraints. The District recently faced a long-term lawsuit that resulted in extensive expenditures and a drawdown of the District’s reserves. The suit questioned the validity of a voter-approved benefit assessment. The assessment expired in July 2011. Recently, voters instead approved a special tax, and the District has been able to levy the tax on the parcels and collect much needed revenues to continue operations. With the new special tax WPFPD ]É{Ç UxÇÉ|à tÇw cÉÄ|vç VÉÇáâÄà|Çz TááÉv|tàxá? __V 204 CALAVERAS LAFCO COUNTYWIDE FIRE MUNICIPAL SERVICE REVIEW revenue and completion of the lawsuit, the District anticipates that financing levels will return to an adequate level. The District’s total revenue for FY 10-11 was $434,929, which consisted of both operating and non-operating revenues. Primary revenue sources were special taxes (34 percent), donated legal services (34 percent) and property taxes (28 percent). The District also received four percent of income from the State and minimal amounts of income from interest and miscellaneous sources. In FY 10-11, the District was still collecting the benefit assessment that was under litigation. However, at present, the District collects a newly approved special tax. The District levies a special tax on each parcel within the District. The special tax was approved in 2011 and amounts to $78.50 per parcel. The special tax has the option to be increased up to two percent annually; however, to date, the District has not exercised that option. The tax does not have a sunset date. The funds from the special tax are tracked in a separate fund from other revenue sources, and are used solely for financing personnel salaries, wages, and other related expenses in order to pay for one full-time paid senior level firefighter at the station 24 hours per day 7 days a week. Litigation regarding the legality of the benefit assessment was assumed by the League of California Cities. Therefore, legal expenses accrued but not paid in prior years are no longer the responsibility of the District. Consequently, these donated legal services are recognized as a one-time revenue source in FY 10-11. WPFPD does not charge fees for its services to residents and non-residents of the District. WPFPD’s expenditures amounted to $410,405 in FY 10-11, of which salaries and wages constituted 57 percent. Other significant expenses were depreciation (17 percent), professional services (eight percent), fuel (four percent), staff training (three percent), and equipment maintenance (three percent). All other expenses consisted of less than 10 percent of annual expenditures. The District does not have a capital improvement plan (CIP) to plan for future financing of infrastructure improvements and equipment replacement. In the past, capital outlays have been financed through cash, grants and donations. As of the end of FY 10-11, the District had no long-term debt. WPFPD does not have a formal policy to maintain financial reserves for contingency and capital purposes. As a matter of practice, funds have generally been allocated to a capital reserve fund in previous years; however, this reserve fund was depleted by legal fees. As of the end of FY 10-11, the District had an unrestricted cash balance of $140,740, or four months of expenditures, and a restricted fund balance of $5,302. WPFPD does not participate in any Joint Powers Authorities (JPAs) or other joint financing mechanisms. WPFPD ]É{Ç UxÇÉ|à tÇw cÉÄ|vç VÉÇáâÄà|Çz TááÉv|tàxá? __V 205 CAALAVERAS LAAFCO COUNTYYWIDE FIRE MUNICIPAL SERVICE REVIEW FIRRE AND EMS SEERVICESS Servicce Overvview WPFPD providees structure,, wildland aand vehicle fire suppreession functtions, along with emergenncy medical response inn the form oof basic life support. Thhe District aalso responnds to vehicle aaccidents, sppecial rescuues, hazardoous materiaals incidentss, public serrvice assistss, and providess fire preveention educaation. A deetailed list oof the serviices provideed by WPFPPD is shown inn the service matrix in Figure 13-44. Figure 13-4: WPFPPD Service MMatrix Caalaveras County FFire Servvices Maatrix Serrvice Provided ? Structurral fire prottection Yees Wildland fire proteection Yees Vehicle fire protecttion Yees Ladder truck capabbilities Noo Emergency medicaal services Yees Basic liffe support Yees Advanceed life suppport Noo Advanceed life suppport transpoort Noo Hazardoous materiaals emergenncy responsse Yees Fire preevention Yees Fire saffety educatioon Yees First ressponder swwift water annd low anglle rope resccue Yees Public service assissts Yees Oxygen filling for bbreathing appparatuses Noo Helicoptter facilitiess Yees Jaws of Life tools Yees Response to boatinng accidentss Yees Water rrescue Noo Dive and ice rescuee Noo Fire invvestigation Yees Home innspections Noo Businesss Inspectionn Noo Public EEducation (CCPR, First AAid, Etc.) Yees Continuuing Educatiion Provideer Yees Community Emergency Respoonse Team Yees Collaborration Therre are two geographicc areas witthin West PPoint FPD served by other agenncies. WPFPD works joinntly with thhese agenciees on a firsst responsee and mutuual-aid basiis for wildlandd fire incideents within the Districtt. CalFire iss responsible for the SRA areas wwithin WPFPD ]É{Ç UUxxÇÉ|à tÇw cÉÄ|vvçç VÉÇáâÄà|Çz TááÉv|tàxá? ___V 206 CALAVERAS LAFCO COUNTYWIDE FIRE MUNICIPAL SERVICE REVIEW the District. The United State Forest Service (USFS) is responsible for wildland fire response within the Federal Response Areas in the District. In addition, West Point FPD participates in regional collaboration efforts within Calaveras County, such as the Calaveras Chiefs Association, Citizen Emergency Response Teams (CERT), Motherlode Interagency Training Officers Association (MITOA) and the Amador-Calaveras Consensus Group. The District practices extensive joint training with adjacent districts and is looking to expand on these efforts by hiring atraining officer to share among the neighboring providers. Central Calaveras FRPD has applied for grant funds to finance additional joint training exercises. Dispatch and Communications The District's emergency dispatch and communication needs are served through a Calaveras County contract with the California Department of Forestry and Fire Protection's (CalFire) Emergency Command Center (ECC) in San Andreas. There is currently no fee charged to local government fire protection agencies by Calaveras County for this service. Dispatching is handled through joint use of the command frequency assigned to the Tuolumne-Calaveras Unit. The State Office of Emergency Services and County assigned tactical frequencies are also available for local use. The Calaveras County Sheriff's Office serves as the Primary Public Safety Answering Point where all landline calls within the County are originally directed. Fire incidents are directed to the ECC. Off-duty paid personnel and volunteers are alerted by "pager." WPFPD reported that it was satisfied with the services offered by the CalFire ECC, as inappropriate dispatches are rare. Staffing WPFPD has 23 sworn personnel—one part-time fire chief, three full-time officers (two captains one engineer), three interns and 16 volunteer firefighters. Volunteers are paid incident response stipends of $5 per call per volunteer, regardless of length of response required. Interns receive pay for tuition and books, and in return, they complete 48 hours weekly at the station. Pay for paid staff depends on position and experience, and ranges from $2,900 per month to $4,000. The median age of the District’s firefighters is 32, with a range from 21 to 83. Recruitment of volunteer firefighters and emergency response team members is accomplished through the District’s website and word of mouth. Additionally, WPFPD has received funding and support to enhance volunteer firefighter recruitment efforts. In 2012, WPFPD, in conjunction with 10 other fire districts in Calaveras County, was awarded a $1.8 million-SAFER Recruitment and Retention of Volunteer Fire Fighters grant. These funds will be used to implement a regional volunteer benefit program in order to retain existing firefighters and attract new volunteers. Benefits that are part of this regional program include insurance packages, childcare expenses, tuition assistance for higher education, and a Length of Service Award program or other retirement benefits, such as 401K contributions. Additionally, the grant includes a WPFPD ]É{Ç UxÇÉ|à tÇw cÉÄ|vç VÉÇáâÄà|Çz TááÉv|tàxá? __V 207 CALAVERAS LAFCO COUNTYWIDE FIRE MUNICIPAL SERVICE REVIEW marketing program to recruit new volunteers through television advertising, an informational website and an online application process. According to the California State Fire Marshal, all paid, volunteer and call firefighters must acquire Firefighter I certification; however, there is no time limit as to how long they may work before attaining certification. Firefighter I certification requires completion of the 259-hour Firefighter I course, which includes training on various fireground tasks, rescue operations, fire prevention and investigation techniques, and inspection and maintenance of equipment. In addition to this course, Firefighter I certification also requires that the applicant have a minimum of six months of volunteer or call experience in a California fire department as a firefighter performing suppression duties.98 WPFPD has 11 Firefighter I and 14 EMT-1 certified personnel. Training for personnel is offered through a combination of in-house, countywide and out-of-County training exercises. The District requires volunteers to meet training standards outlined in the California Code. Volunteers must complete the local fire academy within two years of employment unless they have equivalent training. Volunteers are not required to meet minimum hourly training requirement during any given month; however, the District offers mandatory training every Wednesday night for three hours. Training made available by the District differs depending on experience and need of staff. WPFPD generally offers 250 hours of training annually. Facilities and Capacity WPFPD has two fire stations. Station 1 is located on Spink Road in the community of West Point and contains 3,680 square feet and has one large bay capable of housing four fire engines. Station 2 is located in the community of Wilseyville, on Railroad Flat Road, and is 700 square feet in size with one bay capable of housing two type-three engines. The District estimated that the two stations were built sometime in the 1960’s. Both stations are considered to be in poor condition, given the lack of heat and living quarters for staff. The District has four fire engines, one water tender, one chief’s vehicle, and one utility vehicle. Currently, the District’s facilities have limited capacity to provide adequate services within WPFPD’s current service area. The stations were identified as being in poor condition, and the District identified a need for bedrooms and bathrooms for overnight shifts. In order to shorten response times to the extent possible and enhance services offered, the District will need to make these improvements. Current response times meet Mountain Valley Emergency Medical Services Agency standards for response to medical emergencies. Infrastructure Needs As mentioned previously, the District has a long-term goal of adding living quarters to Station 1. At present there is no financing available for this improvement. 98 State Fire Marshal, Course Information and Required Materials, 2007, p. 44 WPFPD ]É{Ç UxÇÉ|à tÇw cÉÄ|vç VÉÇáâÄà|Çz TááÉv|tàxá? __V 208 CALAVERAS LAFCO COUNTYWIDE FIRE MUNICIPAL SERVICE REVIEW The County purchased a water tender, and recently, transferred ownership to WPFPD. The District is now in the process of getting the tender filled out with equipment. The Fire Chiefs Association has formed a water mitigation committee to deal with this issue. Challenges The District reported that the most challenging area to serve within its boundaries is an area east of Lily Valley off of Winton road, due to access limitations. Other challenges faced by the District include the recent prolonged lawsuit by a member of the public, and the lack of depth in staffing coverage. The District also reported that it would like to see American Legion extend its service hours from 12 to 24 hours daily. During periods that American Legion is not staffing the area, WPFPD is able to provide EMT-1 certified personnel, but no paramedic level personnel for emergency medical response. Service Adequacy While there are several benchmarks that may define the level of fire service provided by an agency, indicators of service adequacy discussed here include ISO ratings, response times, and level of staffing and station resources for the service area. Fire services in the communities are classified by the Insurance Service Office (ISO), an advisory organization. This classification indicates the general adequacy of coverage, with classes ranking from 1 to 10. 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 ISO ratings of WPFPD are 5 within areas served by Calaveras County Water District water supplies and 8 in other areas. The District was last evaluated in 2005. The National Fire Protection Association (NFPA) has issued a performance standard for volunteer and combination fire departments (NFPA 1720). This standard, among other guidelines, identifies target response time performance for structure fires. The response time is measured from the completion of the dispatch notification to the arrival time of the first-responder at the scene. Though not a legal mandate, NFPA 1720 does provide a useful benchmark against which to measure fire department performance. NFPA 1720 recommends that the response times for structure fire be nine minutes in urban demand zones at least 90 percent of the time, 10 minutes in suburban zones at least 80 percent of the time and 14 minutes in rural zones at least 80 percent of the time. Response times in remote zones are directly dependent on travel distances.99 All fire service providers in Calaveras County, except for the City of Angels Camp Fire Department, fall within the definition of a rural demand zone. The City of Angels Camp FD is an urban demand zone. 99 Urban demand zone has population density of more than 1,000 people per square mile; suburban zone—between 500 and 1,000 people per square mile, rural zone—less than 500 people per square mile, and remote zone is identified by eight or more miles of travel distance to an incident. WPFPD ]É{Ç UxÇÉ|à tÇw cÉÄ|vç VÉÇáâÄà|Çz TááÉv|tàxá? __V 209 CALAVERAS LAFCO COUNTYWIDE FIRE MUNICIPAL SERVICE REVIEW Emergency response time standards vary by level of urbanization of an area: the more urban an area, the faster a response should be. Calaveras County is not broken down into wilderness, rural and urban designations for response time standards like other counties. Instead, Mountain Valley Emergency Medical Services Agency has divided Calaveras County into three zones for EMS and ambulance services. The northern and southern zones are served by American Legion and the eastern zone (which is the same as the Ebbetts Pass FPD boundary area) is served by Ebbetts Pass FPD. In the northern and southern zones the response time guideline is 20 minutes 90 percent of the time, and 13 minutes 90 percent of the time in the eastern zone. These standards are intended for the ambulance contract providers; however, they indicate what is considered appropriate response times for medical emergencies. The District tracks its response times for each incident. It was reported that WPFPD’s median response time was 10.45 minutes and 90th percentile response time was 16.45 minutes. CalFire also tracks response times for WPFPD incidents. It should be noted that CalFire’s methodology for tracking response times differs from that of the districts. While the districts generally start timing from the time the engines leave the facility, CalFire starts timing after checking back in with the responder after dispatch, which is often when the District is already en route to the scene. Consequently, response times reported by CalFire for each incident tend to be shorter than those recorded by each district. It was reported that in 2011 the District’s average response time was 6.45 minutes and the 90th percentile response time was 14.75 minutes. An area that WPFPD can improve upon is collaborating with CalFire on data exchange, which would allow for more structured response and enhanced efficiency and consistency in data gathering. The service area size100 for each fire station varies between fire districts. The median fire station in Calaveras County serves approximately 34 square miles. Although EPFPD serves the most expansive area (195 square miles), AMFPD stations serve larger area per station, with 77.5 square miles served per station on average. Densely populated areas tend to have smaller service areas. For example, the average service area for the City of Angels Camp Fire Department’s fire station is 1.75 square miles. By comparison, each fire station in WPFPD serves approximately 54 square miles. The number of firefighters serving within a particular jurisdiction is another indicator of level of service; however, it is approximate. The providers’ call firefighters may have differing availability and reliability. A district with more firefighters could have fewer resources if scheduling availability is restricted. Staffing levels in Calaveras County vary from 3.2 sworn firefighters per 1,000 residents in JLFPD’s service area to 13 in MHFPD. By comparison, WPFPD has approximately nine firefighters per 1,000 residents. 100 Service area refers to the area that the agency will respond to, based on a first responder map used by the Sherriff’s office. WPFPD ]É{Ç UxÇÉ|à tÇw cÉÄ|vç VÉÇáâÄà|Çz TááÉv|tàxá? __V 210 CALAVERAS LAFCO COUNTYWIDE FIRE MUNICIPAL SERVICE REVIEW Figure 13-5: West Point FPD Fire Service Profile Fire Service Facilities Fire station Location Condition Staff per Shift Vehicles Station 1 195 Spink Rd Poor 3 personnel per 24 hours 2 type 1 engines, 1 type 2 engine, 1 type 3 engince, 1 watertender, 1 utility, 1 Chiefs vehicle Station 2 3910 Railroad Flat Rd Poor None Red Cross Response Trailer Facility Sharing Current Practices: The District occasionally participates in joint training exercises with neighboring and other County providers. Future opportunities: No opportunities for future facility sharing were identified. Infrastructure Needs and Deficiencies The District has a long-term goal of adding living quarters and heating to Station 1. Presently, there is no funding for this improvement. District Resource Statistics Service Configuration Service Demand Staffing Base Year 2012 Configuration Base Year 2012 Statistical Base Year 2011 Fire Stations in District 2 Fire Suppression Direct Total Service Calls 352 Stations Serving District 2 EMS Direct % EMS 69% Sq. Miles Served per Station1 54 Ambulance Transport American Legion % Fire/Hazardous Materials 6% Total Staff2 25 Hazardous Materials Direct % False 1% Total Full-time Firefighters 3.5Air Rescue/Ambulance HelicopterPHI, Calstar % Misc. emergency 10% Total Call Firefighters 19Fire Suppression Helicopter CalFire % Non-emergency 14% Total Sworn Staff per Station3 11.5Public Safety Answering Point Sheriff % Mutual Aid Calls NP Total Sworn Staff per 1,000 9Fire/EMS Dispatch CalFire Calls per 1,000 people 143 Service Adequacy Service Challenges Response Time Base Year 2011 Challenges faced by the District include the recent prolonged lawsuit by a Average Response Time (min) 6.45 Training 90th Percentile Response Time (min) 14.75 Volunteers must complete the local fire academy within two years of ISO Rating 5/8 employment unless they have equivalent training. Volunteers are not required Mutual & Automatic Aid Agreements WPFPD maintains automatic aid agreements with Mokelumne Hill FPD, San Andreas FPD, and Central Calaveras FRPD. Notes: 1) Primary service area (square miles) per station. 2) Total staff includes sworn and non-sworn personnel. 3) Based on ratio of sworn full-time and call staff to the number of stations. Actual staffing levels of each station vary. WPFPD ]É{Ç UxÇÉ|à 9 cÉÄ|vç VÉÇáâÄà|Çz TááÉv|tàxá? __V 211 CAALAVERAS LAAFCO COUNTYYWIDE FIRE MUNICIPAL SERVICE REVIEW WESST POINNT FIRE PROTECCTION DDISTRICCT DETERRMINATIONS Growtth and PPopulatiion Projjectionss  WWest Point Fire Protecction Distriict (WPFPDD) serves an estimatedd populatioon of 2,458 permaanent resideents.  BBased on annnual calls ffor services, demand hhas remaineed relativelyy constant since 2007, paralleeling populaation growtth in the areea.  WWPFPD antiicipates no to minimaal growth inn populatioon and simiilarly in service demand witthin the Disstrict in thee next few years. Thhere is a laack of econnomic activity in thhe area, as loogging, the pprimary inddustry and eemployer, hhas failed. GGiven thhe lack of emmployment and industrry, there is llittle attracttion of neww residents tto the area. The Location and Chharacterristics oof Disadvantageed Unincorporatted Commmunitiees Within or Coontiguous to thhe Agenccy’s SOI  BBased on 22010 Censuus income informatioon for Cennsus Designnated Placees in Calaveras County, the West Poinnt Census Designatedd Place meets the inccome definition of a disadvanttaged uninccorporated ccommunityy. The commmunity is loccated wwithin WPFPPD’s boundss and spheree of influencce. Present and PPlannedd Capaciity of Puublic Faacilities and Adequuacy of Public SServicess, Includding Inffrastruccture Needss and Deeficiencies  WWPFPD repoorted that itt faced capaacity constrraints with regards to serving exiisting demand. TThe currentt staffing llevel reporrtedly offerrs no deptth to coveerage. AAdditionally,, while theere are manny areas wwith long reesponse timmes, due too the reemote ruraal nature off the Districct, the lack of adequatte facilities and equipmment coompounds tthe District’’s inability tto provide sswift servicees.  TThe primaryy infrastruccture needss identified by the Disstrict were the additioon of living quarteers to Statioon 1, for whhich there iss currently no financinng availablee, and equipping thhe District’s new water tender.  WWhile the District facess several chhallenges inn providing services, inncluding lack of adequate finnancing to ssupport suffficient stafffing levels aand adequaate facilitiess and equipment, the Districct’s responsse times inndicate thaat WPFPD’ss services meet inndustry stanndards.  Itt is recommmended that the Districtt enhance itts capital plaanning efforts by comppiling a detailed list of needss and anticiipated costss, and creaating a longg-term finanncing plan. While this kind oof planning effort can bbe hinderedd by lack off manpowerr and WPFPD ]É{Ç UUxÇÉ|à 9 cÉÄ|vvçç VÉÇáâÄà|Çz TTááÉv|tàxá? ____V 212 CALAVERAS LAFCO COUNTYWIDE FIRE MUNICIPAL SERVICE REVIEW funding, it is critical for agencies with minimal financing to ensure adequate capital replacement and minimize deferred maintenance.  The District could improve services by implementing its administration and operations manual and conducting regular employee evaluations. Financial Ability of Agencies to Provide Services  The District reported that financing was inadequate to provide services due to several constraints, primarily a long-term lawsuit with extensive legal expenditures. With new special tax revenue and conclusion of the lawsuit, the District anticipates that financing levels will return to an adequate level.  It is recommended that the District form a capital improvement plan, to ensure adequate financing to meet capital replacement needs.  The District appears to have sufficient reserves to weather short-term contingencies. Status of, and Opportunities for, Shared Facilities  The District practices extensive joint training with adjacent districts and is looking to expand on these efforts by hiring a training officer to share among the neighboring providers. Central Calaveras FRPD has applied for grant funds to finance additional joint training exercises.  In addition, West Point FPD participates in regional collaboration efforts within Calaveras County, such as the Calaveras Chiefs Association, Citizen Emergency Response Teams (CERT), Motherlode Interagency Training Officers Association (MITOA) and the Amador-Calaveras Consensus Group. Accountability for Community Service Needs, Including Governmental Structure and Operational Efficiencies  WPFPD demonstrated partial accountability in its disclosure of information and cooperation with Calaveras LAFCO. While, the District ultimately responded to the questionnaires and cooperated with interview and document requests, there appears to be a lack of an organized and professional means for public information requests and responses.  WPFPD practices extensive outreach efforts, which enhance transparency, including a website where district information is made available.  Governance structure options with regard to WPFPD include annexation of the Skunk Hollow area and an area along SR 26 south of the District’s bounds where the District reported it is often the first on the scene of an incident.  Given the geographical proximity and close working relationship of the districts, another potential governance option includes consolidation with Mokelumne Hill FPD, Central Calaveras FRPD, and potentially San Andreas FPD. No formal discussion has been undertaken to date in regards to this option. WPFPD ]É{Ç UxÇÉ|à 9 cÉÄ|vç VÉÇáâÄà|Çz TááÉv|tàxá? __V 213 CAALAVERAS LAAFCO COUNTYYWIDE FIRE MUNICIPAL SERVICE REVIEW 1 4 . C ITTY OFF A N G E LSS C A MM P The CCity of Angeels Camp, mmore commoonly known as the City of Angels, pprovides sevveral municipal services including, water, wastewater, firre protectioon, police, sstreet and rroad, parks annd recreatioon, and streeet lightingg services. With regarrd to fire seervices, thee City providess fire prevenntion (incluuding structuure inspectiions) and suuppression,, and emerggency medical services inn the form of basic liife support. This MSR focuses on the firee and emergenncy medical services prrovided by tthe City. Foor additionaal information on otherr City services and functions, refer tto the City of Angels MMSR adopteed by LAFCCO in Decemmber 2009 and the Waterr & Wastewater MSR thhat was adopted by LAFFCO in 20122. AGENCYY OVERVVIEW Backgground The CCity of Angeels was incoorporated in 1912 as aa general laaw city and is currentlyy the only inccorporated city in Caalaveras Coounty. Thee City’s booundary is entirely wwithin Calaveraas County, located in thhe south central portioon of the Coounty at thee intersectioon of SRs 49 aand 4. The CCity has a booundary areea of 3.56 sqquare miles or 2,279 accres.101 Boundarries Figure 14-1: City of Angels Boundary Hisstory Sincee the City’s BOOE incorporration, according to Efffective Chhange Recorrding the Boaard of Eqqualization Project Namme Daate TType Agenncy Mark Twainn Annexation 1/13/1961 Annnex BOEE records, the CCity has No name repported 1/228/1964 Annnex BOEE completeed nine boundary Rolleri Parcel Annexation 12/31/1970 Annnex BOEE changes——six annnexations Altaville Annnexation 1/226/1972 Annnex BOEE and three reorgaanizations. Stelte Park SSubd. Unit 3 Annnexation 8/17/1983 Annnex BOEE The lasst boundarry change Angel Oaks RReorg. 12/7/1989 Reeorg BOEE recordedd was effecctive as of Greenhorn CCreek Reorg. 4/77/1993 Reeorg BOEE April 1997. All recorded Spray Wastee Field Reorg. 5/18/1993 Reeorg BOEE boundarry changes aare shown Old Highwayy 4/ Crespi Reoorg. 4/14/1997 Reeorg BOEE in Table 14-1. Sphere oof Influence The City’s SOI wwas adoptedd by LAFCOO in 1985, uupdated in 2005,102 and most recently updated in 2012. TThe SOI exteends beyond the city liimits and encompasses approximmately 9.6 square miles.103 101 Calaveraas LAFCO, City oof Angels Camp Hearing Draft MMSR, Novemberr 16, 2009, p. 6. 102 LAFCO RResolution 20055-01. 103 LAFCO RResolution 20111-0006. CITY OF AANGELS ]É{Ç UUxÇÉ|à 9 cÉÄ|vvçç VÉÇáâÄà|Çz TTááÉv|tàxá? ____V 214 CALAVERAS LAFCO COUNTYWIDE FIRE MUNICIPAL SERVICE REVIEW Extra-territorial Services The City has automatic aid and mutual aid agreements with several agencies. The City reported that it most often responded outside of its bounds to the territory served by Altaville-Melones FPD. Altaville-Melones FPD reciprocates by responding within the City when necessary. The City also has automatic aid agreements primarily with Murphys FPD, Ebbetts Pass FPD, San Andreas FPD, and CalFire. Additionally, the City has automatic aid agreements with all other fire providers in the County for multiple alarm fires, as well as mutual aid agreements with all providers in Calaveras and Tuolumne Counties and parts of Alpine County (Bear Valley). The City also responds to wildfires outside of its boundaries and gets reimbursed by the State in State Responsibility Areas. Areas of Significance The City did not identify any areas of significance. CITY OF ANGELS ]É{Ç UxÇÉ|à 9 cÉÄ|vç VÉÇáâÄà|Çz TááÉv|tàxá? __V 215 Ci C F t a i y r l e o a v f D e A eH r A n SK p a ILLg s L a N e r C l t s o m u C e n a n t m y t p DOGTOW RANCH RD N n n n C C O C A N i i i l t o t t t t h y y y n a e v - o o F r C i f f i l F i r l A A t e e i y r - n n F M e F g g a i P e e e c r l l r l e i s s o l o i F n C C t t e i a e a a e c c s m m s t i l F i p p i o P t n i F S D e O D D s S I i t s a t t r i i o c n ts H C W P O o a i t a g h r u t c h e n e e w r r t l y b s C a o y o B d s u o i n u e t s n ie d s ary HWY 49 COP B E R L UN L N O E R DR HILL DR N MAIN ST n CLIFTON LN COU RD NTRY LN GARDNER LN MURPHYS GRADE RD Altaville-Melones FPD HWY 4 LIVE ST O OC A K K T D ON R RD LEAF n CT P D n E E RI M ST AREST S T T UOLU S M M N AI E LN E E A S L T V N STANISLAUS AV CR D Y A S D T S A R L D ST PURDY RD KURT DR ROLLE V R A I L B LE YP C A IT S O S R RD D HWY 4 ACCESS RD Altaville-Melones FPD MILL R B D LAIR M C I A N T E A R L D PA LN SELKIRK RANCH RD GREENHORN CREEK R D GOLD C M L A IF R F K R T D WAIN RD BUSH ST PA n D RK E ASO V N P ORA O T ST R T Y R O D N RD SMITH FLAT RD FINNEGAN LN COW KICK RD CUNEO RD Alpine County GUN CLUB RD GELDING RD PINTO DR O WN RD Copperopolis FPD FRO GT STALLION W New Melones Reservior « Y ROAN RD 0 0.2 0.4 0.8 WH 1 IT.T2LE RD 1.6 RAINBOW W Y 2 Mi H l W es Y 49 CALAVERAS LAFCO COUNTYWIDE FIRE MUNICIPAL SERVICE REVIEW Accountability and Governance 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 MSR process and information disclosure. The City is governed by a five-member city council elected at-large to four-year terms. Council meetings are held bi-monthly on the first and third Tuesday of each month at the Angels Camp Fire Department. Figure 14-3: City of Angels Camp Governing Body City of Angels Camp District Contact Information Contact: City of Angels Camp Address: PO Box 667, 584 South Main Street, Angels Camp, CA 95222 Telephone: (209) 736-2181 Fax: (209) 736-0709 Email/website: www.angelscamp.gov City Council Member Name Position Term Expiration Manner of Selection Length of Term Elaine Morris Mayor 2016 Elected 4 years Jack Lynch Vice Mayor 2014 Elected 4 years Wes Kulm Council Member 2016 Appointed 4 years Stuart Raggio Council Member 2014 Elected 4 years Vacant Council Member 2016 Appointed 4 years Meetings Date: First and third Tuesday of the month Location: Angels Camp Fire Department Agenda Distribution: Available on City's website Minutes Distribution: Available on City's website The City apprises residents of meetings and events through the City’s website, which includes links to agendas and minutes and an event calendar. In addition, the Fire Department trains local businesses on the use of fire extinguishers, conducts fire prevention inspections, teaches fire prevention to elementary school students, and hosts fire station tours. The City also offers a good samaritan fire extinguisher servicing program—if a good samaritan uses their fire extinguisher to put out a fire, the Fire Department will pay to have it serviced and re-charged. The City reported that it would soon offer first aid and CPR training to the community. The City’s Firefighter Association hosts the Fireman’s Fun Day and a Pancake breakfast. With regard to customer service, complaints concerning fire services most often pertain to compliance issues such as weed abatement and open burning regulations and not regarding the Fire Department’s operations. In 2011, the City received no complaints regarding fire service. Complaints may be submitted through phone calls, email, letters, CITY OF ANGELS ]É{Ç UxÇÉ|à 9 cÉÄ|vç VÉÇáâÄà|Çz TááÉv|tàxá? __V 217 CALAVERAS LAFCO COUNTYWIDE FIRE MUNICIPAL SERVICE REVIEW and in-person to the City Council, department heads or city administrator. The City has contact information for the Fire Department available online for constituent concerns. Complaints are directed to the appropriate department and monitored by the Administrative Services Department to ensure that appropriate action was taken. The City demonstrated full accountability in its disclosure of information and cooperation with LAFCO. The City responded to LAFCO’s written questionnaire, interview and document requests. Planning and Management Practices 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 had a total of 29 full-time staff and 22 part-time staff in 2012. The City provides fire related services through the Fire Department. The Fire Department has two full-time equivalent staff plus part-time on call staffing, which equates to an additional four FTEs, dedicated to fire services. The Fire Department’s paid staff consists of a chief, a fire marshal/deputy chief and a captain. On-call staff includes one assistant chief, two captains, three lieutenants, two battalion chiefs, six engineers, and eight firefighters. Fire staff are evaluated annually by the Chief. The Chief is evaluated annually by the City Administrator. The City monitors the workload of fire staff through time sheets and daily logs at the stations. Overall performance of the Fire Department is evaluated annually in the City’s budget and annual financial statement. The Fire Department provides the City Council with bi-weekly updates of the Fire Department’s activities, and has recently started tracking response times more closely and comparing them to national averages. The City’s primary planning document is the General Plan that was updated in 2006. The City completed a strategic plan specific to fire services in 1996, but the document has not been updated since. The City does not have a master plan specific to fire services. The City’s financial planning documents include annually adopted budgets and audited financial statements. The most recent audit was performed for FY 10-11. There is no capital improvement plan solely for the fire department. Capital improvements are planned for in the City’s annual budget. Existing Demand and Growth Projections The existing city bounds encompass a variety of land uses, including residential, commercial, industrial, public and institutional, parks and recreation, and open space land uses. The most common residential land use is low-density residential, located throughout the City. High density residential areas are located in various pockets of the City, and include both attached dwelling units (townhomes and condominiums) and detached dwelling units (houses and mobile homes). Commercial activities are located along Main Street, with the historic commercial areas located in the southeastern portion, community CITY OF ANGELS ]É{Ç UxÇÉ|à 9 cÉÄ|vç VÉÇáâÄà|Çz TááÉv|tàxá? __V 218 CALAVERAS LAFCO COUNTYWIDE FIRE MUNICIPAL SERVICE REVIEW commercial areas located in the central portion, and newer shopping center commercial areas concentrated in the northwestern portion. Industrial land uses are located in the northeastern portion of the City, along Murphys Grade Road. Public and institutional uses are located throughout the City. City-owned park facilities are located along Main Street and SR 4, and the Greenhorn Creek Golf Course is located in the southwestern portion of the City. Open space land is located in the southern portion of the City (to the east along Greenhorn Creek Road), as well as in smaller areas in the east and west of the City. Within the City, there were approximately 1,600 individuals in the labor force in 2004, or approximately 45 percent of the total population.104 Significant employers include Save Mart, the Mark Twain Elementary School District, the Bret Harte High School District and the City of Angels.105 Population The estimated residential population in the City bounds was 3,836 according to the 2010 Census. The population of the City of Angels has grown by 832 residents since 2000, or in other words, by almost 28 percent. The majority of this population growth occurred from 2000 to 2005, when the population increased by over 17 percent. Population growth has slowed in recent years. The City’s population density is 1,096 per square mile. The City considers its customer base to be the residents and businesses within the city limits, as well as those visiting or traveling through the area. Non-residents including weekday workers, shoppers and visitors also contribute to the City’s total population and demands on various services. Special events, such as the Calaveras County Fair and Frog Jump Jubilee, can increase the 24-hour population of the City by as many as 13,500 individuals.106 Figure14-4: Recent and Projected Population Growth, 2000-2030 Estimates of residential population growth 7,000 rates range from around two percent per year 6,000 (in the city’s water and wastewater master plan) to 3.2 percent per year (based on the 20- 5,000 year historic city population growth rate). The 4,000 City’s 2020 General Plan estimates a 3,000 population growth rate of between 1.8 and 2.5 2,000 percent per year over the planning horizon. Based on the growth rates in the general plan, 1,000 the City would have a population of between 0 5,200 and 6,000 in 2030, which would be a 2000 2005 2010 2015 2020 2025 2030 total growth of between 43 and 64 percent Population 2000-2009 over that period. 107 High Growth 2010-2030 Low Growth 2010-2030 104 Angels Camp 2020 General Plan, Economic Development Element, 2009, p. X-9. 105 Angels Camp 2020 General Plan, Economic Development Element, 2009, p. X-8. 106 Population Forecast for Draft EIR Angels Camp 2020 General Plan, p. 105. 107 Department of Finance, Population Projections for California and Its Counties 2000-2050, July 2007. CITY OF ANGELS ]É{Ç UxÇÉ|à 9 cÉÄ|vç VÉÇáâÄà|Çz TááÉv|tàxá? __V 219 CALAVERAS LAFCO COUNTYWIDE FIRE MUNICIPAL SERVICE REVIEW Existing Demand Figure14-5: Fire and EMS Service Calls, 2006-2011 The City reported that its 700 peak demand occurred usually anywhere from 7am 600 to 8pm. Calls for medical 500 emergencies are consistently high in volume 400 throughout the year, similar 300 to other fire providers in the region. 200 Demand for fire and EMS 100 services has remained relatively stable over the last 0 six years. In 2007 there was 2006 2007 2008 2009 2010 2011 a slight decline in reported incidents; however, since then service calls have returned to the pre-recession levels, as is shown in Figure 14-5. Projected Growth and Development Figure14-6: Housing Construction Permits, 1996-2011 Residential permit 100 activity has been low in 90 recent years, as shown in 80 Figure 14-6. The number of permits issued increased 70 significantly from 1997 to a 60 peak of 89 in 2000, then 50 decreased by 42 percent 40 from 2000 to 2002. 30 Permitting peaked again in 20 2003 and 2005 at 56 10 permits per year, and subsequently decreased by 0 96 percent from 2005 to 2011, with only two permits issued in 2011. Pending development activity consists of one new planned subdivision, and build-out of existing approved projects. Approved in 2006, The Classics on the Ridge is a new 55-unit subdivision located on 12.5 acres, within the Greenhorn Creek Golf Course Community. Existing projects that have not yet been fully built-out include Greenhorn Creek (150-200 units), Angel Oaks (24 units), Stelte Park (20 units), and Ron Davis Townhomes (27 units). Build-out of all projects would yield approximately 275 to 325 new residential dwelling CITY OF ANGELS ]É{Ç UxÇÉ|à 9 cÉÄ|vç VÉÇáâÄà|Çz TááÉv|tàxá? __V 220 CALAVERAS LAFCO COUNTYWIDE FIRE MUNICIPAL SERVICE REVIEW units. Build-out of the planned and proposed development projects within the city would increase the population by between 595 and 703 residents at existing densities.108 The Angels Camp 2020 General Plan reported that there were 93 vacant or underdeveloped residential parcels within the city, able to accommodate at least 3,200 dwelling units. At existing densities, build-out of the vacant or underdeveloped parcels within the city would increase the population by approximately 6,925 residents.109 Growth Strategies The City’s General Plan was last updated in 2006. Growth strategies adopted by the City of Angels including a well-organized and orderly development pattern that encourages compact, mixed use, pedestrian-friendly infill development. The City plans to monitor the supply of land available within the City for future development by preparing a map of vacant parcels throughout the City, which it plans to update at least every three years. The City also has a goal of establishing a growth management/infrastructure allocation program, including adoption of a growth management ordinance. An impact fee study report was completed in July of 2003 to analyze the impacts of development on certain capital facilities including fire protection and to calculate development impact fees. The study suggested a level of service standard of one fire station with a full-service engine company within 1.5 miles of all developed property. Financing The financial ability of agencies to provide services is affected by available financing sources and financing constraints. This section discusses the major financing constraints faced by the District and identifies the revenue sources currently available to the District. The City reported that the current financing level for fire services was generally adequate to deliver services. The Fire Department faces financial constraints as a result of sharing declining General Fund financing sources with other City departments. The City’s General Fund revenues have generally declined over the past few years, due to reduced property values, very little new development, and weakening sales tax revenues. However, the Fire Department has made efforts to keep maintain the same level of service during this period. The Fire Department plans to expand services as the economy rebounds—the Department has a short-term goal of increasing staffing at the main station to 24 hours a day seven days a week. The City tracks its financial activities separately through various funds. Fire service finances are tracked through the City’s general fund. The City’s total revenues for fire activities were $118,170 in FY 10-11. Revenue sources, in FY 10-11, consisted of Proposition 172 funds (seven percent), transient occupancy tax revenues (87 percent), K-9 program grant funds (five percent), and special service fees (less than one percent). The remainder of the fire department activities are funded by general fund sources, such as 108 The 2009 population per household for the City of Angels is approximately 2.2, according to the Department of Finance. 109 Angels Camp 2020 General Plan, Appendices: Housing, 2009, p. 2-24. CITY OF ANGELS ]É{Ç UxÇÉ|à 9 cÉÄ|vç VÉÇáâÄà|Çz TááÉv|tàxá? __V 221 CALAVERAS LAFCO COUNTYWIDE FIRE MUNICIPAL SERVICE REVIEW property taxes. Occasionally, these revenue sources are augmented with grant funds; however, no grants were received in FY 10-11. City expenditures for the fire department totaled $349,844 in FY 10-11. Of this amount, 80 percent was attributed to salaries and benefits, five percent was for stipends for on call firefighters, and the remainder was other operating costs. There were no capital expenditures for the Fire Department in that year. There is no capital improvement plan solely for the Fire Department. Capital improvements are planned for in the City’s annual budget. Current planned capital improvements for the Fire Department include addition of a training room, shower room and storage space to Station 1. These improvements are anticipated to cost $25,000 upon completion in 2013 and will be entirely financed out of the City’s General Fund. The City had no long-term debt outstanding at the end of FY 10-11 related to fire services. The City does not have a formal policy on maintaining financial reserves. The City had $0.963 million in unrestricted net assets in the General Fund at the end of FY 10-11. This balance is equivalent to 36 percent of General Fund expenditures in FY 10-11. In other words, the City maintained over four months of working reserves in its General Fund. CITY OF ANGELS ]É{Ç UxÇÉ|à 9 cÉÄ|vç VÉÇáâÄà|Çz TááÉv|tàxá? __V 222 CAALAVERAS LAAFCO COUNTYYWIDE FIRE MUNICIPAL SERVICE REVIEW FIRRE AND EMS SEERVICESS Servicce Overvview The City of Angels Camp Fire Deparrtment proovides respponse to alll types of fires, emergenncy medicall and public service reequests. Thhe Fire Deppartment alsso providess fire preventiion activitiees through thhe City’s Buuilding and PPlanning Deepartment. A dettailed descrription of alll the servicees offered bby the Angells Camp Firre Departmeent is shown inn Figure 14--7. Figure 144-7: Angells Camp Firee Service Maatrix Caalaveras County FFire Servvices Maatrix Serrvice Provided ? Structurral fire prottection Yees Wildland fire proteection Yees Vehicle fire protecttion Yees Ladder truck capabbilities Noo Emergency medicaal services Yees Basic liffe support Yees Advanceed life suppport Noo Advanceed life suppport transpoort Noo Hazardoous materiaals emergenncy responsse Yees Fire preevention Yees Fire saffety educatioon Yees First ressponder swwift water annd low anglle rope resccue No/Yes Public service assissts Yees Oxygen filling for bbreathing appparatuses Noo Helicoptter facilitiess Yees Jaws of Life tools Yees Response to boatinng accidentss Noo Water rrescue Noo Dive and ice rescuee Noo Fire invvestigation Yees Home innspections Yees Businesss Inspectionn Yees Public Edducation (CPPR, First Aid, Etc.) Yees Continuing Educationn Provider Yees Communnity Emergenncy Responsee Team Yees CITY OF AANGELS ]É{Ç UUxÇÉ|à 9 cÉÄ|vvçç VÉÇáâÄà|Çz TTááÉv|tàxá? ____V 223 CALAVERAS LAFCO COUNTYWIDE FIRE MUNICIPAL SERVICE REVIEW Collaboration The City has automatic aid and mutual aid agreements with several agencies. The City reported that it most often responded outside of its bounds to the territory served by Altaville-Melones FPD. Altaville-Melones FPD reciprocates by responding within the City when necessary. The City also has automatic aid agreements primarily with Murphys FPD, Ebbetts Pass FPD, San Andreas FPD, and CalFire. Additionally, the City has automatic aid agreements with all other providers in the County for multiple alarm fires, as well as mutual aid agreements with all providers in Calaveras and Tuolumne Counties and parts of Alpine County (Bear Valley). The City also responds to wildfires outside of its boundaries and gets reimbursed by the State in State Responsibility Areas. CCFRPD also responds to wildfires outside of its boundaries and gets reimbursed by the State in State Responsibility Areas. The City is a member of the Fire Chief’s Association, which also provides opportunities for sharing of volunteer recruitment and training. With regard to facility sharing, the city council makes use of the station for meetings, the training room is also made available for use by other agencies for meetings, etc. An opportunity for further facility sharing and collaboration may be a joint service endeavor with Altaville-Melones FPD. At present, the two agencies participate in joint training, and respond to emergencies in each other’s bounds through automatic aid agreements. Both agencies utilize curriculum and practices used throughout the County and approved by the County Training Officers Association. The direct benefits of this process may include seamless operations at the scene of emergencies, and clear radio communications by all agencies involved. Dispatch and communications The City's emergency dispatch and communication needs are served through a Calaveras County contract with the California Department of Forestry and Fire Protection's (CalFire) Emergency Command Center (ECC) in San Andreas. There is currently no fee charged to local government fire protection agencies by Calaveras County. Dispatching is handled through joint use of the command frequency assigned to the Tuolumne-Calaveras Unit. The California Office of Emergency Services and County assigned tactical frequencies are also available for local use. The Calaveras County Sheriff's Office serves as the Primary Public Safety Answering Point where all landline calls within the County are originally directed. Fire incidents are directed to the ECC. Off-duty paid personnel and volunteers are alerted by "pager." The City reported that improvements could be made to dispatching by transitioning to a “closest available resource” response plan, where the closest resource is dispatched regardless of which agency’s boundaries the incident is within. Staffing The City of Angels Fire Department is a combination fire department, meaning that both full-time and part-time staff are utilized to provide services. The Fire Department consists of two full-time and 23 paid on-call/part-time firefighters—four chief officers, two CITY OF ANGELS ]É{Ç UxÇÉ|à 9 cÉÄ|vç VÉÇáâÄà|Çz TááÉv|tàxá? __V 224 CALAVERAS LAFCO COUNTYWIDE FIRE MUNICIPAL SERVICE REVIEW captains, three lieutenants, six engineers, and eight firefighters. The firefighters range in age from 19 to 62. The median age of the firefighters is 27. Volunteer and part-time firefighters are paid minimum wage with additional pay for working day-time shifts equal to $10 per hour and additional pay for working operator shifts equal to $12 per hour. Over the last decade, the City has steadily increased staffing levels. In 2003, the City began staffing the station with full-time personnel. In 2012, the City increased the hours the station is staffed to include Friday nights and additional hours on weekend. Station 1 is staffed 24 hours a day Monday through Friday and 7am to 7pm on Saturday and Sunday. Station 2 is not staffed. The City has received funding and support to enhance volunteer firefighter recruitment efforts. In 2012, 11 fire service providers in Calaveras County were awarded a $1.8 million-SAFER Recruitment and Retention of Volunteer Fire Fighters grant. These funds will be used to implement a regional volunteer benefit program in order to retain existing firefighters and attract new volunteers. Benefits that are part of this regional program include insurance packages, childcare expenses, tuition assistance for higher education, and a Length of Service Award program or other retirement benefits, such as 401(k) contributions. Additionally, the grant includes a marketing program to recruit new volunteers through television advertising, an informational website and an online application process. According to the California State Fire Marshal, all paid, volunteer and call firefighters must acquire Firefighter I certification; however, there is no time limit as to how long they may work before attaining certification. Firefighter I certification requires completion of the 259-hour Firefighter I course, which includes training on various fireground tasks, rescue operations, fire prevention and investigation techniques, and inspection and maintenance of equipment. In addition to this course, Firefighter I certification also requires that the applicant have a minimum of six months of volunteer or call experience in a California fire department as a firefighter performing suppression duties.110 Of all the City firefighters, 21 are Firefighter I certified and 16 are EMT 1 certified, the others are first responder certified. Every member of the Fire Department is required to have a minimum of four hours of training per month. A total of 20 hours of training hours per month are offered to all members of the department. The City reported that it was a continuous challenge to keep up with state mandated training levels. State courses are taught at the City’s facility at times that are convenient Facilities and Capacity The Fire Department has two fire stations. Fire Station 1, the main fire station, is located at 1404 Vallecito Road on the south end of the City. Station 1 was built in 1968, and is approximately 3,000 square feet in area with two bays. Station 1 houses one type I fire 110 State Fire Marshal, Course Information and Required Materials, 2007, p. 44 CITY OF ANGELS ]É{Ç UxÇÉ|à 9 cÉÄ|vç VÉÇáâÄà|Çz TááÉv|tàxá? __V 225 CALAVERAS LAFCO COUNTYWIDE FIRE MUNICIPAL SERVICE REVIEW engine, one type III fire engine and three fire department staff vehicles. The station was reported to be in good condition. Station 2 is located in the same building as the City’s police department at 200 Monte Verde Street. The building was constructed in 1985. Roughly 240 square feet of the facility is dedicated to the Fire Department. This station houses one type I fire engine, one fire support van and the City’s fleet of antique fire equipment. Station 2 is primarily used for secondary response by firefighters called back to handle emergencies and to store equipment and tools. This station contains the fire department's breathing air compressor systems and is used as a landing zone for air ambulances. Station 2 is reportedly in good condition. The fire stations are located to provide a less than four minute response time to the City’s service area. A vacant parcel of land has been set aside for Fire Department operations at Greenhorn Creek Road and Sierra Avenue, as part of the development agreement. The City of Angels has its own water supply derived from the Utica Power Authority’s Utica and Angels Hydroelectric Projects. The City maintains 2.5 million gallons of water storage for emergency purposes. The City’s fire services are not constrained by available facilities and equipment, but instead by staffing limitations. As discussed below, ensuring adequate staff response during periods when Station 1 is not staffed is the primary limiting factor with regards to capacity. Current response times meet Mountain Valley Emergency Medical Services Agency standards for response to medical emergencies. Infrastructure Needs The City did not identify any unfunded fire infrastructure, vehicle or equipment needs. Station 1 is presently undergoing improvements and expansion, which include addition of a physical fitness room, bathroom/shower facility, and additional storage. The upgrades are anticipated to be completed in 2013 and will total $25,000. These improvements are being funded through the City’s general fund. Challenges The primary challenge faced by the City is ensuring adequate staff response during periods when the station is not staffed. Presently, the City relies on volunteer response to augment the duty officer response. Volunteer response can be tenuous depending on time and availability. Another challenge faced by the Department is maintaining an adequate paid on call/volunteer base to supplement the on-duty staff during major events and large emergencies. Service Adequacy While there are several benchmarks that may define the level of fire service provided by an agency, indicators of service adequacy discussed here include ISO ratings, response times, and level of staffing and station resources for the service area. CITY OF ANGELS ]É{Ç UxÇÉ|à 9 cÉÄ|vç VÉÇáâÄà|Çz TááÉv|tàxá? __V 226 CALAVERAS LAFCO COUNTYWIDE FIRE MUNICIPAL SERVICE REVIEW Fire services in the communities are classified by the Insurance Service Office (ISO), an advisory organization. This classification indicates the general adequacy of coverage, with classes ranking from 1 to 10. Communities with the best fire department facilities, systems for water distribution, fire alarms and communications, and equipment and personnel receive a rating of 1. Angels has an ISO rating of five within city limits. The City was last evaluated in 2005. The National Fire Protection Association (NFPA) has issued a performance standard for volunteer and combination fire departments (NFPA 1720). This standard, among other guidelines, identifies target response time performance for structure fires. The response time is measured from the completion of the dispatch notification to the arrival time of the first-responder at the scene. Though not a legal mandate, NFPA 1720 does provide a useful benchmark against which to measure fire department performance. NFPA 1720 recommends that the response times for structure fire be nine minutes in urban demand zones at least 90 percent of the time, 10 minutes in suburban zones at least 80 percent of the time and 14 minutes in rural zones at least 80 percent of the time. Response times in remote zones are directly dependent on travel distances.111 All fire service providers in Calaveras County, except for the City of Angels Camp Fire Department, fall within the definition of a rural demand zone. The City of Angels Camp FD is an urban demand zone. Emergency response time standards vary by level of urbanization of an area: the more urban an area, the faster a response has to be. Calaveras County is not broken down into wilderness, rural and urban designations for response time standards. Instead, Mountain Valley Emergency Medical Services Agency has divided Calaveras County into three zones for EMS and ambulance services. The northern and southern zones are served by American Legion and the eastern zone (which is the same as the EPFPD boundary area) is served by Ebbetts Pass FPD. In the northern and southern zones the response time guideline is 20 minutes 90 percent of the time, and in the eastern zone is 13 minutes 90 percent of the time. The City reported an average response time of 5 minutes and 45 seconds.112 CalFire also tracks response times for the City of Angels Camp Fire Department’s incidents. It should be noted that CalFire’s methodology for tracking response times differs from that of the districts. While the districts and city generally start timing from the time the engines leave the facility, CalFire starts timing after checking back in with the responder after dispatch, which is often when the Department is already en route to the scene. Consequently, response times reported by CalFire for each incident tend to be shorter than those recorded by each district. It was reported that in 2011 the City’s average response time was 1.96 minutes and the 90th percentile response time was 5.2 minutes. An area that Angels Camp FD can improve upon is tracking its response time for each incidence, being aware of its median and 90th percentile response times, and collaborating with CalFire on 111 Urban demand zone has population density of more than 1,000 people per square mile; suburban zone—between 500 and 1,000 people per square mile, rural zone—less than 500 people per square mile, and remote zone is identified by eight or more miles of travel distance to an incident. 112 Excluding service calls, which includes non-priority responses and extended response times. CITY OF ANGELS ]É{Ç UxÇÉ|à 9 cÉÄ|vç VÉÇáâÄà|Çz TááÉv|tàxá? __V 227 CALAVERAS LAFCO COUNTYWIDE FIRE MUNICIPAL SERVICE REVIEW data exchange, which would allow for more structured response and enhanced efficiency and consistency in data gathering. The service area size113 for each fire station varies between fire districts. The median fire station in Calaveras County serves approximately 34 square miles. Although EPFPD serves the most expansive area (195 square miles), AMFPD stations serve larger area per station, with 77.5 square miles served per station on average. Densely populated areas tend to have smaller service areas. For example, the average service area for the City of Angels Camp Fire Department’s fire station is 1.75 square miles. The number of firefighters serving within a particular jurisdiction is another indicator of level of service; however, it is approximate. The providers’ call firefighters may have differing availability and reliability. A district with more firefighters could have fewer resources if scheduling availability is restricted. Staffing levels in Calaveras County vary from 3.2 sworn firefighters per 1,000 residents in JLFPD’s service area to 13 in MHFPD. By comparison, Angels Camp has approximately six firefighters per 1,000 residents. 113 Service area refers to the area that the agency will respond to, based on a first responder map used by the Sherriff’s office. CITY OF ANGELS ]É{Ç UxÇÉ|à 9 cÉÄ|vç VÉÇáâÄà|Çz TááÉv|tàxá? __V 228 CALAVERAS LAFCO COUNTYWIDE FIRE MUNICIPAL SERVICE REVIEW Figure 14-8: City of Angels Fire Department Service Profile Fire Service Facilities Firestation Location Condition Staff per Shift Vehicles Station 1 1404 Vallecito Road Good 1 deputy chief, 1 fire captain One type I fire engine, one type III fire engine and three fire department staff vehicles Station 2 200 Monte Verde Good None One type I fire engine, one fire support van Street Facility Sharing Current Practices: Station 1 is used for city council meetings and other organization meetings as requested. Station 2 is shared with the City's police department. Future opportunities: An opportunity for further facility sharing and collaboration may be a joint service endeavor with Altaville-Melones FPD. Infrastructure Needs and Deficiencies The City did not identify any unfunded fire infrastructure, vehicle or equipment needs. District Resource Statistics Service Configuration Service Demand Staffing Base Year 2012 Configuration Base Year 2012 Statistical Base Year 2011 Fire Stations in District 2 Fire Suppression Direct Total Service Calls 554 Stations Serving District 2 EMS Direct % EMS 72% Sq. Miles Served per Station1 1.8 Ambulance Transport American Legion % Fire/Hazardous Materials 3% Total Staff2 23 Hazardous Materials Direct % False 10% Total Full-time Firefighters 2Air Rescue/Ambulance HelicopterPHI, Calstar % Misc. emergency 5% Total Call Firefighters 23Fire Suppression Helicopter CalFire % Non-emergency 9% Total Sworn Staff per Station3 11.5Public Safety Answering Point Sheriff % Mutual Aid Calls 5% Total Sworn Staff per 1,000 6Fire/EMS Dispatch CalFire Calls per 1,000 people 144 Service Adequacy Service Challenges The primary challenge faced by the City is ensuring adequate staff response Response Time Base Year 2011 during periods when the station is not staffed. Average Response Time (min) 1.96 Training Every member of the Fire Department is required to have a minimum of four 90th Percentile Response Time (min) 5 hours of training per month. A total of 20 hours of training hours per month ISO Rating 5 are offered to all members of the department. Mutual & Automatic Aid Agreements The City also has automatic aid agreements primarily with Altaville-Melones FPD, Murphys FPD, Ebbetts Pass FPD, San Andreas FPD, and CalFire. Additionally, the City has automatic aid agreements with all other fire providers in the County for multiple alarm fires, as well as mutual aid agreements with all providers in Calaveras and Tuolumne Counties and parts of Alpine County (Bear Valley). Notes: 1) Primary service area (square miles) per station. 2) Total staff includes sworn and non-sworn personnel. 3) Based on ratio of sworn full-time and call staff to the number of stations. Actual staffing levels of each station vary. CITY OF ANGELS ]É{Ç UxÇÉ|à 9 cÉÄ|vç VÉÇáâÄà|Çz TááÉv|tàxá? __V 229 CAALAVERAS LAAFCO COUNTYYWIDE FIRE MUNICIPAL SERVICE REVIEW CIITY OF AANGELSS CAMP FIIRE DEPPARTMENT DETTERMINAATIONS The following ddeterminatioons summaarize the finndings of thhis report ffor fire services providedd by the CCity of Angels Camp.. Those ddeterminatiions shownn in italicss are determinnations releevant to firee services thhat were previously addopted by LAAFCO in thee City of Angells Camp MSSR in Novemmber 2009 and in thee Water andd Wastewatter MSR in June 2012. Growtth and PPopulatiion Projjectionss  TThe City of AAngels Camp’s estimated populatiion accordinng to the 20010 Censuss was 3,836.  TThe population of the CCity of Angeels Camp grrew by 28 ppercent bettween 20000 and 2010 with mmore rapid ggrowth priorr to 2005.  NNon-residentts, includingg weekday wworkers, shooppers andd visitors, allso contribuute to thhe City's totaal populatioon and demaands on variious servicess.  TThe City's 20020 General Plan estimates a popuulation growwth rate of bbetween 1.88 and 2.5 percent pper year oveer the planning horizon. Based on these growth rates, thee City wwould have aa populationn of betweenn 5,200 and 6,000 in 20330.  PPending deveelopment acctivity consissts of one neew planned ssubdivision, and build-oout of exxisting apprroved projeccts. Build-ouut of all proojects wouldd yield approoximately 275 to 325 new resiidential dweelling units, which wouuld increasee the populaation by bettween 5595 and 703 residents.  TThe City of AAngels Campp needs to coontinue ecoonomic deveelopment annd to balancce job and populatiion growth.  TThe City hass establishedd requiremeents for futture annexaations and ddevelopmennts so thhat developeers will pay their fair shhare of infraastructure deevelopment costs. The Location and Chharacterristics oof Disadvantageed Unincorporatted Commmunitiees Within or Coontiguous to thhe Agenccy’s SOI  BBased on 22010 Censuus income informatioon for Cennsus Designnated Placees in Calaveras CCounty, theere are no communities that mmeet the definition of a disadvantageed unincorpporated commmunity wwithin or adjjacent to thhe City’s boounds and sphere oof influence.. Present and PPlannedd Capaciity of Puublic Faacilities and Adequuacy of Public SServicess, Includding Inffrastruccture Needss and Deeficiencies  WWater availaability for firre protectionn is adequatte. CITY OF AANGELS ]É{Ç UUxÇÉ|à 9 cÉÄ|vvçç VÉÇáâÄà|Çz TTááÉv|tàxá? ____V 230 CALAVERAS LAFCO COUNTYWIDE FIRE MUNICIPAL SERVICE REVIEW  The City’s fire services are not constrained by available facilities and equipment, but instead by staffing limitations. Ensuring adequate staff response during periods when Station 1 is not staffed is the primary limiting factor with regards to capacity. Current response times meet Mountain-Valley Emergency Medical Services Agency standards for response to medical emergencies.  The City ensures adequate resources to serve new growth during the development review process. At present, a lot is dedicated to the use of the Fire Department once demand requires additional facilities. Growth-related needs are financed by development impact fees.  Based on ISO rating, response times, staffing and resource availability, the City’s fire services appear to be adequate. Similar to other providers in the County, improvement could be made in tracking and analyzing response times.  The City did not identify any unfunded fire infrastructure, vehicle or equipment needs. It is recommended that the City maintain a long-term capital improvement plan, to ensure that all necessary capital improvements are financed and addressed. Financial Ability of Agencies to Provide Services  The City has established development impact fees to ensure that all new development pays the cost of development.  The City should prepare a capital improvement plan to be prepared for future capital expenditures.  The City should become familiar with community facilities districts and Mello-Roos Bonds as a means for new development to pay infrastructure and operational costs.  The City reported that the current financing level for fire services was generally adequate to deliver services; however, the Fire Department faces financial constraints as a result of sharing declining General Fund financing sources with other City departments. Status of, and Opportunities for, Shared Facilities  The City could investigate ways to reduce administrative costs through computerization and or shared services.  The City practices extensive collaboration with other fire service providers in the way of automatic and mutual aid agreements.  The City Council makes use of Station 1 for meetings, the training room is also made available for use by other agencies for meetings, etc.  An opportunity for further facility sharing and collaboration may be a joint service endeavor with Altaville-Melones FPD. At present, the two agencies participate in joint training, and respond to emergencies in each other’s bounds through automatic aid agreements. The direct benefits of this process may include seamless operations at the scene of emergencies, and clear radio communications by all agencies involved. CITY OF ANGELS ]É{Ç UxÇÉ|à 9 cÉÄ|vç VÉÇáâÄà|Çz TááÉv|tàxá? __V 231 CALAVERAS LAFCO COUNTYWIDE FIRE MUNICIPAL SERVICE REVIEW Accountability for Community Service Needs, Including Governmental Structure and Operational Efficiencies  The City has a website to communicate with tax-payers, residents and the public.  The City should study the most efficient manner to provide administrative services.  The City adopts budgets and rate changes at hearings where the public is notified and invited. Information is placed in the local newspaper, when required.  The City has recently updated its General Plan.  The City demonstrated full accountability through its disclosure of information as indicated by the City’s cooperation in providing all requested information, meeting for interviews, and providing review and comments during the MSR process.  Accountability is best ensured when contested elections are held for governing body seats, constituent outreach is conducted to promote accountability and ensure that constituents are informed and not disenfranchised, and public agency operations and management are transparent to the public. The City of Angels demonstrated accountability with respect to all of these factors.  The Fire Department conducts outreach through training programs, educational activities at schools and stations, fire prevention inspections and through the City’s website.  Given than Altaville-Melones FPD service area encompasses the City and the agencies play close supporting roles within each other’s service areas, there may be an opportunity for consolidation of some portions or all of the two agencies’ fire- related services. CITY OF ANGELS ]É{Ç UxÇÉ|à 9 cÉÄ|vç VÉÇáâÄà|Çz TááÉv|tàxá? __V 232 CAALAVERAS LAAFCO COUNTYYWIDE FIRE MUNICIPAL SERVICE REVIEW 1 5.. CAALIFOOR NIIA D EE PA RTME N T OO F FORRESTRRY A N D FF I R E PPROTTECTI O N S E RVV I C ESS AGENCYY OVERVVIEW Califoornia Deparrtment of FForestry andd Fire Proteection Servvices (CalFirre) providess fire preventiion, suppresssion, and ffire-related law enforccement for ttimberlandss, wildlandss and urban foorests. CalFiire also respponds to otther types oof emergenccies in 36 oout of the sttate’s 58 counnties via contracts wwith local ggovernmentts, includinng structurre fires, veehicle accidentts, medical aaids, swift wwater rescues, search aand rescuess, hazardouss material sspills, train craashes, and nnatural disassters. Calavveras Countyy is served bby the Tuolumne-Calavveras Unit (TCU) of CalFirre. CalFiire is not unnder Calaveeras LAFCO jurisdictionn and thereefore not beeing revieweed as part of thhis MSR. Infformation aabout CalFirre is includeed to providde a compreehensive piccture of fire pprotection services in CCalaveras CCounty. CalFFire plays aa significantt role in service delivery in Calaveras County aand could ppotentially aaffect SOIs and governnment struccture options ffor local ageencies that aare subject to LAFCO reegulation. State Responsibility Area Feees Assemmbly Bill X11 29, approvved by the CCalifornia Leegislature oon June 15, 22011 and siigned into laww on July 7,, 2011, estaablished a new annuaal Fire Prevvention Feee to pay forr fire preventiion servicess within thhe State Reesponsibilityy Areas (SRRA). Fees aare assessed on owners of habitablee structuress located inn the SRAs tthroughout California. Reasons foor the fee contaained in legislative finddings includde:  The presence of struuctures withhin SRAs cann pose an inncreased rissk of fire ignnition and an increased ppotential for fire damaage within the State'ss wildlandss and watersheeds.  The pressence of strructures wiithin SRAs can also immpair wildlland firefighhting techniques and couuld result inn greater ddamage to state resouurces causeed by wildfires.  The costss of fire preevention acttivities aimeed at reduciing the effeccts of structtures upon staate fire prootection ressponsibilitiees in SRAss should bee borne byy the owners oof these struuctures.  Individuaal owners oof structuress within SRRAAs receive a disproporrtionately laarger benefit frrom fire prevention acctivities thaan that realized by thee State's citiizens generallyy.  It is neccessary to impose a ffire prevenntion fee uupon individual ownerrs of structurees in SRAs tto fund firee preventionn activities in those arreas from wwhich such ownners derive a specific beenefit. CALFIRE ]É{Ç UUxÇÉ|à 9 cÉÄ|vvçç VÉÇáâÄà|Çz TTááÉv|tàxá? ____V 233 CAALAVERAS LAAFCO COUNTYYWIDE FIRE MUNICIPAL SERVICE REVIEW The fee is assessed at a rrate of $1550 per habiitable struccture. Howeever, owners of habitable structuress that are wwithin the booundaries oof a local firee protectionn agency receive a discouunt of $35 per habitabble structure. Residennts in the SSRAs receivve notice of the specific ffee amount and exemptions (if anyy) on a fee bbilling noticce. Overr time, this ffee is intendded to fundd a variety oof fire preveention serviices in the SSRAs, which innclude fire bbreak constrruction and other fuel rreduction activities thaat lessen thee risk of wildffiire to commmunities annd evacuation routes. Fire preveention activvities consiist of brush cclearance aaround commmunities, and alongg roadwayss and evaacuation rooutes, defensibble space insspections, ffire preventtion engineeering, emergency evacuuation plannning, fire prevvention eduucation, fire hazard sevverity mappping, implemmentation oof the Statee Fire Plan andd fire-relatedd law enforcement actiivities, suchh as arson innvestigationn. TUOLLUMNE-CALAVEERAS UNNIT The TTuolumne-CCalaveras Unit (TCU), sserving Calaaveras Counnty, includess the majoriity of Calaveraas and Tuolumne Counnties, and thhe eastern pportions of San Joaquinn and Stanislaus Countiess. TCU extennds downsllope from tthe U.S. Forest Service (USFS) bouundary andd into the Centtral Valley aas far west aas the San Jooaquin Riveer in the viciinity of I-5. However, TTCU’s Primary Operationnal Area (PPOA) begins at the LLocal Respoonsibility AArea (LRA)//SRA boundarry a few miles west of thhe western Calaveras aand Tuolummne county llines. The eentire POA encompasses almost 22.9 million aacres. Theree are over a million acrres of SRA lands within TCU. Figure 15-1 shoows the brreakdown oof the entirre TCU areea by ownershhip. In Calavveras Countyy, TCU is ressponsible foor protectinng 527,834 aacres. Figure 15-11: TCU Acrees by Ownerrship TCU is adminisstered by the unit Tuuolumne--Calaveraas Unit chief andd a deputy chief for opperations Acres byy Ownership and is hheadquarterred in San Andreas. Private 2,0440,346 The fire control poortion of the Unit is U.S. Forest Service 6990,017 divided into north aand south ddivisions, U.S. Bureau oof Land Manaagement 882,190 each of wwhich is maanaged by aa CalFire U.S. Bureau oof Reclamatioon 224,207 division chief. Thee north divvision is State of Califfornia 116,443 most eeasily thouught of aas being U.S. Fish andd Wildlife Serrvice 110,297 Calaveraas County, but also includes Bureau of Inndian Affairs 356 eastern San Joaquin County, a small portion of northheastern Sttanislaus TOTAL ACRRES 2,8699,030 County, and a swatth of privatte timber laand north oof the Middle Fork Staanislaus Rivver in northeasstern most Tuolumne County. The south divvision includdes the remmaining majjority of Tuolumne Countyy and easterrn Stanislauus County. The nnorth divisiion in Calavveras Countty is dividedd into four battalions eeach of whiich is administtered by a CCalFire battaalion chief. Battalion 1 covers terrritory from Mokelumnee Hill to Wallaace in the noorth, and froom Jenny Lind to San AAndreas in the south, aand includees the Valley Springs and San Andreeas forest ffire stationss. Battalionn 2 covers the lower SR 4 corridorr from easttern Stanislaus Countty to Murpphys, and includes the Copperoppolis, Altaville and Murphhys forest fiire stations.. Battalion 33 is the uppper SR 26 arrea and inclludes the communities off Glencoe, WWest Point,, Wilseyvillee, Railroad Flat and MMountain Raanch. CALFIRE ]É{Ç UUxÇÉ|à 9 cÉÄ|vvçç VÉÇáâÄà|Çz TTááÉv|tàxá? ____V 234 CALAVERAS LAFCO COUNTYWIDE FIRE MUNICIPAL SERVICE REVIEW Battalion 3 contains the West Point, Esperanza and Hermit Springs forest fire stations. Battalion 4 covers the upper SR 4 area from Forest Meadows to Black Springs Road, the area in Tuolumne County north of the Middle Fork Stanislaus River, and includes the Arnold and Skull Creek forest fire stations and Blue Mountain lookout. Vallecito Conservation Camp, located between Angels Camp and Murphys, completes the north division. CalFire Services in Calaveras CalFire is mandated by statute to provide wildland fire protection on SRA lands. Wildland fire protection on Federal Responsibility Area (FRA) lands is the responsibility of the federal government agencies, such as USFS and the Bureau of Land Management (BLM). Local agencies are responsible for LRA lands. CalFire cooperates closely with all the local city and district fire agencies in Calaveras County. Local fire providers have primary responsibility for all emergency incidents within their boundaries, except wildland fire (with the exception of the City of Angels Camp, which retains wildland fire jurisdiction). TCU relies heavily on district and city resources to supplement its wildland fire response. The Unit provides contracted dispatching services for all the local city and district fire agencies in the County. CalFire operates 13 Type 3 fire engines out of nine stations in Calaveras County during peak fire season. There is one conservation camp with five hand crews available for fire response. The hand crews perform project work when not assigned to fires. Besides the resources within the County, there are several stations and camps in neighboring counties that are included on an initial attack response, depending on where the fire is located in Calaveras. These resources include five Type 3 engines operating out of three stations and one conservation camp in Amador County and eight Type 3 fire engines and one conservation camp in Tuolumne County. There is also an air attack base with one air tactical plane, two air tankers and one Type 2 helicopter. CalFire responds to all calls, including assistance to the local fire protection districts, during the summer fire season. Some counties rely on CalFire to provide this type of assistance during the other seasons of the year under an arrangement called the “Amador Plan” agreement. Calaveras County has taken advantage of this service in the past, but currently there are no active Amador Plan agreements in place. CalFire Projects in Calaveras County CalFire administers a number of projects in Calaveras County which include:  Bar XX Fire Defense Project is a multi-phase, ongoing project with the goal of providing a fire safe environment to the Bar XX Subdivision and surrounding area. The project includes vegetation management with a fuel break along Fowler Peak, a VMP burn, road clearance for safer egress and fire equipment access and defensible space inspections. The total project area is approximately 670 acres. This project is administered in association with Calaveras Foothills Fire Safe Council, Appaloosa Road Association and Calaveras County.  Murphys Pines Road Clearance is a road clearance project intended to reduce roadside ignitions and provide safe egress and fire equipment access in the Murphys CALFIRE ]É{Ç UxÇÉ|à 9 cÉÄ|vç VÉÇáâÄà|Çz TááÉv|tàxá? __V 235 CALAVERAS LAFCO COUNTYWIDE FIRE MUNICIPAL SERVICE REVIEW Pines community. The project includes roadside fuel reduction with a 25-inch buffer on both sides of the roads in the area. The project ended in April of 2012, but there are ongoing defensible space inspections in the area. The total project area is about 35 acres.  Calaveras County Road Clearance is an ongoing road clearance project intended to reduce roadside ignitions and provide safe egress and fire equipment access. Project work is generally concentrated along Sheep Ranch Road, Rail Road Flat Road, Jesus Maria Road, Whiskey Slide Road, and Ponderosa Way. The total project area is about 100 acres.  Winton Schaads VMP project consists of fuel reduction treatments on Sierra Pacific Industries property along Winton Road and around the Lily Valley Estates Subdivision. This is an ongoing project administered in association with Sierra Pacific Industries with over 250 acres treated to date. The total project area is approximately 600 acres.  Mokelumne Hill Fuel Break project’s goal is to construct a shaded fuel break around the community of Mokelumne Hill. The fuel break is designed to help protect the community in the event of a wildfire originating in the Mokelumne River drainage. The shaded fuel break’s size will be approximately 50 acres when completed. CalFire also administers a number of fire prevention school programs, spreads awareness at county fairs and conducts miscellaneous prevention activities in various communities, details of which are shown in Figure 15-2. Figure 15-2: Fire Prevention Activities and Locations K-3 Smokey Bear Fire Prevention School Programs Calaveras County Mark Twain Elementary 646 Stanislaus Ave Angels Camp 95222 Calaveras County Copperopolis Elementary 217 School Street Copperopolis, 95228 Calaveras County Mokelumne Hill Elementary 8350 Highway 26 Mokelumne Hill 95245 Calaveras County Railroad Flat Elementary 298 Rail Road Flat Road Rail Road Flat 95248 Calaveras County San Andreas Elementary 255 Lewis Avenue San Andreas 95249 Calaveras County Mountain Oaks School 150 Old Oak Road San Andreas 95249 Calaveras County Valley Springs Elementary 240 Pine Street Valley Springs 95252 Calaveras County Jenny Lind Elementary 5100 Driver Road Valley Springs 95252 Calaveras County West Point Elementary 54 Bald Mountain Road West Point 95255 County Fairs Calaveras County Calaveras County Fair 101 Frogtown Road Angels Camp 95222 Miscellaneous Community Fire Prevention Events/Activities Arnold, Mountain Ranch, Murphys, San Andreas, Valley Tuolumne County, Springs, West Point, Big Oak Flat, Buck Meadows, PRC 4291 education, Calaveras County, Cedar Ridge, Columbia, Coulterville, Crystal Falls, Don inspections/citations Mariposa County Pedro, Greeley Hill, Groveland, Jamestown, MiWuk, Sonora, Soulsbyville, Twain Harte, Willow Springs CALFIRE ]É{Ç UxÇÉ|à 9 cÉÄ|vç VÉÇáâÄà|Çz TááÉv|tàxá? __V 236 CALAVERAS LAFCO COUNTYWIDE FIRE MUNICIPAL SERVICE REVIEW I N T E RVI EWS Agency Name and Title Calaveras County Planning Department Debra Lewis, Planner III Calaveras County Clay Hawkins, Chief Assistant CAO Calaveras County Auditor Controller Rebecca Callen, Auditor Controller Calaveras County Building Department Jeff White, Building Official Cal OSHA John Caynak, District Manager CalFire Mike Blankenheim, Battallion Chief San Andreas ECC Altaville-Melones FPD Jim Rosbrook, Chief Central Calaveras FRPD Jeff Stone, Fire Chief Copperopolis FPD Steve Kovacs, Fire Chief Ebbetts Pass FPD David Baugher, Fire Chief Foothill FPD Kim Olson, Fire Chief Jenny Lind FPD Kim Olson, Fire Chief Murphys FPD Steve Kovacs, Fire Chief Mokelumne Hill FPD Dave Spitzer, Fire Chief San Andreas FPD Don Young, Fire Chief West Point FPD Jim Carroll, Fire Chief City of Angels Camp FD Nathan Pry, Deputy Chief City of Angels Camp Planning Department David Hanham, Planning Director Mountain-Valley Emergency Medical Services Agency Marylin Smith, Response and Transport Coordinator INTERVIEWS ]É{Ç UxÇÉ|à 9 cÉÄ|vç VÉÇáâÄà|Çz TááÉv|tàxá? __V 237