HomeMy WebLinkAboutItem 02 Fire Station Location and Emergency Response Study
AGENDA ITEM SUMMARY
Meeting Date:
Meeting Type:
Department:
Staff Contact:
Staff Phone No:
Estimated Time:
May 14, 2007
Work Session .
Fire & Life sa~ety
AI Gerard ~{
726-2294 c
45 Minutes
SPRINGFIELD
CITY COUNCIL
ITEM TITLE:
FIRE STATION LOCATION & EMERGENCY RESPONSE STUDY
ACTION
REQUESTED:
Authorization to proceed with identification of potential properties and
funding options for station relocations.
ISSUE
STATEMENT:
This study is commonly known in the fire service as a Standards of Cover
(SOC) document. The SOC is a valuable new tool for decision-making in
providing community fire and life safety services. Staff will use the study
to make comprehensive recommendations tothe Council to address
future service needs.
ATTACHMENTS:
Standards of Cover & Deployment Study Report
DISCUSSIONI
FINANCIAL
IMPACT:
The purpose of the Standards of Cover and Deployment Study is to provide
Springfield Fire & Life Safety a tool for:
. Assessing community fire and non-fire risk factors
· Defining baseline emergency response performance standards
· Determining appropriate apparatus and staffing patterns
. Evaluating workload and determining unit utilization
· Measuring current and ongoing service delivery performance
. Planning for future station locations
. Assisting in the strategic planning and policy development process relative
to resource procurement and allocation .
The SOC provides a "snapshot" of the current level of fire and life safety
services as well as a summary of future challenges. It provides a
standardized "best practices" method of evaluating the demand for services
and making adjustments as needed to maintain service levels. A summary of
recommendations from the consultant are included.
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Deparbnent of Fire
and life Safety
SlandlArdeGf C,over
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City of Springfield
Department of
Fire and Life Safety
Standards of Cover
and
Deployment Study
Prepared by
Randy Iverson
Robert McNally
Roy Palmer
~Emergency Services
~ Consulting inc.
25200 SW Parkway Ave., Suite 3
Wilsonville, OR 97070
503-570-7778
800-757-3724
fax: 503-570-0522
www.eSCl.LlS
April 2007
@Copyright 2007 Emergency Services Consulting inc. All rights
reserved. No part of this publication may be reproduced, stored in a
retrieval system or transmitted in any form or by any means,
electronic, mechanical, photocopy, recording or otherwise without the
expressed written permission of Emergency Services Consulting inc.
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Springfield Fire and Life Safety
Standards Of Cover and Deployment Study
Table of Contents
Executive. S urn mary....................... ................................................................................; ~......... 1
Purpose of Report.. ... ... ............. ............. ......... ... ................. ................ ........... ....... '" ....... ........ 1
Layout of Report ...... .... .......... ..............,....... ..."................... ..... .......... ........ ...................... ...... 1
Major Findings and Recommenoations ............... .... ................... ,........ ......... ......,........ .... ......... 2
Cllapter1: Standards of Cover Purpose ................................................................................. 5
Chapter 2: ..Community Served. .. ...... ................ .~.....~~.... ................... ...... ...... ...... ................. ..... 7
C hapter3: Services Provided ....... ...... ............. ............~......... .......... ............ ...... .......... .... ~..... 1.1
Cooperating Agencies ................ ...... .................................................................................... .13
Administ~ativeand Support Services.. .... ........ ........,...... .;.; ....;;.... ...... ... ........,.. .,....,.. ..... .,.. ..... 13
Chapter 4: Community Risk Analysis ...................................................................................15
F~il?k E)(pectations ...... ..... '.."'. .................... ,... ,.... ",' ......".. ,.........................;........................... '15
Mission and Goals .... ...... ......... ........ .... .... ...... ....;............., .......... ... ........... ......... .... ...... .........16
Perforrnance Objectives............ ...... .....,........ ..... ................................................................... 16
Global Risk Assessment .... ....... ..... .... ....... ......... ...,.. ... ..........;..... ..... ...... .;..17
CurrenfPopulation Information............ .... .............. .................................................. 17
Infrastructure. ....... ........; ................... .............................................................. 23
Streetsffraffic Networks. ...... ............. ...... .......... ... ... ................... ...... .............. ....... ... ...... .... 24
Rail/Air/and Waterway Networks....... ..... ...... ... ....... ............ .... .................... ... .......... .....;....25
Population Centers ......... ....... ............ ...... ..,... ... .............. ..................... .... ....... .......... .....,....26
Infrastructure limitations ...... ...... ........ ........ ............ ......... ....... .............. ................ ...... ....... 31
Environmental Risks .......... ......... ........ ...... ...... ...... .......... ...... .... ......... ........ ...... .......... ....31
Fire Risk ASsessment .. ...... ........................ ......... ...... .... ......... ....... ........... ..... .......... .... .......32
Building Stock.................... ......... ...... ... ...... ......... .......... ...... ...... ...... .... ..... ..... .......... .... .......33
Census-based Growth Projeqtions....... ..,...........,.. .... ...........;..............,....;. .......;........,. ,. .....;.. .~5
Community Development-based Growth projections,... ................ ........ ......... ............ ....... .35
Servi.ce.o. ~rnand Proje. (;t.1ons. ....'...;;.....'........ ;.,.......; .................................................. 37
Other Occupancy Risk Factors... ........ .......... ......... ........... ............... .................. ....... .......... 38
Risk Categories.... ...... ... ...... ....... .......,.~.. .....,......................... .......... ............... .......... ..........40
Medical Risk Assessment........ ........ ...... .... ......... ...................... ...... .......... ............ ,.. ......;...43
Rescue Risk Assessment.......................... ........................................................................ 44
Special Hazarqs Risk ,A.ssel?sl11ept;... .... ................. ... ........ ....... ........ ............................ ...,....45
Chapt~r5: Measurement of System Performa"t~...u .................................... .......... .............49
DistriputionAnalysis........ ...... ....... ,.;. ....... .... .....,........................ .....;........... ..............49
Demand Analysis........ ............ .......... ... .................... ................... .......... ..................;.56
Concentration Analysis ... .................. ... ... ..,....... ...... .......... ....................... '.' .... .,. ..........68
Relic:tbilityAnellysis ..~.. ;...; "';;', ;....... .... ....;................................................................... 70
Workload and Failure Rates. ...... ... ... .;................ ................. ...... ...... ... .............. ....... ..........70
Call Concurrency al)d ResPl.lrce Drawqown . ...... .... '.' ....... ,..... ............ ................,....... .......72
Response Time Periormanc~ ObJec;tives...... .............. ......... ... ...... .................... ....... .... .......75
Sprin9fieldFire &. Life Safety Response TimePeriormance Objective ...........................75
Historic:;ll Sy~t~m Respons.~ P~riormance..................................................................... 75
Dispatch Processing Time ......... ..... .... .... ,..... ......,... ......... ...... ...... ...... ............ ... .,., .........77
Turnout Times.... .., .....;........ ............. ...... ................... .... ....... ...... ... ...... .... ...... 77
Travel Time........ ... ...... ....... ............... ... ....... ..... ........... ......... ...... ...... .... ............ ...... ........ 82
Response Time......,..... ....., ...,..... ................ ......... ............. ..... ........ .......... .......... ....... .....83
C ha pter 6: Critica I Task Analyshs..... ....... .................. ......... ....... ............................................ .87
Introduction to Critical Task Analysis Process....... .......... ...................... ................ ................87
I dentifying the Effective Response Force........ ............... .................... .................................... 87
Critical TaskAnalysis (CT A) ......... ...... .... ..... ............. .......... .... ............... ........ ....... .......... ...88
~Emerge.ncy.. Seroices
~ Consulting me.
Springfield Fire and Life Safety
Standards Of Cover and Deployment Study
Chapter 7: Performance Measures...... ............... ........ ............................. ........................ ...... 93
Standard of Cover Performance Objectives ... ............... ...... ......... ........... ........ ........... ....... .... 93
Deployment System Performance Measurements... ..... .... ............... .... ...... ............... ........ ....94
Turnout Time Performance Measure ... ..... ...................... ..... ................. ........ ..................... 95
Distribution Performance Measures.. .............................. .................... ... ............... .... .........95
Concentration Performance Measures .. ......... ........... ... ....... ....... ... .... ..... ............ ...... ... ... ...95
Chapter 8: Com pliance Methodology.. .......... ........ ..................... ................. ....... ............ ....... 97
Chapter 9: Opportunities for Future Performance Improvements .................................... 103
Introduction. ....... ....... ............. ......... .._..... .......... ...... ............. ............. .... ...... .... ............... ..... 103
Future Deployment Analysis and Recommendations............................. on.......................... 103
Facilities ...... ..... .... ...... ...... ........ ... .... ...... ... .... ....... ............. .........",..... ..,... ... ....... ......,.. ...... 104
Apparatus.... .... ...... ................... ...... ..... ................ ......... .... ......... ........ ......... ....... ......... ..... 109
Staffing ........ .... ...... ..... ........... ........ .......... .............. ............... ........ ...... ......... ....... ...... ... ..... 109
Recomrnendations Summarized ..... .............. ......... .... ............. ........ ........ ....... ...... ...... ......... 110
Improvements within the Existing Deployment System .................................................... 110
New Servicellncreased Performance Capability ........................ .........,..........;................. 111
Planning Issues.................. ............................................................. ........ ........................ 111
Appendix A: Facilities and Apparatus................................................................................. 113
Appendix B: Dynamics of Time in Emergency Response ...............................................~. 123
Appendix C:Response Time Thresholds and Triggers .....................................................131
Appendix 0: Financial Analysis.... .................... .................... ................... ....................... ..... 139
~EmergenCy. Servk:es
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Springfield Fire and Life Safety
Standards Of Cover and Deployment Study
Table of Figures
Figure 1: General Service Area ... .,.,.,...... ........,..,...... ..... ....... .......... ........................ .............. .....8
Figure 2: Station Apparatus & Staffing ......................;.................,..,..........................................11
Figure 3: Administrative/Support Personnel.... ...... .... ... .......... .... ........ ..,......... ...... ................, .... 14
Figure 4: Population Growth History. .................... ..,.................. ...... ...... ..,..... ........ .... ...... ......... 18
Figure 5: Projected Population Growth... ............. .......... ......... ...... ...... ................ ............ .......... 19
Figure 6: Population Density.... ...... ,........ ...... ,...... .,. ...... ............ .... ..... ...... ............. ..........20
Figure 7: Population Change by Age ............ ...... ........ ... ......... ...... ...... ...... .......... ..... ....... ..... ..... 21
Figure 8: Senior Population Concentrations................, ... ........ ..... ..... .............. ...... .......... ......... .....22
Figure 9: Pediatric Population Concentration .............. ... .............. ........,.... ............ ,.. ....... ... ........23
Figure 10: Railroad Lines...... ...... ...... ... ... ....,. ... ....... .... ... ......... ........... ....... .... ..... ... ... ...... ... ... ,.... 25
Figure 11: Jasper Natron Development..... ....... .... ...... ...... ................. .......... ". ...... ".'."'."" .......,27
Figure. 12: Glenwood Riverfront DeVelopment ........ .... ............... ...... .... ...... ....... .............. ...... .....28
Figure 13: Marcola Meadows DevelopmeI1L.... ............ ............ ........ ... ............. ......... ... ...... ........29
Figure 14: RiverbendMaster Plan............... .... .... ...... ................... .... ,....................................... ....30
Figure 15: HOLlsing by Occupancy.........................,..........................,....................................... 33
Figure 16: Housing (Owner/RenterlVacant)......,. ...... ..... ...... .... ..................... .... ""." .... ........... .....34
Figure 17: Concentration of Vacant Properties .............. ........... .............. ........ ........ .... ......... ..... 34
Figure 18: Census-based Population Forecast ..... ..... ...,.....,..........,. .,.....,. ....... ...... ...... ......... .....35
Figure 19: Development-basedPopulationForecast.. ...... .....,.. .... .... ........ ......... ... ...... ......... ...; .36
Figure 20: Workload Projection by Type & Year . .............. ..... ............. ............... ............... ..... ....37
Figure21: Springfield BAR Map ;........ ... ........................ ........ ... ............ ....,..... ............... ....... ....39
figure22: Community Risk AS$es$rnentBased. on Zoning....... .....................,.... ...................,... 41
Figure23: Fiscal Risk Map....... .... .... ......................................................................... ........ 42
Figl.lre24: Occupancies by Use ..~.................;.. ......... ................ ................ ...; .... ..... 43
Figure 25: Hazardous Occupancy Permits....... .......... ............ ...... .............. ..... ......... ..... ..............46
Figure 26: Known Hazardous MateriC}ILocations.;...; .............. ...... ........ .... .... .... ...... ..... .... ... ... ...,. 47
Figure 27: Fire Station First-In Areas....... .......... ....... ...... ............ ............ ............. ..................... 50
Figure 28: Current Engine ResponseTimeCaPClbility............................. .................................51
Figure 29: EMS Unit Response Capabilityfrortl Stations ................................,.........................52
Figure 30: EMS Response CapabiHtyfrornHospitals........,.... ..... ............. ................... .............. 53
Figure 31: 1.5 Mile Engine Coverage(l~9).".'.""" .. ...... ........... .................... ........... .... ..... 54
Figure 32: 2.5 Mile LadderTruck Coverage (ISO) .......... ........................................................55
Figure 33: Workload by Call Type......;.................,............ ......., ...... ,..... .... .........~....... ..... .,........57
Figure 34: Monthly Workload ........ .....:;.;... ....... ;.;.. .:... '" .................. .......... .................. .......58
Figure 35: EMSCaUWorkloadby[)c.ltofWe.~~...............,.... ...,.,..,......... .......... ... ............ .....~.... 59
Figure 36: Fire CallWorkloaa by QaypfWeek ..,. ....... .........,... ............... .......... ........ ........., .......60
Figure 37: Calls Other than Fire or EIVI~Call Workload byOay of Week .................................. 61
Figu~e38: EMS Workload by Hour of pay....... ,...... ....... .... ............... .............. ...,., ..... ... .... ...... ...62
Figure .39: Medical Transport Hourly Workload ........ .... ... ... ................ ............. ...... ............ ......... 63
Figure 40: Fire Calls by Hour of Day .:......~.h.... ........... ...... ,. ... ............. .............. .....; ................. ....64
Figure 41: Calls Other than Fire orEMSWorkloadpy HOUr of DaY.. .........................................65
Figure 42: Service Demand; Incident Density......... .............. ...... ....... ...... ............... ...... ......... ..;...66
Figure43: Service Demand; Firepa.ll Density.. ............ ......... .............. ...... ............ .........67
Figure 44: Workload by Beat Area. ... ......................;................................................................. 68
Figure 45: Current Effective FirefightingForce .... ...... .,.. .... ......... ............................ ...... ............ 69
Figure 46: Unit Hour Utilization ...................................................................................... ............71
Figure 47: Unit Hour Two-Year Comparison ............,................................................................ 71
Figure 48: Call Concurrency Table ...... ......... .... ..."......;.. ...................... ...... ..... ..... ......... ........... 72
Figure 49: Station Reliability Rate... ............... ........................................................................... 74
~. Emergency servo roes
~ Consulting inc.
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Springfield Fire and Life Safety
Standards Of Cover and Deployment Study
Figure 50: Turnout Time Performance by Unit ID......................................................................78
Figure 51: Average Turnout Time by Hour of Day....,................................................................ 79
Figure 52: 90th Percentile Turnout Times by Hour of Day........................................................ 81
Figure 53: Travel Time Performance .. ............ .............. .... .... ... ...... .... .......... .... ...................... ...82
Figure 54: 90th Percentile Travel Time by Beat Area.... ........ ...... ... ............ ........ ...... ............. ....83
Figure 55: Station Response Time Performance .................... .................................................. 83
Figure 56: 90th Percentile Response Time by Beat............ ...... .... .... ....... ..... .......... .... .... ..... .....84
Figure 57: ASA Response Time Performance by Zone.............................................................85
Figure 58: Critical Task Staffing Tables .. ........ ......... ....... ........... ...... ......... ......... .... ... ........ ........89
Figure 59: Response Area Redundancy of Station 4 .............................................................. 106
Figure 60: Response Area Station 4 Relocated ......................................................................107
Figure 61.: Response Area Station 2 Relocated .................... ....................... ......... .... ... ........... 108
Figure 62: Facility OVerview and Condition Summary............................................. ................ 114
Figure 63: Fire Growth vs. Reflex Time.. .... ............ ....... ..... .'. ...... ............. ............ ......... ......... 124
Figure 64: National Data- Fire Growth to Life and PropertyLoss.....,......................................126
Figure 65: Cardiac Arrest Event Sequence. .... ...... .... .......... ... ... .... ......... ... ...... ...... ........ ... ....... 127
Figure 66: Criterion Table to Determine When a New Station is Needed ................................138
Figure 67: Fire Department Revenue Sources............................................ ............................ 140
Figure 68: Contract Service Area Revenue.............. ............. .................... ....... ........ ........... .... 140
Figure 69: Operating Budget Distribution........... ....................... .... ..;... ..;....... .......................... 141
Figure 70: Modeled Budget & Tax Rate...... .., ................. ........... ...... ... ......................... ........... 143
Figure 71: 2005 Population Estimates ............... ....... .......... ...... ....... ... .... ...... ...... ........... ......... 143
Figure 72: Tax Cost per Capita... ....... ..... ....... ....... .... ....... ..... .c.......... ,....... ...... ...... ........ .......... 144
FigUre 73: AppatatusAssignments by Station .. .... .... ... ............. .... ...... ............ ........ ...... .......... 145
Figure74: Apparatus Life Expectancy and Replacement Cost ...............................................146
Figure 75: Apparatus ReplacementCosts ............................................................................. .146
Figure 76: Single Company Operating Cost... ....... ....... .................... ......... ....... ............ ........ .,. 148
Figure 77: Average Cost by Position..... .... .....;.......... ... .... ....... ..,....... ......... ... ......... ..... ... ... ...... 148
Figure 78: CPI-U Trend, 1997 -2006........................................................................................ 149
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~ Consulting inc.
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Springfield Fire and Life Safety
Standards Of Cover and Deployment Study
Purpose of Report
This report details the study .of the fire protection and emergency medical services in the City of
Springfield, Oregon by Emergency Services Consulting inc. (ESCi). The work contrC3cted by the
city in late 2006, directed the development ofa Standards of Cover docurnentapd a station
location study.
The staffs of the City of Springfield (City) and the fire department have provided a great deal of
written and oral information to ESCi during the course of.this. work. VVefounde.'v'~ryQne most
generous in their efforts to provide us with. acgurate and complete information; We are grateful
for their assistance and cooperationthrQughout this process.
Active and dynamic organizations such as the Springfield Fire and Life Safety Department
(SFLS) tend to undergo a process of cOntinuous change. Every effort has been made to compile
data that are as comprehensive and. accurate. as. possible. Wherever possible, '.ESGi makes
quantifiable comparisons to other fire service. organizations anclindustrystandards.
Performance, observations, and recommendations are measured againsfcurr~l1tly .established
SFLS standards, applicable industry standards, and good practices.
layout of Report
This report is diVided into nine chapters and an appendix. The first ,seven chapters are
organized asaStandards of Cover g()cument. Tb!9.coq<;ept..of pti3ndargscjfCover(SOC) is not
new to the fire service or to Springfield Fire & Life Safety Department. In fact, the Springfield
Fire & Life Safety Department was one of the original test sites for the development of the
accreditation process under the Commission on Fire Accreditationlnternational (CFAI).
In the past, this concept was referred to simply as fire station location. The current sac
methodology has evolvedasa resUlt of the advocacy.ofthe Commission toa more systematic
approach of evaluating em~rgency response delivery performance. The entire. process is data
driven. The sac methodology, as provided by CFAI, is recognized as the only means of
achieving equivalency for the deVelopment of response coverage other than .olltright adoption of
other standards that are not bClsed upon local considerations. The pFAI accreditation process
places a strong emphasis on self~assessment with the general. premise that the best
~. ' '. Emergency,s" ervu:es
~ ConSUlting inc.
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Springfield Fire and Life Safety
Standards Of Cover and Deployment Study
assessment is a local assessment. The CFAI guidelines outline a comprehensive and orderly
approach to this process.
Chapter 9 builds on the first seven chapters to identify opportunities for future performance
improvements. This chapter contains recommendations related to facilities, apparatus and
staffing. The recommendations are based on current delivery capabilities, goals and future
service delivery demands.
The appendix provides supporting and explanatory information related 'to the content of the
overall study. The reader will find a review of the SFLS facilities and apparatus, and a brief
review and summary of fire department finances. Two additional chapters are included that
address the importance of time in emergency response and a discussion on establishing
thresholds and triggers for the addition of new resources (fire stations, apparatus and staffing).
Major Findings and Recommendations
Thefollowing bullets summarize the key findings identified in this study.
./' Springfield, while bordered .on the north and south by riyersand the west by Interstate 5,
will continue to experience both fill-in growth and expansion along its boundaries
primarily to the south.
./' The types of fire and life safety risk existing and anticipated are varied and mixed, but
fairly common fora growing urban community in Oregon. Methods are identified to
quantify risk by occupancy use, land use zone designations and building size and
density.
./' The number of alarms the fire department responds to is within the current capacity of
the department. Call volume is expected to increa$ein the future placing greater
demands on the department. Additional resources will be required to maintain the
current levels of service throughoutthe service area.
./' The area of the ambulance service area is large. The greatest demand for medical and
transport services, occurs in' the urban area of the City. Workload and unit utilization of
the medic units are high, but still within acceptable range. Current response time
performance complies with the County ASA targets in all four response zones. The
demand for medical services is expected to increase.
./' The location of the current five stations is acceptable considering current development
and demand for service. However, future demand predictions (call volume and area)
~. EmergenCY. Sel1lu:es
~ ConsUlting inc.
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Springfield Fire and Life Safety
Standards Of Cover and Deployment Study
indicate that by relocating two of the stations the current protection levels could be
maintained without adding additional stations
./ Based on 2005/06 data, SFLS is capable of placing a unit on scene within six minutes
and 30 seconds on 90 percent of all emergency calls within its primary service area. It
can place a full effective response force (one chief officer, three engines, one ladder,
and one ambulance) on scene of 90 percent of structure fires within nine minutes and 15
seconds. While this represents a very good level of service to its citizens, this study
indicates that improvements are possible and with reasonable investments the level of
service can be maintained as the City continues to grow.
Based on the findings and analysiscondllcted eluring this study, ESCi makes the following
recommendations. These recommendations identify future potential improvements to the
deployment system designed to maintain current levels of service. They are .divided into three
categories for ease of consideration by the fire department and the City. We do not attempt to
project an implementation strategy or timeframe on these recommendations since that would be
outside the scope of this project. The background, analysis, and justification for each
recommendation are discussed.fully,in.the bodyofthis report.
1. Improvements within the existing system
a. Improve data collection, documentation, and reporting capabilities.
b. Continue coordination with the dispatch center and neighbpring fire agencies.
c. Work to reduce turnout times. Turnout time is the time between when the department
is dispatched and the time when units leave the station.
2. New Service/Increased Performance Capability
a. Staff ariadditibnal medic unit at Station4.
b. Relocate Station 4 to the south in th19 Vicinity of the intersection of Pioneer and Main
Streets.
3. Planning Issues
a. Staff both the truck and the engine at Statipn 5 instead of c;ross-staffing the two units
with a singl19 crew.
b. Relocate Station 2 to the south in the vicinity of the intersection of 57th and Mt.
Vernonwhen justified by development in the area.
c. Once Station 2 is relocated, move the Quint from Station 2 to Station 3.
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Standards Of Cover and Deployment Study
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Springfield Fire and Life Safety
Standards Of Cover and Deployment Study
Chapter 1: Standards of Cover Purpose
The CFAI defines Standards of Cover as "those adopted written policies and procedures that
determine the. distribution, concentration and reliability of fixed and mobile response forces for
fire, emergency medical services, hazardous materials and other technical responses."
The purpose of this Standards of Cover document is to provide the Springfield. Fire and Life
Safety. Department a tool for:
./ Assessing community fire and non-fire risk factors
./ Defining baseline emergency response performance standards
./ Determining appropriate apparatus ahdstaffing patterns
./ Evaluating workload and determining unit utilization
./ Measuring current and ongoing service delivery performance
./ Planning for future station locations
./ Assisting in the strategic planning and policy development process relative to resource
procurement and allocation
The key elements in this Standards of Cover document include:
./ A determination of the levels of service to be provided throughout the jurisdiction
./ A risk assessmentthat identifies the fire and non-fire risks common and/or unique to the
coniml..mity
./ An analysis of the SFLS Department's current response capability in terms of time,
equipment and on-scene performanqe (staffing)
./ A. recommended set of Standards of Cover statements that describes how SFLS
Department resources will be allocated and deployed to maximize emergency response
effectiveness within its service delivery.area
ACommuriityBased Risk Assessment is an analytical process of identifying and quantifying key
factors within the community, that when combined, define risk in a way that can be compared to
the SFLS Department's resP9nsecapability. The key f9ctorsinclude historical incident analysis,
identification of general and .specific hazards, identification of community values, and their
relationship to departmental expectations, potential 'severity, consequence, and frequency of
certain events. It is this comparison that makes the sac process a valuable strategic planning
and resources deployment tool.
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Springfield Fire and Life Safety
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Chapter 2: Community Served
Springfield is a city in Lane County, Oregon, separated from Eugene, Oregon primarily by the
1-5 highway. Springfield was named after a natural spring located in a field or prairie within the
current city boundaries. As of the 2000 Census, the City had a total population of 52,864.
Recent estimations put the population around 60,000. Additionally, via contract for service,
Springfield Fire and Life Safety protects 7,289 additional citizens. Springfield was named as one
of the 12 best cities in the U.S. Springfield has two high schools: Springfield and Thurston
Senior High. Springfield is one of the larger cites in Oregon, just behind Bend and just ahead of
Corvallis.
As of 2005, there were approximately 64,294 people, 21,500 households, and 16,953 families
residing in the protective area. The population density was 3,670.7/mile (mi). There were 21,500
housing units at an average density of 1,492.9/mi. The racial makeup of the city was 89.64
percent White, 0.71 percent African American, 1.38 percent Native American, 1.11 percent
Asian, 0.31 percent Pacific Islander, 3.09 percent from other races, and 3.77 percent from two
or more races. Hispanic or Latino of any race was 6.91 percent of the population.'
There were 20,514 households out of which 35.3 percent had children under the age of 18 living
with them, 45.7 percent were married couples living together, 14.3 percent had a female
householder with no husband present, and 34.3 percent were non-families. 25.4 percent of all
households were made up of individuals, and 7.8 percent had someone living alone who was 65
years of age or older. The average household size was 2.55 and the average family size was
3.03.
The median income for a household in the city was $33,031, and the median income for a family
was $38,399. Males had a median income of $30,973 versus $22,511 for females. The per
capita income for the city was $15,616. About 14.8 percent of families and 17.9 percent of the
population were below the poverty line, including 23.5 percent of those under age 18 and 9.8
percent of those ages 65 or over.
1 2006 Lane County Regional Trends; Lane County Council of Governments.
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Springfield Fire and Life Safety
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Springfield Fire and Life Safety currently provides fire protection in an area of 18.798 square
miles within the 4,554 square miles of Lane County. The Fire Department also provides
ambulance transport services for the East/Central ambulance service area under the Lane
County Ambulance Service Area Plan.2 The ambulance service area consists of about 2,000
square miles with a population of approximately 88,250. The current Urban Growth Boundary
(UGB) would allow the service area to expand to 22.809 square miles. With the potential of a
UGB modification in the near future, additional potential for increase service area demands
would affect the department's ability to provide consistent service.
Figure 1: General Service Area
Springfield Fire & Life Safety Service Area
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Springfield Fire & Life Safety
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2 Lane Code Chapter 18, Lane County Ambulance Service Area Plan.
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Springfield Fire and Life Safety
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Of the 335,180 lane County residents, SFLS protects about 19.18 percent of the population. In
addition to the areas within city limits, the department provides service to portions of WilIakenzie
Rural Fire Protection District, RainbowVVater District, and the Glenwood Water District.
The service area ofthe Fire Departrnentis mostly a mix of urban and suburban residential and
commercial development with some perimetf;'3r rural and hillside forest ,land interface. The
services provided in each of thesear€la~ vary significantly. The differences are based on
infrastructure, resources availability and the frequency and types of emergenc:ies.
For the. purpose of this proceSS and any future CFAI accreditation process, tneStandards of
Cover . established hereinapplYJoaUarea~. within the Springfield Fire and Life Safety legal
jurisdiction including Glenwood Water District, Rainbow Water District, and Willakenzie Rural
Fire Protection.. District.
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Springfield Fire and Life Safety
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Chapter 3: Services Provided
The Springfield Fire and Life Safety Department operates out of five fire and life safety stations,
serving 64,294 residents in an 18.78 square mile area. On duty minimllm staffing consists of 21
duty personnel plus one Battalion Chief. The. staffing consists of three three-person fire engines,
one quint,3 and one combination aerial tru<::::kJfireengine. Three of the stations include two-
person ;advanced life. support (ALS) medic units: A Sattalion Chiefllncident Commander is on
duty at all times. Depending on the specific shift on duty, with minor exception, all personnel are
certified paramedics. Generally,apparatusfrQn)fpur stations are dispat<:;hed ona first alarm
structure fire.
Station 1 - Thurston Station - 6815 Ma.in Street
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3 A quint carriesJhe five maIn components of afire engine and an aerial ladder truck combined: a pump, a
water tank, hoses, an aerial. ladder and ground ,ladders. '
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Springfield Fire and Life Safety
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Total staffing for SFLS consists of 75 career fire suppression, four Fire Prevention and 28.25
administrative and support personnel. There are three divisions: Operations, Fire Marshal's
Office, and Administrative Services Bureau.
Figure 3: Organizational Chart
Within the Operations Division, there are two operational sections, emergency response, and
training. SFLS is one of the larger fire service organiiations in Lane County, with a service area
thatincludes urban, . suburban, and rural and wilderness areas.
Front line apparatus (those units staffed for immediate response) includes three fire engines,
three ALS Medic Units, one quint, and one aerialladdertruck. All frontline apparatus are staffed
with paramedics trained in advanced life support. SFLSernergenGY response fleet also includes
a rescue boat with swift water rescue capabilities,a hazardous materials response unit, and a
federally sponsored urban search and rescue task force unit.
SFLSadditionally provides advanced life support ambulance transport service to not only the
City, bulan additional 88,250 residents in the approxirnately 2,000 square miles of the East
Central. Lane County Ambulance Service Area (ASA #3). The ASA includes the entire City and
c::Qntractareas, pluS a large adjoining area, including the McKenzie Riverand Mohawk Valleys,
Goshen, Pleasant Hill, Dexter, Lowell,and portions of Coburg, and Harrisburg.
SFLS provides a full ,range of ernergency response services including:
Medical Assistance:
Medical Aids
Multi victim incidents
Mass casualties
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Springfield Fire and Life Safety
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Fire Suppression:
Fixed Property - Structures, dwelling, high-rise
Mobile Property - vehic:les, trains, boats
Rescue Services:
Trapped or at risk victims
Urban Search and Rescue (confinEi)d space, trench, building collapse)
Swift Water Rescue
Special Hazards Response:
Hazardous Materials
Wildland Fire
Cooperating Agencies
In addition to the SFLS, there is one other mUnicipal fire department and 22 fire
district/departments in the County. All of the departments participate inmutua.l/auto aid
agrEi)ements with the SFLS, Tht; SFLS also maintains.spec:ificmutual automatic aid agreements
with Eugene Fire & EMS and McKenzie Fire & Rescue.
Administrativea.nd SupportServices
SFLS provides much of'.'its own support and administrative., services ..toat many other cities
provide for their fire departments. For example; civilian personnel., Within the Department
maintain accounts payable/receivable, and ampulance service billing, Ambulance service billing,
which generates revenue' for the. emergency medical services (EMS) section, is provided fori?
other agencies. The Department also provides FireMedadministratiorl for th~eeagencies.
Figure 3 summarizes the personnel FTEs (full..time equivalent~) assigl'l\,;q to administration and
support; The asterisks indicate positions related to Fire MedCootdination and ambulance
billing.
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Springfield Fire and Life Safety
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Chapter 4: Community Risk Analysis
Community Risk Assessment is a critical step in the process of developing a Standards of
Cover. Risk analysis should identify, define, and describe the types of problems that dictate the
overall deployment of SFLS resources. The protection area ofthe Fire Department has a wide
range of risk including some unique challenges.
Risk Assessment is the process of examining the events that may occur within a jurisdiction and
projecting the potential impacts of those events on the community.. It is the goal of the sac
process to match the deployment of resources with the identified risk in the most effective
manner possible. The steps in this effort include:
e An examination of the nature of the hazard(s) that exist
. Identification of the values and property at risk
e Evaluation ofthe impact and 'consequence of an event
e Consideration of the potential frequency of an event
The SFLS responds to a variety of risks and each type of risk may have . different. resource
needs. In the sac process, deployment is an<;llyzedJrom the basis of risk. Some risks require a
greater deployment of reSOLlrces than others to achieve an acceptable outcome. The SFLS
deployment strategy is based on the goal of providing the needed resources to hangle the risk.
It is quantified by considering how many people mLlstarrive within a specific time frame with the
appropriate equipment in order to achieve the desired outcome. ThIEl ~ntiresystem comes down
to a~al~ulationof the .speed and number of initial attack resources nelElded tocontrorthe,
ernergency at hand.
The relationship between probability and consequences is one. of tbe principles used in risk
analysis. This concept is critical to the eventual establishment of risk levels for each area
served. As either factor increases, it will impact the overall risk. The probabilityan.d
consequence establishes the overall risk factor for any given situation.
Risk Expectations
Each community must identify an accepted level.of service. Accepted risk is a relative term that
is determined by considering expected and desired outcomes, availability of resources,and
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cost. The process of establishing what is right for the community is a policy decision. It is
important to capture the expectations of the community at the start of the process in order to
build the appropriate criteria. This step has not yet been accomplished.
The first step in this examination of risk is to look at the mission and goals established by the
organization. The second is to establish performance objectives for each service that is
provided. The final step is to develop specific performance measures for each service provided
in each risk category.
Mission and Goals
The general mission of most fire departments is similar in that it relates to what the fire
department does,
Limit the risks to the community and its people from fire, injury, death and property
damage associated with fire, accidents, illness, explosions, hazardous materials
incidents, and other natural or manmade emergencies through mitigation.
SFLS, through a consensus process, developed the following mission statement:
"Protect life, property, and environment"
Our commitment: We use safe, efficient, effective, and innovative fire and life safety principles
and techniques.
Performance Objectives
Toe SFLS has developed objectives for each of the major services it provides; .fire suppression,
emergency medical services (EMS), rescue, and special hazards~ These performance
objectives further define the quality and quantity of service to be provided.
Fire
For all fire incidents in an urban setting, SFLS shall arrive in less than five minutes with
adequate resources capable of initiating interior fire suppression operations.
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EMS
For all serious emergency medical incidents in an urban setting, SFLS shall arrive at the
scene within five minutes of dispatch with adequate resources capable of initiating
advanced life support emergency medical treatment.
Further, within 10 minutes SFLS shall provide adequate resources capable of continuing
appropriate emergency medical treatment and providing transport to an appropriate
medical facility within nine minutes following dispatch.
Rescue
For all incidents where rescue of victims is required, SFLS shall arrive in a timely
manner with sufficient resources to stabilize the situation and extricate the victim(s) from
the emergency situation or location without causing further harm to the victim,
responders, public, and the environment.
Soecial Hazards
For all special hazards such as Hazardous Materials, Wildland, and Swiftwater, SFLS
shall arrive in a timely manner with sufficient resources to stabilize the situation, stop the
escalation of the incident, contain the hazard where applicable, and establish an action
plan for the successful conclusion of the incident while providing for the safety and
security of the responders, public and the environment.
Global Risk Assessment
Current Population Information
Springfield Fire & Life Safety provides primary fire protection services to all of the City of
Springfield in Lane County, Oregon. The population of the City was 52,864 in the 2000 u.S.
Census.4 However, the Census Bureau has estimated some increase since the 2000 Census
and the City's population was estimated at 55,641 in 2005.5 The average age is 32.5 and is
comprised of 48.89 percent men and 51.07 percent women. For the City, this population figure
42000 U.S. Census, Tables SF-1 and SF-3.
5 Population estimate for 2005 was based on a 2000 Estimate Base of 53,371, reflecting modifications to
the 2000 Census official figure as documented in the Count Question Resolution program and other
program revisions following the 2000 U.S. Census.
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Springfield Fire and Life Safety
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represents a significant 24.5 percent increase over the 1990 Census, when the population of the
City of Springfield was 44,683. The most significant portion of growth within the City has clearly
occurred through additional housing development, since over 19 percent of the total housing in
City of Springfield has been built since 1990.
The data indicates that the bulk of population growth within Springfield occurred in the 1970s
and the 1990s. Since then, population growth has slowed in the current decade. Estimates for
future growth will be discussed later. Meanwhile, the following figures provide general
demographic information and historical changes in population and housing for Springfield.
Figure 4: Population Growth History
Population History; 1970-2004
~ population. .. F AnnU:1 Growth R~:
60000
50000 ..
40000
30000 .
20000
10000 .-
6.0%
-- 5.0%
- 4.0%
- 3.0%
-.2.0%
o .
1.0%
0.0%
1970 1980
1990 2000
2001
2002
2003 2004
A review of the Lane County Council of Governments forecasting model data on population
growth indicates that Springfield will increase by 27 percent, to over 83,000 people by 2025.
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Springfield Fire and Life Safety
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Figure 5: Projected Population Growth
City of Springfield Population Growth
Actural through 2005; projectto 2115
70,000 -
R2 = 0.9858
60,000
50,000
40,000
30,000
20,000
10,000 1970 1975 1980 1985 1990 1995 2000 2005 2010. 2115
: -.+-PopuJation 26,87434,900 41,621 40,690 44,683' 49,005 52,864 55,860 60,394 64,190
With annexations, Springfield annexed the most land area in the county over the same period,
some 730 acres and 463 people. The past five years has seen an increase of 1,051 dwelling
units within the SFLS service area. This increase (6.20 percent) is slightly less that the rise in
population.
High-density population areas increase the risk associated with that service area. The more
people in a given service area, the more incidents, or calls, are generated. Density is increasing
throughout the Springfield area, and higher concentrations of population are appearing in areas
that historically have not had population centers. Examples include the infill development in the
Jasper Road, Riverbend areas north of Harlow Road, Glenwood area and the older commercial
areas.
It is also useful to assess the distribution of the population within the City, since there is a direct
correlation between population density and service demand. The following map displays the
population density of the City, based on information from the 2000 U.S. Census.
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Figure 6: Population Density
: . Fife SfetlOftS
Population Density
:J:
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As seen in Figure 7, ten percent of the current population is 65 years of age or older, and eight
percent of the current population is under five years of age, placing a total of 18 percent of the
area's population within the significant target age groups that pose the highest risk for fatalities
in residential fire incidents. It is also worth noting that the number of residents over the age of 75
has increased by 38 percent since 1990, a change that can be expected to create a significant
increase in service demand for emergency medical incidents. This is expected to continue into
the coming decades as the younger group ages, and as longevity and medical advances
continue.
According to the 2000 U.S. Census, the average age is 32.5 and comprised of 48.89 percent
men and 51.07 percent women.
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Springfield Fire and Life Safety
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Figure 7: Population Change by Age
Demographics- Population Change by Age Cohort
1- _~~_OO '0 1990 ......",. ,Chang~~1
.~ .'.. ." ,-, " ,'_", ,_, '_,_~,. ~~',.J.. . .... .
20,000
15,000
10,000 -
5,000 -
0
IiiiiiiI 2000 4,327 15,959 16,609 6,719 3,827 2,572 2,851
c::J 1990 3,929 13,836 15,377 6,733 2,839 2,736 2,072
...... change 10% 15% 8% 0% 35% -6% 38%
40%
35%
30%
- 25%
~- 20%
- 15%
~- 10%
-5%
0%
- -5%
-10%
Figures 8 and 9 will detail the concentration of senior citizen and pediatric populations within
Springfield.
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Figure 8: Senior Population Concentrations
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Higher concentrations of senior citizens reside near Stations 4 and 5. The workload of Medic
Unit 859 would be most affected by seniors who are suffering from chronic medical ailments
which require emergency medical intervention. This concentration may also reflect the locations
of senior residence facilities which desire to be closer to medical facilities.
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The pediatric population is also mostly concentrated within this area as can be seen from the
following figure.
Figure 9: Pediatric Population Concentration
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Infrastructure
Infrastructure includes streets, water, utilities, fire stations, schools, churches, housing and
commercial buildings. The age and quality of the infrastructure have a direct correlation on risk
and must be considered in the deployment of resources. The age works both ways; older
materials burn faster and were not designed to protect the structure from fire or earthquakes in
the same manner as those used today. Newer streets are no longer wide and straight, resulting
in longer routes and slower driving speeds. Structures are built with higher density resulting in
greater exposures and greater numbers of calls to an area. Utilities are being moved
underground causing above and below ground safety issues.
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The two most significant infrastructure issues for the Department are water and roads. Access
to the scene of an emergency and water supply to fight fires are essential to providing service.
In the developed areas, a great deal of effort is made to ensure that both are provided during
construction and after occupancy.
StreetslTraffic Networks
The street network is the backbone of an emergency response system. The network must be
both efficient and effective in order to maximize emergency response. The best-case scenario is
a network with direct routes and multiple points of entry. Springfield has a mix of good and bad
areas with respect to overall traffic circulation, but the street network generally works wel1.6 Lack
of efficient circulation within a project, community, or region can seriously degrade the ability of
the Department to provide effective and rapid response. One of the biggest problems is the
planning of a delivery system based on anticipated infrastructure that is not completed. A
missing street, at a critical point, can completely change the service delivery area of a fire
station, and the effectiveness of the overall response.
Increases in traffic can become a significant negative factor that directly effects deployment.
Traffic issues continue to increase in Springfield. Impacts are directly related to growth and
demographic changes. Increased traffic presents both distribution (initial response time) and
concentration (multiple resource response) problems. If response times lengthen, the effective
response area for each station is reduced. If multiple resources from multiple stations cannot
arrive in an acceptable time frame, more resources will be needed within the system.
Some traffic improvement options may actually reduce response times while others simply slow
the negative impacts. Increased traffic decreases response performance and increases the
potential for accidents. In some traffic situations, with raised center medians, units must simply
turn off emergency lights and wait for the traffic to clear before proceeding.
Solutions to this issue are available, but may have significant cost. Technology solutions such
as Emergency Vehicle Preemption (EPV) are very cost-effective when done in conjunction with
other work or when the signal is first installed.? Center median breaks, drive-over or crawl-over
6 Regional Trends 2006, Lane County Council of Governments.
? Springfield currently employs EPV technology for fire and ambulance vehicles.
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sections in median, or simply leaving painted medians rather than raised medians have a
positive impact on responding units.
Rail/Air/and Waterway Networks
Rail lines are an inherent risk due the nature and volume of materials transported. Literally all
materials that are used in our society travel by rail. Large amounts of chemicals, flammables,
toxics, and people are transported daily on rail networks. While the number of incidents may be
small, the consequences of a rail incident can be significant. This has been the case in
Springfield with both freight and passenger rail incidents.
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.......... Railroad lines
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In Springfield, the issue of waterways is not so much about the transportation of goods or
people on the waterways, as it is the impact of the waterways on the other transportation
systems, namely the street network. The waterway features (two rivers, lakes, and ponds) are
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Springfield Fire and Life Safety
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impediments to response in many cases. With limited points to cross or access these features,
they cause inefficiencies that greatly impact the ability of emergency resources to service areas
that would otherwise be accessible in terms of time and distance from fire stations.
Population Centers
Population centers are areas with population densities in excess of the majority of the protection
area. They are important because there is a direct relationship between population, risk and the
impact on workload. Population centers typically exist in the older communities. This is
changing, however, with new developments specifically focused on increasing densities to 50 or
more dwelling units per acre. While most density issues revolve around housing units, job
centers, which produce daytime occupancy rates in excess of the housing limits, also exist.
These job centers bring workers and customers into an area, which doubles or triples the
transient populations during normal business hours. The structures are often higher occupancy
mid-rise (four and five story) buildings with large workforces, the new Peace Health Riverbend
hospital would be a good example. Population density was illustrated in Figure 6.
Areas of Significant Change
There is a good deal of development yet to be completed within the boundaries of Springfield.
These proposed major projects alone will produce over 3,200 new homes and 2.3 million square
feet of commercial property over the next ten years. Large projects such as the Jasper Road
development and the Riverbend Hospital and associated Master Plan area will produce the
largest impacts, but other projects such as the Jasper- Natron Development will also change the
resources needed to service these areas.
In the case of the Jasper Road development, 2,280 residential units will be introduced to an
area that does not currently have a significant number of dwelling units. Additionally, the Jasper
Natron area will include a total of 1.9 million square feet of commercial/retail and light industrial
development. These changes will require a change in resource deployment. The Glenwood
Riverfront Development will introduce up to 850 dwelling units and the potential build out of the
50 acre site will include 135,000 square feet of commercial space. The annexation of the UGB
surrounding Glenwood in 2000 necessitated the relocation or establishment of a fire station to
serve that area.
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Springfield Fire and Life Safety
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The establishment of the fire station to serve this area has yet to occur, and the proposalforthis
first major Glenwood development suggests that locating a fire station to serve the area should
at least be considered simultaneously with the development.
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The Master Plan Peace Health Riverbend Master Plan has identified 390,000 square feet of
commercial space and a minimum of 610 dwelling units on the property designated in the
master plan. Build out in the next 10 years of this area will impact total department calls for
service, and affect the average response times Citywide.
Specific Areas oflmpact
Jasper Natron:
The Jasper Natron area development is planned to include a combination of residential,
commercial,and industrial occupancies.
Residential
LoW Den~ity ResidelUilllZoning
Sing\e;..Family Detached
S ingle- Family, Attached*
Apartment/Condominium *
HighDl!nsity Residentia/Zoning
Apartrtlent/Condominium *
Subtotal Residelltial
Commercial Retail/Service
Community CommercialZQning**
IndustrialFlexSpaceJBusinessPark
Spec(atf.,igllt Industrial (of Campus Industri(ll)
ZOflina
Total
1,280
510 51.0
320 22.9
170 7..7 11.0
2,280 314.3 449.0
105,000 5.2 7.0
1,880,400 62..5 187.7
382.0 643.6
Notes: *This category cO!.lld include townhouse unitslls apart 6fth.e overall average at a maximllmdensity of
14.28 units per net acre. . '
H Net acreageiricllldes off-street parking.
SOurce: E.D. Rovce & Company; Jasper Natron Specific Development Plan June 1999
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I
Glenwood Riverfront Development
The Glenwood Riverfront Development project is a proposed 50 acre project with 850 dwelling
units and up to 135,000 square feet of commercial development
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Figure 12: Glenwood Riverfront Development
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Potential Residential Buildout
Number Net Densltyl Lot Housing Type Approx. Unit Size Average Square Totat Square
Size Ranneldl Footam> Footane
Multi Famllv for Rent
N1A Apartments Over 450-900 615 162,675
Retail
482 35-50 du per Apartments (3-
building 5 stori~) 500-1200 850 204,850
Multi Family for Sale
184 25 du per 2-story Over 1- 1,000-1,350 1, 175 216,200
buildino story Units
Single Family Attached for Sale
100 Rowhouses 1400-1550 sf 1,475 147,500
84 Rowhouses 1650.18QO sf 1,725 144,900
(Master down)
Total: 850 Units 876,125 sf
Potential CQmmerciai Buildout
1 2001'_ 20OS-fO Total
Riverview Office (a) 50,000 (b) 80,000
Riverview Restaurant 0 10,000 25,000
Franklin Blvd. Commercial 15,000 15,000 30,000
Total 50,OOOsE 75,OOOst 135,000 sf
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(a) Single-user building
(b) Multi-user building
source: ZimmermanNolk Associates, ZHA,~4 Market AnaJy5is of the Glerwood Studt Area", JUly 10, 200 T.
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Springfield Fire and Life Safety
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Marcola Meadows:
The Marcola Meadows development also includes a combination of residential and commercial
development as outlined in Figure 13.
f'
13 M
t
I M d
o
Igure . area a ea ows eve opmen
.
THE VILLAGES AT MARCO LA MEADOWS
RESIDENTIAL VILLAGES
# of Homes Net Area (Acres) Net Density
(Units/Acre)
Oak Prairie Homes 192 18.4 10.4
Willow Creek Town Homes 123 7.5 16.4
Ashwood CottaQes Senior LivinQ 54 7.5 7.2
COMMERCIAL VILLAGES
Building # Parcel Area (SF) Building Area (SF) ParkinQ
Alder Plaza PO-1 71,700 10,100 31
Professional Office PO-2 36,400 9,700 30
PO-3 23,600 5,500 17
PO-4 19,900 6,200 19
PO-5 33,500 7,200 22
Alder Plaza NR-1 51,600 5,400 17
Neighborhood Retail NR-2 55,200 10,000 30
NR-3 90,300 17,400 53
NR-4 25,800 4,900 15
NR-5 30,100 3,800 12
NR-6 34,600 5,900 18
NR-7 170,000 36,00 108
NR-8 144,000 24,600 74
Alder Plaza General GR-1 642,000 171,000 513
Retail
Alder Plaza Main Street MSR-1 53,100 9,300 28
Retail MSR-2 51,700 7,600 23
MSR-3 104,500 15,500 47
MSR-4 31 ,400 7,500 23
MSR-5 30,100 5,200 16
Alder Plaza Community CC-1 61,800 9,800 30
Retail CC-2 76,800 23,300 70
CC-3 60,200 13,500 41
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Springfield Fire and Life Safety
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I
I
Peace Health Riverbend Master Plan:
The Peace Health Riverbend Hospital Development is currently under development in the
Gateway area in the northwest corner of the City. The master plan is illustrated in the following
Figure 14.
Figure 14: Riverbend Master Plan
,",
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MASTE:R PL\N
DIAGRAM
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1.3
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NOTE:
In accordance with Master Plan Conditions of Approval, development of the Medium Density Residential
area east of Baldy View must include:
1. A minimum of 610 dwelling units (Condition #19)
Limitations to Growth
The primary limiting factors to growth in the City are the land use requirements concerning infill
and development of the available land within the UGB. Several studies suggest the available
developable land is dwindling as infill occurs. Expansion of the UGB suggests that additional
Department resources may be required to serve the expansion. Specific growth triggers should
be identified that would signal the need for additional resources to match the demand as these
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Springfield Fire and Life Safety
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areas develop.8 Any proposal to expand the available land inventory through expansion of the
UGB should include a review of the impact on the Department to maintain service levels.
Construction Limits
Springfield is rapidly approaching a time of build-out as all raw land is developed. The final
large-scale development plans are underway. Once the current building projects are completed,
the built-upon areas of the City will be limited. No large area of developable land or even
agricultural land will be left in Springfield. This will have an effect on land values, and will
increase the pressure on the redevelopment of existing developed areas. Increased density and
intensification of uses are expected.
Infrastructure Limitations
The three infrastructure issues that have the greatest limitation on future growth include traffic,
water, and sewer capabilities. Traffic trip counts are one of the most limiting factors in growth
and development in Springfield today; and will continue to be so in the future. Water, and its
byproduct (sewage), have shaped the Willamette Valley landscape for over a hundred years.
The lack of water or sewer capacity to support development is an issue in many of the
communities served by SFLS. The water issue is why new developments must provide
documentation detailing how the commodities will be provided before development is allowed to
proceed. These three issues will continue to drive development parameters. Traffic and water
are key issues and have direct impact on the ability of the SFLS to provide service. As traffic
service levels decrease, response times increase proportionally. Without adequate water SFLS
cannot protect the new developments. Safeguards are in place to monitor the water issues, but
traffic issues are not within the control of the SFLS.
Environmental Risks
Topography/Soils
Several issues related to topography and access cause both potential risk and actual incidents.
The most common is the interface issues, where home are constructed in areas with high
concentrations of flammable vegetation and limited access. The same slope features also
impact the spread of wildland fires.
8 See Appendix C - Response Time Thresholds and Triggers for a discussion on this topic.
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Springfield Fire and Life Safety
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The second topographic risk is liquefaction zones, and is more theoretical as it has not caused
problems in recent history. Liquefaction is a phenomenon in which the strength and stiffness of
a soil is reduced by earthquake shaking or other rapid loading. Liquefaction and related
phenomena have been responsible for tremendous amounts of damage in historical
earthquakes around the world. This potential risk impacts major portions of the Willamette
Valley. Additionally, areas in the floodplain of most of the major waterways/drainages in
metropolitan areas are subject to liquefaction.
The third topographic risk is access. Access issues fall into two categories - access in
developed areas and access to wildland/interface fires. The hillside and canyon areas have
circulation issues with respect to emergency response. In many cases, it is not possible to
access adjacent properties quickly due to the geographic features that have been preserved in
the development. Topographic response barriers are prevalent in many areas served by SFLS.
Elevation changes and large open spaces impact the ability of emergency resources to reach
the scene of an emergency in a timely manner. In some hillside communities, it is possible to
see directly across a natural area to other homes or businesses, but actually driving time to
reach them may take several minutes on narrow winding roads. These can be significant
impediments to response.
Riparian areas and road less areas may also play a significant role in the ability of the
Department to access fires quickly. These same access issues are also factors in remote
rescue situations.
Flood
Springfield has significant flood history. The worst recorded flood in Springfield was in 1861.
Floods have occurred in the county on a 20-30 year cycle since 1825. Floods and flood control
have had a major impact on the City's development. Significant incidents led to the formation of
the Swift Water Rescue team and the addition of a rescue boat.
Fire Risk Assessment
The assessment of fire risk requires an understanding of fire flow demand and capability,
probability of emergency incidents, consequences to life safety, and economic impact to the
community served.
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Springfield Fire and Life Safety
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Common fire and life safety factors, such as fire flow and code compliance for life safety, are
used to determine risk classification. Risk classifications range from low, moderate, high and
finally to special/maximum. Single family dwellings, considered typical or moderate risk,
comprise the majority of the protected area.
Building Stock
Structure fire risk assessment is performed on the community's building stock. According to
2000 Census data, Springfield has 21,500 dwelling units with an average age of 34 years. Only
5.6 percent of the total housing units were built before 1940, and the largest number built in the
1970s. The actual inventory of building stock within the city ranges from historical homes to
high-rise buildings of up to five stories. The majority of large commercial structures are
protected with fire sprinkler systems. Residential dwellings in some areas are protected with
residential sprinkler systems, however, most are not.
Housing by Occupancy
Figures 15 and 16 based on census data describe the housing by occupancy within the City and
its affect on emergency services.
Figure 15: Housing by Occupancy
Demographics- Housing By Occupancy
Vacant
5%
Renter
Occupied
44%
Owner
Occupied
51%
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Springfield Fire and Life Safety
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Figure 16: Housina (Owner/RenterNacant)
Selected Housing Infonnation- 1990 to 2000
Housing Units Owner Occupied Renter Occupied Vacant
2000 21,500 10,987 9,527 986
1990 18,121 8,599 8,848 674
change 19% 28% 8% 46%
The prevalence of rental and vacant properties along with the growth in vacant properties are
negative socioeconomic indicators, which historically have increased the service demand for
emergency services. The concentration of vacant properties in Springfield is shown in the
following map.
Figure 17: Concentration of Vacant Properties
Springfield Fire
& Life Safety
. FireStltiCns
m "ct::lltel
o S;tin;fJeio Zoftlng E "dettt
C....,. Block Group
\/ACAtlT I salol'
_0-1'
_'~"f
_"-88
_tw-.zt
_ "'-20'
Higher vacancy rates are noted near Station 4. Although age and high population figures
increase service demand, poorer socioeconomic groups make higher use of police and
emergency medical services, while the frequency of fires also tends to increase in such areas.
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Springfield Fire and life Safety
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Therefore, from the demographic information reviewed here, it is projected that the City should
experience a slightly higher demand for emergency services in comparison with other
communities of its size with lower vacancy rates.
Census-based Growth Projections
As indicated earlier in this section, the population of Springfield has increased in the last
decade. ESCi anticipates additional growth will continue into the future.
In developing forecasts for population growth, ESCi typically develops a forecast based on
!
several decades of census experience. In the case of Springfield, we used decennial census
figures from 1970 through 2000. A mathematical forecast is created through the year 2030. The
resulting population forecast appears as follows.
Figure 18: Census-based Population Forecast
Population Projection By Census Experience
Community Development-based Growth Projections
While census-based population projections provide a mathematically based estimate of future
population based on historical data, they often fail to account for expected trends in the growth
rate of an area. These changes often result from redevelopment, annexation, changes in
employment capacity or other socio-economic factors not reviewed in a census-based
projection. For this reason, ESCi also offers population projections based on review of available
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Springfield Fire and Life Safety
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local development and business information. In this case, we reviewed information available
from the City. The resulting population forecast appears in Figure 19.
Figure 19: Development-based Population Forecast
Population Projection By Development Forecast
90000 -
80000 -
70000 -
60000 - ~
50000 -
40000 -
30000 -
20000 -
10000 -
o
2010 2012 2014 2016 2018 2020 2022 2024 2026 2028 2030
[ 0 Population 60960 63011 65062 67114 69165 71216 73267 75318 77370 79421 81472
The development-based population forecast is somewhat higher than the census-based
population forecast primarily due to local and regional issues that are expected to expand
development opportunities, including annexation, additional transportation improvements, and
adequate water and sewer infrastructure capacity.
It is not the intent of this study to be a definitive authority for the projection of future population in
the service area, but rather to base recommendations for future fire protection needs on a
reasonable association with projected service demand. Since service demand for emergency
agencies is based almost entirely on human activity, it is important to have a population-based
projection of the future size of the community. While we see variation in the population
projections discussed here, one thing that can be certain is that Springfield Fire & Life Safety
will continue to be an emergency service provider to a growing population, likely reaching over
70,000 by 2030. Planning should begin now to maintain the resources needed to meet the
continuing demand for services.
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Springfield Fire and Life Safety
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Service Demand Projections
In evaluating the deployment of facilities, resources, and staffing, it is imperative that
consideration be given to potential changes in workload that could directly affect such
deployment. Any changes in service demand can require changes and adjustments in the
deployment of staff and resources in order to maintain acceptable levels of performance.
For purposes of this study, ESCi utilized population projections obtained through community
development research and multiplied these by a forecasted incident rate derived from a five-
year history of incident per capita rates to identify workload potential through the year 2030. The
results of the analysis are shown, by year and type of call, in the following chart and table.
Figure 20: Workload Projection by Type & Year
Ii Fire Workload Forecast
1 0000 -,....-- Ii) EMS ,
o Other
8000 ,1 ."
-, ,.
;
6000 - .."
4000 - .-
~
! ...:. *-1
2000 - l& I. t .,,---;, -'--' ~ ~ f---
0- Iii' l _ /I r\i r5 i~ Ii ri
2010 2012 2014 2016 201 8 2020 2022 202 4 2026 202 8 2030
I!I Fi re 400 414 427 441 454 468 481 494 508 521 535
13 EMS 6893 7020 7141 7255 736 3 7463 7557 7644 7724 7797 7864
o Other 1556 1762 1978 2204 244 o 2685 2941 3207 3483 3769 4065
The increase in actual fire incidents is forecast to be relatively low during the study period, but
this is a reflection of national trends for fire incident rates per capita and is believed to be a
result improvements made in building codes and public fire education during the last three
decades. EMS and other emergency service calls not involving actual fires is expected to
continue to rise significantly.
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Springfield Fire and Life Safety
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Other Occupancy Risk Factors
The Insurance Services Office (ISO) provides ratings for cities/regions and for specific buildings
based on a rating schedule. Buildings are rated primarily on fire flow requirements. Buildings
with higher fire flow requirements are considered the higher risk. The higher the risk the more
emergency units are needed for response. Overall risk is assigned a property protection class.
All SFLS protection area is rated as an ISO Class 3.9
The size or area of a building is a key factor in assessing risk for fires. Generally speaking,
larger more complex structures carry a larger risk due to the time it takes to complete
suppression activities within them. They tend to require longer hose lays, more ladders, and
may require equipment staging areas within the building for working crews. One basic concept
used to show the size and density of structures is the Building Area Ratio (BAR). The BAR is
the percentage of the square footage (total) of the building divided by the square footage of the
parcel it is built upon. A BAR that is greater than 75 percent is considered high density. Figure
21 on the following page shows the distribution of buildings by the building area ratio.
9150 letter dated 4/25/05.
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Springfield Fire and Life Safety
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Figure 21: Springfield BAR Map
Springfield Fire
& Ufe Safety
. ForeS1Ol"".
Buldlog ArM _
. "O'IOL...
;:::.. 10. 7~ MadlAte
..190 High
HIgh BAR
1 Miles
Building height is also a factor in assessing risk for fires. While the BAR captures some of this
risk, the nature of the configuration is not totally understood without knowing the building height.
There is a direct relationship between height and the equipment needed to protect the building.
For example, the roof of most three-story buildings cannot be accessed with a 24-foot ladder,
standard on many SFLS engine companies. A 24-foot ladder can be placed by only one person,
while a 35-foot ladder requires two personnel. Buildings four or more stories require an aerial
ladder to access the upper floors and roof area. The Department identifies the following
locations as high-rise occupancies.
1. 3333 Game Farm Rd, Peace Health Hospital; under construction, one million sq ft, eight
stories are to be occupied, functionally building is 10 stories in height
2. 505 Main Street, St Vincent DePaul Royal Building; 39,000 sq ft, five story residential
over retail
3. 919 Kruse Way, Holiday Inn; 94,921 sq ft, six story hotel, 153 units
4. 3530 Gateway St., Embassy Suites; eight stories, 161 suites, unknown square footage
5. Glenwood Riverfront Development; Proposed retail/residential 10 story building, multiple
lower five to eight story buildings
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Springfield Fire and Life Safety
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Processes being performed within a structure can increase the risk factors significantly. If a
standard commercial concrete tilt-up building is used as an office or warehouse, the risk is not
significant, but if the same building is used as a woodworking shop or printing shop, an
explosion potential exists. The same building using large quantities of flammable liquids or
gases would change the risk factors again. Finally, changing the use by adding a large number
of people, such as in a church or restaurant, changes the life hazard and the risk factors of the
structure. What is happening in the structure is every bit as important to the overall risk
assessment as the size, location, and construction of the building.
Built-in fire protection (fire sprinklers, standpipes, etc.) is a major issue with larger structures.
Built-in fire protection negates many of the concerns regarding large structures or hazardous
processes. In many communities, developers and builders are given credit for built-in protection
by allowing narrower streets, longer cul-de-sacs, larger buildings, and/or smaller water mains.
This results in the balancing of risk and cost. While built-in fire protection should significantly
reduce the spread of fire, it may not extinguish the fire. Firefighters still need to complete the
extinguishment and perform ventilation, overhaul and salvage operations.
Risk Categories
The fire service assesses the relative risk of properties based on a number of factors. Properties
with high fire and life risk often require greater numbers of personnel and apparatus to
effectively mitigate a fire emergency. Staffing and deployment decisions should be made with
consideration of the level of risk within geographic sub-areas of a community.
This community risk assessment has been developed based on potential land use within its
anticipated future boundaries. These potential uses' are found in the City's development plans
and zoning designations. The following map, Figure 22, translates zoning designations
(potential scale and type of development within geographic sub-areas) to categories of relative
fire and life risk.
. Low risk - Areas zoned and used for agricultural purposes, open space, low-density
residential and other low intensity uses.
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Springfield Fire and Life Safety
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. Moderate risk - Areas zoned for medium-density single family properties, small
commercial and office uses, low-intensity retail sales, and equivalently sized business
activities.
. Hiah risk - Higher-intensity business districts, mixed use areas, high-density residential,
industrial, warehousing, and large mercantile centers.
Figure 22: Community Risk Assessment Based on Zoning
Zone fllme
Low o.nsUy Residential
~'i.Opcm-ScNc.
Quarry & Mine Op:&,.atioOS
Booth KeUy MUted UIe ~
Communtty Commercii.
Genertl Ofnce-' ---
Light fJedtum Industrial
t.1eciUm-ijf,-nslly RUlden-ttal
~~al--
Mixed U.. Lrn.-a;'CC- ~
",bted Us. A..ident~1
i,elghbomoOd Commert-l4i
~mpu. lnduatr'IaJ
. Heavy anctuam.1 -
High Density R..ldend.1
MeDiCii:T"lRWaS-
, uorRetiiCommetdal
~ '
'1&""
''il
Ion. Code
lD
Pi:"
orT
iiK
cc-
)-
Springfield Are
& life Safety
. rlreStaUDnl
[II HOlpiat
Community Risk
.';Low
27 IJcd~ratf"
o 05
.3;"~.
The community contains mostly low and moderate risk properties. The predominance of highest
risk is located along the rail corridor on the north side of the City, and in certain non-residential
developments along the Interstate highway. These properties include industrial, heavy
commercial, mid-rise, mixed-use, institutional, and multi-family occupancies.
The City's land use patterns generally create a challenge to the development of an efficient fire
resource deployment configuration, with the exception of the central commercial and industrial
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areas along Highway 126. Aside from these, higher risk properties are scattered throughout
rather than concentrated in the central area of the City as is found in some communities.
Another way to assess risk is to evaluate which properties within the community are
economically valued highest, as these structures' loss would be detrimental to the tax base that
supports the fire protection services. Figure 23 illustrates the fiscal risk within the City based on
the improved value of the tax parcels.
Figure 23: Fiscal Risk Map
SprIngfield Rre
& Life Safety
. rnStltJct'll
iD 1'I1:SJ)!tIl
DSJJrin;fJe-ldZCnlngEldenl
..IPROVEr.1EIIT VALUE
_ It,CQ.51U,lf~,CC
.. SIU.1eC.ct . SI.~,!CO.CC
~ Sl.~6z..~~C1- S~.~22,lztl.QO
.. S~.~22.120.01- S1....C1f....ZD,CD
.. $14,O'~...2e.:)1 .S25.411.SE"C.CC
;:.~
It appears that the higher tax valued properties, based on potential structural loss, are located
near Station 5, Station 3, and west of Franklin Blvd.
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The following table lists the number of occupancies other than single family residences by use.
bl 269
200 - Educational 55
300 -Institutional 124
400 - Multi-Residential, Su ervised 338
500 - Office, Mercantile 1025
600 - Utilities 23
700 - Warehousin ,Stora e 128
800- Manufacturin , Process in 91
900 -Miscellaneous 9
Other, Not classified 12
TotalOccu ancies 2074
The SFlS, in assessing all factors, has determined that the following levels should be
established to identify the fire risk.in each geographic area:
low - Areas with mobile property, outbuildings, structures with less than 1,000 gallons
per minute (gpm) needed fire flow, and/or a BAR10 (building area to amount of land
covered by building ratio) of leS$ than 10 percent.
Moderate - Areas With single occupancy structures with needed fire flow requirement
from 1,000 to 2,500 gpm and/or a BAR greater than 10 percent and less than .75
percent.
High- Areas with multi-occupancy structures with needed fire flow above 2,500 gpm,
structures over three stories in heightand/or a BAR greater than 75 percent.
Soecial- Areas with high:..rise buildings, target hazards and/or specific bllilding
construction or use that require additional resources.
Medical Risk Assessment
Almost 73 percent of all calls SFlS responded to in 2006 were medical calls or calls with a
medical component (a traffic accident is a rescue but will likely have injured victims). The high
10 See the BAR area map, Figure 21.
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percentage of medical calls makes the medical risk a high probability for occurrence throughout
the service area. Springfield's experience in terms of the percentage of medical calls and the
types of medical calls is consistent with the national experience.
The SFLS, in assessing all of the factors, has determined that the following levels should be
established to identify the medical risk in each geographic area:
Low - Areas with a history or potential for emergency incidents for predominately basic
life support level of care was routinely provided. These areas normally have low
population densities and/or limited residential and commercial development.
Moderate - Areas with a history or potential for emergency incidents where Paramedic or
advance life support level of care was routinely provided. This includes the majority of
the protection area.
HiQh - Areas with a history or potential for needing multiple Paramedic level responses
simultaneously. These areas normally have high population densities and/or large
numbers of at risk populations.
Special- Disasters and mass casualty incidents.
Rescue Risk Assessment
SFLS protects an area with freeways, rail lines, waterways, and commercial/industrial
occupancies. The need for rescue services in these areas can be great. In addition to the risk
associated with transportation accidents, industrial accidents and construction accidents,Lane
County still has large areas of open space that generate remote rescue situations.
The SFLS, in assessing all of the factors, has determined that the following levels should be
established in determining the risk for rescue emergencies in each geographic area:
Low - Areas with a history or potential for rescue situations that require only the' tools
and knowledge set available on first due apparatus. Incident examples may include:
persons needing assistance up or down an elevation difference where simple solutions
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such as a rope or ladder will complete the rescue.. These areas might include parks,
open space, large event centers, or schools.
Moderate - Areas with a history or potential for rescue situations requiring the use of
specialty equipment generally carried on truck compani~s. Incident examples might
include traffic accidents with persons trapped; or persons needing to be moved up or
down an elevation while unable to walk or help themselves.
High - Areas with a history or potential for rescue calls requiring highly specialized
equipment and training. Incident examples might include technical rescues of p~rsons
trapped by heady equipment, or buildings or trench collapse that requires extended and
complex rescue solutions.
Special - Responses to disaster situations involving earthquakes, floods, landslides,
hurricanes or other situations where large numbers of people are at risk.
Special Hazards Risk Assessment
Hazardous Materials
A hazardous material is any substance or mClterial capable of posing an unreasonable risk to
health, safety, and property. Multiple factors determine if a material is considered hazardous,
including quantity, concentration, and physical or chemical characteristics. A hazardous material
becomes a hazardous waste when it can no longer pe used for the purpose it was originally
intended.
Hazardous materials are present throughout Lane County. Chemicals are used in process, in
transit, in storage, and in some cases disposed of illegally. Hazardous materials come in all
sizes and risks, from household hazardous waste to acutely hazardous materials. Businesses
use, transport, or sell thousands of different types of hazardous materials. Many processors mix
material.s changing the Chemical properties and increasing the potential risks. SFLS issues
permits for hazardous mClterials in almost every part of the protection area (Figures 25 and 26).
SFLS manages a hazardous materials control program at occupancies that store and/or utilize
reportable quantities of hazardous materials (as per state standards). This program is funded by
permits paid for by hazardous materials occupancies. This program has been very effective at
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5
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2
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39
3
36
5
2
1
22
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preventing hazardous material releases at fixed facilities but does not affect transportation-
related incidents.
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Figure 26: Known Hazardous Material Locations
Springfield Fire
& Ufe Safety
, CI Hospllal
'* Known Hazmlll Location.
. FI1e Statim.
CJ SpIlngfield Z....ng Exlen1
~.
1
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1
v;: ,'-'
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?'
,'\'
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Additionally, all types and quantities of hazardous materials travel through Lane County by rail,
air, and truck. The hazardous materials risk is significant enough to require SFLS to have a
hazardous materials response team capable of Level A entry.
Wildland
Springfield has a long history of wildland/interface fires. Vegetation located in close proximity to
development increases the risk. When a fire occurs, the weather, topography, type/nature of
vegetation, access, and water supply have a significant impact on severity and outcome. Large
catastrophic wildland fires in the Willamette Valley are usually driven by strong winds and long
periods of low humidity. Houses that interface with the wildland areas are at risk from burning
vegetation.
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Springfield Fire and Life Safety
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The number of vehicles, personnel, and speed of initial attack for wildland fires is dependent on
location, weather, topography, and fuels. Risk areas are identified as:
Urban/suburban interface - Areas between the wildland and the developed areas
Rural interface - Areas between the wildland and the developed area with larger wildland
areas adjacent
Wildland/Undeveloped Areas and Forestry Land - Areas without direct risk to inhabitable
structures
Swiftwater
SFLS has many miles of rivers, streams, and ponds. Some of the streams do not flow year
round, but when they do, they flow fast and dangerous. Additionally, because the rivers are
used heavily for recreation, many users are not familiar with the current and inherent risk, which
adds additional pressure the delivery system.
The SFLS, in assessing all factors, has determined that the following levels should be
established in determining the risks related to swift water emergencies in each geographic area:
Moderate - Areas with standing water such as lakes/ponds where victims do not tend to
move long distances from the area of the original emergency
Hiah - Areas with moving water such as rivers and streams where victim may move long
distances in a short period of time
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Chapter 5: Measurement of System Performance
Deployment is generally measured using three concepts: distribution (what and where,
concentration (how much), and reliability (how well). These three measurements are used to
establish performance objectives related to response times, evaluate the location of current fire
stations, the need for additional fire stations, and the agency's ability to provide an effective
response force.
Distribution Analysis
Distribution is defined as the systematic locating of geographically distributed first-due
resources (stations, apparatus, and personnel) for all-risk initial response and intervention. For
the most part, this is a time and distance analysis.
A distribution system is considered successful when it is capable of providing a resource to the
scene of an emergency with the correct apparatus, equipment, and staffing to complete the
following tasks:
. Assess the situation
· Establish a plan of action capable of mitigating the emergency
· Requesting of appropriate resources
· Intervening to stop or impede the escalation of the situation
Traditionally fire station spacing and location has been dependent on funding, land availability,
and infrastructure. Springfield Fire & Life Safety currently operates out of five facilities. Figure 27
depicts these locations and their primary first-in response areas. There is one response area
within the SFLS fire jurisdiction in which the Eugene Fire Department responds first-in on
automatic aid. The following sections illustrate the Department's capability from the currently
operated stations.
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Figure 27: Fire Station First-In Areas
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In order to visualize response time capabilities, Figure 28 identifies those areas within a five-
minute response time of SFLS engine company, as well as from nearby engine companies of
the Eugene Fire Department. The response time is modeled using a one-minute turnout time
and four minutes of travel time on the actual roadway network. Reduction of speed has been
calculated to account for turning apparatus. Areas shaded black are modeled to be within the
five-minute response profile of a fire station.
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Figure 28: Current Engine Response Time Capability
Springfield Fire
& Ute Safety
. Fire Stlticns
1:1 Hoop,,,
Responle Ami Clpliblllty
Induding 1 milute turnout
_ 5.....e.
Response BealS
Flrst.in apparatus
-:. II Eugene Fire $labon 3
~ Spnng1\e1cl Are Station 1
... Springfiefd Fire Station 2
- Springfiefd Fire 51alion 3
Springfletd Fire Station 4
Spring~ Fire Station 5
c:J s,,"'Ilfiold Zon;ng Extent
Utilizing the travel time model, response area capabilities of the EMS rescue units (ambulances)
are illustrated in the following Figure 29. Ambulances are located at Stations 1, 3 and 5. The
most critical emergency medical calls, based on dispatch criteria, are referred to as requiring
advanced life support, while less critical calls require basic life support skills. Specific criteria for
EMS dispatched calls are provided in the appendix. The response time objective for ALS calls,
as listed in the current Strategic Plan, is for an EMS first response unit to be on the scene within
five minutes of dispatch, while ambulance transport response time goals are extended to nine
minutes. In Figure 29, the black shaded area depicts the five minute ALS response time
capability from a station with an ambulance. The green shaded area depicts the extent of a nine
minute modeled response from each of the five stations.
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Figure 29: EMS Unit Response Capability from Stations
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& Ufe Safely
* Modic SIati...
Indude. 1 min.de tumouC lime
.. S Minuccs (ALS engine)
_ 9Minutes(ALS......bnc<:1
11I_'"
Response BealS
Firat.in apparatus
. ': Eugene Fite Station 3
::=J ~ f-'~ $labeln 1
Sonnllhld Ant S\a1XIn 2
SpnngWd Fi,. Station 3
SpnngtNl Are Statio"...
Spnngtekl Fire Station 5
CJ Spnng.... ZDning Ex....
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0.5 1 Miles
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Often times, EMS units respond to assignments from alternate locations. The most notable are
the local hospitals. Although this can occur with fire apparatus, they most often respond from
within their first-due area, it is the nature of EMS units to leave their primary response area for
transportation of patients to the hospital. Doing so can extend response times naturally and be
reflected negatively in EMS response time analyses if it occurs too frequently.
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Figure 30 models the fire and nine minute response capability of EMS units when they respond
from local hospitals.
Figure 30: EMS Response Capability from Hospitals
1:1_'01
Response Am Capability
Indudes 1 mirute turnout time
.. S Mlnwcs (ALS engine)
_ 9MinutC$(ALSambul""",>
Response Beats
FiRt.in apparatus
_ Eugene Fire $tation 3
-~ Springtield FIAt Station 1
Springfield rife Slation 2
Springfield Fwe 5t.bon 3
Springfield Fire Station 4
Spnnghld Fire Station 5
o Spnngfield Zoning Extent
SFLS maintains a fleet of vehicles including four fire engines, one quint-type apparatus, three
EMS units, and one aerial truck. The truck is currently cross-staffed by engine personnel when
necessary. There are also several smaller utility, specialty or staff vehicles, as well as reserve
apparatus.
In order to achieve optimum credit for the distribution of engine companies, ISO reviews the
response area of each existing engine and identifies the number of fire hydrants within those
response areas. ISO analyzes whether there are additional geographic areas of the district
outside of the existing station response areas where at least 50 percent of the number of
hydrants served by the largest existing response area could be served by a new engine. For
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ISO purposes, the response area is measured at 1.5 miles of travel distance from each engine
company on existing roadways.
Since hydrant location data is available, an analysis to indicate the percentage of the City's
hydrants is within 1.5 miles of an engine was determined to be 77.9 percent. Therefore, the
areas not covered are, individually, not likely to be large enough to contain more than 50
percent of the hydrants within the average engine company coverage. This is the threshold that
ISO uses to determine the need for additional engines. This may need additional review in
consideration of population growth for the Springfield Fire & Life Safety. Figure 31 displays the
areas of the city that are within 1.5 miles of an existing engine company.
Figure 31: 1.5 Mile Engine Coverage (ISO)
Springfield Fire
& Life Safety
. Foe Slat....
D Hydrants
1:1 Hospital
ISO Engine Trawl DI.lance
_1.5mie.
Retlponse Beats
Flrst.jn apparatu.
_ EugeM Fire Station 3
:-::3 Sprin;fie:ld Fire StDbon 1
Spnngfield Fi.. St.1bon 2
Spnn;field Fire ~tion 3
Spnngfield F.. SIlIbon 4
.. " iff' " Spnngfield F,ro Sbltion 5
. _.' ~l" c:::J Spnngfie~ Zoning Extent
o 0.5 1.Mi1es
In similar fashion, to achieve optimum credit for the number of truck companies, ISO reviews the
response area of each existing truck and identifies the number of fire hydrants within those
response areas. ISO analyzes whether there are additional geographic areas of the district
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outside of the existing truck response areas, where at least 50 percent of the number of
hydrants served by the largest existing response area could be served by a new truck, were one
to be added. For ISO purposes, the response area is measured at 2.5 miles of travel distance
from each truck company on existing roadways.
A truck company is not required to have an elevating ladder or aerial device unless there are a
sufficient number of buildings that would meet the three-story height and square footage limits.
Other areas can receive credit for a truck company without the requirement of an elevated
device, and can even receive partial credit for a truck company if other apparatus, such as an
engine, carries a complement of truck company equipment. SFLS maintains a quint at Station 2
and a truck at Station 5. Figure 32 illustrates how much of the protection area would meet the
necessary requirements for aerial devices or elevated ladders, in geographical relation to
building square footage. It also shows areas that are within 2.5 miles of an existing truck
company.
Figure 32: 2.5 Mile ladder Truck Coverage (ISO)
J-~.... ,
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& Ufe Safety
Bulk;Slnga
AREA
o ~027. .&Ea2C
o :.u21 . i004n
. 90.47.:. .18~120
. l~t21. .&lJi76D
. :tlntil.1!a~3
.. inocl.l.g;aIWtua
ISO Truck COfI1)II1J rrrtel Dllllnc:e
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The map illustrates available truck apparatus, as currently stationed, cover most of the
downtown area in which at-risk structures are located. However, full credit for truck company
coverage may not be granted due to the cross staffing of Ladder 854 with Engine 851 in
addition to Engine 824 equipped as a quint-type apparatus. ISO has also granted partial credit
for the availability of multiple-role firefighter/paramedics on three ambulances. Ambulance
personnel are routinely dispatched to fires to assist firefighters on fire engines. This strategic
use of multi-role paramedic firefighters operating with full personal protective equipment
augments staffing levels required for fireground operations.
It is possible that additional apparatus, in reserve status, may provide some increase in credit
for reserve companies, but it is not likely to affect the overall community insurance rating. This
may not be the case in all areas, and therefore, truck company coverage will be further
evaluated by ESCi in light of fire and life risk factors within the City in a subsequent section.
Demand Analysis
SFLS has experienced a stable volume of requests for service over the last two years based on
data provided. The requests for fire incidents, emergency medical calls and all other types of
alarms have been individually consistent as well. This may change based on commercial and
residential development, and as demographic factors such as aging of the population occurs.
This will be explored further in a later section.
As illustrated in Figure 33, the bulk of the workload for Springfield Fire & Life Safety is handling
requests for emergency medical aid. This is not unusual for departments that provide first
responder and/or ambulance transport.
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Figure 33: Workload by Call Type
Springfield Fire & Life Safety: Workload by General Call Type, 2005-2006
Standby
PO Assist 0.20%
Other 3.74% -" ~
12.55%l
INFO
0.10%\
MUTUAL AID ......./"'"
0.20%
Transport
6.05%
J
FIRE
4.11%
_ EMS
73.05%
In the following analysis, structure fires, emergency medical incidents, and all other fire and
service calls are considered separately to permit closer analysis of trends affecting each
particular type of response.
A review of incidents by time of occurrence reveals when the greatest response demand occurs.
The following charts show how activity and demand changes for SFLS based on various
measures of time.
Monthly workload for all types of calls increases slightly as the summer months approach and
declines gradually into the autumn. This variation is slight in nature consisting of only one to two
percent.
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Figure 34: Monthly Workload
Springfield Fire & Life Safety: Yearly Workload by Month
l D 2005 ~ 2006 - 2006 Trendlinel
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10% - ~
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The following three figures illustrate the distribution of incidents by day of the week. The majority
of calls are categorized as EMS. Figure 35 depicts the department's EMS workload by day of
week for EMS calls.
Figure 35: EMS Call Workload by Day of Week
Springfield Fire & Life Safety: EMS Workload by Day of Week
I ~.~~r"S~
16%
-
p
r---
-
r=-- -
-"-, . ' ; ~
,
;--
,
,
-~ --,.-
,
, r.
15%
14%
, 13%
12%
SUN
MON
TUE
WED
THU
FRI
SAT
It can be seen that EMS calls exhibit a decreasing workload Monday through Thursday. A spike
in activity is experienced on Mondays and Fridays.
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Conversely, incidents of dispatched fires (Figure 36) are fairly uniform throughout the week with
a slightly lower frequency during the end of the week.
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Figure 36: Fire Call Workload by Day of Week
Springfield Fire & Life Safety: Fire Workload by Day of Week
111I FIRE I
18% -
16% .
14% .
12% .
10% -
8% -
6%-
4%
2%
0%
SUN MON TUE WED THU FRI SAT
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Requests for fire department services not categorized as fire or EMS (Figure 37) follow a similar
pattern throughout the week as EMS incidents, in which these types of incidents decrease
during the week and increase as the weekend progresses.
Figure 37: Calls Other than Fire or EMS Call Workload by Day of Week
Springfield Fire & Life Safety:
Workload of Calls other than EMS and Fire by Day of Week
[~~~t~~~d
18%
16% -
14% -
12% .
10% .
6% .
4% .
2% .
0% .
SUN
MON
TUE
WED
THU
FRI
SAT
The final analysis of historical workload concludes with examination of call types by hour of day.
The hours of peak activity can strain an under-equipped or under-staffed department.
Understanding when peak activity occurs begins the process of developing deployment
strategies and needs assessment. Each call type is examined separately to ensure that EMS
workload does not overshadow any unique patterns of the other call types.
Figure 38 depicts the distribution of EMS related calls by the hour of day.
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Figure 38: EMS Workload by Hour of Day
Springfield Fire & Life Safety: EMS Workload by Hour of Day
7%
1%
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"
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....~ I\~ ~~ ~ ~~ ro~ ~~ !O~ ~~ ~~ ,,~ 00 n;,~ ~ ~~ ro~ ~~ fb~ Oj~ r::,~ ,,~ I\~ (':,~ . ~
~ ~~ ~ ~ ~ ~ ~ ~ ~ ~ " ~ " ~ ~ ~ " ~ ~ ~ ~ V ~~~~
~
Activity for EMS calls begins to climb about 6:00 AM, reaching peak activity by 11 :00 AM. It
decreases slightly during the afternoon, only to increase briefly during the rush hours of 4:00
and 5:00 PM. By 6:00 PM, calls begin to decline throughout the late night and early morning
hours. This pattern follows the typical active hours of most people's daily activities.
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Springfield Fire and Life Safety
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SFLS also provides non-emergency transportation and emergent inter-facility transportation
services. The time of day for these requests is much different than for emergency medical calls
in general, and can be useful when deciding staffing schedules. Figure 39 demonstrates that the
bulk of medical transportation requests occur between 8:00 and 10:00 AM, most likely
correlated with the start of day shift at nursing homes, hospitals, and physician offices.
Figure 39: Medical Transport Hourly Workload
Springfield Fire & Life Safety: Medical Transportation Workload by Hour of Day
12%
8%
"
, 'M
-'- ""- c
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- --- - - - --- -- "'--, - --- - - l-
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10%
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4%
2%
0%
~~~~~~~~~~~~~~~~~~~~~~~~
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Fire incidents follow a different pattern in relation to the hour of day. Beginning later in the day,
the number of fire incidents rise during the afternoon. Fire calls peak in the afternoon and early
evening, and rapidly decrease in frequency throughout the night.
Figure 40: Fire Calls by Hour of Day
Springfield Fire & Life Safety: Fire Workload by Hour of Day
1%
,
-'
:
.
- .. -
~ ,..... - ~
I" . '"
- m' ,_ - LV"" ,~
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~~~~~~~~~~~~~~~~~~~~~~~~
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Springfield Fire and Life Safety
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Calls other than actual fire and EMS requests follow a similar hourly pattern to that of fire calls in
that activity begins to increase in the morning at 6:00 AM, rises steadily to peak by 5:00 PM,
followed by a rapid decrease through the night time hours.
Figure 41: Calls Other than Fire or EMS Workload by Hour of Day
Springfield Fire & Life Safety:
Workload of calls other than Fire and EMS by Hour of Day
8%
-
- -
- ~ ,.". ~
/'
- ./ '"
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7%
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4%
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2%
1%
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~~~~~~~~~~~~~~~~~~~~~~~~
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<$'l:>
Peak activity times can be reflected in response time performance in certain cases. The impact
of response time on the outcome of emergency incidents has been exhaustively studied, both in
the laboratory and in historical data, with predictable correlation between the two. Though
seemingly intuitive, it is still useful to review how longer response times can have a negative
effect on the ability to suppress fires, particularly in structures, or to successfully intervene in a
life-threatening medical emergency.11 Response time performance is examined in a separate
section.
11 A full discussion of this topic is provided in Appendix B.
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Springfield Fire and Life Safety
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In addition to the temporal analysis of the current service demand, it is useful to examine
geographic distribution of service demand. This allows for assessing the location of stations in
comparison to the actual service demand within the area. Figure 42 depicts the distribution of
emergency incidents responded to by the department over the last full twenty-four months of
data (1/1/05-12/31/06).
Figure 42: Service Demand; Incident Density
,"f.. :,~
Springfield Fire
& Life Safety
. Fife Stallons
m Hosptfal
Servtce Demand Denstty
_low
D-,.
_ ttgh
CJ Springfield Zoning Extent
Most areas of highest service demand are located in areas of high residential population density
and commercial development. While the above map reflects all calls for service for the
Department, it can be influenced by the prevalence of medical requests. This is seen in the area
near the hospital, reflecting calls for medical transportation.
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Standards Of Cover and Deployment Study
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Figure 43 illustrates the location of structure fires that were handled by SFLS over the same
time period. It illustrates that the majority of fire incidents occur near the populated areas and
within proximity of the fire stations.
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Figure 43: Service Demand; Fire Call Density
I
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& Ufe Safety
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Springfield Fire and Life Safety
Standards Of Cover and Deployment Study
Figure 44 shows how each response beat area is divided by workload share (number of calls)
based on 2006 and 2007 CAD (computer aided dispatch) data. The beat areas near Station 3
and between Stations 1 and 2 are the busiest.
Figure 44: Workload by Beat Area
,. ~,
Springfield Rre
& Life Safely
. FireStaticn,
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Respon.. Buts
WORKLOAD peT
."ca.'Ol
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Concentration Analysis
Concentration is defined as the number and spacing of resources needed to achieve an
effective response force that can be assembled at the scene of an emergency within a defined
time frame. In most cases a strong initial response force is likely to stop the escalation of an
emergency to higher level of demand and subsequent loss. An effective response force is the
accumulation of resources necessary to stop the escalation of an emergency and bring it to
conclusion.
The National Fire Protection Association (NFPA) standard calls for the arrival of the entire initial
assignment (sufficient apparatus and personnel to effectively combat a fire based on its level of
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Springfield Fire and Life Safety
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risk) within nine minutes of dispatch, 90 percent of the time. This is to ensure that enough
people and equipment arrive soon enough to effectively control a fire before substantial damage
occurs. In the SFLS protection area, a minimum effective firefighting force consists of three
engine companies, one truck company, one medic unit, and a chief officer. The shaded black
area in Figure 45 depicts the effective response force coverage area for SFLS.
Figure 45: Current Effective Firefighting Force
Springfield Fire
& Life Safety
. Fire Stations
_ 3 Engs. 1 truck. 1 Medic. , Be
CJ Spnnglidd Zoning Extent
0.5 1M
This effective firefighting force coverage map presumes that a chief officer may be responding
from anywhere in the district as their duties are not limited to a certain station area. The
relocation of and/or the addition of truck companies would alter the effective firefighting force
coverage.
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Reliability Analysis
Response reliability deals with the delivery system's ability to meet stated or desired
performance objectives, response time goals and performance measures consistently. Historical
performance and system reliability are the two key components of this measurement. A key
indicator is the ability of first-due companies to service their own first-due areas.
Workload and Failure Rates
The workload on emergency response units can be a factor in response time performance. The
busier a given unit, the less available it is for the next emergency call. If a response unit is
unavailable, a unit from a more distant station must respond increasing overall response time. A
level of response capacity above average values must be maintained due to less frequent, but
very critical times, when atypical demand patterns appear in the system. Multiple medical calls,
simultaneous fires, multi-casualty events or multiple alarm fires create such scenarios.
Unit dispatch data from the dispatch center is used for this analysis. Using the total time on
incident, unit hour utilization is also calculated for each response unit. Unit hour utilization is an
important workload indicator because it describes the amount of time a unit is not available for
response since it is already committed to another incident. The larger the number, the greater
its utilization and the less available it is for response to an incident. The highest unit hour
utilization (UHU) figures for fire department suppression units are typically around 0.20 with
some studies indicating that unit failure rates 12 at this workload will begin to hit 10 percent.
Studies of fire-based EMS units indicate that significant employee burnout can occur with 0.30
unit hour utilization rates. All SFLS units are currently well below these thresholds, indicating
unit workload is not likely a factor in achieving improved response times.
12 The unit failure rate is the percentage of calls for which a unit is unavailable due to handling an existing
call where it otherwise would have been dispatched as the primary unit.
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Springfield Fire and Life Safety
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In Figure 46, fire units are shaded red, while EMS units are shaded blue. The table details the
last two year's UHU rates for workload comparison over time.
Figure 46: Unit Hour Utilization
Springfield Fire & Safety: Unit Hour Utilization-2006
858,0.001,0%____
854,0.045,5%-
851, 0.005, 1'110~' ,
842,0.000,0% /
841,0.053,6% --
849, 0.008, 1'110~
Station
1
2
3
4
5
869,O'l:O% ,811.0.031.4%
ure 47: Unit Hour Two-Year Com
2005"
Calls
793
2226
27
22
1058
10
1112
2687
68
1582
8
105
1'192
17
3077
,22
Total Time
811 278:42:3
8191677:24:31
829 52:57:17
821 5:13:40
824 364:17:07
826 15:18:35
831 442:20:40
839 1735:45:0
849 .116:12:59
841 527:40:0
842 3:52: 1
851 37:58:47
. 854 388:42:58
858 33:52:2
859 1830:30:01
,869 17:19:
839, 0.191, 23%
\
UHU
0.032
0.191
0.006
0.001
0.042
0.002
0.050
0.198
0.013
0.060
0.000
0.004
0.044
· 0.004
0,209
0.002
,- 829, 0.003, 0%
c---821, 0.002, 0%
~824, 0.044, 5%
,~826' 0.002, 0%
831,0.042, 5%
.
[ 2006
I Total Time Calls UHU
270:54: 17 794 0.031
1664:34:01 2216 0.190
22:31:55 22 0.003
13:13:21 22 0.002
386:55:28 1201 0.044
16:21 :16 13 0.002
366:42:48 1117 0.042
1671:19:16 2497 0.191
71 :34:21 61 0.008
464: 18:09 1527 0.053
0.000
40:22:29 117' 0.005
395:~0:16 1230 0.045
10:14:09 10 0.001
1779:43:22 2868 0.203
29:41 :34 16 ' . ,,',0.003
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Springfield Fire and Life Safety
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Call Concurrency and Resource Drawdown
Another way to look at resource workload is to examine the amount of time multiple calls
happen within the same time frame on the same day. The following table examines the last full
year's (2006) worth of data to find the frequency that SFLS apparatus is handling multiple calls
within any time frame. This is important because multiple calls occurring at one time can stretch
available resources and extend response times since units from more distant locations must
cover the call.
Other.
88.55%
9.57%
1.11%
0.53%
0.19%
0.05%
As in most communities, the majority of calls happen singularly. However, as communities grow
the propensity for concurrent calls increase. When the concurrency reaches a level to which it
stretches resources to near capacity, response times begin to lengthen. Although multiple
medical calls will cause drawdown, especially as concurrency increases, they usually occupy
fewer units at anyone time. Concurrent fire calls however, are of more concern as they
generally require multiple unit responses for and usually last longer. Nonetheless, Other Calls,
that are not actual fires or medical calls, do have higher rates of concurrency than fire
dispatches and depending on the dispatch criteria, and may create periods of extensive
resource drawdown.
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Higher concurrency rates can deteriorate the reliability of stations from handling calls within their
first-due areas due to handling calls outside of their zone. The impact on station reliability can
be affected by several factors such as:
. Out of service for mechanical reasons
. Out of service for training exercises
. Out of area on move-up deployment
. Lack of staffing
. Concurrent calls
When these factors impact the reliability of a station to respond within its first-due area,
response time performance measures for the back-up station/apparatus can be negatively
affected. Reliability rates less than 90 percent become areas of concern, as they point to either
a need for additional staffing, facilities, apparatus, or operational policy changes. The following
table (Figure 49) details the reliability rates for each station area.
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Beat
OU28
OU75
OU76
SF01 "!9"
SF02
SF03
SF05
SF06
.~ ;;1""SF07 ~ '~~
SF08
SF09
SF10
SF11
SF12
811
~~M:) II -~_ ~ :
SF14
"SF15
SF16
SF17
SF18
SF19
SF20
SF22
SF23
SF24
SF25
SF37
SF90
SF91
SF92
SF93
SF94
SF95
SF96
SF97
SF98
WE91
WE92
WE93
~_l";'J-:(." I: -=-- ~_.
WE95
WR03
WR04
WR05
Grand Tolal
Rellablllly
1156
85.84%
Station 1
Slatlon 2
Slatlon 3
Slatlon 4
StiltlOn'5
819
2
2
3
6
1
1
13
6
992
91
21
10
1
2
2
1
1
821
824
Fi ure 49: Station Reliabili
829 831 839 841 842
1
2
11
2
1
2 25
34
2 32
7 21
9 40
2 19
29 115
30 124
5 26
1 8
1 10
16
5 24
3 14
630 296
11 54
15 95
14 108
66 250
366 149
8 50
200 99
127 54
5 25
2
2 3
2
3
1
2
5 3
2 1
1
13
27
11
22
280
22
226
209
33
30
76
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130
22
61
385
5
10
15
8
302
22
1
149
5
1
2
9
12
2
10
Rate
849
1
2
1
78
144
101
62
151
'75,
24
23
'~'22 """--86 -.,.
3
33
65
57
68
85
184
39
35
34
19
129 ~
25
6
86
851 ,~
3
1
"17
.' 24
21
20
4
11
1
1
1034
67.21%
4
1
26
9 1
125 2
16 632 1
7 565 1
1 46
1 3
1
2 13
1
4
2
3
2
1
1
5
8
6
6
18
5
22
13
8
2
1
4
4
14
45
19
329
361
66
46
16
11
4
4
1
4
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4
3
5
2
1
9 1560
22.22% 85.38%
8
1701 2148 6 25
67.78% 87.20% 66.67% 16.00%
2
2
2
1
1
4
2
2
4
1
2
~, ..'.'-.1'7
3
1
1
3
1
4 ~
81i9
1646
68.53%
.'869 '~Grand Tolal
5
1
2
142
243
160
142
514
136
424
411
187
44
126
119
226
141
1162
673
1604
1476
1046
648
519
359
212
271
9
7
7
6
6
7
5
14
19
15
6
13
5
2
'5
1
1
2
3
9
5
40,00%
2
'"
2
1
.=-:'_W'
u
20
2
1
2
11169
65.99%
Based upon first unll dispatched to call In beat. Mutual aids Informational dispatches, Medical Transports. and Mutual aid calls removed
611 Fire Unll
819 Medic Unll
Tender, Aerial, & Heavy Rescue nol considered. (all dlslrlct response)
Rellabllll
0.00%
0.00%
50.00%
66.90%
69.96%
67.76%
57.75%
62.26%
63.24%
80.42%
61.75%
57.75%
75.00%
86.51%
83.19%
82.74%
60.28%
79.69%
84.840..
82.48%
82.05%
80.53%
79.48%
83.24%
83.29%
85.38%
86.72%
33.33%
85.71%
42.86%
33.33%
37.50%
71.43%
40.00%
57.14%
73.68%
86.67%
50.00%
92.31 %
100.00%
85.00%
50.00%
0.00%
0.00%
63.91 %
<avera e.
2
1
2
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83.33%
1688
84.06%
-
-
-
-
-
-
-
159
83.65%
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-
-
-
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Springfield Fire and Life Safety
Stam:lard$ Of Cover. and OeploymentStudy
Response Time Performance Objectives
The ultimate goal of any emergency service delivery system is to provide sufficient resources
(personnel, apparatus, and equipment) to the scene of an emergency in time to take effective
action to minimize the imr:>actsof the emergency. This need applies to fires, medical
emergencies, and any other emergency situatiortto which the fire department responds; 13
Springfield Fire & Life Safety Response Time Performance Objective
SFLS has adopted the following time perforrnance measurements in its StrategiC Plan.14
1. Percentage of emergency ambulance responses achieved within eight minutes and 59
seconds or less.
2. Percentage. of emergency responses within the City in four minutes and 59sec.onds or
less.
NFPA171 015 contains reasonable targets against which to compare current performance of the
primary response units within the city limits of Springfield. NFPA 172010 can be applied to the
remainder ofthe coverage area.
Historical System Response Performance
To the extent possible, available data is filtered (by call type) to removenon~emergency call
types, and calls that were outside of the primary response district. This methodology ensures
response time analysis is based on in..district Code 3 emergent calls only resulting in a more
accurate portrayal of response time performance;
Throughout this document, certain descriptive statistical measures are used which may not be
familiar to all readers. In an effort t.o reduce confusion a brief explanation of average and
percentile measures is provided.
13 A full discussion on the dynamiC$ oftime with fire and medical emergencies is provided in Appendix B.
14 Adopted in November 2003 and revised in April 2006.
15 NFPA 1710: Organization and Deployment of Fire Suppression Operations, Emergency Medical
Operations, and Special Operations tothfrPublic by Career Fire Depaitmeflts, 2004.
16 NFPA 1720: Organization and Deployment of Fire Suppression Operations, Emergency Medical
Operations, and Special Operations to the Public by Volunteer Fire Depaitmeflts, 2004.
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Average
The average measure is a commonly used descriptive statistic also called the mean of a data
set. It is a measure which .is a way to describe the central tendency, or the center of a, data set.
The average is the sum of all the points. of data in a set divided by the total number of data
points. In this measurement, each data point is counted and the value of each data point has an
impact 00 the overall performance. Averages should be viewed with a certain amount of caution
because the average measure can be skewed if an unusual data point,known as an outlier, is
present within the data set. Depending on the sample size of the data set; the skewness can be
very large or very small.
Forexample,assume that a particular fire station with a response time objective of six minutes
or less had five calls on a particular day. If four of the calls had a response time of eight
minutes, while the other call was across the street and only a few seconds away, the average
would indicate the station was achieving its performance goal. However, four of the five calls, or
80 percent, were beyond the stated response time performance objective.
The opposite can also be true where ooecall with an unu$ually long response time can make
otherwise satisfactory performance appear unacceptable. These calls with unusually short or
long response time have a direct impact on the. total performance measurements. The farther
they are from the desired performance, the greater the impact.
One complltes averages because of their common use and the ease of understanding
associated with them. The most important reason for not using averages for performance
standards is that it does not accurately reflect the performance for the entire data set. As
illustrated in the two previous paragraphs, one extremely good or bad call skews the entire
average; While it does reflect all values, it does not really speak to the level of accomplishment
in a strong and realistic manner.
Percentile Analysis
With the average measure,it is recognized that some data points are below the average and
some are above the average. The same is true for a median measure. which simply arranges
the data set in order and finds the value in which 50 percent of the data points are belowthe
medianandtheotherhatf are above the median value. This is also called the 50th percentile.
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When dealing with fractiles or percentages, the actual value of the individual data does not have
the same impact as it did in the average. The reason for this is that the fractile is nothing more
than the ranking of the data set. The 90th percentile means that 10 percent of the data is
greater than the value stated and all other data is at or below this level.
Higher fractile measurements are normally used for performance objectives and performance
measurement because they show that the large majority of the data set has achieved a
particular level of performance. This can be compared to the desired performance objective to
determine the degree of success in achieving the goal.
As previously discussed, NFPA 1710 sets response time performance for first arriving fire
apparatus at five minutes or less, 90 percent of the time.
Dispatch Processing Time
The 1710 standard does not include call processing time, which is covered in other related
NFPA standards that call for a performance of one minute or less for this activity. The average
time for call processing for Springfield Fire & Life Safety by the dispatch center is one minute
and fifty one seconds, with ninety percent of calls processed within two minutes and twenty-
eight seconds.
Turnout Times
SFLS has established a performance objective that is consistent with the NFPA 1710 standard
and based on nationally accepted scientific data regarding the effect of time on fire growth, life
and property outcomes, and medical crisis survivability. Although there are many factors which
can inhibit response times such as weather, traffic volume, street connectivity and traffic
calming devices; turnout time is one element that the fire department can control.
Turnout time is the duration of time it takes after being dispatched for a unit to initiate travel to a
scene. NFPA recommends career staffed departments strive for less than one minute.
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Springfield Fire and Life Safety
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Turnout times vary by unit, as it is dependent on by each unit's crew and situation at the time of
dispatch. Figure 50 graphs the average and 90th percentile turnout times of each individual unit
identified within the analyzed dataset.17
Figure 50: Turnout Time Performance by Unit 10
Springfield Fire & Life Safety: Turnout Time Performance by Unit 10
lE1.~v;~ge'~ 90th 'percentil~1
869
859
854
851
849
, 842
841
839
831
829
826
824
821
819
811
06:39
'. . 03:13' , . ;.l
03:00
, '. 10f ,~,
02:05
101:26
02:07
01 :23" I n~'
01 :24\, 'b p'2'50
01:39
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02:15
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02:14
. 101:24 v
02:11
., 101:24 I
02:,19
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05:29
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. 101:17 ;\t .. 0~:10
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02:35
.- 01:36W ,~ ,
, ,
00:00
01:00
02:00
04:00
05:00
06:00
07:00
03:00
Turnout times may vary by time of day depending on service demand workload and when the
firefighters are at rest. The turnout times for some units may be misleading since they may be
reserve units that did not respond to the initial dispatch. Individual turnout times can be used to
measure individual unit performance over time.
The following two graphs deal with incident turnout time which is the turnout time of the first unit
to go in route to the incident. The average turnout times for emergency incidents (Figure 51)
range from a high average of two minutes and sixteen seconds for calls between the hours of
4:00 and 6:00 AM, to a low average of one minute and twenty seconds for incidents between
the hours of 11 :00 AM and 12:00 PM.
17 The following units are used as reserve units: 869, 851, 842, 829, 826, 821 and 849.
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Springfield Fire and Life Safety
0100
0200
0300
0400
0500
0600
0700
0800
0900
1000
1100
Noon
1300
1400
1500
1600
1700
1800
1900
2000
2100
2200
2300
Midnight
Standards Of Cover and Deployment Study
Figure 51: Average Turnout Time by Hour of Day
Springfield Fire & Life Safety:
Average Turnout Time Performance by Hour of Day
,,0 .,
......
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-
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The overall average turnout time for the department was one minute and thirty seconds.
Average response time is one useful measure to determine how well turnout time performance
is achieved. As discussed previously, turnout time in the majority of calls is more significant.
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Springfield Fire and Life Safety
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Figure 52 graphs the 90th percentile turnout time performance by hour of day for all calls within
the primary fire protection area. The 9dh percentile turnout time for emergency incidents
occurring within the SFLS ranged from a high of three minutes and nineteen seconds during the
5:00 AM hour, and a low of one minute and fifty-two seconds during the 3:00 PM hour. The
overall 90th percentile turnout time of the department within its primary jurisdiction was two
minutes and twenty five seconds for all emergent call types.
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Springfield Fire and Life Safety
Standards Of Cover and Deployment Study
0100
0200
0300
0400
0500
0600
0700
0800
0900
1000
1100
Noon
1300
1400
1500
1600
1700
1800
1900
2000
2100
2200
2300
Midnight
Figure 52: 90th Percentile Turnout Times by Hour of Day
Springfield Fire & Life Safety: 90th Percentile Turnout
Time Performance by Hour of Day
I ..01 _
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Travel Time
Travel time can be affected by many factors, but is dependant foremost on geography.
Intuitively, the farther away an incident is from the responding station, the more time it will take
to travel to the scene. Therefore, this is measured geographically rather than temporally. In
order to accomplish a geographical analysis of current travel time, actual response time
performance in each station area is analyzed. Figure 53 shows the average amount of time it
took for apparatus to travel to actual incidents within the different response beats.
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Figure 53: Travel Time Performance
Sprlnglleld Fire
& life Safety
. rlreSlalic;",
[II HO&;ltal
BHIA""....g. Travel Tim.
."aa.,!,
_l.~,.z.o,
_ !.Cl.':',!C
III .Ul .seD
"!.Cl.r.!7
DS~rjn;~G=crllngEJt:e-nt
o 05.. 1 MileS
The areas of longest response time are clearly visible through this map and, as expected, the
actual travel time performance is best in area closest to the fire stations. Figure 54 identifies
which districts pose a challenge in response due to street connectivity, traffic congestion, or
lower speed limits based on 90 percent of recorded incidents.
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Springfield Fire and Life Safety
Standards Of Cover and Deployment Study
Figure 54: 90th Percentile Travel Time by Beat Area
Springfield Rre
& Life Safely
,
. FlreStations
1:) MetC'llIl
Response BNtS
90TH TRAVEL TillIe
_ nao.un
"2.!1.S.QO
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Response Time
Response time is generally defined as the total time from the time the fire department is notified
to the time the fire department arrives on scene (turnout time + travel time). Some
organizations, especially those that provide their own dispatch services, also include dispatch
processing time in the equation. As shown in Figure 55, the SFLS covers 80 percent of its
calls in five minutes and 19 seconds and 90 percent of its calls in six minutes and 25
seconds. The response times of 74.8 percent of the calls in 2006 were under five minutes.
f"
55 St' R
r
PIi
Igure . atlon eSDonse Ime e ormance
.
2006 In City, Priority 1 Calls Only
90th 80th
Calls Percentile Percentile Average
5t 1 591 06:08 05:16 04:18
5t 2 1014 06:19 05:10 04:00
5t3 925 06:00 05:05 03:56
5t4 1313 07:11 05:37 04:22
5t5 955 06:07 05:06 04:08
Overall 4798 06:25 05:19 04:09
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Springfield Fire and Life Safety
Standards Of Cover and Deployment Study
Figure 56 combines the 90th percentile turnout times with the 90th percentile travel times to
illustrate the 90th percentile response time performance by geographic response area. It is
important to reiterate that the area in red shown between the 1-5 and Hwy 126 markers is a
district with first due automatic response by the Eugene Fire Department. This map reflects only
the performance from the SFLS units, and does not take into account the possible quicker
response from Eugene Station 3.
Figure 56: 90th Percentile Response Time by Beat
SprIngfield Rre
& Life Safety
. Fitt'S:'liol'l1
l:I HCl:Jltll
80111 '4til. Respons. Tim.
.. ~.9::! _!.(ICml"llltu
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S.01 -It.CO
~10.01.'20C
~12.01.1J,_~j:T!lrl.il"
o S;OIt;i'leto Zoning E lrttnl
.~
The following map, Figure 57, illustrates the urban, suburban, rural, and frontier zones in the
ambulance service area along with the 90th percentile response time performance rating for
emergency medical incidents. Based on this analysis, the 90th percentile response time target of
10 minutes was obtained 90.8 percent of the time in urban zones, the 20 minute target in
suburban zones 91.8 percent of the time, the 45 minute rural zone target 92.6 percent, and the
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Springfield Fire and Life Safety
Standards Of Cover and Deployment Study
I
frontier zone target 100 percent of the time.18 The Ambulance Service Area response time
standards were met in all four zones.
I
Figure 57: ASA Response Time Performance by Zone
I
J)
Zone
T
Frontier (Zone 4)
Rural (Zone 3)
Suburban (Zone 2)
UrbanlUrbanizable
(Zone I)
Targe.
Res ose Time
45 min +
4Smin
20m;n
IOmi"
90 Percentile
Com iance
100%.
92.60/0
91.8%
90.8"10
Springfield Fire
& Life Safety
* MedieSllll10ns
I:J Hospital
Ambulance Dilbicl
c:J Spnngrield FirelReoaJe
ambulance_response_zo08S_ Cfi
TYPE
_Frontier
_Rural
_ SUbUrban
_ lJItlan
CJ CtlUr1lyboundmy
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8 Miles
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18 Routine scheduled transport calls are excluded from this calculation.
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Springfield fire and Life safety
Standards Of Cover an.d Deployment Study
Chapter 6: Critical Task Analvsis
Introduction to Critical Task Analy~is Process
The fire department responds toa wide vari~ty of emergency scenarips. Thevariabl.es can be
extenSjive requiring the fire department' to be highly adaptive. This complex combination of
variables is why the fire department has various evolutions (methods), tools, and techniqlles to
do its job. As noted in previOUS sections,~he primary reason fire department apparatus is
distributed and concentrated in a certain manner is to carry outthe specific mitigation measures
necessary to prevent anemerg~ncy incid~nt from escalating.
AlthoughSFLS responds to a wide range of emergency and non-emergency incidents, this
Section deals specifically with tryoselScenariosthat are truly emergencies ancl require immediate
intervention to prevent loss of life and property.
A Critical TaskAnalysis is a requirement of any Standards of Cover documentthat is developed
to meetthe Commission on Fire Accreditation. 1 nternational's requirements in self~ass~ssment It
is also a key performance indicator for future use in the accreditation process.
This process leads to two concepts in theconte':<t pfa Standards of Cover:
1. The identification of an effective response force
2. The analysis of critical tasking by the fire forces upon arrival at an emergency
Since no ,fire department can reduce fire and life safety risks tozero,a Standards of Cover
stUclyisdesignedto find a balance betWeen distribution,. concentration, and reliability that will
yield the maximllrn saving of life and property with available resources.
Iclentifyingthe, Effective R~spoJl$eFotce
An effective response Jorce is defined as the minimum amount of staffing al1dequiprnent that
must reach a specificrisklocation within the departmt;1ntsstated response time goal:
Critical tasks are defined as the activities and actions to be taken by the effective response
force in dealing with the assigned emergency.
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In creating,a Standards of Cover, the capability of arriving companies and the required number
offirefighters to achieve these tasks mllst be adequately assessed.
Critical tasking .should be developed for each risk category, and, in some cases, for special
operations. A basic assumption in critical tasking is that firefighter safety Will be emphasized and
that the critical tasking incorporates compliance with local, state,and federal rules and
regulations.
Critical Task Analysis (eTA)
Criticc:ll tasks are those actions and activities that must be conducted in a timely manner by
personnel on emergency incidents in. order to control the escalation of the event. In the case of
fire, it is aimed at attack. prior to flashover. In the case of emergency medical situations, it
involves the treatment and stabilization ofthe patient.
The first fifteen minutes after a fire company arrives is the most crucial in controlling the event.
Therefore, aCTAevaluates this time period. When conducting validation exercises, the CTA
commences when a vehipl.estopsat the scene and ends whenalllasksare completed or in
approximately fifteen minutes if all tasks are not finished.
Critical tasks must be conducted in a timely manner in order to control a fire orto treat a patient.
The SFLS has not yet conducted .a field validated critical task analysis to quantifyano ev())luate
performance during this critical time period. However, SFLS has completed a desktop analysis
of critical tasking for the various types of incidents and risk levels commoh to their response
district.
CTA processes in suburban fire agencies tend to be almost identical in concept and
performance due to uniformity and 'standardiz())tion of initial .attack techniques in use in most fire
agencies. This is especially true in areas like the Springfield area with strong automatic and
mutual aid systems in place. Critical task. analysis demonstrates important differences based on
apparatus configuration and staffing regarding the abUityto enter a building, ana working
structure fire and executing the two-in two--out rule plus fireground operations.
The tables that follow describe the, criticaltasks/actions and the number of personnel, needed to
establish an initial effective response. force for each routinelyahticipated type of incident. The
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Springfieici Fire and Life Safety
Standards Of Cover and, Deployment Study
last tow of Elach table describes the apparatus currently. programmed through dispatch to
acquire an effective first alarm response force.
1
1
2
2
3
2
4
15
1chief officer; 3 engines; 1 truck or
.1Jint; .1 ambulance
2
2
4
2
3
2
3
18
2 chief officers; 3 engines;
2 trucks; 1 ambulance
A second alarm is called
automatically on any cpnfirmed fire
or wherethElre isa po~itive alarm
sequence of twbbr 1110reautol11atic
. detection devices.
Note: This table ,c;Ienotes , ohlythe, initial progrlEimmedresponseforhigh rise
buildings., It doesnotreflectthenumoer of personnel that may oereCluired to set up
stairwaycontroland/orexecute evacuations.lJnder such scenarios the required
number of ersonnelcouldeasil exceed 50.
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1
2
2
2
3
2
3
15
1 chief officer; 3 engines; 1 truck or
uint1 ambulance
rammed resources
1
1
2
4
1 chief officer; 1 brush en ine
Patientmana ernent
Patient carE:!
Documentation
Total
Currentl ro rammed resources
1
3
1
5
1 en ine; 1 ambulance
Patient care
Extrication
Fire rotection
Documentation
Total
Currently programmed resources
3/3
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Personnel
Total
Currently programl11edres()Urc~s
3
3
1 engine; if reported as flammable
liquid dispatch will include 1 chief
offiCer; 3 engines; 1 truck;
1 ambulance
Gommandlsafet
Pati,ent mana ement
Patient care
Swimmers
Boat aerator
Bank 0 eratiorl.s
Total
Currently programmed resourCeS
1
1
1
2
1
3
9
1 chief . officer; 1 engipe; rescue
boat; 1 ambulance
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Springfield Fire an~ Life Safety
Standards Of Cover and Deployment Study
Cha~ter 7: Performance Measures
The entire St~ndar.ds of Cover process is built on the principle of differenti~1 response based on
risk -matching the response force to the risk. The goal is to ensure, to the greatest degree
possible, that the response force is adequate fro the risk involved. Dispatching an inadequate
fqrge(too few personnel, incorrect apparatus, or lengthy response times) is ineffective.
Dispatchihg an excessive force (too many personnel or too much apparatus) i.s w~stefuJahd
ineffi.cient.
ThiS section is laid out in two parts. The first part identifies the standard of cover performance
oi:)jectives for thedepartrnent. The second part quantifies response time performance goals and
measurements.
The overaJl deployment goal of SFLS is:
Limit the risk to the community and its people from fire, injury, death and property damage
associated with fite, aCCidents, illness, explosions, hazardous materials ihcidentsandothfi)r
natural or manmade emergencies through preyention and reSpOnSfJl and to provide
emergency transport services within its assigned ambulance service area.
Standard of Cover Performance Objectives
The Standard of Cover Performance objectives are:
Fire:
l=orall fire incidents within theprimarv protection area, SFL$shall arrive in a timely
manner with sufficient resources to stop the escalation of the fire and keep the fire. to the
area of involvement upon .arrivaLlnitial response resourceS shall be capable of
containing the fire, rescuing at-risk victims, and performing salvage operations, while
providin9 for the. safety of the responders. and the general public.
EMS:
For emeroencv medical incidents within theCitv or SprinQfield,SFLSshall arrivejn a
timely manner with sufficiently trained and equipped personnel to provide medical
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Springfteld Fire and Life Safety
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services that will stabilize the ,situation, provide care and support to the victim and
reduce, reverse or eliminate the conditions that have. caused the emergency while
providing for the safety of the responders. Timely transportation of victims to an
appropriate medical facility shall be accomplished in an effective and efficient manner
when warranted.
For emeroencv medical ,incidents ,outside the primary protection area but within the ASA,
SFLS will respond in accordance with the Lane County Ambl,ilance Service Area
standards.
Rescue:
For res.cue situations within the primary protection area, SFLS will arrive ina timely
manner with sufficient resources to stabilize the situation and extricate the victim(s) as
required without casing further harm to the victim, responders, public, or the
environment.
For rescue situations outside the primary protection area but, within the ASA, SFLS will
respond iQ accord:ance with the Lane County Ambulance Service Area standards.
SpeCial Hazards:
For special hazard situations involving hazardous materials, wildland. swiftwater. or
other unusual hazards within the primary protectionarea,SFL$ Will arrive in a timely
manner with sufficient resources to stabilize the situation, stop the escalation of the
incident, contain the hazard where applicable and establish anactiol1 plan for the
successful conclusion of the incident while providing safety and security of the
responders, public and the environment.
For special hazard situations outside the primarvprotection area but within the ASA.
SFLS will respond in accordance with the Lane County Arnbylance Service Area
standards.
Deployment System Performance Measurements
The following performance measurements are based on actual performance as documented in
2005/2006 response data provided by the dispatch center. These turnout time, distribution, and
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Sprillgfielo Fire and Life Safety
Standards Of Cover and Deployment Study
conqentration performance measures provide a means to asses and manage the SFLS
deploymenfcapability. The dispatch center currently relies on manual time stamping for
response information; therefore,the data is subject to inacclIracies due to missed or delayed
entries.
Turnout Time Performance Measure
For all emeraencv incidents within the primary protection area, the 90th perce nti Je turnout
time will be within twominutesand30sec€:mds.
Distribution Performance Measures
For 90 percent of all emergency incidents within the primary protection area, the first
SFLSunit will arrive. on scene within six minutes and 30 seconds (turnout time + travel
time).
In areas directly inaccessible by vehicle (wildland, river rescue}, SFLS units will arriVe as
SOon,as practical.
The first unitshouldbe capableofadvancingasingleattaQk unitforJire controlQr initiate
a rescue when a life hazard i~ present, or provide advanced life support treatment as
dictated by the situation.
For emergency medical incidents outside the primary protection area but within the ASA,
will respond in accordance with the Lane CQuntyAmbulance Service Area Plan. Level of
care and personnel standards ""ill be provided as set forth in the Lane County. Plan as
set forth in Section 18.040.
The current ASA plan response. lime standards (turnout time + travel time) are as
follows:
IJrban/Urbanizable (zone'1)
Suburban (zone 2)
Rural (zoneS)
Frontier (zone 4)
Less than 1 0 minutes
Less than 20 minutes
Less than 45 iTlinutes
More than 45 minutes
85% of all 'calls
85% o.fall" calls
85% of all calls
85% of all calls
Concentration Performance Measures
Fire:
Eniergency Sertiices
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Springfield Fire .al1d Life Safety
Standards or Cover and Deploym~nt Study
For low rise residential .or commercial praperty fires an effective rE3sponse force of three
E3ngines,ane truck, one chief officer .and one ambulance (15 personnel) wiU arrive within
nine minutes and 15 seconds of dispatch 90 percent Qf thE3 time.
For hiQh rise residential .or commercial property fires anE3ffeCtive' response forCe of three
engines, two trucks, one ambulance and two chief officers (18 personnel) will arrive
within ten minutes and 30 seconds of dispatch 90 percentofthetime.19
Fire, vehicle and brush 'type fires an effective response force of one engine (grass or
brush) and one chief officer (four personnel) will arrive within eight minutes and 15
seconds of dispatch 90 percent of the time.
It should be noted that the response for most vehicle fires and small brush fires is a
sinQle enQine. Vehicle fires withsi.gnificant exposures or larQer brush fires receive a full
fire respanseas described above for commercial structure fires;
EMS:
Fire emerQency medical situations and motor vehicle crashes an effective response
force of one engine and one ambulance (five personnel) will arrive within eight minutes
and 30 seconds of dispatch 90. percent of the time.
Special Hazards:
For confirmed flammable liauid hazardous material situations an effective response force
of three engines, one truck, one ambulance, and one chief officer (15 personnel) will
respond within 1Q minutes and 30 seconds .of dispatch 90 percent of the time.
Note: Responses to unconfirmed hazardous material situations will consist of one
engine.
For water rescue situations an ioitial effective response force of one engine, one reSCl,Je
boat, one ambulance and one chief (nine personnel) officer will arrive as soon as
reasonably possible cOrlsideringthe accessibility of the event.20
19 Additianal evaluation, and study of this particular perfarmance gaal shauld be c:om:lucted. The data set
rcrovided did not prQvidesufficient informationta perform a true 90 perce:ntfractile analysis.
o Additianalevaluatianaf this perfarmance gaal shauld be canducted based an target travel time ta
speCific staging and/or access points.
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Chapter 8: Compliance Methodolo~
Incremental system performance improvement is best achieved through a consistent and
defined monitoring system in which defined performance objectives are analyzed and the
results evaluated on a routine basis. The results should be shared throughout the Department,
reported to City administration and City Council, and, finally, communicated to the community.
An effective evaluation process provides valuable information that should form a foundation for
making future adjustments to the emergency delivery system.
Both the CFAI Standards of Cover methodology and NFPA 1710 refer to the need for a fire
agency to have in place, a system of monitoring the department's performance on a periodic
basis. The maintenance of effort (compliance methodology) requires a system to ensure
performance objectives and measures are evaluated, and effort is made to reach or maintain
these levels at two different levels. The first is to assure the existing deployment platform is
meeting established response goals. The second is monitoring response failure(s) that could or
should result in adding additional resources in the form of staffing, apparatus, and/or stations.
The first component is based on department records management systems and data from the
CAD system on actual responses. An array of reports and raw data is available form the Fire
Communications Center that goes a long way to assuring this type of scrutiny, and is providing
excellent support to the agency. It is noted that the Department recently migrated to a new
record management system (RMS) data collection system that should have the capability to
provide the full range of analysis required. Full attention should be given to ensure that data
collection methods and reporting formats are established.
The following seven-step process describes the methodology the Department will use to monitor
performance. The first step establishes what will be monitored. The next two steps establish the
technical data collection and analysis procedures. Steps four, five, and six involve the analysis
of the data. The final seventh step focuses on determining and making any necessary and/or
desired adjustments.
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1. Establish/adopt
performance objectives
2. Establish data collection
methodology and procedures
~
3. Establish reporting periods
and reporting methods
4. Communicate expectations
throughout the organization
5. Determine strategies to
improve performance
~
6. Validate/evaluate
performance
7. Make necessary
adjustments/repeat process
Step 1: Establishladopt performance objectives
Complete the initial sac review and analysis process. Establish and adopt current and target
performance measures. Plan to conduct a full review of adopted performance measures every
three to five years. There should be a periodic performance review by the governing body, by
looking at a minimum of three years accumulated reports to determine if there are any trends or
patterns that require specific attention.
. Services provided
. Levels of service provided
. Levels of risk categorized
. Performance objectives and measurements:
Distribution measurements
- Concentration measurements
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Step 2: Establish data collection methodologyandproc$dures
Evaluate current' data collection methods and ' procedures to ensure the necessary data is being
collected in an ongoing and consistent fashion. The data collected should allow for a detailed
analysis of each identified performance objectives. At a minimum, the data should include:
.. Incident location (address, XY coordinate$, jurisdiction, geographic areas or beats,
and mutual aid given or received) and type (NFIRScodeand description)
.. Incidenttype (NFIRS or local code)
. Property involved type (NFIRS or local code)
. Tim~ stamps for the full response time 'continuum for all responding units (including
mutual, aid units)
. Responsestatlls (Code 3,Code.1 ,status upgrade or doWngrade,Whileenroute)
. Staffing levels by unit and 'incident (ALS/BLS)
. Community risk data. Theaccumqlation of community risk data is an ongoing
proceS$ of updating existing databas.es and/or establishing new systems to further
enhance the fire department's abilityto quantify and identify applicable risk factors.
Step 3: EstabJishreporting m$thods, reportil1g cycles allddistribution
The reporting formats, frequency of teporting, and the distribution of the r~port$>$hould be
established. Responsibility for each p~ase, of this process should be" identified.VVhile most
records management systems have mariystandardize reporting formats, the Department Will
bave. to create some of its own unique reports tailored to its analytical needs and the desires' of
the governing body;
. Report formats should vary it) detail depending on each report's intended use and
distribution. Highly technical reports are more appropriate for internal fire department
al1alysis. Result-oriented formats> are more appropriate for city administrative and
governing bodyrepbrting:
· Determine reporting intervals for various reports (monthly, quarterly, annual,and ad
hoc). Reports designed to monitordata collection accuracy should be run frequently.
Those designed to evaluate systel11.efficiencyand long~termperforlnancemay have
less frequent distribution cycles.
· Determine the distribution of reports. Performance report$ may also be used as
educational tools for firefighters, elected officials and the public.
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The types of performance that should be compilecl ona, monthly, basis in~lu.cle:
It Turnout time performance by unit for emergency events
.. Turnouftime. performance by unit for non-emergency events
e Travel time performance by unit for emergency events
e Travel time performance by unit for non-emergency events
· Overall travel time performance of fir$talarm assignment
These reports should be byshift,ancl reviewed by the Battalion Chi,efsfor identification of any
response time anomalies.
There shoulcl be quarterly report$of:
. The overall traveltime performance by shift
e Traveltime performance by first due units for both emergency and non-emergency
events
. Overall performance
The review of performance level should be by the Oper(ltions Chief foridentific(lticm of any
response time anomalies,
There should be an annual review and evalwation of:
. Overall responses by type of call
. OveraU responses by month of the, year
. Overall responses by day of week
. Overall performance. of alarm processing times
. Overall performance ofWrnolJt times
. Turnouftime performance by each unit
. Travel time performancebyeach~nit
. Travel time perfprm(lnceby first alarm (lssignment
. Pin mapofaUilocation, .and color cOcled by those responses that are within the response
goal (green), those that are within 60'-secondsofthe goal (yellovv) , and those that a're
beyondthe60-seconds (red), The purpose of this map is to visuan~{ determine if'the
distribution of calls beyond the response time goal are located in any specific pattern.
. Number of EMS calls per unit
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. EMS calls by main complaint
. Unit utilization of each, individual company
.. Call workload by hour of day (for use in determining potential of peak activity units)
Step 4: Communicate expectations
Communicate performance expeGtationsthroughouttheorganization. In some instances, the
very awareness of certain information motivates improvedperfonTIance.Afeas in which this
effect has been commonly experienced inClude, data collection, reporting accuracy and
improved turnout times~
. Explain the methods used to measure compliance to the personnel who are
expected to perform the tasks
. Provide appropriate. levels of training and direction for all affected personnel
.. Provide feedback mechanisms that are routine and responsive
Step 5: Determinestl"ategie~ to improve performance
Effective data collection along with a regular evaluation system allows the fire department to
track trends in service lave I demandsaneJ deHverycapability. The Departrnenfmaymake
adjustments and/or establish new objectives that result ,in incrementaL irnpro\iernents in
performance. The following bullets list target areas that are opportunities for incremental
improvement.
. Overall system performance
. Performance by unit
. Performance by first due company
. Performance by full effectiv~ response force
Step 6: Valicjateand Monitor
A key step in the implementation of new processes is to ensure their routine, and consistent
application throughout the organiz;;ition on an ongoing basis. The necessary training, direction,
and resources must be provided.A..'$$implied in the third bullet below, partpf the monitoring
process must move beyond the pllrelytechnical review to an operational revieW involving the
personnel who provide the service.
· Modify business processes, business , application systems, and technical
infrastructure as necessary
· Monthly,quarterly, and annual reporting
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. Conduct staff and administrative reviews
Step 7: Maken~cessaryadllJstmentslrepe;!t process
The final step includes the continuing review and adjustment of strategy and tactics to maintain
or improve service. levels. This processiincludes establishing newand/ormodifies existing goals
and objectives.
. Adjuststrategic plan as necessary
. Adjust goals,ahdobjectivesas necessary
. Implement adjustmentsthrooghthe budget proceSs
· Communicate new expectation throughoutthe organization (Step 4)
ThiS review process should result in either an adjustment. of the response time performance
measures by the governing body,or theaqdition of resources to deal with response faih.lres.
Making system-wide. strategic deployment improvements is neither simple nor inexpensive.
SUch decisions should only be made following technical data review, an operational
effectiveness review, a financial impact and capabilities review, and finally, a policy review by
the governing body.21
21 See,Appendix Cfora discussion On the thresholds Cindtriggers whiCh identify the factors that should be
evaluated in determining the need for adjustments in the level of service provided.
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SpringftelclFire and Life Safety
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Chapter 9: O~ortunities for Future Performance
Introduction
Throughout this report, m(;inyobserv(;itions have been made about the current delivery system
and potential future service demands, The purpose of this section is to collect these
obServations and offer potential strategies .for the future. It is important to nqte thatthis. section
focuses on the emergency response delivery systelTlof the Department only. It is not meant in
any way to downplay. or neglect the importance of the many other support and non emergency
services the Department provides.
Opportunities for future performance improvements can generally be grouped into two
cate.gories:
1. The implementation of policy, procedures' and technology that will improve performance
within the existing resource structure, and
2. The addition of new resources to enhance the delivery system. This second category
can befurtherdividedinto:
a. New Services and Increased' Performance: Issues that. have a direct impact on
current service delivery and/or the safety ofSFLS personnel
b. Future Planning Issues: Issues that should be studied in future strategicJ>lanning
'processes
One of the goals of a Standards of Coverage study is to seta baseline upon which to consider
strategies tl1atarelong-termin nature. If is this Process in which the Jnost critical issues are
identified. over the long haul; auf as rnuchas twenty years in tflefpture; This process WaS
initiated hi previous sections ofthis, report where community growth, identified risks and service
demands were evaluated. This section compilesinformationleamed to provide a recommended
long-term strate;gyforthe growth and development of (;i healthY organization, capable of
providing the services that are valued most by its customers.
Future Deploym(ill1t Analysis and Recommend(;itions
The Jollowing'long-term resource deployment strategies, are intended to allow the Springfield
Fire & Life. Safety Department to continue its existing level of service as growth in the
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community continues and where possible, to improve the level of service toward its target
performance objectives.
Aprojectiol} of future service demand has been developed using several measures developed
earlier. Information such as historic service demand, population dertsity growth,and traffic
pattern changes ngureinto the futu~e service demand model. The extensive use of geographic
information system (GIS) allows for the scientific mOdeling of apparatus response times against
the road network using appropriate speed levels during straight-aways and turns. This process
allows us to evaluate current deployment and future strategies with accuracy and detail.
In the following subsections, a recommended deployment strategy is offered that can be utilized
,
to improve the level of service to the current artd future residents, visitors,and business owners
within the City. This recommen~ed strategy disc:usses the deployment of facilities, the
evaluation of the current apparatus fleet given the projected workload.
Facilities
In this strategy, specific locations are described for future fire station construction or relocation.
It 'shoul~ be noted that thesespec:iflclocations prOvide the point at which the performance
projection data was achieved and represent our recommended best case location. It is
understood that additional factOrs such as land availability" zoning, traffic patterns, etc. will also
impact any decision on a specific fire station site. For these reasons, ESCi suggests that
variations to the listed locations are acceptable within a range of the equivalent of two or three
city blocks. Any such variations will impact the performance projection Of the strategy, but not
significantly to render it inaccurate.
Overall, the current ~eployr:nent provides capable coverage to the majority of the populated and
business districts within the City. For the most part, the facility deployment is 'adequate for
projected growth, especially in the Gateway area around the neW hospital .On RiverbeOd Drive.
In this area, Station 5 is properly situated for apparatus to respond to incidents within the
establishedtimeframe for the DepartmentAreas of concern with regard to projected areas of
servic:e demand outside of response time guidelines include the Glenwood Water District, the
Willakenzie area south of Jasper and along Weyerhaeuser heading southeastfromthe City.
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Springfield Fire and Life Safety
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Although the most western extent of the Glenwood Water District has automatic aid response
from Eugene Fire Department, the growth in all other areas presents additional demand
potential. Additionally, increased commercial and residential density along Main Street (Route
126) presents a projected area of increased service calls. In order to provide services effectively
to these areas that are within the primary responsibility of the Springfield Department of Fire &
Life Safety, consideration of an additional facility is suggested. However, before ESCi
recommends any additional facility and its associated costs, relocation of existing stations is
always considered as an option.
There are two primary considerations of deployment planning with regard to projected future
service demand. Redundancy and gap analysis of response capability serve as the basis for
determination. Redundant capability areas are not an issue that necessarily needs to be
resolved in all cases. This is because in the case of a structure fire, multiple apparatus from
several stations need to be quickly assembled before an initial coordinated attack can begin.
However, when an area of redundancy can be reduced to provide additional coverage of the
service area without severely diminishing its redundant benefits, such strategies are explored.
When these options are exhausted, and gaps in coverage or large areas of projected service
demand are outside of facility deployment capability within accepted timeframes, additional
facilities are recommended.
Station 4 shares response capability areas with Station 5 and Station 3. A strategy to reduce the
extent of this redundancy to provide improved coverage to the Glenwood Water District and the
Main Street Corridor has been developed. Figure 59 demonstrates the redundant response
capability area of Station 4. Note that the proposed new future roadways, depicted in red, are
included in this analysis.
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Figure 59: Response Area Redundancy of Station 4
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0,5 " Miles
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Station 4's response capability area extends over the locations of Station 3 and Station 5
primarily due to its quick access to major arterial roadways. By relocating Station 4 to the south
near the intersection of Pioneer and Main Streets, additional coverage capability in the
Glenwood Water District, as well as improved response along the western portion of Main
Street, can be accomplished.
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The following Figure 60 illustrates the new resulting response capability area by relocating
Station 4.
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Figure 60: Response Area Station 4 Relocated
Springfield Fire
& Life Safely
. roe 8m""".
I:l Ho'l'iIaJ
FgaponM At.. Capability
lncIudes 1 minute tumout
_ 5m~ul8S
- Proposed Roads
o Spnng_Z"""'g ex"""
DcountyllOundary
1 Mtles
Excessive redundancy of Station 2's response capability area was examined for possible
elimination. However, the Jasper area of the City, as well as its potential development, would be
outside of the stated response time objective. Additional development south between Jasper
and Weyerhaeuser will create additional service demand needs. Once again, some redundancy
between stations can be reduced while providing additional response capability to growing
areas of the City. Depending on the timeline for this additional residential and commercial
development, plans to relocate Station 2 further southward in the vicinity of the intersection of
57th and Mt. Vernon would enable more of the City to be within response time objectives as
development in this area progresses.
Figure 61 displays this new location for Station 2 and its resulting response area capability.
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Figure 61: Response Area Station 2 Relocated
Springfield Fire
& Life Safely
. FIre Stal:lons
III Hosl>IUlI
Response Ar.. c..~bUity
IndudM 1 minute tumout
_ 5mmut..
- Proposed Roads
o Spnngf18d Zontng e.tenl
c::JCOlltltytOUfld"'Y
No loss of coverage to the industrial area north of the former location for Station 2 is
experienced, while additional areas of proposed development in the southeast are within range.
It may also be noted in reviewing this map that the majority of the proposed developments in the
Station 1 are within its coverage area. Attention to arterial connections as the area develops
could also improve the coverage area.
Although these relocated facilities require new stations to be built, the ongoing facility operating
costs of a five station department has not changed significantly and may even be improved with
newer designs and energy efficient layouts. The main benefit comes from additional areas of
protection within response time goals while not increasing the amount of facilities required to
complete this. It is recommended that stations be constructed with at least two bays allowing for
additional and/or reserve apparatus.22
22 See Appendix D - Financial Considerations for discussion on building requirements and costs.
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Apparatus
Since no additfonalstations have been recommended, it is conceivable to presume additional
apparatus would not be necessary. Although this is true for engine companies,a redeployment
of truck apparatysshould be considered. Higher community risk properties exist prominently
near Station 3. .Therefore with the relocation of Station 2 southward, it is recommended that
these stations swap<apparatus. This allows the quint to be more accessible to these higher risk
structqres. The quint would still be able to reach into the southeast area within the. effective
firefightihg force response time goal should this area develop more commercially. Again, this
can beaccompHshed with no additionalcostt() the Department.
The Department should ,consider puttingintp serJice"an a,dditional medic unit at Statiorl 4. Key
conside.n:ltions that suggest the need include the following:
./ Gurrently,theUI-UJofthe three medic units is high but within acceptable limits.
./ The concurrency analysis indicates thattwo medic units are on assignment atthe same
time 22.4 percent of the time and all three units 6.11 percent of the time.23
V' Thecalculatedambulance"responsetime performan{';eis within statedASA'standards in
all four ' response time zones.
./ The.projected EMS workload is expected to rise inthe coming decades.
Staffing
When an additional medic unit is put into service, aqditipnalstaff trained as paramedics woulcl
be necessary. The availability of paramedics has recently become a concern nationwide,
Though nota widespread shortage; this staffing element should be continually pursued to
alleviate lapsesin.staffing and employee burnout.
According to the data, Station 5, where the engine and the truck are cross'-staffed, the truck has
aUHUsimilarlo other engine companies. While the primary use of the tryck when responding
tofirecalls.outside of their beat is reas,onable, its primary use within Station 5's beatisworthy of.
diSCussion. Although automatic aid from the Eugene Fire Department includes an engine and
theengiriefromStation 4 or Station 3 also respond;itwoyld appear that responding primarily
with the. truck is acceptable. Go'nsideringthat this would be the nearest truck company within
Station 5'Sclistric;t, serves to embolden this philOSoPhy.
23 See Figure 48 on page 72.
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However, typically an initial attackofa fire requires an engine company, which in many cases
for the beats assigned to Station 5, is coming from elseWhere. Ofthe 230 fire incidents (EMS
and other call types removed) within Station 5 beats, the truck apparatus responded to 86
percent of them. A delay in initial attack until other engine companies arrive can have a
detrimental effect on an efficient attack process. Springfield Fire & Life Safety should consider
adding separate truck company.staffing to facilitate initial response of an engine company to
reports attire within Station 5's beats. Such staffing would also ensure the availapility ofa truck
company to the majority of the City without compromising Station 5's beatcoverage:~4
Ftecommendations Summarized
Improvements within the Existing Deployment System
1. Data collection. documentation, and reportinq: The Department recently implemented a
new records management system. The transition to the new system has proven
problematic in thatincident data from the previous system could not be imported to the
new'systern effectively. The Departmenfshould ensure the new data collection system is
fully deployed in a fashion that data necessary for ongoing analysis are correctly
collected and that reporting routines are developed to accurately tract workload and
performance.
2. Continued coordination with the Dispatch Center and neiqhborino mutual aid agencies:
While dispatch processing times are not under the direct control of the Department, the
amount of time necessary to process a 9-1-1 calls adds to the overall response time of
every call. The department should continue to work to improve dispatch protocols,
mapping, CAD programming and system reliability. The department should also continue
to encourage and' participate"inenhanced mutual and automaticaidcoordiriation with its
neighboring fire departments.
3. Turnout times: The control and/orreduction of turnout times is generally under the
control of the Department but can be influenCed py dispatch center procedures.
Reductions in turnout time have the universal impact of reducing response times.
Improved turnout times extend the geographic area the Department can cover within its
24 See AppendixD - Financial ConSiderations fora disCllssiol1on projected staffing qosts,
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c;iesign~ted response timegoals~ The department should focus on finding increased
efficiencies to further reduce total elapsed turnout time. The Department should monitor
turnout time performance andeyaluate methods within the parameters of safety to
reduce them. Accurate time stamping by dispatch center personnel of the completion of
turnol.lt time for each responding unitwiHsignificantly validate the accuracy of this
measurement.
New Service/Increased, Performance Capability,
t.Relocate Station 4 to the south! near the intersection of Pioneer and. Main Streets.
2. Staff an additional medic unitCJfStCJ~iol1' 4.WMile call 10CJding,. unit utilization, and
concurrency rates are withinacceptapleranges, they are fairly high; and while response
times in the ASA arecurrentIYwitl1i11tCJrgetgoals;c;iemand forEMSrespcmseand
transport services is expected to. continue to increase.
Plannlng"I$.$ue$
1. Staff the truck and engine at Station 5jnstt:1ad ()f cross,..staffing them with a single crew.
The Department should also evaluate, and/orexpetiment with alternate response
Protocols ()n' the 'short-term untjlindependentstaffing ofa truck can' be, realized.
2. Relocate. Station 2 s6uthwardil1the\lic:inity of the intersection of 57th and Mt Vernon to
"enable mar!? ofiMe City to bewitbin response>time objectives as development in the
areaprogresses.25
3. Once Station 2 is relocated, move the quinHromStation2 to Station 3 to keep itcloser
to areas of higher community risk.
25 See Appendix c- Response TiITlf:J Thresho(ds and Triggers.
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endix A:
Fire departments need a balance of three basic resources to successfully carry out their
emergency mission - people, equipment, and ,facilities. Becausefirefighting is. an 'extremely
physicalplJrsuit, the adequacyofpersonl1el resources is a primary concern. Butno matter how
competentthefirefightersare, thedepartmentwili fail to achieve its mission if it lacks sufficient
strategic loc;ationsand adequate apparatus distributed in. an efficient manner.
FacUities
There are a lot of questions facil1g a department,. that has outgrown its 'facilities, .and the
solutions are often more cornplicatedthan simply buying a fleet of new Jireapparatus. Fire
stations themselves ,are complicat(3d.' enougbeYen without thecpnsiderations of staffing and
equipping them for long range utilization. There are basic issues that each fire station has to
address. Among these are distribution to account for the department's responsestancjarcj and
adequate space for the effectiye,.safe, anci sec;;ure housing of personnel, apparatus, and
equipment. Facility distribution,staffing,andequippingare always a".balanceofacity'sfire
protection goals and the ability tofund those goals.
Consideration should be given to the a~ility' of the f(:icilities tosupportdepactment' goals,
including standards of cover asitmay existtociay, and to provide for that which is project(3d into
the future. The primary functions .thatshOLlldtake place Within.the fire station environment
should be closely examined. Adequate,~fficlentspace for all functions should be provided to
include:
. Housing and maintaining apparatus and equipment
· Residential living that is gender compatible foron-dutycrewmembers
· Administrativeoffice,functions
. Firefightertraining
· Firefighterfitness
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1 4,847 Poor - numerous maintenance Poor
issues
2 1961 5;000 Fair - numerous maintenance Fair
issues
3 1971 5,749 Good - well maintained Good
4 1973 5,917 Fair- numerous maintenance Fair
issues
5 2005 10,000 Excellent - well maintained Excellent
This section deals only with analysis of current facilities; However, ESei is recommending
development of a full long-range facilities management plan,as well as speCific plans to
address current problems. Suchan approach would eliminate potential redundancy, either now
or inthe future, in the deployment and response ,of costly fire station facilities.
A long-range facilities management plan should include a variety of items, such as:
. Location, timing, and cost of any new facilities
. Identified long-term maintenance needs for existing facilities
. Ongoing fUnding plan
Recommendations
. Initiate efforts' to correct existing deficiencies, asindicated,and continue planned
remodeling.
. Develop and implement a long-range facilities management plan that considers future
apparatus and staffing' needs, mandates, and the possibility of relocation of Stations 2 and
4.
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Springfield Fire and Life Safety
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SDrinafield Fire and Life Safety
Station No. 1
Built in 1980, this 4,847 square foot
facility consists of two apparatus bays.
This station houses an engine, medic unit
and reserve medic unit. This facility is
undergoing an extensive remodel and
renovation. Any concerns related to
maintenance, public access, staff
facilities, safety, and efficiency will need
to be addressed after the remodel is
complete.
Desian:
Specific problems, concerns or features
with this facility can be classified into the
following seven categories:
This station is aesthetically designed to fit in with the
surrounding community structures. It was not designed for the
current staffing level of five or for two-gender staffing as it lacks
individual slee in rooms.
Age and construction type has led to increasing maintenance
costs. Roof leaking issues are becoming very common, and
have cause significant damage. The heating and cooling
s stems are inefficient based on a Janua 2000 stud .26
Lack of storage is causing stored materials to encroach into the
living and apparatus bay areas. Turnouts were stored in the
a aratus ba area.
Some crowding was noted in the living area and apparatus
ba s. The exercise room is 0 en to the a aratus ba s.
Construction:
Safety:
Environment:
Code Compliance:
Building does not appear to have had any ADA upgrades.
The remodel should address all staffing concerns. The station is
e ui ed with a backu enerator.
While functional, difficulty exists in getting the apparatus on the
busy highway. Storage and living space are at a critical point
and should be addressed in the remodel. The station currently
does not meet toda 's standards.
Staff Facilities:
Efficiencv:
26 Springfield Fire and Life Safety Rough Draft Space Needs Study by Paul L. Bentley Architect, Jan.
2000.
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Sorinafield Fire and Life Safety
Station No. 2
Built in 1961 and remodeled in 1999, this
5,000 square foot facility consists of two drive-
through type apparatus bay. This station is
quarters for one quint, one interface engine
and one tender. Station No. 2 is an out-of-date
facility. Evidence of crowding exists in the
living area and apparatus bay. This station is in
fair condition. There are major concerns
related to maintenance, street access, staff
facilities, safety, and efficiency.
. Desian:
Specific problems, concerns or features with
this facility can be classified into the following
seven categories:
This station is aesthetically designed to fit in with the
surrounding community structures. It is designed for two-
gender staffing; however has no room for growth. Station is
equipped with gender-specific amenities.
Age and construction type has led to increasing maintenance
costs. It was remodeled within the last few years to
accommodate the current staffing level. The kitchen area is
grossly under sized for its current use.
Lack of storage is causing stored materials to encroach into
the living and apparatus bay areas. Many trip and collision
hazards are present. Tumouts are stored in the apparatus
bay area. Flammable and combustible liquids are stored
properly. The station is not equipped with a commercial type
range. The station is equipped with an 85 KW backup
generator. Access from the station is onto a five lane
boulevard constitutes a hazard both in egress and ingress to
the station.
Extensive crowding is noted throughout the entire station. No
sump system exists so apparatus is washed on the aprons
and the waste water in not recovered. The station has been
retro-fitted with a waste water recovery system Although
equipped with an automatic exhaust system, not all vehicles
are connected to the system.
Building is not fully ADA compliant; and appears to not be in
compliance with fire and life safety codes.
This facility has sufficient office space for the assigned
officers; however, there is inadequate space for training and
company drills. Exercise area is very limited
While minimally functional, this station is not a positive
environment for the staff. Storage and living space is at a
critical point. Station does not meet today's standards.
. Construction:
. Safety:
. Environment:
. Code Compliance:
. Staff Facilities:
. Efficiencv:
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Springfield Fire and Life Safety
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Sprinafield Fire and Life Safety
Station No. 3
, Built in 1971 and remodeled in 1986. This
8,579 square foot facility is quarter for an
engine, two medic units, and battalion chief.
Additionally, this station houses the training
section. It consists of two drive-thru apparatus
bays, however not used as such. This station
is in good condition. There are minimal
concerns related to maintenance, public
access, staff facilities, safety, and efficiency.
Specific problems with this facility can be
classified into the following seven categories:
. Design:
This station is aesthetically designed to fit in with the
surrounding community structures. It is not designed for two-
gender staffing, and lacks individual sleeping rooms. Station
is not equipped with gender-specific amenities.
Age and construction type has led to minimal increases in
maintenance costs. It was not designed to accommodate the
current staffing level. The kitchen area is under sized for its
current use.
Turnouts are stored in the apparatus bay area. The station is
equipped with a residential type range, and does not have an
adequate hood / vent system. The station is equipped with
an 85 KW backup generator. 90% of the facility has an
automatic sprinkler system.
The station has been retro fitted with a waste water recovery
system. Equipped with an automatic exhaust system fo
vehicles.
Building is not fully ADA compliant; and appears to not be in
compliance with fire and life safety codes.
This facility has sufficient office space for the assigned
officers. There is limited space for training and company
drills. No gender specific facilities are present; and the dorm
is co-ed. With the additional training section personnel, meal
and break accommodations are very limited.
Kitchen is small for the current staffing level. The front entry
may be very confusing to public.
. Construction:
. Safety:
. Environment:
. Code Compliance:
. Staff Facilities:
. Efficiencv:
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Sorinafield Fire and Life Safety
_-==-= Station No.4
Built in 1973; this 5,917 square foot facility
, consists of two drive-thru apparatus bays.
This station is quarters for an engine,
reserve engine, and rescue boat. This
station is in fair condition. There are
concerns related to maintenance, bay
access, staff facilities, safety, and
efficiency.
Specific problems with this facility can be
classified into the following seven
categories:
. Desian:
This station is aesthetically designed to fit in with the
surrounding community structures. It is not designed for two-
gender staffing, and lacks individual sleeping rooms.
Age and construction type has led to increasing maintenance
costs. It was not designed to accommodate the current
staffing level. The living quarter and kitchen areas are unde
sized for its current use. The entire structure shows signs 0
excessive usage and wear.
Turnouts are stored in the apparatus bay area. The station is
equipped with a residential type range, and does not have an
adequate hood / vent system. The station is equipped with a
backup generator. 90% of the facility has a residential type
automatic sprinkler system. '
The facility is not equipped with a waste water recovery
system. The stations is equipped with an automatic exhaust
system for vehicles.
Building is not fully ADA compliant; and appears to not be in
compliance with fire and life safety codes.
This facility has sufficient office space for the assigned
officers; however, there is inadequate space for training and
company drills. No gender specific facilities are present; and
the dorm is co-ed. The exercise equipment is stored and
used the dorm area
Uving/kitchen area is small for the current staffing level.
Because for the current vehicle assignment only one bay is
used as drive through. Station does not meet today's
standards.
. Construction:
. Safety:
. Environment:
. Code Compliance:
. Staff Facilities:
. Efficiencv:
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Sorinafield Fire and Life Safety
Station No.5
Built in 1997, this very modern 10,000 square
foot facility consists of three drive-thru type
apparatus bays, with only one being used as
drive-thru. The station blends nicely with the
surrounding community. This station is
quarters for an engine. ladder, heavy rescue.
medic unit, and reserve medic unit. Also
located at this station are the hazmat cargo
trailer and technical rescue trailer. This station
is in excellent condition. There are no
concerns related to maintenance, bay access,
staff facilities, safety. and efficiency.
Specific problems with this facility can be
classified into the following seven categories:
. Desian:
This station is aesthetically designed to fit with in the
surrounding community structures. It is designed for two-
gender staffing, and has separate dorms for sleeping. This
building was designed as a modern fire station and is
adequately designed to accommodate the current staffing
level
Sidewalls are of Driveit-type construction. Efficient forced ai
heat in bays. A generously proportioned building for the call
volume and size of the staff. It was well designed to
accommodate the current staffing level.
Fire detection and sprinkler system installed. Automatic doo
stops. Auxiliary generator powers the entire building and is
fueled by diesel. Turnout are stored in the apparatus bay
area which is not the recommended standard. The station is
equipped with a commercial range, but does not have fuel
shut off in a central location or a commercial type exhaust
hood.
No problems noted. EqUipped with an automatic exhaust
system for vehicles. The station is equipped with a waste
water recovery system.
No problems noted. Building is ADA compliant.
Adequate storage spaces. There is plenty of room to work
around apparatus and work on small equipment. Station is
well maintained and clean.
Station appears to be well disigned.
. Construction:
. Safety:
. Environment:
. Code Comoliance:
. Staff Facilities:
. Efficiencv:
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Apparatus I
Pump Tank Min. Meets I
Unit Vehicle Year Condition Remarks
GPM Size Staff NFPA
E-811 1999 Excellent 1250 750 3 Yes Well equipped, no I
problems noted
M-819 2006 Excellent N/A N/A 2 Yes Well equipped, no I
problems noted
I
M-829 1996 Good N/A N/A 0 Yes Well equipped, no
problems noted I
L-824 2001 Excellent 2000 500 3 Yes Well equipped, no I
problems noted
E-821 1997 Good 1250 750 0 Yes Well Equipped, I
Interface Engine
(4WD)
T -826 1998 Excellent 1000 2500 0 Yes Well equipped, no I
problems noted
E-831 2004 Excellent 1250 750 3 Yes Well equipped, no I
problems noted
I
M-839 2001 Good N/A N/A 2 Yes Well equipped,
high mileage I
11II
M-849 2001 Good N/A N/A 0 Yes Well equipped, I
high mileage
C-803 . 2006 Excellent N/A N/A N/A Well equipped, no I
problems noted
E-841 2004 Excellent 1250 750 3 Yes Well equipped, no I
problems noted
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I Pump Tank Min. Meets
Unit Vehicle Year Condition Remarks
GPM Size Staff NFPA
I E-842 IiIII 1989 Good 1500 750 0 Yes Well equipped,
high mileage
I BT-847 2000 Excellent N/A N/A 0 N/A
Rescue Jet Boat
I IIiiI
L-854 2002 Excellent 1500 150 3 Yes Well equipped, no
I problems noted
III
' - Well equipped, no
1\ E-851 1995 Excellent 1250 750 0 Yes
problems noted
I R-858 . 1997 Excellent N/A N/A 0 N/A Well equipped, no
problems noted
II M-859 2005 Excellent N/A N/A 2 Yes Well equipped, no
problems noted
I M-869 1995 Good N/A N/A 0 Yes Well equipped,
high mileage
I Not available
E-812 for inspection, 1981 Good 750 500 0 No Reserve Interface
I in storage Engine (4WD)
Not available
M-879 for inspection, 1994 Good N/A N/A 0 N/A Reserve Medic
I in storage Unit high mileage
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AQpendix B: Dynamics of Time in EmerQency Response
Most fires within buildings develop in a predictable fashion, unless influenced by highly
flammable material. Ignition, or the beginning of a fire, starts the sequence of events. It may
take some minutes or even hours from the time of ignition until flame is visible. This smoldering
stage is very dangerous, especially during times when people are sleeping, since large amounts
of highly toxic smoke may be generated during early phases.
Once flames do appear, the sequence continues rapidly. Combustible material adjacent to the
flame heats and ignites which in turn heats and ignites other adjacent materials if sufficient
oxygen is present. As the objects burn, heated gases accumulate at the ceiling of the room.
Some of the gases are flammable and highly toxic.
The spread of the fire continues quickly. Soon the flammable gases at the ceiling reach ignition
temperature. At that point, an event termed flashover takes place; the gases ignite, which in turn
ignites everything in the room. Once flashover occurs, damage caused by the fire is significant
and the environment within the room can no longer support human life.
Flashover usually happens about five to eight minutes from the appearance of flame in typically
furnished and ventilated buildings. Since flashover has such a dramatic influence on the
outcome of a fire event, the goal of any fire agency is to apply water to a fire before flashover
takes place.
Perhaps as important as preventing flashover is the need to control a fire before it does damage
to the structural framing of a building. Materials used to construct buildings today are often less
fire resistive than the heavy structural skeletons of older frame buildings. Roof trusses and floor
joists are commonly made with lighter materials more easily weakened by the effects of fire.
Light weight roof trusses fail after five to seven minutes of direct flame impingement. Plywood 1-
beam joists can fail after as little as three minutes of flame contact. This creates a very
dangerous environment for firefighters.
In addition, the contents of buildings today have a much greater potential for heat production
than in the past. The widespread use of plastics in furnishings and other building contents
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rapidly accelerate fire spread and increase the amount of water needed to effectively control a
fire. All of these factors make the need for early application of water essential to a successful
fire outcome.
A number of things must happen quickly to make it possible to achieve fire suppression prior to
flashover. Figure 63 below illustrates this sequence of events.
Figure 63: Fire Growth vs. Reflex Time
!
::J
....
~
CD
c..
E
~
~\ashove..
Time
D.=J Repo1 Dispatchl Turnout . Respond
Reflex Time
The reflex time continuum consists of six steps, beginning with ignition and concluding with the
application of (usually) water. The time required for each of the six components varies. The
policies and practices of the fire department directly influence four of the steps, but two are only
indirectly manageable. The six parts of the continuum are:
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1. Detection: The detection of a fire may occur immediately if someone happens to be
present or if an automatic system is functioning. Otherwise, detection may be delayed,
sometimes for a considerable period.
2. Report: Today most fires are reported by telephone to the 9-1-1 center. Call takers must
quickly elicit accurate information about the nature and location of the fire from persons
who are apt to be excited. A citizen well trained in how to report emergencies can reduce
the time required for this phase.
3. Dispatch: The dispatcher must identify the correct fire units, subsequently dispatch
them to the emergency, and continue to update information about the emergency while
the units respond. This step offers a number of technological opportunities to speed the
process including computer aided dispatch and global positioning systems.
4. Turnout: Firefighters must don firefighting equipment, assemble on the response
vehicle, and begin travel to the fire. Good training and proper fire station design can
minimize the time required for this step.
5. Response: This is potentially the longest phase of the continuum. The distance between
the fire station and the location of the emergency influences reflex time the most. The
quality and connectivity of streets, traffic, driver training, geography, and environmental
conditions are also a factor.
6. Set up: Last, once firefighters arrive on the scene of a fire emergency, fire apparatus are
positioned, hose lines stretched out, additional equipment assembled, and certain
preliminary tasks performed (such as rescue) before entry is made to the structure and
water is applied to the fire.
As is apparent by this description of the sequence of events, application of water in time to
prevent flashover is a serious challenge for any fire department. It is critical, though, as studies
of historical fire loss data can demonstrate.
The National Fire Protection Association studied data from residential structures occurring
between 1994 and 1998 in order to analytically quantify the relationship between the growth of a
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fire beyond the room of origin and losses in life and property. As indicated in Figure 64 below,
fires contained to the room of origin (typically extinguished prior to or immediately following
flashover) had significantly lower rates of death, injury, and property loss when compared to
fires that had an opportunity to spread beyond the room of origin (typically extinguished post-
flashover). Incidents in which a fire spreads beyond the room where it originates are likely to
experience six times the amount of property loss and have almost a nine times greater chance
of resulting in a fatality.
Fi ure 64: National Data - Fire Growth to Life and Pro e Loss
Fire Extension in Residential Structure Fires 1994-1998
Rates Per 1,000 Fires
Civilian Civilian Dollar Loss
Extension Deaths Injuries Per Fire
Confined to room of ori in 2.32 35.19 $3,385
Be ond room of ori in; confined to floor of ori in 19.68 96.86 $22,720
Be ond floor of origin 26.54 63.48 $31,912
.Data from NFPA Annual Fire Experience Survey and USFA National Incident Reporting System
Emergency Medical Event Sequence
Cardiac arrest is the most significant life threatening medical event. A victim of cardiac arrest
has no heartbeat or breathing and has mere minutes in which to receive definitive lifesaving
care if there is to be any hope for resuscitation. While it is common to associate cardiac arrest
with heart attack, it is important to remember that cardiac arrest can result from many other
medical emergencies such as electrocution, drowning, hypothermia, drug overdoses, blows to
the chest, and a variety of breathing difficulties.
Recently, the American Heart Association (AHA) issued a new set of cardiopulmonary
resuscitation guidelines designed to streamline emergency procedures for cardiac arrest
victims, and to increase the likelihood of survival. The AHA guidelines include new goals for the
application of cardiac defibrillation to cardiac arrest victims.
Cardiac arrest survival chances fall by seven to ten percent for every minute between collapse
and defibrillation. Consequently, the AHA now recommends cardiac defibrillation within five
minutes of cardiac arrest.
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As with fires, the sequence of events that lead to emergency cardiac care can be visually
shown, as in the following Figure 65.
Figure 65: Cardiac Arrest Event Sequence
Time CPR Started vs. Probability of Recovery from
Cardiac Arrest
S ...portl...patch I Tu,noutl "'spon~ -~
100%
II) 80%
01
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II) 60%
u
"-
II)
a..
'i 40%
>
.~
:J
U) 20%
0%-
1 2 3 4M' 5 6 7 8 9
Inutes
The percentage of opportunity for recovery from cardiac arrest drops quickly as time
progresses. The stages of medical response are very similar to the components described for a
fire response. Recent research stresses the importance of rapid cardiac defibrillation and
administration of certain drugs as a means of improving the opportunity for successful
resuscitation and survival. An Oregon fire department recently studied the effect of time on
cardiac arrest resuscitation and found that nearly all of their saves were within one and one-half
miles of a fire station, underscoring the importance of quick response.
People, Tools, and Time
Time matters a great deal in the achievement of an effective outcome to an emergency event.
Time, however, isn't the only factor. Delivering sufficient numbers of properly trained,
appropriately equipped, personnel within the critical time period completes the equation.
For medical emergencies this can vary based on the nature of the emergency. Many medical
emergencies are not time critical. However, for serious trauma, cardiac arrest or conditions that
may lead to cardiac arrest, response time is very critical.
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Equally critical is delivering enough personnel to the scene to perform all of the concurrent tasks
required to deliver quality emergency care. For a cardiac arrest this can be up to six personnel;
two to perform CPR, two to set up and operate advanced medical equipment, one to record the
actions taken by emergency care workers, and one to direct patient care.
Thus, for a medical emergency, the real test of performance is the time it takes to provide the
personnel and equipment needed to deal effectively with the patient's condition, not necessarily
the time it takes for the first person to arrive.
Fire emergencies are even more resource critical. Again, the true test of performance is the time
it takes to deliver sufficient personnel to initiate application of water on the fire. This is the only
practical method to reverse the continuing internal temperature increases and ultimately prevent
flashover. The arrival of one person with a portable radio does not provide fire intervention
capability and should not be counted as arrival by the fire department.
In order to legally enter a building to conduct interior firefighting operations, at least four
personnel must be on scene. The initial arrival of effective resources should be measured at the
point in time when at least four personnel, properly trained and equipped, have assembled at
the fire.
Emergency service agencies should have clearly defined response performance objectives
established to allow evaluation of capability and service delivery. An organization's performance
objectives should clearly state both the current and desired emergency service capabilities in
very measurable terms. For emergency response, performance objectives should define
response performance using both time and resource criteria. For example:
. Provide for the arrival of adequate resources to initiate basic emergency medical
services at the scene of any medical emergency within "X" minutes following dispatch,
90% of the time.
. Provide for the arrival of adequate resources to initiate interior fire suppression
operations at the scene of any fire within "X" minutes following dispatch, 90% of the time.
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With specific ,performance criteria a fire department can develop deployment methodologies to
achieve desired levels of performance, and can quickly identify when conditions in the
environment degrade performance.
NFPA 1710
The National Fire protection Association (NFPA) has issued a response performance standard
for~lIor mostly care~r staffed fire departments. This standard, among other things, identifies a
target response time performance Objective for fire depa.rtments and a targetstaffihg standard
forstructurefires.Tl10ugh nota legalmanda~e; NFPA1710 does provide a useful benchmark
against which. to. measure the fire department's perfo.rmance,
NFPA '1710 contains time performancestl:mdards for structure fire response as well as
emergencY-medical response, Ea.ch WiUbediscussed individually.
NFPA 1710 recommends tha.tthe first company arrive at the scene of a structure fire within five
minutesofdispatch,90percent of the time.NFPA uses,theaOth percentile rather than ~verage,
This allows anevr:lIuation ofadep~rtment's performance on the vast majority of its incidents.
The standard 'establishes that a response company consists. of four personnel. The standard
does not require that all four be on the same vehicle, but does expectthat the four will operate
as a single functioning unit once o.n scene. The NFPA1710 responSe time standard also
requires that aUfour pensonnel pe on scene within the reco.mmended five minutes, 90 percent of
the time.
There is ano.tl1errfl~So.n ~he arrivaloffquf personnel is critical fQr ~tructure fires. As mentioned
earlier, current safety regulations require that beforepersonhelcan enter a building to
extinguish afire atleast two personnel must bean scene ,and .assignedto conduct search and
rescue incase the fire a~ack crew becomes trapped. Thisjs referredto as the twerin, two. out
rule. The only exception to this regulation is If it is knoWn that victims trapped are inside the
building;
Given $FLS's~ypical staffing of engines, the time it takes for the.secondunit to arrive bec;on1es
very importanttoacl1ievement ofthe.NFPA stc:mdard. If additional,heJpisa considerabJeamount
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Springfield Fire al1d, Life Safety
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of time away the fire will continue to grow rapidly contribllting to significantly more ciamage to
the. property.
Finally, the NFPA standard calls for the arrival of the entire initial assignment (sufficient
apparatus and personnel to effectively combat a fire based on its level of risk) within nine
minutes of dispatch,~O percent of the time. This is to ensure thatenpughpeople and equipment
arrive $oonenough lobe effective incontrol/ing afire before substantial damage occurs.
NFPA 1710 describes the following performance as meeting the structure fire response criteria
of the standard:
. Turnout time within one minute, 90% of the time
. Arrival of the first "company" within five minutesofWspatch, 90% of the time, or
. Arrivalofthe entireinifial response assignment (all units assigned to the call) within nine
minutes of dispatch; 90% of the time
There are three time standards within the NFPA1710standard for emergency medical
responses. They are:
. Turnout time within ,one minute, 90% of the time
" Arrivalof;:lunit With firstresponder orhigher level of capability (basic life support) within
five minutes of dispatch, 90% ofthe time
. Arrival of an advanced life support unit, where this service is provided by the fire
department" within nine minutes of dispatch, 90% of the time
,~Eme" l1,yen"cy &, erokes
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8.Qpendix C:Res~onse Time Thresholds and TriR~ers
Introduction
When a community creates afire department and bllilds its first fire station, a response time
criterion is USW3/ly established. This response time anticipates that it applies t01 00 percent of
the area covered by the boundaries ofthat firestatiofl. This is especially true when there is only
one fire statipn and asmaH area to coyer. As the' community grows away from that station in
incremental steps, the expectation is that the original fire station Will still provide adequate
coverage.
However, that expectation is fraught with problems. In the simplest of terms, the total area
coveredt>y a fire department mayor may not be hi,ghly developed initially; and even if a crew
from the fire station responds, it may not dosoin a timely manner. Most fire c:lepartments begin
as totally volunteer. They usually operate withthis~taffing pattern for'economic reasons, When
population and service area inCreases, there. ,is often pressure to add full time staff and to
consic;lE}r adding additional stations.
There are many variations on this theme;' Older, ,established ' cities tenc:led to be denser and
smallerifl dimension, but they oftenanl1exe,dnewareas. Newer communities may .incluqe a
much larger area than the first fire station can coVer. Urbahsprawl, which is a current public
policy discussion, has resulted in the timing of adding new fire stations and staffing being a topic
of concern.
Station Siting
Usually when a fire departmel1tconstnJc~sitsfirst fire station, the values at risk and hazards to
be, protected are within a close driving distance. In effect, the first fire station ina community isa
centroid. Thal;s, the I ocaUi re station is thE}qenterof thE} response capacity ofthe jurisdiction.
Earlier in the 20th centUry, fire station coverage was often characterized on maps by drawing a
circle with an 1.5 mile radius around the station. This approachwas sometimes Llsedto describe
the area .of coverage, However,fireapparatlls resp()nse is dependent on roads that extend at
angles and distances that do not result in a circle being the true description of the area
coverage. Not only that, but fire stations cannot be located exactly three miles apart and have
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two overlapped circles. When they are placed closer than the 1.5 radius, there is not only
ov~rlap, but also gaps where there is no coverage.
Lat~r, the circle was r~placed by diamond-shaped templates that could be overlaid over the
stCitionand rotated to estimate the relative advantage of road distances. The contemporary
method used to evaluate fire $tationsis based on using the actual road-network in computer
models. This system uses time and distance to 'create a network that more closely represents
how far a company can respond from its fire station, within an adopted time standard.
From the time the first station is built,an expectation is established thaUhe facility Can and will
provide a timely response to calls for service in the area, surrounding that facility; The station
provides a response to a given area within a reasonable time ina pattern that essentially is an
oV~rlay on the, streets and highways that radiate outward from the station. The street-network
and the topographical attributes of the community create a dynamic segmentation allowing fire
professionals to reasonably predict which areas can be covered and those that will not be
covered within a specific time frame,even before any incidents actually occur. The preferred tool
for conducting this type of analysis intoday's world is geographical information systems (GIS)
software.
There are many infrastructure components 'that affect the location allocation concept. Among
these are road ,and highways networks, impedance factors such as traffic patterns and
processes (stoplights and signs), and turn impedance, Le.: roadbed configuration and elevation
impedance (slope). It is axiomatIc that there is an inverse distance-weighting factotthat results
in longer response times to areas further away from the station. In short, the further away from
the location of an incident arid the higher the impedance for response, the less effective any
~pecificr~sourceisindealing withth~ initial stages of an ~mergency event.
The use of th~conCeptof travel time itself is not exactly .new. How~ver, for many years the
basic"criterion was road mil~ageonly. The standard that was normally' applied Was that .afire
station was expected to be able to reach any incident within 1.5 miles of the station within five-
minutes of driving time. Time was a secondary consideration. That standard was based upon
da~a from the 1940s with respect to road conditions and traffic patterns. A lot has changed since
then. For decades, the Insurance Services Office (ISO) has based fire station locationsona
1.5-mile separation. In general, this has served as rUff:) of thumb, but it does not deal with the.
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vagaries of physical response (such as geography, transportation, andweather). Secondarily, it
does not place any emphasis on response needed for emergency medical service (EMS)
incidents, such as basic life support (BLS) or advanced life support (ALS).
The concept of using actual' travel' time today is based on a more accurate representation of the
level ofsetviceforan all-risk approach. It is more perfbrm~nce-based. Today most fire agencies
seta time standard that includes three elements, two of which were missing frOm the strict use
of mileagefor.station location; specifically, alarm processing time and turnout time. The actual
time of road traVf~1 has often been used to set the communities expectation of performal1ce.
Using this approach, stations are seldom located ioa Iinearfashiol1. This concept is based on
the time intervals identified in the Stal1dards of Response Coverage, section of the Self
Assessment Manual published by the Comrnissionon Fire Accreciitationlntemational. This
process leads to the development of a stanqardofresponse cover, ora time and leVel of
staffing designed to control an emergency at a minimum level of loss. The process is hoWever,
a policy choIce based on risk and localconditions.
The ba.sic perforrnancestandards fortirne goals are based on th.e rapid speed of firegroVltthand
consequences of emergency meciical situatiQns over.a shorttil11e frame. It has been determined
that both fires and medical el11ergencies can gain a foothold that result in excessive losse's
when response times are excessive. The most common benchmark time standard,S used today
are:
. Alarm processing time - 60 seconds
.. Turnout time - 60 secOnds
.. Traveltime
o Fire response - five minutes, 90 pergent of the time
o AL$ response - eight minutes, 90percent of the time
The cOntemporary method of measuring perfOrmance looks at response time as a level of
service indicator. This is accomplishecithrougha two-foldprocess.TheJir~t step measures
response time performance on actual emergencies; the second step monitors the system to
determine when the system fail,S to achieve the performance goals.
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Response time criterion should onlY,be applied to calls that are emergency, calls. When
incidents are analyzed,the data should be reviewed to 'assure that non~emergency caUsare not
used when calculating performance. There are many calls for service that fire departments log
as incidents that are non-threatening scenarios and the responding companies will handle them
on anas..,.needed basis, To include these times in the analysis of emergency services tends to
skew the outcome, leading toa false service ihdicator.
Response Failure
To understand' when response coverage failure occurs, we must first define what is being
measured and how it will be measured. For example1a basic question is whether to measure
protection of the geographic area or to base it on the occurrence ofactualincidents~ Another
question is whether to measure performance first-due station area or department wide. It is
generally economically impracticalto cover10Q percent of the Jurisdictional territory equally.
Generally, fire protection practitioners try to position stations to cover 90 percent oftheground
in each first-'due area, to provide overlap for concentration, redundancy for multiple calls,and for
equity of access for customer service, Response time measurements based on actual call
loading are commonly set at80 to 90 percent of the calls within the first-due and concentration,
areas.
Once a performance target is set, the next question is to determine how many caHsoutside the
targets is acceptable, Is it acceptable, for example, if historical measurements show an. 85
percent compliance rate with a 90. percent target, but the next five percent of calls are covered
in just one additional minute? If the five percent deficiency arnountsto only 25 calls (out of 500)
the gap mayor may not be significant. What if the deficiency amounted to 250 calls (out of
5o.OO)?
11 should be noted thaUhis criterion approachaUows for ten percent of the calls to be beyond a
five minutes travel time over a given reporting period. This provides flexibility in theassessmel1t
of 'coverage to cope with anomalies such as e>dra-ordinary response conditions such
responding from out of district, odor delays c(;lused by simultaneous alarms.
The first indication ora problem il1providing service is when a .numberof alarms that exceed the
performance standard are documented. This mayor may not be function of new growth. Itcould
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be the,result of in-fill that causes a higher number ofalatms fQrthe qOl11pany than it can~ervice.
This is especially true when alarms occur simultaneously.
Moreover, when new areas develop that extend travel'times they do not automatically become
the source of new alarms. In fact, newconstrUctibnoften has a peribdof severalyearsbefbre
addin9 to fire $ervi<::e d~mand, The same Is not necessarily true from the perspeptiv~ of
emergency medical service.
When isa New Station Needed?
The decision many communities face is determining, when additional stations are required to
meet adopted response time goa.ls. Th~ problem comes in finciing aqlJantifiabl~threshold to
determine that point for each specific situation because it variesfrbm community tocbmmuniW
and even within a specific jurisdiction. The overall 'answer is part analytical,partprofeS$ional
Judgment and part financial. The literature of the fire service today contains "little definitive'
guidance on, how this, should beacqompHshed.
Threegeheralsteps can be identified.
. Idemtifyin{Jareas with rnininiUmcoverase
· Identifying feasible locations fora neWfaeility
lit Evaluating those locations usin{J sp~cificcriterion
The criterion offered in this document is based upon a growing body of knowledge aimed at
quantifying this process. It is unfortunate that there is no universally acceptable algorithm. The
fire protection planning process does allow for an evaluation ofpotentiallossasareslJltof
deteriorating response times.
One form of measurement is to assess .the road and transportation network to" ascertain, the
percentage of road mileage theoretically covered Within a set time criterion; Thisisaone using
computer-based modeling that creates a polygon describing .,' the areas, ofc;o'{erage~ Areas
outside the polygons represent areas where calculated response tirneis notadequate.
As growth and development extends beyond the range of travel time of orlestation, the
percentage of c(3l1s that exceedtheperformanqe requirem~nt b~gins to increase. It should be
noted that growth; in and of itself, does not c,reat~ an instantaneous, deman,., d., ' Newc, onst,ruction
. . .,.. .. ... ..
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has the advantage of better codes, a higher level of owner interest,andlimited deterioration of
fire-breeding c;onditions.
A more subtle differenc;e is the fact that community demand for medical services is almost from
day one of occupancy. Insh6rt. this means thatnew construction may plac;e more values and
lives at risk, but the demand for service will increase incrementally. When qemand for service
does begin, it will be based on two factors - nature of the occupancy and hazards that are
present.
Incident increase may first appear asa change in the performance of an existing company in
the annual analysis of emergency calls. For example, if a station has 1,000 alarms and agO
percent compliance rate with the response standard, there Would be about 100 alarms per year
that werebeYQnd the goaL This would be the baseline for existing response performance. lfin
the following year, the number of alarms was 1,200 and percentage dropped t08S percent, the
statistics would be an indicator that the department was losing ground on response
performance. If the change ,in the number of alarms' haq merely increased because of 'more
calls ,in the same area and the response time percentage 'remained the same, the statistic;s'
would bean indi~ator the department had tl}ecapaCity to handle the increased load. (An
exception to, this rule occurs when a single company has such a high call volume that it cannot
handle its calls without cailqueuing.}.
When the alarm rate goes LJpand the performance goes down, the failure threshold may be
approaching. As stated earlier, an;alysis needs tobe performed on the deficiency to determine
hoW many of those incidents were handled in the first 60 seconds increment beyond the
performance time;
Based onactuCiI response time anCilysis, one threshold that needs to be considered is the
increase in alarms and the percent' of calls handled under the adopted criterion. Anything more
than a ten, percehtinc;reasein calls and a ten percent reduction in performance is ' a strong
signalto evaluate the level of service being provided,
In larger departments, most practitionersarefac;toring outnon~emergenc;y calls' and for actual
incidentperfotl11ance, only lookingaf core emergencies. The definition of core can be made
,ifi\,',' ,'.. Em, e"rg",e, nay, . ssm, U;es
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locally based art riskandlmportance to the community, but they care usually structure fires and
moderate to severe status EMS calls.
In general,lf morethcln one measure is slipping, an evaluation of all Standards of Cover factors,
along with the reason why the data issHpping, is required. A one-year snap-shot may not be
valid ifthe agency had a big storm event, a major wildland fire, and stacked a bunch of calls for
jLlst a single month or the year. What is ',almost always clear is that being slightly out Of the
response standard range does not necessarily trigger a new facility.
An historicaUncideht analysis approach does hot necessarily address what is actual/yat risk in
terms of Hfeand property. As new buildings are constructed different types of firf:) and life safety
risks develop they maydeserveequify in protection. New'properties are. usually safer than the
older part of the community because they are constructed to a higher sfa ncl;3 rd. Modern
mapping technology can assist in identifying community risk and values ,independent from
historicalincideht analysis.
One threshold that must be carefully monitored is the revenue stream that accrues from
development. 'One functionof'government is,tocontrol,land'use and to create mechanisms for
collepting taxes. New property owners are paying taxes, fees, and permits with an expectation
for the level of service being provided. The tevehue stream should provide a threshold when
different "elements of future fire stations can be determined. As the revenue stream in an area
develops funds should become available for site' acquisition, treatment, and construction, This
may be a multi"'year process.
The threshold fotconstructionshould be to provide a hew fire station into any zC>l1einthe city or
jurisdiction that has more than 35 to 50 percent of its parcels developed. Some of the secondary
measures currently being used are 300 to 500 calls for service for any individUal fire company or
a service population of 10,000 to Justify a full-time Paid company: The. following <criteric)n grid
iIILJstrates a series of measures that may be useful deciding when a new firestati()n should, be
deployed within a city. Similar grids could be developed to help establish triggers for the
deployment ,of additional emergency equipment and personn.eL
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Figure 66: Criterion Table to Determine Woen aNew Sta~ionisNeeded
Maintain status
qUQ
Temporary
facilities and
minimal
staffing
Permanent
station needed
Permanent
statipn
essential
Enter focal
information
Risks 1.5 to 3.0
miles frqm existing
station
Risk locations
exceeding 4.0
miles from the
station
Outlying risk
locations
exceeding 5.0
miles from the 1 st
station
1st due company
Enter/ocal response
time
1st due company
Exceeds 5-minutes
travel time 10 percent
of the time, but never
exceeds 8 minutes.
1st due company
Exceeds 5~minutes
travel time20~25
percent of the time.
Some calls greater
than 8:00 Minutes.
1st due company
Exceeds 5-minutes
travel time 30 percent
of the time.
Some calls greater
than 10 minutes.
Enter existing.' Enter lac, al building'/ris, k.
out of area
calls inventory
More than 10
percent Of calls
are in adjacent
area,
More than 20-
25 percent of
cflllsarein
outlying area
More than 30
percent of calls
are in outlying
area
New area has 25
percent of SClme risk
distribution as in' initial
area
NeW area has 35
percent of same. risk
distributiol1 asio initial
area of coverage
New area has 50
percent of same risk
distribution as in initial
area
The decision process has to be placed into thecol'1text of staffing pattern decisions. It is not
uncommon to have a station constructed, and have the staffing pattern evolve over years from
one system to another. In the case of as tat ion under consideration, it should be anticipated that
a policy decision needs to be madewith respect to the staffing system to be used as soon as
possible. It is anticipated that.a completely volunteer system would notbe viable for this type of
facility. Conversely, a fully staffed paid company has a significant price tag to it A combination
staffing system would seem to be the most practicalfof the first five years of consideration.
These are the staffing configurations used 'in the matrices developed to describe thresholds and
triggers that shauldbeevaluated in the future..
It generaUytakes multiple elements of the standards of coverage to be out-of-balance along with
available economicresource$to justify an additional paid company or increasing staffing of one
ormorecompanies.
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AQpendix D: Financial Analvsis
Purpose
The purpose of this Appendix is to briefly review the SFLS budget and discuss the key elements
of the deployment system necessary to estimate the cost of potential future deployment
alternatives. The key elements include apparatus, command and support vehicles, personnel,
inflation, and stations.
Introduction
Financial management policies of the City of Springfield (City) are the responsibility of the
Springfield City Council and the City Manager's Office. The City finance department oversees
the financial processes and procedures of the City. The finance department consists of 12
employees and provides long range financial projections, cash and investment management,
debt administration, purchasing, accounts payable, accounts receivable, and payroll services for
the City as a whole.
The City uses fund accounting to ensure and demonstrate compliance with finance related legal
requirements. The City observes a fiscal year budgetary cycle beginning on July 1 of each year.
The Fire Chief submits a proposed fire department budget for inclusion and approval through
the City's annual budget preparation process.
The fire department is authorized to internally administer its adopted budget (with finance
department oversight) within the limits of individual line items. All purchasing must be in
accordance with City purchasing policies and rules. If purchasing is necessary outside of line
item accounts, submittals are made through the Fire Chief. The fire department also administers
three separate FireMed programs and performs ambulance billing services for 17 fire
departments.
Revenues and Expenditures
The overall fire department budget is generally divided into two broad categories - fire and life
safety services and ambulance services. Revenues are received from three general areas as
indicted in Figure 67. The ambulance system is funded through an Enterprise Fund. As
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indicated, non-tax revenues account for 36 percent of the overall fire department's revenues
source, of which 34 percent comes from ambulance system fees.
Figure 67: Fire Department Revenue Sources
Springfield Fire & Life Safety Revenue, 2006/07
Tax Revenues
8,985,560
64%
Review &
Inspection Fees
222,785
2%
Ambulance
System Fees
4,721,020
34%
Tax revenues are calculated based on the assessed value of the City of Springfield and three
contract service areas adjacent to the City; Glenwood Water District, Rainbow Water District
and the Willakenzie Rural Fire Protection District. While the exact formula varies slightly for
each contract area, the formulas are generally based on the percentage of assessed value in
each area to the total assessed value of the overall protection area.
Figure 68: Contract Service Area Revenue
Aaencv Contract Amount
Glenwood Water District $156,110
Rainbow Water District $881,995
Willakenzie Rural Fire Protection District $166,247
Total Contract Value $1,204,352
The overall operating budget of the fire department can be modeled using three general
classifications including personnel, material and services, and capital outlay as shown in Figure
69 below.
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Figure 69: Operating Budget Distribution
Springfield Fire & Life Safety Operating Budget, 2006/07
Personnel
11,515,133
82%
Material &
Services
2,214,230
16%
.I
Capital Outlay
326,139
2%
Personnel cost, which includes salaries, benefits, and overtime, dominate the operating budget
as is typical in urban fire and emergency medical systems. The labor intensive nature of fire and
emergency medical services drives this distribution of overall service delivery cost. The budget
includes allocations to reserve funds for the purchase of ambulances and some staff vehicles
but not for fire service apparatus (engines, aerials, medic units etc). The budget also includes
interdepartmental charges for services administered by other City departments such as risk
management, property/casualty insurance, claim administration and other general
administrative support service not otherwise included in the line item budget of the fire
department.
Calculating the Public Cost of Service
Determining the cost of fire and emergency medical service to a community is an important
element of the financial evaluation and planning process. By knowing the cost of the service as
it exists, and predicting the cost of that service after organizational changes are made,
alternative fire and EMS models may be more fairly judged.
To this end, a computer-driven baseline estimation of the SFLS service cost during fiscal year
2006/07 has been developed. This baseline is expressed as an equivalent tax rate in dollars per
$1,000 of assessed value. The estimate provides a scale by which to measure the status quo
against proposed system changes. The model projects cost based on jobs and programs.
Therefore, changes to personnel and/or programs that may affect the bottom line are able to be
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calculated more accurately. A comparison of the cost yields a means to evaluate the financial
affects of various alternatives.
The adaptation of a fire department budget to estimate public cost requires certain conventions
and assumptions. Specifically, the current budget of the agency is reformatted, often combining
line items expenditures of different governmental funds to reflect a total public service cost. The
process groups all expenses into three major classifications; personal services, materials and
services, and capital outlay. These classifications are subdivided to permit the tracking of a
program cost (such as fringe benefits, maintenance). All jobs are indexed in each department to
relevant compensation levels, and salary rates to reflect full annual full cost. In some instances,
as may be appropriate, an estimate is added to recognize the cost of municipal overhead
service that are not included in the specific fire department budget.
Non-tax revenues specific to the fire department (such as fees for service) are identified.
Revenue is corrected to allow for accumulation of cash, and the averaged expenditure of
contingencies, if any. The goal is to negate the effect of either cash accrual or expenditure to
show the true level of tax support required to maintain a given level of service. Adjusted
revenues are subtracted from expenditures to yield an estimate of the general operating tax
requirements. The resultant sum calculates the amount of public tax support required to sustain
the current given level of fire and emergency medical services regardless of the source of the
tax revenues.
It is important to emphasize that this analysis provides a snapshot estimate of the public tax
cost for the current budget year. There are many forces that may act to change that level in the
future including changes in law, revenue, politics, or contracts. This process uses current
revenue and appropriations to generate an estimate of the level of tax support required. This
analysis is not intended to predict actual or future actual tax rates.
This analysis of the fire department budget is detailed in Figure 70. The calculated tax support
rate, as indicated in the last line of the table, is $2.48. An obvious and significant benefit that
keeps the tax rate down is the high percentage of non-tax revenue generated by the ambulance
service and miscellaneous fire prevention activity fees.
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f" 70 M did B d t & T R t
Igure . o ee ulge ax ae
. Springfield Fire Safety
Expenses Amount
1. Salaries & Benefits $11,388,996
2. Materials & Services $2,214,230
3. Capital Outlav $326,139
4. Total Expenses $13,929,365
Revenue
5. Non-Tax Revenue $4,943,805
Calculated Tax Rate
6. Assessed Value $3,627,308,602
7. Modeled Budget $13,929,365
8. Minus Non-Tax Revenue $4,943,805
9. Calculated Tax Support $8,985,560
Equivalent Tax Rate $2.48
Population is another important component in the overall fire protection equation. The trouble
with comparing cost by jurisdictional population is that such numbers do not necessarily take
into account the transient population that moves into, out of, and through a community.
Fluctuations can vary widely by time of day, day of week or season. Figure 71 shows the 2005
population figures for the Springfield fire service area. Note that the table does not include the
population of the Ambulance Service Area outside the primary fire protection area where the
population is estimated to be another 20,000.
f" 71 2
Igure . 005 Population Estimates
Jurisdiction Population
Springfield City 56,370
Glenwood Water District 1,328
Rainbow Water District 5,214
Willakenzie Fire Protection District 1,938
Total Population of Service Area 64,850
With this disclaimer, Figure 72 illustrates the per capita cost of SFLS compares favorably with
other fire departments of similar population in the western United States.
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Springfield Fire and Life Safety
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Figure 72: Tax Cost per Capita
Comparison of SFLS Tax Cost per Capita
1
$160 ~
iC
$140 ,/'
,/
~
$120 ..( /'
$100 /'
$80
$60
$40 '
$20
$-
Typical Career Range
Springfield
Experience has shown that it is very common for the cost of fire protection to exceed $100 per
capita in urban settings, trending up over $150. The higher cost in urban areas is a function of
the level of sophistication required by the community (full career staff, paramedic services,
technical rescue services, and fully funded prevention programs). The per capita cost can be
very high in areas, unlike Springfield, where the EMS system is totally tax supported or there is
a very low ratio of residential population to community risk.
Apparatus Replacement and Funding
The number and types(s) of apparatus is determined by the number of stations, nature of
incidents and the number of administrative personnel who require transportation as part of their
job responsibilities. The requirement for specialized, technical apparatus, and/or reserve
apparatus is minimized by participation in the regional automatic aid system in which support
from neighboring agencies can be expected. Figure 73 lists the current emergency apparatus
inventory by station assignment. Note that certain specialty units are staffed by the regular
station staffing on an as needed basis. The non-staffed units are reserve and/or second out
units.
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b
Figure 73: Aooaratus Assignments IY Station
Station Apparatus Type Unit 10 Number Staffing
1 Engine 811 3
Medic Unit 819 2
Medic Unit 829 ---
2 Quint (Engine/Ladder) 824 3
Tender'2500 oal. 826 Cross- staffed
~ Interface Engine 821 Cross- Staffedm
3 Engine 831 3
Medic Unit 839 2
Medic Unit 849 ---
4d Engine 841 " 3
~ Reserve Engine 842 ---
5 Engine 851 3
Aerial 100ft. 854 Cross- staffed
Heavy Rescue 858 Cross- staffed
Medic Unit 859 2
Medic Unit 869 ---
The fire department and City prepared a proposed vehicle replacement and funding schedule
which includes emergency vehicles, ambulances and support staff vehicles in 2006. The plan
has not officially been adopted at this time. Ambulance replacement is accomplished on an
annual basis through the regular fire department budget process. Fire apparatus and support
staff vehicles are purchased through the City's capital replacement program on an as needed
basis. This process is acceptable as long as there is a sustained financial commitment to follow
a well established plan.
Figure 74 shows the life expectancy and average replacement cost for different types of
apparatus based on common industry averages. Many departments, based on their local
experience, use shorter life expectancy periods. Actual life expectancy and replacement cost
will depend on many factors including use, manufacture, maintenance, and vehicle features.
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Fi ure 74: A
A aratus T
Ambulance
Light Rescue Truck
Med Rescue Truck
Commercial Engine
Custom Engine
Tender
Ladder
Wildland (Type 4/5)
Quint (Engineffruck)
Squad
Command Vehicle
and Re lacement Cost
Re lacement Cost
$155,000
$125,000
$300,000
$275,000
$385,000
$200,000
$775,000
$100,000
$550,000
$410,000
$45,000
Figure 75 provides an estimate of the annual required funding to maintain the fire department's
current fleet of emergency apparatus. The annual fund contribution column represents the
straight line annual depreciation cost based on the current age, life expectancy and replacement
cost of each apparatus. The annual cost will be larger if shorter life expectancy periods are
used. The current cash requirement column represents the total incurred annual depreciation
through 2007. Note that this table does not include an allocation for support staff vehicles.
I ~ure : ~pparatus eplacement osts
REPLACEMENT ANNUAL FUND CURRENT CASH
UNIT YEAR COST CONTRIBUTIONS REQUIREMENTS
811 1999 $385,000 $25,667 $205,333
819 2006 $155,000 $15,500 $15,500
829 1996 $155,000 NA $155,000
824 2001 $550,000 $27,500 $165,000
826 1998 $200,000 $10,000 $90,000
821 1997 $275,000 $13,750 $137,500
831 2004 $385,000 $25,667 $77,000
839 2001 $155,000 $15,500 $93,000
849 2001 $155,000 $15,500 $93,000
803 2006 $45,000 $4,500 $4,500
841 2004 $385,000 $25,667 $77,000
842 1989 $385,000 NA $385,000
851 1995 $385,000 $25,667 $308,000
854 2002 $775,000 $31,000 $155,000
858 1997 $300,000 $15,000 $150,000
859 2005 $155,000 $15,500 $31,000
869 1996 $155,000 NA $155,000
TOTALS $5,000,000 $266,417 $2,296,833
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Springfield Fire and Life Safety
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Based on this analysis, the estimated annual contribution to fully fund the replacement of the fire
department's emergency apparatus is $266,417. The current cash requirement is $2,296,833.
The replacement of support staff vehicle will be in addition to these totals.
Incremental Resource Additions
An important element in evaluating future deployment options is estimating the startup and
ongoing incremental cost of adding new resources to the fire department.
Based on the current deployment, the analysis in this study and other factors that may develop
the City may wish to expand and/or strengthen its response capabilities in the future. Such
options could include:
1. Increased staffing on existing engines or trucks
2. Staffing of an existing engine/truck that is currently cross staffed
3. Addition of additional engines or trucks
4. Increased staffing during peak activity periods
5. Relocation of existing stations using existing apparatus and staffing
6. Addition of new stations with associated apparatus and staffing
Addina Additional Enaine or Truck Companies
One of the funds in the current 2006/07 fiscal year budget is a Local Option Levy27 which
includes the cost of operating one three-person engine company. It does not include the annual
replacement cost of the engine. Based on this information, the incremental cost of maintaining a
company (engine or truck) is $1,124,311. The annual cost of the apparatus would be estimated
from the apparatus tables provided above.
Another approach to estimating the incremental cost of adding resources is to determine the
incremental cost based on the calculated budget presented in Figure 70 above. The incremental
cost of this approach is about $120,000 higher. The difference is centered on how the number
of personnel, overtime, and benefits are modeled. Based on the modeled calculations, the ratio
is 1.19 to 1. The determination of needed staffing requires an evaluation of the actual number of
hours firefighters are scheduled to work minus the amount of leave time that must be covered
27 The first levy vote was Nov, 2002 with the levy running July 2003 - June 2007. The second levy vote
was Nov. 2006 with the levy running July 2007 - June 2011.
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by overtime. Figure 76 compares the cost of a single three-person company based on the
budgeted local option levy and the modeled calculated cost. The difference between the two
methods is just under one percent.
Addinq Additional Personnel
The following table shows the calculated model incremental cost of adding additional positions
in each of the emergency operations positions based on the current salary and benefits
schedules at this time. Future costs will be impacted by negotiated and/or mandated changes in
salary and benefit packages.
ure 77: Avera e Cost b Position
Sala Benefits
$80,292 $50,596
$76,884 $37,379
$68,785 $28,982
$68,868 $33,335
Total
$130,888
$114,263
$97,767
$102,203
Facilities
While this report does not identify the need for additional stations in the foreseeable future, it
does suggest the relocation of two stations (Stations 2 and 4). As noted in other sections of this
report, the cost of building a new relocated station may be significant, but it does not increase
ongoing operating costs in that additional apparatus and personnel are not required. Old
stations may be sold or, in some cases, used effectively for the storage of reserve fire apparatus
and/or logistical supplies.
Fire stations should be viewed not only as a garage for vehicles and housing for firefighters, but
as hubs from which community fire and life safety services are provided. There are numerous
national standards and regulations that require attention in the design of modern fire stations.
The National Fire Protection Association, Occupational Safety and Health, and the Department
of Homeland Security are three key reference sources. Consideration must also be given to the
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functional needs of administrative, living, training, equipment and supply storage, and the
parking of apparatus (including reserve and special purpose vehicles). In many communities,
meeting space is incorporated into the fire stations to serve the dual purpose of providing space
for training and meetings by neighborhood groups. Construction costs can vary widely
depending on size, location, style, and environmental considerations. Square foot costs can
reach as high as $250. The City has actively and continues to evaluate space requirements for
the fire department. 28 The reader is encouraged to review this structural and architectural study
as well as other ongoing processes.
Inflation
Inflation is another important consideration when forecasting long-term operational cost. For the
purposed of this study, ESCi used the consumer price index for all urban consumers (CPI-U)
during the period from 1997 through 2006 in the Western region as compiled by the U.S.
Department of Labor. Figure 78 summarizes the CPI-U during the last ten years and shows the
average rate of inflation for the area. Inflation averaged about 2.70 percent over the ten-year
period and only slightly less at 2.57 percent over the last five-year period. The cumulative affect
of these averages indicate that the cost of the current operating system will increase by inflation
alone between 62 and 66 percent by 2025.
Figure 78: CPI-U Trend, 1997-2006
CP/-U Trend: West Urban 1997 - 2006
4.00%
3.50%
3.00%
2.50%
2.00%
1.50%
~~""U-I'
1.00% . ", __'D." ...
-.- 5.Yr Avg
! 0.50% " ,
0.00%
1997 1998 1999 2000 2001 2002 2003 2004 2005 2006
28 Bentley, Paul L., Architect, AlA, P.C, <<A Rough Draft Space Needs Study for the Springfield Fire & Life
Safety Department", January 2000,
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