HomeMy WebLinkAboutFIN 2019-07-22 Item 2C - Budget - Fire Department: Service LevelsAllan Ekberg, Mayor
TO:
INFOR ATIONAL E ORANDU
Finance Council Committee
FROM: Vicky Carlsen, Finance Director
Jay Wittwer, Fire Chief
CC: Mayor Ekberg
DATE: July 17, 2019
SUBJECT: Fire Budget Discussion — Service Levels
ISSUE
Review current and historical Fire Department budget, staffing, and service levels to determine a
sustainable model which meets the City's financial and policy goals.
BACKGROUND
As mentioned above, the City is reviewing current and historical information on the fire
department. This information is being presented to determine policy direction regarding
appropriate budget and service levels.
This memo will focus on fire department minimum and current service levels, excluding the Fire
Marshal's Office. Service levels for the Fire Marshal's Office will be discussed in a separate
memo.
DISCUSSION
A policy decision on the table for discussion is related to service levels and will help guide the
discussion on appropriate budget for the fire department.
Minimum Service Levels
While Article XI, Section 11 of the Washington State Constitution provides for general police
powers for counties, cities, and towns, but there is not a specific statue that provides that cities
must provide fire protection services. However, as a practical matter, a city should provide some
measure of fire protection. There are several ways in which a city could provide fire protection
services:
- Maintain a fire department run by the city's own personnel
- Contract with another city, fire protection district, or regional fire authority for fire protection
services
- Annex directly to a fire protection district or regional fire authority with voter approval
- Form a fire district coextensive with the city or town with voter approval
- Establish a regional fire authority with voter approval
While no specific state law requires a city to provide fire protection services, RCW does specify
that the legislature does intend for cities to set standards for addressing the reporting and
accountability of career fire departments and to specify performance measures applicable to
response time objectives.
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INFORMATIONAL MEMO
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Setting Service Levels and Performance Objectives
Washington State law (Revised Code of Washington) explicitly states that cities are to set their
own services levels and that state law does not limit each city's authority to do so. The Revised
Code of Washington (RCW) acknowledges three entities for the "organization and deployment of
resources for fire departments".
1. International City/County Management Association (ICMA)
2. International Association of Fire Chiefs (IAFC)
3. National Fire Protection Association (NFPA)
By formally recognizing these organizations within RCW 35A.92, the State acknowledges their
research and findings as a resource for cities to set policy regarding the organization, number,
and expected response times for a career fire department. However, adopting the service levels
recommended by those organizations is voluntary, since RCW 35A.92.010 explicitly states that
"this chapter (RCW 35A.92] does not, and is not intended to, in anyway modify or limit the authority
of cities and towns to set levels of service." There is no relevant case law addressing RCW
35A.92, but the City could rely on the language therein to defend itself should it be faced with
claims targeting the City's chosen level of service.
State law also requires a city and/or fire department to publish an annual report which includes
the department's standards, their performance against those standards, and several other metrics
(outlined below).
Cities are to Set Their Own Performance and Service Level Objectives
RCW Section 35A.92 states that every city shall maintain a written statement or policy that
establishes the following:
1. The existence of a fire department
2. The services that the fire department is required to provide
3. The basic organization structure of the fire department
4. The expected number of fire department employees
5. The functions that the fire department employees are expected to perform
This written statement must also include service delivery and response time objectives for each
of the following major service components, if appropriate:
1. Fire suppression
2. Emergency medical services
3. Special operations
4. Aircraft rescue and firefighting
5. Marine rescue and firefighting
6. Wildland firefighting
In 2005, legislation was enacted that requires each city establish their own response time
objectives for the following measurements and states that the city shall establish a performance
objective for the achievement of each of these measurements:
1. Turnout time
2. Response time for the first arriving engine company and for the deployment of a full first
alarm assignment at a fire suppression incident
3. Response time for the arrival of a unit with first responder or higher -level capability at an
emergency medical incident
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INFORMATIONAL MEMO
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The graphic below displays the different segments of the total response time; from the factors that
lead to calling 911 to when initial assigned apparatus arrive at the scene.
Cascade of Events
NI''. 1710 1FAA 'now
1)ispatelt
Time
NITA 1221
Public Narely
ano.vering
point (PSAP)
receives call
Turnout
Time
PSAP
emergency
responders
ReNNIVC
State law also states that each city shall issue an annual written report that evaluates the level of
service and deployment delivery and response time objectives. The evaluations shall be on data
relating to:
1. Level of service
2. Deployment
3. Achievement of each response time objective for each geographic area within the City.
The annual report shall also define the geographic area and circumstances whenever the
standards were not met and explain the predictable consequences of any deficiencies and
address steps necessary for compliance.
Full copies of the applicable RCWs have been included in an attachment to this memo.
Current Service Levels Provided by Tukwila Fire Department
When service levels provide by the fire department are discussed, the discussion is normally
centered around fire and EMS calls. However, there are other types of calls the fire department
provides services for. The chart below summaries the number of calls, by type over the last few
years.
City of Tukwila Service Area
Severe
Rescue & Hazardous Weather/
Emergency Condition Public Natural
Medical Svc Fire Good Intent False Alarm (no fire) Assistance Other Disaster Total
2014 3491 380 398 609 101 137 29 1 5146
2015 3747 379 539 605 97 148 37 3 5555
2016 4057 317 475 631 118 123 28 3 5752
2017 4083 299 469 713 106 145 32 4 5851
2018 4045 313 487 606 86 145 35 0 5717
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INFORMATIONAL MEMO
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In late 307. the reporting system was changed for EMS calls from Fire RMSto E8O for EMS
omUo. In Fine RM8, response time stopped when the Unit aniY8d on scene. On ooem* means
arriving atthe site, not the patient. With E8{]. response time stops when the crew arrives atthe
side ofthe patient. Because ofthe change insystems and the change inwhen the response time
is oonnp|eted. EK88 call response times are only provided through2O17. /\ new dataaet for
comparison purposes will start with 2O18.
Because EMS and fire calls account for 7596ofthe call volume, the discussion onresponse tinloa
will be focused on these two calls types.
From 2014 through 2018 average response times for fire calls has been minutes and 57
seconds. AveragereoponGeUnnoeforFK8F;ca|s,2O14-2O17.hoebeens|ighUv|enoct5nlinuteo
and 40 seconds. The following tables show average response times by type of incident, by year.
As noted in the table, average response time for fire calls declined in 2017 and again in 2018.
However, response times for EMS calls increased slightly in 2017.
2014 0:05:54 0:05:36
2015 0:05:57 0:05:56
2010 0:05IK6 0:05:29
2017 0I5:55 0:0540
2018 0:05:51
Avg. for all years 0:05:57 0:05:40
While the average response time for both fire and EMS calls is less than 6 minutes for the 5-year
period analyzed, not all oaUe have a response time of |eSe than O minutes. Another way to look
at the data is to look at what percentage of call response time is less than a specific standard.
The following charts provide summary information on percentage of response times that are less
than orequal toSminutes. Charts are provided for both fire responses andarnergencymediCe
responses from 2014 through 2018. As the chart for fire oaUa indicates, the number of fire
responses within O minutes has been increasing. However, the number of EMS calls with
response times within the 6minutes has declined abit.
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INFORMATIONAL MEMO
Page 5
64.00%
62.00%
60.00%
58.00%
56.00%
54.00%
52.00%
50.00%
70.00%
68.00%
66.00%
64.00%
62.00%
60.00%
58.09%
56.00%
54.00%
52.00%
50.00%
55.97%
Fire
2014
65.49%
EMS
2014
%<=6 min on Fires
55.41%
Fire
2015
55.66%
Fire
2016
%<=6 min on EMS
67.01%
EMS
2015
59.87%
68.08%
EMS
2016
Fire
2017
61.64%
Fire
2018
66.14%
EMS
2017
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INFORMATIONAL MEMO
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By measuring response times within an 8-minute window, significantly more fire and EMS calls
are within an 8-minute time frame. The following charts demonstrate that more than 80% of all
fire and EMS calls have response times of 8 or less minutes.
90.00%
88.00%
86.00%
84.00%
82.00%
80.00%
78.00%
76.00%
74.00%
72.00%
7000%
90.00%
88.00%
86.00%
84.00%
82.00%
80.00%
78.00%
76.00%
74.00%
72.00%
70.D0%
86.74%
Fire
2014
88.20%
EMS
2014
%<=8 min on Fires
85.22%
Fire
2015
87.11%
Fire
2016
88.63%
%<=8 min on EMS
89.04%
EMS
2015
88.76%
EMS
2016
Fire
2017
88.36%
Fire
2018
87.88%
EMS
2017
At a future meeting, comparison data on response times to other fire jurisdictions will be
presented.
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INFORMATIONAL MEMO
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Public Dutv Doctrine
Under the public duty doctrine, when mcitvnduty inowed tothe public adlarge as general
fire suppression and inspection duties),an individual who is injured bvonalleged breach of that
duty has novalid claim against the City orits officer Vremployees. There are certain exceptions
tVthe public duty doctrine, such aS|ncases where aspecial relationship iocreated (such aowhen
anofficer oremployee makes direct assurances tnamember ofthe public under circumstances
where the person justifiably relies onthose aeounencea);orwhen anofficer oremployee, such oe
a building official, knows about an inherently dangerous condition, has a duty to correct it (i.e. law
enyo that the City ^sha||" correct the cond|t|on), and to||o to perform that duty. Taylor v' Stevens
County, 111VVD.2d159.171-72.758p.2d447(1988). |ngeneral, however, governmental entity
will not be liable to o private party for failure to perform duties that that are owed solely to the
general public (8 duty to all is a duty to no one).
RECOMMENDATION
For information only
ATTACHMENTS
Revised Code ofWashington (RCW)35A.92Fire Departments — Performance Measures:
Attachment A: RC\8/35A.82.D1O: Intent
AttmohnlentB: R{}VV35/\.Q2.O2O: Definitions
AttachnnentC: FlCVV35/\.82.O3O: Policy Statement —Service Delivery Objectives
AtbachnnentD: RCVV35A-82.O4O:Annual Evaluations — Annual Report
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INFORMATIONAL MEMO
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Attachment A: RCW3�.92.01O:Intent
RCVV55A.92J3lO
Intent,
The legislature intends for code cities to set standards for addressing the reporting and
accountability of substantially career fire departments, and to specify performance measures
applicable to response time objectives for certain major services. The legislature acknowledges
the efforts of the international city/county management association, the international
association of fire chiefs, and the national fire protection association for the organization and
deployment of resources for fire departments. The arrival of first responders with automatic
external clefibrillator capability before the onset of brain death, and the arrival of adequate fire
suppression resources before flash -over is a critical event during the mitigation of an
emergency, and is in the public's best interest. For these reasons, this chapter contains
performance measures, comparable to that research, relating to the organization and
deployment of fire suppression operations, emergency medical operations, and special
operations bysubstantially career fire departments. This chapter does not, and isnot intended
to, in any way modify or limit the authority of code cities to set levels of service.
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INFORMATIONAL MEMO
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AttachnlentB: RCVV35A.82.O2O: Definitions
RCVV35A.B2Il2O
Definitions,
The definitions in this section apply throughout this chapter unless the context clearly
requires otherwise.
(1) "Advanced life support" means functional provision of advanced airway
management, including intubation, advanced cardiac monitoring, manual clefibrillation,
establishment and maintenance of intravenous access, and drug therapy.
(Z) ''Aircraft rescue and finefighting" means the firefighting actions taken to rescue
persons and to control or extinguish fire involving or adjacent to aircraft on the ground.
(3) "Brain death" as defined by the American heart association means the irreversible
death ofbrain cells that begins four tosix minutes after cardiac arrest.
(4) "Code city" means a code city that provides fire protection services, which may
include firefighting actions, emergency medical services, and other special operations, in a
specified geographic area.
(5) "Fire department" means a code city fire department responsible for firefighting
actions, emergency medical services, and other special operations in a specified geographic
area. The department must be a substantially career fire department, and not a substantially
volunteer fire department.
/6\ "Fire suppression" means the activities involved in controlling and extinguishing fires.
(7) "First responder" means provision ofinitial assessment and basic first -aid
intervention, including cardiac pulmonary resuscitation and automatic external defibrillator
capability.
(8) "Flash -over" as defined by national institute of standards and technology means
when all combustibles jnaroom burst into flame and the fire spreads rapidly.
(g)"Marine rescue and firefighting" means the firefighting actions taken toprevent,
control, or extinguish fire involved in or adjacent to a marine vessel and the rescue actions for
occupants using normal and emergency routes for egress.
(10) "Response time" means the time immediately following the turnout time that
begins when units are en route to the emergency incident and ends when units arrive at the
scene.
(11) "Special operations" means those emergency incidents to which the fire
department responds that require specific and advanced training and specialized tools and
equipnnent`
(12) "Turnout time" means the time beginning when units receive notification of the
emergency tnthe beginning point otresponse time.
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INFORMATIONAL MEMO
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AttachnlentC: RC\&/35/\g2.O30: Policy Statement — Service Delivery Objectives
pCVV35A.92.03O
Policy statement —Service delivery objectives.
(1) Every code city shall maintain a written statement or policy that establishes the
following:
(a) The existence ofafire department;
(b)Services that the fire department isrequired toprovide;
(c)The basic organizational structure ofthe fire department;
(d)The expected number mffire department employees; and
(e) Functions that fire department employees are expected to perform.
(2) Every code city shall include service delivery objectives in the written statement or
policy required under subsection (1) of this section. These objectives shall include specific
response time objectives for the following major service components, if appropriate:
(a) Fire suppression;
/b\Emergency medical services;
(o) Special operations;
(d)Aircraft rescue and firefighting;
/e\Marine rescue and firefighting; and
-)Wi|d|anHfirefighting.
(3) Every code city, in order to measure the ability to arrive and begin mitigation
operations before the critical events of brain death or flash -over, shall establish time objectives
for t|e following measurements:
ia\ Turnout time;
(b) Response time for the arrival of the first arriving engine company at a fire
suppression incident and response time for the deployment of a full first alarm assignment at a
fire suppression incident;
(c) Response time for the arrival of a unit with first responder or higher level capability
atenemergency medical incident; and
(d) Response time for the arrival of an advanced life support unit at an emergency
medical incident, where this service is provided by the fire department.
(4) Every code city shall also establish a performance objective of not less than ninety
percent for the achievement of each response time objective established under subsection (3)
ofthis section.
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INFORMATIONAL MEMO
Attachment D: RCW 35A.92.040: Annual Evaluations — Annual Report
R[VV35A.9ZD4O
Annual evaluations —Annual report.
(1) Every code city shall evaluate its level of service and deployment delivery and
response time objectives on an annual basis. The evaluations shall be based on data relating to
level of service, deployment, and the achievement of each response time objective in each
geographic area within the code dty's jurisdiction.
(2) Beginning in 2007, every code city shall issue an annual written report which shall be
based on the annual evaluations required by subsection (1' of this section.
(a) The annual report shall define the geographic areas and circumstances in which the
requirements ofthis standard are not being met.
(b) The annual report shall explain the predictable consequences of any deficiencies and
address the steps that are necessary toachieve compliance.
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