Fire Department CIP Presentation

Transcription

1 Fire Department CIP Presentation City of Boise Budget Workshops September 2012 Presentation Purpose: The Mayor and Council received a broad overview of the 8 Year capital planning framework developed by staff in late June. This planning framework and the updated repair and maintenance, major equipment, and major capital plans were developed to reflect: The priorities outlined in the City s Strategic Plan Adequate annual and major repair & maintenance funding to preserve existing city assets Adequate equipment replacement funding to avoid increased maintenance costs A fiscally constrained plan including the identification of projects that are realistic to fund on an annual cash basis; projects that may be considered for unallocated end of year funds; projects that may be considered for debt or alternative financing; and projects that will not create an undue strain on projected O&M funding capacity. A summary of this framework, which includes estimated needs and projected revenues by cost category, is attached (Appendix A). Data specific to the Fire Department is highlighted. The first stage of the Mayor and Council s review of the planning framework, which will ultimately lead up to the FY14/15 budget development, is designed to: Gain consensus on the operating philosophy regarding the future funding of annual maintenance, major repair and maintenance, equipment and new capital assets. Identify elements of each Department s repair and maintenance, major equipment, and major capital plans that need deeper policy discussion or further refinement. Mayor and Council will receive briefings throughout August and September to discuss the objectives and key drivers of each Department s plans. This will be followed in early fall by the development of financial strategies and alternative funding options. 1 P age

2 Overview: The Fire Department s 8 Year Repair and Maintenance, Major Equipment and Major Capital Plans (Appendices B D) reflect the following objectives: 1. Maintain existing facilities to protect past investments and avoid unnecessary replacement and major repair costs; 2. Replace, expand, or improve existing facilities to address service level deficiencies outlined in the Standard of Cover study, and address major facility deficiencies to reduce operating costs and address regulatory and safety issues; and 3. Replace existing apparatus and other equipment according to schedule to avoid unnecessary increases in maintenance costs. Fiscal analysis conducted by the Department of Finance and Administration indicates projected revenues will be reasonably adequate to address the Annual Maintenance and Major Repair & Maintenance needs of the Fire Department. Projected revenues will not, however, be adequate to fund the number of facility and equipment replacements facing the Department in the next eight years. Background: The City has focused its capital resources over the past two decades on building new stations throughout the City to serve a fast growing community. Since 1994, the Department has more than doubled the amount of stations serving the City s response area from 8 to 18 (2 of which are owned by fire districts). Supporting these 18 stations are facilities for the Fire Shop (apparatus and equipment repair and maintenance), fire storage, fire training, and fire administration. The City s inventory of facilities has a current replacement value of $27.7 million. The attached Master Siting Plan identifies the location of all current and planned stations. The Department has received approximately $181,000 per year for the major repair and maintenance of the Department s facilities (items over $5,000). This funding is spent on various items including parking lot repairs, generators, roof repairs, painting, floor/carpet replacements, furnishings, lighting, bay doors, exhaust systems, appliances, HVAC systems, and opticom replacements. The Department also spends approximately $350,000 of its $740,000 Annual Maintenance budget on minor repair and maintenance of fire facilities (items costing less than $5,000). Some of this maintenance is provided by Government Buildings, and some is coordinated directly with contracted vendors by the Department. The Department provides fire protection and EMS services with a vehicle and apparatus inventory with a replacement value of $18.0 million. This includes 12 fire engines (plus five reserves engines), 3 ladder trucks (plus one ladder truck in reserve), 1 dive boat, 3 brush trucks, 1 heavy rescue truck, 1 hazmat truck, various pieces of specialty equipment and 28 staff vehicles. The Department spends approximately $390,000 of its $740,000 Annual Maintenance budget on costs related to the maintenance of its fleet. In addition, the Department spends $150,000 annually for new hydrant installation and $300,000 annually for the ongoing replacement of the hydrant system (100 hydrants are replaced each year). 2 P age

3 Most of the stations built before 2010 were sited based on a traditional methodology of placing stations where necessary to cover a 1.5 mile radius, as this was generally the formula necessary to achieve a 4 minute travel time. In 2011, The Department conducted a Standard of Cover to more effectively guide decisions about the future location of stations. This document is attached. A Standard of Cover: Identifies specific risks associated with our community, to include probability of occurrence and consequence (See Section 6 of the Standard of Cover). Probability of Occurrence 3 P age

4 Consequences Establishes the desired level of service to mitigate the risk. (See Section 7 of the Standard of Cover) Recommends changes to address service level and gaps in facility planning (See Section 8 of Standard of Cover). The Fire Department briefed the Council on the findings of the Standard of Cover, recommended levels of service, and resource deployment options, including truck company re locations, placement of future stations for growth, and the remodel/relocation of existing stations to better deploy resources. The Department developed its 8 Year Capital and Major Equipment Plans based on these findings. 4 P age

5 Process: One of the priorities in this process was to develop a long range capital plan that would sustain the Fire Department s current level of service as the City grew and address current gaps identified in the Standard of Cover. This required several new fire stations, the expansion of several existing stations, and additional apparatus and other vehicles and equipment. The total cost of the CIP was $23 million; the total cost of Major Equipment was $21 million. Of the total $44 million of capital and equipment needs, $20 million was determined to be impact fee eligible. The Department met several times with the City s Development Impact Fee Advisory Committee (DIFAC). This Committee approved the Department s Capital and Major Equipment plans and recommended adoption of the associated fullcost recovery impact fees. One of the projects on the 2010 CIP was the construction of Fire Station #15. While this project was necessitated by growth and therefore impact fee eligible, the balance in the Fire Impact Fee Fund was inadequate to fund the construction for its 2012 opening date. The City chose to advance the necessary funding to the Fire Impact Fee Fund to ensure the station could be constructed on time, thereby creating a liability in that Fund. When the CIP and Major Equipment Plans were updated in 2012 it was clear that although $20 million of the original $44 million CIP and Major Equipment Plan cost was impact fee eligible, the liability to the General Fund for Fire Station #15 would not be paid off until As new impact fees would take years to accumulate, staff constrained the updated 8 Year CIP to reflect projected available impact fee funding through 2019 by deferring five stations and the acquisition of twelve new apparatus/vehicles totaling $14.9 million. The deferred projects included: An engine and brush truck for the recently opened Station #15 (Harris Ranch). Station #15 will continue to utilize an engine owned by the Whitney Fire District until impact fee revenues are sufficient. The construction of Station #13, which is designated to serve growth in the Northwest including the area of impact. This project was deferred pending further direction on annexation. The acquisition of Station #17 from the Whitney Fire District, which is designated to serve future growth in the existing southwest area of the City. This project was deferred pending further direction on annexation. Apparatus and associated vehicles and equipment for Stations #13 and #17, as these stations were deferred. The construction of three additional fire stations identified as necessary to serve the long term growth needs of the Southwest area of impact. These projects were deferred pending further direction on annexation. 5 P age

6 Several other projects that were partially impact fee eligible were left on the CIP for Council consideration as they are needed more immediately to continue the current level of service. The Department is proposing alternate sources of funding for these items, including General Funds and debt financing. These projects are discussed on pages 8 11 and include: The remodel of Station #4 to create physical capacity to relocate a ladder company to address deficiencies identified in the Standard of Cover as well as ADA and gender equity issues; The purchase of an engine for Station #14 to replace the engine currently being borrowed from the Whitney Fire District; The purchase of a 4th ladder truck to address current deficiencies identified in the Standard of Cover, which will be exacerbated in the event of annexation; 1 and Fire vehicle and equipment storage to replace current storage at the Armory. The Department conducted a comprehensive review and update of its Major Repair and Maintenance Plan in An inventory of current facility condition was conducted, including a full evaluation of all mechanical systems. All asset information was entered in the asset management system used by Government Buildings (Hanson), which identified dates for the future replacement of all facility components according to recommended practice. The level of funding necessary to meet the major repair and maintenance needs of the Department s facilities is approximately $315,000 annually 2, more than double what the Department has been historically allocated annually for Major R&M. 3 This amount does not include the $450,000 funded annually for fire hydrant replacement and new hydrant installation. Similarly, the Department updated its system for the tracking and replacement of all existing Department apparatus, vehicle and equipment. Based on recommended replacement criteria, life cycle analysis and historical maintenance cost data, an average of $1.5 million annually or $12 million over the 8 Year period will be needed to replace current assets. An additional $3.6 million will be needed to acquire additional assets to serve current and projected growth. 1 It should be noted that the addition of a 4 th ladder truck would require a 4 th ladder company. The related staffing costs are approximately $1.5M per year. More information on these impacts will be provided to Council during an annexation policy discussion in the fall. 2 Approximately $40,000 of this annual amount is related to NACFR and Airport owned facilities, and will be funded by those entities. 3 The preliminary FY13 Major R&M budget for Fire was $104,000. In recognition of deferred maintenance issues, an additional $166,000 was appropriated at the final FY13 budget adoption in June 2012 for a total of $270,000. This was in addition to hydrant replacement funding. 6 P age

7 Major Themes of Department s 8 Year Plan (R&M, Equipment and Capital): The cumulative Annual Maintenance, Major R&M, Major Equipment and Capital needs are summarized in Appendix A and total approximately $48.4 million over the 8 Year period. The total estimated costs for Major R&M over the next eight years is $6.1 million (see Appendix B), which includes $2.5 million in facilities repair and maintenance and $3.6 million for hydrant replacement and new installation. Of the $2.5 million in 8 Year facilities repair and maintenance costs, $313,000 is the responsibility of NACFR and the Airport. The Annual Maintenance (minor R&M) budget is assumed to continue at historical levels, resulting in an 8 Year impact to the General Fund of $5.9 million. The total estimated need in Major Equipment over the 8 Year period is $12 million in replacement and $3.6 million in new acquisition for a total of $15.6 million (see Appendix C). The total estimated cost for completing the Fire Department s fiscally constrained Capital Improvement Plan is approximately $20.9 million (see Appendix D). $17.1 million of this amount is related to the replacement or major renovation of existing facilities; the remaining $3.8 million is related to new training facility components and the acquisition of land for Station #8. $18.0 million of the total CIP is proposed to be funded by General Funds, $1.5 million of which could be reimbursed from impact fees after The remaining $2.9 million will be funded by the North Ada County Fire and Rescue District (NACFR); and Airport Fund for the Aircraft Rescue and Fire Fighting (ARFF) station. The major themes reflected in these plans are as follows: 1. Maintain existing facilities to protect past investments and avoid unnecessary replacement and major repair costs. During the past two decades of rapid growth, the Fire Department focused its capital assets on siting and constructing new stations according to projected geographical development patterns. The number of stations doubled during this time from eight to sixteen. This investment in new assets however, came at the expense of the maintenance of existing facilities and equipment assets, the cumulative effect of which is a backlog of deferred maintenance needs and deteriorating stations. The proposed Major R&M Plan (Appendix B) can be broken into two areas: Facilities and Hydrants. Together these needs drive an 8 Year Major R&M budget of $6.1 million, an average of $764,000 per year. Facilities The Fire Department conducted a comprehensive evaluation of the condition of each of its facilities and equipment as part of the capital planning process to identify the amount that would be necessary to maintain existing facilities in a manner that would avoid premature replacement and control O&M costs. This process included an in depth condition analysis of each station s mechanical systems. Partnering with Government Buildings, all of the existing 7 P age

8 facility assets were programed into the City s Hanson asset management system. Based on life cycle analysis, recommended replacement and repair schedules were generated. This data drove the necessary funding identified for repair and maintenance of existing facilities of $2.5 million over the 8 Year period, $313,000 of which is the responsibility of NACFR and the Airport. In order to address deferred facility maintenance and achieve costs savings inherent in routine system replacements, the average annual major repair and maintenance need for Fire facilities is approximately $315,000. This does not include the $450,000 needed annually to address hydrant replacement. Historically, the average annual fire R&M budget has been $181,000. In FY13, the Council approved an annual Fire R&M budget of $270,000 in addition to hydrant replacement funding in response to the recognized need to address deferred maintenance. Annual Fire Major R&M needs for the next eight years are driven by the following cost categories: Major R&M Category 8 Year Cost Ave. Annual Cost % Parking Lot Repairs/Improvements $ 289,000 $ 36,125 11% Generators $ 138,000 $ 17,250 5% Roofing $ 135,000 $ 16,875 5% Painting $ 191,700 $ 23,963 8% Flooring $ 137,900 $ 17,238 5% Furnishings $ 290,400 $ 36,300 12% Lighting $ 8,000 $ 1,000 0% Bay Doors $ 128,000 $ 16,000 5% Exhaust Systems $ 20,000 $ 2,500 1% Appliances $ 89,900 $ 11,238 4% Opticom replacements $ 406,000 $ 50,750 16% Government Buildings indirects $ 350,000 $ 43,750 14% Miscellanous station repairs $ 105,000 $ 13,125 4% HVAC $ 227,297 $ 28,412 9% $ 2,516,197 $ 314,525 16% of the Major R&M facilities budget is driven by the maintenance and annual replacement of the City s opticom system. The opticom hardware is purchased and owned by the City and maintained by ACHD as part of the intersection infrastructure. The Department is working with ACHD to develop a formula for sharing annual maintenance costs with all opticom users, including fire, police and emergency service providers in other jurisdictions. The next four largest cost categories in the facilities Major R&M Plan are indirect charges from Government Buildings (maintenance needs not managed by the Fire Department); furnishing; parking lot repairs; and HVAC maintenance and repairs. 8 P age

9 The Department will integrate best practices for energy efficiency and water conservation into its approach to the repair and maintenance of existing facilities in order to reduce ongoing operational costs, including: Re landscaping Stations #1, 2, 12 and 16 with Fire Wise and drought tolerant plants to reduce water usage and serve as a demonstration for homeowners 4 ; Conducting energy audits in existing stations; Replacing heating and air conditioning units with more energy efficient models; Continuing to install LEED certified roofing systems; Retrofitting and standardizing all lighting, and adding light sensors for increased energy efficiency; Replacing swamp coolers; and Purchasing appliances with the best energy ratings. Operationally, the Department has taken other recent steps to ensure the most cost effective management of its facilities. The Fire Logistics Division was recently consolidated under the Operations Division, eliminating the Deputy Chief position. As a result, the Division Chief over Logistics is developing a service level agreement with Government Buildings to manage all daily repairs and maintenance to Fire facilities, including the contracted vendor previously managed by the Logistics Division. The Fire Department believes this decision will result in decreased maintenance costs in the long term from more consistent purchasing practices and economies of scale, especially after efforts were made by the two Departments to load all Fire facility components into the Hanson asset management system, and the Government Buildings Division reallocated an FTE from within the Public Works Department to allow the Facilities Manager to focus on the daily needs of an expanding asset portfolio. In addition, allowing all facilities management to be performed by Government Buildings will enable the Division Chief to focus more attention on achieving operational objectives. Hydrants The Department spends $300,000 per year on the ongoing replacement of existing hydrants (100 per year), and $150,000 per year on the installation of new hydrants in areas of infill development. The Department is partnering with Public Works to negotiate a process by which United Water would take over the ownership of the City s hydrant system and build the cost of annual replacement into the rate structure. If these negotiations are successful, a significant portion of the Department s Major R&M budget could be refocused on other priority needs. Does the Council have any questions? Are there areas where the Council would like to see a change in strategic direction? 4 The Department has secured a grant for the first phase of this project and will seek other grants in future years. 9 P age

10 2. Replace, expand, or improve existing facilities to address service level deficiencies outlined in the Standard of Cover study, and address major facility deficiencies to reduce operating costs and address regulatory and safety issues. The location of the City s 16 stations generally enables the Department to provide a 4 minute travel time throughout the City. However, the 2010 Standard of Cover study recommended Station #4 (Ustick) be expanded to accommodate a ladder truck company to better provide the desired level of service to current and future development in the western part of the city. Built in 1972, this station is reaching the end of its useful life, does not have gender specific bunkrooms or bathrooms, does not meet ADA requirements, and is not energy efficient. While this project is partially impact fee eligible, fee revenue will not be adequate to fully fund it until after Because of its direct relation to meeting the recommendations of the Standard of Cover, the Department has included the replacement of Station #4 in the 8 Year CIP in Impact fee revenues could reimburse the General Fund for any advance or debt service payments made to advance this project. Of equal concern is the current condition of a dozen of the Department s current facilities, as their age, size and design result in increased operational costs, energy waste, safety issues and regulatory violations; and challenge the Department s efforts to increase gender equity on the line 5 : Station #1 (Reserve Street; built in 1980) Bathrooms and bunkrooms need to be remodeled to address ADA and gender equity issues; the station has no insulation and single pane windows. Estimated Cost = $400,000; already approved for FY12 and FY13. Station #3 (Gekeler; built in 1978) Bathrooms were recently remodeled to address ADA and gender equity issues. This phase will remodel the kitchen to current codes and add a laundry room to reduce outside cleaning costs. Recommended to be funded in Estimated Cost = $50,000. Station #5 (16 th Street; built in 1951) A recent seismic study indicated required repairs would cost close to $800,000. The station does not have an emergency generator because the station s electrical system is already at capacity, and the original back in bays create safety issues. The building is not sprinklered and does not allow for gender equity in the bunkrooms and bathrooms. Addressing these deficiencies could cost as much as $1.5 million without providing additional capacity for further growth in the downtown core. Therefore, the Department is considering a range of 5 The average life cycle of a fire station is 50 years. Not included in the 8 Year Plan was the reconstruction or replacement of Station #8, which was built in 1972 and is reaching the end of its useful life. The Department is currently evaluating options for the best placement of this station, and may recommend advancing this project in place of another station remodel in the future. 10 P age

11 ways to address the safety and operational issues, and has prioritized the project for funding in A full replacement could cost as much as $2.5 million. Station #9 (Sycamore; built in 1975) This station s bays are too small for Department apparatus to enter; specialized units have to be purchased for this station. ADA and gender equity issues need to be addressed. Recommended for remodel in Estimated Cost = $910,000. Station #10 (Cloverdale and McMillan; built in 1994) Bunkroom needs to be remodeled to address gender equity issues, and tile/concrete needs to be repaired. Recommended for funding in Estimated Cost $60,000. Station #16 (NACFR station on Glenwood; built in 1967) Bathrooms and bunkrooms need to be remodeled to address ADA and gender equity issues. The station has no insulation and currently has single pane windows. Because the station s bays are too small for Department apparatus to enter specialized units have to be purchased for this station. Design options are currently being developed; a full replacement is estimated to cost $3.5 million. The Department is working with the NACFR Commissioners to develop a strategy for funding the replacement of this station. Ridenbaugh Station This station is currently unstaffed. The Ada County EMS uses this station for deployment. Approximately $200,000 is needed to fund necessary repairs and is included in the CIP in However, the Department is currently evaluating the potential for divesting this property, and will bring the item back to Council for further discussion in the near future. Stations #7 and #19 (Airport/ARFF Stations) Station #7 currently serves the area east of the Boise Airport, and houses Fire Stores. Station #19 is the Airport Rescue and Fire Fighting (ARFF) station, located on Airport property. Station #19 is too small to house its own foam truck and is located too far away from the Airport to respond in the required amount of time. The Standard of Cover recommended these two stations be considered for co location in order to better meet the needs of the Airport and surrounding area now and as the Airport grows. 6 Co location will create efficiencies as the two stations can share one training room, one fitness room, one emergency generator, one kitchen, bunkrooms, etc. It will also enable ARFF personnel to attend required training without incurring constant staffing costs as Station #7 crews can maintain minimum staffing. This project is proposed for funding in 2018, and is estimated to cost $5 million. A major portion of the remodel would be funded by FAA funds, and will utilize land already owned by the City/Boise Airport. 6 This relocation would not eliminate the need for a separate station located on the 3 rd runway. If needed, the Airport Fund would pay for any construction costs. 11 P age

12 Burn Tower Replacement The current training tower, located on Shoreline Drive, has several issues and limitations: a. The existing facility is over 40 years old and has been deemed structurally unsound for long term use, creating liability for future firefighter safety; b. The existing site is too small to perform adequate drills or accommodate necessary training props; c. The proximity of the existing site to the Boise River limits the Training Division s use of foam flows and reduces the amount of water flow that can be utilized in training activities; and d. The existing facility has no flexibility for changing room configurations and designs to represent various styles of modern commercial development within the City. In 2009, the Fire and Police Departments conducted a joint study to identify long term training facility needs. The full costs for this envisioned facility were over $40 million and the Chiefs determined it would be advisable to look for solutions that could be implemented incrementally. The Fire Department s priority is the replacement and relocation of the burn tower. It is proposed for funding in 2014 and is estimated to cost approximately $3.8 million. The next priority, proposed for 2016, would be a drafting pit used for annual testing of all fire engines, and props used for training exercises for rail and hazardous material incidents. These props are estimated to cost $3.3 million. Future phases, proposed to be considered after 2019, include the development of additional training props such as submerged vehicle training, car fire, extrication, rope rescue, confined space/trench collapse, structural collapse, multi story retail and a burn house. The Department is currently working with Public Works to evaluate the availability of potential sites in east and west Boise that could provide at least 15 acres for a new burn tower. 7 Cost estimates are being updated and will be provided to Council for further consideration. Once a parcel is identified and costs are estimated, the Department will pursue all available grant opportunities for funding these projects. Fire Shop The Department s Fire Shop maintains all Fire apparatus in the facility attached to the burn tower on Shoreline Drive. Space limitations in this existing space result in annual write ups by the City Safety Officer. Similar findings have routinely addressed by the City Auditor, citing an inappropriate separation of inventory due to 7 A parcel in West Boise might enable a partnership with the City of Eagle. 12 P age

13 lack of space. If the Fire Shop stays at its current location, the space will need to be remodeled to address these issues, and the Department has included a $750,000 placeholder in the CIP to acknowledge this fact. However, a range of options for relocation and co location are currently being examined with other Departments to maximize capacity, share resources, control costs, and minimize mileage and time out of district. Storage The Department currently performs hydrant maintenance outside in the parking lot of Station #11, and would benefit from enclosed space. There is no available space at the Fire Shop, and the storage space at the Armory will no longer be available. A $220,000 placeholder has been included in the CIP to acknowledge the need to provide additional storage/workspace. However, a study was recently conducted by Public Works to determine the long term storage needs of City Departments. Fire and Police have the largest storage needs, including vehicle storage. An interdepartmental effort to identify potential options for addressing these storage needs may eliminate the need for storage at Station #11. The Department will focus on integrating best practices for energy efficiency and water conservation into each station remodel in order to decrease overall operating costs and model good resource stewardship. Does the Council agree with the Department s prioritization of funding the replacement, expansion or remodel of existing facilities to control operational costs and meet regulatory requirements? What alternate strategies should be considered? 3. Replace existing apparatus and other equipment according to schedule to avoid unnecessary increases in maintenance costs As part of the capital planning process, the Department analyzed the current and future needs for apparatus, vehicles and equipment. The resulting 8 Year Major Equipment Plan (see Appendix C) will cost $15.6 million, $3.6 million of which is related to equipment purchases necessitated by recent/future growth, and $12 million of which is the replacement of existing assets as follows: REPLACEMENT OF EXISTING MAJOR EQUIPMENT Apparatus Replacement (10) $ 7,328,040 Vehicle Replacement (35) $ 938,000 Specialty Equipment Replacement $ 1,114,095 Misc. Equipment Replacement (incl. SCBA) $ 2,575,554 $ 11,955,689 NEW MAJOR EQUIPMENT Additional/New Apparatus $ 3,054,097 New Specialty Equipment $ 424,545 New Misc. Equipment $ 125,000 $ 3,603, P age

14 The majority of the $3.6 million in new Major Equipment is apparatus, including an engine for Station #14, an additional ladder truck, and additional water tender. The Station #14 engine and ladder truck are impact fee eligible. However, as indicated above, adequate impact fee revenues will not be available to fund these items until after The purchase of the engine for Station #14 was approved for General Funds in FY12, but was deferred in order to fund a fall fire recruit class. The ladder truck is not proposed for funding until 2019, but may still need other funding sources up front depending on the impact fee fund balance and growth needs at that time. The water tender will bring the total number of water tenders available within the City to three, and address a geographical deficiency in the southeast portion of the City. 8 As such, it is not impact fee eligible. The original Major Equipment plan called for an engine and brush truck for Station #15 (Harris Ranch) and Station #13 (Pierce Park area). Because of insufficient impact fee fund balance, all four units were deferred past The Department will utilize the engine owned by the Whitney Fire District at Station #15 as long as possible. The rest of the Major Equipment Plan is not necessitated by growth. It is a combination of deferred equipment replacement, forecasted replacement according to schedule, and the acquisition of new technologies to provide an improved level of service in incidents involving the Dive Team, Technical Rescue and Haz Mat response. Efforts continue within the department to identify ways to reduce the cost of equipment replacement without threatening service levels, including unit utilization analysis, research into new practices in fleet and equipment replacement, and the investigation of other financing mechanisms, such as leasing. It is important to note, however, that while leasing is a viable option in the short term for evening out annual costs and providing cash up front, a sinking fund may be a better long term tool for leveling out spikes in annual equipment needs. The Council may wish to provide further direction on alternate funding mechanisms or other strategies for addressing deferred major equipment replacement. 8 Currently, there is one water tender owned by NACFR available but unstaffed in the Northwest part of the City, and one water tender owned by Whitney available but unstaffed in the Southwest part of the City. There is no City owned water tender, and no water tender available in the central or eastern part of the City. 14 P age

15 Boise Fire Master Siting Plan ± 20 0! Miles Boise Area of Impact Current Fire Stations N Highway 55 #! Response Area Within Boise City Limits E Response Area Overlap Within Boise City LimitsOutside Response Area E Hig h wa y 44 S Eagle Rd Response Area! hi nd en W Bl v d 11 W Franklin Rd! 06 S Cole Rd S Eagle Rd!! This drawing is to be used only for reference purposes; Boise City is not responsible for any inaccuracies herein contained.! 05 EF! 08 17! 01 ron! ts t 19!! S lvd! 14 W Main St B ter cen ark W Overland Rd S Orchard St 184 St EP CM059401V1 9/6/2012 This map is made in part from data prepared or compiled by Ada County. Ada County shall not be liable for inaccuracies or misuse of this map or data. St at e N Orchard St! S Broadway Ave C! St! 09 9th W 04 W Fairview Ave Future Station Location Proposed Response Area S 10! E Overland Rd Future Fire Stations 16 N Cole Rd N Eagle Rd 13 S Vista Ave N Glenwood St!! E Franklin Rd NOTE: Response area boundaries are based on Insurance Service Office (ISO) ratings (1.5 miles) # E Chinden Blvd! Fire Station! Fe de ra lw ay A! B!! C 12 E Highway 21 D!

16 APPENDIX A 8 YEAR SUMMARY Capital Needs and Resources FY12 FY19 Projected Expenditures Department Arts Annual Maintenance (Minor R&M) 326,568 Routine Minor R&M plus approximately $40k a year for art maintenance, Currently Funded via 0.4% Art ordinance Major R&M (Repair & Maint.) Existing Assets 120,000 Amount estimated for Major R&M, currently under funded, using 0.4% resources Major Equipment (Replacement) 8 Year Category Totals by Department Major Capital Remodel, Renovation & Replacement New Assets (New Service Level/Growth Related) New Equipment (Growth Related) New Capital 0 N/A 0 N/A 0 N/A 4,549,850 Estimated New Art via the 1% Art Ordinance ($800k) and a new Cultural Facility ($3.75M) 8 Year Dept Total Dept Total 4,996,418 F&A 925,472 32% of total is software maintenance costs, other notable accounts include R/M Office (25%) and R/M Shop (21%) 0 N/A 362,800 Copiers, Printers and Vehicle replacements 400,000 OnBase improvement and growth 0 N/A 0 N/A 1,688,272 Fire 5,899,624 R/M Shop accounts for approximately 53% of total Minor R/M costs; followed by Building R/M at 19% 6,116,197 Hydrants account for $3.6M or 59%, Remainder consists of Roofing, Painting, etc. Fire is working with Public Works to see if they can pass the hydrant assets on to United Water for a more sustainable future replacement strategy. There is a large bubble for replacement in ,955,689 9 Engine/Truck Replacements $6.6M; SCBA Replacement $1.9M; Heavy Rescue Truck $703k; Hackney Tractor & Trailer $672k; Staff Vehicle Replacement $758k; Dive Team Equipment $285. Equipment replacement is large due to recent budget constraints and as a result deferred purchases. 17,068,000 The majority is station remodels and replacements $13.0M. Fire Burn Tower replacement $3.7M 3,603,643 Ladder Truck $1.9M; Station 14 Engine $642k; Additional water tender $468k; Tech Rescue equipment $233k; Command Trailer $125k 3,791,000 Training Props $3.3M (not IF eligible); Station 8 Land Purchase $500k 48,434,153 IT 4,371,752 IT's Minor R&M is predominately made up of two accounts System Maintenance (93%) and Software Maintenance (5%) 6,880,000 Infrastructure and Phone Replacement Fund, $860k/year; switches, routers, servers, etc. 538,500 AV, Electrical total $320k, $40k/year; Remainder is auto and printer/copier needs 11,596,860 Current ERP replacement funding in FY 2012, New IT Strategic Plan in progress and preliminary number is estimated at $1.4M a year starting in FY N/A 0 N/A 23,387,112 Legal Library Parks PDS Police 254,392 Legal's Minor R&M is predominately made up of two accounts Software Maintenance (62%) and Equipment R/M (29%) 1,795,192 Library spends the majority of it's Minor R/M budget on Building R/M (53%) with System Maintenance at 31% 9,172,960 Parks has the largest Minor R/M budget due to the size of the department's footprint; 44% of Park's Minor R/M expenses are related to Buildings, 30% to R/M Shop and 22% to R/M Office 760,592 R/M Shop accounts for 51% of historical expenditures followed by System Maintenance at 34% 8,273,000 79% of historical expenses are R/M Shop, the remaining expenses are spread over several accounts 0 N/A 98,000 50k for JustWare system, remainder is copier replacements 4,669,224 Carpet & Paint $797k; HVAC $1.0M; Exterior Improvements $828k; Doors & Windows $482k; Electrical $337k; Safety Upgrades $456k; Other $509k, If new Main is built $2.15M would not occur 16,176,976 This includes Asphalt, Building/Structure, Irrigation, Sports Facility, Pool, Fence, Playground repair/replacement and several other types. All of the repairs in this category are in excess or 5k, making them Major R&M. 767,227 Copiers, Furniture replacement, checkin stations, shelving, and service vehicles 7,513,606 Utility Vehicles, Mowers, 3/4 Ton and 1/2 Trucks, Lifts, Tractors, Zamboni, and Copiers 0 N/A 1,076,930 Majority is staff service vehicles and copiers. 0 N/A 13,109,598 Patrol Cars ($6.9M) are approximately 53% of the total, 25 units per year, while other vehicles make up 44% ($5.7M) which includes Staff, SRO, CID and NARC vehicles and Police SUV's and motorcycles. Misc equipment accounts to the remainder. 0 N/A 0 N/A 0 N/A 352,392 5,599,000 $1.1M Cole & Ustick expansion; $700k relocation of Hillcrest; ILS System upgrade $600k; Main Lib Re design $70k; $3.2 would not occur if new Main is built 11,752,000 Amenities in Existing parks, 61% of total, for 27 park locations $7.19 M, Largest is Julia Davis $1.9M (funded by donations); ; Whitney and Lowell Pool Re build $4.5M; Given General Fund fiscal constraints, $10.3M in GF funded projects have been differed beyond FY N/A 11,559,000 Bown Library $6.8M; RFID Tags & Workstations $750k; RFID Auto Sort $4.0M 0 N/A 21,202,828 Open Space Acq $5.1M; Marianne Williams $2.7M; River Recreation Park $5.6M; Remainder is amenities in new parks; Given Impact Fee fiscal constraints, $32.6M in projects have been deferred beyond FY ,389,643 65,818,370 0 N/A 0 N/A 0 N/A 1,837,522 1,760,000 Consists of Firing Range Improvements that will be phased over 5 years. 0 N/A 5,850,000 Central District Station $3.8M (50% Impact Fee eligible); Vehicle Storage $2.0M (25% Impact Fee eligible) 28,992,598 PW GB 4,088,960 Public Works Minor R/M is spread evenly throughout all of their accounts (buildings, office, paint, HVAC, electrical, plumbing, etc.) 2,067,794 HVAC $245k, Carpet $420k, HR Remodel $340k, Roofing $400k 722,389 Vehicles and Security technology 0 N/A 0 N/A 0 N/A 6,879,143 Total Expenses 35,868,512 36,030,191 36,144,739 48,175,860 3,603,643 N/A 46,952, ,775,622 average per year $ 4,483,564 $ 4,503,774 $ 4,518,092 $ 6,021,983 $ 450,455 $ 5,869,085 $ 25,846,953

17 APPENDIX A 8 YEAR SUMMARY Anticipated Resources Existing Assets 8 Year Category Totals by Department New Assets 8 Year Dept Total Funding Source Annual Maintenance (Minor R$M) Major R&M (Replacement) Major Equipment (Replacement) Capital New Equipment (Growth Related) New Capital Dept Total General Fund $ 35,868,512 This category is funded fully currently and represents the resources necessary to cover Minor R&M costs (items < 5k); Underfunding this can lead to increased Major R&M costs $ 31,889,324 This expense has historically occurred in the Capital Fund. $3.8 million a year is what the City has recently dedicated to Major R&M. The General Fund transfer portion of this resource is assumed to grow at 2.75% a year. $ 30,848,434 Approximately $3.5 million a year growing at 2.75% a year has been assigned to Major Equipment (items > 5k) $ 12,587,591 This expense has historically occurred in the Capital Fund. $1.5 million a year is what the City has recently dedicated to Capital after allotting Major R&M funds. The General Fund transfer portion of this resource is assumed to grow at 2.75% a year. $ N/A $ N/A $ 111,193,861 average per year $ 4,483,564 $ 3,986,166 $ 3,856,054 $ 1,573,449. $ $ $ 13,899,233 Impact Fees $ Station 14 Engine ($642k) and a ladder truck ($1.9M) are eligible but repayment would have to occur after FY 2020 $ 9,642,328 Parks: $7.2M, Police: $2.4M (50% Central Dist. Station, 25% Vehicle Storage) $ 9,642,328 Donations/Other $ 300,000 ILS system upgrade equity account $ 6,850,000 $4.5 M River Recreation Park; $1.9M Julia Davis; $ 7,150,000 Foothills Levy $ 4,200,000 Foothills Levy $ 4,200,000 NACFR $ 271,850 Station 16, 18 and 20 Major R/M, NACFR funded $ 114,375 Replacement of 4 NACFR vehicles, NACFR funded $ 360,000 Station 16 Remodel, NACFR funded $ 746,225 Airport $ 41,550 ARFF Station Major R/M $ 2,500,000 Airport Funded New ARFF Station $ 2,541,550 Total Revenues $ 35,868,512 $ 32,202,724 $ 30,962,809 $ 15,747,591 $ $ 20,692,328 $ 135,473,964 average per year $ 4,483,564 $ 4,025,341 $ 3,870,351 $ 1,968,449 $ $ 2,586,541 $ 16,934,246 Difference 0 (3,827,467) (5,181,930) (32,428,269) (3,603,643) (26,260,350) (71,301,658) average per year $ $ (478,433) $ (647,741) $ (4,053,534) $ (450,455) $ (3,282,544) $ (8,912,707) *8 Year timeframe does not include the City Hall West roof ($1.46M), City Hall Code Update ($9.9M) and a New Main Library ($119.0M) Each of the projects are 30+ year asset replacements and do not represent a normal 8 Year timeframe Estimated Operating Costs Associated with 8 Year Capital Needs as Presented: Parks: Total $909,506, $252k Existing Assets, $657k New Assets Library: Bown Crossing $800,000, if Main were added, Main: $2,000,000 Capital Fund Resources (Used to Fund Major R&M and Capital Needs) *Excludes Partnerships/Donations/Impact Fee Fund General Fund Transfer Electric Franchise Fee Interest 2,550,000 Assumes a Growth Rate of 2.75% annually 2,550,000 Static, No Growth Rate 200,000 Assumed Static, No Growth Rate Total 5,300,000

18 APPENDIX B FIRE MAJOR R PLAN R&M Category Cost General NAFCR Airport Fund Funded Funded BFD Facilities Parking Lot Repairs/Improvements $ 211,500 $ 40,500 $ 73,500 $ 21,000 $ 14,000 $ 14,000 $ 13,500 $ 21,000 $ 14,000 $ 211,500 $ $ Generators $ 138,000 $ $ $ 38,000 $ 100,000 $ $ $ $ $ 138,000 $ $ Roofing $ 65,000 $ 15,000 $ $ 25,000 $ $ 25,000 $ $ $ $ 65,000 $ $ Painting $ 141,700 $ $ 14,100 $ $ $ 52,600 $ 30,000 $ $ 45,000 $ 141,700 $ $ Flooring $ 117,100 $ $ $ $ $ 45,600 $ 43,000 $ $ 28,500 $ 117,100 $ $ Furnishings $ 264,000 $ 33,000 $ 33,000 $ 33,000 $ 33,000 $ 33,000 $ 33,000 $ 33,000 $ 33,000 $ 264,000 $ $ Lighting $ 8,000 $ $ $ 8,000 $ $ $ $ $ $ 8,000 $ $ Bay Doors $ 80,000 $ $ $ 20,000 $ 12,000 $ 12,000 $ 12,000 $ 12,000 $ 12,000 $ 80,000 $ $ Exhaust Systems $ 20,000 $ $ $ 20,000 $ $ $ $ $ $ 20,000 $ $ Appliances $ 81,200 $ 10,150 $ 10,150 $ 10,150 $ 10,150 $ 10,150 $ 10,150 $ 10,150 $ 10,150 $ 81,200 $ $ Opticom replacements $ 406,000 $ 58,000 $ 58,000 $ 58,000 $ 58,000 $ 58,000 $ 58,000 $ 58,000 $ 406,000 $ $ GB indirects $ 350,000 $ 50,000 $ 50,000 $ 50,000 $ 50,000 $ 50,000 $ 50,000 $ 50,000 $ 350,000 $ $ Miscellanous station repairs $ 105,000 $ 15,000 $ 15,000 $ 15,000 $ 15,000 $ 15,000 $ 15,000 $ 15,000 $ 105,000 $ $ HVAC $ 215,297 $ 16,000 $ 33,217 $ 33,216 $ 33,216 $ 33,216 $ 33,216 $ 33,216 $ 215,297 $ $ Subtotal R&M for BFD Facilities $ 2,202,797 $ 98,650 $ 269,750 $ 331,367 $ 325,366 $ 348,566 $ 297,866 $ 232,366 $ 298,866 $ 2,202,797 $ $ NACFR Facilities (Station #16, #18, and #20) Parking Lot Repairs/Improvements $ 77,500 $ 3,500 $ 60,000 $ 3,500 $ $ 3,500 $ 3,500 $ 3,500 $ $ $ 77,500 $ Generators $ $ $ $ $ $ $ $ $ $ $ $ Roofing $ 70,000 $ $ $ $ $ $ 50,000 $ $ 20,000 $ $ 70,000 $ Painting $ 50,000 $ $ 15,000 $ 20,000 $ 15,000 $ $ $ $ $ $ 50,000 $ Flooring $ 20,800 $ $ $ 8,000 $ 11,000 $ $ $ $ 1,800 $ $ 20,800 $ Furnishings $ 13,200 $ 1,650 $ 1,650 $ 1,650 $ 1,650 $ 1,650 $ 1,650 $ 1,650 $ 1,650 $ $ 13,200 $ Lighting $ $ $ $ $ $ $ $ $ $ $ $ Bay Doors $ 24,000 $ 3,000 $ 3,000 $ 3,000 $ 3,000 $ 3,000 $ 3,000 $ 3,000 $ 3,000 $ $ 24,000 $ Exhaust Systems $ $ $ $ $ $ $ $ $ $ $ $ Appliances $ 4,350 $ $ 300 $ 250 $ 2,000 $ 900 $ 400 $ 500 $ $ $ 4,350 $ HVAC $ 12,000 $ 6,500 $ 5,500 $ $ 12,000 $ Subtotal R&M for NACFR Facilities $ 271,850 $ 8,150 $ 86,450 $ 36,400 $ 38,150 $ 9,050 $ 58,550 $ 8,650 $ 26,450 $ $ 271,850 $ Airport Facilities Parking Lot Repairs/Improvements $ $ $ $ $ $ $ $ $ $ $ $ Generators $ $ $ $ $ $ $ $ $ $ $ $ Roofing $ $ $ $ $ $ $ $ $ $ $ $ Painting $ $ $ $ $ $ $ $ $ $ $ $ Flooring $ $ $ $ $ $ $ $ $ $ $ $ Furnishings $ 13,200 $ 1,650 $ 1,650 $ 1,650 $ 1,650 $ 1,650 $ 1,650 $ 1,650 $ 1,650 $ $ $ 13,200 Lighting $ $ $ $ $ $ $ $ $ $ $ $ Bay Doors $ 24,000 $ 3,000 $ 3,000 $ 3,000 $ 3,000 $ 3,000 $ 3,000 $ 3,000 $ 3,000 $ $ $ 24,000 Exhaust Systems $ $ $ $ $ $ $ $ $ $ $ $ Appliances $ 4,350 $ $ 300 $ 250 $ 2,000 $ 900 $ 400 $ 500 $ $ $ $ 4,350 HVAC $ $ $ $ Subtotal R&M for Airport Facilities $ 41,550 $ 4,650 $ 4,950 $ 4,900 $ 6,650 $ 5,550 $ 5,050 $ 5,150 $ 4,650 $ $ $ 41,550 Hydrants New Hydrant Installation infill and update $ 1,200,000 $ 150,000 $ 150,000 $ 150,000 $ 150,000 $ 150,000 $ 150,000 $ 150,000 $ 150,000 $ 1,200,000 $ $ Annual Hydrant Replacement (100 per year) $ 2,400,000 $ 300,000 $ 300,000 $ 300,000 $ 300,000 $ 300,000 $ 300,000 $ 300,000 $ 300,000 $ 2,400,000 $ $ Subtotal Hydrants $ 3,600,000 $ 450,000 $ 450,000 $ 450,000 $ 450,000 $ 450,000 $ 450,000 $ 450,000 $ 450,000 $ 3,600,000 $ $ TOTAL $ 6,116,197 $ 561,450 $ 811,150 $ 822,667 $ 820,166 $ 813,166 $ 811,466 $ 696,166 $ 779,966 $ 5,802,797 $ 271,850 $ 41,550 Average Annual R&M $ 764,525 Average Annual GF Funded $ 725,350 9/14/2012

19 APPENDIX C FIRE MAJOR EQUIPMENT Major Equipment General Impact Fee NAFCR ARFF Apparatus/Equipment/Vehicles Cost Year Fund Eligible Funded Funded new Tech Team Thermal Camera $ 16, $ 16,700 $ 16,700 $ existing Haz Com Command Science Trailer $ 30, $ 30,000 $ 30,000 $ existing MDT replacements $ 54, $ 54,000 $ 54,000 $ existing Cardiac Monitor $ 25, $ 25,000 $ 25,000 $ existing Thermal Imager $ 6, $ 6,700 $ 6,700 $ existing 28 Air Pack upgrade kits $ 42, $ 42,000 $ 42,000 $ existing Replace 8 Staff vehicles $ 225, $ 225,000 $ 225,000 $ existing Replace Dive Boat $ 30, $ 30,899 $ 30,899 $ new Station # 14 Engine $ 641, $ 641,854 $ 641,854 IF Fund can pay GF back in 2019 new HazMat device to connect diverse radio freqs $ 27, $ 27,500 $ 27,500 $ existing Replace Extrication TNT Power Plant #1 $ 5, $ 5,400 $ 5,400 $ existing MDT replacments $ 54, $ 54,000 $ 54,000 $ existing Cardiac Monitor $ 25, $ 25,000 $ 25,000 $ existing Thermal Imager $ 7, $ 7,000 $ 7,000 $ existing 28 Air Pack upgrade kits $ 42, $ 42,000 $ 42,000 $ new Extractor $ 12, $ 12,000 $ 12,000 $ existing Replace 7 staff vehicles $ 158, $ 158,000 $ 158,000 $ new Tech Rescue Tent $ 5, $ 5,451 $ 5,451 $ new Tech Rescue Tractor with trailer $ 210, $ 210,000 $ 210,000 $ existing Haz Mat replace obsolete Gas monitor (essential) $ 65, $ 65,000 $ 65,000 $ existing Replace Extrication TNT Power Plant #2 $ 5, $ 5,500 $ 5,500 $ existing MDT's parts replacement $ 20, $ 20,000 $ 20,000 $ existing Replace two Cardiac Monitors $ 50, $ 50,000 $ 50,000 $ existing Replace two Thermal Imagers $ 12, $ 12,000 $ 12,000 $ new Station # 15 Engine $ 551, deferred for lack of impact fee revenue $ 100% eligible new Station # 15 Brush Truck $ 351, deferred for lack of impact fee revenue $ 100% eligible new/deficiency Additional Water Tender $ 468, $ 468,008 $ 468,008 $ new Arson investigation trailer $ 35, $ 35,000 $ 35,000 $ existing Replace Station # 1 Engine $ 551, $ 551,675 $ 551,675 $ existing Replace Station # 3 Engine $ 551, $ 551,675 $ 551,675 $ existing Replace PWC Trailer Dive Team $ 5, $ 5,500 $ 5,500 $ existing Replace Kawasaki Watercraft Dive Team $ 12, $ 12,899 $ 12,899 $ new Technical Rescue Tent $ 8, $ 8,729 $ 8,729 $ existing Haz Mat Equipment/Rpl WMD sub. analyzer $ 21, $ 21,000 $ 21,000 $ existing Copy Machine/Admin $ 20, $ 20,000 $ 20,000 $ existing MDT's parts replacement $ 20, $ 20,000 $ 20,000 $ existing Replace Cardiac Monitor $ 25, $ 25,000 $ 25,000 $ existing Replace two Thermal Imaging Cameras $ 12, $ 12,000 $ 12,000 $ existing Replace Station # 7 Engine $ 595, $ 595,809 $ 595,809 $ existing Replace Station # 4 Engine $ 595, $ 595,809 $ 595,809 $ existing Replace 4 staff vehicles $ 120, $ 120,000 $ 120,000 $ existing Replace Side Scan Sonar Dive Team $ 25, $ 25,000 $ 25,000 $ existing Replace Truck 7 (AllSteer) $ 1,438, $ 1,438,719 $ 1,438,719 $ new Technical Rescue Tent $ 9, $ 9,165 $ 9,165 $ new Gas Chromatograph Mass Spectrometer $ 100, $ 100,000 $ 100,000 $ existing MDT's parts replacement $ 20, $ 20,000 $ 20,000 $ existing Replace Cardiac Monitor $ 25, $ 25,000 $ 25,000 $ existing Replace an ATV $ 12, $ 12,000 $ 12,000 $ existing Replace Thermal Imaging Camera $ 8, $ 8,000 $ 8,000 $ existing Physical Fitness Cardio Equipment,Replace 10 $ 55, $ 55,000 $ 55,000 $ existing Training Videos Broadcast Equip, Various parts $ 15, $ 15,000 $ 15,000 $ new Command Trailer $ 125, $ 125,000 $ 125,000 $ existing Replace Heavy Rescue Truck $ 703, $ 703,353 $ 703,353 $ existing Replace 6 staff vehicles $ 140, $ 140,625 $ 140,625 $ existing Replace 3 NAFCR vehicles $ 84, $ 84,375 $ 84,375 $ $ 84,375 existing Replace Dive Van $ 175, $ 175,998 $ 175,998 $ existing Replace Hackney Tractor $ 172, $ 172,000 $ 172,000 $ existing Replace Hackney Trailer $ 500, $ 500,000 $ 500,000 $ existing Replace a Personal Water Craft / Dive $ 27, $ 27,000 $ 27,000 $ existing MDT's parts replacement $ 20, $ 20,000 $ 20,000 $ existing Replace 2 Cardiac Monitors $ 50, $ 50,000 $ 50,000 $ existing Replace a Thermal Imaging Camera $ 8, $ 8,000 $ 8,000 $ existing Physical Fitness Cardio Equipment,Replace 10 $ 55, $ 55,000 $ 55,000 $ existing Training Videos Broadcast Equip, Various parts $ 15, $ 15,000 $ 15,000 $ existing Replace Station # 6 Engine $ 694, $ 694,952 $ 694,952 $ existing Replace Station # 8 Engine $ 694, $ 694,952 $ 694,952 $ existing Replace 2 staff vehicles $ 90, $ 90,000 $ 90,000 $ existing Replace 1 NAFCR vehicle $ 30, $ 30,000 $ 30,000 $ $ 30,000 existing Replace Kawasaki Watercraft Dive Team $ 12, $ 12,899 $ 12,899 $ new/service level issue Additional Ladder Truck $ 1,944, $ 972,118 $ 972,118 $ 1,944,236 IF Fund can pay GF back after 2020, 100% eligible existing Replace Station # 5 Engine $ 750, $ 750,548 $ 750,548 $ existing Replace Station # 10 Engine $ 750, $ 750,548 $ 750,548 $ existing SCBA Replacement $ 1,877, $ 1,877,854 $ 1,877,854 $ existing Replace Sea Otter $ 25, $ 25,000 $ 25,000 $ existing Replace 3 staff vehicles $ 90, $ 90,000 $ 90,000 $ Station # 13 Engine $ 543, deferred for lack of impact fee revenue $ 100% eligible Station # 13 Brush Truck $ 284, deferred for lack of impact fee revenue $ 100% eligible Subtotal Apparatus/Vehicles/Equipment $ 15,559,330 $ 1,072,153 $ 330,900 $ 1,992,708 $ 2,882,066 $ 1,473,516 $ 3,341,921 $ 3,403,950 $ 1,062,118 $ 15,559,332 $ $ 114,375 $ not including deferred existing $ 413,599 $ 291,400 $ 1,274,249 $ 2,873,337 $ 1,239,351 $ 2,369,803 $ 3,403,950 $ 90,000 new $ 658,554 $ 39,500 $ 718,459 $ 8,729 $ 234,165 $ 972,118 $ $ 972,118 $ 1,072,153 $ 330,900 $ 1,992,708 $ 2,882,066 $ 1,473,516 $ 3,341,921 $ 3,403,950 $ 1,062,118

20 BOISE FIRE DEPARTMENT LONG RANGE CAPITAL IMPROVEMENT NEEDS CONSTRAINED BY IMPACT FEE CASH FLOW APPENDIX D FIRE CIP 8Year Totals Project Cost Year General Impact Fee NAFCR ARFF Fund Eligible Funded Funded CIPFacilities existing Station # 1 Remodel $ 400, $ 200,000 $ 200,000 $ 400,000 $ existing Station # 4 Add B/C $ 10, $ 10,000 $ 10,000 $ existing Station #16 (NACFR) remodel $ 360, $ 360,000 $ $ $ 360,000 expansion for service level Station #4 Land Purchase $ 60, $ 60,000 $ $ 60,000 $ expansion for service level Station # 4 Replacement (construction) $ 2,500, $ 2,500,000 $ 2,500,000 IF Fund can pay GF back $1,170,000 after 2020 existing Station # 9 Remodel $ 910, $ 910,000 $ 910,000 IF Fund can pay GF back $209,300 in 2016 existing Station # 10 Remodel $ 60, $ 60,000 $ 60,000 $ existing deferred need Storage Vehicle and Equipment $ 220, $ 220,000 $ 220,000 IF Fund can pay GF back $85,800 in 2017 existing Replace Fire Burn Tower $ 3,748, $ 800,000 $ 2,948,000 $ 3,748,000 $ existing Station #3 Remodel $ 50, $ 50,000 $ 50,000 $ existing Fire Shop Remodel $ 750, $ 750,000 $ 750,000 $ existing Station # 6 Remodel $ 300, $ 300,000 $ 300,000 $ existing Ridenbaugh Remodel $ 200, $ 200,000 $ 200,000 $ new Fire Training Additional Props $ 3,291, $ 3,291,000 $ 3,291,000 $ new Station #8 Land Purchase $ 500, $ 500,000 $ 500,000 $ existing Station #5 Replacement $ 2,500, $ 2,500,000 $ 2,500,000 $ existing Station #19 (ARFF) Replacement/#7 Colocation $ 5,000, $ 2,500,000 $ 2,500,000 $ 2,500,000 $ $ 2,500,000 new/annexation Station # 17 (Purchase from Whitney) $ 2,500, deferred for lack of impact fee revenue $ 100% eligible new Station # 8 relocation (Construction) $ 2,500, deferred for lack of impact fee revenue $ 100% eligible new Station # 13 (Construction) $ 2,300, deferred for lack of impact fee revenue $ 100% eligible Subtotal Facilities $ 20,859,000 $ 630,000 $ 200,000 $ 4,490,000 $ 4,048,000 $ 3,491,000 $ 3,000,000 $ 2,500,000 $ 2,500,000 $ 17,999,000 $ $ 360,000 $ 2,500,000 not including deferred existing $ 630,000 $ 200,000 $ 4,490,000 $ 4,048,000 $ 200,000 $ 2,500,000 $ 2,500,000 $ 2,500,000 $ 17,068,000 EXISTING new $ 3,291,000 $ 500,000 $ 3,791,000 NEW GF $ 270,000 $ 200,000 $ 4,490,000 $ 4,048,000 $ 3,491,000 $ 3,000,000 $ $ 2,500,000 $ 17,999,000 GF IF $ $ $ $ $ $ $ $ $ IF NACFR $ 360,000 $ $ $ $ $ $ $ $ 360,000 NACFR ARFF $ $ $ $ $ $ 2,500,000 $ 2,500,000 ARFF $ 630,000 $ 200,000 $ 4,490,000 $ 4,048,000 $ 3,491,000 $ 3,000,000 $ 2,500,000 $ 2,500,000 $ 20,859,000 TOTAL

21 City of Boise Fire Department Idaho Standards of Cover October SW Parkway Ave. Suite 3 Wilsonville Oregon

22 City of Boise Fire Department Idaho Standards of Cover 2011 Assembled by: Phil Kouwe Kent Green Mike Price

23 Introduction The following report serves as the Boise Fire Department Integrated Risk Management Plan: Standards of Cover document. The Center for Fire Accreditation International (CFAI) defines the process, known as deployment analysis, as written procedures which determine the distribution and concentration of fixed and mobile resources of an organization. The purpose for completing such a document is to assist the agency in ensuring a safe and effective response force for fire suppression, emergency medical services, and specialty response situation in addition to homeland security issues. Creating an Integrated Risk Management Plan: Standards of Cover requires that a number of areas be researched, studied, and evaluated. The following report will begin with an overview of both the community and the agency. Following this overview, the agency will discuss areas such as risk assessment, critical task analysis, agency service level objectives, and distribution and concentration measures. The agency will provide documentation of reliability studies and historical performance through charts and graphs. The report will conclude with policy recommendations. i

24 Table of Contents Introduction... i Table of Figures...iv Executive Summary... 1 Component A Description of Community Served... 3 Organization Overview... 3 Legal Basis of Existence... 3 Department History and Recent Milestones... 3 Recent Milestones... 6 Funding Sources and Restrictions... 7 Service Area Overview... 9 Component B Review of Services Provided...11 Services Provided...11 Fire Service...11 Rescue Service...11 Medical Service...12 Hazardous Materials Service...12 Wildland Fire Service...12 Swift water/dive Rescue Service...13 Aircraft Rescue Fire Fighting Service...13 Assets, Physical Resources, and Staffing...15 Component C Review of Community Expectations and Performance Goals...17 Community Outcome Goals...19 Component D Overview of Community Risk Assessment...20 Overall Geospatial Characteristics...20 Topographic and WeatherRelated Risks...23 Transportation Network...29 Physical Assets Protected...33 Hazard Vulnerability Analysis...40 Critical Tasking...42 Development and Population Growth...53 Current Population Information...53 Censusbased Growth Projections...57 Calls for Service...58 Workload by Time of Day...58 Workload by Day of Week...59 Workload by Month of Year...60 Workload by Response Area...61 Workload by Incident Count per Company...61 Workload by Incident Hours per Company...62 Workload Total Incident Volume Change Over Time...63 Workload Specific Incident Type Volume Change Over Time...63 Workload of Other Incident Type Volume Change Over Time...64 Workload Change Over Time by Response Area...65 ii

25 Component E Review of Historical System Performance...66 Reliability, Concurrency and Resource Drawdown...67 Recorded System Response Performance...70 Call Processing Time...70 Turnout Time...73 Travel Time...76 Total Fire Department Response Time...78 Component F Performance Objectives and Performance Measures...84 Dynamics of Fire in Buildings...84 Emergency Medical Event Sequence...87 People, Tools, and Time...88 Current Service Delivery Goals...89 CallHandling Performance Criterion...89 Turnout Time Performance Criterion...89 Distribution Performance Criterion...90 Current Distribution Capability Analysis...90 Concentration Performance Criterion...92 Current Concentration Capability Analysis...92 Component G Overview of Compliance Methodology...96 Component H Overall Evaluation and Recommendations to Policy Makers...99 Overall Evaluation...99 Recommendations Component I Appendices, Exhibits, and Attachments Risk Assessment Materials Analysis Reports iii

26 Table of Figures Figure 1: Summary of Services and Capabilities...14 Figure 2: Boise FD Resources...15 Figure 3: Boise FD Facility Deployment...16 Figure 4: Community Outcome Goals...19 Figure 5: Community Risk Assessment...21 Figure 6: Flood Risk...24 Figure 7: Wildfire Risk...25 Figure 8: Earthquake Risk...27 Figure 9: Travel Volume...29 Figure 10: Rail Lines...30 Figure 11: Bus Routes and Stops...32 Figure 12: 250 Foot Hydrant Reach...35 Figure 13: Known Hazardous Materials Locations...37 Figure 14: Hazard Specific Relative Risk...41 Figure 15: Relative Community Impact...41 Figure 16: Population Growth History...53 Figure 17: Population by Age...54 Figure 18: Housing by Occupancy...55 Figure 19: Population Density...56 Figure 20: Population Forecast Ada County...57 Figure 21: Workload by Incident Type, Figure 22: Workload by Time of Day, Figure 23: Workload by Day of Week, Figure 24: Workload by Month of Year, Figure 25: Workload by Week of Year, Figure 26: Workload by Response Area, Figure 27: Workload by Company, Figure 28: Incident Hours by Company Figure 29: Service Demand History, Figure 30: Service Demand by Incident Type History...64 Figure 31: 'Other' Workload History Categorization...65 Figure 32: Historical Workload by Response Area...65 iv

27 Figure 34: Incident Concurrency...67 Figure 35: Annual Incident Concurrency History...68 Figure 36: Unit Reliability...69 Figure 37: Call Processing Time for All Incidents, Figure 38: Call Processing Time for EMS Incidents, Figure 39: Call Processing Time for Fire Incidents, Figure 40: Processing Time for Other Incidents, Figure 41: Turnout Time NonFire Incidents, Figure 42: Turnout Time Fire Incidents, Figure 43: Turnout Time by Company for NonFire Incidents, Figure 44: Turnout Time by Company for Fire Incidents, Figure 45: Travel Time by Hour of Day, Figure 46: Travel Time by Response District, Figure 47: First Unit Arrival for EMS Incidents, Figure 48: First Unit Arrival for Fire Incident, Figure 49: Truck Arrival, Figure 50: Battalion Chief Arrival, Figure 51: TwoIn, TwoOut Arrival Figure 52: Effective Response Force Arrival, Figure 53: Fire Growth vs. Reflex Time...86 Figure 54: Fire Extension in Residential Structures...86 Figure 55: Cardiac Arrest Event Sequence...87 Figure 56: Initial Unit Travel Time Capability...91 Figure 57: Effective Response Force...93 Figure 58: Effective Response Force Trucks...94 Figure 59: Maintenance of Effort Compliance Model...96 Figure 60: Performance Objective Actual Performance Comparison Figure 61: Call Processing History First Arriving Unit Figure 62: Turnout Time History First Arriving Unit Figure 63: Travel Time History First Arriving Unit Figure 64: Response Time History First Arriving Unit Figure 65: Effective Response Force Assembly Performance v

28 Executive Summary The Boise Fire Department provides fire and emergency services to over 280,000 residents of the City of Boise and surrounding unincorporated territory, which is served by contract. The department utilizes a variety of resources to deliver a full range of services including: Fire suppression, including wildfire response Emergency medical services (basic life support) Hazardous materials emergency response Technical rescue (highangle, confined space, trench, extrication, water rescue) Aircraft firefighting and rescue Public assistance and education Fire prevention The department operates from 19 stations and currently staffs 16 engine companies, three ladder companies, one Aircraft Rescue and Firefighter (ARFF) unit and three battalion chiefs. The Boise Fire Department has established response performance objectives based on its current capabilities and resources. The objectives are: 1. For 90 percent of all calls for service received, Ada County Communications will notify and dispatch the appropriate units in less than 60 seconds. Call intake and dispatch personnel will continue to receive and relay vital information until all instructions have been issued or the initial unit arrives on scene. 2. For 90 percent of all suppression dispatches received, Boise Fire Department will be en route to the incident in 80 seconds or less, regardless of incident risk type. Additionally, for 90 percent of all medical/rescue dispatches received, Boise Fire Department will be en route to the incident in 60 seconds or less, regardless of the incident risk type. 3. For 90 percent of all emergency incidents regardless of risk, the first due unit shall arrive within six minutes total response time. The first due unit shall be capable of advancing the first line for fire control, starting rescue, or providing basic or advanced life support for medical incidents. 4. For high and maximum risk incidents, Boise Fire Department shall assemble an Effective Response Force (ERF) within eight minutes 90 percent of the time. This ERF shall be able to flow up to 3,500 gpm for firefighting or be able to handle a multiplecasualty emergency medical incident. BFD is currently not meeting its performance objectives. During 2010, callprocessing time was calculated to be 1:19, turnout time was calculated at 2:19, first unit arrival was calculated at 4:51, overall response time was calculated at 6:40, and the arrival of a full effective response force was calculated at 13:29. 1

29 The Boise Fire Department, recognizing that continued improvement of fire and emergency services capability greatly benefits the community, has established a response time performance goal that calls for the arrival of a fire department response unit within six minutes of the receipt of the alarm by the dispatch center on at least 90% of all emergency incidents. This goal has been established for planning purposes. The achievement of this goal is dependent on the department s ability to improve turnout time and find other methods by which to reduce overall response performance. Response workload, 16,517 alarms in 2009, has been ever growing and will continue to do so. The three intervals of response time, dispatch time, turnout time, and travel time, were evaluated individually to identify opportunities for response time performance improvement. 1. The dispatch center required more than the 1:19 to process and dispatch the incident. 2. Response personnel were unable to consistently meet the target of initiating response within 60 seconds of notification of an incident. 3. The time required for apparatus and personnel to travel to the incident consistently exceeded the target of four minutes. The most significant of these factors is the turnout time. As turnout time is reduced to the performance objectives, overall response performance will improve in kind. 2

30 Component A Description of Community Served Organization Overview Legal Basis of Existence Boise City was chartered on January 11, 1866, by an act of the Legislative Assembly of the Territory of Idaho according to the Charter and Revised Ordinances of Boise City, Idaho, In Effect April 12, Additionally, under Section 5, Paragraph 12, the Charter states that the City has the authority to provide for the prevention and extinguishment of fires and the preservation of property endangered thereby; to establish, alter and change fire limits, and regulate the erection of buildings and improvement within such fire limits, and the materials to be used therefore; to control and regulate the Fire Department, and provide by ordinance for the officers thereof, and the election of such officers by the members of such fire department or otherwise, and to define the duties of such officers, and to remove them from office for good cause shown. On November 16, 1871, an ordinance was passed to create the position of Fire Marshal, whose primary duty was to inspect stove pipes and flues. The Fire Marshall function was originally fulfilled by the City Marshall, a police officer. The Boise City Fire Department was officially organized on November 4, 1880, and the Department s boundary was officially fixed on March 16, Even though there was official recognition of the Fire Department, it was really an allvolunteer organization that had already existed for several years, operating outside of the City bureaucracy. Department History and Recent Milestones On January 24, 1876, a volunteer Fire Department was officially organized with 28 men. In April of the same year, the George Washington Stilz blacksmith shop at 619 Main Street was converted into the first firehouse. The onestory wood structure housed Engine Company 1 and Hook & Ladder Company 1. The firehouse burned to the ground on September 23, A temporary station was placed in another nearby blacksmith shop at 6th and Main Street. On December 15, 1883, a twostory, 3

31 twobay firehouse was dedicated The City Hall station at the site of the first firehouse. An office on the second floor was the home of Boise City Hall. In the spring of 1889, the City Hall firehouse was renamed Central Fire Station, which still stands today on the corner of 6th and Idaho Street. The Mayor and City Council proposed to eliminate the volunteer department in December of 1901 and establish a new fully paid Fire Department. The volunteers disbanded on June 2, The newly formed professional Fire Department had one parttime Chief, two parttime Assistant Chiefs, three Drivers, one Assistant Driver, one Engineer, one Hose man and a number of paypercall Stokers and Firefighters. Personnel operated the department from three firehouses: Central Fire Station, Idaho Street Station, and Resseguie Station. fulltime job. In July 1902, horses were added to the companies at Central Fire Station. The Mayor and City Council passed an ordinance requiring the Fire Chief to be a fulltime position in September E.B. Tage was hired as the first fulltime Fire Chief on November 1, 1903, replacing parttime Chief Major Liddell who did not want the 1912 brought expansion to the Department with an additional 17 firefighters and two stations. The new firehouses were built at 16 th and Front Street, which still remains as Fire Station 5, and McKinley & State Street Station, now a private residence after being relocated in Tough economic times in the 1920 s and 1930 s forced firefighters to take pay cuts and company staffing was reduced. From 1932 to 1938 the Department s focus was prevention. Educational programs and fire inspections were initiated in The first Fire Prevention week was observed in 1935 and a Fire Inspector position was created in Boise s population started to grow again in With a larger city population, the Department strived to modernize. A station was built at Kootenai Avenue and Federal Way. A Fire Combat training program was established in 1951 and the 4

32 first State Fire School was held in Radio systems were upgraded in 1957 at the Fire Alarm Dispatch office. On September 1, 1958, Boise Fire received an ISO rating of a Class 3 fire department. Major structure fires marked the decade of The Sonna Building, Tennyson Transfer/Storage, the H.B. Eastman mansion, Mode Department Store, Gem State Wholesale Drug, and SprouseRietz Variety Store were consumed by fire. In 1964, the Boise Fire Department expanded by building the sixth fire station on Liberty Street. Also in 1964, a threeplatoon schedule was established, increasing staffing to 107 firefighters. For the first time, the department s call volume exceeded 1,000 alarms. Boise Fire took over Aircraft Rescue and Fire Fighting (ARFF) at Boise Air Terminal in 1965 and built a new station at the Airport in The department was divided into five divisions: Administration, Fire Prevention, Combat, Training, and Alarm/Maintenance. Twelve new firefighters were hired to staff the new Fire Station 8 on Overland Road, which was obtained from the Whitney Rural Fire District. By the end of the decade, staffing was increased to 139 employees. The Department continued to grow and apparatus was added to the fleet in the 1970s. Fourteen pieces of equipment or vehicles were purchased from 1972 to The Department s second special team, Dive Rescue, was organized in 1970 to rescue victims from the Boise River. Firehouse 3 was relocated to Gekeler Lane in December The Idaho State Firefighter Collective Bargaining Act was passed into law in 1979 and Boise City recognized and bargained with the local firefighter union. The 1 percent Tax Reduction Initiative that passed the legislature in 1978 reduced the Department s budget by 14 percent in 1979, forcing layoffs and demotions throughout all divisions. In the early 1980s, Boise City reached 102,000 residents and the City suffered over $1 million in fire damages several years in a row noted fire damages exceeding $2.46 million due to 5

33 an arson spree. Personnel were rehired or new firefighters filled positions that were once eliminated with the 1 percent Initiative. April 1, 1984, the Fire Alarm Dispatch office was closed and the Ada County Sheriff s office assumed the duty of dispatching fire calls. By 1989, Boise Fire responds to over 7,000 calls annually. In March 1991, Fire Station #6 relocated to a new building on Franklin Road, and the Training Division moved into the old firehouse on Liberty Street. The Hazardous Materials Team was organized in 1992 as it was found that firefighters did not have the skills and training to deal with chemical spills. The Department grew to 13 stations when Station 10 was built on McMillan Road in April The Cole/Collister Fire District station on Emerald Street was sold to Boise Fire in 1996 and Station #12 located on Highway 21 was built in Also in 1998, Operations personnel began to receive training for technical rescues; however, the Technical Rescue Team was not officially recognized until Recent Milestones Boise Fire Department entered into a service contract with Whitney Fire District (WFD) on November 1, All Whitney firefighters became Boise City employees and the two firehouses were renumbered as Fire Station #21 on Overland Road and Fire Station 22 located on Amity Road. On January 23, 2006, the Department began operation of Advanced Life Support Engine Companies, staffing Engine 22 and Engine 8 with firefighter/paramedics. In 2007, Fire Station 21 was closed and apparatus and personnel were moved to new Station #14 on South Five Mile Road. On December 31, 2009, Boise Fire Department entered into a service contract with North Ada County Fire and Rescue District (NACFR). All NACFR firefighters became Boise City employees and the three fire stations were renumbered as Fire Station 16 on Glenwood Street, Fire Station #18 on Chinden Boulevard, and Fire Station 20 on Hidden Springs Drive. On March 16, 2010, Fire Station 17 was formally opened and staffed; the Hazardous Materials team moved all of its equipment from Fire Station 12 to this new location. Currently, Boise Fire Department has 294 employees of which 248 work in Operations, using 18 Fire Stations, an administrative office, and a maintenance facility. The Department s Operations personnel are all trained to provide fire protection and basic life support services. Additionally, numerous firefighters have received additional training and certifications to operate variously on the Department s Hazardous Materials Team, Airport Rescue Firefighting Team, Dive Rescue 6

34 Team, and Technical Rescue Team, as well as providing Advanced Life Support services out of four fire stations. The Boise City Fire Department still maintains an ISO Class 3 Rating. Funding Sources and Restrictions Boise Fire Department has limited flexibility to change its operations to meet dynamic regulatory, fiscal, economic, and political environments. The Department is confined and constrained by its affiliation to the City, the contracts it has with other fire districts, the contract with the labor union (IAFF Local 149), and the rules and regulations enacted by the State and Federal governments as well as the general economic environment. Boise Fire Department is not a standalone governmental entity with its own taxing authority and ability to set fees. As a department within Boise City, Fire operates within the confines of the City s revenue stream and budgetary rules and regulations and competes for dollars with the other City departments. The City and its departments operate on a twoyear budget cycle, with the budget being set in even years and minor revisions being made in the alternate years. Fire is responsible for developing its own twoyear budget which must then be presented to and approved by the Mayor and City Council. Budget approval does not occur in a vacuum, and Fire competes with fourteen other city departments for limited dollars. In FY 2009, Fire s budget accounted for about 22 percent of the General Fund expenditures. 1 Due to State Law, the City s tax revenue cannot increase by more than 3 percent per year plus any growth that has occurred. 2 Therefore any growth in Fire s budget above 3 percent will probably come at the expense of another department, or vice versa. The Fire department s budget for FY 2010 is $40,183, The Fire department is under contract with both WFD and NACFR to provide services. Generally, these contracts extend for oneyear periods and Boise Fire is limited in its ability to make financial adjustments once it is inside the contract period. 1 City of Boise FY 2009 Update Budget Executive Summary, management/budgetoffice/fy08fy09/fy09_update/04_executivesummary_update_final.pdf, p Idaho Statute, Title 63, Chapter 8, 63802(a). 3 City of Boise FY2010 TR1 Report, PDF/FinancialReports/PeriodicReports/FY2010/TR1Report.pdf, pp

35 Boise City and the International Association of Fire Fighters, Local 149, have a collective labor agreement which defines wages and working conditions for unionized employees. Within recent history the contracts have been for twoyear periods, which limits the Department s flexibility in making budgetary changes while within the contract period. The Southwest Idaho region has been privileged to be in part of one of the fastest growing areas of the United States. With this growth came increased budgets allowing for freedom to change the Department as needed to meet new challenges. However, since the recession of 2007, this region has been challenged by the loss of tax base due to layoffs, home foreclosures, and the changes in personal spending that followed. This new economic environment has decreased the flexibility that Boise City and the Fire Department have enjoyed for many years. 8

36 Service Area Overview The city of Boise City is the largest community in the most populous region in the state, located in the southwest quadrant of the State of Idaho. Boise City has been called the most remote urban city in the lower 48 states, being more than 300 miles from Salt Lake City, Spokane, Reno, Portland, and Seattle. Boise City is the center of business for the state, as well as the center of state government. As a successful but remote business and government center, Boise City has all aspects of business, specialty, commercial and residential infrastructure that may be found in any other large urban environment. This infrastructure includes: high rise, light and medium industry, warehousing, small and large retail, a Class C airport handling national flights, the State Capitol building, a zoo, museums, and rural to high density urban housing. Boise City meets the definition of a metropolitan area with a population over 200,000 and large areas where the population density exceeds 3,000 people per square mile. The latest estimates indicate that Boise is home to approximately 219,000 residents. As a center of employment, the daytime population can increase by an estimated 15,000 additional people. According to the 2000 Census, Whitney Fire District adds 23,072 residents and North Ada County Fire Rescue District includes 22,694 residents. Therefore, it is likely that Boise Fire Department is responsible for protecting more than 280,000 individuals over the three fire districts. Generally, governmental entities break population density down into four major groups: Rural, Suburban, Urban, and Metropolitan. Rural densities range from 0 to 999 people per square mile. Likewise, Suburban densities range from 1,000 to 1,999; Urban from 2,000 to 2,999; and Metropolitan from 3,000 and up. A fifth density, known as Wilderness, exists but is defined as any rural areas not readily accessible by road. For these purposes, Boise Fire will not use this designation. The Boise Fire service area consists of about 75 percent metropolitan, 9 percent urban, 9 percent suburban, and 7 percent rural densities. Population can be viewed in terms besides density. The most useful characteristics include general wealth and age. Just as with any territory, the citizens in the Boise Metro area encompass the very poor to the very wealthy. However, there aren t significant areas where one or another group congregates. More typically the differing economic groups are spread 9

37 throughout the entire service area. There are pockets, generally neighborhoods where one group might exist, but the scale of these neighborhoods tends to be small. 10

38 Component B Review of Services Provided Services Provided The Boise City Fire Department is an all hazards department capable of responding to any type of fire, EMS, rescue, or hazardous materials call. The department maintains a modern fleet of wellequipped apparatus, distributed throughout the service area, staffed with highly trained and motivated employees. Fire Service The Boise Fire department is appropriately staffed and equipped to respond to fire incidents in its service area. The typical first alarm configuration consists of three engines, one truck, and one battalion chief, providing 14 fire fighters. All Boise fire fighters are certified in the State to at least Fire Fighter II and many to the Fire Fighter III level. The fire department operates out of 19 stations, 17 equipped with traditional fire apparatus, one equipped with aircraft rescue apparatus, and one not staffed but equipped with reserve apparatus. Fire engines carry a minimum of three fire fighters, 500 gallons of water, and 1,000 feet of supply hose, almost 2,000 feet of attack hose in varying diameters, and a pump capable of delivering 1,500 gallons per minute at a minimum. Fire engines are operated out of Stations 1 through 12, 14, 16, 17, 18, and 22. The typical fire truck carries four fire fighters; a hydraulically powered elevating ladder or platform; and hydraulic, pneumatic, and electric heavy rescue tools. Fire trucks are currently operated out of Stations 5, 6, and 7. Boise Fire command vehicles are staffed by one command officer. Command officers operate out of three different locations: Station 1, Station 6, and Station 7. Rescue Service Rescue 7 is the Department s heavy rescue vehicle. The vehicle carries equipment capable of providing the means to perform high angle (above ground), low angle (below ground), and collapse rescues. The vehicle is not permanently staffed but is capable of being staffed by individuals who are members of the Technical Rescue team, certified as rescue technicians, 11

39 many of whom are located at Station 7 on either Engine 7 or Truck 7. Approximately 30 individuals maintain the Rescue certification, with about 10 on each shift. For a large or complex event, technicians may be pulled from other fire apparatus to supplement those already assigned to Station 7. Medical Service All of the Operations members of the Boise Fire Department are trained to perform as emergency medical technicians at the basic level (EMTB). These individuals are capable of providing basic medical care to patients with life threatening problems in the prehospital setting. All fire engines and trucks are fully staffed by EMTBs. In addition to the EMTBs, Boise Fire has a group of about 27 individuals trained to the paramedic level of service. The paramedics (EMTP) are capable of providing care to critical patients who are best served with invasive procedures such as IVs and airway intubations. Four fire engines are currently staffed with at least one paramedic at all times: Engine 8, Engine 12, Engine 14, and Engine 22. These particular stations were chosen because they are either on the periphery of the service area or are involved with a large number of critical patients who stand to benefit from reduced response times. Hazardous Materials Service Boise Fire Department operates one of the three Hazardous Materials Teams located in the State of Idaho and staffs a fully equipped response unit, Hazmat 17. The Team is located at Station 17 and cross staffed with personnel from Engine 17 who are trained to at least the Technician level of capability. In the event of a suspected or actual hazardous materials incident, these three individuals are supplemented with other fire fighters also trained to the Technician level but located on other fire apparatus. The Hazardous Materials team is staffed by approximately 30 individuals, with about 10 members on each shift. All other Operations personnel are trained to the HazMat Operations level, and may assist with certain hazardous materials incident tasks such as decontamination. Wildland Fire Service All Operations personnel in Boise Fire are trained to fight wildland fires. In addition to the basic equipment that each fire fighter is issued, the Department operates six brush fire engines. Generally, none of the engines is staffed except during times of high or extreme fire potential. 12

40 However, all brush engines can be cross staffed with personnel located at the same fire station. Currently, the brush apparatus are located at Stations 1, 8, 9, 12, 14, and 22. Swift water/dive Rescue Service The Boise Fire Department operates a dive and swift water rescue company out of Station 1. The Dive team operates a van equipped with dive gear that tows an inflatable dive boat and also operates other vehicles that tow a personal water craft. The Dive van is cross staffed with the three fire fighters located on Engine 1. In the event of a large or complicated rescue, additional fire fighters can be culled from other fire apparatus. Approximately 30 fire fighters are trained in dive and swift water rescue operations, with about 10 people assigned to each shift. Aircraft Rescue Fire Fighting Service Aircraft Rescue Fire Fighting services are provided by Boise Fire at the Boise Airport. The ARFF team operates three specialized apparatus out of Station 19, including two firefighting apparatus and one command vehicle. The station is staffed with five fire fighters all trained in aircraft rescue and in airport emergency operations. In addition to the five fire fighters at the station, additional fire fighters throughout the City are trained in ARFF operations and can be deployed from their fire apparatus to assist on large or complex incidents. There are a total of about 36 ARFFtrained fire fighters, with about 12 on each shift. The following figure provides a summary of the services and capabilities of Boise Fire Department. 13

41 Figure 1: Summary of Services and Capabilities Service Fire Suppression Emergency Medical Services Rescue Services Hazardous Materials Response Wildland Firefighting Aircraft Rescue and Firefighting (ARFF) Swift Water/Dive Rescue 17 engines General Resource/ Asset Capability 3 aerial apparatus 3 command response unit Additional automatic and mutual aid engines, aerials, and support units available 4 engines ALS equipped 13 engines BLS equipped 1 Heavy Rescue equipped with materials to perform high angle, low angle, and structural collapse rescues. 1 fully equipped hazardous materials response unit housed within Station 17 as a State of Idaho resource and available for response throughout the region 6 brush units located throughout the city and staffed during peak wildfire season 2 specialized ARFF units and one command unit located at Boise International Airport 1 specialized water/dive rescue unit along with one boat and two personal watercraft Basic Staffing Capability 248 suppressiontrained personnel Additional automatic and mutual aid firefighters available 27 certified paramedics 221 certified emergency medical technicians 30 certified vehicle rescue technicians 30 personnel trained to the technician level. 248 suppressiontrained personnel 36 ARFFtrained personnel 30 dive and swift watertrained personnel 14

42 Station Address Engine Truck Command Water Tender Brush Truck EMTB EMTP ARFF Dive HazMat Tech Standards of Cover Assets, Physical Resources, and Staffing The figure below provides a description of each of the fire station s resources, typical staffing counts, level of emergency medical service (basic or paramedic), and any specialty service provided (ARFF, Dive Rescue, Haz Mat, Technical Rescue). Figure 2: Boise FD Resources E Reserve St X X N Cartwright Rd 3 X S Gekeler Ln 3 X W Ustick Rd 3 X S 16 th St 3 4 X W Franklin Rd X W Commerce Av X X W Overland Rd 3 X N Sycamore Dr 3 0 X W McMillan Rd 3 X W Emerald St 3 X E Gowen Rd 3 0 X S Five Mile Rd X N Glenwood St 3 0 X S Cole Rd 3 X X W Chinden Bl 3 0 X W Lockheed Ln X W Hidden Springs Dr E Amity Rd 3 0 X The following figure illustrates the geographic distribution and deployment of the resources noted above. 15

43 Figure 3: Boise FD Facility Deployment 16

44 Component C Review of Community Expectations and Performance Goals The ultimate goal of any emergency service delivery system is to provide sufficient resources (personnel, apparatus, and equipment) to the scene of an emergency in time to take effective action to minimize the impacts of the emergency. This need applies to fires, medical emergencies, and any other emergency situation to which the fire department responds. Obtaining and understanding the desires and expectations of community stakeholders is an important first step. BFD is committed to incorporating the needs and expectations of residents and policy makers in the service delivery planning process. Although no formal community input was sought during the process of developing this document, it will become increasingly important to emphasize public process and interagency communication as the demand for service increases throughout the community. The input received will help guide the department s vision, planning efforts, policy decisions, and service delivery. The City of Boise is a densely populated urban environment. Based on this fact, the service delivery performance objectives discussed throughout the remainder of this report will be measured against urban standards. Urban settings present a number of challenges that are not present in other communities. With this, the fire department must determine what the expectations of the community are as well as what the acceptable level of risk is. Acceptable risk is defined as, the potential fire loss a community is willing to accept rather than provide resources to reduce such losses. 4 The process of setting response time performance objectives will include two primary considerations: 1. What are the expectations of the community in regard to initial response time of the fire department to an emergency incident? What is the public s perception of quality emergency service where response time is concerned? 2. What response time performance would be reasonable and effective in containing fire, reducing damage, and saving lives when considering the types of incidents and fire risks faced by the City of Boise? 4 Firewise communities

45 To initiate the process of considering the expectations of the customer, the historical travel time is examined from the incident records. Turnout time, the time for firefighters to begin responding after alarm, has an effect upon overall response time but does not nor should bear an effect upon station location analysis since it has no geographic impact. The most recent travel time performance at the 90 th percentile was determined to be 4 minutes 51 seconds. It is reasonable to initially consider a 4minute 30second travel time model at the 90 th percentile for future goals and objectives since it is the level of service currently experienced by the community at large. Throughout this process, it became clear that the expressed objectives of the, including the elected officials, the public, and the fire service providers was as follows: The fire department is recognized for doing an outstanding job. Current response time performance has been accepted as very good by the community and little or no negative response has been initiated by those using the fire department s services in regard to response time. Future planning should focus on retaining, at a minimum, the current levels of service received by the public in the face of additional growth, annexation, or redevelopment. Potential improvements in service delivery should at least be considered within reasonable financial prudence. 18

46 Community Outcome Goals General statements of outcome have been developed regarding the community s expectations of its fire department. These are described below. Figure 4: Community Outcome Goals Service Fire Suppression Emergency Medical Services Vehicle Extrication Technical Rescue Hazardous Materials Response Community Outcome Goal For all fire incidents, BFD shall arrive in a timely manner with sufficient resources to stop the escalation of the fire and keep the fire to the area of involvement. An effective concentration of resources shall arrive within time to be capable of containing the fire, rescuing atrisk victims and performing salvage operations, while providing for the safety of the responders and general public For priority emergency medical incidents, BFD shall arrive in a timely manner with sufficient trained and equipped personnel to provide medical services that will stabilize the situation, provide care and support to the victim and reduce, reverse or eliminate the conditions that have caused the emergency while providing for the safety of the responders. When warranted, timely transportation of victim(s) to appropriate medical facilities shall be accomplished in an effective and efficient manner. For all vehicle accidents where rescue of victims is required, BFD shall arrive in a timely manner with sufficient resources to stabilize the situation and extricate the victim(s) from the emergency situation or location without causing further harm to the victim, responders, public and the environment. For all technical rescue incidents, BFD shall arrive in a timely manner with sufficient resources to stabilize the situation and establish an action plan for the successful conclusion of the incident. Working in conjunction with additional specially trained and organized regional resources, BFD will perform the necessary rescue functions while providing for the safety and security of the responders, public and the environment. For all hazardous materials incidents, BFD shall arrive in a timely manner with sufficient resources to stabilize the situation and establish an action plan for the successful conclusion of the incident. For those incidents requiring only operationslevel containment, the initially responding BFD unit will perform the necessary functions while providing for the safety and security of the responders, public and the environment. For those incidents requiring more extensive technicianlevel functions, the initially responding BFD unit will call for and support additional specially trained resources to perform the necessary containment, stabilization, and/or cleanup functions while providing for the safety and security of the responders, public and the environment. 19

47 Component D Overview of Community Risk Assessment This section analyzes certain categorical risks that are present within the City of Boise that potentially threaten the persons and businesses within the community. These risks are identified to assist the Boise Fire Department in developing and evaluating mitigation plans should an emergency occur. Overall Geospatial Characteristics The fire service assesses the relative risk of properties based on a number of factors. Properties with high fire and life risk often require greater numbers of personnel and apparatus to effectively mitigate a fire emergency. Staffing and deployment decisions should be made with consideration of the level of risk within geographic subareas of a community. The community s risk assessment has been developed based on potential land use within its boundaries. These potential uses are found in the City s development plans. The following map translates future land use (potential scale and type of development within geographic subareas) to categories of relative fire and life risk. Low risk Areas zoned and used for agricultural purposes, open space, lowdensity residential, and other low intensity uses. Moderate risk Areas zoned for mediumdensity single family properties, small commercial and office uses, lowintensity retail sales, and equivalently sized business activities. High risk Higherintensity business districts, mixed use areas, highdensity residential, industrial, warehousing, and large mercantile centers. The following map illustrates how the aforementioned risks are distributed throughout the City of Boise s primary response areas. 20

48 Figure 5: Community Risk Assessment 21

49 The community contains mostly low and moderate risk properties. The predominance of highest risk is located in the City s downtown core and in certain nonresidential developments along the provincial highways. These properties include industrial, heavy commercial, midrise, mixeduse, institutional, and multifamily occupancies. Additional areas of special risk are created by the presence of facilities in which larger numbers of people congregate or where life risks are higher due to occupant s age, disability, or other conditions. Additionally, buildings that are of cultural importance or contain hazardous materials are also identified as target hazards by fire departments because they will require additional resources in the event of a fire. Most of the target risk facilities are located within the downtown area and along the major arterial routes. 22

50 Topographic and WeatherRelated Risks Weather Risk Boise is located on the northern edge of the Great Basin Desert and enjoys a typical high desert climate. Additionally, Boise has four distinct seasons unlike typical southern deserts which usually have only two seasons, winter and summer. On average Boise receives 12.2 inches of precipitation per year, about a third of which falls as snow. Generally, snows don t cause major issues as that it is rare to receive more than a few inches at a time. Likewise, rainfall is moderate and usually falls lightly and is over quickly, with typical amounts being less than 1/4 inch. However, the Boise City area is subject to weather changes occurring elsewhere that affect the Boise River watershed. The Boise River is managed by the Army Corps of Engineers, which must vary river flows to accommodate upstream water storage needs as well as runoff from the surrounding mountains. In years past river flows have been increased due to rapid melting of winter snow, leading to intentional localized flooding in areas around the river. Similar to the rest of the western United States, Boise has been in a drought for numerous years, with the net effect that summers are drier than normal, leading to the potential for more intense wildland fires. Being in the northern latitudes of the continent allows for great variation in temperatures, averaging the low 20 s in the winter (with record of 25 F) to the high 80 s in the summer (with record of 111 F). Winds typically are light in the morning and increase to 515 mph in the afternoons coming out of the northwest. High winds are possible when storm fronts move through the area, and wind speed can be from 2045 mph with record winds that have approached 70 mph. In Southwest Idaho precipitation and flooding are two facets of the same problem. Boise City is built astride the Boise River and a great amount of property is located in the flood zone. In the event of torrential precipitation in the Treasure Valley, all water will flow from the higher elevations to the Boise and Snake River channels. In the event of torrential precipitation or massive snow melt in the Boise River watershed, most water will flow into the different forks of the Boise River upstream of the three Boise River dams. 23

51 Boise has the advantage that there are three flood control dams upstream of the City. However, these dams cannot control all watershed events that are possible, as is described in the topography section of this document. Additionally, these dams are used for irrigation purposes, and therefore are actively managed. There is always a possibility that the managers will err and mistakenly release excess water or be forced to release water due to watershed events. The following image shows that Ada County has had one Presidential disaster declaration due to floods in the years 1965 through Figure 6: Flood Risk Wildfire Risk Fortunately, its urban setting and surrounding developed areas limit the most frequent threat to smaller brush fires within the City itself. Contract areas and areas on the fringe of the urban areas, however, do present a substantial wildfire risk during the dry season and BFD utilizes specialized equipment and other resources to combat this risk. The following map illustrates wildfire risk across the nation. Note that the entire state of Idaho is within an area of high wildfire risk. 24

52 Figure 7: Wildfire Risk Geographic/Geological Risk Certain geographic and geologic risks create situations that threaten the community or are physical barriers to street connectivity for emergency service response. Topography The Boise Fire Department is responsible for protecting about 129 square miles of territory, which consist of both flat and hilly terrain, numerous bodies of water, all in a desert environment. Boise City Fire Department is responsible for protecting Boise City, which currently extends over approximately 80 square miles of land, with the potential to grow another 48 percent to 118 square miles if all territory within the City s current Area of Impact were to be annexed. In addition to its responsibilities within City limits, Boise Fire Department has contracted to provide emergency services to the Whitney Fire District (WFD), an unincorporated area contiguous to the southern border and southwest corner of the City, adding approximately 16 square miles. Most of the WFD territory lies within the City s Area of Impact. 25

53 Boise Fire Department has also contracted to provide emergency services to the North Ada County Fire Rescue District (NACFR), which serves both an incorporated region (City of Garden City) contiguous to the west of downtown Boise, as well as unincorporated contiguous areas north and west of the city. The NACFR district adds an approximate additional 33 square miles of territory, some of which lies within the City s Area of Impact. The City occupies three distinct topographical zones, each with its own unique natural and manmade features. The original City was built just north of the Boise River near the outpost of Fort Boise, over what was then river bottom land. Over the last 140 years, the City has grown to encompass the foothills on the north side of the river and several benches of flat land to the south of the river. The river plain under the City is mostly flat and extends from the base of the Lucky Peak reservoir to the confluence with the Snake River approximately 50 miles to the west. Prior to the construction of Lucky Peak, Arrowrock, and Anderson Ranch dams, the river plain routinely flooded during the spring thaw. The river plain is punctuated by numerous ponds ranging from smaller than one acre to approximately 20 acres in size. Typical nonresidential vegetation includes cottonwood, willow and other deciduous trees, and occasional evergreens as well as desert scrub such as sage, juniper, and desert grasses. Occupancies are typical of most urban/suburban communities, ranging from rural, single family abodes to densely spaced, fire resistive high rise towers, made variously from every construction method and material available over the last 140 years. Access throughout the City is fairly generous in all directions except when attempting to cross the river, where there is a crossing about every mile on average. The foothills area of the community rises up to over 1,000 feet above the river plain, and is dissected by numerous canyons and valleys of various widths and elevations. Desert friendly vegetation is the norm on unoccupied lands. Typical plant life consists of sage, wild grasses, and juniper. The hillsides and tops are apt to be sparsely populated but have a few areas of moderately dense suburban style infrastructure. The valley bottoms tend to be more heavily occupied and that is generally where commercial occupancies are located in this zone. Generally, paved roads run along the bottoms of the canyons, with occasional dirt/gravel roads that ascend the hills providing access to individual homes or occasionally old quarries or cattle range. Access using street vehicles is limited to the paved streets, and offroad vehicles are 26

54 required to venture anywhere else. However, many times the hills are too steep for even offroad vehicles and travel is limited to onfoot only. Boise City has three distinct benches of flat land to the south of the river, each approximately 75 feet higher than the last. The vegetation on the benches resembles that of the foot hills, being mostly sage, grasses, and juniper. The vast majority of occupancies in the bench area are residential, with strip malls and big box style commercial occupancies located along the major roadways. Access throughout each bench is fairly easy; however, access from the river plain to the first bench and each bench in succession tends to be limited to major roads found about every mile. Fault lines Earthquakes are possible throughout the United States and Canada but certain areas have a higher probability of experiencing damaging ground motions caused by these quakes. The map below provides an idea of the likelihood of experiencing strong earthquake activity at various locations across the country. Figure 8: Earthquake Risk 27

55 As illustrated in the preceding map, a majority of the Idaho lies within zones of low to moderate earthquake risk. Boise lies within a zone of low risk. 28

56 Transportation Network Transportation corridors provide necessary access and egress for the City. These take the forms of roads, airports, and railway. The City s proximity to the international airport and a major interstate highway make the arterial roads and the railways within Boise essential to regional commerce. Roads The following map illustrates the annual average daily traffic counts according to the Idaho Department of Transportation within the region. Figure 9: Travel Volume This data only counts vehicles; it does not account for the number of passengers onboard. Additionally, some of these travelers may just be passing through at a given time or their final or interim destination may be within the City of Boise itself. Another element often overlooked that is essential to the safety of motorist and pedestrians are the traffic signals. Without these devices operational, such as during a power outage, significant increases in collisions are likely to occur. Intersections are the leading location for motor vehicle collisions in the United States. 29

57 Other dangerous intersections are near freeway interchanges as entering or exiting vehicles merge into other lanes for the maneuver. Rail There are several rail lines within the community. These consist entirely of freight lines. Only one line runs through Boise and most intersection of rail lines and roadways are by way of grade crossings. The risk of collision between automobiles that ignore the signal barriers at grade crossings or pedestrians walking on the tracks are constant factors within the community, but freight traffic is relatively light thereby reducing the overall risk of trainrelated incidents. Figure 10: Rail Lines 30

58 Airports Boise Airport is a joint civilmilitary, commercial, and general aviation airport located three miles from downtown Boise. The airport is operated by the City of Boise Department of Aviation and is overseen by an airport commission. The airport is used by the Idaho Air National Guard on the Gowen Field Area National Guard Base portion of the airport. The National Interagency Fire Center is based in the city of Boise and Boise Airport is used for logistical support. The U.S. Forest Service also uses the airport as a base for aerial firefighting air tankers during wildfire season. In 2008, the airport saw 3,185,006 passengers and ranked 75 th among U.S. airports in total passengers. 5 The airport covers an area of 5,000 acres at an elevation of 2,871 feet above mean sea level and maintains two active runways. During 2007, the airport experienced 184,023 aircraft operations, an average of 50.4 per day, of which 52 percent was general aviation, 23 percent commercial, 18 percent air taxi, and 7 percent military. The last reported incident at Boise Airport was on December 9, 1996, when a Douglas C47A cargo flight crashed on approach killing both crewmembers. Bus Valley Regional Transit (VRT) operates Valley Ride across the Boise region. Each bus line crosses municipal boundaries making specific tabulations within the City of Boise unavailable. However, ridership both increases and decreases the daily population of Boise and the buses operate within and through the city limits. The following is a closeup view of the VRT official map of bus routes through the City of Boise. 5 Boise Airport statistics from Boise Airport website. Accessed 6 December

59 Figure 11: Bus Routes and Stops 6 6 Courtesy Valley Ride. Accessed 7 December

60 Physical Assets Protected Government Buildings Essential to the response, mitigation, and preservation of a community during and after an emergent event are government buildings. These are buildings, which contain the equipment, staff, and archival records essential to the primary functions of government. They include most municipal, state, or federal offices, emergency services facilities, libraries, postal facilities, communication centers, and the Emergency Operations Center (EOC). Congregational There are certain identifiable places where larger congregations of people converge for one reason or another. Some of these types of facilities have been or will be discussed in other sections as appropriate. What follows are congregational facilities that do not necessarily fit into those other sections and are higher risk due to larger populations within the facility and the economic or community impact of a loss due to fire or some other event. Schools/Universities/Daycares There are several educational institutions within Boise. These are facilities which contain children and collegeaged population representing the future of the community and the region. Though primarily operational during the daytime hours, evening classes or athletic events creates an environment in which many persons can occupy the property at varying hours of the day and early evening. Houses of Worship Churches, mosques, and Judaic temples are all a part of the American mosaic. There are Houses of Worship of many varieties were located within Boise, most host activities throughout the weekday and evenings aside from scheduled worship services. Retail Centers Aside from thriving downtown commercial centers, the autodependent retail centers have proliferated throughout the landscape. From department store anchored strip malls to the enclosed pedestrian variety; these retail centers attract a large amount of shopping visitors to their properties, especially during winter holidays. 33

61 Not all congregational facilities can be mapped either because of the lack of data or due to the number of the facilities themselves. Nonetheless, buildings, which are employment centers, social halls, and nightclubs, have a higher population density than in residential areas and contribute significantly to the economic wellbeing of the community. High Density Housing Although most housing is in the form of single family residences, higher density housing such as condominiums, townhouses, and apartments does exist with Boise. Additionally, there is a certain amount of public housing for low income persons that also have higher population densities. Included with these are shelters that serve the homeless, women s protective services, student dormitories, and other group quarters such as in mentallychallenged community. These types of housing have a higher risk for the loss of life and correlate with higher rates of multiple emergency responses compared to single family residential areas. In this example, prisons, jails and detention centers are also included within Boise. Medical Facilities Caring for the sick and infirmed is every community s moral responsibility. However, when an emergency threatens the facilities that care for them or the community at large, this population must be assisted to reach a safe place that can continue to care for them. Identifiable facilities include hospitals, clinics (such as dialysis centers), nursing homes, and assisted living facilities. Additionally, the community should be aware of those who are infirmed or disabled that live in residences throughout the city. Other Critical Infrastructure In this section, other types of critical infrastructure to a community are discussed for the fire department to plan a response and mitigation plan in the event of an emergency. Water Distribution The most obvious element of this system that affects the fire department is the hydrants. Additionally the water supply pipes, pumps, and facilities are essential to not only supplying water to suppress fires but the drinking supply and cooling processes in manufacturing. As this water is utilized, the waste or runoff into the sewer pipes, pumped along, and processed in a wastewater facility are also essential to the ecological and human health needs of a community. The following map illustrates the City of Boise s 250foot hydrant reach capability. 34

62 Figure 12: 250 Foot Hydrant Reach 35

63 Communications While it may be obvious that emergency communication centers and the transmitting and receiving equipment are essential, there are other communication facilities and equipment that are equally essential to the community and government operations. These are the central communication offices and lines of local telephone providers. Internet service providers, along with wireless cellular communication providers, provide essential communication capabilities for the community as well as emergency personnel through their facilities and equipment. Energy Previously discussed community services, from communications, to traffic signals, to normal operations require the use of energy. Whether it is fuel distribution and storage tanks or natural gas pipelines and regulator stations, the community is dependent upon energy sources. One of the most important energy elements is the electrical distribution infrastructure. This includes the generation facilities, the transmission lines, and the substations that are located across every community in the nation. Bridges These structures provide essential crossings and unimpeded travel across physical and manmade barriers. In the event of an emergency, these are crucial along evacuation routes as well as for aid supplies to be brought into the area. Military Installations Any military installation houses and maintains equipment and personnel essential to the area during an emergency and for common defense of the nation. This can take the form of large base operations to a local armory of the National Guard. The City of Boise is home to the Idaho Air National Guard, 124 th Wing, which includes two flying squadrons and 12 support units based at Gowen Air National Guard Base at Boise Airport. The 124 th Wing is host to several other military units, including the Idaho Army National Guard as well as reserve units of the Army, Navy, and Marines. Commercial Food & Cargo Distributors These suppliers and their storehouses are critical not only during an emergency for aid but to the everyday distribution of needed goods and food products to sustain a community. 36

64 Structural The protection of property in most cases refers to a building and its contents. This has been the basic mission of the fire department since its inception. Certain buildings, their contents, functions, and size are more difficult to fight a fire and require special equipment, operations, and training. Hazmat Preplanning Buildings that have been identified as containing hazardous materials can create a dangerous environment during a spill, rupture, or fire to the community as well as the firefighters. Special equipment such as clothing and detectors, along with specialized training are necessary to successfully mitigate a hazardous materials incident. The following map pinpoints locations where hazardous materials are known to be present. Figure 13: Known Hazardous Materials Locations 37

65 BFD operates within Region IV of the Idaho Bureau of Homeland Security, Hazardous Materials Section and provides response to hazardous materials incidents throughout the region. MultiStoried Buildings Buildings that are above two floors pose a special risk in an emergency. Fire on higher floors requires an aerial fire truck to be able to deliver water into the building that does not have standpipe infrastructure. Additionally, victims trapped on higher floors may be in need of rescue by its tall ladder. Large Square Footage Buildings A high story building typically has more square footage, but a building does not necessarily have to be multifloored to have a large area. Examples include warehouses, malls, and large box stores. A larger square footage building also requires the aerial truck to deliver water across a larger surface area in order to suppress a fire. Needed Fire Flow Fire flow is the amount of water required to effectively extinguish a fire in an efficient manner. Required fire flow will vary depending on the construction materials of the structure in question, as well as the contents found within the structure. To develop appropriate fire flow requires a source of water, the means to move the water, and fire hoses and appliances to deliver the water where it is needed. Boise Fire relies on an extensive hydrant system as its primary water source. There are over 10,650 hydrants available in the Boise Fire service area. Typical hydrants in the Boise area are able to provide between 1,000 and 5,000 gallons of water per minute (GPM), with the average flow being 2,273 GPM. Hydrants are generally spaced about 500 feet apart or less, depending on the era of installation and the fire code in effect at the time. Currently the City of Boise has adopted the International Fire Code (IFC), 2006 edition. There are areas within the Boise Fire service area where hydrant water is not within reach. These dry areas came to exist because the fire code at the time allowed no hydrants or the area had no city water service or the development fell outside any jurisdiction at the time it was constructed. The Department has implemented a longrange plan to install infill hydrants and budgets $175,000 per year for installation and repair. 38

66 Until such time as there are no hydrant voids in the community, the Department has developed several strategies to deal with dry areas: large diameter hose, hard suction hose for drafting purposes, and water tender operations. Every fire engine carries 1,000 feet of fiveinch supply hose. The two WFDowned fire engines (E14, E22) carry 20 feet of hard suction hose for drafting from canals or other static water sources. The department water tender, WT14, carries 3000 gallons of water along with portable storage devices to hold the water for drafting. After defining what amount of water is available, it is prudent to determine what amount of water might be needed. There are numerous equations that define required fire flow. For example, a typical residential structure with one room of 10 x 12 x 8 feet dimensions would require 96 gallons of water per minute (GPM)one hose line requiring a minimum of two firefighters. A fully involved twostory, single family dwelling of 2000 square feet (the NFPA 1710 standard structure) would require about 360 GPMtwo hose lines, each about 200 GPM, requiring at least four fire fighters. To extinguish a fully involved floor of a typical highrise building at approximately 130 x 130 x 10 feet would require 1,690 GPM. A fully involved, bigbox type warehouse store of approximately 230 x 230 x 16 feet would require around 8,464 GPM. The fire apparatus used by Boise Fire are rated at pumping 1,500 GPM at draft, meaning the pump can deliver 1,500 GPM while pulling the water out of a nonpressurized location like a pond or water tank. If the apparatus uses a hydrant as a water source, the capacity of the pump will increase because it is being helped by the water pressure within the hydrant. It should be noted that the hydrant reach maps do not include NACFR hydrants, but the hydrants exist and are in the process of being entered into the hydrant database. As noted, hydrants are generally spaced 500 feet apart; therefore a supply hose stretch should not exceed 250 feet (the center between two hydrants). Generally, the community service area is well covered by the hydrant system. However, every response area has some streets lacking full hydrant coverage. Where hydrant gaps/voids exist, water supply can usually be established with a longer supply hose stretch. The only downfall to any stretch of hose is that the hose will block access to areas it crosses, or force apparatus to detour around the hose lay. 39

67 Terrorism The fact that Boise serves as the capital for the state of Idaho as well as its airport raises the level of concern of possible terrorist activity. Most of the previous categorized risks in the community are potential targets for such activity. The Fire Department needs to be vigilant in its training and preparedness in the event one or more coordinated acts of terror occur in the greater Boise region. Hazard Vulnerability Analysis Based on the narrative descriptions of the various hazards commonly found throughout the Boise Fire Department primary response area, a numerical ranking of community hazards has been developed. Historical incident data as well an assessment of the community and its vulnerabilities was used to numerically rate each potential hazard. Community hazards were segregated into broad categories as follows: Structure Fires Nonstructure Fires EMSMedical Assist Rescue Hazardous Materials Natural Hazards Technological Hazards Human Hazards Within each of the aforementioned categories, more specific hazards were identified and a probability score between zero (representing Not Applicable ) and three (representing High ) was assigned to each. A severity score was then developed for each of the subcategories using the same scale for impact and a reverse scale for preparedness and response. The overall scores were then used to generate a relative risk score based on what percentage of each risk applied to Boise. Complete documentation of categorical scoring can be found in the appendix of this document. Based on the completed hazard vulnerability analysis, the following representation of relative community risk was developed. 40

68 Relative Impact on Community Relative Threat to Community Standards of Cover Figure 14: Hazard Specific Relative Risk 100% 90% 80% 70% 60% 50% 40% 30% 20% 10% 0% Structure Fires NonStructure Fires EMSMedical Assist Rescue Hazmat Natural Hazards Technological Hazards Human Hazards Nonstructural fire incidents represent the highest level of relative risk within Boise, followed by hazardous materials, structure fires, and rescue incidents. This correlates to the high volume of nonfire and other incidents to which the department responds. Although the probability of each type of incident is relatively low, the potential severity of each incident is somewhat higher, as illustrated in the following figure. Figure 15: Relative Community Impact 100% 90% 80% 70% 60% 50% 40% 30% 20% 10% 0% Probability Severity As can be seen from the preceding figure, the relative community impact is somewhat higher than the potential probability. In other words, although incident probability is relatively low, when an incident occurs, the potential community impact is relatively high in comparison. 41

69 Critical Tasking BFD service area has a densely populated urban environment and, as such, contains an elevated number, density, and distribution of risk. The fire department should have the resources needed to effectively mitigate the incidents that have the highest potential to negatively impact the community. As the actual or potential risk increases the need for higher numbers of personnel and apparatus also increases. With each type of incident and corresponding risk, specific critical tasks need to be accomplished and certain numbers and types of apparatus should be dispatched. This section considers the community s identified risks and illustrates the number of personnel that are necessary to accomplish the critical tasks at an emergency. Tasks that must be performed at a fire can be broken down into two key components: life safety and fire flow. Life safety tasks are based on the number of building occupants, and their location, status, and ability to take selfpreservation action. Life safety related tasks involve the search, rescue, and evacuation of victims. The fire flow component involves delivering sufficient water to extinguish the fire and create an environment within the building that allows entry by firefighters. The number and types of tasks needing simultaneous action will dictate the minimum number of firefighters required to combat different types of fires. In the absence of adequate personnel to perform concurrent action, the command officer must prioritize the tasks and complete some in chronological order, rather than concurrently. These tasks include: Command Water supply Scene safety Pump operation Search and rescue Ventilation Fire attack Backup/rapid intervention Critical task analysis also applies to nonfire type emergencies including medical, technical rescue, and hazardous materials emergencies. Numerous simultaneous tasks must be completed to effectively control an emergency. The department s ability to muster needed numbers of trained personnel quickly enough to make a difference is critical to successful incident outcomes. 42

70 BFD has developed the following Critical Task analyses for various incident types. Further it has defined, based on current unit staffing levels, the number and type of apparatus needed to deliver sufficient numbers of personnel to meet the critical tasking identified. Review of the Critical Task analysis indicates that all are in keeping with industry standards and provide the minimum number of personnel needed for effective incident operations. Critical tasks are those activities that must be conducted in a timely manner by firefighters at emergency incidents in order to control the situation. The fire department is responsible for assuring that responding companies are capable of performing all of the described tasks in a prompt, efficient, and safe manner. Fires Critical tasking for fire operations is the minimum number of personnel to perform the tasks required to effectively control a fire in the listed risk category. Major fires (beyond first alarm) will require additional personnel and apparatus. Emergency Medical Critical tasking for emergency medical incidents is the minimum number of personnel to perform the tasks required to support the identified strategy based on the department s adopted medical protocol. Aircraft Incident, Minor Command 1 Communications * Extrication 4 Safety 1 Attack Line 1 2 Attack Line 2 2 Tender Operator 1 Patient Care 6 Division 1 Total 18 Apparatus Required 2 engine, 1 truck, 2 arff, 2 command, 1 safety, 1 tender 43

71 Aircraft Incident, Major (note: attack lines are ARFF units with 2 FF) Command 1 Communications * Extrication 12 Safety 2 Attack Line 1 2 Attack Line 2 2 Backup Line 3 Search / Rescue 6 Tender Operator 1 Patient Care 6 Division 3 Total 38 Apparatus Required 5 engine, 3 truck, 2 arff, 4 command, 2 safety, 1 tender Emergency Medical Service Command 1 Communications * Patient Care 2 Total 3 Apparatus Required 1 engine Fire, NonStructure, Low Risk Command * Communication * Pump Operator 1 Attack Line 1 2 Total 3 Apparatus Required 1 engine 44

72 Fire, Structure, With Hydrants Command 1 Communications * Safety 1 Pump Operator 1 Water Supply 1 Forcible Entry * Attack Line 1 2 Backup Line 2 Ventilation 2 Utilities * Rapid Intervention Team 3 Search / Rescue 2 Total 15 Apparatus Required 3 engine, 1 truck, 1 command, 1 safety Fire, Structure, Without Hydrants Command 1 Communications * Safety 1 Pump Operator 1 Water Supply 1 Forcible Entry * Attack Line 2 Backup Line 2 Ventilation 2 Utilities * Rapid Intervention Team 3 Search / Rescue 2 Tender Operator 1 Total 16 Apparatus Required 3 engine, 1 truck, 1 command, 1 safety, 1 tender 45

73 Fire, Structure, Residential, Rescue Mode Command 1 Communications * Safety 1 Pump Operator 1 Water Supply 1 Forcible Entry * Attack Line 1 2 Backup Line 2 Ventilation 2 Utilities * Search / Rescue 4 Patient Care 3 Total 17 Apparatus Required 4 engine, 1 truck, 1 command, 1 safety Fire, Structure, High Rise / Target Hazard Command 1 Communications * Safety 1 Pump Operator 1 Water Supply 2 Forcible Entry 2 Attack Line 1 6 Attack Line 2 6 Ventilation * Rapid Intervention Team 3 Search / Rescue 4 Lobby 1 Building Systems 2 Staging 1 Division 1 Total 31 Apparatus Required 7 engine, 2 truck, 2 command, 1 safety Fire, Vehicle, No Exposures Command * Communications * Pump Operator 1 Attack Line 1 2 Total 3 Apparatus Required 1 engine 46

74 Fire, Vehicle, With Exposures Command 1 Communications * Safety 1 Pump Operator 1 Water Supply 1 Forcible Entry * Attack Line 1 2 Backup Line 2 Ventilation 2 Utilities * Rapid Intervention Team 3 Search / Rescue 2 Total 15 Apparatus Required 3 engine, 1 truck, 1 command, 1 safety Fire, Wildland, Minor Command 1 Communications * Safety 1 Pump Operator 2 Attack Line 1 2 Attack Line 2 2 Tender Operator 1 Total 9 Apparatus Required 1 engine, 2 brush, 1 command, 1 safety, 1 tender Fire, Wildland, Minor, Structures Threatened (note: less than five structures) Command / 1 Communications Communications * Safety 1 Pump Operator 4 Attack Line 1 2 Attack Line 2 2 Structure Protection 13 Tender Operator 2 Division 2 Total 27 Apparatus Required 6 engine, 1 truck, 4 brush, 2 command, 1 safety, 1 tender 47

75 Fire, Wildland, Major Command 1 Communications * Safety 1 Pump Operator 4 Attack Line 1 2 Attack Line 2 2 Attack Line 3 2 Attack Line 4 2 Tender Operator 2 Division 2 Total 18 Apparatus Required 2 engine, 4 brush, 2 command, 1 safety, 1 tender Fire, Wildland, Major, Structures Threatened (note: less than five structures) Command 1 Communications * Safety 2 Pump Operator 4 Attack Line 1 2 Attack Line 2 2 Attack Line 3 2 Attack Line 4 2 Structure Protection 13 Tender Operator 2 Division 2 Total 32 Apparatus Required 6 engine, 1 truck, 4 brush, 2 command, 1 safety, 2 tender Fuel Spill, Minor Command 1 Communications * Pump Operator 1 Attack Line 1 1 Total 3 Apparatus Required 1 engine 48

76 Fuel Spill, Major Command 1 Communications * Safety 1 Support 8 Pump Operator 1 Attack Line 1 2 Total 13 Apparatus Required 4 engine, 1 command, 1 safety Hazardous Materials Incident Command 1 Communications * Safety 2 Decontamination 7 Science 2 Entry Team 2 Backup Team 2 Group Supervisor 1 Air Monitor 2 Total 19 Apparatus Required 1 haz unit, 3 engine, 1 truck, 1 command, 2 safety Motor Vehicle Accident, Minor Command 1 Communications * Safety 1 Patient Care 2 Total 4 Apparatus Required 1 engine, 1 safety Motor Vehicle Accident, Major Command 1 Communications * Safety 1 Support 4 Patient Care 6 Total 12 Apparatus Required 2 engine, 1 truck, 1 command, 1 safety 49

77 Odor of Natural Gas in a Structure Command 1 Communications * Safety 1 Pump Operator 1 Water Supply 1 Forcible Entry * Attack Line 1 2 Backup Line 2 Ventilation 2 Utilities * Rapid Intervention Team 3 Search / Rescue 2 Total 15 Apparatus Required 3 engine, 1 truck, 1 command, 1 safety Odor of Smoke Command 1 Communications * Support 2 Total 3 Apparatus Required 1 engine Smoke in a Structure Command 1 Communications * Safety 1 Pump Operator 1 Water Supply 1 Forcible Entry * Attack Line 1 2 Backup Line 2 Ventilation 2 Utilities * Rapid Intervention Team 3 Search / Rescue 2 Total 15 Apparatus Required 3 engine, 1 truck, 1 command, 1 safety 50

78 Technical Rescue Incident (note: support includes edge, main/descent, belay, and technical safety) Command 1 Communications * Safety 2 Support 4 Group Supervisor 1 Total 8 Apparatus Required 1 tech rig, 1 engine, 1 command, 1 safety Water Rescue, Ice Command 1 Communications * Safety 1 Support 4 Entry Team 2 Backup Team 2 Group Supervisor 1 Dive Tender 1 Total 12 Apparatus Required 1 dive unit, 1 engine, 1 truck, 1 command, 1 safety Water Rescue, Still Water Command 1 Communications * Safety 1 Support 4 Entry Team 2 Backup Team 2 Group Supervisor 1 Dive Tender 1 Total 12 Apparatus Required 1 dive unit, 1 engine, 1 truck, 1 command, 1 safety 51

79 Water Rescue, Swift Water Command 1 Communications * Safety 1 Support 6 Entry Team 3 Group Supervisor 1 Dive Tender * Total 12 Apparatus Required 1 dive unit, 1 engine, 1 truck, 1 command, 1 safety 52

80 Development and Population Growth Current Population Information Boise City meets the definition of a metropolitan area with a population over 200,000 and large areas where the population density exceeds 3,000 people per square mile. The following figures provide some general demographic information on population and housing for the City of Boise. This section begins by examining the historical growth rate of population this decade as well as the previous one. Figure 16: Population Growth History 7 250, , , ,000 50, % 1.20% 1.00% 0.80% 0.60% 0.40% 0.20% 0.00% 0.20% 0.40% Population Growth Rate The average estimated annualized population growth rate in the previous figure from the year 1990 to 2009 is 0.5 percent but reached as high as 1.1 percent between 2000 and Projections of population growth due to development are discussed later in this section. The following chart distributes the population into age groups based on available census information for U.S. Census Bureau. 53

81 Figure 17: Population by Age 5% 5% 7% 11% 28% 15% 29% Age <5 5 to to to to to and up Approximately 10 percent of the population is 65 years of age or older and 7 percent is under 5 years of age, placing a total of 17 percent of the area s population within the age groups that are at the highest risk for fatalities in residential fire and general medical/rescue incidents. It is also worth noting that the number of residents approaching the age of 50 is increasing, a change that can be expected to create a significant increase in service demand for emergency medical incidents. The following chart examines the housing by occupancy types in the area; higher rentals and vacancies can signal negative economic conditions (except in university and resort areas), which correlate with higher incidences of emergency incidents. 54

82 Figure 18: Housing by Occupancy 5% 26% 69% Owner Occupied Renter Occupied Vacant The high level of owneroccupied housing indicates a stable economic environment that would attract higher income wage earners. It is also useful to assess the distribution of the population within the area, since there is a direct correlation between population density and service demand. The following map displays the population density of the region, based on information from the 2000 Census. 55

83 Figure 19: Population Density 56

84 Censusbased Growth Projections The population within Ada County has increased only slightly this decade but local planning officials anticipate that additional growth may continue at a higher rate than previously experienced. In developing forecasts for population growth, ESCI typically develops a forecast based on several years of census experience. For the City of Boise and Ada County, ESCI used U.S. Census Bureau data from 2000 through 2009 to create a mathematical forecast through the year In addition, information obtained from Blueprint Boise was adjusted based on an extrapolated rate of population growth. Population figures used by Blueprint Boise have historically lagged slightly behind those posted by decennial census estimates but are provided here to generate a potential range of population growth. Figure 20: Population Forecast Ada County 700, , , , , , , Census 416,40 435,64 454,88 474,12 493,36 512,59 531,83 551,07 570,31 589,54 Blueprint Boise 413,51 432,28 451,05 469,82 469,01 495,89 509,34 523,13 536,96 561,15 It is not the intent of this study to be a definitive authority for the projection of future population in the service area but rather to base recommendations for future service delivery needs on a reasonable association with projected service demand. Since it is known that the service demand for emergency agencies is based almost entirely on human activity, it is important to have a populationbased projection of the future size of the community. While variations in population projections have been discussed here, one thing that can be certain is that the area will continue to be an emergency service provider to a growing population, likely reaching a total population of over 500,000 by Planning should begin now to maintain the resources needed to meet the continuing demand for services. 57

85 Calls for Service There are many ways to look at the workload that Boise Fire Department is currently experiencing. Workload can be described by what type of work is being performed, when the work is occurring, where the work is occurring, how often it happens, and how long it takes to perform. The following charts depict the workload information from The Department is an allhazard organization that will respond to any reported incident within its jurisdiction. As can be seen from the chart below, approximately twothirds of Boise Fire s workload is emergency medical servicerelated. 0.6% 2.2% 12.6% Figure 21: Workload by Incident Type, 2009 Workload by type of incident % 0.2% 0.0% 3.8%0.3% Fires Overpressure, Ruptures, Explosions EMS/Rescue Hazardous Condition Service Calls Good Intent Calls False Alarms & False Calls 65.3% Severe Weather or Natural Disaster Other Type of Incident Workload by Time of Day Another way to evaluate workload is by observing the timing of the incidents. The following chart describes incident volume by the time of day that it occured for the year As would seem likely, most incident volume occurs from 8:00 a.m. through about 11:00 a.m. which coincides with the times when most people are active. However, note that approximately 20 percent of all call volume occurs from midnight through 7:00 a.m. 58

86 12 AM 1 AM 2 AM 3 AM 4 AM 5 AM 6 AM 7 AM 8 AM 9 AM 10 AM 11 AM 12 PM 1 PM 2 PM 3 PM 4 pm 5 PM 6 PM 7 PM 8 PM 9 PM 10 PM 11 PM 2.1% 1.8% 1.9% 2.4% 3.2% 3.2% 3.1% 3.3% 4.0% 4.7% 4.9% 5.0% 5.4% 5.2% 5.4% 5.3% 5.8% 5.3% 4.8% 4.4% 4.0% 3.9% 5.0% 6.1% Standards of Cover 7.0% Workload by Time of Day Figure 22: Workload by Time of Day, % 5.0% 4.0% 3.0% 2.0% 1.0% 0.0% Workload by Day of Week Another aspect of workload timing is reviewing the incident volume by the day of the week in which it occurred. For 2009 it is interesting to note that while the volume varies less than 1.2 percent from the slowest to the busiest days, Wednesday is statistically the busiest day of the week. Figure 23: Workload by Day of Week,

87 Workload by Month of Year When viewing workload throughout the year, it is interesting to note that December is the busiest month of the year. Because months do not have an equal number of days, it is helpful to view the year in a weekbyweek format. Figure 24: Workload by Month of Year, 2009 Figure 25: Workload by Week of Year,

88 Workload by Response Area To best understand how workload affects the organization, it is instructive to see where the incidents are occuring. While not making a determination on whether there is a work overload in one district or another, it can be seen that the busiest districts are about four times as busy as the quietest districts. Please note that Stations 16, 18, and 20 are not reflected in the 2009 data as they were not part of BFD s primary response area in Station 17 is shown because its territory was covered by BFD but included as parts of other response areas. The chart below shows data for the full year 2009 and the first six months of data for 2010, to allow for comparison of the NACFR consolidation. Even though the date range is smaller, it can be seen that two of the districts now covered by Stations 16 and 18, are fairly busy. Figure 26: Workload by Response Area, Workload by Incident Count per Company The following chart helps visualize the actual number of incidents to which each engine and truck company responded. 61

89 Figure 27: Workload by Company, 2009 Workload by Incident Hours per Company The chart below shows the total amount of time committed by each unit for the responses listed in the preceding chart. Figure 28: Incident Hours by Company

90 Workload Total Incident Volume Change Over Time It is instructive to see how workload has changed for the department over the last nine years (the limit of readily accessible historical data). The following chart depicts the incident counts for each year and shows the trend line derived from the data. Figure 29: Service Demand History, Workload Specific Incident Type Volume Change Over Time The following chart shows that the 3 percent growth rate noted above is mostly generated by Other incident types, not Fire or EMS incidents. 63

91 Figure 30: Service Demand by Incident Type History Workload of Other Incident Type Volume Change Over Time As illustrated in the following chart, most incident growth is from Good Intent Calls. (The chart purposely excludes Fire and EMS call types to allow focus on all other call types.) Good Intent Calls include those incidents where the incident was cancelled before any fire department units arrived, where no emergency was found once units arrived, or where citizens confused normal activities with an emergency (such as seeing steam but reporting smoke). Good Intent Calls grew from 538 incidents in 2001 to 2,075 incidents in 2009, a 386 percent increase over nine years. It is likely that the increase in call volume is partially due to the increased use of cell phones, allowing citizens to report issues as they drive past them. Unfortunately this mobility also allows citizens to continue on their way before they have time to fully examine what is really occurring at the supposed incident scene. Further investigation should be performed to explore the root causes of the Good Intent incidents. 64

92 Figure 31: 'Other' Workload History Categorization Workload Change Over Time by Response Area Lastly we will observe how workload has changed over time for individual response districts. The chart below shows the relative change in workload for each response area. For example, area B22 has grown at an average rate of 5.7 percent per year, while B07 has actually decreased an average of 1.5 percent per year. Part of the change in B07 might be explained by the fact that Station 7 was moved away from downtown several years ago and its response area was reshaped accordingly. The average department workload change of 3 percent is indicated by the red line, showing how each response area compares to the department overall. Figure 32: Historical Workload by Response Area 65

93 Component E Review of Historical System Performance When evaluating the effectiveness of any resource deployment scheme, it is not only necessary to evaluate the geographic distribution of resources to determine their physical capability to travel to, and gather at, emergency incidents within target time frames; it is also necessary to evaluate the workload of the individual companies to determine to what extent their availability for dispatch is affecting the response time performance. In simplest terms, an engine company cannot make it to an incident across the street from its own station in four minutes if it is unavailable to be dispatched to that incident because it is committed to another call. Since the fractile performance goals are typically set at something less than 100 percent (in the case of Boise, at 90 percent), there is a builtin accommodation for at least some such instances in any deployment scheme where physical location and travel time are not a detracting factor, as in the case of Boise. 8 However, where workload is high, availability rates for a busy company can begin to drop below the 90 th percentile. A unit that is unavailable for more than 10 percent of its primary assigned calls will certainly have difficulty achieving a 90 th percentile response time target. In such cases, additional companies may need to be assigned in that same station to cover the high service demand, at least during peak workload periods. Another option is to build additional facilities with companies located closer together in high workload areas in order to permit lower travel times of the secondary units that would be dispatched to replace the unavailable primary company when it is committed to a call. The measurement of the performance of a firstdue unit to actually arrive first in its assigned primary response area is known as unit reliability. The reliability analysis will begin by measuring the reliability of each BFD fire station to get one of its assigned apparatus to incidents within its primary response area as the first arriving apparatus, regardless of type. This will measure overall fire station reliability and will account for the common practice of sending an alternate unit to a call it would not normally be dispatched to when the most appropriate unit in that station is unavailable. The workload on emergency response units can be a factor in response time performance. The busier a given unit, the less available it is for the next emergency. If a response unit is 8 See section on Distribution Analysis. 66

94 unavailable, then a unit from a more distant location must respond, increasing overall response time. Reliability, Concurrency and Resource Drawdown Response reliability may be shown by reviewing the number of simultaneous (stacked) calls for service within a response area. In the following chart, the 90 th percentile response time is the total reflex time (turnout time plus travel time) from receipt of alarm at the station to arrival on scene. The times are shown to emphasize that when calls are stacked, there is a cost in response time. Note that the busiest districts (B05 and B08) suffer the highest percentage of stacked calls. The chart does not include simultaneous calls for service outside the Boise City and Whitney jurisdictions. Figure 33: Incident Concurrency Response Area Total Incidents 90 th % Response Stacked Incidents 90 th % Response Stacked B01 1,020 7: :11 5.1% B : :14 0.8% B03 1,110 7: :59 5.2% B04 1,454 7: :43 6.3% B05 1,900 6: :13 8.7% B06 1,428 6: :41 5.3% B : :11 3.5% B08 1,773 7: :06 8.6% B09 1,141 7: :07 4.7% B : :14 5.3% B : :15 5.2% B : :33 1.9% B : :07 3.4% B16 No Data B : :44 2.0% B18 No Data B : :59 1.6% 67

95 Another way to view simultaneous (stacked) incidents is to view the effect departmentwide. The following figure shows the total incidents that occurred within and outside the Boise City and Whitney jurisdictions during 2005 through Reviewing the data shows that about 50 percent of the time there are least two incidents in progress and that there is a negative effect on the 90 th percentile response times. Year Total Incidents Figure 34: Annual Incident Concurrency History 90th % Response Stacked Incidents 90th % Response Stacked ,830 7:45 6,153 7: % ,773 7:57 6,845 8: % ,288 7:58 7,290 8: % ,467 7:45 7,160 7: % ,709 7:47 7,280 7: % A third method for understanding response reliability would be to examine how often the firstdue engine arrives first in its home response area as compared to another engine arriving first. As before, the 90 th percent response time (total reflex time) is shown to emphasize that there is a cost to response time when the firstdue apparatus is not available in its response area. 68

96 Response Area First Due Count Figure 35: Unit Reliability 90th % Response Not First Due Count 90th % Response First Due % B : : % B : : % B : : % B04 1,308 5: : % B05 1,572 5: : % B06 1,238 5: : % B : : % B08 1,540 6: : % B09 1,011 6: : % B : : % B : : % B : : % B14 1,031 8: : % B16 B17 B18 No Data No Data No Data B : : % 69

97 Recorded System Response Performance After reviewing how much work is being performed, it is educational to see how timely that work is responded to. Timeliness may be determined using the various date/times that are available from Boise Fire Department s records management system. Following is the description and analysis of the various times that have an impact on incident response. In the past it has been typical for the fire service to evaluate response times in terms of averages, where an average response time was an indication of how long the typical response takes. However the implication of an average is that half of the responses are occurring after the average time. Therefore an average does not give a good indication of how well the department is truly performing. Another way to state average is to call it the 50 th percentile. To better show true performance, Boise Fire Department has elected to use the 90 th percentile; the times by which 90 percent of all incidents have been responded. The National Fire Protection Association has specified standards for fire and EMS response times. According to NFPA 1710, fire departments shall establish the following objectives: process time (60 seconds), turnout time (60 seconds/ems, 80 seconds/fire), travel time (240 seconds), and total response time (360 seconds/ems, 380 seconds/fire) to 90 percent of all incidents. Call Processing Time Call processing time, or process time, is the time that transpires from receipt of a request for assistance until a unit is dispatched. Generally speaking, process time consists of when a dispatcher answers the telephone, collects enough data to determine where the incident is located, what the problem is, and whom to send, and then transmits an alarm to a particular unit. The NFPA 1710 standard for process time is 60 seconds at the 90 th percentile. Boise Fire cannot directly impact this time as the dispatch office is operated by the Ada County Sheriff. BFD does have indirect influence on the dispatch office through an advisory role in budgeting, an advisory role in technology expenditures, and via direct monetary assistance; all of which provides for dispatchers, dispatcher training, and equipment. 70

98 There is a possibility that incident volume in the dispatch center would impact the process time. However, at this time it is too difficult to generate incident counts in dispatch, as the center processes calls for six different agencies. It can be noted that the staffing levels have not changed on the Fire/EMS side of dispatch in over 17 years, while incident volumes have increased geometrically. Process time is shown below in several charts to help visualize that different procedures are followed depending on the type of incident. It is obvious that at no time does Ada County meet the 60second standard for process time, and that there are definite time differences between fire, EMS, and Other incident types. Figure 36: Call Processing Time for All Incidents,

99 Figure 37: Call Processing Time for EMS Incidents, 2009 Figure 38: Call Processing Time for Fire Incidents,

100 Figure 39: Processing Time for Other Incidents, 2009 The charts above demonstrate that the most process time is consumed during EMStype incidents. The additional EMS process time is most likely caused by the use of Emergency Medical Dispatch (EMD) procedures in the dispatch office. It appears that additional research should be performed to determine ways to speed the dispatch process for all incidents, even if it means dispatching response units prior to fully understanding what is involved. Turnout Time Turnout time consists of the time from when an emergency response unit is notified of an incident until it begins to roll out the door. Turnout time includes the time required for the responding staff to determine where they must respond, walk to their apparatus, don any appropriate gear, seat and safety belt themselves, start the apparatus and release the parking brake. The NFPA 1710 standard is 60 seconds turnout time for nonfire incidents and 80 seconds for fire incidents, both at the 90 th percentile. 73

101 Figure 40: Turnout Time NonFire Incidents, 2009 Figure 41: Turnout Time Fire Incidents, 2009 The charts above show that even though turnout time improves during daylight hours, at no time does Boise Fire meet the NFPA standards of 60 seconds for nonfire incidents and 80 seconds for fire incidents. It is interesting to note that Boise Fire mirrors the national standard in the turnout time difference between fire and nonfire incidents. The national standard shows a difference of 20 seconds (80 versus 60) between fire and nonfire incidents; Boise Fire shows a difference of 18 seconds (139 versus 121). The following figures describe the turnout time performance by company. It may be possible to determine station layouts or apparatus designs that improve turnout time by 74

102 comparing performance. In each of the following charts, Stations 16, 17, and 18 (shaded green) became part of BFD s primary response area in Figure 42: Turnout Time by Company for NonFire Incidents, 2009 Figure 43: Turnout Time by Company for Fire Incidents, 2009 Investigation would be warranted to determine if changes in dispatch procedures, dispatch technology (lighting, speakers, annunciators, mapping technology), department technology (clothing, station design, apparatus design), and department policies would improve turnout time. Finally, BFD needs to further educate its staff on the importance of a rapid turnout time and the benefits thereof. 75

103 Travel Time Travel time consists of that time from when a responding unit s parking brake is released and it starts rolling out of the station until it arrives on location and its parking brake is set. The NFPA 1710 standard for travel time is 240 seconds (4 minutes). Travel time can be affected by issues both within and outside of department control. Issues within department control include department policies and procedures, station placement, apparatus placement, availability of apparatus, and intersection control devices (Opticom). Typical items outside of the department s control include weather conditions, road conditions, and rush hour traffic patterns. Figure 44: Travel Time by Hour of Day, 2009 Based on the chart above, it would appear that a combination of daytime traffic and nighttime sleepiness have an effect on travel times as the times remain elevated except for a threehour window from 7:00 PM through 9:59 PM. Note that at no time does Boise Fire Department meet the NFPA 1710 standard for travel time of 240 seconds. 76

104 Figure 45: Travel Time by Response District, 2009 The Travel Time by Response District chart shows how station placement can affect travel times. Station 5 is located within the center of the City and has a somewhat reduced response area due to the positions of stations around it. Station 5 has the only 90 th percentile response time that is better than the NFPA 1710 standard. Conversly, the Station 17 response district has the worst 90 th percentile travel time. Until the Spring of 2010, the Station 17 response area was covered by stations 6, 8, and 14. The Station 17 response area differs from Station 5 s in that it is on the periphery of the City and that it is much larger in size. Department policies and procedures affect travel time by limiting the travel speeds allowed for emergency apparatus and by describing how apparatus behave on standard roadways, oneway streets, special travel zones such as school zones, and intersections. Travel time is also affected by how close or distant fire stations are built from each other. In the past Boise Fire Department has planned stations with a standard 1.5mile response radius, with little or no attention paid to land use, population density, building type/size/density, or existing incident volume. As is evident in from the previous analysis, Boise Fire must consider if there are better methods for determining where fire stations are located, which apparatus types are placed in which 77

105 station or whether multiple apparatus should be placed in a particular station. Additional options include staffing additional apparatus based on time of day or in certain locations. Total Fire Department Response Time Total Fire Department response time is the sum of the turnout and travel times, or in other words the total time from receipt of alarm until a unit arrives on scene. Boise Fire Department has a direct influence on the turnout and travel times seen throughout the community. Apparatus response time is affected by station location, station design, apparatus location, apparatus design, apparatus staffing, operational policies and procedures, and staff training. The following charts detail the Total Fire Department Response time for key benchmarks by response district. BFD Response time (shown in blue) is the 90 th percentile time for each response district. The overall 90 th percentile time for the department is shown in yellow, and the NFPA 1710 standard (if it exists) is shown in red. Figure 46: First Unit Arrival for EMS Incidents, 2009 The chart First Unit Arrival for EMS Incidents, 2009 shows that only one response district (B05) is able to meet or exceed the NFPA 1710 standard of 300 seconds (60 seconds turnout, 240 seconds travel) for EMS responses. The response performance is most likely due to its smaller response area and the fact that a second unit, T5, is able to assist when E5 is occupied with other incidents or duties. 78

106 Two other response districts also have two staffed apparatus responding from the same station: B06 and B07. Note that B06 has the second best performance out of the group and B07 has the fourth best performance. These numbers provide at least anecdotal evidence that additional available apparatus within a district will assist with decreasing overall response times. Additionally, it appears from the data that any districts that are surrounded by other districts are seeing a benefit of assistance from those surrounding districts. The five surrounded districts (B03, B04, B05, B06, and B08) are all within the top six response times shown. None of the preceding denies that fact that Boise Fire must improve its responses by approximately 72 seconds (a 20 percent improvement) to meet the NFPA 1710 standard of 300 seconds. The five following charts describe Boise Fire s structure fire response times. NFPA 1710 has identified standards for some of the benchmarks, but not all. It is important to understand that because there are fewer responses, one or two responses (as outliers) can substantially skew the data either up or down. The most important data is the BFD Total Response 90 th Percentile number, as this is what we report for the department. The breakdown by response district is to help visualize where problems may exist and show how areas compare to one another. When no data exists for a column, it indicates that an incident of this type did not occur in the response district for the time period shown. Figure 47: First Unit Arrival for Fire Incident,

107 The preceding figure describes how long it took for the first unit to arrive on structure fires. There should be a high similarity between this chart and the preceding chart describing EMS units, and there is. The landlocked districts generally show better response times than those on the periphery (B05 is the exception). Note that the previous figure shows that response area B02 is grossly out of line with the rest of the areas. This extreme number of 840 seconds is due to two responses that occurred outside of their firstdue area but as a result of quirks in reporting are included within the dataset. Four districts were able to meet the NFPA 1710 standard of 320 seconds (80 seconds turnout, 240 seconds travel): B01, B04, B06, and B07. Figure 48: Truck Arrival, 2009 There is no NFPA standard for describing the expected response time for a firstdue truck company. The chart above is presented to show how well BFD s truck companies perform. No analysis is performed other than to show that areas B05, B06, and B07 are in the top four response times (these are the locations where the truck companies are housed). 80

108 Figure 49: Battalion Chief Arrival, 2009 There is no NFPA standard for describing the expected response time for a firstdue battalion chief. The chart above is presented to show how well our battalion chiefs (BC) perform. Battalion chief responses differ from other apparatus in that the chiefs do not generally reside in a home location. Battalion chief officers act as administrators as well as incident commanders and move about the City performing administrative duties. It is possible to have all of the BCs positioned in one location, which might unfortunately be located farthest from a given structure fire incident. Figure 50: TwoIn, TwoOut Arrival

109 After describing the first benchmark of when the first fire unit arrives on a fire incident, the second most important benchmark is when twoin, twoout is achieved. Twoin, twoout is a standard put forth by the Occupational Safety and Health Administration (OSHA). There is no NFPA 1710 time standard associated with twoin, twoout. The standard, 29 CFR (g)(4): Procedures for interior structural firefighting, is found in the Occupational Safety and Health Standards of the Code of Federal Regulations (CFR). The standard states that a team of at least two firefighters may enter a hazardous atmosphere together. However, if a team enters the hazardous atmosphere, then at least two other firefighters must remain outside. The purpose of the additional firefighters is to allow for the rescue of the firstin responders in the event they need assistance or become injured. Twoin, twoout means that no interior structural firefighting may occur until at least four fire fighters are on scene. The Boise Fire 90 th percentile for twoin, two out is 510 seconds (8 minutes 30 seconds) from time of alarm. Note that the 90 th percentile is somewhat skewed by the data from B02. Figure 51: Effective Response Force Arrival, 2009 The last benchmark associated with structure fires is the time when a minmum complement of fire firefighters is available to address all of the critical tasks identified for a typical single family dwelling fire. Boise has determined that 15 fire fighters are needed to meet the critical tasks, therefore 15 fire fighters comprises the effective response force (ERF). The methodology used in the Boise Fire records management system prevents the dertermination of the arrival of a 82

110 safety officer, therefore the analysis relies on 14 fire fighters, which would be staffed on three engines, one truck, and one battalion chief. The Boise Fire 90 th percentile for ERF is 868 seconds (14 minutes 28 seconds). The NFPA standard for ERF is 540 seconds (9 minutes: 1 minute turnout time, 8 minutes travel time). 83

111 Component F Performance Objectives and Performance Measures Dynamics of Fire in Buildings Most fires within buildings develop in a predictable fashion, unless influenced by highly flammable material. Ignition, or the beginning of a fire, starts the sequence of events. It may take several minutes or even hours from the time of ignition until a flame is visible. This smoldering stage is very dangerous, especially during times when people are sleeping, since large amounts of highly toxic smoke may be generated during this phase. Once flames do appear, the sequence continues rapidly. Combustible material adjacent to the flame heat and ignite which in turn heats and ignites other adjacent materials if sufficient oxygen is present. As the objects burn, heated gases accumulate at the ceiling of the room. Some of the gases are flammable and highly toxic. The spread of the fire from this point continues quickly. Soon the flammable gases at the ceiling as well as other combustible material in the room of origin reach ignition temperature. At that point, an event termed flashover occurs; the gases and other material ignite, which in turn ignites everything in the room. Once flashover occurs, damage caused by the fire is significant and the environment within the room can no longer support human life. Flashover usually occurs about five to eight minutes from the appearance of flame in typically furnished and ventilated buildings. Since flashover has such a dramatic influence on the outcome of a fire event, the goal of any fire agency is to apply water to a fire before flashover occurs. Although modern codes tend to make fires in newer structures more infrequent, today s energyefficient construction (designed to hold heat during the winter) also tends to confine the heat of a hostile fire. In addition, research has shown that modern furnishings generally burn hotter (due to synthetics). 84

112 In the 1970s, scientists at the National Institute of Standards and Technology found that after a fire broke out, building occupants had about 17 minutes to escape before being overcome by heat and smoke. Today, that estimate is as short as three minutes. 9 The necessity of effective early warning (smoke alarms), early suppression (fire sprinklers) and firefighters arriving on the scene of a fire in the shortest span of time is more critical now than ever. Perhaps as important as preventing flashover is the need to control a fire before it does damage to the structural framing of a building. Materials used to construct buildings today are often less fire resistive than the heavy structural skeletons of older frame buildings. Roof trusses and floor joists are commonly made with lighter materials that are more easily weakened by the effects of fire. Light weight roof trusses fail after five to seven minutes of direct flame impingement. Plywood Ibeam joists can fail after as little as three minutes of flame contact. This creates a dangerous environment for firefighters. In addition, the contents of buildings today have a much greater potential for heat production than in the past. The widespread use of plastics in furnishings and other building contents rapidly accelerate fire spread and increase the amount of water needed to effectively control a fire. All of these factors make the need for early application of water essential to a successful fire outcome. A number of events must take place quickly to make it possible to achieve fire suppression prior to flashover. The following figure illustrates the sequence of events. 9 National Institute of Standards and Technology, Performance of Home Smoke Alarms, Analysis of the Response of Several Available Technologies in Residential Fire Settings, Bukowski, Richard, et al. 85

113 Figure 52: Fire Growth vs. Reflex Time 1,500 F 10 Minutes Detect Report Dispatch Turnout Respond Setup Reflex Time As is apparent by this description of the sequence of events, application of water in time to prevent flashover is a serious challenge for any fire department. It is critical, though, as studies of historical fire losses can demonstrate. The National Fire Protection Association found that fires contained to the room of origin (typically extinguished prior to or immediately following flashover) had significantly lower rates of death, injury, and property loss when compared to fires that had an opportunity to spread beyond the room of origin (typically extinguished postflashover). As evidenced in the following table, fire losses, casualties, and deaths rise significantly as the extent of fire damage increases. Figure 53: Fire Extension in Residential Structures Consequence of Fire Extension In Residential Structures Rates per 1,000 Fires Average Dollar Loss Per Fire Extension Civilian Deaths Civilian Injuries Confined to room of origin or smaller $5,317 Confined to floor of origin $34,852 Confined to building of origin or larger $60,064 Source: National Fire Protection Association Home Structure Fires, March

114 Survival Percentage Standards of Cover Emergency Medical Event Sequence Cardiac arrest is the most significant lifethreatening medical event in emergency medicine today. A victim of cardiac arrest has mere minutes in which to receive lifesaving care if there is to be any hope for resuscitation. The American Heart Association (AHA) issued a set of cardiopulmonary resuscitation guidelines designed to streamline emergency procedures for heart attack victims, and to increase the likelihood of survival. The AHA guidelines include goals for the application of cardiac defibrillation to cardiac arrest victims. Cardiac arrest survival chances fall by 7 to 10 percent for every minute between collapse and defibrillation. Consequently, the AHA recommends cardiac defibrillation within five minutes of cardiac arrest. As with fires, the sequence of events that lead to emergency cardiac care can be graphically illustrated, as in the following figure. Figure 54: Cardiac Arrest Event Sequence Detect Report Dispatch Turnout Respond Setup Minutes 87

115 The percentage of opportunity for recovery from cardiac arrest drops quickly as time progresses. The stages of medical response are very similar to the components described for a fire response. Recent research stresses the importance of rapid cardiac defibrillation and administration of certain medications as a means of improving the opportunity for successful resuscitation and survival. People, Tools, and Time Time matters a great deal in the achievement of an effective outcome to an emergency event. Time, however, is not the only factor. Delivering sufficient numbers of properly trained, appropriately equipped personnel within the critical time period completes the equation. For medical emergencies this can vary based on the nature of the emergency. Many medical emergencies are not time critical. However, for serious trauma, cardiac arrest, or conditions that may lead to cardiac arrest, a rapid response is essential. Equally critical is delivering enough personnel to the scene to perform all of the concurrent tasks required to deliver quality emergency care. For a cardiac arrest, this can be up to six personnel; two to perform CPR, two to set up and operate advanced medical equipment, one to record the actions taken by emergency care workers, and one to direct patient care. Thus, for a medical emergency, the real test of performance is the time it takes to provide the personnel and equipment needed to deal effectively with the patient s condition, not necessarily the time it takes for the first person to arrive. Fire emergencies are even more resource critical. Again, the true test of performance is the time it takes to deliver sufficient personnel to initiate application of water to a fire. This is the only practical method to reverse the continuing internal temperature increases and ultimately prevent flashover. The arrival of one person with a portable radio does not provide fire intervention capability and should not be counted as arrival by the fire department. 88

116 Current Service Delivery Goals The Boise Fire Department has established service delivery targets for emergency response times. CallHandling Performance Criterion No formal call answering or call processing time standards have been adopted, though the concept has been discussed. Currently, performance measurement focuses primarily on workload, which is not necessarily an indicator of quality, efficiency or effectiveness. Formal performance objectives should be established and measured. Based on NFPA 1221 standards, call processing time the time between when the call is answered and when the call is dispatched to responding units should be less than 60 seconds 95 percent of the time. ESCI recommends that BFD work with Ada County Sheriff s Office Dispatch to establish the following performance objective. For 90 percent of all calls for service received, Ada County Communications will notify and dispatch the appropriate units in less than 60 seconds. Call intake and dispatch personnel will continue to receive and relay vital information until all instructions have been issued or the initial unit arrives on scene. Turnout Time Performance Criterion Turnout time is one area that the fire department has total control over and is not affected by outside influences. Turnout time, or the time between when the call is received by the response units (dispatched) and when the unit is actually en route to the scene (responding), can have dramatic effects on overall response times. Reducing this single response time component reduces total response time. The current version of NFPA 1710 recommends a turnout time performance objective of 80 seconds or less for suppression incidents and 60 seconds or less for medical/rescue incidents. Without consideration of actual historical turnout time performance, the establishment of a turnout time objective is difficult. Given that turnout time is one area in which field personnel can dramatically improve overall response time, an aggressive objective is recommended. With this in mind, BFD has established the following Turnout Time Performance Objective. 89

117 For 90 percent of all suppression dispatches received, Boise Fire Department will be en route to the incident in 80 seconds or less, regardless of incident risk type. Additionally, for 90 percent of all medical/rescue dispatches received, Boise Fire Department will be en route to the incident in 60 seconds or less, regardless of the incident risk type. Distribution Performance Criterion A fire department s distribution is essentially the location of resources to assure an initial intervention within the specific time frame identified in the community s performance goals. In Boise, the goal for the firstarriving unit in the emergency risk categories is six minutes 20 seconds or less, at least 90 percent of the time, including call processing and firefighter turnout time. Historical performance notwithstanding, BFD has established the following First Due Response Performance Objective. For 90 percent of all emergency incidents regardless of risk, the first due unit shall arrive within six minutes total response time. The first due unit shall be capable of advancing the first line for fire control or starting rescue or providing basic or advanced life support for medical incidents. Current Distribution Capability Analysis The distribution analysis begins with a review of the physical capability of BFD s resources to achieve a fourminute travel time to the entire City. Later in this document, analysis will determine whether or not BFD s actual performance matches this physical distribution capability and, if not, the document will use additional analysis to offer areas for improvement. Fire protection and ALS/BLS first response emergency medical services within the City of Boise are provided by the fire department from 19 strategically located facilities, two of which are not staffed. Several major arterial roadways as well as geographical barriers exist throughout the response area. In order to visualize the potential response time capabilities from the current fire stations, the following map demonstrates those areas within a fourminute travel time of the stations on the actual roadway network. Reduction of speed has been calculated to account for turning apparatus and negotiating intersections. The amount of time between the initial dispatch and the responding unit to actually become en route (turnout time interval) to the scene has not been included. The fourminute travel time is used here after the modeling of several times. The fourminute model allows the department to cover most of the populated areas with little in the way of excess redundancy. 90

118 Figure 55: Initial Unit Travel Time Capability 91

119 As illustrated, BFD can reach a majority of the City within four minutes of travel time. There are areas in the eastern portions of the City outside the fourminute travel time but these areas are largely undeveloped. Concentration Performance Criterion A fire department s concentration is the spacing of multiple resources close enough together so that an initial Effective Response Force (ERF) for a given risk can be assembled on the scene of an emergency within the specific time frame identified in the community s performance goals for that risk type. An initial effective response force is defined as that which will be most likely to stop the escalation of the emergency. The ERF for structural fire risks in Boise is identified as a collective response of three engines, one truck, one command vehicle, and one safety vehicle to meet minimum staffing requirements for a typical residential structure fire. This initial ERF does not necessarily represent the entire alarm assignment, as additional units may be assigned based on longterm incident needs and risks. BFD has established the following Concentration Performance Objective. For high and maximum risk incidents, Boise Fire Department shall assemble an Effective Response Force (ERF) within eight minutes 90 percent of the time. This ERF shall be able to flow up to 3,500 gpm for firefighting or be able to handle a multiplecasualty emergency medical incident. Current Concentration Capability Analysis Standard firefighting procedures call for the arrival of the entire initial assignment (sufficient apparatus and personnel to effectively combat a fire based on its level of risk) within a certain amount of time. This is to ensure that enough people and equipment arrive soon enough to be effective in controlling a fire before substantial damage occurs. 10 The following figures illustrate the capability of BFD in potentially achieving its goal for concentration of apparatus resources within eight minutes of travel time. Due to the variety of duties for the onduty command officer, a fixed location cannot always be determined; this analysis assumes that individuals can be responding from any location within the City. 10 See supplemental discussion about time/temperature curve and the effects of flashover. 92

120 Figure 56: Effective Response Force 93

121 Figure 57: Effective Response Force Trucks 94

122 The previous figure illustrates that the distribution of available apparatus is sufficient to provide an effective response force to a majority of the developed areas within the City. 95

123 Component G Overview of Compliance Methodology The preceding sections of this report provide a detailed analysis of the historical performance of BFD resources. In order for this analysis to prove beneficial to department and city decisionmakers, continued analysis should be performed on a routine basis. BFD should implement a consistent method of data collection to improve its ability to analyze performance measures. ESCI has long believed that what gets measured, gets improved but without proper data collection, measurement of performance indicators can become unreliable. BFD is committed to a continual process of analyzing and evaluating actual performance against the adopted standards of cover and has adopted policies to enhance the data collection procedures of field operations personnel. Periodic review of the department s records management system reports will be necessary to ensure compliance and reliability of data. Maintenance of effort requires that performance objectives and performance measures are evaluated and efforts are made to reach or maintain the established levels. Compliance Model Compliance is best achieved through a systematic approach. Boise Fire Department has identified the following sixstep compliance model. Figure 58: Maintenance of Effort Compliance Model Establish/Review Performance Measure Evaluate Performance Develop Compliance Strategies Communicate Expectations to Organization Validate Compliance Make Adjustments/ Repeat Process 96

124 Step 1: Establish/Review Performance Measures 1. Complete the initial Standard of Cover process. Conduct a full review of the performance measures every five years. This process is riskbased and evaluates: Services provided are identified Levels of service are defined Levels of risk are categorized Performance Objective and Measures developed: o Distribution Measures o Concentration Measures Step 2: Evaluate Performance 1. Performance measures are applied to actual services provided: System level First Due Area level Unit level Step 3: Develop Compliance Strategies 1. Determine issues and opportunities: Determine what needs to be done to close identified gaps Determine if resources can or should be reallocated Seek alternative methods to provide service at desired levels Develop budget estimates as necessary Seek additional funding commitment as necessary Step 4: Communicate Expectations to Organization and Stakeholders 1. Communicate expectations: Explain method of measuring compliance to personnel who are expected to perform the services Provide feedback mechanisms Define consequences of noncompliance 2. Train Personnel: Provide appropriate levels of training/direction for all affected personnel Communicate consequences of noncompliance 97

125 Modify (remediate) internal processes, application systems, and technical infrastructure as necessary to comply Step 5: Validate Compliance 1. Develop and deploy verification tools and/or techniques that can be used by divisions of the organization on an ongoing basis to verify that they are meeting the requirements: Monthly evaluation: o Performance by Unit o Overall Performance o Review of performance by Division Quarterly evaluation: o Performance by Unit o Performance by First Due o Overall Performance o Review of performance by Executive Management 2. Determine whether independent validation and verification techniques will be used to measure the performance, and solicit external assistance as necessary. Step 6: Make Adjustments/Repeat Process 1. Review changes to ensure that service levels have been maintained or improved. Develop and implement a review program to ensure ongoing compliance: Annual Review and Evaluation o Performance by Unit o Performance by First Due o Overall Performance o Review of performance by Governing Body o Adjustment of performance standards by Governing Body as necessary FiveYear Update of Standards o Performance by Unit o Performance by First Due o Overall Performance o Adoption of performance measures by Governing Body 2. Establish management processes to deal with future changes in the BFD service area. 98

126 Component H Overall Evaluation and Recommendations to Policy Makers Overall Evaluation The standards of cover process based on the CFAI Standards of Cover 5 th Edition required the completion of an intensive analysis on all aspects of the BFD deployment policies. The analysis used various sophisticated tools to review historical performance, evaluate risk, validate response coverage, and define critical tasking. The analysis relied on the experience of staff officers and their historical perspective based on their collective experience combined with historical incident data captured by both the dispatch center and the department s inhouse records management system. Presentation of the information follows the format recommended in the CFAI Standards of Cover 5 th Edition, including: Description of Community Served; Review of Services Provided; Review of Community Expectations and Performance Goals; Overview of Community Risk; Review of Historical System Performance; and Overview of Compliance Methodology. This section summarizes the results of all the analyses completed in the SOC process including conclusions and recommendations. The Description of Community Served provided a general overview of the organization, including governance, lines of authority, finance, and capital and human resources, as well as an overview of the service area including population and geography served. The Review of Services Provided detailed a brief overview of the core services the organization provides based on general resource/asset capability and basic staffing complements. During the Review of Community Expectations and Performance Goals, it was determined that the community had high expectations of the department, felt generally positive about its services, and shared certain areas of concern particularly as it has to do with emergency medical services. An overview of community risk was provided to form the basis for the Department s development of mitigation plans. Geospatial characteristics, topographic and weather risks, transportation network risks, physical assets, and critical infrastructure were reviewed and developed into a hazard vulnerability assessment that identified medical incident nonstructure fires, structure fires, and rescues as the primary risks within the community. As a factor of risk, 99

127 community populations and demographics are evaluated against historic and projected service demand. Except for the past two years population has increased. Service demand has increased over time. Evaluating risk using advanced geographic information systems (GIS) provided an increased understanding of community risk factors, which can lead to an improved deployment policy. Computer modeling of the department s response capability, both for distribution and concentration, indicated that the fire stations are adequately sited based on historical service demand. The present fire station locations complement the geography of the city and provide a total reflex time for first arriving units within the department s objective. The premise of the distribution policy is to consider the potential for life loss, economic value, and fire flow requirements. Travel time modeling was conducted, using computer modeling, to evaluate engine and truck responses using four minutes as the maximum travel time for the first arriving engine. The modeling indicated that the present station locations provide coverage of more than 94 percent of requests for service within a four minute travel time. The Review of Historical System Performance evaluated each component of the emergency incident sequence. Total response time included a number of components such as call processing, turnout, and travel. Beyond the response time of the initial arriving units, the additional components of concentration and effective response force, reliability, call concurrency, and resource drawdown were evaluated. Call processing time is acceptable, though its reduction would provide an opportunity to reduce overall incident time. Turnout time is longer than desirable. This is also an area of opportunity to reduce overall incident time. Travel times to actual incidents were slightly longer than desired but the distance from existing fire stations should not be the issue impeding performance. Other factors are in play keeping response units from providing timely response such as unit availability, traffic, and route impedance. Overall response time is nearly 2 minutes 30 seconds longer than the current objective of 4 minutes 20 seconds. 100

128 Concentration is measured by the ability of the department to assemble a certain number of apparatus and personnel within a predetermined amount of time. Historical data indicate that the department has been able to assemble an effective response force of three engines, one truck, and one command vehicle within 13 minutes 29 seconds 90 percent of the time in the. This overall time to assemble sufficient resources is also higher than the current objective but could also be a factor of overall individual unit response time, including call process, turnout and travel time. Historical reliability is defined as the probability that the required amount of staffing and apparatus will be available when an emergency call is received. Analysis indicates that as calls for service increase overlapping calls become increasingly frequent. BFD is already experiencing numerous concurrent responses. Overall system performance when measured by the draft Standards of Cover performance measures shows a lack of compliance in all areas. A summary of performance objectives as they compare to current performance is provided in the following figure. Figure 59: Performance Objective Actual Performance Comparison Performance Indicator Performance Objective Fractile Current Performance 90 th % (2009) Difference Call Processing Time :60 90 th 1:19 0:60 Turnout Time 1:20 90 th 2:19 0:36 Travel Time First Arriving Unit 4:00 90 th 4:51 0:52 Response Time 5:20 90 th 6:40 1:28 ERF Assembly Time 8:00 90 th 13:29 5:29 As can be seen from the figure above, opportunities for system improvement exist in each of the performance indicators. 101

129 Recommendations During the course of this analysis a number of issues, concerns, and opportunities were identified. The following recommendations are intended to accomplish three primary objectives: 1. Improve the Boise Fire Department s ability to evaluate its performance on a regular and ongoing basis and respond more effectively to changing circumstances. 2. Improve service delivery with no or minimal expenditure of funds. 3. Identify service level improvement opportunities that can be implemented as funding becomes available. The recommendations are described as performance improvement goals, and should be implemented as funding allows. Each will improve the Boise Fire Department s ability to provide effective service to the community. Performance Goal A: Improve data capture and analysis to facilitate more comprehensive and timely analysis of fire department performance and effectiveness. Throughout the course of preparing this document acquiring data suitable for analysis was a challenge. It was necessary to draw data from several different sources, manipulate and merge this data, complete validation and cleaning processes, and finally process that data to develop many of the observations and conclusions reached in this report. BFD chose to ignore Ada County CAD data for this document because the CAD data has historically missed key elements or otherwise been presented in a manner that inhibited accurate analysis. Only data from BFD s records management system was used for this analysis. Ready access to complete and reliable data is essential if meaningful ongoing analysis of the effectiveness of fire department services is to be conducted. To accomplish this, a number of system improvements are needed. 1. Develop automated performance reporting that combines data from the Ada County computer aided dispatch system and the BFD incident report system. Performance reports should be readily available to fire department managers without the need for special programming or computer expertise. 2. Enhance inhouse expertise in the use of geographic information systems for fire department performance analysis. This may be through the city s information technology department or by providing fire department staff the training and tools necessary. The City of Boise has geographic information system capability now. Enhancing staff skills in areas unique to fire department service analysis will improve the quality and timeliness of management information. 102

130 3. Dedicate staff to working with the department s records management system, conducting analysis, and producing periodic reports to department management. Although the department currently assigns these duties to a single person, that individual does not have sufficient time to adequately focus on such an important task. Dedicating focus to this responsibility will ensure that data is handled consistently and is readily available for future use by the department, thereby allowing management to make decisions based on empirical data. Performance Goal B: Improve turnout times so that initiation of response occurs within 1 minute 20 seconds for suppression incidents and 1 minute for EMS incidents from time of dispatch 90 percent of the time. National guidance sets a target of 80 seconds or less for suppression incidents and 60 seconds or less for EMS incidents, 90 percent of the time to initiate response (turnout time). This is the time period between when dispatchers notify response personnel of the incident and when response crews begin travel towards the location. BFD s current turnout time performance is currently 2:19 for all incidents. BFD should explore whether dispatch broadcast times can be reduced, fire station layouts can be modified, and technology opportunities such as enhanced mobile data computing capability can be implemented to shorten turnout times. Response personnel performance must also be addressed. Fire department management should regularly prepare information indicating current performance by response crews. Performance expectations should be reinforced and periodic monitoring conducted to determine if improvements are being made and sustained. Response personnel must make serious efforts to improve their turnout time performance for the benefit of the community. Performance Goal C: Improve travel time to emergencies so that the time from initiation of response to arrival at incident is within four minutes 90 percent of the time throughout the City and the contracted service areas. There are several opportunities to improve travel times, the longest phase of the overall response continuum. BFD should explore areas of potential improvement in travel times based on enhanced routing of emergency apparatus through advanced mobile mapping and directional equipment or other methods to reduce vehicle impedance throughout the primary response area. 103

131 Performance Goal D: Develop a plan for future fire station locations to accommodate the City s growth and development. The current deployment of BFD stations is sufficient to handle existing workload within the adopted response performance objectives. As the community continues to grow, planning should be undertaken to develop additional response facilities to serve those new areas that could potentially impact service delivery by the department. 104

132 Component I Appendices, Exhibits, and Attachments Risk Assessment Materials HAZARD AND VULNERABILITY ASSESSMENT TOOL STRUCTURE FIRES SEVERITY = (MAGNITUDE MITIGATION) EVENT PROBABILITY Likelihood this will occur HUMAN IMPACT Possibility of death or injury PROPERTY IMPACT Physical losses and damages BUSINESS IMPACT Interuption of services PREPARED NESS Preplanning INTERNAL RESPONSE Time, effectivness, resouces EXTERNAL RESPONSE Community/ Mutual Aid staff and supplies RISK Relative threat* SCORE Moderate Risk Urban 0 = N/A 1 = Low 2 = M oderate 3 = High 0 = N/A 1 = Low 2 = M oderate 3 = High 0 = N/A 1 = Low 2 = M oderate 3 = High 0 = N/A 1 = Low 2 = M oderate 3 = High 0 = N/A 1 = High 2 = M oderate 3 = Low or none 0 = N/A 1 = High 2 = M oderate 3 = Low or none 0 = N/A 1 = High 2 = M oderate 3 = Low or none 0 100% % High Risk Urban % Moderate Risk Suburban High Risk Suburban Moderate Risk Rural % % % High Risk Rural % Low Risk Rural % AVERAGE SCORE % *Threat increases with percentage. 13 RISK = PROBABILITY * SEVERITY HAZARD AND VULNERABILITY ASSESSMENT TOOL NONSTRUCTURE FIRES EVENT PROBABILITY Likelihood this will occur HUMAN IMPACT Possibility of death or injury PROPERTY IMPACT Physical losses and damages SEVERITY = (MAGNITUDE MITIGATION) BUSINESS PREPARED IMPACT NESS Interuption of services Preplanning INTERNAL RESPONSE Time, effectivness, resouces EXTERNAL RESPONSE Community/ Mutual Aid staff and supplies RISK Relative threat* SCORE 0 = N/A 1 = Low 2 = M oderate 3 = High 0 = N/A 1 = Low 2 = M oderate 3 = High 0 = N/A 1 = Low 2 = M oderate 3 = High 0 = N/A 1 = Low 2 = M oderate 3 = High 0 = N/A 1 = High 2 = M oderate 3 = Low or none 0 = N/A 1 = High 2 = M oderate 3 = Low or none 0 = N/A 1 = High 2 = M oderate 3 = Low or none 0 100% High Risk Urban % Moderate Risk Urban % Low Risk Urban % Urban/Wildland Interface % AVERAGE SCORE % *Threat increases with percentage. 8 RISK = PROBABILITY * SEVERITY

133 HAZARD AND VULNERABILITY ASSESSMENT TOOL EMSMEDICAL ASSISTS SEVERITY = (MAGNITUDE MITIGATION) EVENT PROBABILITY Likelihood this will occur HUMAN IMPACT Possibility of death or injury PROPERTY IMPACT Physical losses and damages BUSINESS IMPACT Interuption of services PREPARED NESS Preplanning INTERNAL RESPONSE Time, effectivness, resouces EXTERNAL RESPONSE Community/ Mutual Aid staff and supplies RISK Relative threat* SCORE 0 = N/A 1 = Low 2 = M oderate 3 = High 0 = N/A 1 = Low 2 = M oderate 3 = High 0 = N/A 1 = Low 2 = M oderate 3 = High 0 = N/A 1 = Low 2 = M oderate 3 = High 0 = N/A 1 = High 2 = M oderate 3 = Low or none 0 = N/A 1 = High 2 = M oderate 3 = Low or none 0 = N/A 1 = High 2 = M oderate 3 = Low or none 0 100% High Risk % Moderate Risk % Low Risk % AVERAGE % *Threat increases with percentage. 6 RISK = PROBABILITY * SEVERITY HAZARD AND VULNERABILITY ASSESSMENT TOOL RESCUE EVENT PROBABILITY Likelihood this will occur HUMAN IMPACT Possibility of death or injury PROPERTY IMPACT Physical losses and damages SEVERITY = (MAGNITUDE MITIGATION) BUSINESS IMPACT Interuption of services PREPARED NESS Preplanning INTERNAL RESPONSE Time, effectivness, resouces EXTERNAL RESPONSE Community/ Mutual Aid staff and supplies RISK Relative threat* SCORE 0 = N/A 1 = Low 2 = M oderate 3 = High 0 = N/A 1 = Low 2 = M oderate 3 = High 0 = N/A 1 = Low 2 = M oderate 3 = High 0 = N/A 1 = Low 2 = M oderate 3 = High 0 = N/A 1 = High 2 = M oderate 3 = Low or none 0 = N/A 1 = High 2 = M oderate 3 = Low or none 0 = N/A 1 = High 2 = M oderate 3 = Low or none 0 100% Rescue MVA % Rescue Structural Collapse % Rescue Trench % Rescue Low/High Angle Rescue Confined Space % % Rescue Swiftwater % Rescucu Survace Water % Rescue Ice % Rescue Other % AVERAGE % *Threat increases with percentage. 13 RISK = PROBABILITY * SEVERITY

134 EVENT SCORE High Risk Hazmat Urban Moderate Risk Hazmat Urban Low Risk Hazmat Urban High Risk Hazmat Suburban Moderate Risk Hazmat Suburban Low Risk Hazmat Suburban High Risk Hazmat Rural Moderate Risk Hazmat Rural Low Risk Hazmat Rural PROBABILITY Likelihood this will occur 0 = N/A 1 = Low 2 = M oderate 3 = High HAZARD AND VULNERABILITY ASSESSMENT TOOL HAZARDOUS MATERIALS HUMAN IMPACT Possibility of death or injury 0 = N/A 1 = Low 2 = M oderate 3 = High PROPERTY IMPACT Physical losses and damages 0 = N/A 1 = Low 2 = M oderate 3 = High SEVERITY = (MAGNITUDE MITIGATION) BUSINESS IMPACT Interuption of services 0 = N/A 1 = Low 2 = M oderate 3 = High PREPARED NESS Preplanning 0 = N/A 1 = High 2 = M oderate 3 = Low or none INTERNAL RESPONSE Time, effectivness, resouces 0 = N/A 1 = High 2 = M oderate 3 = Low or none EXTERNAL RESPONSE Community/ Mutual Aid staff and supplies 0 = N/A 1 = High 2 = M oderate 3 = Low or none RISK Relative threat* 0 100% % % % % % % % % % AVERAGE % *Threat increases with percentage. RISK = PROBABILITY * SEVERITY

135 HAZARD AND VULNERABILITY ASSESSMENT TOOL NATURALLY OCCURRING EVENTS SEVERITY = (MAGNITUDE MITIGATION) EVENT PROBABILITY HUMAN IMPACT PROPERTY IMPACT BUSINESS IMPACT PREPARED NESS INTERNAL RESPONSE EXTERNAL RESPONSE RISK Likelihood this will occur Possibility of death or injury Physical losses and damages Interuption of services Preplanning Time, effectivness, resouces Community/ Mutual Aid staff and supplies Relative threat* SCORE 0 = N/A 1 = Low 2 = M oderate 3 = High 0 = N/A 1 = Low 2 = M oderate 3 = High 0 = N/A 1 = Low 2 = M oderate 3 = High 0 = N/A 1 = Low 2 = M oderate 3 = High 0 = N/A 1 = High 2 = M oderate 3 = Low or none 0 = N/A 1 = High 2 = M oderate 3 = Low or none 0 = N/A 1 = High 2 = M oderate 3 = Low or none 0 100% Hurricane % Tornado % Severe Thunderstorm % Snow Fall % Blizzard % Ice Storm % Earthquake % Tidal Wave % Temperature Extremes % Drought % Flood, External % Wild Fire % Landslide % Dam Inundation % Volcano % Epidemic % AVERAGE SCORE % *Threat increases with percentage. 27 RISK = PROBABILITY * SEVERITY

136 EVENT SCORE PROBABILITY Likelihood this will occur 0 = N/A 1 = Low 2 = M oderate 3 = High HAZARD AND VULNERABILITY ASSESSMENT TOOL TECHNOLOGIC EVENTS HUMAN IMPACT Possibility of death or injury 0 = N/A 1 = Low 2 = M oderate 3 = High PROPERTY IMPACT Physical losses and damages 0 = N/A 1 = Low 2 = M oderate 3 = High SEVERITY = (MAGNITUDE MITIGATION) BUSINESS PREPARED IMPACT NESS Interuption of services 0 = N/A 1 = Low 2 = M oderate 3 = High Preplanning 0 = N/A 1 = High 2 = M oderate 3 = Low or none INTERNAL RESPONSE Time, effectivness, resouces 0 = N/A 1 = High 2 = M oderate 3 = Low or none EXTERNAL RESPONSE Community/ Mutual Aid staff and supplies 0 = N/A 1 = High 2 = M oderate 3 = Low or none RISK Relative threat* 0 100% Electrical Failure % Generator Failure % Transportation Failure % Fuel Shortage % Natural Gas Failure % Water Failure % Sewer Failure % Steam Failure % Fire Alarm Failure % Communications Failure % Medical Gas Failure % Medical Vacuum Failure % HVAC Failure % Information Systems Failure % Fire, Internal % Flood, Internal % Hazmat Exposure, Internal % Supply Shortage % Structural Damage % AVERAGE SCORE % *Threat increases with percentage. 20 RISK = PROBABILITY * SEVERITY

137 EVENT SCORE Mass Casualty Incident (trauma) Mass Casualty Incident (medical/infectious) PROBABILITY Likelihood this will occur 0 = N/A 1 = Low 2 = M oderate 3 = High HAZARD AND VULNERABILITY ASSESSMENT TOOL HUMAN RELATED EVENTS HUMAN IMPACT Possibility of death or injury 0 = N/A 1 = Low 2 = M oderate 3 = High PROPERTY IMPACT Physical losses and damages 0 = N/A 1 = Low 2 = M oderate 3 = High SEVERITY = (MAGNITUDE MITIGATION) BUSINESS IMPACT Interuption of services 0 = N/A 1 = Low 2 = M oderate 3 = High PREPARED NESS Preplanning 0 = N/A 1 = High 2 = M oderate 3 = Low or none INTERNAL RESPONSE Time, effectivness, resouces 0 = N/A 1 = High 2 = M oderate 3 = Low or none EXTERNAL RESPONSE Community/ Mutual Aid staff and supplies 0 = N/A 1 = High 2 = M oderate 3 = Low or none RISK Relative threat* 0 100% % % Terrorism % VIP Situation % Infant Abduction % Hostage Situation % Civil Disturbance % Labor Action % Forensic Admission % Bomb Threat % AVERAGE % *Threat increases with percentage. 11 RISK = PROBABILITY * SEVERITY

138 Analysis Reports Call Processing Call processing is the sole responsibility of the individuals within the Emergency Communications Center. Telecommunicators, or dispatchers, receive training in Medical Priority Dispatch and are expected to adhere to the call processing standards set forth by that credentialing agency. Call processing areas of potential improvement include: 1. Lack of formalized performance objectives for telecommunicators. 2. Lack of operational oversight by fire department administrative personnel leading to lack of control over call processing time issues. Figure 60: Call Processing History First Arriving Unit Call process Time History First Arriving on Emergency Calls Average 0:46 0:44 0:40 90 th Percentile 1:33 1:28 1:19 Turnout Time As discussed earlier in this report, turnout time is one area of the overall response time that field personnel have at least some ability to control, given proper facilities that allow for rapid and efficient movement of personnel. Areas of potential turnout time improvement include: 1. First unit turnout times well beyond expectations and objectives. Historical turnout time performance for the initially dispatched unit has been stable over the last three years, as indicated below. Figure 61: Turnout Time History First Arriving Unit Turnout Time History First Arriving on Emergency Calls Average 0:49 0:52 1:09 90 th Percentile 1:28 1:34 2:19 Travel Time Travel time is one component of total response time that is rarely controllable by fire department personnel. Traffic congestion, intersections, construction, and distance all play crucial roles in travel time. 111

139 1. Average and 90 th percentile travel time beyond the modeled and expected travel times. Historical travel time performance for the initially dispatched unit has decreased over the last three years, as indicated below. Figure 62: Travel Time History First Arriving Unit Travel Time History First Arriving on Emergency Calls Average 3:19 3:18 3:01 90 th Percentile 5:16 5:10 4:51 First Arriving Unit Time Upon evaluation of the data retrieved from both the CAD and NFIRS datasets, nonemergency responses and miscellaneous calls were removed in order to gain a full understanding of how well the system was performing for emergency incident first unit arrival times. Over the last three years of CAD data, response time performance has increased by a total of six percent when measured at the 90 th percentile and seven percent on average. Potential areas of first unit arrival time improvement include: 1. Average and 90 th percentile first unit arrival time beyond expectations and objectives. Historical first unit arrival time performance has decreased over the last three years, as indicated below. Figure 63: Response Time History First Arriving Unit Response Time History First Arriving on Emergency Calls Average 4:08 4:10 4:10 90 th Percentile 6:44 6:44 6:40 Effective Response Force Effective Response Force (ERF) is the number of personnel required to be present on the scene of an emergency incident to perform the critical tasks in such a manner to effectively mitigate the incident without unnecessary loss of life and/or property. The ERF is specific to each individual type of incident, as are the critical tasks that must be performed. For the purposes of this example, high and maximum risk incidents have been utilized, and it is assumed that lower risk incidents will have better performance than those that require a higher concentration of resources. Over the last three years of CAD data, EFR concentration performance has decreased by a total of 5 percent when measured at the 90 th percentile, and 6 112

140 percent on average. Areas of potential improvement in Effective Response Force concentration include: 1. Average and 90 th percentile Effective Response Force concentration times are beyond expectations and objectives. Historical ERF concentration performance has increased significantly over the last three years, as indicated below. Figure 64: Effective Response Force Assembly Performance Effective Response Force Assembly Performance Average 7:42 7:36 9:31 90 th Percentile 11:53 12:02 13:29 Data Collection and Reporting In order to adequately evaluate the performance of any system, accurate data must be available. Without accurate data, conclusions drawn from any analysis conducted are suspect. Given the call volume and complexity of BFD, the validity of data is crucially important. The term, garbage in, garbage out is more important than ever when attempting to evaluate an emergency response system in an effort to validate the need for resources. Without accurate and reliable data, very little can be accomplished in terms of performance evaluation and improvement. As is true with any data analysis, however, there should be an understanding of how the analysis compares to real world experience. The data presented in this document indicate that BFD is performing at a level consistent with industry best practices. 113

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