City of Medford Fire Rescue Oregon. Emergency Service Master Plan SW Parkway Ave. Suite 3 Wilsonville Oregon

Transcription

1 City of Medford Fire Rescue Oregon Emergency Service Master Plan SW Parkway Ave. Suite 3 Wilsonville Oregon

2 City of Medford Fire-Rescue Oregon Emergency Service Master Plan 2011 Prepared by: Joe Parrott Jack Snook

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4 Introduction The following report serves as the Medford Fire-Rescue Emergency Service Master Plan. It follows closely the Center for Fire Public Safety Excellence (CPSE) Standards of Coverage model that develops written procedures to determine the distribution and concentration of fixed and mobile resources of an organization. The purpose for completing such a document is to assist the agency in ensuring a safe and effective response force for fire suppression, emergency medical services, and specialty response situations in addition to homeland security issues. Creating an Emergency Service Master Plan document requires that a number of areas be researched, studied, and evaluated. The following report will begin with an overview of both the community and the agency. Following this overview, the plan will discuss areas such as risk assessment, critical task analysis, agency service level objectives, and distribution and concentration measures. The report will provide documentation of reliability studies and historical performance through charts and graphs. The report will conclude with policy and operational recommendations. In the preparation of this Emergency Services Master Plan, Emergency Services Consulting International (ESCI) reviewed earlier studies that had been completed on the Medford Fire- Rescue emergency response system. These include one completed in 1995 (Urban Planning Associates) and a follow-up study completed in 1996 (Cascade Management Services). In many ways the recommendations provided in this Emergency Services Master Plan are different from those offered in the prior studies. There are a number of reasons for this. ESCI conducts its review of system performance in a more holistic manner reviewing in detail system elements, organizational practices, and other factors that are contributing to current response performance. ESCI is able to offer solutions that may be less expensive or more effective to resolve system deficiencies. The technology available to evaluate current system performance and potential solutions provides far more detail than was available during the previous studies, particularly through the utilization of geographic information systems. This provides more accurate evaluation and the ability to explore a variety of options. i

5 Other technologies have developed over the years that also offer solutions to response performance that, again, may be less expensive than adding or relocating fire stations, or adding personnel. Finally, fire and emergency services best practices have evolved over time. The industry recognizes that response capability should be more robust in urban areas than in rural areas. Urban areas have a higher frequency of responses, greater levels of risk, and more significant potential community consequence than rural areas. Thus, response resources should be more concentrated within urban areas to serve this greater demand. ESCI extends its appreciation to the members of Medford Fire-Rescue, elected officials from the City of Medford and Medford Rural Fire Protection District No. 2, City of Medford officials, and all others who contributed to this plan. ii

6 Table of Contents Table of Figures... v Executive Summary... 1 Component A Description of Community Served... 7 Organization Overview... 7 Governance and Lines of Authority... 7 Organizational Finance... 7 Service Area Overview... 9 Component B Review of Services Provided...11 Services Provided...11 Assets and Resources...12 Fire Stations...12 Apparatus...13 Staffing Information...15 Organizational Structure...15 Administration and Support Staff...17 Emergency Services Staff...17 Current Service Delivery Objectives...22 Component C Review of the Community Expectations for Type and Level of Service..23 Stakeholder Input...23 Summary of Discussions...24 Community Outcome Goals...25 Component D Overview of Community Risk Assessment...27 Overall Geospatial Characteristics...27 Geographic and Weather-Related Risks...29 Weather Risk...29 Wildfire Risk...30 Geographic/Geological Risk...31 Transportation Risks...32 Roads...32 Rail...34 Airport...34 Physical Assets Protected...36 Government Buildings...36 Congregational...37 Schools/Day Care...38 Medical Facilities...38 Other Critical Infrastructure...39 Structural Risks...42 Terrorism...46 Development and Population Growth...47 Current Population Information...47 Future Geographic Growth Potential...52 iii

7 Risk Classification...53 Historic System Response Workload...55 Temporal Analysis...57 Spatial Analysis...59 Station and Unit Workload Analysis...62 Fire Station Workload...62 Response Unit Workload...63 Incident Workload Projection...66 Component E Critical Tasking and Alarm Assignments...67 Critical Tasking...69 Alarm Assignments...73 Component F Review of Historical System Performance...76 Detection...76 Call Processing...76 Turnout Time...79 Distribution and Initial Arriving Unit Travel Time...81 First Arriving Unit Response Time...87 First Arriving Unit Received to Arrival Time...89 Received to Arrival Time Performance by Region...91 Concentration and Current Effective Response Force Capability Analysis...93 Second Unit Arrival Time...97 Emergency Medical Services...98 Call Concurrency, Reliability and Cancelled Responses...99 Component G Performance Objectives and Performance Measures Dynamics of Fire in Buildings Emergency Medical Event Sequence People, Tools, and Time Component H Overall Evaluation, Conclusions, and Recommendations Overall Evaluation Recommendations Performance Goal A: Formally Adopt Response Performance Goals Performance Goal B: Improve Dispatch Call Processing Performance Performance Goal C: Improve Turnout Time Performance Performance Goal D: Reduce Incident Travel Time Performance Goal E: Improve Current Response Capability with Additional Staffed Response Apparatus Performance Goal F: Implement Opportunities to Provide an Overall Increase in Community Fire and Life Safety Component I Appendices, Exhibits, and Attachments Appendix A Medford Fire-Rescue Compared to Others Appendix B Response Performance by Unit and Shift Appendix D Facility Descriptions iv

8 Table of Figures Figure 1: Generated Revenue... 8 Figure 2: MRFPD No. 2 Contract Revenue... 8 Figure 3: Budget/Expenditures by Year and Category, FY 2010 FY Figure 4: Core Services Summary...11 Figure 5: Current Facility Deployment...13 Figure 6: Apparatus Assigned to Medford Fire Stations...14 Figure 7: Organizational Structure...16 Figure 8: Management, Administration, and Support Personnel by Position...17 Figure 9: Emergency Response Personnel by Rank...18 Figure 10: Staffing Complement...20 Figure 11: Apparatus Staffing Configuration Figure 12: Immediate Region Automatic Aid...21 Figure 13: Community Outcome Goals...26 Figure 14: Community Risk Assessment...28 Figure 15: Flood Hazard Map...30 Figure 16 Wildland Fire Risk Areas...31 Figure 17: Earthquake Hazard...32 Figure 18: Street System...33 Figure 19: Railroad System...34 Figure 20: Rogue Valley International-Medford Airport...35 Figure 21: Government Buildings...36 Figure 22: Congregational Facilities...37 Figure 23: Medford Area Schools and Day Care Facilities...38 Figure 24: Medical and Care Facilities...39 Figure 25: Fire Hydrant Distribution in Relation to Developed Lands...40 Figure 26: Hazardous Material Use Locations...43 Figure 27: Buildings More Than Three Stories in Height...44 Figure 28: Buildings 100,000 Square Feet and Larger...45 Figure 29: Buildings NFF Greater Than 3,500 Gallons Per Minute...46 Figure 30 Current and Projected Population...47 Figure 31: Population Density Figure 32: Estimated Population by Age...49 Figure 33: Pediatric Population Density...50 Figure 34: Senior Population Density...51 Figure 35 Urban Growth and Urban Reserve Areas...53 Figure 36: Workload History, Figure 37: Responses by Type of Incident...56 Figure 38: Monthly Workload...57 Figure 39: Daily Workload...58 v

9 Figure 40: Hourly Workload...58 Figure 41: Service Demand Density...59 Figure 42: Building Fires...60 Figure 43: Emergency Medical Incidents...61 Figure 44: Responses by Fire Station Area Figure 45: Response Unit Workload Figure 46: Average Time Committed to an Incident by Unit...64 Figure 47: Unit Hour Utilization...65 Figure 48: Response Forecast...66 Figure 49: Staffing Recommendations Based on Risk...68 Figure 50: Call Processing Performance City Incidents...77 Figure 51: Call Processing Performance District Incidents...78 Figure 52: Call Processing Time by Hour of Day...78 Figure 53: City Incident Turnout Time Performance...80 Figure 54: District Incident Turnout Time Performance...80 Figure 55: Turnout Time by Hour of Day...81 Figure 56: Initial Unit Travel Time Capability City of Medford...82 Figure 57: Initial Unit Travel Time Capability MRFPD No Figure 58: City Incidents Overall Travel Time Performance First Arriving Unit...84 Figure 59: District Incidents Overall Travel Time Performance First Arriving Unit...84 Figure 60: Overall Travel Time by Hour of Day First Arriving Unit...85 Figure 61: Street Mile Coverage by Fire Stations...85 Figure 62: Incidents Within Four-Travel Minute Coverage...86 Figure 63: Overlapping Four Minute Travel Area...87 Figure 64: City Incidents Response Time Performance First Arriving Unit...88 Figure 65: District Incidents Response Time Performance First Arriving Unit...88 Figure 66: Hourly Response Time Performance...89 Figure 67: City Incidents Received to Arrival Time First Arriving Unit...90 Figure 68: District Incidents Received to Arrival Time First Arriving Unit...90 Figure 69: Hourly Received to Arrival Performance...91 Figure 70: Received to Arrival Time Performance by Dispatch Group...92 Figure 71: Received to Arrival Performance - Adjacent Incident Analysis...93 Figure 72: Effective Response Force City of Medford...95 Figure 73: Effective Response Force MRFPD No Figure 74: Structure Fires Meeting and Not Meeting Target...97 Figure 75: Call Concurrency Rates...99 Figure 76: Station Reliability Rates Figure 77: Unit Responses and the Number Cancelled Before Arrival Figure 78: Primary Unit Cancelled Responses Figure 79: False and Unneeded Responses Figure 80: Fire Growth vs. Reflex Time vi

10 Figure 81: Fire Extension in Residential Structures Figure 82: Cardiac Arrest Event Sequence Figure 83: Proposed Fire Station 2 Relocation Urban Response Goal Figure 84: Proposed Fire Station 2 Relocation Rural Response Goal Figure 85: Comparison of Response Activity and Response Time vii

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12 Executive Summary This document identifies Medford Fire-Rescue s Emergency Service Master Plan for the City of Medford and Medford Rural Fire Protection District No. 2, Oregon. Response resources, deployment strategies, operational elements, and overall community risks have been evaluated in this document. It establishes response time objectives and standards for measuring the effectiveness of resources within the department and the deployment of those resources. The document is segregated into components generally based on the format recommended by the Center for Public Safety Excellence, Standards of Cover 5 th Edition, which will be referenced elsewhere in this document. The Medford Fire-Rescue (MFR) is a direct operating department of City of Medford and provides fire protection and emergency medical services to the community. The department s service area encompasses all of the area within the governmental boundaries of Medford and Medford Rural Fire Protection District No. 2 (a contractual service area). The City of Medford has a resident population of 74,907 based on the 2010 census. Population in the Medford Rural Fire Protection District No. 2 is estimated to be 11,326 for a total resident population of 86,233. It is estimated that employment brings an additional 11,632 1 people into the city, raising the MFR s daytime service population to approximately 97,865. The department serves an area of approximately 26 square miles within the City of Medford and an additional 30 square miles for Medford Rural Fire Protection District No. 2. The department operates five fire stations and 20 apparatus. Emergency Communications of Southern Oregon (ECSO) provides emergency call receipt and dispatch service. The Insurance Services Office (ISO) reviews the fire protection resources within communities and provides a Community Fire Protection Rating system from which insurance rates are often based. The rating system evaluates three primary areas: the emergency communication and dispatch system, the fire department, and the community s pressurized hydrant or tanker-based water supply. The overall rating is then expressed as a number between 1 and 10, with 1 being the highest level of protection and 10 being unprotected or nearly so. As of the latest rating, ISO 1 Source: City-data.com 1

13 gave the City of Medford a rating of Class 4. Within Medford Rural Fire Protection District No. 2 the rating is also Class 4. This rating was conducted in In the typical SOC process, potential service area classifications are broken down into five categories: Metropolitan - geography with populations of over 200,000 people in total and/or a population density of over 3,000 people per square mile. These areas are distinguished by mid-rise and high-rise buildings, often interspersed with smaller structures. Urban - geography with a population of over 30,000 people and/or a population density of over 2,000 people per square mile. Suburban - geography with a population of 10,000 to 29,999 and/or a population density of between 1,000 and 2,000 people per square mile. Rural - geography with a total population of less than 10,000 people or with a population density of less than 1,000 people per square mile. Wilderness/Frontier/Undeveloped - geography that is both rural and not readily accessible by a publicly or privately maintained road. An analysis of the City of Medford s population density reveals that it is primarily of one classification; urban. Medford Rural Fire Protection District No. 2 is primarily rural. A Performance Statement and Objectives for the services provided by the Medford Fire-Rescue to the City of Medford and Medford Rural Fire Protection District No. 2 have been developed. These further define the quality and quantity of service expected by the community and consistently pursued by the Medford Fire-Rescue. Overall Performance Statement The Medford Fire-Rescue has adopted the following Performance Statement: Performance Statement (Mission Statement) The mission of the Medford Fire-Rescue is to serve, educate, and protect its citizens from the effects of... HOSTILE FIRE MEDICAL EMERGENCIES HAZARDOUS MATERIAL EXPOSURES NATURAL AND MANMADE DISASTERS This mission will be accomplished through integrated efforts and using our available funding creatively and effectively. 2

14 In addition to the overall performance statement, the following response-specific performance objectives have been established by Medford Fire-Rescue and will be analyzed as part of this report. These objectives are based on the department s current resources, capability and performance. As noted previously, the City of Medford is primarily urban and Medford Rural Fire Protection District No. 2 is primarily rural. Thus the territory addressed by each objective can be defined by the political boundaries of each jurisdiction. Dispatch Performance Objective: Response resources shall be notified of a priority emergency within 60 seconds of receipt of the call at the dispatch center, 90 percent of the time. Turnout Time Performance Objective: Response personnel shall assemble on apparatus and initiate movement towards a priority emergency within 90 seconds of notification by the dispatch center, 90 percent of the time. First-Due Response Performance Objective: 1. Urban - The first response unit capable of initiating effective incident intervention shall arrive at a priority emergency within six minutes 30 seconds from receipt of the call at the dispatch center, 90 percent of the time. 2. Rural - The first response unit capable of initiating effective incident intervention shall arrive at a priority emergency within 10 minutes from receipt of the call at the dispatch center, 90 percent of the time. Concentration Performance Objective: 1. Urban - For moderate risk incidents, the Medford Fire-Rescue shall assemble an Effective Response Force (ERF) consisting of personnel sufficient to effectively mitigate the incident based on risk within 14 minutes from receipt of the call at the dispatch center, 90 percent of the time. 2. Rural - For moderate risk incidents, the Medford Fire-Rescue shall assemble an Effective Response Force (ERF) consisting of personnel sufficient to effectively mitigate the incident based on risk within 17 minutes from receipt of the call at the dispatch center, 90 percent of the time. 3

15 It is recommended that the Medford City Council and Medford Rural Fire Protection District No. 2 Board of Directors adopt response performance goals describing its desired level of response performance. These are goals to be achieved in the future as funding is available to provide the necessary resources. Dispatch Performance Goal: Response resources shall be notified of a priority emergency within 60 seconds of receipt of the call at the dispatch center, 90 percent of the time. Turnout Time Performance Goal: Response personnel shall assemble on apparatus and initiate movement towards a priority emergency within 90 seconds of notification by the dispatch center, 90 percent of the time. First-Due Response Performance Goal: 1. Urban - The first response unit capable of initiating effective incident intervention shall arrive at a priority emergency within six minutes 30 seconds from receipt of the call at the dispatch center, 90 percent of the time. 2. Rural - The first response unit capable of initiating effective incident intervention shall arrive at a priority emergency within 10 minutes from receipt of the call at the dispatch center, 90 percent of the time. Concentration Performance Goal: 1. Urban - For moderate risk incidents, the Medford Fire-Rescue shall assemble an Effective Response Force (ERF) consisting of personnel sufficient to effectively mitigate the incident based on risk within 14 minutes from receipt of the call at the dispatch center, 90 percent of the time. 2. Rural - For moderate risk incidents, the Medford Fire-Rescue shall assemble an Effective Response Force (ERF) consisting of personnel sufficient to effectively mitigate the incident based on risk within 17 minutes from receipt of the call at the dispatch center, 90 percent of the time. 4

16 The analysis conducted during the evaluation phase of this process identified a number of opportunities to improve service (performance goals). The following performance goals are offered for consideration. These goals and specific recommendations for each are described in more detail at the end of this report (Component H). Performance Goal A: Formally adopt Response Performance Goals Performance Goal B: Improve dispatch call processing performance Performance Goal C: Improve turnout time performance Performance Goal D: Reduce incident travel time Performance Goal E: Improve current response capability with additional staffed response apparatus. Performance Goal F: Implement opportunities to provide an overall increase in community fire and life safety. 5

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18 Component A Description of Community Served Organization Overview Governance and Lines of Authority The City of Medford is a municipal corporation and operates as a charter city that is provided the authority to levy taxes for operating a fire protection system. The City operates under a Council-Manager form of governance and the City Council is provided with necessary power and authority to govern the provision of fire protection and emergency services. The City Council maintains strictly policy-level involvement, avoiding direct management and hands-on task assignment an arrangement established within written policy. Extraterritorial services to Medford Rural Fire Protection District No. 2 are provided through contractual agreements between the city and the district first established in The terms of that agreement do not specify response be provided to any defined performance standard. Organizational Finance Establishment of financial policy for the City of Medford and the Medford Fire-Rescue is the responsibility of an elected City Council with the City Manager responsible for fiscal administration. The Fire Chief is appointed by the City Manager and is tasked with responsibility for fire and life safety emergency services within the city and district. The City of Medford has an assessed valuation of $5,747,894,702. MRFPD No. 2 has an assessed valuation of $701,365,028 for a total of $6,449,259,730. The city uses a two-year budget cycle to prepare the operating budget and the capital improvement plan based on a July through June fiscal year. The total Fire Department budget for biennium ending in 2013 is $25,208,720 including the General Fund, Public Safety Fund, and Capital Improvement Fund. The fire department s operating funds are received through the general revenue of the City. A large segment of municipal revenue is property tax receipts and, to a lesser degree, fees for service and other revenues. 7

19 Figure 1 lists the source and amount of non-tax revenue for Medford Fire-Rescue for fiscal year Figure 1: Generated Revenue Revenue Source Fiscal Year 2011 Service Contracts $1,460,743 Service Fees $0 Fire Permit Fees $3,367 Public Safety Fund $749,835 Total $2,213,945 The value of the contract with Medford Rural Fire Protection District No. 2 for the last five years is shown in the following table. Figure 2: MRFPD No. 2 Contract Revenue MRFPD No. 2 Contract Revenues FY ,343,575 FY ,364,290 FY ,395,955 FY ,460,743 FY ,442,230 Figure 3 shows the general operating expenditure history (excluding the Capital Improvement Fund) for the previous two fiscal years and the current fiscal year. Three major divisions of the budget are shown. Figure 3: Budget/Expenditures by Year and Category, FY 2010 FY 2012 Budget (Year Ending) Budget/Expenditure by Year and Category Salaries & Benefits Services and Supplies Capital Outlay Total FY ,498,400 1,251, ,000 10,890,900 FY ,104,440 1,273, ,820 11,963,800 FY ,771,050 1,219, ,500 13,160,550 During the three-year period, the department s overall budget increased 20.8 percent. The cost of fire and emergency services to the combined communities, based on property assessed valuation, is $2.04 per $1,000 of assessed valuation. 8

20 A comprehensive capital improvement and replacement program is important to the long-term financial stability of any fire and emergency medical service organization. Such programs provide systematic development and renewal of the physical assets and rolling-stock of the agency. A capital program must link with the planning process to anticipate and time capital expenditures in a manner that does not adversely influence the operation of the agency or otherwise place the agency in a negative financial position. Items usually included in capital improvement and replacement programs are facilities, apparatus, land acquisition, and other major capital projects. The City of Medford has an adopted a Capital Improvement Plan for fiscal year This document describes capital facility and other improvement needs for a two-year timeframe, and schedules those improvements based on available funding. The Medford Fire-Rescue has projects addressed in this plan, including fire station alerting systems and fire station parking lot replacement. The fire station alerting system project is funded by an Assistance to Firefighters grant and benefits the region s fire services. MFR is managing this grant on behalf of the other area fire agencies. Actual cost to the City of Medford from this $682,000 grant is $46,000. Service Area Overview The Medford Fire-Rescue (MFR) is a direct operating department of City of Medford and provides fire protection and emergency medical services to the community. The department s jurisdiction encompasses all of the governmental boundaries of the community along with Medford Rural Fire Protection District No. 2 (MRFPD No. 2) (a contractual service area). The City of Medford has a resident population of 74,907 based on the 2010 census. Population in the Medford Rural Fire Protection District No. 2 is estimated to be 11,326 for a total resident population of 86,233. It is estimated that employment brings an additional 11,632 2 people into the city, raising the MFR s daytime service population to approximately 97,865. The department serves an area of approximately 56 square miles; 26 within the Medford city limits and 30 within MRFPD No. 2. The department s services are provided from five fire stations. 2 Source: City-data.com 9

21 The department maintains a fleet of 20 apparatus including engines, ladder trucks, brush engines, and specialty vehicles. Emergency Communications of Southern Oregon (ECSO) provides emergency call receipt and dispatch service. There are 83 individuals involved in delivering services to the jurisdiction. Staffing coverage for emergency response is through the use of career firefighters on 24-hour shifts. For immediate response and at full staffing, no less than 17 personnel would be on duty at all times. The Insurance Services Office (ISO) reviews the fire protection resources within communities and provides a Community Fire Protection Rating. The rating system evaluates three primary areas: the emergency communication system, the fire department, and the community s pressurized hydrant or tanker-based water supply. The overall rating is expressed as a number between 1 and 10, with 1 being the highest level of protection and 10 being unprotected or nearly so. As of the latest rating, ISO gave the City of Medford a rating of Class 4. Within Medford Rural Fire Protection District No. 2 the rating is also Class 4. This rating was conducted in

22 Component B Review of Services Provided Services Provided The Medford Fire-Rescue provides a variety of services, including fire suppression, advanced life support level emergency medical service, entrapment extrication, high-angle rescue, initial trench, confined space, and hazardous materials emergency response (Level A). The following chart provides basic information on each of the department s core services, its general resource capability for that service, and information regarding staff resources for that service. Figure 4: Core Services Summary Service Fire Suppression Emergency Medical Services Vehicle Extrication High-Angle Rescue General Resource/Asset Capability 4 staffed engines 1 staffed Heavy Rescue Pumper 1 command response unit 1 two-person brush/rescue (50% of the time) plus 2 brush/rescue units staffed as needed 1 On Call Command Duty Officer Additional automatic and mutual aid engines, aerials, and support units available 4 Engines - ALS equipped 1 Heavy Rescue Pumper ALS equipped 1 Brush/Rescue ALS equipped 4 Engines equipped with combirescue tool 1 Heavy Rescue Pumper equipped with hydraulic rescue tools, hand tools, air bags, stabilization cribbing, and cutter and spreader hydraulic rescue tools 4 Engines equipped with basic 3:1 rope rescue equipment 1 Heavy Rescue Pumper equipped with rope, rope rescue hardware, stokes basket, backboards and harnesses Additional mutual aid Special Operations Group rescue team available upon special request Basic Staffing Capability per Shift 22 or 23 suppression-trained personnel depending on the shift. Additional automatic and mutual aid firefighters available. 11 EMT- Basics 29 EMT- Intermediates 27 paramedics *For all 3 shifts combined All firefighters vehicle rescue trained. All personnel trained to the operations level. 11

23 Service Trench and Collapse Rescue Swift-Water Rescue Confined Space Rescue Hazardous Materials Response (Medford Fire Rescue and Ashland Fire Department jointly operate one of the State of Oregon Regional Hazardous Materials Response Teams) General Resource/Asset Capability 4 Staffed Engines 1 Heavy Rescue Pumper equipped with cribbing and hand tools for initial stabilization 1 Command Response Unit Additional mutual aid Special Operations Group rescue team available upon special request 4 engines and 1 Heavy Rescue Pumper equipped with throw rope Swift-water rescue kits at two fire stations 1 Command Response Unit Additional mutual aid Special Operations Group rescue team and swift-water rescue boat available upon special request 4 Staffed Engines 1 Command Response Unit Mutual aid Special Operations Group rescue team available upon special request 4 Staffed Engines 1 Heavy Rescue Pumper 1 Command Response Unit State of Oregon Hazardous Materials response vehicle equipped with personal protective equipment, gas and radiation monitoring equipment, containment supplies, and nonsparking tools Basic Staffing Capability per Shift All personnel trained to a basic awareness/operations level in trench and collapse rescue. All personnel trained to a basic level in swift-water rescue techniques. All personnel trained to an awareness level in confined space rescue. All personnel trained to the operations level. 4 personnel per shift trained to the technician level in hazardous materials. Assets and Resources Fire Stations Fire stations play an integral role in the delivery of emergency services for a number of reasons. A station s location will dictate, to a large degree, response times to emergencies. Fire stations also need to be designed to adequately house equipment and apparatus, as well as the firefighters and other personnel assigned to the station. 12

24 Station Location and Deployment The MFR delivers fire and EMS response from five city-owned fire stations located throughout the city. The following map shows the city boundaries, Medford Rural Fire Protection District No. 2 boundaries, and the locations of active Medford fire stations. Figure 5: Current Facility Deployment Apparatus Other than the firefighters assigned to stations, response vehicles are probably the next most important resource of the emergency response system. If emergency personnel cannot arrive quickly due to unreliable transport, or if the equipment does not function properly, then the delivery of emergency service is likely compromised. Fire apparatus are unique and expensive pieces of equipment, customized to operate efficiently for a specifically defined mission. 13

25 The following table lists apparatus assigned to each of the five Medford fire stations. Figure 6: Apparatus Assigned to Medford Fire Stations Station Apparatus Year Condition Ownership Medford Station 2 Engine Good MRFPD No. 2 Medford Station 3 Engine Good City of Medford Engine Fair City of Medford Brush Good MRFPD No. 2 Battalion Chief Good City of Medford Medford Station 4 Heavy Rescue Pumper Good MRFPD No. 2 Ladder Good City of Medford Engine Fair MRFPD No. 2 Medford Station 5 Engine Good MRFPD No. 2 Engine Good MRFPD No. 2 Battalion Chief R Good City of Medford Medford Station 6 Engine Good City of Medford Ladder Fair City of Medford Engine Good City of Medford Tender Good MRFPD No. 2 Brush Good MRFPD No. 2 Brush Fair State of Oregon Hazmat Good State of Oregon Hazmat Good State of Oregon Air Fair State of Oregon MFR uses several types of apparatus as shown in the table above. described as follows: Each type is further Engine Primary response unit from each station for most types of service requests. Each is equipped with a 1,250-gallon-per-minute pump and carries between 500 and 750 gallons of water. Ladder A specialized apparatus equipped with long ladders, salvage and overhaul equipment, and rescue tools. Used for structure fires, rescues, and other service requests. Brush Smaller fire engine with a 120 gallon-per-minute pump and 400 gallons of water. Used for wildland fires and for protecting structures from an approaching wildland fire. Some also carry emergency medical service equipment. HazMat Specialized response unit for containment and control of hazardous materials releases. It is accompanied by the Decontamination unit, which specializes in cleanup of decontaminated persons and equipment. The department s apparatus are generally in good condition, properly equipped, and well maintained. 14

26 Staffing Information Fire and emergency medical service organizations must provide adequate staffing in four key areas: emergency services, administration, risk mitigation (prevention), and support. Organizational Structure MFR is organized in the typical top-down hierarchy. The chain of command is identified with common roles for a department of this size. MFR has five stations that house emergency response resources. The department s administrative office is located in a separate headquarters facility. The department s multiple facilities and its three-shift, 24-hour-per-day, seven-day-per-week operational schedule create numerous internal communications and management challenges. The department s organizational chart is functional and primary roles are well identified. 15

27 Figure 7: Organizational Structure 16

28 Administration and Support Staff One of the primary responsibilities of a department s administration and support staff is to ensure that the operational entities of the organization have the ability and means to accomplish their service delivery responsibilities to the public. Without sufficient oversight, planning, documentation, training, and maintenance, the operational entities of a department will struggle to perform their duties well. Like any other part of a fire department, administration and support require appropriate resources to function properly. There are 83 individuals involved in delivering services to the combined City of Medford/Medford Rural Fire Protection District No. 2 service area. The department s primary management team includes a Chief, two Deputy Chiefs, a Fire Marshal and four Battalion Chiefs. Additional support personnel include office staff, and deputy fire marshals. MFR has 16 total management, administration, and support staff, 13.5 full time equivalent personnel (FTE). Figure 8: Management, Administration, and Support Personnel by Position Position Number FTE Fire Chief 1 1 Deputy Chiefs 2 2 Fire Marshal 1 1 Battalion Chief - Training 1 1 Fire Inspectors 4 4 Executive Support 1 1 Support Staff 5 3 Safe Kids Coordinator TOTAL Statistically based on FTE, the department maintains a ratio of 16.7 percent of management, administration and support staff to total personnel (13.5 out of 80.5 total FTE). Emergency Services Staff It takes an adequate and well-trained staff of emergency responders to put the community s emergency apparatus and equipment to its best use in mitigating incidents. Insufficient staffing at an operational scene decreases the effectiveness of the response and increases the risk of injury to all individuals involved. 17

29 MFR uses career staffing to carry out its functions. All administrative, support, and response staff are career personnel. The following figure shows the distribution of emergency personnel by rank. Figure 9: Emergency Response Personnel by Rank Position Number Battalion Chief 3 Fire Captain 15 Engineer 15 Firefighter 34 TOTAL 67 As shown in the previous figure, MFR employs 67 emergency response personnel for rescue and fire suppression activities. The estimated resident population of the Medford Fire-Rescue service area is 86,233. MFR provides the City of Medford and MRFPD No. 2 with 0.78 career firefighters per 1,000 population. Including employment population, this ratio drops to Regardless of the raw numbers of personnel available to a department, what matters most is actual numbers of emergency responders the agency is able to produce at an emergency scene. This almost always relates to the actual number of emergency responders available for immediate deployment. MFR provides no less than 17 personnel on duty. In most communities around the country, the number of fire calls has declined over the past decade. Yet as the frequency of fires diminishes, in part due to stricter fire codes and safety education, the workload of fire departments has risen sharply; emergency medical calls, hazardous materials spills, and other requests for emergency assistance are now a service request of the fire department. Methodology for Incident Staffing This document will provide an analysis of how well this department is doing at providing its own personnel for incidents within its primary service area. This data is important and can be an indicator for the department as to the effectiveness of its staffing efforts. It is also true that for larger incidents, this fire department is typically acting together with one or more neighboring fire departments in providing fire and life protection through a coordinated regional response system of mutual and automatic aid agreements. This is particularly true for 18

30 large structure fires, other high-risk incidents where staffing needs are high, and during periods of high incident activity. Therefore, the document will go on to provide an overall view of aggregate staffing in this department and the neighboring agencies. The prompt arrival of at least four personnel is critical for structure fires. Oregon Occupational Safety and Health Division (OR-OSHA) regulations require that personnel entering a building involved in fire must be in groups of two. Further, before personnel can enter a building to extinguish a fire, at least two personnel must be on scene and assigned to conduct search and rescue in case the fire attack crew becomes trapped. This is referred to as the two-in, two-out rule. There are, however, some exceptions to this regulation. If it is known that victims are trapped inside the building, a rescue attempt can be performed without additional personnel ready to intervene outside the structure. Further, there is no requirement that all four arrive on the same response vehicle. Many departments rely on more than one unit arriving to initiate interior fire attack. The Medford Fire-Rescue staffs fire engines with three firefighters; thus, it must wait for a second unit to arrive before it can initiate interior fire attack operations in a non-rescue incident. Some incidents (such as structure fires) require more than one response unit. The ability of this department and its automatic aid neighbors to assemble an effective response force for a multiple unit incident within the specific period of time, also known as resource concentration, will be analyzed in a later section of this document. Medford Fire-Rescue shift staffing varies from a minimum of 17 to a maximum of 23. Typically shift staffing is between 17 and 18. The following table lists each station, staffed unit, and the staffing assigned to each at minimum and maximum staffing. Cross-staffed means that firefighters assigned to another response unit in the station may transfer to the cross-staffed unit as needed. 19

31 Figure 10: Staffing Complement Station Apparatus Minimum Staffing Maximum Staffing Medford Station 2 Engine Medford Station 3 Engine Engine 8113 Reserve 3 Brush 8163 Cross-staffed Cross-staffed Battalion Chief Medford Station 4 Heavy Rescue Ladder 8121 Cross-staffed Cross-staffed Engine 8114 Reserve Reserve Medford Station 5 Engine Engine 8115 Reserve Reserve Battalion Chief R8153 Reserve Reserve Medford Station 6 Engine Ladder 8126 Reserve Reserve Engine 8116 Reserve Reserve Tender 8146 Cross-staffed Cross-staffed Brush 8168 Cross-staffed Cross-staffed Brush 8166 Cross-staffed Cross-staffed Hazmat 81 Cross-staffed Cross-staffed Hazmat 83 Cross-staffed Cross-staffed Air 8183 Cross-staffed Cross-staffed Total The number of apparatus staffed by MFR varies depending on the number of personnel available on duty. The following table lists the percentage of time various configurations of apparatus were staffed for the past two years. Figure 11: Apparatus Staffing Configuration Engines plus Brush/Rescue 6 Engines plus Brush/Rescue Year 5 Engines 6 Engines 7 Engines % 23.2% 23.8% 5.1% 1.1% 2011* 59.6% 17.6% 19.0% 2.2% 1.5% * From through The Medford Fire-Rescue relies on regional mutual and automatic aid agreements for major structure fires, other higher risk incidents, and during periods of high incident activity. The following figure represents the apparatus and staffing for fire stations in reasonable proximity to the city and available for immediate dispatch. These figures are useful for reviewing the aggregate firefighter staffing capacity available in the immediate region. 20

32 Figure 12: Immediate Region Automatic Aid Station Apparatus Minimum Staffing Maximum Staffing Jackson Co Fire Dist 3 Central Point Station Engine Engine Tender Brush Brush Medic White City Station Engine Engine Ladder Tender Battalion Chief Brush Brush Brush Jackson Co Fire Dist 5 Phoenix Station Engine Engine Tender Brush Talent Station Engine Engine Tender Brush Brush Medic Duty Officer Command Staff Command Staff Total There are additional resources available for the rare major fire emergency. The State of Oregon Conflagration Act system provides resources from around the State of Oregon as requested and available. This can include one or more strike teams (groups of five similar resources) or task forces (groups of five dissimilar resources) staffed and equipped for the specific emergency. In addition, wildland fires bring the firefighting resources of other cooperating agencies such as the Oregon Department of Forestry, Bureau of Land Management and United States Forest Service. In addition, the State of Oregon sponsors a state-wide Urban Search and Rescue Team capability. 21

33 Current Service Delivery Objectives The Medford Fire-Rescue has established response performance objectives primarily used to evaluate performance and provide guidance for future resource planning. The objectives are: Dispatch Performance Objective: Response resources shall be notified of a priority emergency within 60 seconds of receipt of the call at the dispatch center, 90 percent of the time. Turnout Time Performance Objective: Response personnel shall assemble on apparatus and initiate movement towards a priority emergency within 90 seconds of notification by the dispatch center, 90 percent of the time. First-Due Response Performance Objective: 1. Urban - The first response unit capable of initiating effective incident intervention shall arrive at a priority emergency within six minutes 30 seconds from receipt of the call at the dispatch center, 90 percent of the time. 2. Rural - The first response unit capable of initiating effective incident intervention shall arrive at a priority emergency within 10 minutes from receipt of the call at the dispatch center, 90 percent of the time. Concentration Performance Objective: 1. Urban - For moderate risk incidents, the Medford Fire-Rescue shall assemble an Effective Response Force (ERF) consisting of personnel sufficient to effectively mitigate the incident based on risk within 14 minutes from receipt of the call at the dispatch center, 90 percent of the time. 2. Rural - For moderate risk incidents, the Medford Fire-Rescue shall assemble an Effective Response Force (ERF) consisting of personnel sufficient to effectively mitigate the incident based on risk within 17 minutes from receipt of the call at the dispatch center, 90 percent of the time. The City of Medford is classified urban. Medford Rural Fire Protection District No. 2 is classified rural. The MFR is not currently achieving these targets as will be demonstrated in a later section of this report. That it is regularly reviewing emergency response performance against pre-defined targets is of great value to the response organization. 22

34 Component C Review of the Community Expectations for Type and Level of Service The ultimate goal of any emergency service delivery system is to provide sufficient resources (personnel, apparatus, and equipment) to the scene of an emergency in time to take effective action to minimize the impacts of the emergency. This need applies to fires, medical emergencies, and any other emergency situation to which the fire department responds. Obtaining and understanding the desires and expectations of community stakeholders is an important first step. MFR is committed to incorporating the needs and expectations of residents and policy makers in the service delivery planning process. It is important to note that the information solicited and provided during this process was provided in the form of people inputs, some of which are perceptions as reported by stakeholders. All information was accepted at face value without an in-depth investigation of its origination or reliability. The project team reviewed the information for consistency and frequency of comment to identify specific patterns and/or trends. The observations included in this report were confirmed by multiple sources or the information provided was significant enough to be included. Based on the information review, the team was able to identify a series of observations, and recommendations, and needs which are included in this report. Stakeholder Input ESCI interviewed a wide variety of Medford Fire-Rescue s internal and external stakeholders. The purpose of these interviews was to gain a better understanding of issues, concerns, and opinions about the MFR emergency service delivery system. Questions posed to each sought to learn more about: 1. The community s expectations of Medford Fire-Rescue. 2. Which expectations were being met and which were not. 3. Specific concerns about the manner and method in which services are being provided by MFR. 4. Whether the services offered by MFR had value to the community. 5. Whether MFR should offer services it currently does not provide. 6. General overall level of satisfaction with the services and service levels provided by MFR. 23

35 The following groups and individuals were interviewed: Medford City Council Mayor Gary Wheeler Councilor Karen Blair Councilor Al Densmore Councilor Dick Gordon Councilor Greg Jones Councilor James Kuntz Councilor John Michaels Councilor Bob Strosser Councilor Chris Corcoran External Partners Chief Dan Petersen JCFD #3 Chief Dan Marshall JCFD #5 Ken Parsons Mercy Flights Dr. Paul Rostykus Physician Margie Moulin - ECSO MFRD No. 2 Board of Directors Director Bill Riggert Director Dan Marcisz Director Jack Tait Director Duane Venekamp Director Bob Sheets IAFF Local 1431 Bryan Baumgartner Tim Harvey Graham Payer City of Medford Officials City Manager Pro Tem Bill Hoke Finance Director Alison Chan Planning Director Jim Huber Medford Fire Rescue Chief Dave Bierwiler Deputy Chief Gordon Sletmoe Deputy Chief Justin Bates Fire Marshal Greg Kleinberg Battalion Chief Ken Goodson Battalion Chief Erin Sawall Battalion Chief Brian Fish Summary of Discussions Overall, the opinion of Medford Fire-Rescue and the services it provides is very favorable. MFR and its staff are seen as competent, capable, and providers of good service. MFR policy officials (City Council and Board of Directors) generally believe the various services provided by MFR are appropriate for the community. There was general satisfaction with the level of service provided. Response time to emergencies appear to meet customer expectations. City councilors and Board members related that they had not heard concerns from their constituents regarding emergency response time. To the contrary comments they have received were positive. External partners all indicated satisfaction with their working relationship with MFR and its leadership. MFR is open to cooperative efforts, willing to be engaged in regional initiatives, and is an organization that exhibits competence and professionalism. External partners emphasized the importance of good coordination and communication between agencies. Several issues were noted as either concerns or questions. There was some concern expressed by several city councilors about over-reliance on external resources. Specifically, there was a concern about MFR s dependence on Jackson County Fire District No. 3 for ladder truck service. Those expressing the concern indicated that MFR should be able to deliver that resource when needed. 24

36 Some District officials wanted to make sure that the needs of their service area would be considered during this study. It was their hope that service improvements considered by the City would also benefit District residents. There was also a request for a stronger focus on wildland fire mitigation efforts within the District. A suggestion was made during the city councilor interviews that MFR should take a lead role in community emergency management and disaster preparedness. Otherwise, those expressing an opinion believed MFR was providing services appropriate for the community. Some city councilors wanted to ensure that MFR was responding to only those incidents that were true emergencies. It is their belief that MFR should not respond to non-critical incidents such as lift-assists at care homes, minor medical incidents, and the like. Though MFR has reduced the number of responses to these types of incidents it was not clear to some that this response practice change had actually occurred. Several elected officials from both the City and District also expressed the desire for more detailed information regarding MFR activity and performance. Internal stakeholders expressed some concern about the future of the MFR. They believe that establishing a clear sense of purpose, direction and vision for the organization would be of value. Though most indicated that additional resources would help them deliver services, all were realistic in their understanding of the limitations imposed by current economic conditions. Suggested improvements to resource levels included a staffed peak activity period response unit, a staffed ladder truck, the establishment of an intern program, and four person staffing on all fire engines. Overall, attitudes and opinions of MFR were quite favorable. Addressing the specific suggestions and concerns described above can only serve to improve MFR s relationship with the community. Community Outcome Goals From these conversations general statements of outcome have been developed regarding the community s expectations of its fire department. These statements have been synthesized by 25

37 ESCI using its understanding of community expectations. They should provide MFR with a better understanding of the needs and expectations of its community within each service area. Service Fire Suppression Emergency Medical Services Vehicle Extrication High-Angle Rescue Trench and Collapse Rescue Swift-Water Rescue Confined Space Rescue Hazardous Materials Response Figure 13: Community Outcome Goals Community Outcome Goal For all fire incidents, MFR shall arrive in a timely manner with sufficient resources to stop the escalation of the fire and keep the fire to the area of involvement. An effective concentration of resources shall arrive within time to be capable of containing the fire, rescuing at-risk victims, and performing property loss mitigation operations. For priority emergency medical incidents, MFR shall arrive in a timely manner with sufficient trained and equipped personnel to provide medical services that will stabilize the situation, provide care and support to the victim and reduce, reverse, or eliminate the conditions that have caused the emergency. For all vehicle accidents where rescue of victims is required, MFR 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. For all high-angle rescue incidents, MFR shall arrive in a timely manner with sufficient resources to stabilize the situation, establish an action plan for the successful conclusion of the incident, and perform the necessary rescue functions. For all trench or collapse rescue incidents, MFR shall arrive in a timely manner with sufficient resources to stabilize the situation, and perform the necessary rescue functions. For all swift-water rescue incidents, MFR shall arrive in a timely manner with sufficient resources to stabilize the situation, establish an action plan for the successful conclusion of the incident, and perform the necessary rescue functions. For all confined space rescue incidents, MFR shall arrive in a timely manner with sufficient resources to stabilize the situation, establish an action plan for the successful conclusion of the incident, and perform the necessary rescue functions. For all hazardous materials incidents, MFR shall arrive in a timely manner with sufficient resources to stabilize the situation, establish an action plan for the successful conclusion of the incident, and perform the actions necessary to resolve the incident. 26

38 Component D Overview of Community Risk Assessment This section analyzes certain categorical risks that are present within the City of Medford and Medford Rural Fire Protection District No. 2 that potentially threaten the persons and businesses within the community and that can create response workload for the MFR. These risks are identified to assist the Medford Fire-Rescue in identifying where to locate response resources in the types and numbers needed to effectively respond to likely emergencies. Additional information can be found in the City of Medford Pre-Disaster Mitigation Plan, This document describes various natural and man-made hazards that exist in the greater Medford region as well as initiatives being taken by the city to mitigate those hazards. Overall Geospatial Characteristics The fire service assesses the relative risk of properties based on a number of factors. Properties with high fire and life risk often require greater numbers of personnel and apparatus to effectively mitigate a fire emergency. Staffing and deployment decisions should be made with consideration of the level of risk within geographic sub-areas of a community. The community s general risk assessment has been developed based on intended land use within jurisdictional boundaries. These uses are described in the Jackson County and City of Medford Comprehensive Plans. The following map translates land use zoning 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. Moderate risk Areas zoned for medium-density single family properties, small commercial and office uses, low-intensity retail sales, and equivalently sized business activities. High risk Higher-intensity business districts, mixed use areas, high-density residential, industrial, warehousing, and large mercantile centers. 27

39 Figure 14: Community Risk Assessment This map accurately depicts risk based on intended land uses as described on the zoning map. The color-coding depicts risk as follows: Green - Open space, parks, golf courses, etc. Blue - Single family neighborhoods, small office, and small neighborhood commercial Red - Large commercial properties, larger multi-family buildings, and industrial development The community does not present any unusual risks. Higher risk properties are generally located along major transportation routes. There are a number of larger buildings used for produce packing activities and lumber products manufacturing. Many of the larger buildings, particularly those built in more recent years, are equipped with automatic fire suppression systems. 28

40 Geographic and Weather-Related Risks Weather Risk Medford lies in a weather shadow between the Cascade Range and Siskiyou Mountains. Most of the rain associated with Oregon bypasses Medford, leaving it drier and sunnier than typical western Oregon climates. Summers are similar to Eastern Oregon, and winters more like the coast. As many as ninety days over 90 F occur in the summer with warmer temperatures (over 100 F) common in July and August. Medford also experiences temperature inversions in the winter which can produce thick fog. Extreme weather, though rare, does occur. Thunderstorms, strong wind storms, and significant rain and snow events happen infrequently. The lowest recorded temperature was -10 F in 1910 and the highest recorded temperature was 115 F in The following is an excerpt from the City of Medford Pre-Disaster Mitigation Plan, 2004 describing the community s flood risk. The Rogue Valley has a long history of destructive flood events. Over the past 50 years, major floods occurred in the Rogue Valley in 1955, 1962, 1964, 1974 and The region experiences the most severe flooding conditions when the effects of snowmelt and direct, heavy rainfall combine during periods of warmer temperatures in winter and early spring months. These floods can threaten public health, safety, and welfare by destroying or isolating structures, disrupting transportation systems, polluting water supplies, and destroying basic public facilities, such as sewer and electric services. In addition to the flooding of Bear Creek and the Rogue River, the City of Medford has a history of slow-rise flooding along Larson Creek, Lazy Creek, Bear Creek, Elk Creek Terrain and Lone Pine Creek. Some flash flooding from heavy down pour may occur on Lone Pine Creek and Larson Creek. A portion of the City to the west borders Elk Creek tributary, which can exhibit uncontrollable flooding. Localized flooding may also result from debris blocking and plugging drainage systems. Recent incidences of record rainfall and flooding across Oregon have renewed concerns about the potential for flooding in the Medford UGB, and have rekindled interest in preparing for potential floods. 29

41 Figure 15: Flood Hazard Map Source: City of Medford Pre-Disaster Mitigation Plan, 2004 Wildfire Risk Medford s climate, vegetation, and topography make wildland fire a real risk to the community. Parts of the city, primarily the eastern-most portions, have homes interspersed with large areas of natural vegetation. Many of these homes are located at the top of slopes increasing the risk. The rural nature of MRFPD No. 2 also presents increased risk from wildland fires. Historically, the City of Medford experiences wildland fires on an infrequent basis. However, as more homes are built in wildland areas, the consequence of these fires will likely increase. Warm summer temperatures and strong winds can carry wildland fires into homes. Fuel types found in this region can support aggressive fire behavior. 30

42 The following map illustrates higher risk areas in and near the city. Figure 16 Wildland Fire Risk Areas Source: City of Medford Pre-Disaster Mitigation Plan Geographic/Geological Risk Certain geographic and geologic risks create situations that threaten the community, or are physical barriers to street connectivity for emergency service response. Steep slopes, water barriers such as rivers, and other geographic features can impede rapid response. Medford s urban area is relatively flat thus does not present unusual risk. The Medford region is geologically active. The city lies between faults located in the Klamath Falls area to the east and the Cascadia Subduction Zone to the west. Both have the potential of producing damaging earth movement in the Medford area. 31

43 The MFR has completed seismic reinforcement of three fire stations, Stations 3, 4, and 5. This project was funded by a grant from the Federal Emergency Management Agency. Figure 17: Earthquake Hazard Source: City of Medford Pre-Disaster Mitigation Plan Transportation Risks Transportation corridors provide necessary access and egress for the city. These take the forms of roads, airports, and railways. The configuration of transportation systems can also affect the response capability of emergency services. Limited access freeways and rail lines can interrupt street connectivity, forcing apparatus to negotiate a circuitous route to reach an emergency scene. Street-level rail lines can impede traffic at crossings when the trains traverse through the city. Roads Medford enjoys ready access to the entire west coast via Interstate Highway 5 (I-5). However, it does present an impediment to east-west travel through the city. Its nature as a limited access 32

44 freeway reduces overall street connectivity and requires some out-of-direction travel for emergency response units increasing travel time to emergencies. Large numbers of trucks carrying hazardous materials transit I-5 each year. There is a risk to the community from an accident involving one of these trucks that results in the release of hazardous materials. The balance of the department s service has a relatively well interconnected street network. Some areas of cul-de-sac and dead end streets exist. Traffic signals within the service area are equipped with signal pre-emption equipment. This provides a significant response time performance advantage as well as improved safety to motorists. Figure 18: Street System 33

45 Rail The Central Oregon and Pacific Railroad (COPR) operates on lines that traverse the city northeast to southwest. The rail line can cause delays in emergency vehicle response when trains are passing through. The line is not predominately grade-separated throughout the city. Figure 19: Railroad System Airport Rogue Valley International-Medford Airport is owned and operated by Jackson County. It lies in the north area of the city and hosts numerous scheduled service, private, and commercial flight activities. Approach and departure paths take aircraft over populated areas. 34

46 Federal Aviation Administration aircraft crash rescue and firefighting (ARFF) services are provided by the Airport (one or two personnel operating aircraft crash rescue apparatus). The Medford Fire-Rescue and its mutual aid partners provide substantial support to a response to flight emergencies. Figure 20: Rogue Valley International-Medford Airport 35

47 Physical Assets Protected Government Buildings There is a variety of government buildings in Medford considered important to providing critical services to the community in times of disaster. Medford is the Jackson County seat. Buildings such as city hall, fire stations, federal, state, and county offices, police stations, and the like provide important services to the community. The following map shows the locations of some of the important government buildings within the city. Figure 21: Government Buildings 36

48 Congregational Numerous buildings lie within Medford in which large numbers of people gather for entertainment, worship, and such. A variety of nightclubs, theaters, and other entertainment venues exist in the downtown area. Facilities such as the Craterian Ginger Rogers Theater, churches, and others, regularly hold events that draw large crowds of people. Other events, such as The Pear Blossom Run and Parade and Multicultural Fair draw large outdoor crowds. These facilities present additional risk, primarily for mass casualty incidents. Fire, criminal mischief, and potentially terrorism, could cause a major medical emergency requiring significant emergency service resources. The following map shows the locations of congregational facilities. Figure 22: Congregational Facilities 37

49 Schools/Day Care The Medford School District serves most of the Medford community. It operates 14 elementary schools, two middle schools, two comprehensive high schools, one alternative high school, and two charter schools. Total enrollment this year is about 12,600. There are also a number of private schools and day care facilities within the MFR service area. In total there are 85 educational facilities within the department s service area. Figure 23: Medford Area Schools and Day Care Facilities Medical Facilities The city is home to a number of important medical care facilities, including the Providence Medical Center and Rogue Valley Medical Center. Other facilities include skilled nursing 38

50 facilities and other in-patient care facilities. The following map shows the location of many of these important community resources. Figure 24: Medical and Care Facilities Other Critical Infrastructure In this section, other types of critical infrastructure to a community are discussed in general terms. Though Medford does not have any unusual critical community infrastructure, it is important the fire department plan for emergencies at these facilities. Water Distribution The most obvious concern to the fire department of this infrastructure is the reservoir, water main, and fire hydrant system. Providing sufficient storage, distribution, and access to this valuable firefighting resource through well-distributed fire hydrants is very important. 39

51 Firefighting water service from fire hydrants is available to nearly every developed property within the city. Fire flows are generally acceptable for risks protected. The Medford Water Commission, an autonomous agency of the City of Medford is the water service provider. The city s primary water source is Big Butte Springs. Water from the Rogue River is used to supplement supply during summer months. The Medford Water Commission maintains a 30-year Facility Plan and one-year capital improvement plan to ensure long-term system maintenance and to improve areas of deficiency. The last Insurance Services Office (ISO) review of the city s water system was in At that time, ISO gave the city s water system a relative classification of 2 indicating that the system provides good delivery of firefighting water supply. Figure 25: Fire Hydrant Distribution in Relation to Developed Lands 40

52 Communications Emergency communication centers and the associated transmitting and receiving equipment are essential facilities for emergency response. Emergency Communications of Southern Oregon (ECSO) provides emergency call receipt and dispatch service. This center provides for the receipt of calls for help, dispatching of fire and other emergency responders, and important support to the incident management function. There are other communication facilities and equipment that are equally important to the community and government operations. These are the telephone company central offices and the transmission lines of local telephone providers. Internet service providers, along with wireless cellular communication providers, provide essential communication capabilities for the community as well as emergency personnel through their facilities and equipment. Energy Previously discussed community services, from communications to traffic signals to normal operations, require the use of energy. Whether it is electricity generation and transmission systems, fuel distribution and storage tanks, or natural gas pipelines and regulator stations, the community is dependent upon energy sources. Bridges These structures provide essential crossings and unimpeded travel across physical and manmade barriers. In the event of an emergency, these are crucial as evacuation routes as well as for aid supplies to be brought into the area. Given the level of earthquake risk in this region, reinforcement of bridges is essential to preserve routes of transportation for emergency relief supplies. The Medford community has numerous bridges mostly associated with freeway and rail line crossings. Commercial Food & Cargo Distributors These suppliers and their storehouses are critical not only for the everyday distribution of needed goods and food products to sustain a community, but also for aid during emergencies. A number of food processing facilities are located in Medford. Other food distribution facilities are located in and near the city. 41

53 Structural Risks The protection of property in most cases refers to a building and its contents. This has been the basic mission of the fire department since its inception. Certain buildings, their contents, functions, and size present a greater firefighting challenge and require special equipment, operations, and training. Hazardous Materials Buildings that have been identified as containing hazardous materials can create a dangerous environment to the community as well as the firefighters during a spill or fire. Special equipment such as protective clothing and sensors, along with specialized training, is necessary to successfully mitigate a hazardous materials incident. The Medford Fire-Rescue and Ashland Fire Department jointly operate a hazardous materials response team capable of conducting A level intervention (typically the highest level of emergency response service). The following map shows the locations of facilities classified as using more than small quantities of hazardous materials. 42

54 Figure 26: Hazardous Material Use Locations 43

55 Multi-Storied Buildings Buildings that are more than three floors in height pose a special risk in an emergency. Fire on higher floors may require an aerial fire truck to be able to deliver water into a building that does not have standpipe systems. For victims trapped on higher floors, a ladder truck may be their only option for escape. The following map shows the locations for buildings more than three stories in height according to the ISO database. Most are clustered in the downtown area. Figure 27: Buildings More Than Three Stories in Height 44

56 Large Square Footage Buildings Large buildings, such as warehouses, malls, and large box stores typically require greater volumes of water for firefighting and require more firefighters to advance hose lines long distances into the building. The following map shows the locations for buildings 100,000 square feet and larger according to the ISO database. Figure 28: Buildings 100,000 Square Feet and Larger Needed Fire Flow The Insurance Services Office (ISO) inspects buildings within a community to develop an estimate of needed fire flow (NFF) or the amount of water flow (in gallons per minute [gpm]) that a fire department would need to produce in order to suppress the fire in a building based on its height, square footage, construction material, and roof type, among other factors. 45

57 The following map shows the locations of buildings identified by the ISO as having a needed fire flow in excess of 3,500 gallons per minute. Figure 29: Buildings NFF Greater Than 3,500 Gallons Per Minute Terrorism Medford s nature does not make it a high risk target for terrorism, although most of the previous categorized risks in the community are potential targets for such activity. The fire department needs to be vigilant in its training and preparedness in the event one or more coordinated acts of terror occur in the region. 46

58 Emergency Service Master Plan Development and Population Growth Current Population Information Medford s population has grown steadily, with an average annual growth rate of 3.6 percent between 1990 and 2000, and 1.7 percent annually between 2000 and The current city population (2010), according to the United States Census Bureau is 74,907. Population in the Medford Rural Fire Protection District No. 2 is estimated to be 11,326 for a total resident population of 86,233. It is estimated that employment brings an additional 11,632 3 people into the city, raising the MFR s daytime service population to approximately 97,865. A population forecast for the City of Medford was published in City of Medford Comprehensive Plan; Housing Element adopted December 2, Population growth for the Medford area is forecast to average 2.7% per year between 2010 and The 2029 City of Medford population is expected to reach 115,869 by Specific population growth information for MRFPD No. 2 is not available but should grow at a much more modest pace. The chart below illustrates projected population growth includes both the city s population forecast and an estimate of 0.5 percent population growth for Medford Rural Fire Protection District No. 2. Figure 30 Current and Projected Population Current and Forecasted Population City of Medford MFPD No.2 Total Source: City-data.com 47

59 Community growth is expected to be very modest until the recovery of the local and national economy and will primarily occur around the city s eastern perimeter. Some in-fill development and redevelopment is expected in the city s interior. The city Planning Department estimates there is approximately 200 acres available for more intense redevelopment. Growth within MRFPD No. 2 is constrained by state and local land use regulations. It is useful to assess the distribution of the population within the region, since there is a direct correlation between population density and service demand. The following map displays the population density of the City of Medford, based on Census 2010 data, the most current information available. Figure 31: Population Density

60 One of the factors that can influence emergency service demand, particularly emergency medical services, is the population s age. The following chart examines the City of Medford s population segmented by age groups. Figure 32: Estimated Population by Age Age Group Population Under 5 5, , , , , , , & over 12,109 TOTAL 74,907 Source: United States Census Bureau Based on the preceding figure, 16.2 percent of the population is 65 years of age or older and 7.2 percent of the population is under five years of age. This places a total of 23 percent of the area s population within the age groups that are at highest risk in residential fire incidents and account for some of the highest use of emergency medical services. Senior citizens can have difficulty escaping from fire due to physical limitations. Seniors also tend to use emergency medical services more frequently than younger persons. As the population ages, this will create an increase in service demand for emergency medical services. The very young also represent a vulnerable population, both in regard to their ability to escape a structure fire as well as their susceptibility to serious medical ailments such as asthma, traumatic events, choking, or vehicular accidents. Determining where the higher amounts of these target risk populations tend to live within the region can help in the deployment of apparatus, especially rescue units. The following map is based on 2010 Census data. 49

61 Figure 33: Pediatric Population Density The highest concentrations of pediatric populations reside primarily the city s western and central areas. The impact of the elderly population on emergency medical services has been extensively studied. The high utilization rate of emergency departments and the associated need for ambulance transportation by the elderly is in part due to challenges in the access to primary care physicians by the elderly at home and in nursing homes. The elderly can account for approximately one-third of emergency ambulance use and two-thirds of non-urgent ambulance use. 50

62 The Baby-Boom generation includes those individuals born between 1946 and In 2009, the oldest member was 62 years of age and the youngest was 46 years of age. This is the largest segment of the population in the United States. The growth of the elderly population (65 years and older) is expected to increase dramatically over the next 30 years across the country. As this cohort ages, the demand on emergency medical services is expected to increase. The following map illustrates the density of the elderly population by geographic area. This map is also based on 2010 Census data. Figure 34: Senior Population Density Higher concentrations of elderly populations reside in the City s central and southern areas. 51

63 Future Geographic Growth Potential Annexation of unincorporated territory into the city limits occurs on occasion, usually when a property owner wishes to develop their land in a manner that requires urban services. The City of Medford Comprehensive Plan (MCP) was first adopted in Objectives of the MCP are to promote a desirable balance and location of land uses in the Medford community, and relate these uses to the location of public facilities and infrastructure. Additionally, the MCP identifies the geographical limits of future urban development within which basic urban services can be most efficiently and economically provided. The Urban Growth Boundary (UGB) is the outer limit of land that is designated to eventually be annexed into the city. While some of the area inside the UGB is presently suburban, with varying densities and some rural in nature, the city has determined that it is prudent to assume this area will ultimately become part of the city, developed to urban densities and be a Medford Fire-Rescue service responsibility. There is also land designated as urban reserves. This is land that, while not officially intended for inclusion within the city limits, is expected to be considered for annexation over a fifty year time frame. It is important to consider future boundary growth during fire station location decisions. Fire stations are significant investments. They should be placed considering future boundaries as well as current needs. The following map illustrates both the urban growth boundary and the urban reserve area. 52

64 Figure 35 Urban Growth and Urban Reserve Areas Risk Classification Areas of higher fire risk require greater numbers of personnel and apparatus to effectively mitigate emergencies. Areas with a higher incident activity require additional response units to ensure reliable response. Staffing and deployment decisions for different regions of the city should be made in consideration of the level of risk. Most communities contain areas with different population densities and property risk allowing the community s policy makers to specify different response performance objectives by geographic area. The categories are identified as: 4 4 CFAI Standards of Cover, 5 th edition, pages

65 Metropolitan Geography with populations of over 200,000 people in total and/or a population density of over 3,000 people per square mile. These areas are distinguished by mid-rise and high-rise buildings, often interspersed with smaller structures. Urban Geography with a population of over 30,000 people and/or a population density of over 2,000 people per square mile. Suburban Geography with a population of 10,000 to 29,999 and/or a population density of between 1,000 and 2,000 people per square mile. Rural Geography with a total population of less than 10,000 people or with a population density of less than 1,000 people per square mile. Wilderness/Frontier/Undeveloped Geography that is both rural and not readily accessible by a publicly or privately maintained road. The City of Medford, based on population density, is primarily urban. MRFPD No. 2 is primarily rural. The community s risk designations should influence how response resources are distributed now and in the future. 54

66 Historic System Response Workload Before a full response time analysis is conducted, it is important to first examine the level of workload (service demand) that a fire department experiences. Higher service demands can strain the resources of a department and may result in a negative effect on response time performance. The following chart shows response workload for ten previous calendar years. These totals reflect incidents within the city and within Medford Rural Fire Protection District No. 2. Response workload increased by a total of 26.4 percent between January 1, 2001 (6,186 total responses), and December 31, 2010 (7,820 total responses), an average of 2.9 percent per year. Total responses decreased between 2007 and 2009 primarily due to the MFR s decision to discontinue response to non-critical emergency medical incidents Figure 36: Workload History, Responses by Year Fire EMS Other Total

67 The next chart and accompanying table show responses by type of incident for calendar year Emergency medical responses are the most common at 67.1 percent of total responses. Figure 37: Responses by Type of Incident Incidents by Type EMS Other fire Wildfire Vehicle fire Building fire Other Weather False alarm Good intent Public assistance Motor vehicle accident Rescue Overpressure rupture Hazardous condition Incident Type Number Building fire 99 Vehicle fire 39 Wildfire 57 Other fire 79 Overpressure rupture 14 EMS 5,248 Motor vehicle accident 425 Rescue 12 Hazardous condition 128 Public assistance 224 Good intent 1040 False alarm 440 Weather 6 Other 9 TOTAL 7,820 Approximately 93% of all incidents occurred within the City of Medford; 7% occurred within MRFPD No

68 Temporal Analysis A review of incidents by time of occurrence also reveals when the greatest response demand is occurring. The following charts show how activity and demand changes for MFR based on various measures of time. The following chart shows response activity for calendar year 2010 by month. Figure 38: Monthly Workload Incidents by Month Jan Feb Mar Apr May Jun Jul Aug Sep Oct Nov Dec During the study period, there was 22.7 percent more incident activity in the busiest month, August, versus the slowest month, April. Next, response workload is compared by day of week. In this case there is 24.4 percent more incident activity on the busiest day, Friday, versus the slowest day, Sunday. 57

69 Incidents Emergency Service Master Plan Figure 39: Daily Workload Incidents by Day of Week The time analysis that always shows significant variation is response activity by hour of day. Response workload directly correlates with the activity of people, with workload increasing during daytime hours and decreasing during nighttime hours as shown in the following chart. Incident activity is at its highest between 12:00 PM and 7:00 PM. Figure 40: Hourly Workload Incidents by Hour Hour 58

70 Spatial Analysis In addition to the temporal analysis of the current service demand, it is useful to examine geographic distribution of service demand. The following map series indicates the distribution of emergency incidents in Medford during calendar year The first map displays the number of incidents per square mile within various parts of the city. The area of greatest service demand is in the City s central area and the area between of Fire Stations 3 and 6. Figure 41: Service Demand Density 59

71 The preceding map reflects all calls served by MFR. Service demand can vary by area based on incident type. The following map displays the location of building fires during this time period. It illustrates that actual building fire incidents are also concentrated in the more densely populated area of Medford. Figure 42: Building Fires Similarly, emergency medical incidents also occur in greater concentration in areas of higher population density. The following map displays emergency medical incidents during calendar year

72 Figure 43: Emergency Medical Incidents 61

73 Station and Unit Workload Analysis A review of workload by station and response unit can reveal much about why response performance may be as it is. Although fire stations and response units may be distributed in a manner to provide quick response, that level of performance can only be obtained when the response unit is available in its primary service area. If a response unit is already on an incident and a concurrent request for service is received, a more distant response unit will need to be dispatched. This will increase response times. Fire Station Workload As noted earlier, response workload is not evenly distributed across the City of Medford. Areas of higher population typically present a greater demand for fire department services. The following table lists response activity by fire station area during calendar year Workload in the Fire Station 2 area is the highest at 1,941 calls for service. Figure 44: Responses by Fire Station Area 2010 Incidents by Station Station 2 Station Station Station Station

74 Response Unit Workload The workload on individual response units during calendar year 2010 is shown in the following table. Individual response unit workload can be greater than the workload in its home station area. Many incidents, such as structure fires, require more than one response unit. Figure 45: Response Unit Workload 2010 Responses by Unit Engine 8102 Engine 8103 Engine 8104 Engine 8105 Engine 8106 Engine 8113 Engine 8114 Engine 8115 Ladder 8121 Ladder 8126 Tender 8146 Battalion Chief 8153 Brush 8163 Brush 8166 Brush

75 The amount of time a given unit is committed to an incident is also an important workload factor. The following table illustrates the average time each unit was committed to an incident, from initial dispatch until it cleared the scene. Figure 46: Average Time Committed to an Incident by Unit Unit Responses Average minutes per call Engine , Engine , Engine , Engine , Engine Engine Engine Engine Ladder Ladder Tender Battalion Chief Brush Brush Brush

76 Unit hour utilization is an important workload indicator. It describes the amount of time a unit is not available for response since it s already committed to an incident. The larger the number, the greater a unit s utilization and the less available it is for assignment to an incident. Figure 47: Unit Hour Utilization Unit Hour Utilization Engine 8102 Engine 8103 Engine 8104 Engine 8105 Engine 8106 Engine 8113 Engine 8114 Engine 8115 Ladder 8121 Ladder 8126 Tender 8146 Battalion Chief 8153 Brush 8163 Brush 8166 Brush Unit hour utilization is an important statistic to monitor for those fire agencies using percentile based performance standards, as does MFR. In Medford s case, where performance is measured at the 90 th percentile, unit hour utilization greater than 0.10 means that the response unit will not be able to provide on-time response to its 90 percent target even if response is its only activity. None of MFR s response units are approaching a unit hour utilization of

77 Responses Emergency Service Master Plan Incident Workload Projection The most significant predictor of future incident workload is population; 100 percent of requests for emergency medical service are people-driven. The National Fire Protection Association reports that approximately 70 percent of all fires are the result of people either doing something they should not have (i.e., misuse of ignition source) or not doing something they should have (i.e., failure to maintain equipment). Thus it is reasonable to use future population growth to predict future fire department response workload. The current fire department services utilization rate is 90 incidents per 1,000 population. Over the past 10 years, utilization has been as high as 121 incidents per 1,000 population. Future fire department services utilization is predicted to grow modestly over time at a rate of about 0.5 percent per year. This, plus expected population growth, will increase the MFR s workload as shown in the following chart. Response workload, by the year 2029 could reach 12,856 responses per year. Figure 48: Response Forecast Response Forecast 14,000 13,000 12,000 11,000 10,000 9,000 8,000 7,000 6,000 5,000 4,

78 Component E Critical Tasking and Alarm Assignments The MFR service area has a densely populated urban environment and, as such, contains an elevated number, density, and distribution of risk. Further, its suburban and rural areas present unique challenges such as wildland fires. The fire department should have the resources needed to effectively mitigate the incidents that have the highest potential to negatively impact the community. As the actual or potential risk increases, the need for higher numbers of personnel and apparatus also increases. With each type of incident and corresponding risk, specific critical tasks need to be accomplished and certain numbers and types of apparatus should be dispatched. This section considers the community s identified risks and illustrates the number of personnel that are necessary to accomplish the critical tasks at an emergency. Tasks that must be performed at a fire can be broken down into two key components: life safety and fire flow. Life safety tasks are based on the number of building occupants, and their location, status, and ability to take self-preservation action. Life safety related tasks involve the search, rescue, and evacuation of victims. The fire flow component involves delivering sufficient water to extinguish the fire and create an environment within the building that allows entry by firefighters. The number and types of tasks needing simultaneous action will dictate the minimum number of firefighters required to combat different types of fires. In the absence of adequate personnel to perform concurrent action, the command officer must prioritize the tasks and complete some in chronological order, rather than concurrently. These tasks include: Command Water supply Scene safety Pump operation Search and rescue Ventilation Fire attack Backup/rapid intervention Critical task analysis also applies to non-fire type emergencies including medical, technical rescue, and hazardous materials emergencies. Numerous simultaneous tasks must be completed to effectively control an emergency. The department s ability to muster needed numbers of trained personnel quickly enough to make a difference is critical to successful incident outcomes. 67

79 The following chart illustrates the emergency incident staffing recommendations of the Commission on Fire Accreditation, International. The following definitions apply to the chart: Low Risk Minor incidents involving small fires (fire flow less than 250 gallons per minute), single patient non-life threatening medical incidents, minor rescues, small fuel spills, and small wildland fires without unusual weather or fire behavior. Moderate Risk Moderate risk incidents involving fires in single-family dwellings and equivalently sized commercial office properties (fire flow between 250 gallons per minute to 1,000 gallons per minute), life threatening medical emergencies, hazardous materials emergencies requiring specialized skills and equipment, rescues involving specialized skills and equipment, and larger wildland fires. High Risk High risk incidents involving fires in larger commercial properties with sustained attack (fire flows more than 1,000 gallons per minute), multiple patient medical incidents, major releases of hazardous materials, high risk rescues, and wildland fires with extreme weather or fire behavior. Figure 49: Staffing Recommendations Based on Risk Incident Type High Risk Moderate Risk Low Risk Structure Fire Emergency Medical Service Rescue Hazardous Materials Wildland Fire 41 (Red Flag level) 20 7 The Medford Fire-Rescue has developed the following Critical Task analyses for various incident types. Further it has defined, based on current unit staffing levels, the number and type of apparatus needed to deliver sufficient numbers of personnel to meet the critical tasking identified. ESCI s review of the Critical Task analysis concludes that all are in keeping with industry standards and provide the minimum number of personnel needed for effective incident operations. 68

80 Critical Tasking Critical tasks are those activities that must be conducted in a timely manner by firefighters at emergency incidents in order to control the situation. The Fire Department is responsible for assuring that responding companies are capable of performing all of the described tasks in a prompt, efficient, and safe manner. Fires Critical tasking for fire operations is the minimum number of personnel to perform the tasks required to effectively control a fire in the listed risk category. Major fires (beyond first alarm) will require additional personnel and apparatus. Emergency Medical Critical tasking for emergency medical incidents is the minimum number of personnel to perform the tasks required to support the identified strategy based on the department s adopted medical protocol. Structure Fire (Hydranted) Task Number of Personnel Command/Safety 1 Pump Operations 1 Attack Line 2 Back-up Line 2 Search and Rescue 2 Ventilation 2 RIT 3 Other (hydrant) 1 Total 14 Structure Fire (Non-Hydranted) Task Number of Personnel Command/Safety 1 Pump Operations 1 Attack Line 2 Back-up Line 2 Search and Rescue 2 Ventilation 2 RIT 3 Tender Operator 1 Total 14 69

81 Wildland Fire Task Number of Personnel Command/Safety 1 Pump Operations/Lookout 2 Attack Line 5 Tender Operator 1 Total 9 Aircraft Emergency - Minor Task Number of Personnel Command/Safety 1 Aircraft Fire Suppression 1 Attack Line 2 Rescue 2 Emergency Medical Care 2 Total 8 Aircraft Emergency - Major Task Number of Personnel Command/Safety 2 Aircraft Fire Suppression 1 Attack Line 4 Back-Up Line 2 Pump Operations 1 Rescue 9 Emergency Medical Care 4 Total 23 Non-Structure Fire (Hydranted & Non-Hydranted) Task Number of Personnel Command/Safety 1 Pump Operations 1 Attack Line 1 Total 3 Smoke In Structure (Hydranted) Task Number of Personnel Command/Safety 1 Pump Operations 1 Attack Line-Interior Investigation 2 Back-up Line 2 Search and Rescue 2 Ventilation 2 RIT 3 Other (hydrant) 1 Total 14 70

82 Smoke In Structure (Non-Hydranted) Task Number of Personnel Command/Safety 1 Pump Operations 1 Attack Line-Interior Investigation 2 Back-up Line 2 Search and Rescue 2 Ventilation 2 RIT 3 Tender Operator 1 Total 14 Outdoor Smoke Investigation (Hydranted & Non-Hydranted) Task Number of Personnel Command/Safety 1 Pumper Operator 1 Investigation 1 Total 3 Hazardous Materials- Known Release Task Number of Personnel Command 1 Liaison 1 Decontamination 3 Research Support 2 Team leader, safety, entry team, and backup 6 team Total 13 Hazardous Materials- Investigation Task Number of Personnel Command/Safety 1 Research/Support 3 Total 4 Emergency Medical Aid Task Number of Personnel Patient Management 1 Patient Care 1 Documentation 1 Total 3 Motor Vehicle Accident (Non Trapped) Task Number of Personnel Scene Management/Documentation 1 Patient Care/Extrication 2 Total 3 71

83 Motor Vehicle Accident (Trapped) Task Number of Personnel Command/Safety 1 Patient Care 4 Pump Operator/Suppression Line 1 Extrication/Vehicle Stabilization 4 Total 10 72

84 Alarm Assignments In order to ensure sufficient personnel and apparatus are dispatched to an emergency event the following first alarm response assignments have been established. Total Staffing Needed is the number identified in the Critical Tasking analysis above. Structure Fire (Hydranted) Unit Type Number of Units Total Personnel Engine 3 9 Rescue Pumper 1 4 Battalion Chief 1 1 Total Staffing Provided 14 Total Staffing Needed 14 Structure Fire (Non-Hydranted) Unit Type Number of Units Total Personnel Engine 3 8 Tender 1 1 Rescue Pumper 1 4 Battalion Chief 1 1 Total Staffing Provided 14 Total Staffing Needed 14 Wildland Fire Unit Type Number of Units Total Personnel Engine 1 3 Grass Unit 2 4 Tender 1 1 Battalion Chief 1 1 Total Staffing Provided 9 Total Staffing Needed 9 Aircraft Emergency - Minor Unit Type Number of Units Total Personnel Engine 1 3 ARRF 2 2 Battalion Chief 1 1 Ambulance (Mercy Flights) 1 2 Total Staffing Provided 8 Total Staffing Needed 8 73

85 Aircraft Emergency - Major Unit Type Number of Units Total Personnel Engine 5 15 ARRF 2 2 Battalion Chief 2 2 Ambulance (Mercy Flights) 2 4 Total Staffing Provided 23 Total Staffing Needed 23 Non-Structure Fire (Hydranted & Non-Hydranted) Unit Type Number of Units Total Personnel Engine 1 3 Total Staffing Provided 3 Total Staffing Needed 3 Smoke In Structure (Hydranted) Unit Type Number of Units Total Personnel Engine 3 9 Rescue Pumper 1 4 Battalion Chief 1 1 Total Staffing Provided 14 Total Staffing Needed 14 Smoke In Structure (Non-Hydranted) Unit Type Number of Units Total Personnel Engine 3 8 Rescue Pumper 1 4 Tender 1 1 Battalion Chief 1 1 Total Staffing Provided 14 Total Staffing Needed 14 Outdoor Smoke Investigation (Hydranted & Non-Hydranted) Unit Type Number of Units Total Personnel Engine 1 3 Total Staffing Provided 3 Total Staffing Needed 3 Hazardous Materials Known Release Unit Type Number of Units Total Personnel Engine 1 3 Battalion Chief 1 1 Hazardous materials unit 1 9 Total Staffing Provided 13 Total Staffing Needed 13 74

86 Hazardous Materials Investigation Unit Type Number of Units Total Personnel Engine 1 3 Battalion Chief 1 1 Total Staffing Provided 4 Total Staffing Needed 4 Emergency Medical Service Unit Type Number of Units Total Personnel Engine or Rescue Pumper 1 3 Total Staffing Provided 3 Total Staffing Needed 3 Motor Vehicle Accident (Non-Trapped) Unit Type Number of Units Total Personnel Engine or Rescue Pumper 1 3 Total Staffing Provided 3 Total Staffing Needed 3 Motor Vehicle Accident (Trapped) Unit Type Number of Units Total Personnel Engine 1 3 Rescue Pumper 1 4 Battalion Chief 1 1 Ambulance (Mercy Flights) 1 2 Total Staffing Provided 10 Total Staffing Needed 10 75

87 Component F Review of Historical System Performance Incident data for the calendar year 2010 was evaluated in detail to determine MFR s current performance. Data was obtained from department incident reports and the dispatch center s computer aided dispatch system. Only incidents that were dispatched as a priority incident are included in the analysis. Priority incidents involve emergencies to which the fire department responded code 3 (using warning lights and sirens) all the way to the incident location. Incidents downgraded to a nonemergency response and those initially dispatched as non-emergency responses were excluded. Each phase of the incident response sequence was evaluated to determine current performance. This allows an analysis of each individual phase to determine where opportunities might exist for improvement. The total incident response time continuum consists of several steps, beginning with initiation of the incident and concluding with the appropriate mitigation of the incident. The time required for each of the components varies. The policies and practices of the fire department directly influence some of the steps. What follows is a detailed description and review of each phase of the response time continuum. Detection The detection of a fire (or medical incident) 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. The time period for this phase begins with the inception of the emergency and ends when the emergency is detected. It is largely outside the control of the fire department and not a part of the event sequence that is reliably measurable. Call Processing Today most emergency incidents are reported by telephone to the center. Call takers must quickly elicit accurate information about the nature and location of the incident from persons who are apt to be excited. A citizen well-trained in how to report emergencies can 76

88 Emergency Services Master Plan reduce the time required for this phase. The dispatcher must identify the correct units based on incident type and location, dispatch them to the emergency, and continue to update information about the emergency while the units respond. This phase typically begins when the call is answered at the dispatch center and ends when response personnel are notified of the emergency. This phase is labeled call processing time. ECSO, the MFR s dispatch provider has set its call processing performance objective at within 60 seconds, 95 percent of the time, in line with national standards. This report s analysis will measure performance at the 90 th percentile to stay consistent with review of the other response time intervals. MFR s current target performance objective for call processing time is within 60 seconds, 90 percent of the time. The following charts list the call processing time for all priority incidents during 2010 within the city and within the district, as well as specific incident types. The vertical green line indicates the performance objective. Overall, the time from first notification to the dispatch center until notification of response personnel is within one minute 49 seconds, 90 percent of the time. Figure 50: Call Processing Performance City Incidents City Incident Call Processing Time at 90th Percentile All incidents Building fire Vehicle fire Wildfire Other fire Overpressure rupture EMS Motor vehicle accident Rescue Hazardous Condition Public assist Good intent False alarm Minutes 77

89 Minutes Emergency Service Master Plan Figure 51: Call Processing Performance District Incidents District Incident Call Processing Time at 90th Percentile All incidents Building fire Vehicle fire Wildfire Other fire Overpressure rupture EMS Motor vehicle accident Rescue Public assist Good intent False alarm Minutes Activity levels at the dispatch center can affect the time it takes to receive, process and dispatch a request for service. The following chart shows call processing time by hour of day. Though highly variable throughout the day the variation does not relate to fire department incident activity. Figure 52: Call Processing Time by Hour of Day Call Processing Time by Hour - All Incidents - 90th Percentile Hour 78

90 Emergency Services Master Plan ECSO has undergone a number of changes between 2010 and today. The dispatch center was the result of the consolidation of two independent centers. Much of 2010 was dedicated to completing the consolidation, improving organizational practices, and consolidating computer aided dispatch CAD systems. CAD consolidation was completed in May Call processing performance for the time period July 2011 through early December 2011 was used to determine if performance had improved from All priority 1 and E incidents in the MFR service area were used in the evaluation. Call processing time improved only slightly from within one minute 49 seconds, 90 percent of the time, during 2010 to within one minute 40 seconds, 90 percent of the time, during the most recent time period. Turnout Time Turnout time is the first of the response phases controllable by the fire department. This phase begins at notification of an emergency in progress by the dispatch center and ends when personnel and apparatus begin movement towards the incident location. Personnel must don appropriate equipment, assemble on the response vehicle, and begin travel to the incident. Good training and proper fire station design can minimize the time required for this step. MFR s current target performance objective for turnout time is within 90 seconds, 90 percent of the time. The following charts list turnout time for all incidents as well as specific incident types. The vertical green line indicates the performance objective. Overall, turnout time for all incidents is within one minute 59 seconds, 90 percent of the time. 79

91 Figure 53: City Incident Turnout Time Performance City Incident Turnout Time at 90th Percentile All incidents Building fire Vehicle fire Wildfire Other fire Overpressure rupture EMS Motor vehicle accident Rescue Hazardous Condition Public assist Good intent False alarm Minutes Figure 54: District Incident Turnout Time Performance District Incident Turnout Time at 90th Percentile All incidents Building fire Vehicle fire Wildfire Other fire Overpressure rupture EMS Motor vehicle accident Rescue Public assist Good intent Minutes 80

92 Minutes Emergency Services Master Plan Turnout time can vary by hour of day. In this case turnout time varies by nearly one minute and 30 seconds between the early morning hours and daytime hours. Figure 55: Turnout Time by Hour of Day 3.00 Turnout Time by Hour of Day at 90th Percentile Hour Distribution and Initial Arriving Unit Travel Time Travel time is potentially the longest of the response phases. The distance between the fire station and the location of the emergency influences total response time the most. The quality and connectivity of streets, traffic, driver training, geography, and environmental conditions are also factors. This phase begins with initial apparatus movement towards the incident location and ends when response personnel and apparatus arrive at the emergency s location. Within MFR s target response performance objectives, four minutes is allowed for travel time to incidents within the City of Medford. Seven minutes 30 seconds is allowed for travel time to MRFPD No. 2 incidents. The following map illustrates the area that can be reached from all Medford fire stations and adjacent agency stations in four minutes of travel time, the time allowed by the MFR response time performance target for the City of Medford. It is based on actual travel speeds along roadways, adjusted for turning maneuvers. 81

93 Figure 56: Initial Unit Travel Time Capability City of Medford Adequate coverage is provided except for the city s most northern area and an area to the east. The next map illustrates the area that can be reached from all Medford fire stations and adjacent agency stations in seven minutes 30 seconds of travel time, the time allowed by the MFR response time performance target for MRFPD No. 2. It is based on actual travel speeds along roadways, adjusted for turning maneuvers. 82

94 Emergency Services Master Plan Figure 57: Initial Unit Travel Time Capability MRFPD No. 2 Adequate coverage is provided except for the district s far south west portion. The following chart lists travel time for all city incidents as well as specific incident types. The vertical green line indicates the performance objective. Overall, travel time for all incidents within the City of Medford is within 5 minutes 58 seconds, 90 percent of the time. 83

95 Figure 58: City Incidents Overall Travel Time Performance First Arriving Unit All incidents Building fire Vehicle fire Wildfire Other fire Overpressure rupture EMS Motor vehicle accident Rescue Hazardous Condition Public assist Good intent False alarm City Incident Travel Time at 90th Percentile Minutes The following chart lists travel time for all district incidents as well as specific incident types. Overall, travel time for all incidents within MRFPD No. 2 is within 9 minutes 18 seconds, 90 percent of the time. Figure 59: District Incidents Overall Travel Time Performance First Arriving Unit District Incident Travel Time at 90th Percentile All incidents Building fire Vehicle fire Wildfire Other fire Overpressure rupture EMS Motor vehicle accident Rescue Public assist Good intent False alarm Minutes 84

96 Minutes Emergency Services Master Plan Travel time can, in some situations, vary considerably by time of day. Heavy traffic at morning and evening rush hour can slow fire department response. Travel time varies by about one minute 30 seconds during the course of the day. Figure 60: Overall Travel Time by Hour of Day First Arriving Unit Travel Time by Hour of Day at 90th Percentile Hour GIS analysis was completed to determine how much of the city s street system was within four minutes of fire stations. The following table shows the result of this analysis. Figure 61: Street Mile Coverage by Fire Stations Total Percent of Total Total street miles in city % Total city street miles within 4 minutes travel of a fire station % Total street miles in district % Total district street miles within 7 minutes 30 seconds travel of a fire station % Current fire stations can provide a response of four travel minutes to 86.5 percent of the existing city street system, and 82.7 percent of the existing district street system, assuming the fire engine is in its station at the time of the alarm. This also assumes that street congestion, weather, and other factors do not impede response. 85

97 The next analysis compared coverage of incidents that occurred during The following table shows the results of this analysis. The vast majority of actual responses occur within fourtravel minutes of fire stations. Figure 62: Incidents Within Four-Travel Minute Coverage Total Percent of Total Total incidents in city 6, % Total city incidents inside station 4 minute travel coverage 6, % Total incidents in district % Total district incidents inside station 7 minute 30 second travel coverage % As important as it is to ensure that all portions of the service area are within the target travel time of a fire station, it is equally important to provide some degree of redundancy, or overlap, in areas of high incident activity. Figure 40 in this report illustrates the portions of the service area with higher incident activity. The likelihood of concurrent incidents is greater in the city s central area due to the number of incidents that occur in that area. Some degree of overlap in this area is helpful to better serve concurrent incidents and minimize travel time. The following map illustrates the service area and shows where the four minute travel areas of two or more fire stations overlap. 86

98 Emergency Services Master Plan Figure 63: Overlapping Four Minute Travel Area First Arriving Unit Response Time Response time is defined as that period between the notification of response personnel by the dispatch center that an emergency is in progress, until arrival of the first fire department response unit at the emergency. Within the MFR response performance objectives, five minutes 30 seconds is allowed for response time (turnout time plus travel time) within the City of Medford. Nine minutes is allowed for response time to MRFPD No. 2 incidents. The following chart illustrates response time for all city incidents as well as specific incident types. The vertical green line indicates the performance objective. Overall, response time for all city incidents is within 7 minutes three seconds, 90 percent of the time. 87

99 Figure 64: City Incidents Response Time Performance First Arriving Unit All incidents Building fire Vehicle fire Wildfire Other fire Overpressure rupture EMS Motor vehicle accident Rescue Hazardous Condition Public assist Good intent False alarm City Incident Response Time at 90th Percentile Minutes The next chart illustrates response time for all district incidents as well as specific incident types. Overall, response time for all incidents is within 10 minutes 32 seconds, 90 percent of the time. Figure 65: District Incidents Response Time Performance First Arriving Unit District Incident Response Time at 90th Percentile All incidents Building fire Vehicle fire Wildfire Other fire Overpressure rupture EMS Motor vehicle accident Rescue Public assist Good intent False alarm Minutes 88

100 Incident Minutes Emergency Services Master Plan The next chart shows response time by hour of day for all incidents. Response time is slowest during the night-time hours and fastest during the day. Generally, MFR s best response times occur during the period of the day when response activity is at its highest. Figure 66: Hourly Response Time Performance Comparison of Response Time and Incidents by Hour at 90th Percentile Incidents Response Time Hour First Arriving Unit Received to Arrival Time From the customers standpoint, time begins when the emergency occurs. Their first contact with emergency services is when they call for help, usually by dialing Received to arrival time (call processing time plus turnout time plus travel time) is also the Medford Fire-Rescue s adopted performance target. For incidents within the City of Medford, the received to arrival target is within six minutes 30 seconds, 90 percent of the time. For incidents within MRFPD No. 2 the received to arrival target is within 10 minutes, 90% of the time. The next charts show this performance at the 90 th percentile for incidents within the City of Medford and within MRFPD No. 2 from the time the phone rings at the dispatch center until the first unit arrives at the incident location. This is a combination of all the time phases discussed in this section of the report. The vertical green line indicates the performance objective. Overall, received to arrival time for all city incidents is within eight minutes 14 seconds, 90 percent of the time. Overall, received to arrival time for all district incidents is within 11 minutes 37 seconds, 90 percent of the time. 89

101 Figure 67: City Incidents Received to Arrival Time First Arriving Unit City Incidents Received to Arrival Time at 90th Percentile All incidents Building fire Vehicle fire Wildfire Other fire Overpressure rupture EMS Motor vehicle accident Rescue Hazardous Condition Public assist Good intent False alarm Minutes Figure 68: District Incidents Received to Arrival Time First Arriving Unit District Incidents Received to Arrival Time at 90th Percentile All incidents Building fire Vehicle fire Wildfire Other fire Overpressure rupture EMS Motor vehicle accident Rescue Public assist Good intent False alarm Minutes 90

102 Incidents Minutes Emergency Services Master Plan The next chart shows received to arrival performance by time of day also compared to incident activity by time of day. Total response time, from the customer s standpoint, is quickest during the day and slowest during the early morning hours. Figure 69: Hourly Received to Arrival Performance Comparison of Received to Arrival Time and Incidents by Hour at 90th Percentile Incidents Received to Arrived Hour Received to Arrival Time Performance by Region Received to arrival time performance by region is highly variable. This is influenced by a number of factors including individual station area workload, and the number of times a station must cover another station s area. Additional factors include the size of the station area and the street system serving it. More highly connected, grid patterned, street systems contribute to faster response times than do areas with meandering streets with numerous dead-ends. The following map graphically displays received to arrival performance for priority incidents by dispatch group sub-areas within the MFR service boundaries. 91

103 The best received to arrival performance by dispatch group sub-area is within seven minutes one second, 90 percent of the time. The longest received to arrival performance is in the eastern-most portion of the MFR service area. Figure 70: Received to Arrival Time Performance by Dispatch Group The next map evaluates the received to arrival response performance of groups of adjacent responses that occurred during 2010 to derive received to arrival response performance that could be expected in the future given similar circumstances and resources. This provides a more detailed view of capability than does the previous map. It also demonstrates areas of response time performance that exceed the MFR targets. 92

104 Emergency Services Master Plan Figure 71: Received to Arrival Performance - Adjacent Incident Analysis Concentration and Current Effective Response Force Capability Analysis Effective Response Force (ERF) is the number of personnel and apparatus required to be present on the scene of an emergency incident to perform the critical tasks in such a manner to effectively mitigate the incident without unnecessary loss of life and/or property. The ERF is specific to each individual type of incident, and is based on the critical tasks that must be performed. Moderate risk structural fires are used as the primary risk category for this analysis as these present the most frequent type of incident requiring multiple response units and greater numbers of firefighters assigned to the incident. 93

105 The concentration analysis begins with a review of the physical capability of MFR s resources to achieve a target ERF response time to the city. Then, analysis will determine whether or not MFR s actual ERF assembly performance matches this physical concentration capability. The MFR has established the following response performance targets for the delivery of the full effective response force to moderate risk incidents. 1. City of Medford - For moderate risk incidents, the Medford Fire-Rescue shall assemble an Effective Response Force (ERF) consisting of personnel sufficient to effectively mitigate the incident based on risk within 14 minutes from receipt of the call at the dispatch center, 90 percent of the time. 2. Medford Rural Fire Protection District No. 2 - For moderate risk incidents, the Medford Fire-Rescue shall assemble an Effective Response Force (ERF) consisting of personnel sufficient to effectively mitigate the incident based on risk within 17 minutes from receipt of the call at the dispatch center, 90 percent of the time. Current performance for moderate risk structure fires that occurred within the City of Medford is within 15 minutes 50 seconds, 90 percent of the time. Current performance for moderate risk structure fires that occurred within MRFPD No. 2 is within 18 minutes 26 seconds, 90 percent of the time. Historically, call processing times for structure fires is one minute 20 seconds. Structure fire turnout time is one minutes 30 seconds. Thus to achieve an 14 minute ERF response time, 11 minutes of travel time is available within the City of Medford and 14 minutes of travel time within MRFPD No. 2 (rounded to the nearest half minute). Finally, for the purpose of this analysis, a full effective response force to a moderate risk structure fire is four fire engines and one battalion chief, with total staffing of 14 firefighters. The following maps depict the physical capability of MFR to assemble various concentrations of apparatus and firefighters within each area. The modeled analysis shown assumes that all response units are available and includes the resources of adjacent agencies as appropriate. 94

106 Emergency Services Master Plan The first map shows the area that can be reached by the number of firefighters that make up the target ERF based on the City of Medford performance target; 11 travel minutes are allowed to assemble 14 firefighters on scene. Figure 72: Effective Response Force City of Medford The previous figure illustrates that all but the eastern most portion of the City can be served with the minimum 14 firefighters needed for a moderate risk structure fire within the target response time. 95

107 The next map shows the area that can be reached by the number of firefighters that make up the target ERF based on the MRFPD No. 2 performance target; 14 travel minutes are allowed in the performance target to assemble 14 firefighters on scene. Figure 73: Effective Response Force MRFPD No. 2 Nearly the entire district is served within the effective response force target with the exception of the extreme outer edges. 96

108 Emergency Services Master Plan The next map shows all structure fires to which an effective response force did and did not arrive on scene within target response times during this time period. The markers in red are those for which the target was achieved. The blue markers are those structure fires where the objective was not achieved. Figure 74: Structure Fires Meeting and Not Meeting Target Second Unit Arrival Time All but one MFR fire engine is staffed with three personnel. One engine is staffed with four personnel. Safety regulations require that at least four firefighters be on scene before firefighters can enter a burning building. The only exception is if it is known that a person is inside the building and needs rescue. Consequently, the arrival of a second response unit is normally required before interior firefighting activities can be initiated. 97

109 The same group of structure fires was reviewed to determine the time the second response unit arrived on the scene. According to the data the second unit arrived on scene of a building fire within the City of Medford within three minutes three seconds, 90 percent of the time, after the arrival of the first unit. Within MRFPD No. 2 the second unit arrived within two minutes 13 seconds, 90 percent of the time, after the arrival of the first unit. Emergency Medical Services The Medford Fire-Rescue provides emergency medical first-response service at the Emergency Medical Technician Paramedic level (advanced life support). Ambulance transportation and enroute to the hospital care is provided by Mercy Flights Ambulance (MFA) under franchise with Jackson County. MFA operates its own dispatch center for its ambulances. ECSO transfers call information to MFA who determines which ambulance to dispatch to the incident. MFA, under its franchise agreement with Jackson County, is required to meet response time performance standards. MFA s performance is measured from the time they are notified until arrival of their ambulance. Current response time performance standards are listed below, Urban Within 10 minutes, 90 percent of the time Suburban Within 15 minutes, 90 percent of the time Rural Within 20 minutes, 90 percent of the time For calendar year 2010, MFA provided response time performance as follows: Urban within 10 minutes, percent of the time Suburban within 15 minutes, percent of the time Rural within 20 minutes, percent of the time Using the same performance percentages and relating the urban, suburban, rural categories to the MFR service area, the Medford Fire-Rescue provided the following response time performance. Response time is measured from dispatch to arrival to most closely align these results to the method of response time measurement for MFA. Urban (City of Medford) within seven minutes 45 seconds, percent of the time Rural (MRFPD No. 2 area) within 12 minutes 55 seconds, percent of the time 98

110 Incidents Emergency Services Master Plan Based on this analysis, the MFR is providing a great deal of value to the overall delivery of emergency medical services within its response territory. Without response by the MFR, emergency medical care would be delayed, in some cases to the detriment of the patient. Call Concurrency, Reliability and Cancelled Responses When evaluating the effectiveness of any resource deployment plan, it is necessary to evaluate the workload of the individual companies to determine to what extent their availability for dispatch is affecting the response time performance. In simplest terms, an engine company cannot make it to an incident across the street from its own station in four minutes if it is unavailable to be dispatched to that incident because it is committed to another call. Concurrency One way to look at resource workload is to examine the number of times multiple calls happen within the same time frame in each station area. Calls during 2010, were examined to determine the frequency of concurrent calls within each station s response area. This is important because concurrent calls can stretch available resources and extend response times. The following chart shows the number of concurrent and non-current calls for each MFR station during Concurrent calls were highest in the Station 3 area at 7.8 percent of total and lowest in the Station 6 area at 4.5 percent of total. Figure 75: Call Concurrency Rates Concurrent Versus Non-Concurrent Responses Non-Concurrent Concurrent FS2 FS3 FS4 FS5 FS6 99