Fire Study Report. Based on the September 2006 Tri-Data Study Approved by Jacksonville s City Council on November 10, PDF

Fire Study Report Based on the September 2006 Tri-Data Study Approved by Jacksonville s City Council on November 10, 2008 O F F I C E O F T H E D I R E C T O R As the Director of the Jacksonville Fire
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Fire Study Report Based on the September 2006 Tri-Data Study Approved by Jacksonville s City Council on November 10, 2008 O F F I C E O F T H E D I R E C T O R As the Director of the Jacksonville Fire and Rescue Department, I am pleased to present the Fire Study Report, a comprehensive long-term plan to meet the growing fire and rescue needs of our community. Recommended by Mayor John Peyton and approved by Jacksonville s City Council, this document is historical because it details the single largest expansion plan in JFRD s 120-year history. The Fire Study Report includes recommendations and analysis from the Tri-Data Division, which is an outside fire service consultant, as well as JFRD s senior leadership. There are many recommendations throughout these pages, but only one overall goal: to reduce our department s response times to emergencies. In our business, the sooner we can treat patients and begin fighting fires, the better the chances of minimizing the loss of life and property. And that is our mission at JFRD. JFRD is distributing this report to government officials and citizens so they can better understand our department and what steps are essential to consistently meeting our mission. The first section of this report summarizes the legislative process which guides our planned expansion; it also explains JFRD s strategy to reduce response times. In section two, we present the complete Fire Study Report document, which City Council approved Nov. 10, In closing, I would like to thank Mayor Peyton and all members of City Council for their support. Public safety is government s top priority and our elected officials clearly recognize this. Thank you for your interest and support of the Jacksonville Fire and Rescue Department. Sincerely, Daniel A. Kleman, Director Jacksonville Fire and Rescue Department 515 N. Julia St. Jacksonville, FL Contents Summary of Fire Study Report Pages 1 14 Fire Study Report Pages Appendices A - D Pages 21 38 Fire Study Report Summary Daniel A. Kleman, Director Jacksonville Fire and Rescue Department November 3, City Council s Vision In 2000, City Council members recognized how Jacksonville s expansion was rapidly increasing the demand for fire and rescue services. Council passed an ordinance requiring specific actions from JFRD and the Mayor. 2 Ch. 421 Ordinance Code Requirements JFRD selects an independent consultant every five years to study and evaluate the department s needs. JFRD s Fire Chief submits a Fire Study Report based on the consultant s recommendations. Council adopts a plan based on the Fire Study Report. In future years, the mayor must fund the plan in his annual budget submission or provide an alternative. 3 Following Council s Direction An independent consultant (Tri-Data) studied the department in 2001 & JFRD implemented recommendations from the first study and is now using 2006 s study as the basis for the current Fire Study Report. 4 Current Fire Study Report Using Tri-Data s recommendations and internal analysis, JFRD s Fire Study Report is focused upon: Response/Travel times Staffing and apparatus Station locations 5 Time is the Enemy Kitchen fires can become house fires. Heart attacks or strokes can become fatalities. Gunshot wounds can become murders. 6 All Neighborhoods are Affected Our residents are more likely to require JFRD s emergency services than become victims of violent crime. Response times matter to all of us. 7 Measuring Response Times JFRD views the county as urban and rural territories. Rural Urban 8 JFRD Travel Time Data Urban Goal 4 minutes or less* Actual 6 minutes, 44 seconds or less* Rural 8 minutes or less* 10 minutes, 7 seconds or less* *90 percent of the time 9 Factors Influencing Travel Time Location of stations Availability of apparatus Call volumes 10 The Long-Term Solution To improve travel times, the Tri-Data Report and Fire Study Report recommend additional stations, staffing and apparatus to meet growing demands for JFRD s services. 11 Fully Implementing the Fire Study Report To meet growing demand, JFRD should add: 8 new stations (with an engine company & rescue unit at each) 8 additional rescue units (includes 2 peak-time units) 4 additional ladder companies 2 additional marine units 7 replacement stations 4-person minimum staffing* on new engine companies and 23 existing engine companies *Per NFPA standard for 2-In 2-Out. 12 Conclusion Time is the enemy in emergencies. Travel time needs to be improved. This is accomplished through additional fire stations, apparatus and staffing, as recommended in the Fire Study Report. 13 The Next Step Mayor Peyton has submitted the Fire Study Report to City Council for adoption by Resolution , establishing the 10-year plan to meet the community s needs for fire and rescue services. 14 The Fire Study Report Based on the Tri-Data Report and Presented to Comply with Chapter 421 of Jacksonville s Ordinance Code. Daniel A. Kleman, Director Submitted July 14, 2008 Revised November 3, 2008 Introduction When City Council adopted Chapter 421 of the Jacksonville Ordinance Code in 2001, the Jacksonville Fire and Rescue Department became legally obligated to periodically plan for its future, in concert with an outside consultant, and report those plans to City Council. In 2001 and 2006, JFRD utilized Tri-Data, a division of Systems Planning Corporation in Arlington, Va., to analyze JFRD and make recommendations for a variety of improvements so the department could keep pace with Jacksonville s growing demand for both fire and rescue services. Former Fire Chief Ray Alfred submitted his report to City Council on June 18, It was based upon the 2001 Tri-Data report. Council adopted his plan on Sept. 25, JFRD has implemented a number of recommendations from the 2001 report. This document describes JFRD s comprehensive multi-year implementation plan based on the 2006 Tri-Data Study. 16 Legislative Mandate and Time Schedule Section of the City of Jacksonville s Ordinance Code requires that every five years the Jacksonville Fire and Rescue Department, with the aid of an independent outside fire consultant, produce a Fire Study Report, which addresses needed improvements to the city s fire and rescue program. While the ordinance requires the report to be completed by May 1, 2005, the outside consultant work was not finished until late That study, conducted by the Tri-Data Division of Systems Planning Corporation, has been under review by the department since that time. Following the transmittal of this JFRD Fire Study Report to City Council, Council is obligated to adopt a list of fire and rescue capital improvements detailed by fiscal year for at least five years, which will be known as the Fire and Rescue Station Capital Program. After Council s adoption of the Program, the Mayor is to review the Program, and then he is required to either include funding in his annual budget submission by July 15 or to submit a resolution with a detailed list of those projects not funded and the reason for the lack of funding along with an alternative timeline to fund the projects. For the first year (FY ) of this Fire Study Report, the projects and funding are the same as is found in the Mayor s Recommended Budget for FY which was submitted to City Council on July 14, In recognition of the late completion of the Tri-Data study, but still attempting to meet the intent of Chapter 421, it is proposed that this report be submitted to City Council in July 2008 and that Council be asked to pass the resolution adopting the report on November See Appendix A for a copy of the ordinance establishing the procedures for consideration of the Fire Study Report. Demands for JFRD Service Are Growing Faster than Jacksonville s Population Demand for emergency services from JFRD is increasing faster than population growth and is outpacing JFRD s ability to respond timely. The Tri-Data report noted that from 2001 to 2005, emergency medical service requests and fire incidents increased by 16 percent while population during that time grew by only 9.3 percent. JFRD s Priority: Improving Response Time Time is the enemy in most emergencies. Kitchen fires can become house fires. Heart attacks or strokes can become fatalities. Gunshot wounds can turn into murder statistics. The entire community is affected by JFRD s response times to emergencies. The Tri-Data study recommends that improving response times is critical to JFRD s continued success in ensuring public safety. These recommendations include adding resources to the department to reduce response times. Response time has several components: call processing, turnout (the time it takes for responders to depart for an emergency) and travel time. Tri-Data reported that JFRD times for call processing and turnout are close to the national standards; however, travel time is significantly longer than national standards and should be improved. JFRD s response time for travel to an emergency in our Urban Area in 2007 was six minutes and 44 seconds or less, 90 percent of the time. The National Fire Protection Association (NFPA) recommends that response time for travel in an urban area should be four minutes or less, 90 percent of the time. Supply and Demand Tri-Data and JFRD agree the top factor influencing response time is the proximity of responders to an incident. Proximity is impacted by a variety of factors, including call volume, the type of calls for emergency response in a territory and the number of apparatus in service. Multiple calls for service in close proximity to each other or a 18 sizable incident requiring a large response from the department or rescue crews being tied up at hospital emergency rooms can trigger a domino effect where the closest units available to respond to subsequent calls must travel longer distances to reach the emergency. This significantly increases the response time for that call. For example, it is not uncommon for more than half of the existing rescue units to be engaged on calls, and therefore, not available to take the next call even if it is close to their home station. Unfortunately, it is becoming more common to have as few as only five or six rescue units available citywide at any time to handle the next call. As call volumes continue to increase and the supply of rescue units remains static, response times become worse. And as JFRD employees respond to an increased volume of calls, personnel are stretched to respond to too many calls in a 24-hour shift. Additional Stations, Equipment and Staffing To effectively reduce travel times, Tri-Data recommends adding fire stations, apparatus and personnel in areas with high demand. Using the 2006 Tri-Data report, JFRD has identified improvements to bring response times closer to the accepted national standards and to meet the growing demand for emergency services in our community. The Tri- Data Study and this report also recognize the need for improving firefighter safety through proper staffing of existing apparatus. Recommendations are as follows: - Add 8 new stations, each with an engine company and a rescue unit, at the following locations and in the order listed: #61 Near Argyle Forest/Oakleaf Plantation #62 Near I-95 S. and Old St Augustine Road #63 Near St. Johns Town Center #64 Near Harts Road and Biscayne Blvd. #65 Near Atlantic Blvd east of Craig Airport #66 Near Hartsfield and Merrill Road #67 Near Sibbald Road and Soutel Drive #47 Near Braddock and Lem Turner roads (replacing an old volunteer station which is currently not staffed) 19 - Replace or relocate seven existing, old stations with modern facilities - Add 6 full-time and 2 peak-time rescue units at existing stations - Add 4 ladder companies at existing stations - Add marine capacity at two existing stations Maps depicting the locations of these improvements can be found in Appendix B. - Add firefighters to 23 engine companies, increasing the minimum staffing on those companies from three to four personnel so the company will be able to more safely begin an interior attack at a structure fire. - Improve Fire Prevention Division s services - Improve departmental capacity to meet demands Scheduling and Funding Issues Due to the lengthy list of improvements resulting from Tri-Data s analysis, it is recommended that a phased approach be considered for the implementation of the Fire Study Report. And while the Tri-Data Study identified capital projects to be funded, such as new stations, it is also obviously necessary to identify the operating expenses that will have to be funded as those improvements are constructed. Therefore, we have prepared a comprehensive Fire Study Report with a 10-year timeline which identifies the operating costs as well as capital costs. While a shorter time period to implement the Fire Study Report is desirable, JFRD acknowledges the current challenging financial times facing the city, as well as the demands placed upon the city government for other needs. Appendix C provides a detailed list of both capital and operating costs necessary to implement the Fire Study Report over the next 10 years. Appendices: Appendix A: Ordinance E with Exhibits A and B Appendix B: Maps depicting JFRD Improvements Appendix C: 10-Year Plan of JFRD Improvements Implementing the Tri-Data Study Appendix D: City Council Resolution adopting the Fire Study Report 20 APPENDIX A Substituted 9/13/01 Amended 9/25/ Council Members Holland, Alvarez, Brown, Carter, Chandler-Thompson, Daniels, Holzendorf, Lockett-Felder, Overton, Ray, Rustin, Self, Soud, Southwell and Yates and the Finance Committee offer the following substitute for File : ORDINANCE E AN ORDINANCE CREATING CHAPTER 421 (FIRE AND RESCUE CAPITAL PROGRAM); ADOPTING A FIRE AND RESCUE CAPITAL PROGRAM FOR THE FISCAL YEARS ; REQUESTING THE MAYOR TO REPORT TO THE COUNCIL ON MEETING FIRE AND RESCUE CAPITAL NEEDS FOR FISCAL YEAR ; PROVIDING AN EFFECTIVE DATE WHEREAS, on December 1, 1999, the Mayor engaged the services of Tri-Data Corporation to investigate current fire deployment needs within Duval County; and WHEREAS, on June 18, 2001, the Chief of the Fire and Rescue Department presented Council with a five point plan to begin implementation of the Tri-Data fire station deployment study (Exhibit A); and WHEREAS, among other things, the five point plan (Plan) recommended an increase in capital spending to construct six (6) new fire stations over the next six-year period reflected in Exhibit B; and WHEREAS, the Plan recommended replacement of up to eighteen (18) existing fire stations and major renovations to two (2) more over the same period; and WHEREAS, the Plan recommended that it be reviewed prior to Fiscal Year 2006 to determine what population growth has actually 21 Substituted 9/13/ occurred and whether growth areas within Duval County have shifted to an extent which warrants rethinking siting of additional fire stations beyond 2006; now therefore BE IT ORDAINED by the Council of the City of Jacksonville: Section 1. Creation of Chapter 421 (Fire and Rescue 6 Capital Program). There is hereby created Chapter 421, Fire and Rescue Capital Program, to read as follows: CHAPTER 421 FIRE AND RESCUE CAPITAL PROGRAM 10 Section Title. This chapter may be known as the 11 Fire and Rescue Capital Program. 12 Section Findings. The need to safeguard life and property and sound fiscal planning require that the fire and rescue facilities of the City be independently studied and evaluated at least every five (5) years. To achieve this objective, the Council finds that an independent fire and rescue capital study should be 17 undertaken every five (5) years. The Council also finds that a fire and rescue capital program is basic and necessary for the public safety in the County. The program should specifically identify the siting of new fire and rescue stations, major renovations of existing stations and equipment purchases which are proposed over a five-year period so that the public will know the future plans of the Fire Department and the City as it relates to these very important public safety issues. 25 Section Fire and Rescue Capital Study (a) Every five (5) years, the Fire Chief shall, with the aid of an independent outside fire consultant, determine the fire and rescue needs of the City of Jacksonville and produce a report which addresses needed improvements to the City s fire and rescue program. Among other things, this report shall address proposed improvements to existing stations as well as the necessity of Substituted 9/13/ constructing new stations and their optimal locations. The consultant shall report the findings to the City Council through an official written Fire Study Report (Report) no later than May 1, 2005 and every five (5) years thereafter. (b) The Council shall review the Report and adopt a list of fire and rescue capital improvements (including new construction), 7 as suggested by the Report. The improvements will be detailed by fiscal year for the succeeding five (5) fiscal years. The list of improvements shall be known as the Fire and Rescue Station Capital Program (Program). Section Funding the Fire and Rescue Capital Program. In conjunction with his submission of the annual budget, the Mayor shall review the Program on an annual basis and shall include funding in the annual budget to meet the Program schedule. If the Mayor fails to fund the Program for the fiscal year to be budgeted, the Mayor shall submit to Council via a resolution a detailed list of those stations and/or projects or equipment not funded along with an explanation as to why funding was not included 19 in the annual budget. This resolution shall be submitted to the Council by July 15 of each year. The Mayor shall also submit an alternative projected time-line for funding the stations and/or improvements and/or equipment which appear on the Program list Program. Section Adoption of the Fire and Rescue Capital 25 (a) The Council shall review the Program along with Mayor s proposed funding for same in conjunction of its review of the annual budget for the City. (b) The Council may make amendments to the Program as may be deemed necessary taking into account the Mayor s explanation as to why funding was not included for the Program in the annual budget and taking into consideration the best interests of the entire Substituted 9/13/ community; provided however that substituting a project not in the Program for one that is in the Program shall be made by Council only upon an affirmative vote of at least thirteen (13) Council members. 5 Section 2. Fire and Rescue Capital Program. The Fire and Rescue Capital Program for Fiscal Years through is attached hereto as Exhibit B and is hereby adopted. Section 3. Fiscal Year Capital Needs.The Council hereby requests that the Mayor and Fire Chief examine Exhibit B, attached hereto, and submit to City Council, via resolution, a plan to meet the capital needs as it relates to the scheduled projects for Fiscal Year Said resolution should be submitted to Council no later than December 31, Section 4. Effective Date. This ordinance shall become effective upon signature by the Mayor or upon becoming effective without the Mayor s signature Form Approved: /s/ Cheryl R. Peek Office of General Counsel Legislation Prepared By: Cheryl R. Peek 12/15/08 O:\LegDocs\Production\ \Substitutes\ E.sub.doc 25 26 27 28 APPENDIX B Maps depicting Current and Proposed Stations, Engines, Rescue Units, Ladders and Marine Units. 29 Proposed Fire Station I 95 River µ ² W NE Major Highway GS RD µ ² µ ² N 18 UNIVERSIT Y µ ² J TURNER BUTLER BV SR 9A XY I 295 ELT BV 56 ROOSE V YS AN BEACH BV N RM NO B DY ATLANTIC BV 3RD ST BV S µ ² µ ² V 301 H 40 BG I 10 US INT ² µ A XY PO TW SR 9 ES 46 BEAVER S 49 M DA KIN Duval MAIN ST N Existing Fire Station SOUTHSIDE BV µ ² 54 PH 62 ² µ IL Y 10 Miles H Appendix B 5 PROPOSED AND EXISTING FIRE STATIONS PS 0. LI I 95 B1 30 I 95 Proposed Engine Units Existing
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