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6
July 9, 2024
TO:Board of Directors
FROM:Lewis Broschard, Fire Chief
RE:Fire Chief’s Report
Operations Section Update
Field Operations
▪The fire district was very busy in June. Twelve significant vegetation fires occurred
across the county. The two most significant events occurred at the old golf course in
Pittsburg, where an old maintenance building that caught fire extended into the
vegetation. Structure protection was required for homes adjacent to the golf course
property. A second fast-moving vegetation fire occurred in Antioch, which also required
structure protection of homes adjacent to the incident. A total of 250 acres burned. In
both instances, no homes were damaged or lost due to the actions of suppression
personnel and aviation assets provided by CAL FIRE.
▪Thirteen working structure fires occurred during the month of June, the most significant
being a fire in an apartment building in Pittsburg. Fire crews pulled two victims out of the
apartment. Both were not breathing at the time of the rescue, but they regained
spontaneous respirations after treatment. The adult victim was recently listed in stable
condition, but the hospital would not release the status of the juvenile victim.
▪A verbal report on July 4th activities will be provided. This written report was submitted
prior to the 4th of July.
▪A verbal report on the early July heatwave impacts and responses will be provided.
7
Fire Chief’s Report
Page 2 of 4
Emergency Medical Services (EMS) Division
▪At the June 17 quarterly meeting with the hospital council and executive leaderships
from all hospitals in the county, most hospitals recognized that increased volume
continues to challenge their abilities to reduce offload times. Dr. Kidane from the County
EMS Agency recommended they dedicate resources specifically to address offload
delays. Sutter Delta’s model continues to be successful in reducing patient offload
delays.
▪Nurse Navigation working groups have been created to move the program forward and
they are making good progress.
▪The District participated in the CCH/FEMA Full Scale Medical Surge Response Exercise
that occurred on June 13th in Brentwood.
▪Martinez PD has agreed to participate in a trial use of “Card 38” protocols, which is an
abbreviated method to ensure law enforcement officer requests for EMS resources are
sent through the emergency medical dispatch protocols. Using Card 38 will enable us to
send the most appropriate transport resource to these calls.
▪We are discussing the possibility of expanding basic life support (BLS) transport
resources into west county with agencies that would benefit from the additional
ambulances.
▪Our first 12 paramedic firefighter students, who attended the Contra Costa College
program, have completed their didactic (classroom) portion of their training and have
started their field training. Another 12 District members have been selected to start the
next cohort on August 2nd. Without the ability to hire new firefighter paramedic recruits
in large numbers the District has turned to training our own members to become
firefighter paramedics to ensure we continue our ability to provide advanced life support
(ALS) to our communities.
Special Operations
▪The District’s hazardous materials response team participated in the CCH/FEMA
exercise on June 13th in Brentwood.
Advanced Planning Section Update
Fire Prevention Bureau
▪The Local Hazard Mitigation Plan Annex was submitted by the District for the County
Local Hazard Mitigation Plan. Community outreach and public comment was offered at
each of the Town Hall meetings in May.
▪The Contra Costa County Wildfire Mitigation Program wrapped up the 2023/2024 year
with 103 completed projects and 88 projects still remaining in the request portal under
review. An updated map, attached, provides the details and locations of these projects.
8
Fire Chief’s Report
Page 3 of 4
▪The County Coordinator grant recently offered agencies to extend their period of
performance an additional five months to December 31, 2024. The District applied for
this extended funding. This program has been extremely successful through outreach
to inform Fire Safe Councils, Firewise Communities and residents of funding
opportunities that are available for Wildfire Mitigation efforts.
Administration Section Update
Support Services Division
▪Push-in ceremonies for the two new tillered ladder trucks occurred in June. The first
truck was put in service at Fire Station 92 in Brentwood. The second truck went into
service at Fire Station 81 in Antioch.
▪The project to replace the concrete in the apparatus bay and front apron at Fire Station
14 in Martinez has been completed. The crews have returned and this station is now
open and operating.
Fire Stations / Major Facilities Construction
▪Fire Station 94, Brentwood: Staff has continued to meet with the design-build teams
who will be proposing on the project. We anticipate final selection in August. The final
selected team will be responsible for taking the design through the Brentwood Planning
Commission.
▪Fire Station 90, Brentwood: A preferred alternative site has been identified. Preliminary
soil sampling has been completed and the results are indicating no major contamination
issues with the site. Staff is working to advance the project to the next steps.
Communications Division
■The recruitment for Fire Dispatchers continues with two new members joining the team.
These two are completing their four week classroom based training. Two additional new
Dispatchers are finishing up their floor-based training and will be part of minimum staffing
soon.
■The District has started work with GeoComm for system-wide GIS assistance. This will
help to repair and resolve current mapping and GIS based issues with the current maps
used for emergency response routing and address location verification.
■The District has executed a contract with Thompson Builders, Inc. out of Novato for the
pending remodel of the fire communications center and the communications division
offices. The goal is to begin construction in July with an estimated 18 months for
completion of both buildings.
■The Information Technology team continues to work on several major projects, one of
which is to provide for a stand-alone network that is supported 365 days a year 24
9
Fire Chief’s Report
Page 4 of 4
hours a day. The Information Technology team will be working with district and County
DoIT leadership to review the system design, estimated costs and implementation plan.
■Work continues to secure a contract for a computer aided dispatch (CAD) rebuild and
support from Central Square, our current CAD provider. The District’s CAD is older and
in need of being rebuilt or replaced in order to perform more efficiently and reliably. This
is a significant and expensive project for any communications center with direct impact
to our service delivery and 911 communications system.
Public Information Office
▪The PIO office is maintaining a busy schedule with ceremonies and events. In addition,
an internal newsletter will soon go out to all members of the Fire District. Given the size
and continued growth of the Fire District, the goal of this newsletter is to keep Fire
District personnel abreast of important events, incidents and relative features of interest
unique to the Fire District.
▪The PIO team has recently added a new member. Fire Prevention Captain Ted Leach is
the newest member of the Oncall PIO Team. Captain Leach is shadowing the current
PIO team members on incidents and during media interviews.
Rodeo-Hercules Annexation Discussions
■Two Town Halls were conducted in June in the communities of Rodeo and Hercules.
The Fire Chief and other District leadership participated in these events along with the
Rodeo-Hercules Interim Fire Chief and their consultant.
■The Rodeo-Hercules FPD Board of Directors will now take the item under consideration
at their July 10 board meeting and determine next steps.
10
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0:46:430:46:410:46:380:48:400:48:400:52:080:54:090:49:340:48:370:48:410:53:120:55:430:00:000:05:000:10:000:15:000:20:000:25:000:30:000:35:000:40:000:45:000:50:000:55:001:00:00July '236,338Aug '236,170Sep '236,422Oct '236,163Nov '236,691Dec '236,691Jan '246,511Feb '246,189Mar '246,472Apr '246,233May '246,757Jun '246,557Month & AMR Transport VolumePatient Transfer of Care Times by Facility90th PERCENTILE OF ALL FACILITIESJuly 2023 - June 202476,811 Transports (6,401 per Month)Source: AMR MEDS (ePCR Database)12
0:00:000:05:000:10:000:15:000:20:000:25:000:30:000:35:000:40:000:45:000:50:000:55:001:00:001:05:001:10:001:15:001:20:001:25:001:30:001:35:001:40:001:45:001:50:00July '236,338Aug '236,170Sep '236,422Oct '236,163Nov '236,691Dec '236,691Jan '246,511Feb '246,189Mar '246,472Apr '246,233May '246,757Jun '246,557Month & AMR Transport VolumePatient Transfer of Care Times by Facility (90th Percentile)July 2023 - June 2024Source: AMR MEDS (ePCR Database)John Muir - ConcordJohn Muir - Walnut CreekKaiser Hospital - AntiochKaiser Hospital - RichmondKaiser Hospital - Walnut CreekContra Costa Regional Medical CenterSutter Delta Medical CenterPES - Contra Costa Regional Medical Center13
0:44:360:49:520:51:340:58:560:55:350:58:000:51:070:54:400:48:460:57:231:04:181:01:260:00:000:05:000:10:000:15:000:20:000:25:000:30:000:35:000:40:000:45:000:50:000:55:001:00:001:05:001:10:00July '23996Aug '23988Sep '23970Oct '231004Nov '23968Dec '231045Jan '24970Feb '24933Mar '24971Apr '24911May '241039Jun '24975Month & AMR Transport VolumePatient Transfer of Care Times by Facility (90th Percentile)John Muir - Walnut CreekJuly 2023 - June 202411,770 Total Transports (981 per Month)Source: AMR MEDS (ePCR Database)14
0:30:290:34:000:32:160:33:280:37:410:37:000:37:260:34:250:33:100:30:300:36:140:40:140:00:000:05:000:10:000:15:000:20:000:25:000:30:000:35:000:40:000:45:00July '23995Aug '231037Sep '231012Oct '231066Nov '23960Dec '231037Jan '241021Feb '24978Mar '241057Apr '24995May '241099Jun '241083Month & AMR Transport VolumePatient Transfer of Care Times by Facility (90th Percentile)John Muir - ConcordJuly 2023 - June 202412,340 Total Transports (1028 per Month)Source: AMR MEDS (ePCR Database)15
0:37:200:43:090:41:070:40:100:47:340:50:000:50:570:48:260:41:360:47:080:50:300:58:390:00:000:05:000:10:000:15:000:20:000:25:000:30:000:35:000:40:000:45:000:50:000:55:001:00:001:05:00July '23830Aug '23855Sep '23847Oct '23850Nov '23853Dec '23897Jan '24920Feb '24875Mar '24829Apr '24882May '241007Jun '24945Month & AMR Transport VolumePatient Transfer of Care Times by Facility (90th Percentile)Kaiser - AntiochJuly 2023 - June 202410,590 Total Transports (883 per Month)Source: AMR MEDS (ePCR Database)16
0:53:000:58:560:48:560:47:131:00:261:12:001:12:091:06:480:53:490:56:461:02:291:03:270:00:000:05:000:10:000:15:000:20:000:25:000:30:000:35:000:40:000:45:000:50:000:55:001:00:001:05:001:10:001:15:001:20:00July '231139Aug '231119Sep '231092Oct '231127Nov '231107Dec '231207Jan '241118Feb '241056Mar '241155Apr '241042May '241096Jun '241082Month & AMR Transport VolumePatient Transfer of Care Times by Facility (90th Percentile)Kaiser - RichmondJuly 2023 - June 202413,340 Total Transports (1112 per Month)Source: AMR MEDS (ePCR Database)17
0:33:550:35:440:33:380:35:440:38:300:39:000:43:240:41:540:39:520:39:430:38:590:41:180:00:000:05:000:10:000:15:000:20:000:25:000:30:000:35:000:40:000:45:000:50:000:55:001:00:00July '23718Aug '23775Sep '23721Oct '23731Nov '23717Dec '23793Jan '24762Feb '24754Mar '24765Apr '24702May '24723Jun '24699Month & AMR Transport VolumePatient Transfer of Care Times by Facility (90th Percentile)Kaiser - Walnut CreekJuly 2023 - June 20248,860 Total Transports (738 per Month)Source: AMR MEDS (ePCR Database)18
0:35:230:35:470:33:470:31:200:39:350:43:420:51:140:43:440:44:380:44:020:41:030:58:520:00:000:05:000:10:000:15:000:20:000:25:000:30:000:35:000:40:000:45:000:50:000:55:001:00:001:05:00July '23247Aug '23316Sep '23248Oct '23250Nov '23287Dec '23304Jan '24362Feb '24328Mar '24324Apr '24325May '24310Jun '24375Month & AMR Transport VolumePatient Transfer of Care Times by Facility (90th Percentile)Contra Costa Regional Medical CenterJuly 2023 - June 20243,676 Total Transports (306 per Month)Source: AMR MEDS (ePCR Database)19
1:04:470:33:330:36:230:38:150:33:580:43:000:34:570:36:430:37:260:38:160:44:330:43:270:00:000:05:000:10:000:15:000:20:000:25:000:30:000:35:000:40:000:45:000:50:000:55:001:00:001:05:001:10:00July '23965Aug '23869Sep '23883Oct '23973Nov '23924Dec '231071Jan '241006Feb '24955Mar '241030Apr '241024May '241130Jun '241061Month & AMR Transport VolumePatient Transfer of Care Times by Facility (90th Percentile)Sutter Delta Medical CenterJuly 2023 - June 202411,891 Total Transports (991 per Month)Source: AMR MEDS (ePCR Database)20
1:42:061:22:421:35:481:27:571:16:041:14:241:31:581:09:541:29:401:15:441:27:331:18:190:00:000:05:000:10:000:15:000:20:000:25:000:30:000:35:000:40:000:45:000:50:000:55:001:00:001:05:001:10:001:15:001:20:001:25:001:30:001:35:001:40:001:45:001:50:00July '23418Aug '23379Sep '23397Oct '23421Nov '23347Dec '23337Jan '24352Feb '24310Mar '24341Apr '24352May '24353Jun '24337Month & AMR Transport VolumePatient Transfer of Care Times by Facility (90th Percentile)CCRMC - PESJuly 2023 - June 20244,344 Total Transports (362 per Month)Source: AMR MEDS (ePCR Database)21
DRAFTPlan for Services
For annexation of
Rodeo-Hercules Fire Protection District
to
Contra Costa County Fire Protection District
DRAFT
July, 2024
1
22
DRAFTTable of Contents
Table of Contents………………………………………………………………….…………….2
Executive Summary………………………………………………………………………………4
Background and Setting………………………………………………………………………..8
Legal Context……………………………………………………………………………………..8
Reorganization Process to Date……………………………………………………………….9
History of the Reorganizing Districts………………………………………………………..10
Proposed Annexation Territory Description…………………………….………………….15
Justification……………………………………………………………………………………….16
Enhanced Standardization…………………………………………………………………….16
Augmented Service Levels…………………………………………………………………….17
Service Efficiency……………………………………………………………………………….17
Cost Savings……………………………………………………………………………………17
Plan and Description of Services………………………………………………………………18
Services to be Extended………………………………………………………………………..18
Current Service Delivery Levels……………………………………………………………….20
Proposed Service Delivery Plan…………………………………………………………….34
Level and Range of Proposed Services……………………………………………………..36
Infrastructure Needs/Planned Improvements…………………………………………… 36
Correlation with Agency Plans and Operations……………………………………………..36
Alternative Service Structures and Related Affects……………………...……………….37
Fiscal Analysis…………………………………………………………………………………….37
Background……………………………………………………………………………………….37
Revenue Sources………………………………………………………………………………….37
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DRAFTPost-Reorganization 5-Year Financial Projections………………………………………….38
Findings……………………………………………………………………………………………..44
Appropriations Limit…………………………………………………………………………….45
Proposed Transition Plan………………………………………………………………………46
Reorganization Timeline……………………………………………………………………….46
Implementation Plan……………………………………………………………………………46
Governance Structure…………………………………………………………………………..47
Personnel and Employment Agreements……………………………………………………47
Conditions of Service Required by the Land Use Agency……………………………….47
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DRAFTExecutive Summary
The proposed annexation will provide consistent emergency response for the areas currently
served by the RHFPD, including robust fire prevention and weed abatement, accredited training
for new firefighters, expanded training for engineers and captains, and a deep level of support
services to include a certified apparatus repair shop, planned apparatus replacement, dedicated
facilities maintenance, dedicated emergency medical services oversight and training, and
enhanced overall fire district administration.
In December 2020, an annexation study was commissioned to determine the feasibility of
annexing either or both the East Contra Costa Fire Protection District (“ECCFPD”) and the
Rodeo-Hercules Fire Protection District (“RHFPD”). The study was concluded and presented to
the governing bodies of all three fire protection districts in mid-July by an external consultant
group who compiled the study. The study concluded annexation was feasible and
recommended that Contra Costa County Fire Protection District (“CCCFPD”) pursue the
annexation of both the other fire districts. The Board of Directors for each District received the
consultant’s report in mid-July, 2021. On August 12, 2021, the CCCFPD received a written
request from the RHFPD Fire Chief to remove RHFPD from consideration in the current
annexation process per direction from the RHFPD Board of Directors. In the time since the
annexation withdrawal by the RHFPD, the RHFPD Board of Directors commissioned a strategic
planning process to determine the options available for the sustainability of the RHFPD.
Ultimately, the RHFPD determined annexation into the CCCFPD was the most suitable and
sustainable option for continuation of services to the public.
Additional findings and recommendations of the 2020 consolidation study confirmed by the
ongoing evaluative process undertaken by RHFPD include:
▪RHFPD is a smaller district that has seen growth in property value with moderate
increases in property tax revenue which are being outpaced by expenses leaving a
forecasted ongoing structural deficit in the near future.
▪Property tax revenues continue to be negatively impacted by the dissolution of
redevelopment agencies (RDA) and the continued property development within the City
of Hercules Redevelopment Area. However, RDA pass-through revenue has increased to
the RHFPD.
▪RHFPD cannot meet the increased call load in the communities served with existing
personnel and equipment levels without relying on mutual aid and automatic aid
agencies.
▪RHFPD has no capacity to support extended operations within their jurisdiction.
4
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DRAFT▪RHFPD has little to no ability to upstaff and provide corresponding logistical support for
surge capacity during large scale events.
▪RHFPD Measure O and the RHFPD Benefit Assessment District funds will continue to be
committed to funding services within the RHFPD service area post consolidation.
▪RHFPD and CCCFPD share battalion chief coverage as Battalion 7; without which RHFPD
would be unable to provide oversight, command and control functions required for
responses beyond a single unit.
▪RHFPD has little to no administrative support for human resources, firefighter training,
fleet maintenance, facilities, public education, or business intelligence/special project
management.
▪Inadequate training support and oversight at RHFPD has resulted in decreased firefighter
and civilian safety, an increase in exposure to legal and regulatory risks, inadequate
organizational depth and an inability to meet succession planning needs.
▪The RHFPD’s vegetation management program is in its infancy and is very limited.
▪With very minimal ability to perform fire investigation, RHFPD has become reliant upon
mutual aid from CCCFPD to subsidize fire investigations.
▪RHFPD has no watercraft or ability to perform water rescue beyond minimal shore based
efforts.
▪Most policies and standard operating procedures are a decade(s) old, no longer relevant,
or in many cases non-existent.
▪With the exception of the Fire Chief, all existing full-time RHFPD personnel that desire to
do so will be absorbed into CCCFPD. The potential annexations will not result in layoffs.
In February 2022, the Rodeo-Hercules Fire Protection District Board of Directors contracted with
Fitch & Associates to provide a facilitated, community-driven, strategic plan as well as a Fire
Administration Analysis. The final documents were presented and accepted by the RHFPD
Board in October 2022.
The Strategic Plan 2022-2027 for RHFPD included the following findings and recommendations:
●Need to improve turnout time
●Need to improve fire prevention inspection and reporting processes
●Develop a Standards of Cover (SOC) document
●Explore a contract for service or consolidation with a larger fire agency
●Provide liability reduction training to all employees and board members
●Develop and maintain a two-year training plan
●Update succession planning/professional development policies
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DRAFT●Develop a system to review/update policies every three years
●Explore the value of mobile fire mechanic service
●Develop a community engagement plan
●Identify cost efficient measures to maintain or improve ISO protection class
●Provide fire safety education to all elementary schools and develop a junior safety group
●Partner with the high school to provide students community service opportunities at the
fire stations
●Partner with local community colleges to provide fire trainee opportunities
●Develop a Community Emergency Response Team (CERT) cadre
●Explore a contract for service or consolidation with a larger fire agency
In July 2023, the Rodeo-Hercules Fire Protection District Board of Directors contracted with
retired fire chief Micheal Despain (DBA: M.E.D. Enterprises Inc.) to provide assistance in
developing a process to implement the strategic plan (completed in October 2022) and provide
an independent review of the RHFPD long-term sustainability.
From July 2023 to December 2023, Chief Despain conducted an analysis of the agency, which
included a recommended sequence of action items to provide the most efficient
implementation of the agency’s strategic plan. During this same time, at the direction of the
Board, Chief Despain solicited the following agencies to determine if there was any interested in
a possible contract for service: Alameda County Fire Department, Berkeley Fire Department,
CALFIRE (SCU), Contra Costa County Fire Protection District, Crockett Carquinez Fire
Department, El Cerrito-Kensington Fire Department, & Richmond Fire Department. Of these
listed agencies, El Cerrito-Kensington Fire Department and CAL FIRE (SCU) were the only
agencies that indicated they were willing to entertain a deeper discussion on the proposal.
In December 2023, Chief Despain provided a summary of findings from the analysis of the
long-term sustainability options for the RHFPD. The analysis demonstrated a significant lack of
administrative and support staff that was placing the RHFPD in significant and growing risk of
legal and regulatory liability. The report also reflected approximately $1 million in service
subsidies from the CCCFPD. The solutions available to the RHFPD included an option to seek
approximately $1.5 to $2.0 million in additional revenue to cover the support staff and/or
outsourcing costs to maintain the RHFPD in its current independent configuration. A second
option was to seek out a contract for service with another adjacent public safety agency. A final
option was to request annexation of the RHFPD into the CCCFPD. At the direction of the RHFPD
Board, staff was directed to initiate a process to seek out a possible contract for service, as well
as review the process necessary to pursue a possible annexation.
During the month of March 2024, the RHFPD distributed a Request for Proposal (RFP) process to
formally engage in a possible contract for fire services. The RFP was distributed statewide to
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DRAFTincrease the possible pool of public safety entities. However, at the conclusion of this process,
no public agencies responded. Staff also met with the fire chief of CCCFPD and a representative
of the Contra Costa County LAFCo to review the processes and steps required for annexation.
The findings of both of these assignments were presented to the RHFPD Board in April 2024. At
the conclusion of the April 2024 special meeting, the RHFPD Board directed staff to begin
formal discussions with CCCFPD to ascertain financial, personnel, and service delivery impacts
for the proposed annexation.
During the month of June 2024, the RHFPD hosted (2) Town Hall meetings. The first meeting
was hosted on June 18, 2024, at 6:00 p.m. at the City of Hercules - Council Chambers. The
meeting was hosted on June 29, 2024 at 9:00 a.m. at Rodeo Hills Elementary School. Both
meetings provided opportunities for community members to attend virtually or in person.
During the Town Hall meetings, online surveys were opened up for those attending (online or in
person). These two surveys were closed and locked at the end of each respective Town Hall
meeting. A third survey was opened for the community through the RHFPD website and it was
opened from June 18, 2024 through July 1, 2024.
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DRAFTBackground and Setting
Legal Context
Applicable Law
This application is being submitted pursuant to the Cortese-Knox-Hertzberg Act, Government
Code section 56000 et seq. This application is submitted by the Contra Costa County Board of
Supervisors as the governing board of the Contra Costa County Fire Protection District (CCCFPD)
and the Board of Directors of the Rodeo-Hercules Fire Protection District (RHFPD). CCCFPD and
RHFPD are enabled under the Fire Protection District Law of 1987 (Health & Safety Code 13800
et seq.).
Environmental Documentation
The proposed reorganization is Categorically Exempt from CEQA pursuant to 14 CCR 15320.
Class 20 consists of changes in the organization or reorganization of local governmental
agencies where the changes do not change the geographical area in which previously existing
powers are exercised.
Summary of Proposed Reorganization
As agreed by the two applicant agencies and indicated in the Resolutions of Application
included in this application, the Contra Costa County Fire Protection District proposes to annex
the entirety of the territories of the Rodeo-Hercules Fire Protection District, following which,
RHFPD would be dissolved.
Proposed Reorganization Conditions
1. Successor Agency. Upon and after the date of recording in the official records of Contra
Costa County of LAFCO’s final and complete approval of the dissolution of the
Rodeo-Hercules Fire Protection District and the District’s assumption of the duties and
obligations of the Rodeo-Hercules Fire Protection District (the “Effective Date”), the District
shall be the successor to the of the Rodeo-Hercules Fire Protection District. All rights,
responsibilities, properties, contracts, assets and liabilities, and functions of the
Rodeo-Hercules Fire Protection District are to be transferred to the Contra Costa Fire
Protection District as the successor to the Rodeo-Hercules Fire Protection District.
2. Employees. From and after the Effective Date, all full time employees of the dissolved
Rodeo-Hercules Fire Protection District shall become employees of the Contra Costa County
Fire Protection District with the exception of the Fire Chief and part time prevention staff.
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DRAFT3. Duties. The District, as the successor agency, shall function under and carry out all
authorized duties and responsibilities assigned to a Fire Protection District as outlined in the
Division 12, Part 2.7, Chapter 1, Health & Safety Code, Fire Protection District Law of 1987
(commencing with Section 13800) and other applicable laws.
4. Revenue Transfer. Before LAFCO issues the Certificate of Filing for the reorganization
(Revenue and Taxation Code Section 99(b)(6), the Board of Directors of the District shall
commence and complete a property tax transfer process to be effective Prior to issuance of
the LAFCO Certificate of Filing, and take all other required steps to transfer from the
Rodeo-Hercules Fire Protection District to the District all income, from taxes or any other
source, for which there is a continuing right to tax distribution, or historical distribution or
allocation of funds, including but not limited to Measure H, Measure O, and benefit
assessment funds,. All previously authorized charges, fees, assessments, and/or taxes
currently in effect, levied or collected by the Rodeo-Hercules Fire Protection District,
including through municipal and county development impact fees and community facilities
districts, shall continue to be levied, collected, tracked, expended and administered by the
successor agency in accordance with the authorizing actions of such financial mechanisms.
5.Measure O Oversight Committee. As required within the text of Measure O the Measure
Oversight Committee shall remain intact in an advisory capacity.
6. Land Rights. The reorganization does not change the rights the Rodeo-Hercules Fire
Protection District had in the lands in their respective territories immediately prior to the
reorganization. Those rights run with the land and will become District rights as the
successor.
Reorganization Process to Date
All districts considered in the proposed annexations of the Contra Costa County FPD, East Contra
Costa FPD, and the Rodeo-Hercules FPD entered into a jointly funded study in December 2020.
The comprehensive study was completed and presented to each districts’ governing body in July
2021. The RHFPD opted out of the annexation process in 2021 and commissioned a separate
strategic planning process in 2022. The RHFPD Board of Directors ultimately determined
annexation was the most suitable option for continuation of services during deliberations and
public meetings throughout 2023 and into early 2024. (At their (INSERT DATE) meeting, the
RHFPD Board of Directors approved a Resolution of Application to initiate the annexation
process. Substantially similar Resolutions of Application were adopted by the CCCFPD and
RHFPD and are included as part of the application.)
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DRAFTHistory of the Reorganizing Districts
Contra Costa County Fire Protection District
The Contra Costa County Fire Protection District (CCCFPD) was originally formed in 1964 due to
the Central Fire Protection District and Mt. Diablo Fire Protection District consolidation. Since
then, twelve other fire protection districts in the region have merged with CCCFPD, including
the ECCFPD. In March 2023 the CCCFPD began providing fire, rescue, EMS, fire prevention, and
administration to the City of Pinole on a contractual basis.
CCCFPD’s primary service area comprises approximately 525 square miles. More than 85
additional square miles comprises the response area for ambulance service and transport. Data
from the U.S. Census Bureau indicates a 2020 resident population of approximately 750,000
persons. About half the District is considered “urban,” 25% “suburban,” and the remaining 25%
“rural” or “remote.”
Governance
The five-member elected Contra Costa County Board of Supervisors serves as CCCFPD’s Board of
Directors. The Board oversees the Fire Chief, sets general policies, and approves the budget. The
Fire Chief is responsible for the administrative functions and daily operations of CCCFPD.
District Services
CCCFPD is an all-hazards fire district providing traditional fire protection, wildland firefighting,
emergency medical services, Advanced Life Support (ALS), ambulance transport, various special
operations (e.g., water rescue, hazardous materials response, marine firefighting, technical
rescue, etc.), and a comprehensive life-safety and prevention program that includes inspections,
a dedicated fire investigation unit, code enforcement, plan reviews, and public education. In
2005, the District was given an Insurance Services Office (ISO) Public Protection Classification
(PPC®) score of 3/8b. The ISO PPC is a standardized fire department classification and ranking
system established by the ISO and used by many insurance companies for determining
capability of the fire department serving the insured property. CCCFPD is accredited through
the Commission on Accreditation of Ambulance Services (CAAS).
CCCFPD deploys 32 engine companies, seven truck companies, and one rescue company from
35 staffed fire stations located throughout the District. One station is utilized for the District's
reserve firefighters and staffed on a rotational basis. The District operates a wide variety of fire
apparatus and ambulances (more detail provided under “Capital Facilities & Apparatus”).
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DRAFTCCCFPD follows the National Fire Protection Association Standard 1710 (NFPA) for providing an
effective firefighting force of at least 17 personnel on the initial response to a single family
residential structure fire. Across the District, the travel time for the full first alarm contingent of
17 personnel is 12 minutes, 90% of the time, for suburban areas.
Ambulance Transport
In 2016, CCCFPD developed a unique arrangement with American Medical Response, Inc. (AMR)
that they refer to as the “Alliance.” The program utilizes AMR EMS personnel to staff CCCFPD’s
ALS ambulances, assisted by district firefighters certified as EMTs or Paramedics and functioning
in a first-responder capacity. CCCFPD provides emergency ambulance services under contract
with Contra Costa County for approximately 92% of the resident population of the county,
including all areas served by the RHFPD.
Regional Fire Communications
CCCFPD operates the Contra Costa Regional Fire Communications Center (CCRFCC), which
serves as a secondary Public Safety Answering Point (PSAP) for most fire and EMS 911 calls in
the County. The CCRFCC provides dispatch and emergency communication services to its
district, plus RHFPD, and three other fire agencies. The Center dispatches more than 140,000
emergency and non-emergency fire and EMS incidents annually. CCRFCC’s 911 Call-Takers are
all certified in Emergency Medical Dispatch (EMD) through the International Academies of
Emergency Dispatch (IAED) and provide pre-arrival instructions to callers reporting medical
emergencies. The CCRFCC is fully accredited by the IAED.
CCCFPD Organizational Structure
CCCFPD currently maintains approximately 604 funded positions, including staff in the dispatch
center. Thirteen of these positions are funded through the District’s EMS Transport Fund. The
figure below shows the 2023 organizational structure of CCCFPD.
As shown in the following figure, the Fire Chief and three Deputy Fire Chiefs supervise three
sections with six divisions, five of which are managed by an Assistant Fire Chief and one by the
Chief of Administrative Services. Additionally, each shift within the Operations Section is led
and directed by an Assistant Fire Chief who is on duty 24 hours each day with that shift. These
three additional chief officers are responsible for the daily operations of all stations throughout
the district.
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DRAFT12
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DRAFTRodeo-Hercules Fire Protection District
In 1937, the Rodeo Fire District (RFD) was established to provide fire protection for Rodeo’s
unincorporated community. The City of Hercules was annexed into RFD in 1978 and the name of
the District was changed to the Rodeo-Hercules Fire Protection District (RHFPD).
The District encompasses an area of approximately 32 square miles. The District estimates a
population of approximately 35,254 persons.
Governance
The Rodeo-Hercules Fire Protection District is governed by a five-member elected Board of
Directors responsible for budget approval and general policies. The Fire Chief manages the
administration and daily operations of the District and answers directly to the Board.
District Services
RHFPD is a multi-hazard (not all-hazards) fire district providing traditional structural fire
protection, wildland firefighting, first responder advanced life support medical response
(FRALS), technical rescue (auto extrication, high angle and low-angle rescue, and shore based
water rescue). The District deploys its apparatus and personnel from two fire stations and has
an ISO PPC® rating of 2/2.
The District also provides code enforcement, fire inspections, plan reviews, fire cause
investigations, and public education and prevention programs.
RHFPD Organizational Structure
Rodeo-Hercules FPD employs 22 full-time and one part-time prevention personnel. The Fire
Chief also serves as the District’s Fire Marshal and supervises an Assistant Fire
Marshal/Inspector. Operations are divided into three shifts (A, B, and C) with two Captains, two
Engineers, and two Firefighters assigned to each. Each shift and station have at least one
Paramedic assigned. An RHFPD Battalion Chief supervises the operations personnel assigned to
A Shift. The CCCFPD provides two BC’s for both B and C Shift through an automatic aid
agreement. The support the agreement provides is operational for responses and does not
offer support for facilities, training, personnel, logistics etc.
The next figure is an illustration of the current 2024 organizational structure of RHFPD.
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DRAFT14
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DRAFTProposed Annexation Territory Description
Boundaries
The following image shows the proposed annexation areas which consists of the boundaries of
the RHFPD and its location compared to CCCFPD’s boundaries. Upon reorganization, CCCFPD’s
boundaries are proposed to consist of approximately 582 square miles.
Annexation Areas
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DRAFTTopography
The combined annexation area contains waterfront, suburban, urban, rural, and remote service
areas. The topography spectrum includes flat urban environments up to and including the
remote backcountry in the hills east of Rodeo and Hercules. The topography is typical of that
found throughout the County.
Population
Following annexation, CCCFPD would have an estimated total resident population of over
785,000 persons.
Justification
Enhanced Standardization
The combined organization will standardize training delivery of recruit firefighters through the
Contra Costa County Fire Protection District’s academy. Continued training of firefighters will
occur through one Training Division under a consistent, well-staffed, and properly supported
system. Operational policies and procedures will become consistent and standardized under
one organization. Fire prevention and code enforcement services will be based on one fire code
and supporting ordinances throughout the new service area. Procurement of apparatus and
equipment will be contained under one standard within the organization, reducing training
issues and increasing flexibility in deployment and fleet sustainability. Operational and large
incident management will be standardized under the single organization’s leadership and
emergency management goals and objectives. Responses to incidents, currently at varying
levels based on each agency’s own service policies, will become standardized to meet a single
standard for deployment.
The standard applied across the expanded service area will ensure consistent response levels of
equipment and personnel to structure fires, technical rescues, and vegetation or wildland fires
matching with the current response matrix for CCCFPD. This will increase total response on the
initial alarm for structure fires and vegetation or wildland fires in the RHFPD service area post
annexation.
Augmented Service Levels
For the RHFPD service area, additional enhancements will include access to specialized rescue
and firefighting resources not currently provided directly by that district. These include marine
firefighting and water rescue teams, fire based hazardous materials response team, heavy fire
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DRAFTequipment resources such as fire bulldozers, wildland fire hand crews, as well as technical
rescue apparatus, equipment, and personnel for confined space, trench, and building collapse.
Fire and arson investigation services will be enhanced through use of Contra Costa County Fire
Protection District’s dedicated Fire Investigation Unit.
Fire prevention service will be standardized and, in some cases, augmented beyond the current
level of service being provided by the former district. Comprehensive community risk
reduction, code enforcement, plan review and new construction inspections, exterior hazard
control and weed abatement, and development planning will be provided by full-time
personnel. Public education and outreach efforts will be augmented with dedicated staff to
perform this important service.
Service Efficiency
Annexation will increase both the effectiveness and efficiency of the service delivery system and
the efficiency of the administrative functions through shared resources. Each of the districts
has varying levels of uniformed administrative support positions—due primarily to their size. A
challenge often faced by smaller districts is the necessity of individuals to serve in multiple
capacities. An advantage to the annexation will be increased administrative and support
services available to the combined organization (e.g., information technology, human resources,
finance, contracts management, fleet maintenance, logistics and supply, etc.).
Operationally, the organizations already work together with existing automatic and mutual aid
agreements. However, the differences in alarm assignments or types, kind, and number of
resources assigned based upon varied call types would have a more robust, standardized, and
consistent weight of response. The net effect is a more consistent effective response force as
emergency operations will become more effective and efficient while improving firefighter and
public safety.
Cost Savings
Cost savings in this annexation will be achieved through reduced redundancy of certain
administrative and support functions in the areas of legal and accounting services, fire
prevention, training, fleet maintenance, reduced spare and reserve fire apparatus needs, and by
combining technology infrastructure and other administrative functions. Additional cost savings
will be realized from the elimination of the RHFPD Fire Chief position and part time Assistant
Fire Marshal/Inspector, certain contracted services, and anticipated savings in reduced
retirement and pension costs on a per-employee basis.
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DRAFTCertain capital reserve funding programs or special programs unique to the needs of RHFPD can
also be eliminated or reduced. The cost savings of the areas identified will be used to maintain
and strengthen the deployment of operational resources for communities served by the
combined organization.
Plan and Description of Services
Services to be Extended
Fire, rescue, and emergency medical services are currently provided at different levels within
each district. Fire prevention, community risk reduction, and fire investigation services are
provided at different levels in either full-time or contractual arrangements. Administrative and
support services are also provided in different formats amongst the agencies in either full-time
or contractual arrangements. All services would be provided consistent with the current
configuration and delivery models within Contra Costa County Fire Protection District. The
method to finance the services provided would be through the combined revenue streams of
property taxes, fees for services, and other assessments, taxes, fees, or revenue components
established in the respective districts.
The proposed reorganization would only affect the provision of fire, rescue and emergency
medical services within the current boundaries of areas proposed for annexation. The
reorganization will not alter or affect other municipal services.
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DRAFTPlan for Services
Service Current
Provider
Proposed
Provider
Describe
Level/Range of
Service to be
Provided
Approx. date
service will be
available
Method to
finance service
Water
EBMUD,Unchanged N/A N/A N/A
Sewer Rodeo Sanitary
District Unchanged N/A N/A N/A
Police County and
cities Unchanged N/A N/A N/A
Fire RHFPD and
CCCFPD CCCFPD
Described in
Proposed
Service Delivery
Plan section
Upon effective
date identified in
Certificate of
Completion
Described in
Fiscal Analysis
section
Streets County and
cities Unchanged N/A N/A N/A
Drainage
County, cities,
and various
reclamation
districts,
Unchanged N/A N/A N/A
Parks&Rec
City of Hercules,
County Public
Works
Unchanged N/A N/A N/A
Refuse Republic
Services Unchanged N/A N/A N/A
Street lighting
Cities, CSA
L-100 Unchanged N/A N/A N/A
Library County Unchanged N/A N/A N/A
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DRAFTCurrent Service Delivery Levels
Service and Staffing Overview
An overview of services provided and description of staffing levels for each of the subject
districts were previously discussed under the History of the Reorganizing Districts section.
Dispatch/Communications
CCCFPD operates the Contra Costa Regional Fire Communications Center (CCRFCC), which
serves as a secondary Public Safety Answering Point (PSAP) for most fire and EMS 911 calls in
the County. CCRFCC provides dispatch to the CCCFPD, plus RHFPD, and four other fire agencies.
The Center dispatches more than 140,000 emergency and non-emergency fire and EMS
incidents annually.
In 2018, the Center made substantial improvements to the system by adding more staff and
upgrading radio, telephone, and information technology services. In 2023 staffing was further
increased and a new communications center will be constructed beginning in mid-2024.
CCRFCC’s 911 Dispatchers are all certified in Emergency Medical Dispatch through the
International Academies of Emergency Dispatch (IAED) and provide pre-arrival instructions to
callers reporting medical emergencies. Along with its staff, CCRFCC houses 13 System Status
Management Dispatchers employed by American Medical Response for the deployment of
ambulances throughout the service area.
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DRAFTLevel of Demand
The following figure shows response workload for each agency over the past 5 years. This chart
shows the relatively small impact annexation would have on the annual workload for the
CCCFPD.
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DRAFTBaseline Turnout Time Comparison:
This chart shows the comparison between the baseline (actual) turnout times for CCCFPD and
RHFPD for 2023. This comparative analysis indicates that CCCFPD maintains a system that
meets or exceeds the baseline turnout time performance of that within RHFPD, meaning
response times will likely be the same, or slightly better, within the RHFPD after annexation.
•Turnout time for fire/rescue calls within 2 minutes and 20 seconds for 90 percent of
incidents.
•Current RHFPD baseline performance = 76%.
•Current CCCFPD baseline performance = 83%
•Turnout time for EMS calls within 2 minutes and 10 seconds for 90 percent of incidents.
•Current RHFPD baseline performance = 71%.
•Current CCCFPD baseline performance = 81%
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DRAFTFacilities - Fire Station Locations
Contra Costa County Fire Protection District Facilities
CCCFPD currently maintains 35 fire stations throughout the District. Station 19 is a reserve
station and a leased facility. The Byron Wildfire Center is used to support the hand crew
operations. The following figures describe the features of each fire station operated by the
District.
Combined, CCCFPD fire stations have a staffing capacity of approximately 225 personnel, 80
apparatus bays (although some are utilized for exercise equipment), and 180,000 square feet.
The years in which CCCFPD’s stations were built range from 1939 to 2022, with an average age
of 33 years; however, several of the older stations have since been remodeled.
Of the 35 fire stations inventoried, 11% were listed in “Excellent” condition, 49% in “Good”
condition, 37% in “Fair” condition, and 3% in “Poor” condition. The majority of the stations do
not have modern seismic protection or meet Americans with Disability Act (ADA) standards.
Fourteen (40%) of the fire stations have sprinkler systems installed.
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DRAFTRodeo-Hercules Fire Protection District Facilities
RHFPD currently maintains two fire stations. Fire Station 75 was originally built in 1937 but was
remodeled in 1991. Station 76 was built in 1991. Combined, the two stations average 57 years
of age.
The maximum fire station staffing capacity of each facility is limited to either three or four
personnel. Combined, the District has seven apparatus bays.
The District rated the overall condition of both of its fire stations as “Good.” Both stations have
sprinkler systems installed.
Combined Station Inventories of the Fire Districts (2024)
The following figure lists the inventories and features of both fire districts combined.
Fire District
No. of
Stations1
Maximum
Staffing2
Apparatus
Bays
Average
Age3
Total Square
Footage4
CCCFPD 35 225 80 33 years 180,000
RHFPD 2 7 7 59 years 18,690
Totals:37 232 87 198,690
1Unstaffed/unused stations excluded.
2Represents maximum staffing capacity.
3Average age of stations combined.
4Square footage of some stations not reported.
The combined fire station inventories comprise 37 fire stations with 88 bays (although in several
of them, at least one bay is utilized for exercise equipment) and a capacity of 232 personnel .
Fire stations tend to be older amongst both fire districts. The average age of the combined
stations is almost 36 years. However, this may be somewhat distorted, as this was based on the
original construction dates, and several stations have since had significant remodeling
completed (e.g., CCCFPD Stations 69 and 81). CCCFPD has constructed several new stations
over the past five years, including Fire Station 16 (Lafayette), Fire Station 95 (Oakley), Fire
Station 70 (San Pablo), and Fire Station 86 (Bay Point). There are four stations in the planning
and/or construction process including a replacement for Fire Station 9 (Pacheco), new Fire
Station 90 (Brentwood), a replacement for Fire Station 94 (Brentwood), and a planned new
station in southern Antioch based on development agreements.
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DRAFTApparatus & Vehicles
A thorough review of each of the fire districts’ fleet inventories is especially important if
annexation is implemented. Annexation will likely result in a merger of apparatus inventories
and other equipment.
Fire apparatus are unique and expensive pieces of equipment customized to operate for a
specific community and defined mission. Other than its firefighters, officers, and support staff,
the next most important fire protection district resources are likely the emergency apparatus
and vehicles.
Apparatus must be sufficiently reliable to transport firefighters and equipment rapidly and
safely to an incident scene. Such vehicles must be properly equipped and function appropriately
to ensure that the delivery of emergency services is not compromised. For this reason, they are
expensive and offer minimal flexibility in use and reassignment to other missions.
Contra Costa County Fire Protection District
Except for new apparatus—which were rated as “Excellent”—the Contra Costa County FPD
rated all of its frontline engines, aerial apparatus, and most other vehicles as in “Good”
condition. This included apparatus in reserve and those assigned to the Training Division.
Along with its substantial fleet of engines, ambulances, aerials, and other apparatus, the District
maintains a range of special operations vehicles (e.g., hazmat unit, UTVs, command units, fire
boat, rescue boat, etc.) and other equipment utilized for wildland and other operations (e.g.,
bulldozer, backhoe, dump truck, etc.).
CCCFPD owns multiple pickup trucks, SUVs, and other vehicles but has access to nearly 75 other
pickup trucks, staff cars, cargo vans, and assorted miscellaneous vehicles from an ongoing fleet
leasing program through Enterprise Fleet Management. This program assures light vehicles,
including chief officer vehicles, are replaced at regular intervals before becoming maintenance
or reliability issues.
The District maintains an adequate inventory of reserve engines, aerial apparatus, rescue
squads, and other vehicles. The Training Division has been assigned five Type 1 engines along
with two aerial apparatus (one being a Quint and the other a tiller), and several other
apparatus.
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DRAFTRodeo-Hercules Fire Protection District
The following figure lists the current inventory of RHFPD’s frontline fleet. The District’s
apparatus fleet comprises Type 1 (structural) and Type 3 (wildland) engines, as well as Quint
apparatus.
RHFPD Frontline Apparatus & Other Vehicles Inventory (2024)
Unit Type Manufacturer Year Condition Features
Engines & Aerials
Engine 75 Type 1 Pierce 2020 Excellent 2000 gpm
Quint 76 Quint Spartan/Smeal 2020 Excellent 100 ft. aerial
2000 gpm
Engine 375 Type 3
International/Hi
Tech 2008 Fair 500 gpm
Engine 376 Type 3
International/Hi
Tech 2006
Fair/planned
for
replacement
500 gpm
Command/Staff Vehicles
7500 SUV Chevrolet 2017 Excellent
7502 SUV Chevrolet 2017 Good
7501 SUV Chevrolet 2023 Excellent
S3 SUV Ford 2007 Good
PU 76 Pickup Ford 2005 Fair
RHFPD maintains one engine and one quint in reserve (Engine 75A and Quint 76A). Both are
rated as in “Poor” condition. The District uses a 10-year replacement cycle for its engines where
apparatus moves into reserve status at 10 years. The District has not been able to maintain a 10
year cycle with its Type III Brush apparatus which are 16 and 18 years old respectively.
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DRAFTCollective Apparatus Inventories
The following figure lists the frontline fleet inventories of the two fire districts combined.
Collective Inventory of the Fire Districts Frontline Fleets (2024)
Fire District EnginesA Aerials Ambulances Tenders WildlandB Others
CCCFPD 53 12 60 6 28 32C
RHFPD 3 2 —0 2 —
Totals:56 18 60 6 30 32
AIncludes Type 1 only.
BIncludes Type3&Type6.CApproximate.
In the preceding figure, the “Wildland” category represents Type 3 or Type 6 apparatus. The
“Others” category represents a broad range of vehicles from bulldozers to water craft.
Automatic and Mutual Aid
All agencies participate in local automatic aid agreements. Additionally, local and statewide
mutual aid is provided under local agreement or under the California Master Mutual Aid
Agreement. Contra Costa County Fire Protection District is the predominant provider of aid to
the RHFPD.
Public Outreach/Education
All agencies provide public education in various forms based on their current staffing and
organization. Contra Costa County Fire Protection District is the only agency with dedicated
full-time staffing for public education and public information services.
CCCFPD has robust public education programs. CCCFPD emphasizes wildland interface issues.
Programs include the use of FireWise® defensible space, hazard reduction, and community
information sessions. Due to its size and staffing limitations the RHFPD does not have a robust
public education program.
CCCFPD has a unique bilingual education program for the juvenile fire starter team. CCCFPD
currently provides annual education at the grade school level.
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DRAFTPublic Education Programs
Education Programs CCCFPD RHFPD
Annual fire prevention report distributed Yes Yes
Babysitting safety classes No No
Bilingual info available Focused No
Calling 9-1-1 Yes Yes
Carbon Monoxide Alarm installations Yes No Upon
request
CPR courses, BP checks Yes Yes CPR at
open house
Curriculum used in schools Yes Yes
Exit Drills in the Home (EDITH)Yes Yes
During
school
program
only
Eldercare and safety Yes No
Fire brigade training No No
Fire extinguisher use Yes No
Fire safety Yes No
Injury prevention Yes No
Juvenile fire-starter program Yes No
Publications available to the public Yes Yes
Smoke alarm installations Yes Yes
Upon
request
minimal
Wildland interface education offered Yes No
Support Services
Apparatus & Vehicle Maintenance
Contra Costa County FPD
The majority of CCCFPD’s fleet maintenance is done internally by the District’s Apparatus Shop.
The Fire Apparatus Manager supervises a Fire Service Coordinator, Driver/Clerk, and six
Emergency Vehicle Technicians (EVT) (formerly known as Fire Equipment Mechanics (FEM)). The
EVTs are certified by the National Institute for Automotive Service Excellence (ASE) in vehicle
repair and the California Fire Mechanics Academy (CFMA) to maintain fire apparatus.
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DRAFTRodeo-Hercules FPD
RHFPD outsources its vehicle maintenance to the Alameda County Fire Department and a
commercial company(s) that specializes in emergency vehicle services. There are no dedicated
staff for the fleet leaving a shift based company officer to manage the program with the help of
other line personnel.
Fire Prevention
CCCFPD has a fully staffed prevention bureau.
In 2023, CCCFPD performed 7,267 mandatory code enforcement inspections and 333
non-mandatory inspections. The following graphic shows a comparison of the current code
enforcement by each district.
Code Enforcement Among the Fire Districts
Code Enforcement Activity CCCFPD RHFPD
Consulted on new construction Yes Yes
Fees for inspections or reviews Yes Yes
Hydrant flow records maintained Partial No
Key-box entry program Yes Yes
Perform occupancy inspections Yes Yes
Perform plan reviews Yes Yes
Sign-off on new construction Yes Yes
Special risk inspections Yes Yes
Defensible Space Yes No
Exterior Hazard Control and Weed
Abatement Yes No
Company Inspections (pre-plan)No No
Certified/Qualified Fire Investigators Yes No
Fire-Cause Determination & Investigation
CCCFPD has staff who are certified peace officers with arresting powers and the capacity to
perform all functions of a fire-cause investigation. RHFPD does not have dedicated staff for the
statutory requirement of fire cause determination. The fire investigation team for CCCFPD
conducted almost 900 investigations in 2023. The RHFPD has become reliant upon CCCFPD to
subsidize its fire investigations.
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DRAFTAdministration
Each of the districts has varying levels of uniformed administrative support positions—due
primarily to their size. The following figure illustrates the various positions in non-uniformed
administrative positions.
Comparison of Uniformed Administrative & Support Staff
Position CCCFPD RHFPD
Fire Chief 1 1
Deputy Chief 3 —
Assistant Chiefs 8 —
Medical Director 1 —
Administrative Battalion Chiefs 3 --
Administrative Captains*3 —
Fire Marshal (see Assistant Chief)**—
Deputy Fire Marshal 1 ½--
Fire Inspectors 22 --
Public Educators 2 —
Public Information Officer 2 --
Fire Investigation Supervisor 1A --
Shift Fire Investigators (56-hour)3 —
Fire Investigators (40 hours)1 —
Fire Prevention Captains 4 —
Code Enforcement Supervisor 1A —
Plan Review Supervisor 1 —
Building Plan Checker I 2 —
Fire Prevention Technician 1 —
Community Risk Reduction 1 —
ACCCFPD has one FPB Captain assigned to Engineering/Plan
Review, Code Enforcement, Community Risk Reduction, Training, and
Fire Investigations.
**Can place the RHFPD ½ time personnel in either FM or
Deputy FM; RHFPD maintains a professional services contract
with CSG for fire prevention services.
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DRAFTAn effective fire organization requires non-uniformed staff to support daily administrative
activities. The following graphic shows the number of non-uniformed staff for each district.
Non-Uniformed Staff
Position CCCFPD
No. of Staff
RHFPD
No. of Staff
Chief of Administrative Services 1 0
Chief Administrative Officer 0 1
HR Analyst II 2 0
Executive Secretary 1 0
Administrative Assistant 0 1
Secretary Advanced Level 3 0
Account Clerk Advanced 3 0
District Aides 20 0
Fiscal Specialist 2 0
Fiscal Officer 2 0
Staff Accountant 0 0
Payroll Technician 0 0
Senior Level Clerk 5 0
Clerical Supervisor 1 0
Permit Technician 2 0
Totals:42 2
RHFPD maintains a professional services contract with Strategic Advisory Services for financial
consultant services.
Training
The following figure summarizes the general training topics and certification levels provided in
each district.
CCCFPD has a comprehensive and extensive training program. CCCFPD places more emphasis
on fire-related training and position specific competency based skill training from entry level
through Battalion Chief for succession planning. A contributing factor to the difference in
fire-related training was the special operations teams, technical rescue, truck operations, and
boat operations. The RHFPD has no dedicated training staff and has become heavily reliant
upon CCCFPD to subsidize its training needs. RHFPD maintains a professional services contract
with an EMS consultant to provide EMS training.
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DRAFTRHFPD does not have a comprehensive or extensive training program. The annexation will
increase the level of training and skill development for RHFPD personnel.
General Training Competencies by Fire District
Training
Competencies CCCFPD RHFPD
Incident Command
System ICS Series ICS Series
Accountability
Procedures Yes Yes
Training SOGs Yes Yes (outdated)
Recruit Academy Yes No (1 month
orientation)
Special Rescue
Training Yes Yes
HazMat Certifications Technician & Specialist
Operations (not all
personnel)
Vehicle Extrication
Training Yes Yes
Driving Program Yes No
Engineer Academy Yes No
Captain Academy Yes No
Wildland Certifications S190/130 S190/130
Communications &
Dispatch Yes Yes
Truck Company
Operations Yes No
DEI Training &
Recruitment Yes No
Fire Boat Operations Yes No (shore based only)
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DRAFTFollowing is a summary of the current training resources and facilities available for each district.
Training Facilities & Resources by District
Facilities & Resources CCCFPD RHFPD
Adequate training ground space Yes
Yes (not
ISO
compliant)
Training building/tower Yes Mobile
Burn room at the training building Yes No
Live fire props Yes No
Driver's course Yes No
SCBA obstacle course/CFS Yes No
Adequate classroom facility Yes Yes
Computers & simulations Yes Yes
EMS props & mannequins Yes Yes
Personnel/Recruitment
Both districts use their own recruitment processes and have differing recruit training programs.
Contra Costa County Fire uses their training campus to facilitate a 22-week recruit academy.
RHFPD requires recruits to have previously completed a community college fire academy and
offers a 1 month orientation followed by on the job training.
Recruitment of support, admin, and executive chief positions is similar with each agency having
different methods.
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DRAFTProposed Service Delivery Plan
Service Overview
The combined organization will provide fire, rescue, and first responder emergency medical
services, including special operations capabilities, to all the communities within the reorganized
district in a manner consistent with services provided in the existing Contra Costa County Fire
Protection District. Full-time and full-service fire prevention and fire investigation services,
along with internal apparatus and fleet maintenance programs, facilities management,
administrative and support services will be provided.
Staffing
Staffing will be stabilized and consistent through this annexation with a larger and broader
group of firefighters and chief officers available to fill the required daily positions. Fire
prevention, administration, training and support services functions will be strengthened with
the existing staffing of the CCCFPD.
Dispatch/Communications
There would be no changes to dispatch and emergency communications. There would be
increased support provided by Contra Costa County Fire Protection District staff for radio and
communication servicing, repairs, training, and radio programming under the combined
organization.
Level of Demand
It is anticipated that immediately following annexation, demand for services as defined by calls
for service would total the sum of the existing demand in the two service areas. In subsequent
years, demand would continue to increase in conjunction with anticipated population increases,
new development and infrastructure, and other factors influencing need for fire protection,
rescue, and EMS services.
Automatic and Mutual Aid
The combined, larger organization would continue to support automatic and mutual aid
commitments at the local level. The ability to respond to regional and statewide mutual aid
would be enhanced by additional capacity and personnel.
Public Outreach/Education
Public education and public information services would be provided with dedicated staff of the
already existing Contra Costa County Fire Protection District.
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55
DRAFTFire Prevention
Fire prevention and fire investigations will be provided with the current CCCFPD staff. Staffing
levels will be reviewed annually to determine appropriate staffing levels for current and
anticipated workloads and changes in mandated programs.
Administration
The combined organization would have an approximate 13% administrative/support staffing to
line staffing based on current staffing levels.
This is consistent with similarly sized organizations, and, except for the Fire Chief position, there
does not appear to be duplication of support staff. Grant management, contract administration,
and cost recovery programs would be appropriately staffed with the current CCCFPD
administrative resources.
Maintenance
Vehicle maintenance would be performed by the Contra Costa County Fire Protection District
apparatus shop. This will increase consistency and uniformity in quality by ASE certified fire
mechanics.
Training
Training of recruit firefighters will be conducted through the Contra Costa County Fire
Protection District academy. This state Accredited Local Academy will increase consistency in
the training provided and the quality and capability of the recruits who will become firefighters
serving the various communities of the combined organization upon graduation.
Continuing training will be delivered using the systems developed under the Contra Costa
County Fire Protection District’s Training Division. Increased use of decentralized training at
locations in west county will need to be used to reduce travel times of crews.
The Training Division increased staffing by one 40-hour Training Captain and added a civilian
training specialist in mid-2021 and another in 2024. The Training Division will continue
providing consistent continuing education and training.
Personnel/Recruitment
Recruitment processes will be standardized under the current practices of the Contra Costa
County Fire Protection District based on existing district practices and policies.
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DRAFTLevel and Range of Proposed Services
Capacity Availability
Current front line capacity for emergency response of the combined organization is suitable to
meet the current demands. Additional overhead capacity for large or complex incident
management and mitigation will be a direct benefit to the communities of Rodeo and Hercules.
Capacity within the fire prevention bureau will be evaluated on an ongoing basis, as is the
current practice, to match staffing with service demand.
Willingness to Serve
Contra Costa County Fire Protection District is prepared to serve the areas under the proposed
annexation. The ability to serve the new areas is complemented by existing personnel from the
annexed district being incorporated into the ranks and structure of the new organization, as well
as the planned recruitment, training, and deployment of additional resources as needed.
Service Adequacy
The level of service provided in the annexed territory will be consistent with current CCCFPD
practices, policies, and standards.
Infrastructure Needs/Planned Improvements
There are no identified significant infrastructure needs. With the age of Fire Station 75 and Fire
Station 76 there will need to be continued maintenance, upgrades, repairs, and certain
modernizations and improvements. These have all been identified by RHFPD and some
progress has been made to complete these projects. No additional fire stations or expansions
of facilities are contemplated at this time.
Apparatus will be replaced based on the CCCFPD replacement program and plans to replace the
Type 3 wildland apparatus operated by RHFPD are included in the fiscal analysis and cost
projections.
Correlation with Agency Plans and Operations
CCCFPD maintains an operational plan that is updated annually as well as an apparatus
replacement plan and capital improvement plan. The proposed annexation is consistent with
CCCFPD’s planning documents and operations. It is anticipated that operations within the
annexed area will become entirely consistent with CCCFPD’s operational plan and capital
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57
DRAFTimprovement plans once operations are taken over by CCCFPD. Additionally, these plans will be
updated to incorporate needs specific to the annexed area.
Alternative Service Structures and Related Effects
In March 2024, the RHFPD sought potential interested agencies to provide services to their
district under contract. No public agency responded, thus the alternative service delivery
model under a contractual relationship with another fire service agency was determined
infeasible.
There are two alternatives to the reorganization as proposed here—status quo and
consolidation. Status quo would be retaining the existing service and governance structure and,
without a significant increase in revenue, would result in anticipated service level reductions in
the next few years for the RHFPD.
Consolidation, as opposed to the reorganization (annexation) proposed here, would result in a
combining of the two districts into a new district. While the outcome would ultimately look the
same as the proposed annexation/dissolution, the process would result in a new district being
formed and would not capitalize on the already existing structure of CCCFPD as the proposed
successor agency. The costs and impacts to service levels would likely be similar for both
reorganization and consolidation.
Fiscal Analysis
Background
This section of the application describes the financial resources which are available to fund the
services provided following reorganization, and the projected expenditures based on
assumptions previously described in the service delivery plan and transition plan. Based on a
projection of fund balance, revenues, and expenditures, CCCFPD will be able to provide the
services described in this plan.
Revenue Sources
Each district has a mix of revenue sources with property taxes being the primary source. The
revenue sources of the reorganized district would include property taxes, special taxes, benefit
assessments, fees for services, development impact fee revenue, community facilities district
revenue, grants and intergovernmental revenue from other agencies, as well as a specific sales
tax (San Pablo), and a general countywide sales tax (Measure X).
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58
DRAFTPost-Reorganization 5-Year Financial Projections
Operations
The financial projections are based on available revenue from all sources for the
Rodeo-Hercules Fire Protection District that are assumed to continue following the annexation
and all known CCCFPD expenses to staff, operate, maintain, and support two fire stations in the
communities of Rodeo and Hercules. Revenue sources for the RHFPD include all forms of
property tax, RDA pass-through revenues, benefit assessments, Measure O, and Measure H.
Revenue from Phillips 66, Homeowner Property Tax Relief, and an estimate for fire prevention
fee revenue are also included. Revenues are estimated below:
Revenue Category (annual increase)FY 24/25 FY 25/26 FY 26/27 FY 27/28 FY 28/29 FY 29/30
Property Taxes (4%)$4,864,663 $5,059,250 $5,261,620 $5,472,084 $5,690,968 $5,918,606
Benefit Assessments (0%)$1,363,968 $1,363,968 $1,363,968 $1,363,968 $1,363,968 $1,363,968
Measure O (2.5%)$2,646,544 $2,712,708 $2,780,525 $2,850,038 $2,921,289 $2,994,322
Measure H (0%)$86,388 $86,388 $86,388 $86,388 $86,388 $86,388
RDA Pass Through (4%)$935,000 $972,400 $1,011,296 $1,051,748 $1,093,818 $1,137,570
Phillips 66 Annual Lease Purchase
Offset (0%)$99,000 $99,000 $99,000 $99,000 $99,000 $99,000
Homeowner Property Tax Relief (0%)$29,000 $29,000 $29,000 $29,000 $29,000 $29,000
Fire Prevention Fee Revenue (0%)$50,000 $50,000 $50,000 $50,000 $50,000 $50,000
TOTAL REVENUE $10,074,563 $10,372,713 $10,681,797 $11,002,227 $11,334,431 $11,678,854
RHFPD property taxes have increased at an annual rate in excess of 4% annually since
FY2020-2021. The benefit assessments do not escalate on an annual basis and Measure O has
an escalator capped at 3% per year. Based on this it is felt the escalators used in the overall
revenue forecast model are conservative.
Salaries and benefits, which include Medicare payroll taxes, health insurance, and pension costs
for the line positions—Captains, Engineers, and Firefighters—were assumed to be entering the
CCCFPD system at the actual CCCFPD salary step for each individual on July 1, 2025, based on
the Local 1230 MOU and County transfer rules. This includes a mix of personnel entering
CCCFPD at top step for their position and several entering at mid-range or lower steps based on
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59
DRAFTtheir total compensation at RHFPD and the corresponding, or equivalent step, at CCCFPD. There
are a total of 18 positions at the Firefighter, Engineer, and Captain rank and one position at the
Battalion Chief rank in this analysis.
Overtime is calculated at 13% of total personnel costs based on CCCFPD’s historical overtime
cost experience. As previously stated, the projections include maintaining the existing staffing
levels of two stations.
Total personnel costs for Firefighter and Engineer positions are projected to increase 10%
annually in the first three years, due to anticipated annual step increases, and 5% annually
beginning in the fourth year of the projections. All other ranks are projected to increase at a
rate of 5% annually beginning in the first year of analysis.
Retiree health costs are additional benefit costs that are projected to increase 8% annually.
Administrative personnel (two clerical positions) will be absorbed into the existing CCCFPD
staffing. It is important to note these administrative positions are not necessary additions to
CCCFPD staff as a result of annexation, but will be accommodated as a result of the annexation
to extend employment for these members. These positions will be absorbed into the current
staffing and already budgeted positions of the CCCFPD’s administrative services section.
Program support for grant applications and grant management, as well as cost recovery and
other related services, are capable of being managed with existing CCCFPD staff.
Retiree health insurance benefit costs for RHFPD retirees are stated separately to indicate those
long-term costs are considered in the projections.
Services and supplies expenses include, but are not limited to, station and apparatus operating
costs, repairs and maintenance, small tools and equipment replacement, training costs, radio
and technology costs, medical and firefighting supplies, turnout gear and uniform costs, and
professional services. These costs are estimated to increase 8% annually. It is anticipated that
there will be a significant benefit in consolidating certain administrative costs such as
technology, training, reduced professional services, and apparatus maintenance.
The operations portion of the combined districts is anticipated to produce positive cash flow for
each of the five years of the projections. This allows the combined operation to accumulate a
reserve balance, to assist in rebuilding reserves taking into account the full use of the RHFPD
reserves to pay down the unfunded pension liability of the RHFPD at the time of annexation, or
to take advantage of other opportunities during the projection period. The following figure
combines the revenues from the previous projections with expected operating expenses and
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60
DRAFTrelated expenses to develop annual operating cash flows and accumulated operating fund
balances through FY 29/30.
Recurring Revenue/Expense Projections
2025-26 2026-27 2027-28 2028-29 2029-30
Forecast Forecast Forecast Forecast Forecast
Salary and Benefits $7,291,876 $7,736,122 $8,210,545 $8,621,072 $9,052,126
Retiree Health $425,000 $459,000 $495,720 $535,378 $578,208
Materials and Supplies $438,205 $473,261 $511,122 $552,012 $596,173
Apparatus Replacement & Lease Purchase
Debt Service $1,166,800 $441,800 $463,890 $487,085 $511,439
Equipment Replacement $70,342 $75,969 $82,047 $88,611 $95,700
Communication Center Allocation $183,600 $198,288 $214,151 $231,283 $249,786
Facility Maintenance and Utilities $126,000 $132,300 $138,915 $145,861 $153,154
Unanticipated Annexation Expenses $100,000 0 0 0 0
Total Operating Costs $9,801,823 $9,516,741 $10,116,390 $10,661,301 $11,236,585
Total Revenue $10,372,713 $10,681,797 $11,002,227 $11,334,431 $11,678,854
Net Revenue of CCCFPD Contract $570,890 $1,165,056 $885,837 $673,130 $442,269
Salary & Benefits
CCCFPD currently experiences a much lower pension cost, as a percentage of eligible
compensation, than RHFPD for both classic and PEPRA members. This amounts to over 30% in
reduced pension costs for CCCFPD as compared to RHFPD. The salary and benefit forecasts
include base salaries, any incentive or additional pay items, FICA, uniform allowance, medical
and dental subsidies, workers compensation insurance costs, all CCCERA retirement related
costs, as well as holiday pay, scheduled FLSA pay, and an overtime cost factor for the Battalion
Chief (1), Captain (6), Engineer (6), and Firefighter (6) positions at the calculated salary scale
each current RHFPD member would be entitled to upon joining CCCFPD. These costs were
escalated at 5% annually with a 10% annual cost escalator through FY 27/28 for all firefighter
ranks due to scheduled step increases for those ranks. Classic retirement rates were used for
the Captain ranks and PEPRA rates were used for the Engineer and Firefighter classifications,
based on the current and expected census for these ranks.
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DRAFTRetiree Health
Retiree health is planned to be reimbursed at 100% of total plan costs to those RHFPD members
retired as of the date of annexation. The costs allocated to retiree health presume two
additional RHFPD retirements with the maximum cost of benefits provided for those two
presumed retirements. Future retirees will receive the normal CCCFPD retiree health care
subsidy, which is less than 100%.
Materials & Supplies
Several cost components are included in this section including IT, training costs, fuel, tires,
apparatus maintenance, property & liability insurance costs, EBRCS subscriber fees, firefighting
supplies not included in the Equipment Replacement section, disposable medical supplies, and
tax collection services. There is no anticipated significant increase to legal services or payroll
services.
Apparatus & Lease Purchase Debt Service
This section includes $300,000 of current debt service for Quint 76 and Engine 75. Additionally,
leasing costs for a utility pickup and Battalion Chief vehicle are included beginning in FY 25/26,
although neither may be necessary until a subsequent fiscal year. The planned purchase of one
(1) Type 3 wildland engine and (1) Type 6 wildland engine are planned for FY 25/26 with cash in
lieu of a financing arrangement. This would replace both wildland apparatus by FY 27/28 based
on current delivery schedule estimates. In FY 26/27 the district would purchase one (1) Type 1
engine to replace the current Engine 75A. This would be a 10 year lease purchase with the
annual payments commencing in FY 26/27 and delivery anticipated in FY 29/30 based on
current delivery schedule estimates.
Equipment Replacement
There is both capital and non-capital equipment carried on fire apparatus for the safety of our
members and to provide specialized and technical fire, rescue, and medical services to the
public. Based on the manufacturer’s recommended useful life, the following equipment is
replaced at regular intervals and included in this portion of the fiscal analysis: automobile
extrication tools (jaws of life), self-contained breathing apparatus (SCBA), thermal imaging
cameras, portable and mobile radios, fire hose and nozzles, LUCAS CPR devices, Lifepak
Monitor/Defibrillators, as well as structural and wildland personal protective equipment. The
amount listed in each fiscal year is representative of the sum total of the equipment divided by
its useful life. In some years more, or less, may be expended based on the actual equipment
being replaced in that given year and its unit cost. The cost of replacing the LifePak
Monitor/Defibrillators and the LUCAS CPR devices is not borne by the CCCFPD general fund;
these items are replaced through the CCCFPD ambulance transport fund and, as such, their
replacement costs are not included in the calculation.
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DRAFTCommunication Center Allocation
This represents the annual amount that would otherwise have been paid to CCCFPD by the
RHFPD for dispatch related services from the Contra Costa Regional Fire Communications Center
(CCRFCC). Since this revenue will no longer be coming to the CCCFPD it is listed here as an
expense for overall planning purposes and to account for the loss of revenue.
Facility Maintenance & Utilities
Each station has its own unique maintenance needs and often a unique cost for utilities
depending on age, construction, water use, and the type of heating and air conditioning
appliances installed. Using RHFPD budget figures, and CCCFPD experience with scheduled
maintenance items such as paint, carpet, and appliance replacement, overhead door
maintenance, exhaust system maintenance, exterior building maintenance and repairs a budget
forecast is provided here.
Unanticipated Annexation Expenses
In both of the previous mergers, the CCCFPD experienced some unanticipated transition
expenses. Some of these included replacement of iPads or other IT infrastructure, telephone
equipment, or other minor equipment. In some cases there is minor work or contractor
provided services that are necessary to align IT, telephone, or other infrastructure. Upgrading
or replacement of RHFPD personal protective equipment (PPE) may also be needed or may be
phased in over a period of time with minor modifications of existing and serviceable PPE. These
expenses are only included in the first fiscal year following the anticipated annexation date.
Capital
The second component of the proposed annexation to be analyzed is the funding available to
acquire capital resources such as fire stations and equipment. There are no plans for new fire
stations in the communities of Rodeo or Hercules as a result of this annexation. Each of the
districts receives funding from special assessments that are restricted to use only within the
jurisdiction from which the revenues are received. These restricted revenues include
development impact fees (both agencies), benefit assessments (RHFPD), and Measure O
(RHFPD). The development impact fees are to be used for capital expenses related to new
development needs and impacts in a specific area. The benefit assessments and Measure O are
available for capital needs, ongoing operational costs to staff and operate stations. All of these
funding sources are restricted to benefit the area from which the funding is derived.
CCCFPD will assume the obligation for debt service payments, capital expenditures for
apparatus and equipment, and the ongoing maintenance and necessary improvements to fire
stations into the future.
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DRAFTCurrently, the RHFPD has a lease agreement with the City of Hercules for Fire Station 76. The
lease agreement, or other ownership arrangement, for Fire Station 76 will need to be
determined and executed between CCCFPD and the City of Hercules prior to the annexation
effective date.
Several apparatus of various types are anticipated to be acquired during the next five years.
CCCFPD has provided cash funding for the purchase of one (1) new Type 3 and one (1) new Type
6 wildland engine in FY 25/26 in the fiscal analysis. One (1) new Type 1 engine is planned to be
purchased through the CCCFPD lease-purchase program in FY 26/27 to replace the current
Engine 75A. Funding for these acquisitions is expected to be from the use of cash in FY 25/26 as
a result of positive cash flow from the annexation and the annual lease-purchase payment is
added to the fiscal analysis in the form of an ongoing annual payment beginning in FY 26/27.
The initial balance of the RHFPD reserve fund, or fund balance, of approximately $7 Million is
planned to be used to pay down the approximately $12 Million of CCCERA unfunded accrued
actuarial liability (UAAL) of the RHFPD pension cost group. Annual savings as a result of the
annexation will allow the CCCFPD to rebuild additional reserve funds after having used the
RHFPD reserve funds in their totality upon the annexation implementation date.
Combined Reserve Balances
The CCCFPD has a combined reserve balance (fund balance) of approximately $182 Million as of
June 30, 2023. Figures for the close of the FY 2023-24 budget will not be available until the fall
of 2024. It is anticipated the RHFPD will have $6,938,013 in available reserves (fund balance) as
of June 30, 2025. The CCCFPD plans to use this balance to pay down the RHFPD CCCERA UAAL
to the maximum extent possible. If this is done, there will be no transfer of RHFPD general fund
balance to the CCCFPD general fund balance. Rather, the accrued savings in each year of
operations can be used to replenish the fund balance or be used to support other needs as they
arise. The current, and anticipated, CCCFPD fund balance is sufficient to support the annexation
alone.
Other RHFPD balances include the California Employers’ Retiree Benefit Trust (CERBT) Fund. As
of March, 2024, balance is $3,150,196. The CCCFPD intends to use this balance to pay down the
Other Post Employment Benefit (OPEB) liability that will be calculated and added to the CCCFPD
outstanding balance with Contra Costa County.
The current Rodeo and Hercules Development Impact Fee (DIF) funds will continue to exist and
be separately accounted for following the annexation effective date. These funds will be added
to the list of special revenue accounts in the CCCFPD finance system with the County Treasury.
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DRAFTAnnual accounting for all revenues and related expenses will be completed by the CCCFPD post
annexation.
Findings
As of 2024, RHFPD was facing financial challenges with forecasted ongoing structural budget
deficits in the near future. This trend is forecast to continue due to the cost of operating a small
district exceeding the forecasted increases in available revenue sources. The fiscal impact of the
Contra Costa County Employees' Retirement Association (CCCERA’s) costs, and potential voter
fatigue and resistance to additional ongoing taxes or fee structures due to the current impacts
of benefit assessments and Measure O.
CCCFPD faced declining revenues associated with the decline in property values and thus
property tax income after 2008, combined with increased costs associated with retirement
liabilities. A significant increase in property tax revenues over the last several fiscal years,
coupled with several successful state and federal grant programs, has strengthened CCCFPD’s
financial position. CCCFPD has current combined reserve balances of $182 Million.
Fiscal Determinations
Both districts have benefited from increasing property tax revenues over the last several years.
Property tax revenues in upcoming years are expected to normalize in the 4% range, according
to the County’s annual economic forecast, while FY 24/25 may see somewhat reduced property
tax revenues due to the impact of higher mortgage rates possibly suppressing overall real estate
transaction activity.
CCCFPD had faced financial constraints in prior years associated with declining property tax
revenues and increased pension liabilities until 2013. More recently, the area within CCCFPD is
experiencing significant growth in both residential as well as commercial developments,
resulting in significantly increased property tax revenues, which coupled with Measure X sales
tax revenue, enabled the re-staffing of seven companies and the reopening of all previously
closed fire stations over the last decade. Measure X sales tax revenue has significantly impacted
the CCCFPD’s ability to expand community risk reduction projects and increase wildland fire
mitigation work throughout the county. Property tax revenues are projected to continue to
grow approximately 4% annually through FY 29/30.
Projected combined finances of the districts for operational and capital expenditures indicate
that the annexation of RHFPD by CCCFPD is a financially feasible option. The combined finances
of the reorganized agency would provide for increased sustainability of services within the
RHFPD, expansion of fire prevention services including weed abatement and exterior hazard
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DRAFTcontrol, and provide for an industry-standard replacement schedule of critical fire apparatus
and emergency equipment. This financing structure capitalizes on cost savings resulting from
elimination of the RHFPD Fire Chief position, reduced pension costs, combining technology
infrastructure, fleet maintenance, reduced capital reserve needs of the smaller agency, and
other administrative functions.
Appropriations Limit
The existing appropriations limit (the "Gann Limit"), according to "County of Contra Costa,
2023-2024 County Special Districts Final Budgets" publication and the budget documents of the
agencies are: CCCFPD = $4,788,422,954 and RHFPD = $19,678,806. The adjusted Gann Limit for
Contra Costa County Fire Protection District would be a combination of the two Gann Limits of
the individual districts or approximately $4,808,101,760.
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DRAFTProposed Transition Plan
The transition plan described below is intended to describe the process for the complete
organizational and service reorganization of the two districts.
Reorganization Timeline
The application to LAFCO will be submitted in mid-Summer 2024. It is anticipated the LAFCO
review process will take six months to complete with a tentative annexation effective date of
July 1, 2025.
Implementation Plan
Facilities and Apparatus Transfer
All facilities, equipment, and other apparatus existing as of finalization of the annexation which
are owned by the Rodeo-Hercules Fire Protection District shall by transferred to the Contra
Costa County Fire Protection District. The CCCFPD will meet and confer with the City of
Hercules regarding Fire Station 76 and determine a mutually acceptable form of ownership and
occupancy or property transfer.
Financial Transfer
Property Tax Sharing
It is assumed that all property taxes, which would otherwise be allocated by the Contra Costa
County Auditor-Controller to the Rodeo-Hercules Fire Protection District, would be allocated to
the Contra Costa County Fire Protection District upon filing of the Certificate of Completion of
the annexation and in each year thereafter.
Operating and Capital Reserve Funds
All fund balances that have been accumulated by the Rodeo-Hercules Fire Protection District
shall be transferred from their existing accounts to the Contra Costa County Fire Protection
District. CCCFPD will deposit capital funds into appropriate accounts for their stated purpose
consistent with current CCCFPD budgeting and accounting practices. CCCFPD shall determine if
RHFPD general fund balance will be directed to pay down the unfunded actuarial accrued
liability (UAAL) of the RHFPD safety cost group with CCCERA prior to the annexation effective
date.
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DRAFTOther Assets and Liabilities
All other assets (including land and improvements) and liabilities existing as of the annexation
shall be transferred from the Rodeo-Hercules Fire Protection District to the Contra Costa County
Fire Protection District.
Governance Structure
The reorganized Fire District will be governed by the Board of Supervisors, acting as the Board
of Directors of the Contra Costa County Fire Protection District.
Personnel and Employment Agreements
All full-time personnel from RHFPD who desire to do so are planned to be absorbed into
CCCFPD, with the exception of the Fire Chief and part-time fire prevention staff. Personnel will
be transitioned into positions most closely matched with their current job classifications. In
some cases, these positions will be represented by the same labor organization and in some
cases the labor organization will change, depending on the representation at CCCFPD. CCCFPD
is working with labor and County HR representatives to determine appropriate steps, actions,
and processes to perform a smooth transition of all impacted personnel.
Conditions of Service Required by the Land Use Agency
While this annexation is not for the purpose of serving new development, CCCFPD will comply
with all conditions of service as defined by each land use agency within the annexed territory,
such as development approval conditions, facility/impact charges, and fire flow requirements.
Within the Rodeo-Hercules Fire Protection District, land use authorities consist of the County
and the city of Hercules.
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