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5A - Recommendation to City Council concerning the Fire-Rescue Master Plan and Approval of the Boulder Valley Comprehensive Plan (BVCP) Fire-Rescue Master Plan Summary CITY OF BOULDER PLANNING BOARD AGENDA IT)H:M MEETING DATE: February 19, 2009 AGENDA TITLE: Consideration of: I. A recommendation to City Council concerning the Fire-Rescue Master Plan and 2. Appz-oval of the Boulder Valley Comprehensive Plan (BVCP) Firc-Rescue Master flan Summary. REQL'F.STING llEPARrfMENf: Planning Department Ruth McHeyser, Executive llirector for Community Planning Susan Richstone, Long Kange Planning Manager Chris Meschuk, Planner lire Department Larry I). Donner, Firc Clzief Frank Young, Dcput_y Fire Chief F,Xh',CU"TINE SUMMARY: "hhe purpose of this meeting is to review the Fire-Rescue Master Plan and provide a rccornmendation to City Council and approve the I3VCP Tire-Rescue Plaster Plan Summary. The Fire Master Plan is the city's 10-year plan to ensure public safety and addresses the department's strengths, existing deficiencies, and outlines a plan for cost effective emergency and fire-protection services into the future. The master plan outlines 6 primary goals for Boulder Fire-Rescue, and three primary investment priorities to further the goals. "1'he last Fire Master Plan was approved in I99f. The plan identifies the budgef needs and funding strategies for the department. Current funding for the department is $12.8 million. The department is currently not capable of maintaining service levels due to increased demand, and decreased funding. "Phis means that the current budget is inadequate to maintain 2008 service levels, and is currently not meeting the adopted BVCP urban service criteria and standards. The plan identifies that as redevelopment continues, service demands and challenges in meeting the service standards will only increase. The master plan identifies one time, on-going, and capital needs to maintain basic services. Once the basic service levels are maintained, identified needs in the action and vision plans are identified, for a total of $34.2 million. AcrENllA ITF,M # SA Pale 1 Tllc lie~uldcr Valley Comprehensive Plan (BVCP) provides ~t I;cncral statement oi•thc commwlity's long-term desired future. Departmental and system master plans take the goals and policies of the BVCP and provide specific guidance for delivering city services. Master plans establish detailed policies, priorities, service standards, facility and system needs and capital budgeting for the delivery of services. The Planning Board's role in reviewing master plans is to look for consistency with the BVCP goals and policies before the plans are considered by the City Council. Because of its role in reviewing the Capital hnprovements Program (CII'), the Planning Board also reviews master plans to ensure that they identify needed improvements and financial strategies to meet adopted service standards. Master plans provide a bridge between the Comprehensive Plan, service delivery, future capital needs, and the CIP. "I'he questions that are the focus of the Board's review are: 1. Is the master plan consistent with the goals, policies, and growth projections of the Boulder Valley Comprehensive Plan'? 2. Does the Master Plan outline the BVCP Service Standards and a plan to meet them into the future? 3. Does the plan describe and assess capital needs and a funding plan for them`? After t17c Planning Board's review of the lire-Rescue Master Plan, the document will be forwarded to City Council for its consideration. Revisions to the BVCP Master Plan and Program Summaries arc included in the comprehensive plan following acceptance of plans by City Council. Attachment A contains the Firc-Rescue Master Plan. Attachment B contains I"CVlsll)17s t(7 lhC BVCP Dire-Rescue Master Plan Summary. S"fAFF RF,CO:VIME\`DA1'ION: Staff recommends that the Planning Board: I. Recommend that the City Council accept the l~irc-Rescue Master Plan, and 2. Approve the proposed changes to the BVCP lire-Rescue Master Plan Summary. In addition, staff recommends that completing the community fire-risk analysis and traffic study in 2010 is vital to develop a plan to maintain appropriate service levels and standards consistent with the adopted BVCP urban service criteria and standards. HIRE,-R1?SCUH: hIAS['h~R PLAN OVERVIF;W fic>uldcr Dire-Rescue. resluuuls to all hazards and provides services to include: • fight structural and wildland fires. • respond to medical emergencies, rescue situations, and hazardous material releases, as well as natural disasters and terrorist threats. • provide fire-safety education for the public, from children and youth (preschool through college-age) to seniors. . :~c.t•:?vun rrr.M # SA 1'aQe i • work with local businesses and organizations by inspecting buildings and reviewing construction plans for fire prevention. ' • act as the federally designated emergency response authority (DERA) for the city for hazardous materials. • protect over $20 billion dollars worth of property within the city, which encompasses 25.37 square miles of land, and is suz-rounded by 64.8 square miles of city open space and mountain parks. Boulder Fire-Rescue Mission is to make Boulder a safe place to live and work. The department protects the community from fires and hazardous materials releases, and responds to urgent medical needs, accidents, and natural disasters. The department has established six goals related to the mission: Goal I-Provide effective response to emergencies. Goal 2-Develop and train firefighters. Goal 3--Upciatc our facilities and infrastructure. Goal 4--Provide and manage critical resources. Goal S--Improve firefighter safety. Goal 6 Enhance basic service to the community, including education and disaster plazzning. Boulder Fire-Rescue has developed three priorities for future investments. The first and foremost is to ensure the safety of the community (fiscally constrained). This means providing firefighters the training, equipment, and other resources needed to protect people and property in the city of I3outder. The second priority (action plan) is to provide adequate equipment, facilities, and infrastructure for the Firefighters. tJp-to-date safety equipment, fire engines, and adequate facilities ensure they can respond to emergencies quickly and effectively. finally, the department needs to be able to adapt to changing needs (vision plan). "1'hc department needs vision and flexibility, as well as resources, to respond to changing conditions in the city and the community. PUBLIC: PRUCLSS: On January I5, 2008 an open house was held in the lobby of the Municipal building. Displays and draft copies of the Fire Master Plan were available for public review and comment. In October of 2008 the City Staff Master Plan Review Committee considered the Fire Master Plan and provided extensive feedback. ANALYSIS: 1. Is the master plan consistent with the goals, policies, and growth projections of the Boulder Valley Comprehensive Plan? Staff considers that the Fire-Rescue Master Plan is generally consistent with the goals, policies, and growth projections of the Boulder Valley Comprehensive Plan, and identifies where the department is not meeting the goals and policies. In particular, the following BVCP policies are most relevant to the Fire-Rescue Master Plan: ACI!;NDA ITEM # SA Page 3 • Leadership in Sustainability (l .07) • Provision of Urban Services in the Boulder Valley (3.01) • Definition of Adequate Urban Facilities and Services (3.02) • Phased Extension of Urban Services/Capital Improvements Program (3.U3} • Growth to Pay fair Share ofNew Facility Costs (3.05) 1.071.eadership in Sustuinahility. 1'!re city acrd county will apply the principles ofsustainability tv their actions and decisions. "1'he city and county will act as community leaders and stewards of our resources, serving crs ct role model for others and s[riving to create a sustainable community that lines conscientiously as part of the planet and ecosystems we inhabit and tha! are influenced by our actions. T l»-vugh thcrir master plans, regulations, policies and prvgrnms, the oily and county will strive to create a healthy, vibrant and sustainable community for future generations. The Fire-Rescue Master Plan recognizes that part of being a sustainable community is to provide the basic services of protection and safety, which Boulder Fire-Rescue is a significant part of. 3.Of Provision of Urban Services in the Boulder Valley. The city and county ir:tend that new urban development not occur until acfequcrte urban facilities and services are available to serve the development. The county experience indicates that provision vJthe full range of urban facilities and services by a municipality is preferable to provision of urban facilities and services by special dis•lrictr and f»-ivate groups in part because municipalities {TUVe politically accountable leadership, general police power and the ability to coordinate provision of adequate urban facilities and .services. Ther~fa•e., it is hereby presumed that adequate facilities and services can be provided only by the city of Boulder. the city will extend,,furnish yr provide such services at such time as it can provide them all us provided under paragraph 3.02(c•J below and the Urban Service Criteria and Standards section of this• plan. However, it is not the irrtenl to preclude the development and use ref alternative•facilities and service systems for new urban development so long us they are adequate as provided under paragraph 3.02(c) and the Urban Bernice Criteria and Standards section vJthis plan. 3.02 Definition of Adequate Urban Facilities and Services. a) `Adeyuafe facilities and services 'for new urban residential development means the availability of public water, public sewer, stormwater and,flood nranagemerrt, urban fire protection and emergency medical care, urban police protection, urban transportation, developed w-ban parks, and schools Cased upon the c•r•iteria set forth in subparagraph (c) below. b) 'Adequate facilities and services' for new urban industrial and commercial development means the availability gfpublic water, public sewer, stormwater and flood management, urban fire pro[ection and emergency medical cure, urburr police protection, and urban transportation, based upon the criteria set, forth in subparagraph (c) below. c) The availability and adequacy of urban facilities and services us set forth !n subparagraphs (a) and (b) above will be deternrined haled upon the following criteria and as further defined in the Urban Service Criteria and Standards section of [his plan. Determinations offacilities and sen~ices adequacy will be based upon the following- criteria: (i) Responsiveness to public objectives (ii) Sufficiency and dependability of financing (iii) Operational effectiveness (iv) Adequacy of equipment and facilities (v) Proficiency of personnel 3.03 Yhused Extension of Urban Services/Capital Improvements Prograrn. d) The c.•itys Capita! Improvements Program (CIP) is u n:ujor program for funding an adequate range of urban services and foci/ides within Area 1 and Area fl as annexation occurs during the planning . period. The Capital hnprovements Program, within the framework of a responsible budget of balanced revenues and expenditures, schedules the necessary capital projects to ensure maintenance AGENDA tTF,M # SA Pa~.;e 4 of un adequate range of urban services within Area 1 and to provide urban facilities and services to Areu 11 through annexation vn a phased and orclerty basis over the planning period. The CIP is a tool to direct the location and timing ofgrowth by coordinating and targeting public capital expenditures. 3.OS Grvwtl: to Pay Fair Sl:are ~f New Facility Costs. Since the public costs orunnexativn and developing several areus concurrently could prove excessive, the city will limit said costs to those, which can reasonably be accommodated within the Cupitu! Improvements Progrum cntd are camputible with anticipated revenues. When permitting additiortul development or redevelopment, the city will consider whether public facilities and services are adequate to reasonably maintain current levels of ser7~ice or service standards given the impacts ~jsuch additional developnrcnt or committed funding sources for such adequate. facilities are sufficient to ensure their provision in u timely fashivrt. Growth will be expected to pay its vevn way, with the requirement that new development pay the cost vJproviding needed facilities and un equitable share of services including affordable housing, and to mitigate negative impacts such us those to the transportation system. Boulder Fire-Rescue provides a vital urban service. `T'he current level of service provided to the community by Boulder Dire-Rescue is not sustainable under current funding, and will he reduced i C additional finding is not provided. .Both as a result of a general increase in traffic congestion in certain parts of the city and densification and redevelopment, the department has seen an increased level of demand, and therefore a decreasing level of service. In addition, projected growth in various ~.u-eas of the city will require services beyond the current capabilities of the existing stations and operations. The master plan is recommending that a community f-ire-risk analysis and a traffic study be coznpleted, which will assist in identifying strategies for either meeting or changing the service standards. Implementation of the new development excise tax/impact fee study recommendations would address redevelopment and new development paying its fair share of facility costs tc> maintain current service levels for Boulder Fire-Rescue. However, this would not address existing deficiencies. T3ased on the goals of the department, the following strategies have been identified to reduce service levels to available funding: • Maintain the current level of service to the community. - Individual fire trucks will be permanently unstaffed or staffed only when needed during an emergency. - Daily closures of fire stations will be made on a rotational basis. - Special teams will be eliminated, including Dive Rescue, Wildland Fire, and Public Education. - Staffing in the Fire Safety Division will be reduced. - Hiring of two firefighters will be frozen. • Ensure firefighter safety. - Internal programs that would have direct implications for the safety of firefighters will not be implemented- These include fire scene accountability, fire scene safety officer, wellness/fitness, building pre-incident planning, and professional certifications. • Address deficits in equipment and apparatus replacement and repair. -There will continue to be no fire truck replacement schedule or funded replacement program. - The current loan payments to the City Fleet Replacement bond will be suspended. - Ongoing equipment repair and replacement will be postponed. AGENDA 1'CFM # SA Pa>?e 5 • Ensure facilities are adequate and maintained. ' -Funding to operate or maintain the new fire training center will be eliminated. - Ongoing maintenance and upgrades of fire stations will be postponed. 2. Does the master plan outline BVCP Service Standards and a plan to meet them into the future? Policies 3.01 (Provision of Urban Services in the Boulder Valley), 3.02 (Definition of ndequate urban facilities and Services), 3.03 (Phased Extension of Urban Service /Capital Improvements Program) and the defined Urban Service Criteria and Standards describe the service standards service delivery expectations and the capital planning process- "T'he department is not currently meeting the service standards. It is recommended that a fire risk analysis to assess specific fire and erncrgency risks in the community be undertaken, as well as a citywide traffic study. It is hoped the two studies will provide insight on why the department has not been able to meet response standards in recent years. Analysis from the traffic study and risk analysis will help the city deternline: I) strategies that might help the department meet BVCP standards, and 2) whether and how to change BVCP standards. The BVCP outlines service standards (Appendix D in the BVCP) for fire protection and emergency medical care- The service standards are listed below, with the current and future plans to address meeting them in the future: (1) Responsiveness to Public Objectives (a) Provide fire protection 24 how's per duy with,Jirll-time, trained personnel. (b) Iluve response time ro location of emer~•ency that is normally six minutes or less in elapsed time from the time the call is received by the communication cen[er until the urrival of the first fire fighting apparatus. Cvnvnand vehicles will not be considered,fire Jghting upparaA~s for this purpose. If nvn- residentia!land is annexed outside the six minute response limit but within eight minutes, struclw•es must be protected by a ire .Sprinkler sysfem as provided in Boulder Revised Code, Title 10, Chapter 8 in effect at the time of the annexutiorr. (c) have the ability tv re.5pond with a minimum of three firefighters per pzcrnper. (d) Kespond with fire:Jighters trained in emergency medical assistance and rescue techniques. ?'he standard fur Basic .Life Support (BLS) response will be: I) Ninety percent of BLS calls will he responded to within sir minutes; and 2) AII.BLS calls will be responded co within eight minutes; and 3} Respond with Advanced I ife S'rtpport (ALS) to all calls within eil;ht minutes. Currently, Boulder Fire-Rescue provides fire protection 24 hours per day, with three firefighters per pumper. Due to the current funded firefighters, the department faces regular overtime costs to pay firefighters to ensure staffing remains at three firefighters. The department currently responds to emergencies within six minutes 79.8% of the time, well below the 90% standard. The master plan outlines options to meet these standards, including addition of firefighters, engines, stations, or adjusting the accepted response times. (2) Su/ficiency of Financing (a) Ilctve funds available to provide a consistent level of fire protection. (b) Be organized to request and receive state and federalfuncts, when available, for equipment and facilities. The department does not currently have the funding to provide a consistent level of fire protection, and although it Iaas been successful in receiving state and federal grant funds, the department currently is not seeking gray outside funding due to a lack of matching funds being available. The Master Plan outlines the items needed to meet current service levels, as well as increasing service through the action and vision plans. I~[owever, the department cannot begin AGENDA ITEM. # SA Paee 6 looking at potential action and vision plan additions until the budget gap (action plan tier I) is funded. If' funding is not secured for the current level of service, the master plan outlines the steps the department could take, ranging from rotational closures of fire stations to the discontinuation of fire safety and fire prevention programs. (3) Operational Effectiveness (a) Use annual budge! for personnel, equipment and facilities. (fiJ .See Public Water 3-d, i & ii. (c.) Adopt, rrdrreinister and er~orce ftre prevention and life safety codes. (d) Inspect building plans !o ensure they meet applicable fire prevention and life safety codes. (e) Inspect commercial and industrial structures approximately atce a year. Upon regt<est, provide u voluntary home inspection program for potential fire hazards. (g) Maintain mt inventory gjindustrial hazardous material storage. (h) Review the design o/'land development in relation to provision of fire protection. The department currently uses an annual budget and the city has adopted, administers, and enforces fire prevention and life-safety codes tlu•ough the International Building Code and International Fire Code. Currently, the department provides review of development applications for the provisions of fire protection, and inspection programs. If the current funding gap (action plan tier 1) is not addressed, the department has identified that eliminating the services provided in this section is one way to address the shortage. If funding is expanded for the departzx?ent, the masier plan identifies where additional monies could be allocated based on priorities and identified needs. (4) Locution and Adequacy of Fquipment and Facilities (a) f.ocate fire stations so that they are wilhin asix-minute response time. (b) See f ithlic Water, Sectiort 5 d, S e, S f.' The department's 1996 master plan outlined the need for new facilities in east Boulder to meet the six-minute fire response time standard. The construction of Station 7 on 55th Street helped meet part of this need. However, there remains a gap in meeting fire response standards in north Boulder, in the Valmont and Foothills Park areas. New housing is being developed in the area served by Station 3, such as the 390-unit Pelotoii condominiums and the 'T'ransit Village area. Knowing that this increase in population and traffic congestion will increase demand for emergency services, the departmeni believes that building a new fire station or relocating an existing fire station in this area would help firefighters respond to residents in northeast and east- central Boulder within current response-time standards. AGENDA ITEM # SA Pale 7 SERVlC>: STANDARD PERFORMANCE Sfantlard Performance in 2007 E~ir4t unit arris~ce on sC Crti iu G nrinutis ur tcis `f0 ;i, u f tho f imi .'•9.&"., All units arricc on ~rrne in l T nunutca or tc~n !~S,• of Ihi time R.3"., :\iru:al iire rl<?altx I nr liver }Xr li10,000 pr~ulalion 0 Airrura! community fire injurir? fi),x Fewerper t00,b01! }x>Ewlafion ' ? 1x•r i11Q0U0 Artnuaf (n_IiT;!rter ~njuricsEcssEhan 7 I)rr 10f1lire T.2 fMr'IOfI Eris Anaual EireGryhtcr injurie. 1~~~ than 3 }+tr lOft firefi;;fttcr3 i.R per l00 lircli~lrien Annual il:reit lirt• Itss 50.30 rx les; Ixr $1,fjU0.)ctual value IAOlccii:d 50.2 % pir $1,01X7 v:)lue p:o1c~ cC :lurfral cr~,1 of fire prt,utition 51 U or h-s pt+i apila y! ,1 3 : na tapitz Ar:naal ro51 0l lire prr,lir.tion $f?.t10 qr IPS Ixr 51,000 actual :glut Ixoleeaec: SO.GT }x•r 51,Otx) vahx• }n<~lCXair' f uLtic .tpr,ruaal wring tircNir Iltan i;4'; 8:~';:, rated (ltruldcr Eirc Rcsr_tn' ''~~cr)• fnrxt" „r "G,xxl" NOTES: } 1 INDK:ATES A NATiONAI STANDARD (All others are reginrWl, measurable kk~t }+r:Kticcsl L - NED TEX1 INDKAT(S 5TAN1;'ARO NO7 tiEtNf. AfET 3. Does the plan/update describe and assess capital needs and a funding plan for them? The plan describes and assesses capital needs for Boulder Tire-Rescue. However, the majority of needs for the department are related to personnel and non-capital equipment needs. The fiscally constrained plan has no capital needs, as it is focused on enhancing and establishing the core services for the department. The Action Plan includes several facility improvements, including the relocation ofiFire Station 3 out of the 17ovdplain at a cost of $3,2.50,000, construction of a central wildland fire facility ($1,000,000), and construction of an equipment storage facility ($500,000). The Vision Plan includes the replacement of Stations 2, 4, and 6, and rehabilitation of remaining stations, for a total of approximately $12 million. The most immediate non-t<zcility need is related to the replacement of fire engines. 1'he department does not have a separate, dedicated fund for fire engine and equipment replacement. The department utilizes the city's Fleet Services fleet replacement fiznd as a leasing agent for replacing fire engines. When the city's fleet replacement fund generates excess dollars, Fleet Services purchases a fire engine, and the department makes annual payments to the fund. Boulder Fire-Rescue is the only city department that replaces vehicles through this process. The department cuzTently owes Fleet Services $2.9 million, and pays $325,000 annually toward this debt. 'T'here cuz-rently are several old or outdated vehicles in the department's Meet, and no set schedule or plan tv replace them. The next available dollars to purchase new engines/equipment from Fleet Services will he in 2019. CONCLUSION: In answering the questions before the Planning Board, staff believes that: 1. The Fire-Rescue Master Plan is consistent with the goals, policies and growth projections of the I3VCP. AGENDA ITEM # SA Pale R 2. The Fire-Rescue Master Plan outlines the BVCP service standards, and identifies the current deficiencies, and funding and planning needed to ensure compliance in the future. 3. The Fire-Rescue Master Plan identifies potential capital projects and anticipated costs. Although current funding levels do not cover current expenses, the plan will be used to assist in prioritization of funding future projects. Approved By: lQ I Ruth McHc ser ~ ~J y 1?xecutive Director of Com pity Planning ATTACHIVIENTS• A: Fire-Rescue Master Plan B: Revisions to the BVCP Fire-Rescue Master Plan Summary AGENDA CTEM # ~A I'aQe 9 ;~tt.~chment A D - D~ ,D Cit o~ ~ou~c~c~r y ' er Pan ~~re--Rescue 2009 Mast ~ ~ ~ :r. 'f i~~~~ +u:sruL Ngenc~ Item ~ ~ Acknowledgements . Ta61e o~ Contents Executive Summary ............................................••••••••i Sidebars ~ Chapter 1-Introduction to the Boulder Fire-Rescue \4astcr Plan ...................1 Chapter 2 - ICcy Citywide Issues and Trends and How They Affect the Department ,9 Brief History of the Department ...............1 Chapter 3 -Standards, Levels of Risk, Performance, and Options to Improve Sen~ices .17 Boulder Fire-Rescue Basic and Chapter 4 -Department Issues and Funding Nccds .............................29 Advanced Life Support ............................2 Chapter 5 -Investment Plan ................................................35 Boulder Fire-Rescue Mission ...................Z What happens when you call 9-7-1? .......4 i Maps/Figures/Tables Mutual Aid ..............................................5 Service Standard Perfortnance ......................................................ii Broader Responsibilities Today ................5 Funding Plans ...................................................................iv City Council Goals..................................6 Boulder Fire-Rescue Stations and Response Districts ...................................3 Plan Assumptions .......7 Us ii gnd ~~Iccu i Standards ....g • • • • ~ • ' ' • • • • I8 1 SOOZCaII Threshlold nd-Urban Interface10 Dc ~g nncnt Ur ~ ~ ational Chart ..................................................19 yRisk.................................................9 Stratc Increase Level of 'I'rain~n Su•atcgy: Improve Compliance with Volungrg Standards ...............................19 ' What is the acceptable Iccel of risk to the connnuniq? .................................20 Fire Prevention Education......................1 l Amiual Responses 1997-?.007 ~ Dces a 100-year flood occur every i 2003-2007 l=ire Losses • , • • • • , , , . , , ,23 100 years? .....................................12 2007 Incident Responses . . . . . . . . . . . .........23 What happens when a business Six Minute Goal -Current and Future ...............................................25 experiences a major fire? ..............12 Strategy: Increase Level of Training . .........32 Fire Riskin Existing Structures ...............12 Boulder Fire-Rescue Goals ........................................................35 Removing the Fuel: Wood Ronfs............13 2009 Fire-Rescue Budgct .........................................................36 Building and Fire Codes -First Line Tier 1 Acdon Plan: $1.8 Million ....................................................38 of Defense ....................................13 i Funding Plans .................................39 Evacuation Checklist .............................14 Risk-management Planning ...................15 Peak Demand Time ................................17 Appendix Will towering Boulder's ISO grade A Wildfire F,~~acuation Routes B Action Plan Ticr 1 Funding Recommendations save money? .................................20 C Action Plan'1'ier 2 Funding Recommendations Firefighter Gear .....................................21 U Vision Plan >~unding Recommendations Future Performance Measures ................22 E Glossary Total Cost of Fire ....................................22 The Importance of Time: The Critical First Few Minutes .............24 Emergency Response Time Components .................................26 As Boulder Grows, Traffic Slows ............26 How does Boulder compare to other cities? ...................................27 Why Response Times Vary in Boulder ....28 Fire Engine Replacement .......................30 Boulder's Fire Engines ............................30 Critical Facilhies ....................................31 Boulder Fire Stations ..............................31 firefighter Training .................................32 Firefighter Certification Levels ...............33 Boulder Fire-Rescue and the General Fund .............................................35 Voters Approve Two Ballot Measures in November 2008 ............................35 Alignment with the City Business Plan...36 What is the impact of not funding the Action Pian Tier 1 .........................38 pp"",,..,, Recyc~le(~d~, Content Paper Executive Summary The Boulder Fire-Rescue Master Plan is the city of Boulder's 10-year plan to ensure public safety. The master plan builds upon the department's strengths and addresses existing deficiencies. It defines a future course for providing High-quality and cost-effective emergency services and enhancing public safety education and fire prevention ef- forts. tt addresses department challenges, including a Lack of resources resulting from a city budget that may con- tinue to decline for the foreseeable future. This master plan also reflects the department's intent, with future additiona{ funding, to improve emergency response capabilities, which will benefit everyone who lives, works, and plays in Boulder. What does the Master Plan Contain? Department Mission, Services, and Accomplishments Key Demographic. Trends Major Challenges Standards, Risks, and Department Performance Options to Improve Services Funding Needs Master Plan Goals Investment Priorities Funding Pian Scenarios Recommendations and Strategies Implementation/Next Steps Boulder Fire-Rescue Mission boulder Fire-Rescue strives to make Boulder a safe place to live and work. We protect the community from fires and hazardous materials releases, and we respond to urgent medical needs, accidents, and natural disasters. Boulder Fire-Rescue Philosophy To be effective, firefighters must be well-trained, well-equipped, and arrive in time. Boulder Fire-Rescue Goals Goal 1-Provide effective response to emergencies. Goal 2-Develop and train firefighters. Goa! 3-Update facilities and infrastructure. Goat 4-Provide and manage critical resources. Goal 5-Improve firefighter safety. Goal 6-Enhance basic service to the community, including education and disaster planning. Service Standard Performance !n recent years, Boulder Fire-Rescue has not met the city's service standards, which are defined in the Boulder Valley Comprehensive Plan (BVCP). Those standards specify that the department, 90 percent of the time, will respond with 2009 Draft Fire-Rescue Master Plan 2-9-09 ~'~E i 1 the first fire engine within six minutes and all dispatched units within 11 minutes. In 2007, the department's first unit responded within six mirlt.ltes 79.8 percent of the time, and all dispatched units responded within 11 min- utes 83 percent of the time. The department's ability to respond to emergencies relates directly to the department's resources, location of fire stations, population growth and density, and traffic management. The department believes that increasing service demands, traffic congestion, greater urban density, and other factors contribute to delayed responses. This master plan discusses scenarios to improve response times, including possibly changing the response standards and acceptable levels of risk. The department recommends that the city conduct a fire risk analysis to assess specific fire and emergency risks in the community, and conduct a citywide traffic study. It is hoped the two studies will provide insight on why the department has not been able to meet response standards in recent years. Analysis from the traffic study and risk analysis will help the city determine: 1) strategies that might help the department meet BVCP standards, and 2) whether and how to change BVCP standards. SERVICE STANDARD PERFORMANCE Standard Performance in 2007 first unit arrives on sn~nc in 6 minutes or Icss y0°~', of the time " t~P~`%~~ All units arrive un scene in 11 minutes or less 90"~ of the timr. ~ - Annual fire deaths 1 or fewer per 100,000 population 0 Annual community fire injuries 10 or fewer per 100,000 population 7.2 per 100,000 Annual firefi;7hter injuries less than 1 per 100 tires 1.2 per 100 fires Annual firefighter injuries less than 3 per 100 firefighters ~.9 per 1U0 flreflghters Annual direct fire loss $0.30 or less per $1,000 actual value protected $0.27 per $1,000 value protected Ani Dual cost of fire protection $150 or less per capita $121.35 per capita Annual cost of fire protection $0.80 or less per $1,000 actual value protected $0.61 per $1,000 value protected Public a}~iiruv,ll ralim~ ,~rcaler dean , 824s, rated [3uulder Fire-Rcscuc "Very Good " or "Good" NOTES: INDICATES A NATIONAL STANDARD (Atl others are regional, measurable best practices) RED TEXT INDICATES STANDARD NOT BEING MET Major Boulder Fire-Rescue Challenges Inadequate budget: Nearly al! of the department's funding comes from the city's General Fund. In recent years, funding has not been sufficient to operate services and replace fire engines and necessary equipment. The mas- terplan identifies funding shortages in the department's Fiscally Constrained Plan and identifies strategies in the Action Plan that are needed for the department to continue to serve the community at an acceptable level. The current funding approach likely will result in reduced levels of service. Increasing service demands: Boulder (=ire-Rescue responded to 9,200 service calls in 2007, compared to 6,834 in 1997. Increases in population, urban density, and at-risk populations will create more demand for services. Page ii 2UU9 ©raft Fire-Rescue Master Plan 2-9-09 Rising fixed costs: Fixed costs to keep the department operating, including fleet expenses, fuel, utilities, and equipment replacement, have escalated and caused the department to run deficits. Replacement of fire engines: The department has no budget for capital expenses such as fire engines, which cast up to $950,000 each autfitted with equipment. A sustainable funding source must be secured for replacing vehi- cles and equipment. Too few firefighters: Staffing levels are we{I below national standards. As a result, Boulder firefighters often work overtime to provide adequate coverage for each shift. This presents safety issues related to firefighter fatigue and regular budget deficits for overtime expenses. Aging facilities: Five of the department's seven fire stations were built between 1950 and 1980, and Brost need majar renovation or maintenance work. Increases in service demands and other concerns may require reloca- tion of one or more fire stations. Need for training and certification: Because of limited funding, only half the department's firefighters are certi- fied at some level in skills beyand basic firefighting and emergency medical training. Firefighters are not trained to the level that is becoming mandatory nationwide for firefighter and community safety. Health and fitness of firefighters: Firefighting is a stressful occupation, and a high level of fitness is required to perform the job safely. i=irefighters need annual medical and fitness exams, as well as health and wellness pro- grams. Development of future leadership: The vast majority of the department's officers are eligible for retirement within the next five years. Succession planning requires time and special training for firefighters to become ad- m i n istrators. Relocation of regional fire training center: Planning for the new training center is underway, but a funding gap remains to complete all phases of the project. Boulder Fire-Rescue Master Plan Priorities Priority 1: Ensure the safety of the community. (Goals 1, 2, 4, 5, 6) Ratianale: Provide firefighters the training, equipment, and other resources needed to protect people and prop- erty in the city of Boulder. Priority 2: Provide adequate equipment, facilities, and infrastructure. (Goals 1, 3, 4, 5, b) Ratianale: Firefighters require up-to-date safety equipment, fire engines, and adequate facilities to ensure they can respond to emergencies quickly and effectively. Priority 3: Adapt to changing needs. (Goals 1, 2, 3, 4, 6) Ratianale: The department needs vision and flexibility, as well as resources, to respond to changing conditions in the city and the community. Investment Strategies The Fiscally Constrained Plan represents funding at the current level. The department's one recommendation under this funding scenario is to ensure firefighter safety. Continuing at the current funding level wilt mean continually decreasing levels of service until supplemental funding becomes available. 2009 Drak Fire-Rescue Master Plan 2-9-09 Page ii i Key recommendations include: • Ensure firefighter safety. Estimated costs: $12.8 million: 2008 Fiscally Constrained Plan Funding The Action Plan requires funding beyond current levels. This plan has two tiers of recommendations and budg- ets:Tier 1 maintains current levels of service; Tier 2 focuses on restoring staff positions that have been cut, updat- ingtechnology and equipment, and improving training and emergency response. Key Recommendations for Tier 1: • Maintain the current level of all services to the community. • Address deficits in equipment and apparatus replacement and repair. There is no replacement fund for capital items such as fire engines. • Ensure facilities are adequate and maintained. Key Recommendations forlier 2: • Kestore support staffing. FUNDING PLANS $3s M $34.2 M $30 M 51 ~.2 M $25.4 M $25 M 56.3 AI $20 Iv{ 52.13 ~~1 53.7 ht $1 S M 5t.7 Al St.7 M LEGEND 12.8 M ;i tr 5t.t3At $1'L.8 M Fiscally Constrained Plan Funding gt:.x At current Fire-Rescue ~ Fiscally Constrained Ongoing Costs $10 M - ' ~ funding level ~ ~ ~ - Action Plan Funding c ~ ~ c ? Tier 1 Ongoing Costs $5 M ~ ~ W ~ ? Tier 2 Ongoing Costs ~ ? Tier 1One-time/Capital Costs 4 ~ ~ Tier 2 One-time/Capital Costs $0 M Fiscally Action Vision Plan Vision Plan Funding Constrained Plan ? OngoingArnual Costs Plan ?One-time/Capital Costs (RPfer to the Appendix (nr a complete list of recommendations). Page iv 2009 Draft Fire-Rescue Master Plan 2-9-09 • Keep up with technological advances. • Renovate and refurbish facilities to meet increasing demands. • improve the ability to train firefighters to rrreet the technological challenges they confront. • Improve emergency response abilities. Provide support necessary for firefighters to perform their jobs. Estimated Costs: $12.8 million: 2008 Fiscally Constrained Plan Funding $ 1.8 million: Tier 1 Action Plan Ongoing Casts $ 1.7 million: Tier 2 Action Plan Ongoing Costs $16.3 million: Total Action Plan Ongoing Annual Costs $ 2.8 million: Tier 1 Action Plan One-time Costs $ 6.3 million: Tier 2 Action Plan One-time Costs $25.4 million Total Action Plan Budget, Fully Funded The Vision Ptan requires significant new funding, and allows Boulder Fire-Rescue to meet accepted national stan- dards for firefighting and hazardous materials response, which would improve firefighter safety. The plan continues replacement of outdated facilities, increases the capability of seasonal wildland fire mitigation, and im- proves community safety in the urban-wildland interface areas of the city. Key recommendations include: • Meet national standards for emergency response. • Replace outdated facilities. • Improve wildland firefighting efforts. Estimated Costs: $12.8 million: 2008 Fiscally Constrained Plan Funding $ 1.8 million:7ier 1 Action Plan Ongoing Costs $ 1.7 million: Tier 2 Action Plan Ongoing Costs $ 3.7 million: Vision Plan Ongoing Costs $2U.0 million: Total Vision Plan Ongoing Annual Costs $14.2 million: Vision Plan One-time Costs $34.2 million: lota(Vision Plan Budget, Fully Funded Next Steps/Implementation With the acceptance of the master plan, the city sets priorities and identifies funding needs for the department. The Fiscally Constrained Plan anticipates continually declining levels of service due to lack of funding. The Action Plan identifies the need to pursue new funding for implementation. With this master plan as a guide, the department will use the city's business plan to develop annual budget requests. Capital improvements identified in the master plan will be submitted in the annual budget and capital improvement plan cycle. Performance measures will be used to monitor service and progress toward the master plan goals. Progress will be reviewed annually and described in the department's annual report. 2009 Draft fire-Rescue Masfer Plan 2-9-U9 P,3ge v 2009 praff Fire-Rescue Masfer Plan 2'9 4r ~ ~l ~ - Page vi This page intentionally left blank. 'l _ C~aPter 1 !nfi-oduction to the BouEder dire-Rescue Master Phan Brief History of the Department What is the [3oulder Fire-Rescue Master Plan? The Boulder Fire-Rescue Depart- ~ he Boulder fire-Rescue Master Plan is the city of Boulder's 10-year plan to ment has a long and proud history. In 1871 Bouldez's first fire department ensure public safety by buiiding on the department's strengths, consisted of city leaders and every resi- addressing existing deficiencies, and defining a future course to provide dent available to protect the population high-quality and cost-effective emergency and fire-prevention services. of 343 and their 77 dwellings. The Boulder Hook and Ladder Company was organized Febniary 15, 1875, and What We Do by the spring of 1876, Boulder had in- The department responds to al I hazards and provides services to: stalled 2,180 feet of water main on . fight structural and ~vildland fires. Peazl Street with four fireplugs. Fire equipment was pulled by hand. • respond to medical emergencies, rescue situations, and hazardous By 1898, horses pulled the depart- material releases, as wel I as natural disasters. ment's four hose companies. That year, provide fire-safety education for the public, from children and youth Boulder hired ifs first paid firefighters. By 1913, all equipment was mecha- (preschool through college-age) to seniors. nized, and in 1915, the last of the voi- ~ • work with local businesses and organizations by inspecting buildings unteer companies in the city and reviewing construction plans for fire prevention. disbanded. ~ act as the federally designated emergency response authority (DERA) for The post-World 4~~ar II era saw a dramatic increase in the city's popula- the city for hazardous materials. rion and demand for fire services. In • protect over $20 billion dollars worth of property within the city, which 1958, two new #ire stations were deli- encompasses 25.37 square miles of land, and is surrounded by 64.8 Gated: the Central Station at 13'x' and square miles of city open space and mountain parks. Portland, and Station 2 at Baseline and Broadway. In 1965, the city dedicated a third municipal fire station at 30111 and Department Philosophy Arapahoe streets, which now houses Boulder Fire-Rescue provides fire, rescue, and emergency medical the city's busiest fire engine company. In June 1978, the Boulder Fire De- services according to our philosophy: partment hired three women. By 1982, Tv l)e effective, firefighters must he well-trained, the department employed 5 percent of. wel/-equipped, and arrive on t1me. the paid women firefighters in the na- Preventing fires before they occur is the department's priority. Public fire lion. Women now represent l0 percent education and fire safety inspections help in this effort. of the department's firefighters and The city emphasizes private sector self-protection through code regula- about hal# of our prevention and ad- ministration personnel. lions and design incentives. Automatir_ fire sprinklers systems are required In the 1980s, the department's re- i for many uses. sponsibiiities expanded to include Municipal fire protection requires a balance between city services pro- medicalemergenty response, water vided through trained firefighters and services provided by built-in auto- rescue, and hazardous materials re- sponse. The department, now called matic fire systems. City-provided protection supplements the built-in BoulderFire-Rescue, has increased fire- systems and is designed to handle fires in nonprotected buildings, outside prevention efforts with an emphasis on fires, and fires that occur during medical and other emergencies. meeting fire codes. 2009 Draft Fire-Rescue Master Plan 1-7-09 Page 1 ~~~~flJiii~{.I~1~. ? ~ ~ ,i L.~C.~ Bou}der Fire-Rescue believes in providing diverse equipment on all fire Boulder Fire-Tiescue Basic engines, and in training firefighters as generalists rather than specialists. and Advanced Life support Boulder firefighters are trained as Every front-line fire engine has fire-fighting and rescue equipment along emergency medica! technicians (EMTs) with emergency medical supplies. Every firefighter must pass a cotrrprehen- and are certified in basic life support slue training program, including fire fighting, hazardous materials (hazmat) (BLS) prehospital medical care. As first response, and rescues involving vehicle accidents, fire, water, and ice. Fire- responders, firefighrersperform the "ABCs' of basic life support for fire or fighters also are required to earn certification as a State of Colorado Emer- accident victims, maintaining: gency Medical Technician. -an open airway The department provides Basic Life Support (BLS) services. The emer_ -breathing, through artificial respi- gency medica! care system in the city is multi-tiered system involving: ration, if needed, and -circulation, keeping the blood -Boulder Fire-Rescue (BLS) pumping,, through cardiopulmonary -a publidprivate partnership with a private ambulance service for resuscitation (CPR), if needed. Advanced Life Support (ALS) 8LS may also include patient assess- -area hos Itals went triage, practices to protect the p cervical spine and avoid additional in- W'sth fire stations located strategically around the city, the department juries through splinting and immobi- often is the first to arrive on a medical emergency scene. Firefighters provide lizatian. BLS generally does not BLS care until the ambulance arrives with paramedics (ALS) care and trans- include the use of drugs or invasive ports sick or injured people to the hospital. skills. An important advance in providing Boulder Fire-Rescue has some regularly on-duty firefighters who are BLS is the automated external defibri- cross-trained to staff four special operations teams. The firefighters on these lator, orAED, which provides a thera- special operations teams have additional responsibilities in the following puetic dose of electrical current to restart healthy heart rhytluns, improv- specialty areas: ing the chances of survival in cardiac -HazmatTeam responds to hazardous chemical releases, including arrest cases. chemical spills on manufacturing sites and evhile being transported. Aprivateambulanceservicestaffed -Wildlarx~ Fire Team, with the help of additional seasonal wildland by paramedics contracts with the city to provide advanced life support firefighters, responds to fires in open space and on the edges of the (ALS) medical care, which play include city, including the foothills. administeringdrugsandinvasivepro- -Dive Team responds to emergencies at the Boulder Reservoir, Boul- cedures.ln cases of injury requiring ALS, the city's dispatch service sends der Creek, and other bodies of water within the city. an ambulance to the scene; the para- -Public Education Team works with the department's fire-safety coot- medics treat injured people and tzans- dinator to provide public education in fire prevention. port then, to the hospital for further To maintain proficiency in a wide variety of emergency services, the de- care. parttnent conducts extensive training in all areas, including firefighting, fire prevention, rescue, emergency medical care, hazardous materials clean-up, Boulder Fire-Rescue Mission and public education. Joint training exercises are conducted with other Boulder Fire-Rescue strives to make county agencies. Boulder a safe place to (ive and Fire stations are located strategically to meet. the emergency respanse work. We protect the community service standards. As the population within a service area increases, the from fires and hazardous materials number of calls for fire and emergency services also increases. When one releases, and we respond to urgent medical needs, accidents, and natural disasters. Page 2 2009 Draft Fire-Rescue Master Plan 2-9-03 ' fire response unit in a station exceeds 1,500 calls per year, additional fire engines and staff should be provided. Operations Boulder Fire-Kescue employs 105 uniformed and six civilian staff members. The department operates with one ladder truck company and seven engine I sgxcling ' ~zc~u~~'~ ($75 ~ companies aut of seven fire stations. Each company has a staff of three fire- sllt~e lighters on duty 24 hours a day, seven days a week. At any given time, there are at least 25 firefighters on duty, including a shift commander. The depart- ment also employs three full-time wildland firefighters and five seasonal The deparunent celehrated its?oo-yea,' wildland firefighters. Two full-time staff members coordinate deparhrrent anniversary in t9~s. training. The deparhrrent has five full-time employees for code enfa•cement, fire prevention, construction plans review, and public fire-safety education. - - ~ I Yot a` I`.-~ Utnu<nRa J-- rso.umas°~I-_ ~II_1 , . ,.V-7 _ I p~, w;~-, I 3 -,3 r 3 ;gr~r~MmlRo i?q~ It t 6 / ~ W C~ ~ rF~v,~ n ~f~r dt.oa:s Pt.te boa 3'~.~ 7 ~ YwmR~ , 4 Rd . l' ~tY4inrW. Y7~sVRUaOt y~ae~a ~ i ~ I_ . ~±~i 1 - ~ _ ~ ~ `dlr DI ~ -J G 0 IAy a -~y~ . - _-.yam 4° 3: I _ ,,y{ 9 $y _ - r .~e~''T 5 ~~31 1. I Id£__.~ 5 Lu1~~--~3 Ip tiCA- Fhe Statiw7 s Inca 1908 `r a ~ v ~I,,o R1111 e4 ,pt-°~,-t 9'-_' , l ~ ~ ucaaiaJL_ ~ i.3 rolvy ~ ~ ~nno, I vI. ~.raa g - gin.. _ - 'Ae - '1 t.se anNroe Rd l ti ~ d'i , ~ n - rM ~l ~I ~ - T:~ i 'v- Peat 6: d` - ,7 ~l~.J i0` ,:~r t S =.F«' ' 1 ~YtS,vtS~ rC n~~th~ ~ Yrv rieq ~ of _ ~ - ~ O ~ 'C 1 ,i t rcy` iy I ~e}~i,AaPanoei:.. _ w,ronotn. _ l Vac t I Si __Si ! rdi ~ ;~I ~ i ~ I ' -~z I I t7 yy I~-i: ~ a~ '•rlr ~ ~ rb.i [ wlua~nj.,i Yd I ~ ~I~'=' n .9 - I ~i. I ur _ - `G~ r1l- WJ~n.t eMitkO eel - ~1. ,-dCl ~ fi_ l 5~~:. J` FAv_mnn~p„~ lY t7 ~1. ! n~ --1--+ I ~ i' b1 l l~ P~1 la ~ ~1 _I ~d`I o19~ "Bratm RO~~~. ~ SL 4a ' 3 I 1. ~ r l~ 77' <w, ~Y : ~ 1 _ o ' + - - tl n„~r~.,u,nr n u,~ o-~~, ~,.r I• ;,I LEGEND r. +U,1 Oran Ona-2HttSLO St Y ~ SfatAn 7vo - 2225 dasrJae Rd. r< °,I I._',~,? ~ ~ ,moo ~I ~ ac Ih"( O S7a7bn TArir- 1585 .4A`D St. I ~ ° ~~`c ~ ~I =r Fh OSn7an Forr-sf000arkY Are. - .8 _ 3 w - ~'n: ~ °u~~ u ~Set»n Frvo-43G574N SY 01`ns•~! ~I° `OI OSta:an Sk-511i 6Jrd SL I r [J Raon Seven-736055N Ava. s Boulder Fire-Kescue Stations aad Response Dis(ricts 2009 Draft Fire-Rescue Master Plan 2-9-09 Page 3 . . Department Organizational Chart Firo Chief Emetgoncy M.snopement Assislanl Deputy Fire Ct+ief Support Services Deputy Fire Chiet Operations Program Spatiol ;l Romoi:vauvefssaant 8ana!mn Chief Batte'bn Ct>lef 6atvdian Cluol NUdtand Dinnion A - Snltl 8 - 5t+ilt C - Shdl Chial V-vo Ltorcr, nl Tr, In~nq urcl:i~>n Chi=} SU7tion 1 8lotbn 1 Stalron 1 Vritdland FPc Marwpom¢nt Coadinola ~ucistvd Fve Stators Z Slnt+on 1. Stators 2 \9arahat Wrldland Fir¢ =nUa~:+ Seaton 3 Station 3 Seaton 1 Monapomant $U(/'rvGO[ rio Prolect~on Enpoaer Stations Station 4 Station s Saasonal Wldtond f uo Fco In,Padm Slalion 5 titalbn 5 Sletion 5 Cn-rr Station 6 Station 8 Slelion 6 PuD6c Gdocation Spociolir,l Seaton 7 Slatinn 7 Station 7 What happens when you call 9-1-1? When you call 9-1-1, the call goes to the public safety phone-answering service in the emergency communications center located in the city's public safety building. Your phone number triggers a display of your address on the dispatcher's console`. Acall-taker responds, "This is 9-1-1. What is yoiu- emergency?" The call-taker keys into the computer the type of emergency and location, and directs your call to a dispatcher. The dispatcher notifies a Boulder Fire-Rescue station or the Boulder Police Department to respond, depending on die sit- uation. The dispatcher uses a code from a list of situations programmed into the computer. The dispatcher will keep you on flee phone in a medical emergency or to request more information-not in the case of a fire, but more likely in an emergency involving a young child. When you call 9-2-1, you should not receive a busy signal, because with the city's new emergency call system, calls automatically roll over to a backup emergency communications center in Boulder County, which will notify a Boulder dispatcher. Tn the case of fire, if the call comes from an alarm system, one Eu-e tntck will be sent to investigate (a fire truck will ahvays be sent even though many alarm system calls tum out to be false). In the case of a [ire that is filling the room with smoke, the dis- patcher will send tlu-ee engine companies, a ladder truck, and a fire battalion chief to respond to the blaze (ah+~a}'s leave a building quickly in case of fire or smoke, azid call from a neighboring building). Every firefighter on every truck is a certified emergency medical technician. In the event of a serious medical emergency such as car wreck or heart attack, the dispatcher will send a pri- vate ambulance and paramedic service that contracts with the city. Firefighters carry portable radios while on duty. Four call centers in the Boulder area work togedTer to provide emergency services. They are managed by the city, Boulder Count}: the University of Colorado (CU), and the City of Longmont. The emergency command center for Boulder Fire-P.escue and the Boulder Police Department will continue to be located in the city's public safely center. An emergency generator provides back-up power to maintain dispatch services in case of a power outage. In case of a large-scale emergency such as a wildfire, the emergency operations center staff provides information on the city website and via the radio and television. *Your locntioa is not displayed automaticaliy where you call frnm a cell phone or voice-over Internet, so you must verbally give your tocatiofz. Phone comyanies may be able to determine where a cell or voice-over Internet call comes from by Friungulatitsg sig-iTals from a trumber of cell towers, but simply saying where the emergency is will sane time. Cef[ and aoice-over phones cannot 6e traced by the emergency call system, and cannot be progranuned for reverse 9-1-1 calls to notify you in case of a disaster or other large-scale emergency. Page 4 2009 Drafi Fire-Rescue Master Plan 2-9-09 Broader Responsibilities Today Number and Types of Calls Boulder's firefighters now do a lot Qoulder Fire-Rescue received 9,200 calls for emergency services in 2007. more than fight fires: Of those, 61 percent were for rescue and emergency medical services. • Every firefighter is astate-certified About 13 percent were false alarms (including automatic-alarm system ma!- emergencymedicaltechnician functions), 10 percent were "good intent" calls, 7 percent were service calls, (EMT). S percent were for other reasons, and 3 percent were for actual fire. • Every engine crew is equipped with and trained to operate anauto- ~ mated external defibrillator (AED), ~ Major Accomplishments Since 1996 which provides a therapeutic dose Since the last master plan was approved by City Council in 1996, the de- of electrical current to restart healthy heart rhythms in cases of ~ partment has: cardiac arrest. Constructed Fire Station 7 in east Boulder. The 1996 master plan recog- • firefighters are prepared to deal nized service gaps in some areas, such as east Boulder, where emergency with flooding in a business or response time was longer. The department in 2000 constructed Fire Station house, to extricate someone from a vehicle accident, and to rescue peo- 17, located on 55"' St., which has reduced response time for east Boulder. pie from a stalled elevator or acot- /ncreased public safety education by hiring a ful!-time educator. The de- lapsedtrench. partment hired a public safety educator in 1998 to establish and coordinate • Many firefighters have advanced fire-prevention efforts with seniors and with the Boulder Valley School Dis- training in dive rescue, hazazdous material spills, wildland fire fight- trio, private schools, senior residences, the University of Colorado, and ing, and fire-safety edification. other institutions. ~ ? Hired a wildland fire team. The cit 's Public Safet Tax a roved b voters ~ j~ , Y Y pp Y ~ ~~~r'`°-~`-•'` ' > in 1997, provided funding for seasonal firefighters. In 1998, the department j~ ~J. hired a wildland fire team to provide initial wildfire attack and perform miti- - ~ ~ gallon work. Three full-time employees are joined by five or six seasonal J employees who work from March through November.l~his team is the initial - ~ response group incase of fire, and also performs mitigation work, such as thinning overgrowth in forest and managing prescribed fire burns to create - ~ safe buffers between open space and urban areas. nrrrr,lver ~ ar a vcau~,~ ~;~c~;~~ uon Purchased land in anticipation of the relocation of the regional fire training center. The city's Public Safety Tax also provided funding to purchase land to relocate the fire training center. The department obtained 36 acres of land in a joint purchase with the Public Works and Open Space departments for a Mutual Aid Boulder Fire-Rescue has developed fire training center at Valmont F3utte, as part of a 102-acre site the city pur- reciprocal mutual aid and cooperative chased with the public safety-tax funds. When this site was determined to be agreements with fire departments in unsuitable, the department located another city-owned site near 63"'and surrounding communities to respond the Diagonal Highway (see Relocation of Boulder Regional FirelighterTrain- in the case of emergencies drat require more fire vehicles and firefighters than ing Facility, page 33). A countywide sales tax passed in 2001 will partially are available in d1e city. The depart- fund construction of the i""ire training center, which currently is in the design ment has cooperative agreements phase. through the State of Colorado and with Worked with the University of Colorado (CU) to install automatic the federal government in the event of more widespread emergencies such as sprinklers and educate students about fire safety. In 1996, the department a major wildfire. initiated a 17-year plan with CU to install automatic fire-sprinkler systems in 2009 Draft Fire-Rescue Master Plan 2-9-09 Page S J ~-rr'r ~ - - ~ ~ :iI,1C ~icrr ~ ~ ~i'i~r all buildings to the level required by city construction codes. Today, all resi- dence halls have automatic fire-sprinkler systems, and academic buildings are being retrofitted. Each year, approximately $2.5 million is spent on improving fire-safety systems on the campus. In the late 1990s, Boulder Fire-Rescue developed a nationally acclaimed fire-safety curriculum for colleges and universities (see Chapter 2). Master Plan Process To prepare this master plan, the department reviewed goals and challenges related to funding, staff, training, vehicles, equipment, national and regional standards, growth of the city, and other issues that affect the quality of services. The department has conducted meetings with other city depart- ments and an open house for public review and comment of the master plan issues, goals, and strategies. Department officials intend to meet with the Planning Board and City Council to discuss issues and recommendations in the plan. City Council Goals Community Planning: Text to come. blue Ribbon Connnissimr/Ecollanric 4'itality: It is the Policy of t/re City of Bvulder fu encourage economic vitality and to build a srlstain- able ccvlrauic base to support the overall quality of life of its cif i~elrs. Ecaronric vitalit y i» the city of 23oulder is mr effort to build the lolrg term s+lstairmbility of the conrr»Irnih/. The City of roulder Il.~elcornes rrnd supports Gusi»ess mld zco»o»lic sustai»abiGty. Towards this end, the City of Bvulder• IuiN use a varieh~ of tools mrd strategies that wil[ result i» inn•easer! sates and use tax revenue, retcrrtiorr and expartsiolr of business investment mrd opport:unities in Boulder, n positive Inrsinrss climate, and lead to an inlprovemer:t ira the quality of life and prosperity of the conununity. Clirrrate Action Plnrs The Climate Active Plan provides the framework for meeting the city's greenhouse gas emissions reduction goal. The crn-rent goal Is egiln%illerit tv the Kuotu Protocol trnget - to reduce emissions to a leuel seven percent Gelow 19901eve~s by ZOT2. the primary sh•ategies m•e reducing ruergy use ill buildings nrrd vehicles, switching to renewable energy sources and fuels artd reducing vehicle use. The city's role is to provide programs, ouA•each and education to encourage community wide emissions reductimrs. Communihj Sllstainabilifiy: Cvrrrmunit y sustairrabiIity is a philosophy and franrewor•k to help the city make decisions Gy looking ill a conlpre- hensive way at the long-ternr inrplicatiar+s jor• the community. If means meeting the needs of our community rrvu, wit/rout cvmprourisirlg t/re ability to erect the needs of fuh~r•e Gvrdderites. The sustainability process integrafes economic vitality, social health arrd el:virv»me»tal grmlih~ goals, prioritized to reflect the values of the community. The city recognizes the critical relationship among economic, social and environmental sustainabiiity and seeks to maintain and enhance the livability and vitality of Boulder now and in the future. Page 6 2(109 Draft Fire-Rescue Master Plan 2-3-U9 Plan Assumptions I How Does the Master Plan Fit into Citywide Planning Efforts? This master plan assumes the ,This master plan either directly or indirectly supports all five City Council following: -In 2030, the population of Boulder's goals related to transportation, affordable housing, the environment, Area I & iI will be approximately economic vitality, and community sustainability. The plan also addresses the 124,000 people (source: BVCP 2005 social, environmental, and economic filters established by City Council, as Major Update-Trends Report). well as the goals, policies, and growth projections for the Boulder Valley -This plan incorporates Areas I & II u1 the urban service area. For wild- Comprehensive Plan (BVCP), the city and county's guide to land-use land fires, the service area includes decisions. all city-owned openarcasinduding The department has worked with the Planning Board and other city watershed. -Boulder Pire-Rescue will continue to I boards and departments to coordinate strategies and recommendations. This experience increases in calls beyond master plan addresses areas where the department does not currently meet build-out due to increased expecta- goals outlined in the BVCP. It also recommends strategies for protecting lions of people and an aging pope- I public safety while responding to growth, and it discusses areas in which the Iation. -The location of fire stations, the department intends to comply with national standards and recognized fire- amount and use of department re- industry best practices. sources, and the depaztment's abil- ity to respond to emergencies relate directly to population density, How Does the Master Plan Affect Daily Life in Boulder? growth, and trafficmanagement. The master plan defines a future course for providing high-quality and cost- -Thecity has limited resources available effective emergency services and enhancing public safety education and fire to maintain public safety. -Given theblcnd of buildings and natu- i prevention efforts. it also reflects the department's intent, with future ralvegetationontheperimeterof additional funding, to improve emergency response capabilities, which will the city, Boulder will experience ~ benefit everyone who lives, works, and plays in Boulder. major urban /wildland interface ~ fires. -Boulder wIll face new challenges be- cause of the potential threat of ter- rorism and weapons of mass destruction, flood or other natural disasters, azld sales-tax-revenue de- cline due to economic cond itions. -Boulder's current fire and building codes minimize fire risk u1 comtner- ~ vial and mu]tifamily structures. Through continued use and en- forcement, Boulder is able to exert a significant amount of control over the types of fires experienced in the community. -The most recent community survey, conducted in 2007, showed the de- partmentreceived good or very good ratings from 82 percent of participants- The department is committed to improving customer service and satisfaction. 2009 Draff Fire-Rescue Master PlanL-9-09 l~1ge ~ ,,l..ll ] This page intentionally left blank. 2009 Drah Fire-Rescue Masler P/~n 1-7_Og l~~~e 8 _!1 f~ Chapter 2 Key Citywide Issues and Trends and How They Affect the Department This chapter iclentifics the I<ey citywide issues and trends that have implica- tions for boulder Fire-Rescue. 7o prepare this master plan, the department considered Boulder's demographic trends and how factors such as increases in at-risk populations, greater density in urban development, and environ- mental risks have implications for the future. Demographic sources include City of Boulder: A Demographic Pro- file (Department of Housing and Human Services, April 2004), City of boul- der Census 2000: Populations, Households, and Housing (prepared by the Boulder Planning Department), the Denver Regional Council of Govern- - ~ - :»ents (DRCOG), and the U.S. Census Bureau and U.S. Department of ~ ~F ~ f',ousing and Urban Development. _l ~ , ' _ Social Issues: Trends in At-risk Populations A.. ~ \~1' ~ _ The trends for at-risk populations in the city, in order of the risks they pres- ' ent for Boulder Fire-Rescue, are: - 1) Seniors: The city's population is aging as more Boulder baby boomers live as longer healthier lives and more retirees move here. The number of senior ` residents, ages 60 and older, is projected to increase from 13 percent of the J population in 2010 to 23 percent by 2025. As residents age, their need and !'reschool ;ire samry t+:;~,;~,c expectations ter emergency services inct•ease. Emergency calls increase, as does the severity of medical problems. Fragile, disabled, and bedridden sen- iors require a higher level of care. 2) Disadvantaged: Approximately one in seven (14 percent) of Boulder resi- dents lives below poverty level, and the gap between rich and poor is Analyzing The Wildland widening. Among some groups, the percentage is even higher; 27 percent of Urban Interface Risk Latino families, for example, had incomes below poverty level in 2000. The In 1995, the fire department conducted number of economically disadvantaged include people who are mentally ill, a survey of properties on the western people who are homeless, and people who receive or need social services. edge of the city to identify the risk for individual properties from exposure to Disadvantaged people are less likely to have health insurance and to own wildland fire. Property owners were vehicles, and are more likely to use emergency services and hospitals for given the results of this analysis to medical needs that more affluent residents have treated at urgent-care clin- allow them to take steps to reduce their vulnerability to wildland fires. AWild- res or in a doctor's office. land Urban Interface Community 3> Young Children: About 12 percent of the city's population is age 13 or Wildfire Protection Plan, completed in younger. Many of the department's 9-1-1 calls are for accidental fire and 2007, showed that a nLmlber of people medical emergencies involving young children. chose to mitigate their riskby follow- 4) College Students. Boulder's 29,000 CU students comprise a large por- ing the suggestions offered- centage of the city's population. For college students and others in this age 2009 Draft Fire-Rescue Master Plan 2-9-U9 Page 9 1:;. ~ 1 yC~,.~, f, rou fire risks are hi h due to at-risk behaviors such drinking, drug use, ~'"~t' ~ ~ .~,~..d*e: z and leaving lighted candles unattended. The high density of housing, with .r .T~.,. ~ - • students living in residence halls, fraternity and sorority houses, and group _ houses, poses greater challenges and ris!<s in fire and medical emergencies. { } "i ' -,t,~'~y, S) Populations wifh Language Barriers: [ioulder is home to many people a- who speak lin,ifed English. The Spanish-speaking population nearly doubled ~ ,r~~ ti between 1990 and 2000, increasing from 4.5 percent to 8.2 percent. Cul- ' - . tural barriers often go along with language barriers; some immigrants may • ~ ~ f-- T fear or avoid authority figures, such as uniformed firefighters, because of F . 1 eriences. Immi rant - - •~-l~;" their immigration status or past political •r sacral exp g - families are more likely to live in inadequate housing, which can increase firefi~i~ters at the 2007 shadow Creek Fire fire and medical emergency risks. Environmental Issues: More People and Higher Risks 1) Increased population: Boulder's population in Areas (and Il is projected to increase from 1 1 1,500 in 2004 to124,400 by 2030 (Source: City of Boul- der Long Range Planning D'svision). More residents generally means an in- crease in traffic congestion and vehicle accidents, as well as more fire and medical emergencies. 2) Urban densification: As Boulder matures, growth will take place in infill sites that currently may not be zoned for housing, office, and retail use. Areas of significant anticipated change include the Gunbarrel area and the Transit Village. Land-use changes being considered as part of the Transit Vil- lage Area Plan could add an additional 1,000 to 2,500 housing units, be- 1,500 Call Threshold When one fire response unit in a station tween 2,000 and 5,000 residents, and 1,500 to 6,000 new jobs. exceeds 1,500 calls per year, additional Kedevelopment in these areas and continued infi II development of the fire engines and staff need to be pro- city's downtown core will further increase density. Buildings will have vided, according to the Moulder VaIIey multiple stories and mixed uses, be located closer together and on smaller Comprehensive Plan. The 1,500 call threshold was de- lots, and increase the number of people living and working per block. The rived from a survey responses to emer- increase in population and the types of buildings and street layouts in these gencies in which the first-due unit was redeveloping areas may present challenges far the department to be able to already on a call and another unit had respond quickly to emergencies. to respond in the first engine's district. This situation seemed to occur most City fire stations were strategically located to meet the emergency re- often after the first engine's calls ex- sponse service standards from the 1960s to the 1990s. As the population ceeded 1,500 per year. within service areas has increased, the number of calls for fire and en~er_ Three of Boulder's seven Eire sta- tions each reponded to more than 1,500 gency services has increased proportionally. The department anticipates that calls in 2007. service calls will continue to increase with ne~•v development. When one fire response unit in a station exceeds 1,500 calls per year, additional fire engines and staff need to be provided, according to the Boulder Valley Comprehensive Plan. Page 10 2009 Draft Fire-Rescue Master Plan 2-9-09 Continuing a trend of recent years, three of boulder's seven fire stations i each responded to more than 1,500 calls in 2UU7 (2,402 for Station 1, 1,892 for Station 2, andL,274 for Station 3). To adequately serve the com- munity in the future, the department might need to add or relocate fire sta- tions or change the BVCP standard. 3) Increasing age of many buildings and facilities: Older buildings do not have automatic fire-suppression systems, and older electrical systems and materials are not up to curre+~t code. Fire Prevention P;ducation Boulder Fire-Rescue's fire-safety programs are based on collaboration with community groups, organizations, and schools. Before the department develops lesson plans, it consults x~ith teachers, parents, caregivers, agency directors, and others already provid- ingservices to target populations. These experts help design the curriculum to deliver the most effective fire-safety message for each group. The primary focus is on young children, college students, seniors, and other people with the highest risks related to fire. Preschool Programs: The preschool lesson "Firefighters Are Our Friends" focuses on easing young children's fears and teaching them how to ca119-1-1 and call out to rescuers. Tours of fire stations emphasize that firefighters are friends by showing d~eir work environment is also a home, and by demonstrating equipment such as breathing apparatus (firefighters' protective gear can appear frightening to a preschooler). Elementary School Programs: Working with the Boulder Valley School District and private schools, die fire-safety educa- tion seam visits all the city's elementary schools during Fire Prevention Month in October. Using curriculums for kindergarten through fourth grade, firefighters focus on consistent, easy-to-understand fire-safety messages, such as how to ca119-1-1, how to make an escape plan, and how to conduct home fire drills. With the support of teachers, firefighters assign homework for students to do with their families, such as creating a home fine-safety plan. This homework is highly effective in reaching parents with our message. College Programs: In the late 199Qs, Boulder Fire-Rescue developed a nationally acclaimed fire-safely curriculum for col- leges and universities. Working with the U~uversity of Colorado (CtJ), flee depart- _ h ment's fire-safety educator developed the model because of concerns over - r, "1 fire-related injruies and property damage, including apartments being destroyed by ~ - ~a~. fire off campus. _ o, f C'U's prograrn begins freshman year with training focused on messages - rt~ ; ~,y, ~ i such as "Smoke will kill you;' and "You have just two minutes to get out." The Resi- ~L i dent Assistant Fire Academy and the Greek Fire Academy train students in fire Gr,~-'i' Yt'~_ t- ' i safety for residence halls and search-and-rescue techniques. Parents of freshmen re- . ' - ceive aletter regarding prohibited items, and freshmen in residence halls have to '•a"' sign a commruuty living agreement that specifies no candles and no bikes in hall- ~ u~,.~ 1 ways, among other fire-safety risks. The consequences of violating the agreement range from having to paint fire hydrants to expulsion from the uruversity. 't'his en- ~ torcement supports the department's educational goals. Senior Citizen Programs: "Senior Safety" teaches seniors fire safety, injury prevention, and emergency preparedness. The program reassures seniors, who value their independence and may be he>itant to ask for help, that firefighters are available to re- spondwhenever they call 9-]-1. The department also annually reviews emergency procedures and trains staff of seiuor facilities to conduct fire drills. Senior Safety also trains senior-facility staff how to encourage seniors living in buildings with automatic sprin- kler systems to "shelter in place" in their room or apartment to avoid toxic smoke from a fire. The Friends of Boulder Fire-Rescue foundation provides flashlights and other items to help seniors prepare for emergencies. Programs for Other People At Risk. The department trains staff [rom social service departments and organizations, such as Boulder Housing Partners and Meals on Wheels. The department trains case workers for people with developmental disabilities and mental illness in fire prevention and disaster preparedness. The fire-safety education program staff also represents the depart- ment on the city's Adult Protection Review Team. For at-risk teens who have acted out using fire, the department recommends family counseling. 2009 Uraft Fire-Rescue Master Plan 2-9-U9 Page ~ 1 rr ~ 4) Risks from the natural environment: Colorado continues in an extended Does a xoo-year flood occur drought cycle, which impacts water availability and causes higher fire risks. every 100 years? No. A 100-year flood could occur every Wildland fire risks always increase in liot dry summers. Kecentplne-beetle year, depending on conditions. A 100- infestations across Colorado have killed thousands of trees and made them year flood is calculated to be the level more susceptible to fire. Blizzards, tornadoes, and high winds can cause of flood water expected to be equaled vehicle accidents and medical emergencies from traffic light outages and or exceeded at least once in a 100-year downed over }fines. period. [1100-year flood like the flood p ~ that occurred in Boulder in 1894 is a Flooding is a perpetual threat, and has become a high natural-disaster I major flood with a peak discharge of risk in Boulder because of the extensive development in the Boulder Creek I 12,000 cubic feet per second. The 100- flood plain.l"he state's No. "l flooding hazard is the long-overdue "100-year year flood is more accurately referred to as the 1 percent flood, since it is an flood of Boulder Creek (see sidebar on this page). event with a 1 percent chance of being 5) Hazardous materials releases: With numerous chemical and biochemi- equaled or exceeded in any single ye°ar. cal rYianufacturing companies in Boulder, accidental hazardous materials Approximately one-quartertoone- spills on site or during transport by trucks or railroad cars can require the third of Boulder would be affectedby flood waters of this magnitude, accord- department's services for medical emergencies and clean-up. Domestic ing to the Boulder Area Sustainability terrorism and crime pose the risks of potential releases of toxic fumes, Information Network (BASIN). chemicals, and biological agents. What happens when a business Economic Advantages of Fire Codes experiences a major fire? The adoption and enforcement o! fire codes and standards helps to reduce It experiences delays in resuming the direct and indirect costs of fire in two ways. Active enforcement reduces business while waiting for insur- ance funds, ordering and receiving the number of fires and helps limit fire damage. Limiting Boulder's fire lasses new stock, and replacingvitat provides economic benefits by keeping businesses open and producing tax records. revenues. Many small businesses that experience a major fire go out of ~ It must find a new location in which business within five years because customers tend to stay with new service to operate. • Customers may go elsewhere. providers. The loss of some customers may be- Adoption of local amendments to fire codes, especially those requiring come permanent. automatic fire-suppression systems, save taxpayers money. These local amendments also allow loca{ developers and builders greater flexibility in ~ Fire Risk it Existing Structures the design of new construction and remodels. Integral fire-sprinkler proteo- City building and fire codes address tion found in mixed-use development al lows residences to be located next the installation of fire protection sys- to more hazardous occu ancies so eo le can live and work in the same toms in new constnzction. There is a p P P question of what to do with existing neighborhood. multi-unit residential structures built TI}e fire code also makes building owners partners infire-safety before d,e codes required automatic management. By establishing minimum fire-safety standards for structures, it I fire-sprinkler systems. The city has re- quired limited retrofit in specific high- allows Boulder to shift some of the burden of fire protection from taxpayers I~ hazard occup-u,cies, such as nursing to individual property owners. This is especially true in new construction ~ homes and fraternity houses. The de- where permanent fire-safety systems, mandated by codes, are incorporated partuicnt recommends including a into the building design as an up-front r_ost. When buildings meet code cost-benefit study of retrofitting auto- matic fire-sprinkler systems in all requirements, building owners benefit from enhanced safety and lower , existingnonprotected apartments in insurance premiums. ' Boulder. Page 12 200y I)raff fire-Rescue Maser Plan 2-9-09 h Removing the Fuel: Wood Roofs Fire Protection Engineering in 1994, the city banned wood roofs. Site planning, building plans, and built-in fire protection such as sprinkler This ban covered all new buildings and roof repairs of over 50 percent of the 'systems are designed to provide an acceptab}e Ievef of risk. Builders and en- roof. Until 2014, the code allows the re- gineers often present aftemative solutions tofire-safety problems that require pair of a wood roo# {under 50 percent) advanced knowledge to determine if they meet the intent of the code. with factory-pressure-treated (fire re- Boulder Fire-Rescue employs afire-protection engineer to work with tardant), Class "B" roofing materials. In 2014, au wood roofs must be re- builders and engineers to determine the effectiveness of such solutions. The moved and replaced withnonwood fire-protection engineer also performs field inspections to rnal<e sure that roofing materials.Acommunitysurvey devices are installed correctly. will be initiated to determine the num- ber ofwood roofs still existing. This will allow the city to develop the nec- essaryeducational and enforcement programs. Building and Fire Code -First Line of Defense Reducing the number and intensity of fires is not as exciting as fighting fires, but is far better for the Community. Boulder Fire-Rescue's Division of Fire Safety investi- gates fires, reviews plans for new or remodeled buildings, and inspects Boulder busi- ~ - ` , ~l nesses to ensure compliance with the International Fire Code and Boulder Revised • Code. ~ ~ - Building and fire codes and code enforcement reduce the number and severity of ~ stnactural fires, and provide a significant level of protection for building occupants ~ ~ and firefighters. While building and fire codes cannot eliminate fires, they aze the first line of defense in fire safety. Codes and code enforcement are based on the con- cept of "acceptable risk" and aze designed to provide the community a reasonable _ level of safety from fires. r Design, construction, contents, and occupancy type are all factors in the fire safety of a structure. The design, construction, and contents of buildings can either limit the ^``~'?°~r-~ d , ~ progress of a fire or allow fire to spread rapidly. The placement of walls and exits af- / , ' feels people s ability to safely evacuate a building. The use of a building affects the ~ probability of fire and the potential magnitude in terms of safety and damage costs. , - For example, a large fire in an unprotected (no fire sprinklers) industrial building r might cause major economic losses but is less likely to kill ar injure occupants than a - r - ' % `r small fire in a crowded bar. The city's Planning and Development Services Depart- - ~ ~ _ _ ment ensures shat new and remodeled buildings meet existing safety standards by c-~H~ar enforcing building codes. ~`'~`e L , ~ The fire code allows firefighters to inspect schools, commercial buildings, and mul- tifamily housing to make sure stairways, hallways, and exits are accessible and un- .0 °S`' cluttered, and sprinkler systems are working. Firefighters inspect commercial buildings once a year or once every two years, depending on the risk associated with ; ~V, the occupancy. - • - } c:-`-- .~y - s: 2009 Draft Fire-Rescue Master Plan 2-9-09 Page 1.3 Evacuation Checklist In case of a wildfire, flood, or other emergency requiring evacuation, Boulder Fire-Rescue recommends the following actions: 1) Prepare in advance for emergency evacuation: • Know your evacuation routes, designed for quick escape from the neighborhood {see Appendix A). • Make sure your address is visible from the street. • Designate a meeting place away from home that is well-known by family members. • Prepare an emergency kit with basic medical supplies, personal care items, nonperishable snacks, water, and blankets or sleeping bags. • Assemble a pet kit wide food, leashes, medicines, beds, and toys. Ask a neighbor to take your pets if you are not home. • Choose a contact person outside your azea to relay information about your welfare to family and friends i_f you are evacu- ated. • Collect family documents such as birth certificates, social security cards, wills, account numbers, and insurance policies. • Make copies of personal documents and give them to an extended family member or friend for safekeeping. • Obtain abattery-powered radio and flashlights in case power is lost. • Make sure the household has one standard noncordless telephone (cordless phones and cellphones will not work if services aze inieiTUpted). • Complete a household inventory. 2) Stand by to evacuate: • Stay tuned. Listen to the radio and television for instructions. Keep phone lines open. (Imyortani: to receive reverse 9-1-1 calls, phone lines must not be blocked. Dial "78 to unblock phone lines.) • Bring pets into the house to prepaze to leave. • Back cazs into the driveway and pack them. • Gather prescription medicines and medical supplies. • Gather family photos and a household inventory. • Put a note on the door with your contact phone numbers in case firefighters need to reach you. 3) Evacuate: • Turn on outdoor lighting. • Leave immediately. • Use evacuation routes marked by signs. • Go to shelter locations as directed. Page 14 2009 Draft Fire-Rescue Master Plan 2-9-09 Risk-management Planning In addition to being in charge of fire and life safety for the city, Boulder Fire-Rescue is the federally designated emergency re- sponseauthority (DERA) for hazardous materials releases. Firefighters are trained to fight wildfires, clean up hazardous chemi- cal spills, and rescue people caught in floodwaters. In the event of large-scale nahual or technological disasters, the department works with agencies and organizations such as the Boulder County/City Office of rme~gency Management, other local police and fire departments, the Red Cross, the Colorado Division of Emergency Management, and Colorado I-[omeland Security to respond to emergencies and restore essential city services. For key Boulder facilities such as hospitals, senior residences, and chemical and industrial manufacturing plants, Boulder Fire- Rescue creates "pre-incident plans;' with detailed information about each facility and its potential hazards, which allow first re- sponders to quickly and effectively respond to any crisis. To create apre-incident plan, the department evaluates protection systems such as alarms and sprinklers, building construction, contents, and operating procedures that can impact emergency oper- ations. Pre-incident plans are used for training exercises and assessment activities, and for updating graphic and written records of changes that occur at a site. The department is working with other city departments to create a continuity of operations or "co-op" plan for the city drat focuses on maintaining key government services diui ng, a disaster such as a major Boulder Creek flood that might disable die mu- nicipal complex and downtown Boulder. This co-op plan defines how each department would respond in a large-scale emergent}; and how services would be restored throughout the city. The department also recommends individual and family disaster preparedness, which would be required in a large-scale emergency. Ali sectors of the community-service providers, healthcare facilities, business and industry, civic and volunteer groups, and neighborhood associations, as well as every resident, should plan ahead for disaster. Dtuing the first few hours or days following a disaster, essential services may not be available. People mustbe ready to acE on their own. (For more information on emergenry preparedness check the Colorado Division of Isn,ergency Management website at httl~• / /dnla Colorado g~v /clem 2009 Draft Fire-Rescue Master Plan 2-9-09 Page 15 + /{j This page intentionally left blank. Page 16 2009 Draft Fire-Rescue Master Plan 2-9-09 Chapter 3 Standards, Levels of Risk, Performance, and Options to Improve Services This chapter discusses how th,~: city compares ~:~ith national standards, ac- ceptable levels of risk, current performance levels for the dcl_>artment, and options for improving fire and emergency services. National Standards across Colorado and nationally, fire departments ina'easingly are expected - : ~ ~ 't` ~ ~ to meet national standards to become partners in state and federal emer- .,~:.M...-- ~ti i~ency preparedness efforts and to be eligible for grant funding. The expecta- ' `ion that firefi titers will be not ust trained but also certified is part of this ~ ; national standards trend. r: Understanding, using, and meeting standards is complicated in fire • - and rescue work. There are numerous overlapping agencies that prepare and regulate standards, and not all standards are relevant for Boulder Fire-Res- - 3= , r cue. In Colorado, most national standards have voluntary compliance. The I ~ : ity of Boulder complies with national standards for wildland fires, enabling n.-,. }V~ e: L`,~~t,,,_ _ c~oulder Fire-Rescue to participate in a reciprocity program in which other ''rte' communities provide and receive help when needed. The department also ~ meets national standards for responding to emergencies involving hazardous h~ - ~~raterials. s,, r~r Compliance with standards related to training and competency of firefighters is voluntary, but will become mandatory in the near future. Com- pliancewith other standards related to physical resources, emergency re- ' ~ ~ spouse, firefighter safety, and emergency planning currently are voluntary. rr~nch-r;~scuc trauur;g the ability to meet voluntary standards is directly related to funding levels. Certain standards, such as physical resources (equipment, fire engines, fire stations) and firefighter physical fitness, are critical to the department's abil- ity to respond to emergencies (see chart on page 18). Certification Peak Demand Time I he firefighter certification process involves three phases: training, practical Peak demand for ire and •_esting, and written testing. It is a graduated system, beginning with three emergency medical services ;iazardous materials (hazmat} certifications related to awareness, operations, is 8 am to 8 prn. ,tiidnday through Friday. Response time sand technical expertise. Certification in hazmat operations is required be- during these peak hours may fore progressing to firefighter certifications. lie longer because of multiple Every boulder Fire-Rescue firefighter has received training in haz- simultaneouscalls. mat to the operations level and firefighter training to FirefighterLeve! 2. The department is in the process of obtaining certification for a!! firefighters. 2009 Draft Fire-Rescue Master Plart 2-9-09 Page 17 r _~U r_ E , ~ ~ i ~ , • ~ ~ 1 ' Understanding, sang, and meeting standards is complicated in fire and rescue wor!c. There are numerous overlapping agencies that prepare and regulate standards. In Colorado, most national standards have voluntary r..ompliance. The city of Boulder complies with national standards for wildiand fires, enabling partipation in a reciprocity program (providing and receiving help ~~fien needed) and national standards for hazardous materials response. The ability to meet voluntary standards is directly related to funding levels. To be successful, a fire and res- cue r'eparimenl must be WEI_I_TRAINED, WELL EQUIPPED, AND ARRIVE ON TIME. Meeting physical resource standards (equipment, fire trucks, fire stations) and firefigi~ter physical fitness standards are critical to the ability to respond. ~ ~ ~ ~ ~ ~ ~ NFPA WILDLAND FIRE RESPONSE cFR NWCG z O ~ p ~ NFPA HAZARDOUS MATERIALS RESPONSE cFR TRAINING AND COMPETENCY ct=R W U ~ PHYSICAL RESOURCES NFPA ~ (fire apparatus must mc~c~t federal standards- cFtz H which increases cost) W m NFPA ~ EMERGENCY RESPONSE cFR a (CPR and incident management standards mandatory) F n~ 0 FIREFIGHTER SAFETY, FITNESS, AND HEALTH NFPA r CFR Z (Infection control program mandatory) 0 EMERGENCY PLANNING NFPA !e end NFPA=Na4mal firr g Prdedion Aswdat:on Mandator Com liance cFe-a~nrfedo.ai Y P sranearrh NWCG = National Nht Ilr. Currently Voluntary, but transitioning to Mandatory Compliance conrdinaung cror~ ' fFNA =Federal Emcrf;~-ry Voluntary Compliance Management Assndali;::: AHA= Anw+iKan li<•arl Aswcialion Page 2009 Drah Fire-Rescue Master Plan 2-9-U9 The department believes that to improve Boulder Fire-Rescue's level of skills training and response, within the next three to five years: • All firefighters should becoarle certified in hazmat operations. ~ All firefighters should be certified as Level 2 firefighters. • All driver/operators should become certified at Basic, Pumper, and Aerial levels. • All officers should earn officer certification. Acceptable Levels of Risk STRATEGY: INCREASE LEVEL OF TRAINING. What are levels of risk for emergency TRAINING OPTIONS FOR FIREFIGHTERS SeCV1CeS, and why are they impor- tant? Communities as a whole tend to be fairly risk-tolerant, but individuals coat: too%ofall firefighters are risk-averse; anyone who faces a ` I trained toFirefighierl.evel2 fire or heart attack wants *.he fire de- HREFIGHTER2 1 partment to respond as quickly as Goal: 67%n of all fire- 1 i Gnat: 33 % of all fire- pOSSi{.~I2. The public SUrvEy O{City fighters traineJ to righters trained to services conducted in 2001 (the ques- DRIVER OPERATOR OFFICER Officer Level Driver Operator level tion was not asked in t e 2007 sur- vey) indicated that 60 percent of the STRATEGY: IMPROVE COMPLIANCE WITH VOLUNTARY STANDARDS. Community thought Boulder Fire-Res- REDUCESTHE LEVEL OF COMMUNITY RISK. IMPROVES RESPONSE TIMES. CUe WOUId Cespond Wlthln tW0 min- MANDATORY VOLUNTARY ales of their call. The gap between this COMPLIANCE COMPLIANCE It is rwt the depanmenYs goal to meet 100 % of the voluntary standards. This would result in perception and reality is significant: unnecessary costs to the community.vith While the department responds to A4UPE diminishing returns. S,,wo~QOS 79.8 percent of 9-1-1 calls in less than {OVt0it1 ARE FXIECIEO More standards are expected to becon>n uL'rl t001 IO DECOME mandatory, which will increase annual operating orswav,~si MerronroPV i SIX nllnUteS, some responses can take ~ costs to the department. up to 11 minutes. NiL7S SOr+E :'^"°"'°s Lower risks mean the community cuRReNr benefits from shorter emergency re- sponse times, more firefighters, more training, and newer and better equipment and facilities. As risk to a commu- nity is reduced, costs to the community are ina•eased because lowering risk requires greater expenditures for staff, training, equipment, and facilities. Given the city's declining budget, rising costs, increased service demands, and the fact that current staffing levels are below national standards, it is im- portant for the community to understand that the department would need significant, new, sustainable funding to lower the community's levels of risk and maintain that lower level of risk in the future. What are acceptaUle levels of risk for Boulder? Boulder's accept- able levels of risk are undefined. The "public protection classification" grade 2009 Drafr Fire-Rescue Master Plan 2-9-t19 Page 79 assigned by the insurance industry (see sidebar on this page) no longer is a Will lowering Boulders ISO grade valid measure. Risk levels cannot be given a number grade or color ranking save money? For many years, the nation's insurance (like the nation's color-coded Homeland Security alert status) because risks industry has used a numerical grading involve complex factors that vary with emergency situations. system developed by the Insurance Many people in Boulder believe the city's risk levels are relatively low. Service Organization (ISO) to measure However; a general perception that Boulder Fire-Rescue can handle all the major elements in a conununit}/s emer envies is unrealistic. In the case of a 100-year flood, for example, the fire-suppression system, including the g" number and distribution of engine department would not have the staff and equipment to evacuate thousands companies, the amount of water of people from all the buildings in the city's flood plain, perform rescues, needed to fight a fire, and the quality and respond to all medical emergencies, fires, and hazardous materials re- of dispatdl and communications. Be- cause insurance compares have used leases that might accompany a natural disaster. a conmlurty's grade to set policy rates In addition to public safety, levels of risk address the economic impact on homeowner's insurance, commu- to the community from lost business and tax revenues. A wildland fire in the rty members to some extent have per- city's mountain backdrop, for example, could affect residents' safety and pri_ ceived a level of safety that corresponds to that grade. vote property. it also could affect tourism, causing a decline in hotel and On a scale of i to 10, with 1 indi- restaurant business and the tax dollars tourism generates. eating the lowest risks, Boulder's ISO grade in recent yeazs has been a "4." Community dire and Emergency Risk Analysis Boulder Fire-Rescue has analyzed whether improving the city's "public (Conducting a risk analysis is recommended later in Phis plan). protection classification' grade would Historically, Boulder's fire and emergency planning has been based on call reduce the amount property owners volumes and the fire chief's "best guess." Boulder Fire-Rescue recommends pay for fire protection insurance. we, additional funding, the department that the city conduct a community fire and emergency risk analysis to eval- could make changes that would lower uate the city's current risk potential and to help determine funding priori- the city's grade to a "3:' However, the ties and strategies for dealing with various risks. department believes spending tax- A scientific ris!< analysis performed by a special consultant would indi_ payer money to lower the city's ISO rating would do little to improve fire cafe the probability that a particular event such as a devastating fire, flood, protection, and although it mightsave hazardous materials release, or other emergency would occur and would some individual property owners a compare the community's risks with the department's ability to respond to small amount of money, it would not such emergencies. It would quantify the department's capabilities and per- save the community money as a whole. In addition, with advances in technol- formance, including the concentration and distribution of resow-ces, re- ogy such as sprinkler systems to pro- sponse times, injury rate, and reliability. The analysis would assess specific test ne~v buildings, the ISO grading risks related to fires, natural disasters, medical emergencies, ar,d hazardous system has become outdated and is no longer being used by many insurance WHAT IS THE ACGEP?ABLE tEVEI OF RISK TO 7HE COMMUNITY) companies. COMMUNITY RISK AS THE RISC TO THE roM~auNrtr GOES ocwN, WHAT IS THE COMMUNITY 171E COSTS 1O 771E COIAMUN TY GO I.P WIlLIN6 TO ACCEPTT 1~7 CCS1S MCNiY' TO POWER THE RISKI COMMUNIrY EXPEND(fURE Page 20 2009 Draft Fire-Rescue Master Plan 2-9-09 !.~"..-r: t",";:'i _~(--.=1 •.:Y~' 11 - material releases, including: _ ~ information on different zones throughout the city, such as the num- ber, type, size, and location of downtown buildings, chemical and manufacturing facilities, health-care facilities, and park and open- spaceareas. - - • the age, size, density, consU•uction materials, and uses of various buildings. • a "fire flow;' or approximate amount of water needed to extinguish flames if buildings were fully involved in a fire. . • medical and evacuation information related to specific populations rirelighters at the 2UU7 Gv,''d Kun sire and neighborhood densities. Risk analysis data would assess capabilities related to the number and type of fire trucks in the community and would identify staffing and training needs. It also would help the city determine acceptable levels of risk and l;ow staff and resources might be aligned to improve services. It could be used, for example, to determine whether the city needs to add or relocate fire stations to improve fire and emergency response, With such an analysis, the city could better understand the potential consequences to people's lives, the environment, and the economy. An update to this plan may be needed to address the findings of the risk analysis. Performance Levels Boulder Fire-Rescue is proud of its performance in providing fire, rescue, Firefighter Gear and emergency medical services. With appropriate funding and support, the When lireiighters rr_spond to an department is committed to maintaining and improving its performance lev- einerbency, they wear 50 pr~unds of clothing and gear designed to protect els. To be able to confirm success in achieving its goals, the department has them from heat, iian,es, abrasions, documented performance levels related to the following standards (objec- puncture, and other traumatic injury. fives for performance levels are in italics). Qoulder Fire-Rescue will continue This includes coats, trousers, boots, to work toward reaching the following objectives: gloves, helmets, personal alarm cle- tmprove responses to fires, rescues, and medical emergencies. Boulder Fire- vices, fire shelters, self-contained rescue's objective is to respond with the first engine within six minutes 90 breathing aplaaratus tSCfi~'\l, and other special equipment issued for percent of the time and with all dispatched units on the scene within 1 l exposure protection, such as minutes 90 percent of the time. communicable disease shields. Response times still represent one of the department's most difficult challenges, for reasons that are explained later in this chapter. The Boulder Valley Comprehensive Plan and the National Fire Protection Association (NFPA) standards call for asix-minute response to emergency calls 90 per- cent of the time. The department's record in recent years has been to re- spond within six minutes only 73.8 percent of the time. Some responses can take up to i 1 minutes. 2009 Draft Fire-Rescue Master Plan 2-9-09 Pate 21 The department does not have a goal of responding to 9-1-1 calls within Future Performance Measures In the future, Boulder Fire-Rescue in- six minutes 100 percent of the time, because meeting this goal would re- ~ tends to measure performance levels quire unnecessary costs to the city with diminishing returns. for the following services: The department's 90 percent response record for arrival of all dispatched Contain wildland fires. Boulder Fire- units arriving within 11 minutes on an emergency scene is better. In 2007, i Rescue's objective is to control 99 percent the department met this goal 83 percent of the time. An example of this re- of wfldland fires in Hze initial attack phase. sponse might involve a reported structure fire, to which three engine compa- I Since zoo1, Boulder Fire-Rescue, Hies, a ladder truck, and a shift supervisor are dispatched to provide an with help from neighboring fire de- adequate number of firefighters and equipment for an initial fire attack. ~ partments, responded to 80 wildland fires, with two fires progressing be- Prevent death from fire. Boulder Fire-Rescue's objective is to limit annual i yond the initial attack period. During fire-related deaths within the city to one or fewer per 100,000. this period, no stnutures were lost boulder is fortunate that there have been nofire-related deaths within within the city or on city property. A ~ national goal recently was established the city boundaries in the past six years. Boulder's 2007 rate of zero deaths to control 99 percent of wiid)and fires is lower than the 2007 rate of .67 deaths per 100,000 residents of compara- ~ ~ the initial attack phase (within the ble cities in the western U.S. and 1.14 deaths per 100,000 residents of ~ first 24 hours). The department intends comparable cities nationwide. The department continually works toward to meet this national goal. maintaining this safety record. Prepare for natural and technological Prevent fire-related injuries among community members. Boulder Fire-Kes- disasters and reduce their impact. cue's objective is to limit annual fire injuries among community members to Boulder Fire-Rescue's objective is to con- tinue working with the Boulder 10 or fewer per 100,000 residents. City/County Office of Emergency Pre- The city's 2007 injury rate for community members was 7.2 injuries per yarednessondisasterpianning. 100,000 residents, compared to 4.6 injuries incomparable western cities The department is working with and S.£i6 for comparable cities nationwide. The department has no definitive the Boulder City/County Office of Emergency Preparedness to create a explanation for why the city's injury rate is higher, and will continue to track disaster plan that addresses many and try to analyze the issue. ~ types of emergencies. Prevent fire-related injuries among firefighters. boulder Fire-Rescue's objective is to limit annual firefighter injuries on the fire ground (while responding to an emergency) to Tess than 1 per 100 fires and less than 3 per 100 firefighters. The Total Cost of Fire The city's 2007 rate of firefigher injuries on the fire ground was 1.2 per The total cost offire---iron, di- 100 fires, compared to 1.8 per 100 fires in comparably-sized western cities ~ reel losses, fire department costs, fire protection for new buildings, and 2.3 in comparably-sized cities nationwide. insurance overhead, and other A three-year average of trends demonstrates that: ~~h~ndiiures-is eight to t o • The city's three-year (2005-2007) rate of firefighter injuries on the fire times greater ?Itan the direct ground was 1.7 per 100 fires, compared to 2.6 per 100 fires in both losses, according to the United comparably-sized western cities cities nationwide. .States Fire Administration. • The city's three-year (2005-2007) rate of firefighter injuries on the fire ground was 4.9 per 100 firefighters, compared to 7.2 per 100 firefighters in comparably-sized cities nationwide. i The likelihood of injuries increases when an insufficient number of fire- fighters per fire engine are dispatched to a fire. Hiring more firefighters, re- ducing the number and severity of fires, and offering annual medical exams 2009 Draft Fire-Rescue Master Plan 2-9-09 Page 22 ~ and health and wellness programs would help lower the department's injury rate. Minimize direct and indirect losses from fire>. boulder Fire-Rescue's objec- tive is to limit annual fire losses to $0.30 per $1,000 actual property value. Direct fire losses include damage to buildings and their contents. Indi- rect losses include the cost of medical treatment, as well as the loss of per- sonal income, business revenues, and tax revenues. Indirect costs are often higher l:xat are not reported, so the department uses direct losses as a per- AnnuatResponses 1997.2007 forrnance standard. In 2007, Boulder's direct fire loss for $1,000 of actual property was $0.27. 10.000 (Local comparative data on actual losses was not a.ooo available. Boulder's per capita loss in 2007 was s.cco - $52.57. This is much higher than the average of a 000 $36.90 per capita loss in comparable western cities and $38.40 per capita nationally. How- z.oru ever, Boulder's five-year average per capita loss ° ' ~ of $21.88 is less than the western cities and na- 1997 19.38 1999 2000 2001 2007 2003 2004 2005 200u 2007 tional averages.) 2003-2007 Fire Lasses Provide cost-effective fire protection and emer- gency services. Boulder Fire-Rescue's objective is ss,ooo,ooo to limit the cvst oiservice to $1;0 per capita, or ss,ooo,ooo $0.80 per $1,000 of property value protected. $a,000,000 s3.ooo,ooo Because Boulder Fire-Rescue has been rela- sz,ooo,oon tivelyundet-funded for many years, the depart- s~,ooo,ooo ~ . ~ ~ ment has kept its average cost per capita low, at so - - zoos zooa zoos zoos zoos $121.35 per capita in 2007. based on the County Assessor's figures for actual valuation in zo07 Incident Responses Boulder and a total property value of $20.4 bil- lion in 2007, the average cost per $1,000 of ¦ Fire property value protected was $0.61 in 2007. 12% ~ ~ 3"~0 ¦ Rescue & Enos Improve community satisfaction with levels of ~ ~ °i _ _ ~ i ~ ~ se rvice cau service. Boulder Fire-Rescue's objective is tv pry Good Intent Call 111alRtaifl an 8.5 pPfCPRt reSldent appl'OVdI 1'atlr)g, ~~io ~ according to city surveys. G1 / ¦ False Call Tlie 2007 Boulder Community Survey indi- n Other Gated that 82 percent of the community thought fire department services were "very good" or "good," and 8"I percent thought emergency medical services were very good or good. The department will continue to work to improve the delivery of services and to educate residents about Boulder Fire-Rescue's responsibili- ties, prevention efforts, and achievements in protecting the health and safety of the community. 2009 t?raft Fire-Rescue Master Plan 2-9-U9 Page 23 Assumptions on Future Need for Boulder Fire-Rescue Services The Importance of Time: The Critical Areas of the city that are being ;edeveloped into mixed-use neighborhoods First Few Minutes The first Eew rrunutes are critical in re- will increase in density and include housing as well as commercial uses. spondingtofiresor?tedicalemergen- The department has found that responding to fires and medical emergencies I ties. in redeveloped mixed-use areas such as downto4vn gener- t ~ - - - ally is more difficult than in residential-only areas because of traffic congestion, narrower sU•eet design, taller and more complex development, denser housinf;, and uses such as ~ ' restaurants, shops, and offices that entail more people and ~ I t ~ Pi re: Six to Nine arked vehicles. p ll~~~ \linates to The department's 1996 master plan outlined the need •-t t rlasnover Soto Credit. (eff for new facilities in east Boulder to meet the six-minute firs _ _ r;,~steT response time standard. The construction of Station 7 on Savu,l; ti~:e5luring fire requires SSth Street helped meet part of this need. However, there remains a „ap in keeping people away from the heat and meeting fire response standards in north Boulder, in the Valmont and toxic smokereleased by fire. Firefight- Foothills Park areas. Station 3 is inadequate, and cannot be expanded fie- ers linutpeoples' exposure by control- ling the fire, or by evacuating people in cause it is located in the flood plain. New housing is being developed i,i the danger. area served by Station 3, such as the 390-unit Peloton condominiums and Fire grows exponentially until an the Transit Village. Knowing that this increase in population and traffic can- entire surface area is engulfed, or until gestion will increase demand for er7tergency services, the department. be- one of the components of sustained combustion (oxygen, fuel, or heat) is re- lieves that building a new fire station or relocating an existing fire station in moved. this area would help firefighters respond to residents in northeast and east- Atypical fire involves a single central Boulder within current response-time standards. room. As the rooms contents become hot, they produce flammable vapors. Some additional assumptions relevant for this master plan include the As the temperature of the room in- fol lowing: ceases, the volatility of the vapors in- • Emergency medical responses account for 61 percent of the ceases. The fine approaches the critical department's tota 1 2007 responses. point known as/Iashover when every- thing in the room ignites simultane- • The need for additional facilities and services is prompted by in- ousiy. During flashover, fire totally creases in population and jobs. engulfs the room, and temperatures can • Residential property generates a higher number of 9-1-1 calls than exceed 2,000 degrees Fahrenheit. commercial property because of demand for emergency medical Flashover generally occurs within 6 to 9 minutes after a fire starts. services. When firelighters arrive before New multifamily and nonresidential buildings are required to have ~ flashover, they usually find aloes-in- adequate sprinkler systems, reducing fire risks for this type of land tensity blaze that requires minimal water and effort to extinguish. Once use. The increase in service demand in the more congested tom- flashover occurs, ho~•vever, ordinary fire mercia! areas will be partially mitigated by the replacement of older ~ suppression techniques have little commercial buildings that had greater fire hazards with newer, ~ effect in saving lives and property in more fire-safe buildings. the immediate area of the fire. After flashover, the smoke and heat gener- o Although businesses generate fewer calls for fire services than r•esi- atedby the fire dramatically reduce the deuces, they increase the overall daytime population and have an chances of safe evacuation in the rest of indirect impact on Boulder Fire-Rescue's level of service. An in- dlebuitding, and firefighters facemuch greater danger. Page 24 2009 Draft frre-Rescue Master Plan 2-9-09 The Importance of Time, continued crease in jobs can result in more congested city streets during peak rush hours and thus can delay fire response times. • Increasing population density in one area of the city impacts fire Medical Emergencies: Four to Eight Minutes to Save a life services by consuming capacity atone station and causing other sta- Approximately bl percent of the de- tions to extend their service coverage, which impacts fire and med- partment's calls are medical calls. Foz teal response times. victims of cardiac arrest (or heart at- Increased risk of hazardous substance spills for different types of tack), the first four minutes are critical for basic life support care, and the first businesses and associated support services. eight minutes are critical for advanced life support care, according toAmeri- Scenarios to Improve Response Times can Heart Association response-time standards. ~ The department's primary service standard is response time. Response time Medical studies show that after standards are impacted by travel distance, traffic congestion, traffic calming four minutes, the chances of surviving rru~asures, service demand, and department capacity. cardiac arrest begin to decline sharply without basic or advanced life support. The Boulder Valley Cotlprehensive Plan states that the first fire engine Survival rates for drowning, electrocu- responding to an emergency is due at the scene within six minutes 90 per- tion, severe trauma, and choking in- cent of the time, and the full complement of firefighters and engines is due volve a similar response tune. After ~ within 11 minutes 90 percent of the time. These service-delivery require- four minutes without the heart pump- i ing, the brain suffers fromu> ufficient ~ menu are intended to guide the department's planning and location of re- oxygen and begins to die. Intervention sources to consistently meet the response standards, so the appropriate after four minutes may save a life, but number of fire trucks and firefighters wit l arrive at an emergency within the the quality of life for the survivor is questionable. appropriate time period. Research on surviving major The department's overall average response time for all emergencies is trauma also links response times of five minutes and 45 seconds from receipt of a 9-1-1 cal! to arrival at the emergency medical services. One study i emergency scene. Some 79.8 percent of responses are within six minutes, showed that the unexpected survival of major-trauma victims was linked to well below the goal of 90 percent. In recent years, response times have in- shortresponse times (average 3.5 min- creased because of traffic congestion, greater urban density, and other fac- utes), and the death of trauma patients II tors. The number of responses has also increased, from 6,940 calls in 1996 who were expected to survive was to 9,200 in 2007. In 2007, extreme winter weather, road construction, and linked to longer response times (5.9 minutes}. increased emergency call volume also contributed to longer response times. The national response standard for afirst-alarm fire is to have 15 or 16 firefighters arrive on the scene to ensure a safe THE 6 MINUTE GOAL and efficient operation. All fire engines in Boul- der, however; currently are staffed with only three It is not the department's goal to Frcfighhn I ~~'spondivithin6minuteslUO,,,r,r firefighters. For afirst-alarm fire, the department will gel to an the rim:. leis ttould result in Firefighters ~.,,,es~q ~ unnCCC551ry ~~~~5 ~l•e sends three pumper engines, one ladder truck, cangcl+uan wi+hin6 cummmuri;y.+-'IhJiminisF.ini~ and a battalion chief, for a total of 13 firefighters. emergency minutes returns. wilhinr, ~ 9t)~b, orthc Assuming standards and conditions in Boul- minutes time. 9.8,,;,at~~ der remain the same, the department would pur- time. ~ I sue one of the following potential options, cuRRENr FUTURE depending primarily on funding, to reduce re- CONDITIONS Boulder Fire-Rescue Response Time Goals 2009 Drait Fire-Rescue Master Plan 2-9-09 Page 25 Emergency Response Time Components To be effective, firefighters must he well-trained, well-equipped, and arrive at the emergency scene quickly. Even the best-trained and equipped firefighters will fail iE they arrive too late. The five components of response time are: 1) Detection tine is the time it takes for a fire or medical emergency to be detected and reported to the 9-1-1 dispatch center. Smoke detectors and alarm systems reduce detection time and increase the chances that occupants can escape. Detection times vary because someone (or a smoke detector or alarm system) needs to recognize the problem and ca119-1-1. 2) Dispatch tisrre is the time it takes 9-1-1 operators to notify the department of an emergency. The Boulder Regional Communica- tions Center averages 57 seconds to notify firefighters (reduced from one minute 16 seconds in 1996). 3) Turnout time is the time between when the 9-1-1 dispatch center is notified and the engine company leaves the fire station. Fac- tors that utfluence turnout time include the time required to put on protective clothing and equipment. Boulder Fire-Rescue's turnout time is about one minute. 4) Travel time is the time it takes firefighters to arrive at the emergency site. Factors that affect travel time include distance, road conditions, traffic, weather, time of day, and the speed at which fire looks can travel safely. 5) Setup time is the time between the arrival of the first engine company and the initial attempts to fight the fire or provide medical treatment. When crews arrive on the scene, they gather information and prepare for a fire attack or medical treatment. To extinfnrish a small house fire, a minimiun of 12 (irefighters are required. Because engines are staffed with three fire- fighters, Boulder Fire-Rescue sends half d1e deparhnent on an initial fire attack. Fires that are more complex require response from all the city fire stations and from fire departments in surroundinf; communities. As more fire stations respond to an emergency, re- sponse times lengthen for other calls because travel distances and related travel time increase. spouse time and reach the national response standard: i Increase the number of firefighters per unit. With additional funding and staffing, the department could increase tl}e number of firefighters in each unit from three to four. With an additional firefighter on each engine, the department would reduce the number of units dispatched from four to three, continuing to deliver 13 firefighters on the scene, including a battal- ion chief. Reducing the number of fire engines on the scene would help re- duce the total time it takes for all units to arrive on an emergency scene, As Boulder Grows, Traffic Slows eliminating the response from the engine that is farthest away. This would The city of Boulder has gzown signifi- decrease travel distance and thus response time. candy in sue and population in the -To achieve a staffing level of-four firefighters per unit, the department past three decades, from 20 square miles and 79,000 residents in 1972 to would need an additional 32 firefighters (24 firefigl}tors to cover eight fire 25.4 square miles and 111,500 residents engines for each of three shifts, plus eight additional firefighters to fill in for ! in 2004. As the city has expanded with those who are ill, injured, or on leave). annexation and become denser with in- fill redevelopment, both the number of -At an average annual cost of $89,939 (in 2008 dollars) for salary and vehicles on the road and the time it benefits for each firefighter, the ongoing total would be approximately $2.9 takes to get across town have in- million annually, plus the cost of additional equipment for firefighters, creased. `fiends in population growth, estimated at an additional $550,000. employment, and travel behavior indi- cate that traffic and traffic congestion -To meet the standard of 15 or 16 firefighters on the scene, a fourth fire ~ Boulder will increase significantly engine would need to be dispatched. over the next 20-plus years, making Add an engine company fo an existing station or add one or more new speedy response times for emergency stations. Emergency on-scene arrival time depends on the closest unit being i services more difficult. Physicalbarri- i ers installed to slow traffic, such as available, the travel distance, and factors that impede travel. As traffic con- speed bumps and traffic circles, also gestion and traffic mitigation measures increase, travel time to emergencies add to a fire engine's travel time to emergency scenes. Page 26 2009 Draft Fire-Rescue Master Plan 2-9-09 '1 ~ t.;.. i.-~ ~ ~ ' ' ~s-- - also increases. And as call volumes, training, and other work demands in- crease, the likelihood increases of an engine being busy when a call far service comes in. When this happens, the next closest fire engine is dis- ~r*',.. , patched. - ~ -Adding another engine company (afire engine plus three firefighters) to a busy station would improve response time, but that would require enlarg- t , ` ~ ing the station to accommodate an additional engine and crew. The total _ ~ r cost (in 200t3 dollars) of adding an engine company would be $550,000 for ~ afire engine, plus $1 million annually for staff salaries, benefits, and a t equipment, plus the cost of remodeling the station. >7e~e~~ro~~ Add a fire station in a densely developed or highly congested area. This option would improve response time by reducing travel distance. ~ -The total cost (in 2008 dollars) of adding a fire station would be at least 000 far a fire en ine and about $1 mif- f $2.25 million for the building, $550, g , ti ' lion annually to staff the fire engine. This does not include the cost of land. - ~ Change response standards and acceptable levels of risk. National re- ' ' ~ spouse standards and those in the Boulder Valley Comprehensive Plan rec- ~ ognize the importance of early intervention in fires and medical ` ~ emergencies. National standards that currently are voluntary are becoming ~Lr~~ mandatory. However, a community's perception of the risks it is willing to r ' accept can be different from national standards. Boulder's response time t- rhreeMinutes standards could be lengthened to respond to increasing congestion and limited resources, including budget. -The expected cost of lengthening response time would be greater life r and property loss and increased suffering from fires and medical emergencies. - I{response times standards are lengthened, they should be changed in the next Boulder Valley Comprehensive Plan update. i i Six Minutes -Flashover i How does Boulder compare to other cities? Comparing Boulder Fire-Rescue to fire departrnents in other cities can provide some useful information, but these comparisons cannot be used to compare costs because each city has a different set of circumstances. tort Collins, Berkeley, and Ann Arbor, for example, all have large wliversities, but have different urban densities, climates, per-capita expenditures, service areas, and other measures. For example:, the Poudre Fire Authority, which serves Fort Collins, encompasses 23~ square miles and provides different levels of service to urban and rural areas. 2009 Drafi Fire-Rescue Master Platt 2-9-09 Page 27 Why Response Times Vary in Boulder Response times have increased in recent years. The number of responses has also increased, from 6,940 calls in 1996 to 9,200 in 2007. Boulder Fire-Rescue's response I time can vary depending on: 1) Travel distance. Fire engines are dispatched to a fire or medical emergency from the nearest fire station, so response times tend to be shorter For emergencies that happen closer to a fue station and longer for emergencies fazther away. • The city of Boulder is divided into seven geographic districts, each with a fire station (see map on page 3). )n some locations, such as at the "seams" where districts meet, a (ire engine could be sent from one of several stations. In the case of a major fire, fire engines would be sent from several stations, and perhaps from neighboring communities at much greater distances. Engines from the closest stations would ar- rive first, foiiowed by those from greater distances. 2) Traffic congestion and mitigation. Traffic congestion slows response times, especially during peak commuting hours. Traffic signals at all main intersections in Boulder are equipped with a h•affic pre-emption device that receives an infrazed signal from fire engines to change the haffic lights so the engines can pass through the intersecEion quickly and safely. However, traffic congestion in certain parts of the city is increasing, and traffic is expected to continue to increase as the city becomes denser. Traffic mitigation elements such as traffic circles and speed bumps also slow response time. 3) Demand and capacity. The demand for services in a particular location and the distribution of firefighters and equipment when catis come in determine how long it takes for the department to respond. If the fire engine and firefighters from the station closest to an emergency are responding to another incident, the next closest unit is dispatched to the scene. Depending on distance and traffic congestion, this could add minutes to the response time. c i i ,fir ,,.,9 ~1 .~,r, ~ O~ - I fifC lt:?(1(717 ~ Page 28 2UU9 Drag Fire-Rescue MasEer Plan1-9-09 _ _ i`~) , ~ C{~apter 4 Department Issues anc~ funding Needs This chapter c-iiscusses issues and needs related to Boulder Fire-iZescue's ability to deliver fire and en-rergency medical services. The department's management of these services is determined by financial resources, city policies, and management practices. In addition to the department's daily duties, the possibilities of natural disasters and terrorist threats create ever- ina-easing responsibilities, which impact staff training, work loads, schedul- ing, and equipment purchases and maintenance. The department faces the follow'sng issues that affect infrastructure and personnel: Inadequate Budget The department's budget is the major fac'.or in determining whether Boulder Fire-Kescue can respond appropriately in providing emergency fire, rescue, and medical services. Funding levels are below regional averages, and the department's budget has been eroded in recent years by a fiscally con- strained city budget, rising fixed costs, and increased service demands. (See Chapter 5 for a more complete discussion of the budget.) Increasing Service Demands [3oulder Fire-Rescue has experienced increases in service demands as the city's population has increased over the past decade. The department re- ~ponded to 9,200 service calls in 2007, compared to b,834 in 1997. _ : , Rising Fixed Costs ` Th.e department's daily operations budget has been used to pay for fixed ex- . - rK. - - ~ penses (or- expenses not related to personnel), which have continued to in- i r ~~'-7' ~~,:•F~,,,;~;~ - crease in cost. Fixed costs include fleet expenses (lease payments, fuel, and ,1 • repairs), utility costs, communications services, and replacement of comput- ~ ~ ~ I ers and other equipment. The cost of diesel fuel, for example, has increased ~r~ ~ _,,.,a---- - - ' by 77 percent in the past five years (2003-2008). Using the daily operations - = ~ budget to pay fixed expenses has resulted in deficits and special funding ac- - - - - - lions by the city to avoid placing firefighters and the community in danger. Inc daily operations budget, in turn, has not been sufficient to pay for nec- Eng;r,c 1 OG at th,~ (-hr,ut<:uyus a%, essary items, such as fire hoses, radios, and safety equipment. Hc,lf Replacement of Fre Engines Unlike most fire departments, the city's fire engines are purchased fully equipped, at a higher cost, because the city does not have separate, dedi- cated funds for fire engine and equipment replacement The fire engines range in cost fi-om $550,000 to $950,000 each, about $25,000 of which is 2009 Draft Fire-Rescue Masfer Plan 2-9-09 Page 29 for equipment carried on board. Vehicle costs typically ina-ease between 5 Fire Engine Replacement and 10 percent each year. Three primary factors deteru,ine when to replace a fire engine: The industry standard for service life is 10 years for first-line pumper en- gines, and eight years for aerial or ladder engines. Boulder Fire-Rescue, Dependability: Firefighters rely on fire however, uses fire engines for 15 years or more because of lack of funding engines and equipment to do their job. for replacements. Ladder trucks are subject to more wear because they ServiceabiIifij: If basic parts needed to carry more weight and respond to every fire call. As the department retires repair a vehicle are not readily avail- engines from first-line status, it keeps the three lowest-maintenance vehicles able, the department faces potentially as reserves to fill in while first-line engines are down for routine service and dangerous down time and generally repairs. higher costs for replacement parts. Since 1994, the Fleet Replacement Fund (FRf-) has been the leasing Technology lag: Fire crews can do their agent far purchases of fire apparatus (or fire engines loaded with equip- jobs more effectively with new technol- ment). Boulder Fire-Rescue's annual conU'ibutions to the f-RF for fire engines ogy thatimproves safety andperform- ance of fire engines. Global positioning have not kept up with the costs of purchasing new fire engines. The depart- systens (GPS), for exanlple, are becon,- ment's 2007 cantribution ~•vas $321,000. As a result, fire engines have been ing standard equipment. replaced only when the FRF was in a position to fund purchases, rather than on a regularly scheduled basis. Without supplemental funding, the FRF will Boulder's Fire Engines not be in a position to purchase another fire engine until 20i 9. By 2019, Boulderhas seven pumper trucks and several fire engines will he at least 20 years old. F3eginning in 2008, annual one laddert-nuckinservice24hours per day, 7 days per week. and ongoing supplemental funding of $650,000 (in 2007 dollars) would be needed to fund fire engine replacement according to a routine schedule. In addition, $2.9 million in one-time funds would be needed to pay back the FRF for current outstanding fire engine leases. Too Few Firefighters Current staffing levels are well below national standards, and firefighters as a result often work overtime to provide adequate coverage for each shift. In 2007, for example, some firefighters worked 160 percent of their normal scheduled hours. Working extra hours presents a safety issue related to fire- fighter fatigue, and incurs significant costs for the deparhrrent. In 2007, over- time costs exceeded the department's budget appropriation by $400,OOQ. Overtime pay has been the cause of the department's budget overruns six out of the past seven years. To reduce overtime costs, the department needs six additional firefighters for regular shifts and to fill in for firefighters who ~ _ _ _ are injured or on leave. Hiring more firefighters will reduce the amount _ ~ ~ l spent on overtime. A comparable amount would pay salaries and benefits I,~' L far new firefighters, resulting in improved budgeting and enhanced fire- ~ ~ ~ ' ~ fighter safety. The nature of the department's services requires a regular number of fire- , fighters staffing each fire engine every day, arow~d the clock. To operate all Ladder training of the departrYient's vehicles, 25 firefighters must be on duty at all times- Page 30 2009 Draft Fire-Rescue Masfer Plan 2-9-09 ' ~ two firefighters and one supervisor each for eight units plus a shift supervi- ~ _ sor. The department operates with three rotating 24-hour shifts, each staffed i _ ~ -t` ~ with 31 firefighters, including a shift supervisor. The six extra firefighters on ~ ~ ~ ~ each shift provide coverage for staff who are ill, on vacation, or on leave to i I recover from work-related injuries. Often, more than six firefighters are t1 ~ ~'F~ h ~.__1 needed to fill in for extended periods for firefighters who are not working due to injuries, parent leave, or surgery. These firefighters are replaced by off-duty firefighters who work overtime. Although staff turnover is limited, ~ the current process of training new firefighters, from selection through fire academy graduation, takes about nine months. Hazmat training Aging Facilities Five of the department's seven fire stations were built between 1950 and 1980, and most need major renovation or maintenanr_e work. The older fa- cilitiesalso do not have adequate space for today's vehicles, equipment, and housing needs. Station 3 needs to be relocated, because it is in the city's floodplain, and is not located to adequately serve the Transit Village area. Station ~ was converted from a 1960s ranch house. Its garage bay is too Critical Facilities short to fit standard fire engines, so a shorter engine with less equipilient has Future regulations will include require- ments for crilicai facilities, and may to be custom-ordered. specify that they not be located in Industry best practices for new fire stations average between 9,000 and floodplains.As critical facilities, fire 12,000 square feet of building and two acres of land. In Boulder; the cost for stations currentlytocatedinflood replacing a fire station, in 2008 dollars, would exceed $2 million if it were plains niay be required to relocate. located on city-owned land, and considerably more if a site had to be pur- chased. Afacility replacement plan and schedule is needed for Stations 2, 3, 4, 6, and eventually Station 1. The first step is to determine whether current facilities are in the right place. A key recommendation of this master plan is Boulder Fire Stations to conduct a risk analysis, which would provide information that could help Fire Location Year determine the best fire station locations (see page 20). Station Built 1 13th & Portland 1957 2 Broadway & Baseline 1959 Need for Training and Certification 3 30th & Arapahoe 1964 All Boulder Fire-Rescue firefighters are trained and certified in emergency 4 Toedtli & Dariey 1967 medical training (EMT), and are re-certified every three years. However, only 5 19th & Violet 1992 6 63rd & Spine 1979 about half of the departt7ient's firefighters are certified at some level in other 7 55th & Lodge Lane 2000 ,skills. There is very limited funding for training, and as a result, firefighters ~ are not trained to the level that is becoming mandatory nationwide for fire- The average square footage of fire sta- ~ fighter and community safety. tions in Boulder is 4,650 square feet. The federal government several years ago required certification for fire- fighters participating in large wildland fires. Today, to be eligible for federal wildfire mitigation grants, the fire department must participate in the na- tic~nal wildland firefighter certification process. The U.S. Department of 2009 Draft Fire-Rescue Master Plan 2-9-09 Page 31 Homeland Security recently adopted standards requiring fire departments to Firefighter Training participate in a structural firefighter national certification. This national certi- Firefighters operate in con,ptex, dy- nanTic, and dangerous envirorunents fication will become a prerequisite to qualify for other federal grant dollars. that require proficient skips, critical All Boulder firefighters receive hazmat (hazardous r~iaterials) training; at d,i„k;,,g, and the ability to multi-task. the operations level and Firefighter Level 2 (FF2) training. Firefighter training is the single most im ortant factor in preparing firefight- The department has established a goal of training and certification for p ers to meet these challenges. It is criti- the entire department-every firefighter-in three areas: Hazmat, FF1, and cal for the survival and safety of FF2. After FF2, the department needs firefighters trained and certified in two firefighters and community members. additional sets of skills: About one-third should be trained to become offi- The paradox of firefighter training is that the more effective a fire depart- cers, and two-thirds slu~uld be trained to become driver-operators. 1„ent is in preventing fires and other To train all Boulder firefighters for FF2 status, and to move toward certifi- emergencies, the less practiced and cation for all Boulder firefighters, the department needs another trainer and proficient firefighters become in re- clerical support. Training and certification for every staff member will re- sponding to actual emergencies. This quire additional funding. The certification process would fake between three means training becomes even more inr portant as a means to provide opportu- and five years, and firefighters would need to be recertified every three pities for practicing basic skills and years. drills. New employees receive 800 hours STRATEGY: INCREASE LEVEL OF TRAINING, of hraining before being assigned fire- fighter duties. Each firefighter receives a minimum of 82 hours of training TRAINING OP'T'IONS FOR FIREFIGHTERS each year, and firefighters serving on specialty teams, such as Wildland, re- INIP(G ceive an additional 24 to 56 hours of _ paining to stay proficient. GOAL; 100X OF Alt FIREflGHTERS TRAINED TO FIREFIGFfTER2lEVEl I GOAL: 6TK OF ALL GOAL: ?3X Of All fiREFIGHTERS TRAINED TO OFFICER flREfIGHTERS TRAINED TO DRIVER OPERATOR IEYEI _ OW(CER tEVEI Health and Fitness of Firefighters Firefighting is one of the most stressful occupations, involving long periods of sedentary or low-intensity work with sporadic high-intensity work that in- volves strong er~TOtions, great physical demands, and human suffering. Na- tionwide, over 50 percent of firefighter deaths result from heart attack or other stress-related causes. A high level of fitness is required to perform safely in the fire service. To remain healthy, fit, and ready to res}.rond to emergencies, every fire- fighter needs an annual medical exam and physical fitness evaluation, and a health and wellness training program that focuses on nutrition, training tech- niques, and injury prevention. Wellness programs help firefighters deal with physical demands and job 2009 Draft fire-Rescue Master Plan 2-9-09 Page 32 Firefighter Certification Levels stresses by ensuring physical and emotional fitness and access to physical • kirefighter: There are two levels therapy if needed. Reducing injuries through better physical fitness can save of firefighter certification. Levei 1 the department money in the long run by reducing worker's compensation certifies basic skills needed to be a firefighter, and Level2 requires and staff replacement costs that result from injuries. mom advanced skills. Fimfighters Firefighters now have access to the city's recreation centers to work out must earn Level l cerflfication be- for an hour a day on duty. However, it is difficult to get firefigl}ters from Sta- fore applying for Levei 2 certifies- lions 3 and 6 to the recreation centers because of the distance from their lion. • Driver/operator: There aze three service areas; firefighters from those stations run the risk of not being able to levels of driver/operator certifies- respond quickly if called to emergencies. Annua! medical exams and a lion: health and wellness program for all firefighters would help ensure that they -Leve11 driver/operatarisa are trained to maintain a high level of health and physical fitness. general certification demorLStrat- ing the basic knowledge, skills, and ability to safely operate a Development. of Future Leadership vehicle. The prerequisite for Who will be the next leaders of Boulder Fire-Rescue? Seven of the depart- driver/operatorLevel l ment's nine chief officers are either eligible for retirement now or wit{ be in certification is Level2 firefighter certification. the next five years, and 23 of the department's 28 officers are eligible to re- -Level2 driver/operator fire within tl~e next five years. Succession planning requires planning time certification is for driver/ and special training for firefighters to become officers and administrators. operators of pumper engines. -Leve13 driver/operator Ta ensure public safety and department sustainability, the department certification is for aerial appazatus needs to prepare to replace officers and to provide opportunities for staff (or ladder engines). who want to advance. There is no funding for such training. Atwo-week • Officer: A firefightermay earn training class far three battalion chief officers, for example, would cost officer certification after earning Level2 firefighter and fire instruc- $30,000 a year for course and travel costs, as well as salaries for replace- tor certification. Driver/operator meat officers at time and a half. The department would be able to train new certification is notrequiredfor fire administrators with the addition of battalion chief positions that would allow officer certification. leadership candidates to gain work experience in administrative positions. The positions could be rotated, allowing officers experience in field operations and administration over a period of three to five years. Relocation of Boulder Regional Fire Training Center "the relocation of the new training center ~•vas delayed because the original site selected was found to be inappropriate. Selection of a new site, located between the Boulder Reservoir and the Diagonal Highway, and the passage of the 2007 temporary fire training center sales tax have allowed the project to commence. The department's goal is to be using the new facility by late 2009. Boulder Firc-Rescue has hired stand-planning consultant and an ar- chitect. Phase 1 of the green-building project is expected to cost $7 million to $7.5 million, and include a burn building, tower; and classrooms. There is a funding gap of more than $3.5 million needed to complete Phase If, which includes elements such as a driving pad to train fire engine drivers. I 2009 Draft Fire-Rescue Master Plan 2-9-09 Page 33 The new fire training center will be operated by the Boulder Regional Fire"t"raining Center Board of Directors, a group of fire chiefs from around Boulder County. The training center board will be responsible for the opera- tions and maintenance costs associated with the fire training center. Facility users will be charged proportionately for their use of training center re- sources. boulder Fire-Rescue will be the biggest user and thus will be re- sponsible for the largest share of operations and maintenance costs. I I Page 34 2009 Draft Fire-Rescue Master Ptan 2-9-09 Chapter 5 Investment Phan Boulder Fire-Rescue and the 8outder Fire-Rescue Goals General Fund Goal 1-Provide effective response to emergencies. All funding for Boulder Fire-Rescue comes from the city's Genera] Fund. Goal 2-Develop and train firefighters. Eighty percent of the revenue for the Goal 3-Update facilities and infrastructure. Genera] Fund comes from taxes. Goal 4-Provide and manage critical resources. Goal 5-Improve firefighter safety. Voters Approve Two Ballot Measures Goa! 6-Enhance basic service to the community, including education and in November 2008 disaster planning. • "Retention of Property'I'axes" was passed to pay for necessary city purposes such as fire apparatus Investment Priorities and city services. The estimated The department's investment priorities have been guided by hest practices annual revenue increase for the defined by federal and state standards and community priorities. Investment General Fund is $1.2 million. priorities are based on the city's business plan and an analysis of the depart- s The uidefinite extension on the ex- isting General Fund 0.38 percent ment's financial situation. They indicate how the master plan goals are City Sales and Use Tax was linked to each funding plan. The guiding principles for investments are: passed. While not a new revenue source, it generates about $9.7 mil- lion aru~ually for the General Priority 1: Ensure the safety of the commw~ity. (Goals 1, 2, 4, 5, 6) Fund. Rationale: Provide firefighters the training, equipment, and other re- sources needed to protect people and property in the city of Boulder. Prioriiy 2: Provide adequate equipment, facilities, and infrastructure. (Goals 1, 3, 4, 5, 6) Rationale: Firefighters require up-to-date safety ecuipn:er,t, i;re engines, and adequate facilities to ensure they can respond to emergencies quickly and effectively. Priority 3: Adapt to changing needs. (Goals 1, 2, 3, 4, 6) Rationale: The department needs vision and flexibility, as well as re- sources, to respond to changing conditions in the city and the community. t3oulder Fire-Rescue has not identified trade-offs among investment priorities because reducing staff, equipment, programs or facilities would result in greater risks to public and firefighter safety. Leveraging Resources Since 2002 the fire department has explored and implemented nwrrerous ef- 2009 Draft Frre-Rescue Master Plan 2-9-09 !'age 35 ~ ~ I ficiencies. Support staff reductions have left only one administrative assistant Alignment with the in the department. Some attempts at leveraging resources have been sue- city Business Plan The city's business plan model pro- cessful. For example, laptop computers were installed in each fire engine vides the framework for developing the with funding from an Assistance to Fire f-fighters federal grant. The city's department's funding priorities and grant-match dollars came from the city information technology deparUnent. recommendations. Ead1 city depart- Another grant from the U.S. Homeland Security agency provided X230,000, went is required to categorize its pro- grams and services according to with no match required, for new air packs and equipment. State grants have whether they azeessential, desirable, or helped provide funding for mitigation efforts in urban-wildland interface discretionary. The city funds programs areas. These have allowed the existing city wildland mitigation expenditures and services in all three categories. to be used as the city's match. The department has not been able to apply Most of Boulder Fire-Rescue's re- sponsibilities and duties are considered for additional grants because it has no funds available for a required essential services required to maintain match. the health and safety of the community. The depaztment's major responsibilities 20Uq Fire-Rescue Budget $13.3 Million and duties are classified according to the city's business plan as follows: 1 r/, Essential Services include services that 9 directly provide for the health and 1 safety of people and property in the C-~rti iliU:l ril f )Cn: ~ 711 ~1:,~ tc'.I:_ n>v> community and are not provided by L'{;c ~;:-:m~n:-a +:1~?rr:~t~r:~, r,,~~ another entity. They include response to emergencies within and around the city and the support activities that are •'~s needed to safely and efficiently miti- i " r`{'' gate emergencies. ~mnr~a d r '.ill t p: n.o. _ I,,r, . { ~ ~a,., { _ Examples include: fire and emer- gency medical response; automobile, technical, and water rescues; firefighter ' training; and fire-safety inspections to ' comply with city and state regulations and ordinances. Replacement of aging fire vehicles is essential. ' Desirable Services include services 90% that enhance essential services or im- prove the quality of life in Boulder. Ex- Funding Plans amp]es include wildland fire Investment strategies for this 10-year master plan are contained in three mitigation and public safety education funding levels, according to the city's Fiscally Col}strained, Action, and Vi- designed to reduce the demand for emergency responses. Sion plans. Detailed strategies for implementing Boulder Fire-Rescue goals Discretionary Services include serv- are provided later in this chapter and in the Appendix. ices that serve limited special interests. The Fiscally Constrained Plan represents funding at the current level. Con- Examples of Boulder Fire-Rescue dis- tinuing at the current funding Level will mean continually decreasing levels cretionazy services are funding of a regular fire engine replacement pro- of service until supplemental funding becomes available. Decreasing levels gram and the smoke detector giveaway of service could mean that fire engines are not staffed, fire stations are program fwldedthrough donations. closed, special teams are eliminated, and other possibilities. (The Action Plan Tier 1 sidebar on page 38 discusses some possible impacts of lactc of funding. These impacts also could be possible under eroding fiscally con- strained budgets.) Page 36 2009 Draff Fire-Rescue Master Plan 2-9-09 _ Via. ~ , S~ . . According to the city's business plan, all [3oulder Fire-Rescue services are considered Essential Services. Same of the department's costs, including overtime pay for firefighters and equipment maintenance and replacen-~ent, are not funded even though they are critical to the community's safety. This master plan identifies funding shortages the department has experienced under a fiscally constrained funding budget, and identifies strategies and funding needed to enable the department to continue to serve the commu- nity at an acceptable level. It is important to understand that the department's fiscally constrained strategies relate directly to the del~artmenYs ability to maintain essential services at the same level as 2008. A fiscally constrained budget that is continually eroding means that internal programs that would have direct implications for firefighter safety will not be implemented. These include fire-scene accountability, fire-scene safety officer, wellness/fitness, building pre-incident planning, and professiona{ certifications. Fiscally constrained funding is not sufficient to maintain equipment, train firefighters, cover ris- ing energy costs, or provide for future replacement of worn fire engines. Overtime costs to fully staff fire engines every day places a significant strain on the budget. Without additional funds to pay for these essential services, continuing to fund the department under a fiscally constrained scenario will mean reductions in basic levels of fire and emergency response. The Action Plan requires funding beyond existing levels. This plan has two tiers of strategies. Tier 1 would allow the department to maintain levels of service currently provided to the community (see sidebar and chart on page 38). Tier 2 focuses on restoring staff positions that have been cut, updating technology and equipment, and improving training and emergency re- sponse. The Vision Plan provides an ideal level of funding, allowing the department *,o meet accepted national standards for firefighting and hazardous materials response. With the Vision Plan level of funding, the department could re- place outdated facilities and increase the capability of seasonal wildland r7~itigation efforts, thus improving community safety in the wildland interface areas of the city. Recommendations A summary of I<ey recommendations and the estimated costs, in 2008 dollars, for all strategies at each funding level follows. Specific r-ecommendationsfon each funding level are included in the Appendix. 20Q9 Draft fire-Rescue Master Plan 2-9-Q9 Page 37 - :~11 ~ . Tier 1 Action Ptan: $1.£3 Million 376 3% 3676 :it li! t'c~ t,.... t . - - t~.ft' T+,iilll.l ; t-~Cilti~f t:l~Krfllli}Ilti ~ Fh. ;i.~il?.iflt.s ~~i~~'tl:IC.! li: ~„y i:t-~:cL~..~• [na~.•i•nt:?: ~t:tn;;;rul'il! ~'~Yi 39G 476 1 H6 What is the impact of not funding Action Plan Tier 1? Under the Action Plan Tier 1, additional funding will provide the department the resources needed to meet increasing service demands from the community. The city could see the following impacts even under a fiscally constrained budgef; • Individual fire engines will be permanently not staffed or staffed only when needed during an emergency. • Daily closures of fire stations will be made on a rotating basis. • Special teams will be eliminated, including Dive Rescue, Wildland Fire, and Public Education. • Staffing in the Fire Safety Division will be reduced. • 1-Tiring of two firefighters will be frozen. • There will continue to be no fine engine mplacement schedule or funded replacement program, and the need for safe, up-to-date vehicles will become more pressing. • Current loan payments to the city Fleet Replacement Fund will be suspended. • Ongoing equipment and repair and replacement will be postponed. • There will be no funding to operate or maintain the new fire training center. • Ongoing maintenance and upgrades of fire stations will be postponed. 200.9 Draft Fire-Rescue Master Plan 2-9-09 Page 38 i KEY ELEMENTS FUNDING PLANS Fiscal) Constrained Plan $35 Nt $34.2 M • Boulder Fire-Rescue's current budget is inadequate to maintain current (2008) service levels. • All 6ou(der-fire Rescue services are considered Essential Services according to the city's business plan. $3Q M Fiscally constrained funding is not sufficient to maintain equipment, train firefighters, cover rising energy costs, ~ M 5t.r.z n, and provide necessary equipment replacements. 5;'-; f~.~+. Without additional funding, there will be reductions in basic levels of fire and emergency response. S6.a M y? 0 ~ti'~ Action Plan s,x„ 53.; Requires funding beyond current levels 1 hz funrlini; (nc_u • 's nn res'crn~ staff positions that have ~ ~ M St.~t n, $12.8 M SI.U 11 been cut, ::pda''nf; te<.h:,ology and e:~uiprnent, and ® 573:A Al ~ Corr t F - C improving training and response times. Key recommendations for Tier 1 include: $10 ^,1 ° _ ~ Funding Level Maintain the current level of all services to the = 'c 50 community. W ~ o Address deficits in equipment and apparatus - , _ ~ ~f n _ replacement and repair ~ ~ ~ 7 Ensure facilities are adequate and maintained. < Key recommendations (or Tier 2 include: Restore support staffing. ~'t' Keep up with technological advances. Fiscally Aaiun Vision Plan > Renovate and refurbish facilities to meet Constrained Plan increasing demands. Plan Improve the ability to train (firefighters to meet technological challenges. (Refer to the Appendix for a complete list of recommendarions). Improve emergency response abilities. > Provide support necessary for firefighters to perform their jobs. LEGEND Fiscally Constrained Plan Funding Vision Plan ~ Fiscally Constrained Ongoing Costs Requires significant new funding levels Action Plan Funding 1-his pl<:~;airws 3o,.l:Jcr fire-Rescue':; meet accepted ? lier 1 Ongoing Costs naticnal standards for firefigiting and itazmat response ? Tier 2 Ongoing Costs Key recommendations include: ? Tier 1 One-time/Capital Costs Meet national standards for emergency response. _ Replace outdated facilities. ~ tier 2One-time/Capital Costs Improve wildland firefighting efforts. Vision Plan Funding (Refer to the Appendix for a complete fist of ? Ongoing Annual Costs recommendations). ? One-time/Capital Costs Z1J09 Draft Frre-Rescue Masfer Plan 2-9-09 Page 39 Fiscally Constrained Plan The Fiscally Constrained Plan represents funding at the current level.'t"he de- partment's one recommendation under this funding scenario is to ensure fire- fighter safety. Continuing at the current funding level will mean continually decreasing levels of service until supplemental funding becomes available. Key recornmendationslnclude: • Ensure firefighter safety. Estimated costs: $12.8 million: 2008 Fiscally Constrained Plan Funding Action Pian The Action Plan requires funding beyond current levels. This plan has two tiers of recommendations and budgets: Tier 1 maintains current levels of service; Tier 2 focuses on restoring staff positions that have been cut, updating technology and equipment, and improving training and emergency response. Key Recommendations for Tier 1: • Maintain the current level of all services to the community. • Address deficits in equipment and apparatus replacement and repair. (There is no replacement fund for capital items such as fire engines}. • Ensure facilities are adequate and maintained. Key Recommendations for Tier 2: • Restore support staffing. • Keep up with technological advances. • Renovate and refurbish facilities to meet increasing demands. • Improve the ability to train firefighters to meet the technological challenges they confront. • Improve emergency response abilities. • Provide support necessary for firefighters to perform their jobs. Estimated Costs: $12.8 million: 2008 Fiscally Constrained Plan Funding $ 1.8 million: Tier 1 Action Plan Ongoing Costs $ 1.7 million: Tier 2 Action Plan Ongoing Costs $16.3 million: Total Action Plan Ongoing Annual Costs $ 2.8 million: Tier 1 Action Plan One-time Casts $ 6.3 million: Tier 2 Action Plan One-time Costs $25.4 rriillionTota! Action Plan Budget, Fully Funded Page 40 2009 Draft Fire-Rescue Master Plan1-9-09 Vision Plan The Vision Plan requires significant new funding, and allows Boulder Fire- Rescue to meet accepted national standards for firefighting and hazardous materials response. Meeting national standards greatly improves firefighter safety and potentially can reduce fire insurance rates in Boulder. The plan continues replacement of outdated facilities and increases the capability of the seasonal wildland mitigation efforts, improving community safety in the urban-wildland interface areas of the city. Key recommendations include: • Meet national standards for emergency response. • Replace outdated facilities. • Improve wildland firefighting efforts. A detailed list of Vision Plan strategies is included in the Appendix. Estimated costs: $12.8 million: 2008 Fiscally Constrained Plan funding $ 1.8 million: Tier 1 Action Plan Ongoing Costs $ 1.7 million: Ter 7_ Action Pfan Ongoing Costs $ 3.7 million: Vision Plan Ongoing Costs $?_0.0 million: Total Vision Plan Ongoing Annual Costs $14.2 million: Vision Plan One-time Costs $34.2 million: Vision Plan One-time Costs Next Steps/ Implementation Boulder Fire-Rescue faces significant challenges in attempting to maintain the existing level of services. This master plan identifies funding shortages in the department's Fiscally Constrained Plan and identifies strategies in the Ac- tion Plan that are needed for the department to continue to serve the com- munity at an acceptable level. With tl~e acceptance of the master plan, the city sets priorities and iden- tifies funding needs. The Fiscally Constrained Plan anticipates continually declining levels of service due to lack of funding. The Action Plan identifies the need to pursue new funding for implementation. An important element of the Action Plan is conducting an analysis of the actual fire and emergency risks in the community, and assessing the depart- ment's ability to protect the community from such risks. This analysis may lead to recommendafions different from those contained in the master plan. The department intends to maintain flexibility in the master plan to be able to respond quickly to community needs, budget levels, unanticipated opportunities, and recommendations to improve the delivery of services. 2009 Draft Fire-Rescue Master Plan 2-9-09 Page 41 With this master plan as a guide, the department will use the city's busi- ness plan to develop annual budget requests. Capital improvements identi- fied in the master plan will be submitted in the annual budget and capital improvement plan cycle. Performance measures will be used to monitor service and progress toward the master plan goals. Progress will be re- viewed annually and described in the department's annual report. Conclusion This master plan details Boulder Fire-Rescue's current needs and strategies under the city's fiscally constrained budget and provides the next steps, de- pending on future levels of funding, for achieving the department's goals for providing fire and emergency services for the city of Boulder. I Page 42 2009 Draft Fire-Rescue Master Plan 2-9-09 - APPENDIX A -WILDFIRE EVACUATION ROUTES Wildfire Evacuation Routes i I ~ 1f I i a` ! ~ ` ec ~i Cee Hqi Dr, ~A Violet Ave? - i~ m ~j~- i "o d I I ~ z I r_ O cn _ !l i I Ir'.s Ave. T ~ _ ~ ` _ - ~ ~ ~ N_~ Vaimonl Rd. - - ~ Tom- _ I N Str~shrne Dr. ~ I L--- , Q~g Mapleton Ave r- _ ~ Arapahoe Ave. ; University ve. I Colorado Ave \a~~4L Baseline I , ~ ~~aAs ~ ` Table Mesa Dr. ~ i` a O~, ~ n~ .F ~ r~. ~ . A n Map Key Wildfire Evacuation Routes Map Date: July, 2002 Produced by: Scale: 1:80,000 Boulder Fire -Rescue department 0 0.5 1 2 3 4 Miles 20(19 Draft Fire-Rescue Master Plan 1-I9-09 PageA - I f~ ill ; _ ~r!'_ ; :i _ ~ i : ~ This page intentionally left blank. - r~~t 1 ! . -rte-- APPENDIX B -ACT/ON PLAN TIER 1 FUNDING PLAN Action Plan Tier 1 Recommendations The Action Plan requires funding beyond current levels. This plan has two tiers of recommendations and budgets. Key recommendations for Tier 1 include: Maintain the current level of all services to the community. a Address deficits in equipment and apparatus replacement and repair. Ensure facilities are adequate and maintained. Specific strategies are discussed in the following section. Goal 1-Provide effective response to emergencies. Relieve overtime expenses By adding six additional firefighters, hvo on each of three shifts. Personnel Impact: Adds six full-time equivalent (FTE) firefighters Budget Impact: $547,000 annual/ongoing personnel costs $90,000 annual/ongoing nonpersonnel costs Service Impact: It is critical to have a consistent number of firefighters staffing each fire engine around the clock. Twenty- five firefighters are required to be on duty every day to operate all of the fire engines in the city. There are three rotating shifts, each staffed with 31 firefighters, including a shift supervisor. The extra six firefighters provide coverage for others on leave for sick time, injury, or vacation. Frequently, mare than six firefighters per shift are off duty, some for extended peri- ods for surgeries, parental leave, or recovery from ~•vork injuries. When this happens, the department must call off-duty firefighters to work overtime. Overtime pay has been the cause of budget overruns for the department for five of the last six years. It makes more sense financially and organizationally to hire additional firefighters than to pay excessive overtime. Organization- ally, excessive overtime is a safety issue: Some Boulder firefighters have worked 60 percent more than their normally scheduled hours. The addition of six FTC firefighters will ease the need for overtime service and costs in the department. Although turnover has been limited, when a vacancy occurs, the department's hiring process, from prospective employee selection through fire academy graduation, lakes about nine months. The proposed additional six firefighters eventually will ease the overtime issue. However, in the near term, overtime will continue to be a problem until the new firefighters are fully proficient to work as firefighters, which usually takes three years. This time frame is because novice firefigh±ers have certain limitations after attending athree-month academy. They are not yet trained ar allowed to drive a fire engine, and cannot cover for a person of a higher rank. They can perform all of the basic functions of a firefighter, but generally cannot assume the higher-level responsibilities of Class T firefighters until about three years after they are hired. The $90,000 annual/ongoing costs represent the additional costs of having six new employees in the system. This funding could cover- additional personal protective equipment, training expenses, and other resources needed to support these employees. Conduct a community fire-risk analysis. Personnellmpact: None Budget Impact: $50,000 one-time 2009 Draft Fire-Rescue Master Plan 1-19-U9 Page B - 1 J ~~I ~ ~ APP[NDIX B Service Impact: Fire risk in a community develops incrementally over time. As Boulder matures, the fire protection plan created when most of the fire stations were located and built in the 1950s through the 1970s may not meet the city's needs. Development, traffic congestion, and road redesign or closures, for example, alter traditional response routes. A community risk assessment evaluates current conditions and assesses the ability of the fire protection plan to respond to those risks. A community fire-risk analysis also evaluates hazards in terms of the likelihood that a problem may occur and the damage it might cause. Fire preparedness requires consideration of all possible fires. However, some fire risks are more likely to occur than others, and some would result in greater damage. Conducting a risk analysis identifies these differ- ences. The results can be used to target resources toward protection against the types of fires that are most likely and most destructive. I-lazards that are likely to result in the most damage to people and property should be targeted first for remedi- ation or effective response if remediation isn't possible. Fire hazards that are less likely or that ~-vould have less severe con- sequences are identified so they can be addressed after the more serious situations are resolved. Conduct a citywide traffic study and assess the need for altering response routes. Personnel Jmpact: None Budget Impact: $20,OOU one-time Service Impact: Traffic and road redesign and closures can alter traditional response routes and cause conditions in which the department cannot meet response time goals. Fire station locations that made sense 30 years ago may no longer pro- videadequate emergency response. Areas with increases in population, denser development, and greater traffic conges- tion may require additional fire stations. This funding would pay for a traffic study and analysis of traffic patterns and transportation routes- boulder Fire-Rescue would plan to collaborate with the city's transportation department, particularly concerning data, to complete a citywide traffic study. This funding would provide for a consultant to prepare the study. Goal 2-Develop and train firefighters. Certify all firefighters in the State of Colorado certification program. Personnel lrnpact: None Budget Impact: $25,000 annual/ongoing Service Impact: There is no direct impact to service, except that the department would ensure that firefighters are U•ained to the highest standards. State of Colorado certification measures the level of knowledge, skills, and abilities of Firefighters and first responders and attests that they meet nationally recognized standards. The Colorado cerrtification program is based on national standards for professional firefighters, including: • National Fire Protection Association (NFPA) 1001, Fire Fighter Professional Qualifications. • National Fire Protection Association (NFPA) 1002, Fire Apparatus Driver Operator Professional Qualifications. • National Fire Protection Association (NFPA) 10L1 Fire Officer Professional Qualifications. • Nationally, efforts are being made to require emc rgency response personnel to obtain recognized professional state or national certification so the organization can qualify for grants and other funding through the U.S. De- partment of Homeland Security and the federal Emergency Management Agency. Implement a deparfinentwide wellness program. Personnellmpact: None Budget Impact: $60,000 annual/ongoing Page B - 2 2009 Draft Frre-Rescue Master Plan 1-79-09 APPENDIX B Service Impact: Firefighting requires long periods of sedentary, low-intensity work with sporadic high-intensity work in- volving strong emotions and exposure to human suffering. These working conditions place firefighting among the most stressful occupations. Approximately 50 percent of firefighter deaths are a result of heart attack or other stress-related causes. A high level of fitness is required to perform safely in the fire service. Wellness programs strengthen the depart- ment by helping firefighters withstand the stresses of the job and ensw-ing medical, physical, and emotional fitness, as well as access to rehabilitation when needed. Reducing injuries through better physical fitness can save the department money in the long run through lower costs for workers' compensation. long-term injury recovery contributes to the de- partment's overtime problem. A wellness program would provide annual medical and physical fitness evaluations for all firefighters, and nutrition and exercise education for the whole department. Increase nonpersonnel funding. Personnel Impact: None Budget Impact: $250,000 annual/ongoing Service Impact: Nearly all (99 percent) of the department's annual budget is allocated for personnel expenses or fixed costs needed to sustain the operation of the department at the current service level. These costs include utilities for the fire stations, computer and other equipment replacement, and fleet expenses, including fuel, repairs, and preventative mainte- nanceand replacement. fn recent years, this budget has not been adequate to cover these expenses; fixed costs, for exam- ple, have risen at a higher rate than budget increases. To cover those fixed-cost increases, the department has limited expenditures for other items generally paid for under the remaining 1 percent of the department's budget allocated for "nonpersonnel" items. These items include safety equipment for firefighters, fire hoses, ladders, radios, and office and sta- tion supplies. This approach is no longer sustainable. The funding will cover escalating fixed costs and allow the restora- tion of firefighter training and equipment replacement and upgrades. Goal 3-Update facilities and infrastructure. Fund the city portion of ongoing operating expenses for the new Boulder Regional Fire Training Center. PersonnelImpact: None Budget Impact: $65,000 annual/ongoing Service Impact: Cvery agency using the new training center will be expected to participate in funding its ongoing mainte- nance and operations. The center's board of directors will prepare a funding schedule after the center is in operation. This amount represents an estimate for the department's annual anticipated share in operating the center. Goal 4-Provide and manage critical resources. Establish and fund a fire engine replacement program. Personne! Impact: None Budget Impact: $2.8 million one-time $b50,000 annual/ongoing Service Impact: The city currently does not have a schedule to replace worn and outdated fire engines, and has no direct funding plan for fire engine replacement. Industry practice is to use fire engines in a front-line or primary capacity for ten years ant? then in a reserve capacity for five years. A funded regular replacement schedule for fire engines will keep the 2009 Draft Fire-Rescue Master Plan 1-19-09 /'age B - 3 C_ ~ APP£NDtX K city's fire fleet ready and able to respond to emergencies. The one-time costs would pay off the department's loan from the citywide fleet replacement fund for past purchases of fire engines. The ongoing funding would pay for purchasing new fire engines based on a schedule of replacing engines every 10 years and ladder trucks every eight years. Seven fire engines and one ladder truck would need to be replaced. During years when an engine is not purchased, the funds would be banked to purchase a more costly ladder truck. Goal S-Improve firefighter safety. Maintain emergency response by providing a trained safety officer. Personnellmpact: None budget Impart: $5,000 one-time $2,000 annual/on-going Service Impact: Safety on an emergency scene is the responsibility of each responder. National standards mandate at least one and, when conditions warrant, more than one person be designated as the incident safely officer. This budget item would fwid tra}Wing for safety officers, who focus on operation safety, both concerning federal Occupational Safety and Health Administration (OSHA) issues and especially emergency operations. At a structure fire, for example, a designated safety officer becomes part of the management team, and observes conditions of the fire and firefighter actions. If safety officers observe unsafe actions, they can stop them or request changes to make the operation safer. This position is called for in several rational standards. Develop an emergency backfiU plan and an automatic, tiered, rnutti-alarm response plan. Personnellmpact: None Budget Impact: $2,000 one-time Service Impact: Occasionally, emergencies occur that are beyond the ab}lily of the local fire department to control In those instances, neighboring fire departments are called upon to provide assistance. Neighboring depari:ments may assist directly in the emergency or be posted on standby at a city fire station to respond to another call within the city. Currently, vvhen neighborn~g fire departments are needed to assist with a major emergency, they respond via a system called "alarms." An initial response to a building fire requires three fire engines, a ladder truck, and a supervisor. If the emer- gency requires more help, a "second alarm" is called, which should bring an additional three fire engines, another ladder truck, and more firefighters and support resources. There is no systematic plan for calling for assistance or defining how and where neighboring fire departments are to respond when called. This budget item would pay for the cost of maps anc! administrative efforts so the department can create an automatic, tiered, multi-alarm response plan with other communi- ties. Provide training and equipment for emergency-scene firefighter accountability. Personnellmpact: None Budget Impact: $5,000 one-time Pag*e B - 4 2009 Drafr lire-Rescue Master Plan 1-19-09 APPENDIX B $2,000 annual/ongoing Service Impact: Fire and other emergency scenes can be complex and confusing. To enhance firefighter safety, the depart- ment needs to develop and implement a systematic program to account for the location and action of each firefighter on the scene. One-time costs would be used for research and set-up for equipment and training, and annual/ongoing costs would fund maintenance of the accountability system. Develop and implement apre-incident plan program. Personnellmpact: None Budget Impact: $3,000 one-time $3,000 annual/ongoing Service Impact: Pre-incident plans provide responding crews basic information about the building and its contents. This information can be vital to the outcome of a fire or hazardous materials release, as well as for the safety of the responders. The department has a very limited pre-plan program that needs to be expanded. This budget item would pay for one-time setup, software licensing, supplies, and instruction. Ongoing costs would pay for maintenance, license fees, and supplies. Goal 6-Enhance basic service to the community, including education and disaster planning. Personnel /m pact: None Budget Impact: $60,000 annual/ongoing Service Impact: The City/County Office of Emergency Management (OL-M) has experienced increased workloads and ex- pectations, which cannot be met due to lack of staffing. Emergency management is a citywide issue funded through Boul- der Fire-Rescue. In 2009, the county sheriff will detail a deputy to support OEM, and Boulder Fire-Rescue is expected to provide the other half of the funding for the deputy position. This position helps the department reach out, educate, and prepare disadvantaged residents for disasters. In a fiscally constrained budget environment in which actions requiring new ongoing funding general{y are not considered, this budget item more appropriately could be thought of as "maintaining" rather than "enhancing" basic service to the community. '1009 Draft fire-Resale Master Plan 1-19-09 Page B - S ~1 ~ t'~` 2'~ APPENDIX C -ACTION PLAN TIER 2 FUNDING PLAN Action flan Tier 2 Kecommendations The Action Plan requires funding beyond existing levels. The plan's strategies focus on restoring staff positions that have been cut, updating technology and equipment, and improving training and emergency response. Key recommendations include: • ilestore support staffing. • Keep up with technological advances. • Refurbish and renovate facilities to meet increasing demands. mprove training for firefighters to meet the technological challenges they confront in the community. • Improve emergency response abilities. • Provide support necessary for firefighters to perform their jobs. • Specific strategies are discussed in the following section. Goal 1-Provide effective response to emergencies. install automatic vehicle locate and global positioning systems in all fire engines. Personnellmpact: None Budget Impact: $65,000 one-time $10,000 annual/ongoing Service Impact: The automatic vehicle locate (AVL) system and global positioning system (CPS) are integrated with a com- puter-aided dispatch (CAD) system that identifies the closest and most appropriate unit to be dispatched to an emergency. These orientation systems can reduce response times and make adjustments due to traffic congestion and road construc- tion.The CAD system, currently managed by the police department, serves the city police and fire departments, as well as the county sheriff's department and most other fire departments in the county. The city has issued a request for proposals for a new CAD system that will have AVL and GPS capability (the current system does not). When the CAD system is ca- pable of using AVVGPS data, each agency will be required to purchase AVUGPS equipment. For the system to work, the department will have to install the equipment in each fire engine. The one-time cost would pay for software and equip- ment for fire engines, and the ongoing cost represents maintenance for installed equipment, licenses, and software up- dates as needed. Provide computer mapping and automatic routing capabilities in fire engines. Personnel impact: None Budgetlrnpact: $150,000 one-time $10,000 annual/ongoing Service Impact: All the city's fire engines have onboard laptop computers. The computers are capable of supporting inter- nal mapping programs, but the cun•ent CAD system cannot support the mapping programs. The ter_hnology is available io provide a map display of the emergency location and the route from the fire station. Coupled with GPS and AVL, a com- puter mapping and automatic routing system also could recommend tt;e~best route for the fire engine if it were not at the fire station. 2009 Draft Fire-Rescue Master Plan 1-19-U4 Page C - 1 ~ ~ ~ G APPENDIX C Goal 2-Develop and train firefighters. Develop a succession plan and create t~vo rotational battalion chief positions. Persa~nel Jmpact: Adds two FTEs Budget Impact: $70,000 one-time $250,000 annual/ongoing Service Impact: For the department to be successful, it must be prepared to replace a chief officer from within its r<~nks. Seven of the nine chief officers in the department are now or will be eligible to retire within the next five years. Good suc- cession planning will help minimize this impact on the department and the city. Creating two rotational battalion chief positions would allow firefighters to gain work experience in administrative positions. The Administrative Battalion Chief ~vauld work with budget, payroll, personnel issues, and other administrative duties. The Planning battalion Chief would work on field operations and logistical issues, special projects, and assist with general duties in the Operations Division. The positions could be rotational for all of the battalion chief level officers, al- (owingfirefighters to gain adminisirative experience over a three to five-year period. One-time costs would pay for office equipment, vehicles, and other expenses for the two positions. Ongoing costs would pay for salaries, benefits, and other personnel expenses. Develop an officer training program. Personnel lrnpact: none Budget Impact: $"10,000 annual/ongoing Service Impact: Two-thirds (65 percent) of the department's officers are eligible to retire now or within the next two years. In the past, much of the officer training has been conducted on the job, and has entailed shad- owing an experienced officer. With the potential for such high turnover; a formal officer training program 'ss needed. This budget item would provide funds for materials, supplies, and instructor fees. Deve{op an engineer training program. Personnel lnrpact: none Budgetlmpact: $"20,000 annua!/ongoing Service Impact: The department has no ongoing engineer training program to refresh fire engine and pumper truck drivers' skills in driving safety, fire pump operations, the physical properties of water, and procedures for handling and using water effectively on fires. This budget item would provide funds for materials, supplies, and instructor fees. Provide an additional captain position in the training division. Personnel Impact: Adds one FTF Budget Impact: $:35,000 one-time $121,000 annual/ongoing .Service Impact: 1'he fire training division is responsible for all fire and emergency medical training for the 100 staff mem- bers of the department. Each member annually is required to receive at least 36 hours of fire-related training and 36 hours of emergency medical training to maintain certifications. The division has a staff of two, 4vho provide all basic training, as well as specialized training such as water and other rescue techniques. The training division is in charge of all promo- Page C- 2 2009 Draft Fire-Rescue Masfer Plan 1-19-U9 t } ~ APPENDIX C tional processes for the department. Twice a year the division must provide instruction at the regional new-hire 1 ~-week fire-training academy. The department needs another captain to meet all of its training needs. Onc-time costs would pay for office equipment, a vehicle, and other personnel expenses. Ongoing costs would cover salaries, benefits, and other personnel expenses. Provide administrative support position in fire administration. Pecsannellrnpact: Adds one FT): Budget Impact: $61,000 annual/ongoing Service Impact: Fire administration staff do most of their own clerical support. Administrative assistance would allow ad- ministrators to concentrate more on their actual duties and improve service to the department and the community. Provide administrative support position in the fire training division. Personnel Impact: Adds one FTE Budget lrnpact: $5,000 one-time $61,000 annual/ongoing Service Impact: Training division staff provide their own clerical support. Administrative assistance would allow them to concentrate more on their actual duties and improve service. Fund outside training opportunities. Personnellmpact: \one Budget Impact: $100,000 annual/ongoing Service Impact: Outside training opportunities provide a means for department staff to see new techniques, tools, and equipment, ar.d to share experiences with others in the industry. This item would help fund the costs of registration, travel, and accommodations, but also would help cover the personnel costs, including overtime for the fi:•efighter trainees, and overtime for the firefighters who cover for them while they are being trained. Goal 3-Update facilities and infrastructure. Fund a future fire station design study. Personnel Impact: Uore Budget Impact: $10,000 one-time Service Impact: Department operations have outgrown their facilities. From the 1950s through the early 1970s, fire opera- tions consisted mostly of responses to fires and occasionally to a medical call to provide "resuscitation." The variety of service calls has grown to include hazardous materials releases, dive and water rescue, and emergency medical calls, among others. Call volumes have increased, requiring multiple fire engines and appropriate equipment to be available at each station. Specialty units such as hazardous materials response trucks need to be housed in a station where cross- trained firefighters can take the appropriate engine or truck to the call. Stations should be able to provide garage and stor- age space for all vehicles and equipment. The typical modern fire station is a 24-hour-a-day, 7-day-a-week facility. Stations today range in size from 9,000 to 1L,000 square feet on a lot large enough to accomrz~odate parking and maneuvering fire engines. Functionality aside, 2003 Draff Fire-Rescue Master Plan 1-19-09 Page C - 3 APPENDIX C the city's fire stations are not nearly as energy efficient as modern construction can be. For the crews, the station is their second home. When not doing fire, rescue, and medical response work, they train, eat, sleep, and relax while waiting for an emergency. Living and sleeping areas should be of adequate size for the comfort of staff. Each station should have a designated area for workout equipment so crews can maintain the level of fit- ness they need to perform their jobs. This study would identify the current and future needs of the fire department and create a template for fire station replacement, remodel, relocation, and design for future new fire stations. Fire Station Year Constructed Square Footage 1 1957 7,941 2 1959 4,752 3 1964 6,160 4 1967 2,000 5 1992 3, 62 2 6 1979 3,435 7 2000 5,081 Relocate Fire Station 3 from flood zone. Personnellmpact: None Budget Impact: $3,250,000 one-time ($1 million land and $2.25 million for building) Service Impact: Fire Station 3, located at 1585 30~h Street, was built in 1964, within the 100-year flood plain, and cannot be added on to_ There is a service area gap in northeast Boulder in the area poised for development known as the Transit Village. Relocating Fire Station 3 further north and out of the flood plain solves both issues-the need for a larger and more secure station location, and the need to improve service to a developing area. Relocating this station also would ac- commodatethe need for an additional fire station in northeast Boulder. Build a centrally located ~vitdland fire facility. Personnellmpact: None Budget Impact: $1 miliion one-lime Service Impart: The wildland fire crew currently operates out of several facilities around the city. This arrangement is not efficient; it creates the need to drive from location to location to conduct regular equip- ment checks and causes delays in emergency response. The wildland fire facility would be built on land already owned by the city, perhaps at the new fire tr<3ining center. Build a vehicle and equipment storage facility. Persorure! Impact: None Budges lrnpact: $SOO,000 one-time Service impact: Equipment storage in fire stations is very limited. With specialty apparatus {such as for hazardous materi- alsand water rescue) and reserve fire engines, there is insufficient garage space in the city fire stations. Apparatus is being stored in a barn on )ay Road. Supply storage is so limited that many items must be ordered only after the supply is ex- Page C- 4 200.9 Draft Fire-2escue Master Plan 1-19-09 `7, '.lip 1 ~ ' ~ APPENDIX C hausted. This budget item would provide a climate-controlled storage building near a fire station to be used for vehicles, equipment, and supplies. It would be built on land already owned by the city, perhaps behind Fire Station 7. Improve emergency fire station notification. Personnel Impact: None Budget Impact: $35,000 one-time Service Impact: The current fire station paging notification system is based on a system that was installed in the late 1970s. There is no back-ups system, and if a component fails, firefighters are required to monitor the two-way radio. This could occur overnight when crews might otherwise be sleeping. This item wrould provide a separate and independent notifica- tion system to alert fire stations of an emergency. Establish and fund a replacement program for unfunded fleet vehicles not included in the major fire apparatus replace- ment request. PersonnelImpact: None Budget Impact: $950,000 one-time $140,OOU annual/ongoing Service Impact: There are three unfunded fleet issues: major fire apparatus, wildland fire trucks, and staff/ support vehi- cles. Major fire apparatus without replacement fwuling is addressed in Chapter 4.7he wildland fire fleet includes vehicles with replacement funcJing and those without. Two wildland vehicles are o!d (1971 and 1977 vintage) military 6X6 trucks with water tanks and pumps driven by small auxiliary engines. The 1971 unit is due for replacement. In 2000 the replace- ment money for a brush truck was used to complete a joint purchase of several brush trucks by Boulder Fire-Rescue and the city's Open Space department. The old brush truck was kept in the fire fleet. The wildland fire fleet should be up- graded. The concepts of wildland fire fighting operations have evolved to require different tactics and equipment. New wildland engines more closely resemble a smaller version of regular city pumpers with higher ground clearance. The up- grade plan would replace the 1971 and 1977 trucks with new wildland engines ($250,000 to $2II0,000 each} and replace the 1991 brush truck with a new brush truck ($120,000 to $140,000 each). Staff and support vehicle needs include aback-up battalion chief vehicle and staff vehicles in the Fire Training, Wildland Fire, and Administration divisions. The battalion chief is the shift supervisor and incident commander. When their regular vehicle is broken or out of service for preventative maintenance, battalion chiefs use a 1997 GMC Suburban, Unit No. 3266. This vehicle was the battalion chief vehicle before 2004, when a new vehicle was purchased. Unit 3266 was retained in the fire fleet as a back up, but without replacement funding. Recent disaster exercises have demonstrated the need for two shift commanders, especially should a major flood physically divide the city. A second battalion chief has been called to supervise operations in the rest of the city while the regular battalion chief is busy with a serious fire. The Fire Training Division uses a 1994 Ford Explorer that is not in the fleet replacement fund but under a 1994 arrangement in which the department continues to pay a loan the Fleet Replacement Fund. It is old, worn, and does not meet the needs of the division. It should be replaced with a vehicle similar to a Ford F250 extended cab pickup. The Wildland Fire Division mitigation crew supervisor does not currently have a vehicle. The rrew and supervisor travel together in one vehicle. This limits the ability of the crew to handle multiple tasks. If the crew is working somewhere and the crew supervisor needs to gather additional equipment or attend a meeting, the crew is left without a vehicle or they must stop work and travel with the supervisor. One option is not efficient; the other is unsafe. A vehicle similar to a 2009 Draft Fire-Rescue Master Plan 1-19-09 Page C- S f. - ~ i APPENDIX C Ford F250 crew cab pickup would solve this problem. Finally, there is an increasing need to have a "pool" vehicle for use by people working on projects, attending trainings, or running errands to support fire operations. This could be a simple sedan-type vehicle. Provision of the following vehicles (many of which could be alternate-fuel) would address current and futw-e de- partmentfleet needs: Replace two wilctland engines and the brush truck. ($797,000) Replace the 1997 Suburban, backup Battalion Chief vehicle with a new vehicle, and fund the future replacement of that vehicle. ($50,000} Replace the 1994 Explorer Training Division vehicle with a new vehicle and fund the future replacement of ghat vehicle. ($35,000) Provide a new vehicle for the wildland mitigation crew supervisor. ($40,000) o Provide a vehicle for "pool" use by department members. ($28,000) Fund tF?e replacement of traffic prc-emption equipment and additional equipment. Personnel Impact: None E3udget Impact: $71,000 annual/ongoing Service Impact: Boulder has144 traffic signals, and130 of them are equipped with emergency vehicle (fire engine} traffic pre-emption equipment. Traffic pre-emption equipment controls the traffic lights at an intersection, turning all directions red except for the direction in which a fire engine is traveling. This equipment gives a green light to fire and emergency vehicles, improving their ability to maneuver through intersections and the safety of the fire crew and the driving public. Each fire engine is equipped with a sending device, and each intersection is equipped with a receiver and associ- ated wiring and processor cards to interface with the traffic-signal controls. Most of the pre-emption equipment was in- stalled in the 1980s. Since then, the technology of the traffic signal controllers has improved; the pre-emption equipment, however; has not been updated. As a result, some of the old equipment is not compatible with new traffic signal con- trollers. The rest of the pre-emption equipment has become unreliable, with high annual repair costs. Coal 4-Provide and manage critical resources. Develop and fund an inventory control system. Personnellrnpact: None budget Impact: $10,000 one-time Service Jmpact: The department manages hundreds of thousands of dollars worth of equipment and supplies. Historically, there has been no systematic program to account for and manage these resources. This budget item would fund the soft- ware and equipment needed to better account for and manage resources. Provide regular replacement of personal protective equipment. Page C - 6 2009 Draft Fire-Rescue Master Plan 1-t 9-09 - APPENDIX C Personnellmpact: None Budget Impact: $145,000 annual/ongoing Service Impact: Personal protective equipment (PPE) for firefighters has a service life mandated by national standards and manufactures. Cun•ently, PPE is replaced only when fund'mg is available. For example, air packs-backpack devices with air cylinders, tubing, and face masks that provide fresh air to firefighters in hazardous environments-generally are re- placed after 10 or 15 years of service, depending on wear. The department has 89 packs at a cost when purchased of $4,000 each. Replacement in 2008 dollars would be $356,000. This funding would provide for an annual PPC replace- ment program and create a future replacement fund for air packs. Examples of PPE Replacement items required for Boulder Fire-Rescue Turn Out Gear 10 years 218 sets $1,600 each Helmets 10 years 108 $280 each Air Cylinders 15 years 108 $700 each Provide a retired frontline fire engine for training division use. Personnellmpact: None Budget Impact: $40,000 one-time $5,000 annual/ongoing Service Impact: During firefighter training, the training division must remove a frontline fire engine from service or use a reserve engine. While training is being conducted, much of the equipment is removed from the engine. If that engine is needed to respond to an emergency, there can be delays while the equipment is replaced. The training division also must provide resources, including a fire engine and instructors, to the regional new-hire fire training academy, which is held hvice each year for 14 weeks. When fire engines are retired from frontline service, they often are kept in the fleet as a reserve for use when a frontline truck is out of service for repairs. The department currently maintains three reserve engines. Funding for this budget item would maintain the three reserves, and the next time a frontline truck is retired, it would be detailed to the training division. Thy funding would pay the salvage value of the truck and for ongoing maintenance. Goal 5-Improve firefighter safety. Establish and fund an equipment research committee. Personne! Impact: None Budget Impact: $15,000 annual/ongoing Service Impact: Since 9-11, the emergency response industry has developed hundreds of new products and provided im- provements on thousands of existing ones- Many of these products can have a direct and positive impact on the delivery of emergency services. Many of them also are expensive and have no direct bearing on the services the department pro- vides. The department has no systematic approach to evaluate new products and equipment. This item would fund the purchase of equipment for research and pay for overtime for the committee. 2009 Draft Fire-Rescue Masfer Plan 1-19-09 Page C - 7 - ~C ~f~ APPENDIX C Establish and fund an operational safety committee. Personnellmpact: None Budget Impact: $15,000 annual/ongoing Service Impact: The department has a safety committee, which is mandated by the firefighters' contract. The committee's role has been limited to reviewing accident reports and responding to concerns. This funding would expand the role of the safety committee to a more pro-active group that could recommend procedures, equipment tin conjunction with the equipment committee), and trainings to improve firefighter safety. Increase permanent staffing on ladder trucks from three to four firefighters per shift. Personnel Impact: Adds three FTEs Budget Impact: $231,000 ongoing personnel $45,000 annual/ongoing associated nonpersonnel Service Impact: This funding would allow the department to take the first. step toward compliance with national standards, such as the following, that require four firefighters per shift on ladder trucks: a National Fire Protection Association (NFPA) 171 U, Standard for Organir_ation and Deployment of Fire Suppression Operations to the Public Occupational Safety and Health Administration (OSHA) a National Institute for Occupational Safety and Health (NOSH) Goal 6-Enhance basic service to the community including education and disaster planning. Hire a hazardous materials code-enforcement inspector. Personnel Impact: Adds one FTE Budget Impact: $35,000 one-time $8L,000 annual/ongoing Service Impact: The department would hire a hazardous materials (hazmat) inspector to help the department and other city departments comply with complex state, federal, and local laws and regulations and advise about hazmat storage and handling. Hiring an inspector would allow the department to do pre-incident planning, respond more effectively to haz- matsituations, and provide firefighters better access to information concerning their personal health and safety. An inspec- toralso could help enforce hazmat laws and regulations in industry and business. Hire a public safety education specialist. Personnel Impact: Adds one FTE Budget Impact: $28,000 one-time $75,000 annual/ongoing Service Impact: The department's fire and safety public education program since its inception in 1998 has expanded into an array of awareness and education programs for problems the community faces daily. It includes nationally recognized college programs, as well as programs for preschools, elementary schools, local businesses, senior citizens, special needs populations, and juvenile fire setters. Topics include basic fire safety, fire safety for students living on and off campus, dis- Page C- g 20t)9 Draft fire-Rescue .Master Plan 1-19-09 APPENDIX C aster preparedness, and safe independent living. This funding would allow the department to extend public education ef- forts and potentially to reduce calls for service. Increase efforts to maintain a diverse work force. Personnellmpact: None Budget impact: $5,000 one-time $20,000 annual/ongoing Service Impact: The city's Diversity Plan states: "The city of Boulder believes that a diverse work force adds quality and perspective to the services that we provide to the public and to the employee's work environment. Therefore, we strive to provide an inclusive work environment by developing and maintaining a diverse work force, which values and is sensitive to the differences among employees and the public it serves." The city policy also directs departments to "plan and imple- ment programs to encourage and support diversity."In the late 1970s, the department recognized the value of a diverse work force and set out to diversify what had been typically awhite-male-dominated group. Today, the department is proud of its diversity and has been recognized nationally for efforts to v`~elcome women into the profession. This funding would support a higher level of rer_ruitment efforts and help prepare women and minorities to enter the hiring pool, and improve their ahility io become hired in Boulder. Create a cadet program to support a diverse work force. Personnellmpact: None Budget Impact: $5,000 one-time $25,000 annual/ongoing Service Impact: The city's Diversity Policy directs departments to "recruit and encourage a diverse population to apply for available City positions. This program would fund a cadet program for which the department would recruit and help pre- pare individuals to become qualified to be hired. Cadets would perform general duties such as administrative support, at- tend classes for emergency medical technician certification, and he trained in other ways to prepare for employment with the department. Increase wi{dland capabilities by staffing and equipping a second seasonal crew. Personnel Impact: Adds eight seasonal positi<~ns Budget Impact: $60,000 one-time $150,000 annual/ongoing Service Impact: The routine responsibility of the existing wildlands crew is to assist with forest eco-system management on city-owned lands. When a fire occurs on city-owned open-space and mountain lands, this crew is the initial response group. Open Space and Mountain Parks, along with Public Works (watershed responsibility), are responsible for approxi- mately 100,000 acres of wildlands. The current five-person crew averages about 150 acres per year with mechanical thin- ning of trees and brush and/or prescribed fire. A second crew would double the acreage that firefighters could treat and increase the initial fire attack capability. Both improve community safety. 7004 Draft Fire-Rescue Master Plan 1-14-09 Page C - 9 err 7 . ~ APPENDIX C Create afull-time wildland fire crew leader position. Personae! Impact: Adds one FTE Budget Impact: $35,000 one-time $75,000 annual/ongoing Service Impact: The current existing wildland fire crew and crew leader are seasonal positions. When not responding to fires, the crew performs forest and grassland ecosystem management in conjunction with Open Space Mountain Parks and Public Works. From early spring through the fall, the crew leader supervises the crew's work. Afull-time crew leader posi- tion would allow the leader over the winter to help plan for the next season's work, including devising strategies to avert potential fires. page C _ 10 2009 Draff Fire-Rescue Master Plan 1-19-09 %Ci APP,EA'D!X D - VJSJON FUNDING PLAN Vision Plan Recommendations The Vision Plan requires significant new funding, and allows Boulder Fire-Rescue to meet accepted national standards for firefighting and hazardous materials response. Meeting national standards greatly improves firefighter safety and poten- tially can reduce fire insurance rates in Boulder. The plan continues replacement of outdated facilities and increases the capability of the seasonal wildland mitigation efforts, improving community safety in the urban-wildland interface areas of the city. Key recommendations include: • Meet national standards for emergency response. • Replace outdated facilities. • Improve wildland firefighting efforts. Sl:~ecific strategies are discussed in the following section. Goal 1-Provide effective response to emergencies. Update a citywide traffic study every five years. Personnellmpact: None Budget Impact: $4,000 annual/ongoing $L0,000 every five years Service Impact: Traffic and road redesign and closures can alter traditional response routes and cause conditions in which the department cannot meet response time goals. Fire station locations that made sense 30 years ago may no longer pra- vide adequate emergency response. Areas with increases in population, denser development, and greater traffic conges- tion may require additional fire stations. This funding would provide a regular update of the traffic study described in the Action Plan. Update the community wildfire protection plan. Personne! Impact: None Budget Impact: $6,000 annual/ongoing $30,00() every five years Service Impact: The community wildfire protection plan, created in 2007, analyzes Boulder's fire potential in the interface areas between Boulder's urban and wild lands and the impact a fire might have on the community. The state mandates a wildfire protection plan for communities that want to be eligible for wildland interface grants. The plan helps refine the priorities for the protection of life, property, and critical infrastructure. It considers vegetation, fuel hazards, homes, busi- nesses, and infrastructure at risk, as well as the community's degree of preparedness and firefighting capability. To main- tain community awareness and response to changes over time, it is essential to review periodically wildfire hazards and potentials and the department's capabilities infighting wildland fires. Add a ladder truck and more firefighters to Fire Station 3. Personnel Impact: Adds 12 FTEs Budget Impact: $1.1 million one-time $1 million annual/ongoing personnel and $1£30,000 annual/ongoing associated nonpersonnel 2009 Draft Fire-Rescue Master Plan 1-19-U9 Page D- 1 APP[ND/X D Service Impact: Ladder trucks perform specialized tasks at structure fires and other emergencies. One ladder truck is lo- cated at Fire Station 1 (2441 13~h Street), and responds to emergencies across the entire city. As traffic increases, emer- gency response times lengthen. Redevelopment increases density and building height. National standards require that all fire engines dispatched to an emergency arrive within eleven minutes and that there 6e a ladder truck within 2.5 miles of buildings that exceed three stories. Those standards are: Insurance Services Office (iS0), Fire Suppression Rating Schedule o National Fire Protection Association (NFPA) 1710, Standard for Organization and Deployment of Fire Suppres- sion Operations to the Public. The addition of a second ladder truck will improve service to the community and fir-~fighter safety by providing an adequate number of responders, in appropriate fire apparatus and in a timely manner. Goal Z-Develop and train firefighters. Provide an additional lieutenant in the training division. Personnel Impact: Adds one FTE Budget Impact: $35,000 one-time $110,000 annual/ongoing personnel Service Impact: Increased staffing in other areas of the Vision Plan would place greater demands on the training division, which is responsible for all fire and emergency medical training for the depart- ment's 100 firefighters. To maintain certifications, each firefighter is required to receive at least 72 hours of basic training annually--36 hours for fire and the same for emergency medical training. The division's t4vo captains also provide special- ized training such as water and other rescue techniques. The division is in charge of the department's promotions process, and twice a year provides instruction at the regional new hire 14-week fire training academy. The department needs more officer support for training needs. Goal 3-Update facilities and infrastructure. Replace Fire Station 4. Personnellmpact: None Budget Impact: $3.25 million one-time ($1 million for land and $2.25 million for the building Service Impact: Constructed in 19b7, Fire Station 4, located at 4100 Darley Avenue, is too small to remain functional. Fire engines have to be specially designr_d to fit into the garage. This station encompasses 2,000 square feet, while the current standard for fire stations in the region is 9,000 to 12,000 square feet. Replacing this facility would improve conditions for the fire crews living there and allow any of the city's fire engines to operate out of the station. Page D -l 2009 Draft Fire-Rescue Master Plan 1-19-09 • i_i :rir - APPENDIX D Replace Fire Station 6. Personnellmpact: None Budget Impact: $2.25 million one-time for the building Service Impact: l'he area around Fire Station 6, located at 5145 N 63rd Street, has experienced significant development since the station was consU•ucted in 1979. The station is too small and not energy efficient, despite extensive work by the city's Facilities and Asset Management department. Replacing this fire station will increase efficiency and safety for fire- fighters. The city owns two acres of land at the current station site. Provide adequate office space for department administration. Personnellmpact: None Budget Impact: $2.75 million one-time ($500,000 for land and $'2.25 million for the building) Service Impact: A space analysis conducted in 2001 identified the administration space needs of at least 10,000 square feet. The fire depamrent occupies 3,737 square feet in the Public Safety Building. Additional space would improve office productivity and provide a more comfortable working environment. Replace Fire Station 2. Personnel Jmpact: None Budget Impact: $3.25 million one-time ($1 million for land and $2.25 million for the building) Service Impact: Constructed in 1959 and located at 2225 Baseline Road, Fire Station 2 is too small to accommodate its crew, engines, and equipment. The station encompasses 4,752 square feet; the standard for fire stations in the region is 9,000 to 10,000 square feet. Replacing this facility would improve conditions for the fire crews living there and allow any of the city's fire engines to operate out of the station. Remodel and expand remaining fire stations. Personnellmpact: None Budget Impact: $650,000 one-time $12,000 annual/ongoing Service lrnpact: Existing fire stations that have not recently been replaced or are scheduled to be replaced in the near fu- turewill need to be remodeled or expanded to provide adequate living space for additional staff discussed elsewhere in the Vision Plan. The department also needs more garage and storage space for specialty response vehicles. Some stations do not have adequate areas for equipment and designated areas for infection control and decontamination. This funding would address all these needs. Upgrade the radio system for 700-to-800-megahertz c~mpatihility. Personnellmpact: None Budget Impart: `.5'750,000 one-time $75,000 annual/ongoing Service Impact: In 2007, the department agreed tv n;ove '`s fire disp~.itch service into the: city dispatch renter rc;m a com- munication and dispatch services center it had shared with Boulder County. This move generally improved dispatch serv- ices by providing the fire department its own dispatch frequency and a tactical channel to be used on major incidents. 2009 Draft Firc-Rescue Master Plan 1-79-09 Page D - 3 i APPEND/X D However, the city's basic radio system and related infrastructure is 1970s vintage. Most other agencies and the State of Colorado since the mid-1990s have been migrating towards 800-megahertz trunked radio systems that allow better "inter- operability" between agencies. In the post 9-11 era, there is increasing pressure from the federal government for agencies to have interoperable comnwnications, and future grants from Flomeland Security may depend on having a more up-ta- date system. The one-time funding would pay for equipment and, if necessary, software. The ongoing funding would pay for maintenance, licensing upgrades, and future replacement. Goal ~-Provide and manage critical resources. Provide the training division a second retired frontline fire engine. Personnel fmpar_t: None Budget lmpact: $40,000 one-time $5,000 annual/ongoing Service lmpact: During firefighter- training, the training division must remove a frontline fire engine from service or use a reserve engine. While training is being conducted, much of the equipment is removed from the engine. If that engine is needed to respond to an emergency, there can be delays while the equipment is replaced. The training division also must provide resources, such as a fire engine and instructors, to the regional new-hire fire training academy, which is held twice each year for 14 weeks. If the Vision Plan is implemented, the department could have an additional 30 firefighters, which would increase the need for training and require a second engine for training. When fire engines are retired from frontline service, they often are kept in the fleet as a reserve for use when a frontline truck is out of service for repairs. The department currently maintains three reserve engines. This funding would maintain the three reserves, and the next time a frontline engine is retired it would be detailed to the training division. This funding would pay the salvage value of the truck and for the ongoing maintenance. Goal 5-Improve firefighter safety. Increase permanent staffing on all fire engines from three to four firefighters per shift. Personnel lmpact: Adds 21 ((Fs Budget lmpact: $1,833,720 annual/ongoing personnel and $3"15,000 annuaVongoing associated nonpersonnel Service lmpact: Hiring an additional firefighter for each engine dw-ing each shift would bring the department into line with national standards. Those standards are: • National Fire Protection Association (NFPA) 1710, Standard for Organization and Deployment of Fire Suppression Operations to the Public. • Occupational Safety and Health Administration (OSHA) • National Institute for Occupational Safety and Health (NIOSH) Page D - 4 2009 Uraft Fre-Rescue Master Plan 1-19-09 i ' ti APPEIVUlX D Goal 6-Enhance basic service to the community, including education and disaster planning. Hire two fire code inspectors. Personne!lmpact: Adds two FTFs Budget Impact: $70,000 one-time and $163,000 ongoing Service lrnpact: The fire-safety division is responsible for overall fire prevention efforts, fire-safety education, and new con- struction fire-safety plan review and inspection for the city. Every one of the approximately 6,000 businesses in Boulder is inspected at least every other year. The bulk of those inspections are conducted by emergency response crews in the fire stations as a part of their daily routine- The department has one fire-code inspector; but because of a lack of administrative support, the majority of the inspector's day is coordinating inspection records conducted by the field crews. Hiring two more fire-code inspectors would allow the department to shift the responsibility from firefighters to inspectors. This would free firefighters to do other work, and would ensure more consistency in inspections of businesses. Provide a retired fire engine for public education use. Personnel Impact: None Budget impact: $40,000 one-time $5,000 annual/ongoing Service Impact: When the department conducts public education events, it must remove a frontline fire engine from serv- ice or use a reserve engine. While the event is being conducted, much of the equipment is removed from the engine. If that engine is needed to respond to an emergency, there can be delays while the equipment is replaced. When fire en- gines are retired from frontline service, they often are kept in the fleet as a reserve for use when a frontline truck is out of service for repairs. The department currently maintains three reserve engines. Funding for this budget item would maintain the three reserves, and the next time a frontline truck is retired, it would be detailed to the training division for public edu- cation use. The funding would pay the salvage value of the truck and for ongoing maintenance. 2009 Draft Frre-Rescue Master Plan 1-19-09 Page D- 5 r- ~ This page intentionally left blank. I APPEI\'DTX F -GLOSSARY Glossary of Terms This glossary includes terms used in the master planning process by the City of Boulder. It also includes terms used by Boulder Fire-Rescue related to providing emergency services. Many of the definitions have been taken from the Fire & Emergency Self Assessment Manual, 7`'' Edition, published in 200Ci by the Commission on Fire Accreditation International. Acceptable Level of Risk: The amount or level of risk that is allowed by policy and has been gauged against a benchmark or standard determined by an "authority having jurisdiction." An acceptable level of risk for life, safety, and property is es- tablished by public policy through law, regulation, or level of service. A level of risk can be set by default; for example, when voters reject a bond issue to purchase apparatus or provide fire stations. Accreditation: A process by which an association or agency evaluates and recognizes a program of study or an institution as meeting certain predetermined standards or qualifications. It applies only to institutions and their programs of study or their services. Action Plan: The department's funding plan, aligned with the city's business plan, that allows for restoration or expansion of facilities, programs, and services when funding becomes available. ALS or Advanced life Support: A sophisticated level of prehospital care that builds upon basic life support procedures, and includes the use of invasive techniques such as advanced airway management, cardiac monitoring and defib~i Laton, intravenous therapy, and the administration of specified medications, to save a patient's life. Apparatus: Fire suppression equipment such as engine companies, aerial trucks, crash fire rescue, and command officer vehicles. At-risk Children and Youth: Young people whose ability to succeed in school and life is compromised by low income, lack of parental involvement/adult supervision, racial bias, language barriers, disabilities, and other factors. BLS or Basic Life Support: A primary level of prehospital care that includes recognizing life-threatening conditions and applying simple emergency lifesaving procedures, such as cardiopulmonary resuscitation, and adjunctive equipment. Blue Ribbon Commission:A commission appointed by Boulder City Council to establish along-tenrr, balanced, and stable revenue stream for the city that accomplishes public priorities while allowing flexibility to meet the varied and dynamic nerds of the municipal corporation in the next 20 years. BVCP or Boulder Valley Comprehensive Plan: A comprehensive plan for boulder Valley adopted jointly by the City of Boulder and Boulder County that guides land-use decisions regarding development and preservation. The current plan was adopted in 1977 and updated most recently in 2005. Business Plan: Provides a framework for success in a business or venture, including goals, strategies, and financing. 20119 Draft Fire-Rescue Master Plan 7-T 9-09 Page E - 1 APPE(VDIX E CPR or Cardiopulmonary Resuscitation: An emergency procedure to keep the blood flowing through the body, performed in cases of cardiac or respiratory arrest. Certification: A process ~.vhereby an individual is tested and evaluated to determine mastery of a specific body of knowl- edge or some portion of a body of knowledge. Community Risk Assessment:'~he evaluation of a community's fire and other risks, taking into account all facts that in- crease or decrease hazard to define standards of coverage (see Occupancy Risk Assessment). CIP or Capital Improvement Program: Provides a forecast of City of Boulder funds available for capital (construction, ren- ovation, and refurbishment) protects and identifies all planned capital improvement projects for public assets and their costs. CMO or City Manager's Office: The top administrator and staff for the City of Boulder. Demographic trends:l'rends related to the statistical characteristics of Irun,an populations, especially age and income. Density: The average number of individua;s or units per space unit (exaiiip!es: population per square mile; number of housing units per acre). Dispatch Time: The portion of a fire department's response time that begins when the dispatcher receives an alarm and ends when the dispatcher assigns a company or companies to respond to the emergency. EMS or Emergency Medicat Service: A service providing urgent out-of-hospital medical care for patients with acute illness or injury, and transport to hospital emergency departments, if necessary. In some jurisdictions, EMS providers handle tech- nical rescue operations such as extrications, water rescues, and search and rescues. EMT or Emergency Medical Technician: Emergency responders trained in practical emergency medical knowledge and skills to intervene quickly to evaluate a patient's condition, maintain airway breathing and circulation, control external bleeding, and prevent shock and further injury while expediting safe and timely transport of the patient to a hospital emer- gency department for definitive medical care. EOC or Emergency Operations Center: A central location where authorities exchange information, coordinate decisions, and dispatch services to manage emergencies, including major natural disasters. Fiscally Constrained Plan: The department's funding plan, aligned with the city's business plan, that allows for expendi- tures at current funding levels. Genera[ Fund: The City of Boulder's main fund, derived from tax revenues and other sources, which supports facilities, programs, and services across most city departments. Page E - Z 2009 Draft Fire-Rescue Master Plan 1-19-09 ~ Y ~ _ APPE~ti'DIX E lntill Development: Development or redevelopment of a land parcel within an urban or suburban community (example: Transit Village in Boulder). Infrastructure: The underlying foundation or basic framework of a system (example: transportation infrastructure that in- cludes tir,~ed traffic signals). Fire Preplan: A plan developed by the fire department with information about hazardous buildings that is used during emergencies to determine the best course of action. First Due Area: The portion of a jurisdiction that each fire department unit or company has been assigned as the first unit to arrive at the scene of an emergency. Usually the first due company is responsible for most activities in that area. First Responder: The person who is trained and/or certified to be the first to arrive at the scene of a specific type of emer- gency, such as EMS or hazardous materials. Flashover: The critical point during a fire when a room and its contents ignite simultaneously. Hazmat or Hazardous Materials: Any solid, liquid, or gas that can harm people, other living organisms, property, or the environment. These include biohazardous, corrosive, explosive, flammable, radioactive, and toxic materials. Jurisdiction: A population area wherein there is clearly defined responsibility, Based on statutory authority, to provide fire and/or emergency medical services; also called authority having jurisdiction. ladder Truck: Vehicle that carries a variety of equipment such as ladders, forcible entry tools, and rescue equipment. level of Service: The resources needed to meet the stated service level objectives. Level of service is defined only in terms of what is provided and not in terms of effectiveness or of quality. Master plan: A plan that gives overall long-range planning guidance for a public agency (example: Boulder Fire-Rescue Master Plan). lvtanagement Plan: A plan that guides decisions about Boulder Fire-Rescue. Mixed-use: A planning term for development that includes more than one purpose for a structure, block, or neighborhood (examples: a building with first-floor shops, second-floor offices, and third-floor apartments, or a neighborhood with homes and offices). Mutual Aid: An agreement to provide emergency fire and medical services to neighboring communities in the event of in- cidents that surpass a community's ability to respond. 2009 Draft Fire-Rescue Master Plan 1-7 9-09 Page E- 3 APPENDIX E Occupancy Risk Assessment: An assessment of the potential risks of a specific structure and the fire department's ability to handle the types and severity of emergencies within that structure; an assessment often includes classifying risks into cate- gories. Performance Measures: Indicators that show the effectiveness of a program or service. Preincident Planning: The process of creating a plan that identifies potential hazards and strategies for emergencies at par- ticularsites, including building and owner information, and identification of uses that present risks related to fire, haz- ardous materials, and other emergencies. Reserve Firefighter: A person who is paid to respond to emergencies on a random or on-call basis. Reserve firefighters are different than volunteers because they receive compensation on a per-hour basis. Response Time: The total amount of time that elapses from when a communications center receives an alarm until the re- sponding unit is on the scene in an emergency and prepared to control the situation. Risk Category: A rank or category assigned to a fire management cone chat reflects the degree of risk to life and property, and hence a demand upon services by a responding agency. Risk categories are defined by the authority having jurisdic- tion. Safety Equipment: Tools and equipment used by individual firefighters to perform fire fighting, hazardous entry, or rescue work. "this equipment generally is not assigned to the individual, but is carried on the apparatus, and includes respiratory equipment, hazardous materials entry suits, carabiners, and lifelines. Service Level Objectives: Statements of performance unique to a given jurisdiction that are developed by a fire agency based an nationally recognized standards and practices for fire and ancillary services. The service level objectives are written based upon the community's profile, including both existing and future risk levels, the makeup of occupancies, types of uses, the probability and consequences of anticipated incidents, and the historical response trends and patterns. Standards of Response Coverage: A written statement that combines service level objectives with staffing levels to define how and when a fire agency's resources will respond to call for service. Succession Planning: A plan fo:• identifying and developing employees, through training and education, to succeed in managing a department or agency. Sustainability: Characteristic of a process or state that can be maintained at a certain level indefinitely. The City of Boulder master plans adc)ress Sustainability regarding maintaining economic, social, and environmental health. Sustainable Funding: financial resources needed to support programs and services into the future. Page E- 4 2009 Drafr Fire-Rescue Master Plan 1-19-09 c~ APPENDIX E Transit Viilage: The redevelopment area with boundaries near 30'h Street and Foothills Parkway and Valmont Road and Pearl and Walnut streets that will include a new transit center, new neighborhoods, improved business and industrial dis- tricts, transportation enhancements, ancJ public spaces. Total Response Time: The total elapsed time from notification to a responding fire company and the arrival of that unit at the scene. Total response time encompasses notification, alarm processing/dispatch, turnout, and travel time. Trave! rme: The portion of response time during which the assigned fire company is driving to an emergency scene. Turnout Time: The portion of response time from assignment to when a fire company begins to travel when firefighters are donning personal protective clothing and boarding their fire trucks. Triage: A process for sorting injured people into groups based nn their need for or likely benefit from immediate medical treatment. Triage is used in hospital emergency rooms, on battlefields, and at disaster sites when limited medical resources must be allocated. Urban: Characteristic of or relating to a city. Vision Ptan: The deparUnent's funding plan, aligned with the city's business plan, that allows for the complete set of services and facilities desired and used by a significant portion of the community, when funding becomes available. 2009 Draft Fire-Rescue Master Plan 1-19-09 Page E - S - Attachmen± B 3. Fire-Rescue Master Plan and Service Program Summary Background Information The city of Boulder Fire Department is responsible for the protection of life and property through fire prevention, education, fire suppression and emergency medical and rescue services. The Fire Department has seven fire stations strategically located around the city. Each station operates 24 hours per day, seven days per week and is equipped to respond to fire, medical and other emergencies. Medical calls accounted for 61.percent of the 9,200 calls for service in 2007. • Station One (Central Station) - 2441 13th Street • Station Two - 2225 Baseline Road • Station Three - 1580 30th Street • Station Four - 4100 Darley Avenue • Station Five - 4365 19th Street • Station Six - 5145 North 63rd Street • Station Seven - 1380 55th Street The Fire Department also participates in a countywide joint training center. The current facility is at 960 Lee Hill Road. A new fire training center is planned on a site just east of the dam at Boulder Reservoir. Construction is scheduled to begin early in 2009. The mission of Boulder Fire Rescue "strives to make Boulder a safer place to live and work. We protect the community from fires and hazardous materials releases, and we respond to urgent medical needs, accidents and natural disasters." The 2009 Fire-Rescue Master Plan outlines the following goals: Provide effective response to emergencies. Develop and train firefighters. Update our facilities and infrastructure. Improve firefighter safety. Enhance basic service to the community including education and disaster planning. Departmental Philosophy `to be effective, firefighters must be well trained, well equipped, and arrive on time. Preventing fires before they occur is the department's priority. Public fire education and fire safety inspections help in this effort. The city emphasizes private sector self protection through code regulations and design incentives. Automatic fire sprinkler systems are required for many uses. Municipal fire protection requires a balance between city services provided through trained firefighters and services provided by built-in automatic fire systems. City provides protection supplements the built-in systems and is designed to handle fires in non-protected buildings, outside fires and medical and other emergencies. Boulder Fire Rescue believes in providing diverse equipment nn all fire engines, and in training firefighters as generalists rather than specialists. Every front Line fire engine has fire-fighting and rescue equipment along with emergency medical supplies. Every firefighter must pass a comprehensive training program including fire fighting, hazardous materials response and rescue involving vehicle accidents, fire, water, and ice. The department provides Basic Life Support (BLS) services. Firefighters are required to earn and maintain certification as a State of Colorado Emergency Medical Technician. The emergency medical care system in the city is amulti-tiered system involving: Boulder Fire Rescue (BLS) A public/private partnership with a private ambulance service for Advanced Life Support (ALS) and transport. Area hospitals. The time between the beginning of a medical emergency and the start of life support activities can often make a difference in the outcome. The fire department often is the first to arrive on a medical emergency. Firefighters provide BLS care until the ambulance arrives with paramedics (ALS) care and transports sick or injured people to the hospital. Boulder Fire Rescue has some regularly on-duty firefighters who are cross-trained to staff four special operations teams. The firefighters on these special operations teams have additional responsibilities in the fallowing specialty areas; Hazardous Materials Team, Wildland Fire Team, Dive Team, and the Public Education Team. To maintain proficiency in a wide variety of emergency services, the department conducts extensive training in all areas including firefighting, fire prevention, rescue, emergency medical care, hazardous materials and public education. Joint training exercises are conducted with other county agencies. Fire stations are located strategically to meet the emergency response service standards. As the population within a service area increases, the number of calls for fire and emergency services also increases. When one fire response unit in a station exceeds 1,500 calls per year additional fire engines and staff should be provided. Service Standards The BVCP outlines urban service standards far fire protection and emergency medical care, and are listed in Section II. 3. d. Urban Service Criteria and Standards. Two of these standards are also national standards: Respond with the first fire engine dispatched to an emergency call for service and ar-r7ve within six minutes 90010 of the time. Respond with all units initially dispatched to an emergency call for service and arrive within 11 minutes 90% of the time. In addition to the Service Standards, the master plan outlines these service measures to guide cun-ent. and future operations and capital development. Prevent deaths from fires. Limit annual deaths from fire to one or fewer per 1(}0,000 population. Prevent fire related injuries among community members. Limit annual fire injuries to community members to 10 or fewer per 100,000 population. J ] ,LI~JIIt^L..f`J7 TT-.- 7 f1L~.-•- i Prevent fire related injuries amon fg irefi haters. Limit annual firefighter injuries on the fire ground to less than 1 per 100 fires and less than 3 per 100 firefighters. Minimize di~•ect losses from fire. Limit annual direct fire loss to $0.30 per $1,000 of actual property value protected. Provide cost effective fire protection and emergency services. Limit the annual cost of service to $150 per capita or $0.80 per $1,000 of actual property value protected. Future Programs and Projects The 2O091~i.re-Rescue Master Plan identifies the basic levels of service that can be accomplished with current funding, and those considered essential to the community. The department's fiscally constrained strategies are currently under funded. Maintaining 2008 service levels into the future is not possible or sustainable. The plan outlines the approaches to take to reduce service levels to match available funding if needed. Future projects and issues for the department include addressing the following: Relocation of the regional fire trainin cg enter -the new fire training center is planned on a site just east of the dam at Boulder Reservoir. Construction is scheduled to begin early in 2009. The department's goal is to be using the new facility by early 2010. Increasing service demands -The department responded to 9,200 calls for service in 2007 compared to 6,834 in 1997. Replacement of fire en i~ nes - there is no schedule or funding plan to replace aging outdated fire response vehicles that cost from $550,000 to $9.50,000. Rising fixed costs -citywide budget constraints have cause the department to use daily operations budget to pay increasing fixed expenses. This has caused the daily operations budget to not be sufficient to pay for necessary items such as fire hose, radios, and safety equipment. Inadequate budget --The ability to properly replace equipment, provide training, and provide for the daily operation of the department are under funded. Too few firefighters - cut7ent staffing is below national standards and is not sufficient to cover vacancies due to vacation or illness/injury. This significantly increases the need to pay overtime and heightens the risk of firefighter injuries. Aging facilities -Five of the seven fire stations were built between 1950 and 1980. Most need major maintenance or renovation. They do not have adequate space for today's vehicles; equipment and housing needs. Need for training -There is limited funding available for training and as a result firefighters are not meeting nationwide standards for training and community safety. Firefighter health and fitness -Annual medical exams and a health, wellness, fitness program for all firefighters would help ensure that they are ready to deal with the challenges they face daily. Develop fut_u_rc leadership -seven of nine chief officers and 23 of 28 station officers are eligible for retirement now or within the next five years. Succession planning requires time and special training for firefighters to become officer. and administrators.