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HomeMy WebLinkAboutMINUTES - 03122013 - D.4RECOMMENDATION(S): 1) ACCEPT a report on the feasibility of entering into a partnership with the Moraga-Orinda Fire Protection District to jointly build and operate a single fire station to replace Fire Station-16 (West Lafayette) and Fire Station-43 (East Orinda); and 2) AUTHORIZE the Fire Chief or his designee to enter into formal negotiations with the Moraga-Orinda Fire Protection District to enter into a joint partnership. (Daryl Louder, Fire Chief) FISCAL IMPACT: No fiscal impact for negotations. Potential for capital project costs and ongoing operational costs if the District enters into a partnership with the Moraga-Orinda Fire Protection District to build and staff a station. BACKGROUND: Both FS-16 (West Lafayette) and FS-43 (East Orinda) are located in suburban/rural areas that have low population density and low service demands. However, a fire station is still necessary in the area to maintain adequate response time coverage and due to the high wildland fire risk potential. FS-16 and FS-43 are currently located approximately 1.5 miles apart but are operated by two separate agencies. In APPROVE OTHER RECOMMENDATION OF CNTY ADMINISTRATOR RECOMMENDATION OF BOARD COMMITTEE Action of Board On: 03/12/2013 APPROVED AS RECOMMENDED OTHER Clerks Notes: VOTE OF SUPERVISORS AYE:John Gioia, District I Supervisor Candace Andersen, District II Supervisor Mary N. Piepho, District III Supervisor Karen Mitchoff, District IV Supervisor Federal D. Glover, District V Supervisor Contact: Daryl Louder, 925-335-3500 I hereby certify that this is a true and correct copy of an action taken and entered on the minutes of the Board of Supervisors on the date shown. ATTESTED: March 12, 2013 David Twa, County Administrator and Clerk of the Board of Supervisors By: June McHuen, Deputy cc: D. 4 To:Board of Supervisors From:Daryl L. Louder, Contra Costa Fire Protection Dist. Date:March 12, 2013 Contra Costa County Subject:Feasibility of Partnership between CCCFPD and Moraga-Orinda Fire District to Build Joint Fire Station BACKGROUND: (CONT'D) light of the current fiscal climate, there is an increasing demand for greater efficiency and better utilization of public funds. To this end, the District is working closely with the Moraga-Orinda Fire Protection District to develop solutions that will continue to provide excellent service to the communities, more closely match resources with service demands, and provide significant savings. CONSEQUENCE OF NEGATIVE ACTION: 1) The report on the feasibility of entering into a partnership with the Moraga-Orinda Fire Protection District to jointly build and operate a single fire station to replace Fire Station-16 (West Lafayette) and Fire Station-43 (East Orinda) will not be accepted; and 2) the Fire Chief or his designee will not be authorized to enter into formal negotiations with the Moraga-Orinda Fire Protection District to enter into a joint partnership. CHILDREN'S IMPACT STATEMENT: Not applicable. CLERK'S ADDENDUM Speakers: Bill Granados, Contra Costa County Fire Protection District Advisory Commission; Peter Clark , Happy Valley Improvement Association; Sheila Guess, resident of Lafayette; Vincent Wells, President Firefighters' Local 1230. ATTACHMENTS Joint Station Feasibility Study Attachment A Attachment B Attachment C Attachment D Joint Fire Station-16/Fire Station-43 Feasibility Study: Background - The Contra Costa County Fire Protection District (CCCFPD) operated Fire Station-16 (FS-16) in order to provide fire protection, emergency medical services (EMS), and rescue services to the Upper Happy Valley and Acalanes communities in the western portion of Lafayette. This semi-rural area is primarily comprised of single-family dwellings with a limited number of schools and commercial occupancies. Due to the low population density, the area experiences low emergency service demand levels. For the last six years (2007-2012) the fire station has averaged 253 incidents per year, or .69 calls per day in the first-due area. As such, this unit is underutilized from a unit hour utilization perspective. However, FS-16’s first due area is considered a high wildland fire threat zone with potential for significant fires that would endanger multiple structures. Additionally, there is a demand for EMS services to serve a more mature clientele. The area also has a very poor transportation network that leads to extended response times. To this end, FS-16 is located in the community and staffed in order to provide an acceptable level of fire/EMS protection and reasonable response times for the limited number of incidents in the first-due area. FS-16 was severely damaged during the Loma Prieta Earthquake in 1989 and was deemed uninhabitable. A “temporary” housing unit was placed on the site and that facility remains there today. Due to the age and type of construction, the District has experienced a number of issues with mold and rodent infestation for several years. In June 2012, the fire station was closed due to health and safety concerns and the crew was relocated to FS-15 in downtown Lafayette. Due to budget deficits, E-16 was one of four units that were de-staffed on January 15, 2013. As such, protection for FS-16’s first-due area is now provided to the area by FS-43 and FS-15 in downtown Lafayette. Fire Station-43 (FS-43) is operated by the Moraga-Orinda Fire District (MOFD) and is located approximately 1.5 miles west of FS-16 and shares very similar characteristics. This portion of eastern Orinda is also a semi-rural area and is primarily comprised of single-family dwellings. Due to the low population density, the area experiences low emergency service demand levels. For the last six years (2007-2012) the fire station has averaged 213 incidents per year, or .58 calls per day in the first-due area. FS-43 is an older fire station as well and is currently scheduled to be rebuilt on the current site. Joint Fire Station-16/Fire Station-43 Feasibility Study Page Two 0 50 100 150 200 250 300 2007 2008 2009 2010 2011 2012 FS-16 FS-43 Incidents in FS-16 and FS-43 First Due Area from 2007 - 2012 Concept of Operations - Both FS-16 and FS-43 were built and staffed to provide adequate coverage and response time. An engine company staffed with a crew of three personnel is operated from each fire station. However, the unit hour utilization for both units is well below average and well below recommended efficiency levels for a high performance organization. Additionally, both fire stations are in close proximity to each other and there is a significant amount of overlap in the coverage. In light of the current fiscal climate, there is an increasing demand for greater efficiency and better utilization of public funds. To this end, the District is working closely with the Moraga-Orinda Fire District to develop solutions that will continue to provide excellent service to the communities but more closely match resources with service demands. The proposed solution is for the Contra Costa County Fire Protection District and the Moraga-Orinda Fire District to jointly build a new single fire station to serve both communities. A single engine company staffed with a crew of three (3) personnel including a paramedic would operate from the station. The new fire station would be centrally located on the Lafayette and Orinda border in the area of El Nido Ranch Road between the two existing fire stations. The new location is approximately three quarters of a mile from each of the existing stations. Land acquisition and construction costs would be equally shared between both Districts. The annual personnel and operating cost of the single engine company would also be shared equally by both entities. Service Delivery and Coverage - Due to the close proximity of the two existing fire stations and the areas with overlapping coverage, a new centrally located facility will provide appropriate levels of coverage and response times to each community. Joint Fire Station-16/Fire Station-43 Feasibility Study Page Three Since FS-16 is currently closed, the coverage in that first-due area would be significantly improved. An analysis utilizing “ArcView” GIS software indicates that the response times to the vast majority of western Lafayette would be within a four (4) or five (5) minute travel time. A limited area in the northwest portion of Upper Happy Valley Road has a six (6) minute travel time. The five (5) minute travel times conform to the County General Plan for urban/suburban areas. Attachment A depicts the response times from the current FS-16 location. Attachment B depicts the response times in western Lafayette from FS-43 and FS-15 on Diablo Boulevard in downtown Lafayette. Attachment C depicts the coverage and travel times provided by the proposed fire station on El Nido Ranch Road. The proposed site of the new fire station on El Nido Ranch Road also provides appropriate coverage and response times for the residents of Orinda. A limited number of areas would experience slightly longer response times; however, they would still fall within acceptable limits. Based on data from 2007–2012, Engine-16 responded to an average of 490 calls per year and Engine-43 responded to an average of 478 calls per year. Collectively, the new single engine company would respond to approximately 950 calls per year, or 2.6 calls per day. This is within the acceptable activity limits and still well below the average number of incidents other units in the District respond to. However, it will increase the unit hour utilization and efficiency of the unit. The unit would provide fire protection and paramedic-based emergency medical services. 0 100 200 300 400 500 600 700 2007 2008 2009 2010 2011 2012 FS-16 FS-43 Total runs by FS-16 and FS-43 from 2007 to 2012 Joint Fire Station-16/Fire Station-43 Feasibility Study Page Four Property and Facilities - Staff has reviewed a number of potential properties near the Lafayette and Orinda city limits along El Nido Ranch Road. Obviously, in order to maintain equitable coverage and response times for both Lafayette and Orinda the location of the proposed fire station is very important. Currently, there is a parcel for sale that is very close to the Lafayette and Orinda city limits. Based on a preliminary review by an architectural firm, the property would be appropriate for building and operating a fire station. In order to realize the full benefit of a major capital investment such as a fire station, the cost must be amortized over a 30 to 40-year period. The “life cycle” of the facility will help to drive the governance of this initiative and the long-term savings from the joint endeavor. The facility would be large enough to accommodate an additional unit for “red flag” day coverage or potential needs in the future. Fiscal Implications - One of the most significant advantages of the proposed initiative is the overall reduction in cost and shared savings that will be realized by both Districts. It is important to note that this analysis is based on the premise that FS-16 would be re-staffed when the economy improves and full service is restored to all of the communities. Capital costs for land acquisition, site and utility work, and construction of the new fire station is estimated to be between five and six million dollars ($5-6M). These costs would be shared equally between the two districts. Some of these initial startup costs would be offset by the sale of the existing FS-16 and FS-43 properties. More importantly, significant savings would be realized annually from reduced personnel and operating costs. The annual personnel and operating cost for a fire station in the District is $2,256,100. (See Attachment D for FY-2012-13 Fire Station Costs) Staffing with Regular Permanent Full-Time Personnel - $2,070,000 • Gross regular pay: base, paramedic certification, holiday, scheduled FLSA overtime, uniform • Overtime required to maintain minimum staffing levels • Retirement @ 40.82% • Active employee health and dental insurance • Workers’ Compensation @ 8.5% • Medicare @ 1.45% Joint Fire Station-16/Fire Station-43 Feasibility Study Page Five Operating Costs - $186,100 • Average Station Costs - $18,500 - utilities, maintenance, repairs, trash • Program cost apportionment - $167,600 – firefighting and EMS equipment and supplies, apparatus maintenance, fuel, communications equipment The personnel and operating costs for a Moraga-Orinda fire station is $1,928,761. The average between the two Districts is $2,092,430. Depending on which District staffed the fire station, it is anticipated that the District would save between $964,380 and $1,128,050 annually. Thus the District would recoup our initial capital costs in approximately three years and continue to save approximately $1M annually for the life of the agreement. Based on the life cycle of the new fire station, the District could expect to save between $30 and $40 million dollars during the terms of the agreement after the capital costs are repaid. Timeline - This proposal is time sensitive for two distinct reasons. First, the Moraga-Orinda Fire District had previously decided to replace FS-43 with a new facility. MOFD was in the process of obtaining bids for this new construction when the feasibility of this project first surfaced. The MOFD Board of Directors has delayed the bid process while the districts explore the feasibility of this joint initiative. However, construction costs are expected to increase during this interim period. Significant delays would increase their construction costs for FS-43 if this initiative is deemed unacceptable. Equally important is the availability and cost of potential properties for a new joint fire station. The appropriate property that provides equitable response times and coverage is critical to the success of this endeavor. Currently, there is a parcel that is on the market that is very close to the Lafayette-Orinda border. A preliminary assessment by an architectural firm has deemed the property appropriate for building and operating a fire station. Governance - A long-term joint venture between two fire districts will require a formal contractual structure. This may be accomplished through a contract, memorandum of understanding, or a form of joint powers agreement. Any agreement will need to address the following: • The length of the of the agreement should be a minimum of 30 years to offset capital investments in the new fire station • A binding contractual agreement and cost apportionment must be established between the two Districts to ensure equal contributions for initial capital costs and long-term operating costs. • A joint ownership and operation agreement must be established for the facility to ensure equitable distribution of real property and financial responsibilities. Joint Fire Station-16/Fire Station-43 Feasibility Study Page Six • One District should serve as the primary agency to staff the fire station on a full-time basis. Currently, the United Professional Firefighters of Contra Costa County (L-1230) is the primary labor group representing firefighters for both Districts. Any temporary staffing needs should be provided by the other agency and the cost should be shared equally by both parties. Any subsequent changes in full-time staff must be agreed to by both parties. • Long-term capital costs, e.g. apparatus replacement should be calculated and included in the contract so that both Districts can equally contribute to a vehicle replacement fund and other needs. • Due to the strong collaborative partnership and the trust that is necessary for success of this initiative, language should be included in the contract to ensure that the existing fire district service area boundaries and sphere of influences remain intact during the life of the agreement. Benefits – • The residents of western Lafayette will have service restored and will maintain appropriate fire and EMS protection and response times. • When service is restored to western Lafayette, the District would have to replace FS-16 due to the unsafe/unhealthy condition of the facility. The capital costs for this project would be paid completely by the District. Under this joint initiative, the District is only responsible for one half of the capital costs of a new fire station. • A single engine company assigned to the joint fire station will more closely match resources with service demands and increase productivity and performance levels. • Addresses public expectations for greater efficiencies and alternative service delivery methods. • As revenue is restored, the District would be able to reallocate the saving from the FS-16/FS-43 initiative and invest them into areas that do not have adequate resources or coverage. Challenges or Concerns - • An aggressive time line is needed in order to purchase available property that would provide the most ideal response times between the two communities. • While this is a very cost-effective solution that would save each District millions of dollars over the life of the agreement, the District must still identify approximately $1M per year for operating costs in a very challenging fiscal environment. Funding for staffing the new station would not be necessary until mid-FY-2014-2015 or early FY-2015-2016. Joint Fire Station-16/Fire Station-43 Feasibility Study Page Seven If the Board of Directors determines that this is a viable and valuable initiative that the District should take advantage of, it may be necessary to reprioritize existing funds in future years to achieve the goal. • Potential zoning and land use issues for the proposed site that need to be addressed. • Although this initiative is time sensitive, the public must have ample opportunity to provide input into the process. • Concerns from neighbors that the proposed site will affect their property values or quality of life. • There would be a net reduction of one engine company in the overall capacity/capability of the two Districts. Capacity is an important factor when simultaneous or greater alarm incidents occur. Summary and Recommendation – The proposal to jointly build and operate a single fire station to replace FS-16 and FS-43 provides a significant long-term solution to provide fire and EMS protection for both communities in a cost- effective manner. This proposal provides appropriate levels of protection/service, improves performance and utilization of resources and saves each district millions of dollars over the life of the project. There are a number of fiscal and governance challenges that must be addressed. However, all parties should exercise due diligence and fully evaluate this proposal to ensure the District does not miss an important operational and business opportunity. The long-term strategic benefits and savings warrant formal discussions and negotiations with the Moraga-Orinda Fire District.