San Diego County Fire Authority

Transcription

1 FIRE MASTER PLAN JULY 2013 San Diego County Fire Authority County of San Diego

2 Prepared by San Diego County Fire Authority 5510 Overland Avenue, Suite 250 San Diego, CA Phone: Web:

3 County of San Diego Board of Supervisors District 1 District 2 District 3 District 4 District 5 Greg Cox Dianne Jacob Dave Roberts Ron Roberts Bill Horn San Diego County Fire Authority Master Plan 2

4 3 San Diego County Fire Authority Master Plan

5 Table of Contents 1. Executive Summary Goals and Objectives Financial Plan Living Document 9 2. Mission and Vision Statements Values Introduction/Background Why Was It Created? How Was It Created? County of San Diego and Its Communities Unincorporated San Diego County Land Use Economic Characteristics Community Risk - Structure/Wildfire Fires County Service Area SWOT Analysis Organizational Structure Management & Administration Operations Chain of Command Emergency Response Standards of Cover Amador Plan Operating Plan Closest Resources Concept Communications and Dispatch Call Workload Cooperative Agreements Strategic Partnerships Existing Partnerships New Partnerships Mutual Aid Agreements Staffing Volunteer Firefighter Program Volunteer Fire Companies Recruitment & Retention SDCFA Administrative Staffing Cooperative Agency Staffing Apparatus & Equipment 34 San Diego County Fire Authority Master Plan 4

6 10.1 Apparatus Apparatus Maintenance Apparatus Procurement Plan Apparatus Replacement Plan Equipment Facilities Training, Emergency Medical Services and Safety Development Program Training Plan Training Goals Certifying Agencies Initial Entry-Level Training Continuing Training & Education Realignment of Firefighter Training Current Assessment Proposed Training Plan Plan Benefits Emergency Medical Services Safety Injury Illness Prevention Program (IIPP) Respiratory Protection Program Fire Prevention Fire Prevention Functions Fire Prevention Coordination Increased Efficiency Inspections Future Projects Information Technology IT Strategic Plan SDCFA IT Vision SDCFA IT Challenges IT Strategy IT Initiatives Advanced Situational Awareness for Public Safety Network GIS Strategic Plan SanMAPS GIS Emergency Response Unit Financial Plan History Current Funding 74 5 San Diego County Fire Authority Master Plan

7 15.3 Budget Levels Capital Expenses Evaluation of Current and Future Funding Level Vision for the Future Long-Term Strategies Short-Term Strategies Implementation Strategies Summary of Recommendations and Costs 79 Appendixes A. Land Ownership Map B. Fire History Map 2013 C. CSA 135 Hybrid Plan Phasing Plan D. SDCFA Operational Organization Chart E. SDCFA Standards of Cover Concept F. SDCFA/CAL FIRE Operating Plan G. Sample Scope of Work for Volunteer Fire Companies H. SDCFA Proposed Staffing (FY ) I. Joining the Fire Service A Training Guideline J. Defensible Space Brochure K. SDCFA Fire Apparatus Inventory L. SANDAG 2050 Regional Growth Forecast M. SDCFA Major Equipment Purchases N. SDCFA Capital Improvement Projects O. SDCFA Future Capital Improvement Projects P. Glossary of Terms Q. Bibliography San Diego County Fire Authority Master Plan 6

8 1. EXECUTIVE SUMMARY The San Diego County Fire Authority (SDCFA), CAL FIRE and various volunteer fire companies collaborated to develop the path that is presented in this Fire Master Plan. The staff, fire agencies and officials have provided a great deal of written and verbal information during the course of this work. All have provided accurate and complete information and we are grateful for their assistance and cooperation. The Fire Master Plan is intended to serve as a strategic planning document for policy makers, and executive management on operational, management and fiscal decisions pertaining to the SDCFA. The Fire Master Plan will provide a five year plan (Fiscal Year ) for the SDCFA to implement changes identified in the Plan. We emphasize that the consideration of this Fire Master Plan and the eventual adoption depends on the ability of the leadership and policy makers to make informed decisions about the quantity and quality of fire services in the unincorporated areas of San Diego County. The Fire Master Plan is intended to serve many purposes, including: Enhance Public Awareness and Understanding to help residents of the county better understand the County Fire Authority and its mission to improve fire services, public health, fire safety, and welfare; economic vitality; and the operational capabilities of partner agencies; Create a Decision Tool for Management to provide information that executive managers and policy makers need to take action to address vulnerabilities both today and in the future; Promote Compliance with State and Federal Program Requirements to insure that the SDCFA and its contract fire associates can meet or exceed state and federal mandates and take full advantage of state and federal grant programs, policies, and regulations that encourage collaboration and regional leadership. A Strengths, Weakness, Opportunities, and Threats (SWOT) Analysis was completed by the Fire Authority staff. Strengths and weaknesses have been identified, opportunities for development of new programs have been listed, and internal and external threats have been identified. As with any type of planning for the future, assumptions have been made. The Fire Master Plan reviews the current state of the volunteer firefighters, apparatus, equipment and facilities to identify current and projected needs over the next five years. The current and future staffing needs are projected for career and volunteer staffing as well as administrative staffing. Staffing, apparatus, vehicles, equipment and facilities are important resources in executing the mission of the San Diego County Fire Authority. A schedule has been developed for replacement of apparatus, vehicles, and equipment along with cost projections to assist in budgeting. A proactive approach has been developed for the present and the future in the area of fire prevention. The SDCFA under Goal One below has set an objective to become the regional fire prevention authority in the unincorporated areas of the county. A comprehensive and effective 7 San Diego County Fire Authority Master Plan

9 fire prevention program is a particularly cost effective method to manage risk in the community. We are uniquely positioned to coordinate these efforts with other county departments, fire agency partners and the community. Up to date laws, codes and greater enforcement of the codes will bring a consistent application that developers and the community can count on in bringing new development to the unincorporated area of the county. 1.1 Goals and Objectives This Fire Master Plan contains ten goals. These goals reflect the County s desire to maintain and improve the levels of service to the citizens of San Diego County. The goals are: Goal One: Goal Two: Goal Three: Goal Four: Goal Five: Goal Six: Goal Seven: Goal Eight: Goal Nine: Goal Ten: Improve regional fire prevention and public awareness Maintain facilities, equipment, technology and apparatus Maintain a strong relationship with cooperative partners Provide cost effective services while maintaining excellent customer services Seek fiscal sustainability to ensure consistent services Maintain well-trained volunteer firefighters Strengthen volunteer leadership and management skills Strengthen and reinforce a positive public perception of the Fire Authority Enhance the health and safety of volunteer firefighters Embrace diversity Each goal has associated objectives. Under each of these objectives are performance measures that are quantified in order to provide comparisons for the future. These measures become benchmarks for comparisons with five year averages. Comparative data helps to establish reasonable Board of Supervisors and community expectations assessing efficiency and effectiveness. Additionally, this will identify practices that will lead to superior service. 1.2 Financial Plan The Fire Master Plan is a 5-year plan. Program needs are described here and will be reviewed on an ongoing basis. The Plan will have the Fire Authority s 2-year financial forecast; additional program needs in outer years are contingent upon available funding, to be reviewed annually. The County uses the General Management System (GMS). The GMS is a framework that establishes and guides County operations and service delivery to residents, businesses and visitors. Using GMS, the County sets goals, prioritizes resources, evaluates performance, ensures cooperation and rewards accomplishments in a structured and coordinated way. The GMS process begins with creating a long-range, five-year Strategic Plan, followed by a short-term, two-year Operational Plan, which encompasses the budget process. These Planning Cycles will be the focus in this Fire Master Plan. The Financial Plan is designed to be flexible, enabling the County to respond to unforeseen increases in service levels. This approach allows the County time to make adjustments to coincide San Diego County Fire Authority Master Plan 8

10 with service levels. Conversely, this phased approach allows the County and the Fire Authority to forego capital purchases and associated operating costs if increases in service levels do not occur. The Plan is both reasonable and cost-effective. While several of the recommendations are administrative changes, additional resources are required to maintain service levels and support improvements to the program. The Fire Authority staff has identified several financial options consistent with the approach outlined in the Citygate Associates Regional Fire Services Deployment Studies of 2010 and Living Document This Fire Master Plan establishes the base level of service that the County has planned to provide the public. The Plan focuses on the service delivery, training, staffing and resources required for the County Fire Authority to serve the citizens of San Diego County and its visitors. The Plan allows the Fire Authority to meet many of its challenges in a cost-effective manner. The Fire Master Plan will be an integral part of the Fire Authority s planning process now and in the future. While the Plan allows flexibility, it is a good planning tool for the Board of Supervisors and the Chief Administrative Officer to enforce budget discipline. The Plan components are interconnected; changing one aspect of the Plan may result in changes to other aspects. The Plan is a living document. In order to ensure that the strategies employed today can also be employed in the future, this Fire Master Plan will be reviewed and evaluated on an ongoing basis and revised as necessary. The Plan will be brought to the Board of Supervisors for approval every five years. The Fire Master Plan represents a solid investment in the San Diego County Fire Authority s future. It allows the County of San Diego to maintain and improve the capabilities of the volunteer firefighter s to quickly respond to an emergency with the required resources and training. In line with the County of San Diego s strategic priorities, the San Diego County Fire Authority Master Plan will support the development of Safe Communities. In addition, the Master Plan is designed to support the County s 10-year initiative, Live Well San Diego, to ensure residents within those communities are Living Safely through improved volunteer firefighter retention and training programs and through by collaboration with partner agencies, making communities resilient to disasters and emergencies. 9 San Diego County Fire Authority Master Plan

11 2. MISSION AND VISION STATEMENTS MISSION: The following statement is where we want to go: Coordinate, regionalize and improve fire protection and emergency response services provided by State, local career and volunteer fire agencies in the unincorporated areas of the County. VISION: The following represents what we want to achieve: Comprehensive fire and emergency medical services provided effectively and efficiently through agency collaboration and leadership. San Diego County Fire Authority Master Plan 10

12 3. VALUES The values of the San Diego County Fire Authority s service to the San Diego County community are: Integrity We are committed to honest and ethical behavior and will lead through an ability to be trusted. Competency We strive for excellence and demonstrate a high level of professionalism, with training and education as our foundation. Safety We are committed to protecting our own health and ensuring the safety and well being of our team and those we serve. Customer Service We respect each person as an individual and treat all volunteers and customers with the utmost consideration. Accountability We take responsibility for our actions and provide undivided commitment to the goals of the San Diego County Fire Authority. 11 San Diego County Fire Authority Master Plan

13 4. INTRODUCTION AND BACKGROUND 4.1 Why Was It Created? The San Diego County Fire Authority (SDCFA) was created by the Board of Supervisors in June 2008 to improve fire protection and emergency medical services in the region. The Fire Authority provides one overall operations chief, and administrative support for the fire agencies serving the unincorporated area with County funding. The Fire Authority strives to unify the administration, communications, information technology and training to rural fire agencies and to extend around the clock protection to 1.5 million acres of the unincorporated county that previously had either limited or part-time on-call protection. The Fire Authority provides fire and emergency medical services through contracts with CAL FIRE, Fire Protection and Water Districts, and Volunteer Fire Companies. SDCFA staff also manages the apparatus and equipment used by the fire agencies and coordinates the volunteer fire fighters providing service at the fire stations. Organizationally, the SDCFA is located within the Public Safety Group Executive Office. The Chief Administrative Office (CAO) is responsible for implementing the policy directives of the Board of Supervisors and managing the day-to-day operations and functions of County Government. The CAO manages five groups: Public Safety, Land Use & Environment, Community Services, Health & Human Services Agency and Finance & General Government. In 2008, at creation, the SDCFA was established in the Land Use & Environment Group under the Department of Planning and Land Use. The County of San Diego retained Citygate Associates to conduct a Regional Fire Services Deployment Study (see Section 4.2), which recommended that the Fire Authority be relocated into the Public Safety Group. On September 14, 2010, the Board of Supervisors approved the transfer of the operation of the San Diego County Fire Authority and the responsibility for associated County Services Areas and Fire Mitigation Funds from the Land Use and Environment Group to the Public Safety Group under the Executive Office. 4.2 How Was It Created? On June 25, 2008, the Board of Supervisors received the Hybrid Plan Proposal contained within the Fire and Life Safety Reorganization Report (June 2008) and authorized the phased implementation of the Hybrid Plan. The Hybrid Plan is a County multi-step plan to improve fire protection and emergency medical services in the unincorporated area. Each step would require LAFCO to approve a jurisdictional reorganization. The Hybrid Plan took advantage of the 18 CAL FIRE stations as the backbone of the fire delivery system. The goal was to have one overall operations Chief, along with administrative support though County funding. The resulting combination department of career fire fighters supplemented by volunteer fire fighters serves to regionalize both administrative and operational functions. San Diego County Fire Authority Master Plan 12

14 The Supervisors initial implementation actions created a zone within County Service Area No. 135 called the San Diego County Fire Authority, to improve fire protection and emergency medical services in the region. HYBRID PLAN STEP I The Local Agency Formation Commission (LAFCO) approved the Hybrid Plan Step I reorganization in October 2008, and authorized the provision of fire protection services within CSA 135 as a latent power. Step I reorganized about 0.9 million acres of unincorporated territory including the communities of Sunshine Summit, Intermountain, Ranchita, Shelter Valley, Ocotillo Wells, and De Luz, where emergency services had been provided by volunteers and funded through volunteer fundraising and county grants. HYBRID PLAN STEP II On January 25, 2011, the Board of Supervisors requested that LAFCO approve an application to provide structural fire protection services within a specific area of County Service Area No. 135 and proposed the Hybrid Plan Step II Reorganization to improve structural fire protection and emergency medical services within the unincorporated area of San Diego County. The reorganization involved the dissolution of five County Service Areas (Mt Laguna, Palomar Mountain, Boulevard, Campo and San Pasqual) which had provided governmental structure for volunteer fire protection operations, concurrent with expansion of CSA 135 (San Diego Communications/Fire Protection) latent powers for structural fire protection services to encompass the territory within the dissolved CSAs. Step II added 136,818 acres to the latent powers area of CSA 135. The volunteer organizations were not subject to reorganization statutes and continued to operate under their current registered non-profit (501(c)(3)) organization status and contract with the County as service providers within CSA 135. The reorganization strengthened the command structure of the San Diego County Fire Authority and ensured long-term viability of fire protection services within those areas. The reorganization was completed on March 12, HYBRID PLAN STEP III Step III is currently underway, and if implemented would expand the latent powers area to include the remaining 491,530 acres of the SDCFA and reorganize the Pine Valley and San Diego Rural Fire Protection Districts under CSA County of San Diego and Its Communities San Diego County, one of 58 counties in the State of California, was established on February 18, 1850, just after California became the 31st state. The County stretches 65 miles from north to south, and 86 miles from east to west, covering 4,261 square miles. Elevation ranges from sea level to about 6,500 feet. Orange and Riverside Counties border it to the north, the agricultural communities of Imperial County to the east, the Pacific Ocean to the west, and the State of Baja 13 San Diego County Fire Authority Master Plan

15 California, Mexico to the south. Geographically, the County is on the same approximate latitude as Dallas, Texas and Charleston, South Carolina. San Diego County is comprised of 18 incorporated cities and 17 unincorporated communities. The county's total population in 2010 was approximately 3.1 million with a median age of 35 years (Census 2010). San Diego is the second most populous county in the state. 4.4 Unincorporated San Diego County The unincorporated County consists of a population of approximately 486,000 residents and 26 Community Planning Areas. Many of the communities in the unincorporated County jurisdiction are located in rural areas in the mountains to the north, deserts to the east, or along the border of Mexico. Rancho Santa Fe, an affluent residential and resort community, is one of the exceptions, located within the urban core area. The community of Julian is located in the central mountains along a principle travel route between the rural desert and metropolitan San Diego, and is a common tourist destination. The Community Planning Areas are Alpine, Bonsall, Borrego Springs, Boulevard, Crest/Dehesa/Granite Hills/Harbison Canyon, Cuyamaca, Descanso, Fallbrook, Hidden Meadows, Jacumba, Jamul/Dulzura, Julian, Lake Morena/Campo, Lakeside, Pala-Pauma, Pine Valley, Portrero, Rainbow, Ramona, San Dieguito (Rancho Santa Fe), Spring Valley, Sweetwater, Tecate, Twin Oaks, Valle De Oro, and Valley Center. 4.5 Land Use The unincorporated portion of San Diego County encompasses approximately 2.3 million acres, or 3,570 square miles. A majority of the unincorporated County s land, in excess of 90 percent, is either open space or undeveloped. This includes several large federal, state, and regional parklands that encompass much of the eastern portion of the County. Only 35 percent or about 807,000 acres of the unincorporated County is privately owned. Over 66 percent of the land within San Diego County is publically owned and is not subject to development (See Appendix A). This public ownership includes the Cleveland National Forest, the California State Parks System, Tribal Reservations, County owned lands, military reservations and private conservatorships. This reduced amount of available land for new development directs people and the associated infrastructure for housing to be generally found in well identified communities. Looking at a map of the existing infrastructure (dwellings, commercial, etc.) throughout the unincorporated portion of the county, we would find most of the infrastructure within designated communities. Generally, a series of various roads lead to or are defined within these communities. Zoning within those communities is usually structured so that smaller parcels are generally located in a main street community type area, with larger parcels becoming predominant outside of where the community services or retail and commercial uses exist. Water service in the unincorporated area is generally on water tanks with wells, although some water systems exist in a few communities. San Diego County Fire Authority Master Plan 14

16 4.6 Economic Characteristics The San Diego region offers a vibrant and diverse economy along with a strong and committed public-private partnership of local government and businesses dedicated to the creation and retention of quality jobs for its residents. Although slowed by the recession and defense cuts in the late 1980 s and early 1990 s, the business climate continues to thrive due to the diversification of valuable assets such as world class research institutions; proximity to Mexico and the Pacific Rim; a well educated, highly productive work force; and an unmatched entrepreneurial spirit. There are several reasons for the strong labor supply in San Diego. The area's appealing climate and renowned quality of life are two main factors that attract a quality workforce. The excellent quality of life continues to be an important advantage for San Diego companies in attracting and retaining workers. In addition, local colleges and universities with a population of over 180,000 students, augment the region's steady influx of qualified labor. 4.7 Community Risk - Structure/Wildfire Fires A structure fire presents a risk to the occupants as well as a risk of the fire spreading to other structures or the vegetation. A typical structure fire in a single family dwelling, mobile home, or trailer, generally requires between firefighters to extinguish; however, the required number of firefighters needed may be higher or lower depending upon the severity of the fire. Although current fire codes require fire sprinklers, smoke detectors, and firefighting water supplies, many existing dwellings do not have these in place. This poses a critical problem for responding fire professionals. To provide the required fire flow needed to extinguish a structure fire in areas without a municipal water system, firefighting water supplies must be carried on water tenders, often over long distances requiring additional firefighters. In addition, due to lack of fire sprinklers or smoke detectors, occupants may need rescue more urgently which only compounds the problem. Generally speaking, the death rates from structure fires in rural areas of the nation are far higher than most urban areas. Isolated areas can be prone to delays in the reporting of fires. This, coupled with very long or extended response times, increases the likelihood of a fire spreading to other structures or the vegetation. A wildfire is an uncontrolled fire spreading through vegetative fuels and exposing or possibly consuming structures. Wildfires in remote areas often begin unnoticed and spread quickly. Naturally occurring species of grasses, brush, and trees provide the fuel for wildfires. A wildland fire is a wildfire in an area in which development is essentially nonexistent, except for roads, railroads, power lines and similar facilities. A Wildland-Urban Interface fire is a wildfire in a geographical area where structures and other human development meet or intermingle with wildland or vegetative fuels. Significant development in San Diego County is located along canyon ridges at the Wildland-Urban Interface. Approximately 80 percent of wildfires are caused by human activity, including debris burns, arson, or carelessness. Lightning strikes are the next leading cause of wildfires. Wildfire behavior is based on three primary factors: fuel, topography, and weather. The type, age and amount of fuel, as well as its burning characteristics and level of moisture affect wildfire behavior. The continuity of fuels, 15 San Diego County Fire Authority Master Plan

17 expressed in both horizontal and vertical components is also a determinant of wildfire behavior. Topography is important because it affects the movement of air (and thus the fire) over the ground surface. The slope and shape of terrain can change the speed at which the fire travels, and the ability of firefighters to reach and extinguish the fire. Weather can have an effect on the probability of wildfire and has a significant effect on its behavior. Temperature, humidity and wind also affect the severity and duration of wildfires. Appendix B provides a Fire History Map displaying significant wildfires in the county. Large fires could have several indirect effects beyond those that a smaller, more localized fire would create (see Figure 1). These may include air quality and health issues, road closures, business closures, and others that increase the potential losses that can occur from this hazard. Predictive modeling for a larger type of fire is difficult, but the outcomes of the most recent San Diego fires (Firestorm of 2003 & 2007) can be used as a guide for fire planning and mitigation efforts. Figure 1 Major * Wildfires in San Diego County ( * larger than 5,000 acres) Fire Date Acres Burned Structures Destroyed Structures Damaged Deaths Conejos Fire July ,000 Not Available Not Available 0 Laguna Fire October , Not Available 5 Harmony Fire October , (Carlsbad, Elfin Forest, Encinitas, San Marcos) La Jolla Fire (Palomar September , Mtn) Viejas Fire January , Gavilan Fire (Fallbrook) February , Pines Fire (Julian, July , Ranchita) Cedar Fire October ,278 5, Paradise Fire October , Otay Fire October , Roblar (Camp October , Pendleton) Mataguay Fire* July , Horse Fire* July ,681 Not Available Not Available 0 Witch Creek Fire October ,990 1, Harris Fire October , Poomacha Fire October , Not Available 0 Ammo Fire October ,004 Not Available Not Available 0 Rice Fire October , Not Available 0 Eagle Fire July , Chariot Fire July , Note: Information gathered above is from the California Department of Forestry and Fire Protection website and the San Diego County Hazard Mitigation Plan. San Diego County Fire Authority Master Plan 16

18 4.8 County Service Area 135 On June 25, 2008, the Board of Supervisors created the San Diego County Fire Authority (SDCFA) as a zone within County Service Area (CSA) 135 (Regional Communications). The SDCFA zone includes approximately 1.57 million acres of unincorporated territory. Local Agency Formation Commission (LAFCO) approval was not required to create the SDCFA zone; however, authorization to provide fire protection and emergency medical services (EMS) as a new service required LAFCO to approve an activation of latent powers. Resolution No declared that, "...the Board of Supervisors will apply to LAFCO to exercise structural fire protection and emergency medical services powers within the zone in a three step process" (see Appendix C). Step I was put into action on October 6, 2008, when LAFCO approved activation of latent powers within a 943,000 acre sub-area of CSA 135, which represented approximately 60 percent of the SDCFA. Step II was implemented in December 2011 and completed in March 2012, when LAFCO approved an expansion of the existing latent powers area to include an additional 137,000 acres, which represented the service territory of five CSAs that were concurrently dissolved. The latent powers area currently includes approximately 69 percent of the SDCFA zone and has a sphere-of-influence that is generally coterminous with the latent powers area except for seven small special study areas on the western boundary. Activities within Step I were primarily funded by annual allocation of discretionary county revenues; grants and volunteer efforts contributed secondary funding. Funding for combined Step I and II activities continued to be provided by the County; however, the Step II reorganization transferred approximately $178,426 of Fiscal Year property tax revenue plus an annual growth increment and $122,970 of annual voter-approved assessment revenue from the five dissolved CSAs to CSA 135. The property tax may be used for any purpose that is a legal expenditure of County funds that may be allocated by the Board of Supervisors. Conversely, the voter-approved assessment revenue has legal restrictions of expenditures and can only be used to provide services approved by the voters within the specific areas where the assessments were levied. Step III proposes to reorganize the Pine Valley and San Diego Rural Fire Protection Districts through the dissolution of the fire districts and by merging the former areas into CSA 135. A brief description of each fire district is as follows: Pine Valley Fire Protection District (PVFPD) - Serves and protects over 2,200 residents living in an area approximately 75 square miles. The PVFPD provides structural fire protection services and basic life support-level emergency medical services within the communities of Pine Valley and Guatay. There is one fire station in the District which is staffed through a combination of paid and volunteer firefighters. Pine Valley FPD is located just east of Alpine FPD, on the northern borders of Rural FPD and includes a significant amount of the Cleveland National Forest where the U.S. Forest Service (USFS) provides wildland fire protection. San Diego Rural FPD - Serves and protects over 26,500 residents living in an area of 720 square miles. The District provides structural fire protection services and basic life 17 San Diego County Fire Authority Master Plan

19 support-level emergency medical services. There are nine staffed fire stations that protect a primarily rural area. The fire department is a combination department that uses both paid and volunteer firefighters. Rural FPD is located just to the east of the City of San Diego with the southern boundaries being the City of San Diego itself and approximately 50 miles of the southern International Border with Mexico. San Diego County Fire Authority Master Plan 18

20 5. SWOT ANALYSIS The following is an analysis of the Strengths (S), Weaknesses (W), Opportunities (O), and Threats (T) that face the San Diego County Fire Authority. STRENGTHS Answers directly to the DCAO/CAO Well-equipped volunteer firefighters Fire prevention services increased presence through regional leadership. Consolidated Fire Code Defensible Space Program Increasing GIS capabilities Network of relationships within County government Diverse staff with complimentary talents and fire service experience High level of collaboration throughout the region, especially through CAL FIRE WEAKNESSES Resources to support identified goals and objectives: o Equipment and resource requirements o Staffing requirements for mission More certifications needed by volunteer firefighters Regional training plan needed Social networking needed Lack of fee schedule to provide full cost recovery for fire prevention services OPPORTUNITIES Public-private partnerships Faith-based initiatives Building relationship with the media Building public awareness about fire safety Building regional fire prevention bureau GIS utilization at Incident Command Posts Establishing fire station minimum requirements IT Initiative to provide rapid information to fire stations Enhancement of communication and web technology Federal and State grant funding THREATS Changing economic environment State budget County budget An aging population Lack of trained volunteer firefighters to staff stations 19 San Diego County Fire Authority Master Plan

21 6. ORGANIZATIONAL STRUCTURE The San Diego County Fire Authority (SDCFA) is composed of two branches Operations and Administration as shown in Figure 2. Figure 2 Chain of Command Public Safety Group DCAO Fire Warden San Diego County Fire Authority Operations San Diego County Fire Authority Administration, Prevention & Support Services Fire Chief CAL FIRE Unit Chief Director of Fire Authority Program Manager 6.1 Management & Administration The SDCFA was formed as the administrative agency to implement policy decisions, budgeting processes and integrate fire agencies into CSA 135. Additionally, the Fire Authority manages contracts with cooperative partners for fire services. The SDCFA sets the service standards and monitors the ability of each cooperative partner to comply, and develops, in cooperation with them, remediation plans as required. The Fire Warden provides Executive Management-level direction to SDCFA. The Fire Warden acts as a liaison between local Chiefs and County land use officials. Day-to-day, direct leadership for the program is performed by the Program Manager. The dedicated staff of thirteen (13) carries out the administrative, logistical, fiscal and fire prevention functions of the program. Figure 3, Administrative Organization chart, illustrates the process improvements within the SDCFA that San Diego County Fire Authority Master Plan 20

22 created three divisions for better administrative efficiencies. The SDCFA program is charged with: Establishing Fire Authority Policies and Procedures. Ensuring fiscal stability and grant management. Evaluating facilities, apparatus and equipment through annual inspections. Purchasing fire apparatus assigned to fire stations and coordinating maintenance. Conducting fire prevention inspections, plan check reviews on new development and tenant improvements. Implementing new code changes and standards. Providing liaison to County, State and National Fire Service organizations. Coordinating initial and ongoing training of volunteer firefighters. Implementing the Fire Authority Information Technology Strategy. Maintaining contracts with fire service providers. Providing Regional Leadership in the unincorporated areas of the county. Figure 3 Fire Authority Administrative Organization 21 San Diego County Fire Authority Master Plan

23 6.2 Operations Chain of Command CAL FIRE is the operational fire agency lead for the Fire Authority. In June 2008, the Board of Supervisors designated the CAL FIRE Fire Chief as the County Fire Authority Fire Chief. The Fire Chief is responsible for implementing all operational issues with partner agencies consistent with this Fire Master Plan and their contract with the County. Figure 4 depicts the operational organizational structure for the SDCFA. This structure implements the assignment of one CAL FIRE Captain to each volunteer fire station to support the operational needs of the volunteer fire station. This relationship will facilitate two-way communication between the volunteer and the CAL FIRE stations. A full-size Operational Organizational diagram is included as Appendix D. Figure 4 Fire Authority Operational Organization San Diego County Fire Authority Master Plan 22

24 7.1 Standards of Cover 7. EMERGENCY RESPONSE A Standards of Response Coverage Plan, or Standards of Cover (SOC), includes the formal policies of the governing bodies that determine the distribution and concentration of fire stations and resources. The development and adoption of such policies includes reviewing available funding, community expectations, setting measurable response goals, and establishing a system to document and evaluate performance. The SOC Plan relies on decisions made regarding the distribution and concentration of field resources in direct relationship to the potential demand, to prepare and determine resource deployment. To control a fire before it has reached an uncontrolled state, or to treat a medical patient in a timely manner, the geographic distribution of fire responders in conjunction with the concentration of apparatus must be calculated to obtain maximum effectiveness against the greatest number and types of risk. SOC evaluations are generally based on travel times in accordance with the County s General Plan. Current travel times in the unincorporated area exist at the 5, 10 and 20-minute mark to travel to the scene of an emergency based on minimum lot size. The more remote areas of the county with less population density, larger minimum lot sizes and fewer improvements are planned to be within the 20-minute travel time criteria. Most of the areas in the unincorporated areas are within the 20-minute travel time criteria. Although SDCFA covers areas in the unincorporated areas of San Diego County, which have very limited resources in a very large geographical area, the Citygate Associates report entitled Regional Fire Services Deployment Study (2010) concluded that additional fire stations are not needed in the eastern quadrant of the unincorporated area unless the residents want lower travel times, or new population growth occurs. The Fire Authority s SOC is currently being evaluated and a comprehensive plan is under development. SDCFA staff is reviewing the locations and resources of all the fire stations within CSA 135 and will develop draft response maps based on the County s General Plan standards (a sample map is included in Appendix E). Fire Authority staff will conduct a gap analysis of these baseline coverage maps to determine if changes to station location or station staffing are needed. The SDCFA continues to review and apply the requirements of the Insurance Services Office (ISO) in an effort to provide residents with the opportunity to obtain lower homeowner insurance rates. ISO requirements are not mandatory but can be utilized as a bench mark to improve fire stations ISO rating. The Standards of Coverage analysis will lead to meeting the best ISO classification rating possible within the available funding. The goal is to have an ISO rating of 8-B in all areas of County Service Area 135, to reduce the insurance rates that individual property owners and businesses pay in communities. 23 San Diego County Fire Authority Master Plan

25 7.2 Amador Plan The Amador Plan is defined in Public Resources Code Sections 4143 and 4144; it is named after Amador County, the first county to execute this type of agreement with CAL FIRE. It allows the Director of CAL FIRE, when requested, to enter into cooperative fire protection agreements with qualifying cities, counties and special districts to provide for non-fire season use of CAL FIRE equipment, personnel and facilities for fire prevention and suppression. In those areas without an Amador contract, CAL FIRE stations are closed and personnel revert to a 40-hour workweek. The Amador Plan provides for a minimum engine staffing level of two (2) career firefighters. During the Amador period, CAL FIRE provides full-service fire protection and responds to wildland fires, structure fires, floods, hazardous material spills, swift water rescues, civil disturbances, earthquakes and medical emergencies of all kinds. SDCFA funds the difference between the non-fire season base pay and extended CAL FIRE staff availability for 24-hour emergency response. The regular base pay and benefits are paid by CAL FIRE. It is a very cost effective way for the County to maintain year-round fire protection and emergency medical services for San Diego County communities. The Amador Plan is reviewed annually to determine the best allocation of available resources to ensure coverage in the unincorporated areas of the county. See Figure 5 for fire stations funded under the Amador Plan in Fiscal Year Figure 5 Fire Stations Open During Winter Period Supervisorial District Funding Station Incidents Jurisdiction Winter Staffing Population (est.) CAL FIRE Red Mountain Station # North County FPD 3 person 5 24,263 9,332 (CF) Monte Vista Station # San Miguel FPD 3 person 2 125,042 42,51 5 Lyons Station # San Diego Rural 3 person 2 4,728 1,818 FPD Julian Station # Julian Cuyamaca 3 person 2 3,520 1,882 FPD Mt. Woodson Station # Ramona MWD 3 person 2 34,254 11,24 0 SDCFA Miller Station # Deer Springs FPD 2 person 5 14,272 5,489 Amador * De Luz Station #16 96 SDCFA 2 person 5 1, Dulzura Station # San Diego Rural 2 person 2 1, FPD Potrero Station # San Diego Rural 2 person 2 1, FPD Campo Station # SDCFA 2 person 2 1, White Star Station # SDCFA 2 person 2 1, Warner Springs Station 223 SDCFA 2 person 5 2, #52 Rincon Station # Yuima MWD 2 person 5 2, Valley Center Station # Valley Center 2 person 5 22,737 8,745 FPD Witch Creek Station # SDCFA 2 person 2 1, * Amador Stations are determined annually San Diego County Fire Authority Master Plan 24 Roof tops (est.)

26 7.3 Operating Plan The SDCFA, through the County of San Diego, has had a Schedule A Agreement for Fire and Emergency Medical Services with CAL FIRE since Originally, a Request for Proposal (RFP) was submitted to pursue the first agreement. The original agreement was amended many times for a period of 7 years. During the initial agreement period, the County of San Diego Board of Supervisors appointed the CAL FIRE San Diego Unit Chief as the County Fire Chief of the SDCFA. The initial agreement utilized the CAL FIRE stations under Amador as the Backbone of the SDCFA Combination Department, where career and volunteer firefighters provide a valuable service to the residents within CSA 135 and partner jurisdictions. A new contract with CAL FIRE was executed as of July 1, As recommended in the Citygate Report of June 20, 2012, SDCFA in cooperation with CAL FIRE has defined the operational roles, responsibilities and authority in a new Agreement called the Operating Plan that clearly delineates CAL FIRE s responsibilities (see Appendix F for a Table of Contents and Introduction). The Operating Plan is a supplementary document to the Schedule A Agreement between CAL FIRE and SDCFA. The Plan outlines expectations between the agencies that are not specifically identified within the Schedule A Agreement itself. The Operating Plan is intended to provide operational and administrative direction to CAL FIRE in order for them to perform their fire service duties. CAL FIRE s operational task is to run a combination career/volunteer department within the budget of the SDCFA and the State of California. 7.4 Closest Resources Concept The concept of dispatching the closest resource provides for the planned response of the closest fire resource to a fire or EMS emergency regardless of jurisdiction or boundaries, proving the quickest possible response. In some cases, this can reduce the response times by 60-75%. The closest resource concept will also establish how to place back up resources in vacant stations. 7.5 Communications and Dispatch Within the SDCFA contract with CALFIRE, dispatchers are funded to cover CSA 135 VFCs as well as certain fire protection districts. SDCFA stations are dispatched by CAL FIRE with one exception. The San Pasqual Volunteer Fire Company is dispatched by the City of San Diego. 7.6 Call Workload SDCFA volunteer and partner fire stations responded to over 4,000 calls in Figure 6 depicts all calls responded to by incident type. 25 San Diego County Fire Authority Master Plan

27 Fire Station Figure 6 Station Incident Count Report January 1 December 31, 2012 Fire Call Medical Call Hazardous Materials Call Other Service Call Boulevard Fire Station Campo Fire Station DeLuz Fire Station Intermountain Fire Station Mt. Laguna Fire Station Ocotillo Wells Fire Station Palomar Mountain Fire Station Ranchita Fire Station San Pasqual Fire Station Sunshine Summit Fire Station Shelter Valley Fire Station CALFIRE Warner Springs Pine Valley FPD San Diego Rural FPD - Harbison Canyon San Diego Rural FPD - Dehesa San Diego Rural FPD - Dulzura San Diego Rural FPD - Deerhorn San Diego Rural FPD - Potrero San Diego Rural FPD - Jacumba San Diego Rural FPD - Jamul San Diego Rural FPD - Otay San Diego Rural FPD - Lake Morena San Diego Rural FPD - Descanso Ramona MWD Station Total Calls Total 552 3, ,770 San Diego County Fire Authority Master Plan 26

28 8. COOPERATIVE AGREEMENTS 8.1 Strategic Partnerships Existing Partnerships The San Diego County Fire Authority (SDCFA) administers and manages contracts with Fire Protection Districts, Water Districts, CAL FIRE, and Volunteer Fire Companies. The contracts integrate career and volunteer firefighters into one system of responders. New contracts have been negotiated with the Borrego Springs, Julian, Deer Springs, Pine Valley, and San Diego Rural, Fire Protection Districts; and the Mootamai, Pauma, and Yuima Municipal Water Districts. The contracts provide funding for additional staffing and operational resources. The new agreement with CAL FIRE allows CAL FIRE to provide fire protection oversight and management services on behalf of the County. Additionally, CAL FIRE career firefighters staff some stations within CSA 135. In addition to the above contracts, new contracts with the following volunteer fire companies serving CSA 135 provide improved coordination, planning, training, equipment, and standardization of services (see Appendix G) for the following volunteer fire companies: Campo De Luz Intermountain Mount Laguna Palomar Mountain Ranchita San Pasqual Shelter Valley Sunshine Summit The funding for the volunteer companies is used primarily for operating expenses. Volunteer Fire Companies still maintained their ability to raise funds and receive donations New Partnerships The SDCFA is continuing to improve regional fire prevention. Opportunities to share resources between agencies are currently under discussions with the following Fire Protection Districts: Lakeside Fire Protection District; Deer Springs Fire Protection District, and San Miguel Consolidated Fire Protection District. In some instances, County staff will provide contracted fire prevention and Fire Marshal services for other districts. This would result in additional revenue to the SDCFA to offset increased staffing needs. Alternatively, District staff is co-located in County offices. This provides the opportunity for collaboration on projects, leading to better 27 San Diego County Fire Authority Master Plan

29 customer service, and one-stop services for plan checks and building permits. More information on fire prevention is presented in Section Mutual Aid Agreements A Master Mutual Aid Agreement in California was originally signed in Under this agreement, cities, counties and the State joined together to provide for a comprehensive program of voluntarily providing services, resources and facilities to jurisdictions when local resources prove to be inadequate to cope with a given situation. The purpose of the agreement is to provide for systematic mobilization, organization, and operation of necessary fire and rescue resources of the state and its political subdivisions in mitigating the effects of disasters, whether natural or man-caused. Basic Mutual Aid Agreement: 1. No community has resources sufficient to cope with any and all emergencies for which potential exists. 2. Fire and rescue officials must pre-plan emergency operations to ensure efficient utilization of available resources. 3. Basic to California's emergency planning is a statewide system of mutual aid in which each jurisdiction relies first upon its own resources. 4. The California Disaster and Civil Defense Master Mutual Aid Agreement between the State of California, each of its counties, and those incorporated cities and fire protection districts signatory to the agreement does the following: a. Creates formal structure for provision of mutual aid; b. Provides that no party shall be required to unreasonably deplete its own resources in furnishing mutual aid; and c. Provides that the responsible local official in whose jurisdiction an incident requiring mutual aid has occurred shall remain in charge at such incident, including the direction of such personnel and equipment provided through mutual aid plans. The fire agencies in San Diego County developed the San Diego County Fire Mutual Aid Agreement to further agree upon and include Federal and Tribal resources. The San Diego County Fire Mutual Aid Agreement establishes a system of mutual aid for local agencies to furnish firefighters, resources and facilities. The San Diego County Operational Area Fire Coordinator is the coordinator of this Agreement and is the depository of the signed Agreements from the participating fire agencies. Today, all cities, fire protection districts, federal fire and some municipal water districts and tribal fire agencies are signatories to this Agreement and the County. San Diego County Fire Authority Master Plan 28