Resolution 2004- 94
RESOLUTION NO. 2004-94
A RESOLUTION OF THE CITY COUNCIL OF THE CITY OF
GILROY APPROVING AN UPDATE TO THE 2000 MASTER
PLAN OF FIRE SERVICES.
WHEREAS, the City of Gilroy completed and adopted its Master Plan for Fire Services
prepared by City gate Associates in August 2000; and
WHEREAS, the City Fire Chief on September 27, 2004, received a draft report on a 2004
Master Plan Update with recommendations by consultants Citygate Associates; and
WHEREAS, the City Council at a duly noticed public meeting on October 18, 2004,
reviewed the draft report on the Master Plan Update including the Staff Report dated October 4,
2004, for Interim Fire Chief Hugh Holden, with recommendation to approve the Master Plan
Update; and
WHEREAS, the location and custodian of the documents or other materials which constitute
the record of proceedings upon which this project approval is based is the office ofthe City Clerk.
NOW, THEREFORE, BE IT RESOLVED THAT:
The 2004 Master Plan Update Report augmenting the 2000 Master Plan of Fire
Services should be and hereby is approved as set forth in the chart attached hereto as
Exhibit "A," and incorporated herein by this reference.
PASSED AND ADOPTED this 1 st day of November, 2004, by the following vote:
AYES:
COUNCILMEMBERS:
CORREA, DILLON, GARTMAN, MORALES,
VALIQUETTE, VELASCO and PINHEIRO
NONE
NOES:
ABSENT:
COUNCILMEMBERS:
COUNCILMEMBERS:
NONE
\GBO\639619.1
01-102604-04706089
-1-
Resolution No. 2004-94
~t2~
Rhonda Pellin, City Clerk
IGB01639619.1
01-102604-04706089
~
ert Pinheiro, MaY:'
-2-
Resolution No. 2004-94
CllYGA TE ASS9CIA TES, LLC
. FOLSOM (SACRAMENTO)
MANAGEMENT CONSULTANTS.
EXHIBIT A
. .
UPDATE OF THE FIRE
SERVICES MASTER PLAN
OF AUGUST 2000
FOR THE
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VOLUME 1, THE MASTER PLAN UPDATE REPORT
OCTOBER 2004
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Chestnut Station, 7070 Chestnut Street . .
. 705 Gold Lake Drive, Suite 100 . Folsom, CA 95630 --
(916) 355-1385 or (800) 275-2764 . Fax: (916) 355-1390 S'n(],ft1~,N~~~!ftmd~C
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DRAFT
TABLE OF CONTENTS
VOLUME 1 (THIS VOLUME)
Section
Pa1!e
Executive Summary ..... ......... ...... ................... ............................... ....... ...... E x eeu tiv e Summary-l
A. Purpose of the Study ..............................................................Executive Summary-l
B. Scope of the Study .................................................................Executive Summary-l
C. Objectives of the Study ..........................................................Executive Summary-l
D. Study Methodology...... ................. ...... ........ ...........................Executive Summary-3
Master Planning in General ...................................................Executive Summary-3
Time Frame for this Plan .......................................................Executive Summary-4
E. Gilroy Fire Services Master Plan Revision Process ..............Executive Summary-4
F. Section I - Introduction .........................................................Executive Summary-5
G. Section II - Current Organizational Context .........................Executive Summary-5
H. Section III - Assessment of the City Values at Risk .............Executive Summary-8
I. Section IV - Current Organizational and Deployment
Capability............................................................................... Executive Summary-8
J. Section V - Future Policy Direction......................................Executive Summary-9
K. Other Sources Used in the Review of Departmental
Practices ................. ........... ............ .................................... ...Executive Summary-13
L. Summary ........ ........ ..................... ......... ............................... . Executive Summary-13
I. In trod u ctio n ...................... ....................... ....... ....................................... ... ......... .............. 1-1
A. Purpose of the Study......... ............ ....... ............ ........................... ............ .............. 1-1
B. Scope of the Study...... ............ ....................... ....................................... ....... ......... 1-1
C. Objectives of the Study. .......... ............. ............ ........... .......... ....................... ......... 1-1
D. Study Methodology..... .......... ............... ........ ............... ............ .......... ........... ...... ... 1-3
Master Planning in General.................................................................................. 1-3
Time Frame for this Plan .... .......... ................................... ........ ....... ..... ...... ... ........ 1-4
E. Master Plan Revision Process ...............................................................................1-4
Local Conditions versus Mandates .... ...... ........................................... ....... ........... 1-5
F. Summary ......... .......... ......... .............. ............ ......................... .......... ............. .... ..... 1-6
II. Current Organizational Context .................................................................................11-1
A. Previous Recommendations ............... ........ ................................. .......... ....... ....... 11-1
B. The Following Has Been Accomplished ............................................................ II-I
C. Newly Emerging Issues.. ............ ......... .................... ..... .... ............. ......... ............ 11-3
1994-2002 Overview .......................................................................................... 11-4
LAFCO Study.......... ......... ........ ........ ........ ............................. .......... ........... ........ 11-4
Comparative Analysis of Fire Service Indicators in Santa Clara County........... 11-4
D. The Fire of the Future ......................................................................................... 11-5
E. The City of Gilroy 20 Years from Now.............................................................. 11-7
F. Summary ........ .......... ......... ................ ...... ............................... ............ ................. 11-8
Table of Contents-i
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III. Assessment of the City Values at Risk ...................................................................... 111-1
A. Updates and Retention ofInformation based Upon the First Edition................ III-l
History. ... .. ..................... .. .. ............ ............ .. .... .. .. .. ............. .... .......... ....... ..... ...... 111-1
Climate............................................................................................................... 111-1
Natural Resources.............................................................................................. 111-2
Natural Hazards................................................................................................. 111-2
Seismic Hazards..................................................................................... 111-2
Flooding................................................................................................. 111-2
Fire Hazards........................................................................................... 111-2
Existing Land Use.............................................................................................. III - 2
Population Growth............................................................................................. III - 3
Population Density. ...... .......... .... ... .... ................ ......................... ...... ........... .... ... 111-4
Household and Population Characteristics ........................................................ III-5
Economic Development..................................................................................... 111-5
Housing Characteristics..................................................................................... 111-6
B. Planning Area..................................................................................................... 111-6
General Plan Area.............................................................................................. 111-6
Urban Service Area (USA) .. ................................. ................... ...... ......... ........... 111-6
C. Population and Area Trends and Projections..................................................... III-6
Age Distribution Trend...................................................................................... 111-6
D. Other Planning Factors ...................................................................................... 111-9
Medical Facilities............................................................................................... 111-9
Special Events.................................................................................................... 111-9
Periodic Events..... .... ....................... .................. ....................... ........ ....... .......... 111-9
E. The Relationship Between Risk and Resource Needs ....................................... III-9
F. Risk Factors That Have Not Changed Since the First Edition......................... III-I0
G. Risk Factors That Have Changed and Been Identified Since
the 2000 Master Plan Document................................................................... III-I0
Current Risk Identification and Quantification................................................ III-lO
H. Review of the Use ofRHA VE Evaluation on Risk......................................... III-II
Life Safety........................................................................................................ III -11
Community Risk.............................................................................................. III -12
Business Risk (Loss of Sales Tax Revenue)........................................ III-12
Infrastructure Loss............................................................................... III -12
Environmental Impact.......................................................................... III -12
Changes in the Composition of Community Risk ............................... III-12
Commercial Development....................................................... III -12
Residential Development: A Shift from Typical to
Atypical Risk........................................................................ III -13
I. Demographics of the Community .................................................................... III-14
J. Summary of Demographics ...... .............. ........ ...... ................... ........ ....... .... ..... 111-22
K. Use of GIS in this Planning Process ................................................................ III-23
L. Topography and Boundaries............................................................................ III - 23
M. Vegetation Models........................................................................................... III - 24
N. Fire Hazard Severity Zones ....... ........... .................... ...... .............. ................... III -25
Table of Contents-ii
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IV.
DRAFT
O. State Responsibility Areas ............. ..................... ............................. ................ 111-26
P. City Parcels and Zoning.... .................... ........... ...... .......... ......... ........ ........... .... III -27
Q. ISO Buildings............... ............ .... ...... ........................... ............. .... ............... ... 111-28
R. Response Workload... .......... .................... ................... ......... ....... ........ ...... ....... 111-29
S. Response Time Performance ........................... ......... ....................................... 111-30
T. Occupancy Risks - Life Safety and Community Risk..................................... 111-31
U. Occupancy and Life Risk by RHA VE Ratings................................................ 111-32
V. Geological Hazards and Unreinforced Masonry Buildings (URM's) ............. 111-33
W. Water Safety..................................................................................................... III - 34
X. Summary .... ........ ...... ....................... ...... ................... ........ ........... ...... ............... III -34
Current Organizational, Operational and Deployment Capability ........................IV-l
A. Overview............................................................................................................ IV-1
B. Impact of the Arbitration Award on Staffing.....................................................IV-1
C. The Principles of Standards of Coverage........................................................... IV-1
D. Findings of Last Master Plan .................. ............................................... ............ IV-2
E. Existing Configuration Level of Service ........................................................... IV-2
F. GIS Analysis of the Road Network ................................................................... IV-3
G. Distribution Map................................................................................................ IV -4
Distribution Map All - Assets........................................................................... IV -6
Under and Hard to Serve Areas ......................................................................... IV-6
H. Road Bed and Traffic Considerations................................................................ IV - 7
I. Concentration Discussion.................................................................................. IV-8
1. Critical Tasking.................................................................................................. IV-9
K. Gilroy's Critical Task Development................................................................ IV-II
L. Determining the Gilroy Fire Department's Effective Response Force (ERF).IV-12
M. Combining Outcome Expectations with Hazards, Risk and Values................ IV -12
N. Infill Potential.................................................................................................. IV -13
O. Thresholds and Triggers .................................................................................. IV -14
P. Criterion Grid.................................................................................................. . IV-IS
Use of the Flow Chart...................................................................................... IV -16
Weighting of Factors........................................................................................ IV -19
When Would the New Stations Have to be Built and Staffed? ....................... IV -19
Minimum and Maximum Scoring........ ........... ................ ......... ........ ............. ... IV -21
Q. How Does This Apply to the Master Plan for Gilroy? ....................................IV-21
Response Time Performance Analysis ............................................................ IV-23
Compliance with Community Standard.................. .............. ..... .................. .... IV -24
Service Levels Expectations................................................................ IV - 24
Multiple Threshold Factors... .............................. ....................... .......... IV -25
Planned and Existing Development as a Service Equity Indicator......IV-26
Risk Distribution Outside of Four Minute Travel Time ......................IV-26
Response Time Failure............. ....... .................... ......... ............... ........ IV -27
Analysis of Disproportionate Response Time Failure......................... IV-28
R. When Should Sunrise Go to a Full Service Station? .......................................IV-28
S. When Should Fire Station Number Four Be Built? ......................................... IV -29
Table of Contents-iii
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DRAFT
T. Summary .................... .............. ...... ................... ....... ... ........... .... ........ ....... .... ... IV -30
V. Future Policy Direction ................................................................................................ V-I
A. Trends and Patterns... .............. ........ ...... ... ........ ....... .......... .... .......... ......... ........ ... V-I
B. The Effects of "Homeland Security" on the Fire Service................................... V-I
C. The Effects of the Budget Decision-making Process on the Fire Service .......... V-2
Effects of Recent ISO Rating of City ................................................................. V-2
Grading by the Insurance Industry.......................................................... V - 3
Receiving and Handling Fire Alarms ..................................................... V-3
Fire Department...................................................................................... V-4
Water Supply..... ...... .... .............................. .............. ........ ....... .... ........ .... V-5
D. Overall Fire And Emergency Services Direction ............................................... V-7
General Issues..................................................................................................... V - 7
What Has Not Happened .............. ........ ................ ........ ........... ............ ......... ...... V-8
E. Specific Policy Considerations ..... ........ ....................... ................................ ....... V-9
Program Enhancement....... ................. ...... ...... .......... ............. ........ ............. ........ V-9
CER T Programs .... ...... ..................... ........... ............ ................... ............. V-9
AED Programs..................................................................................... . V-I 0
Citizen Corps....................................................................................... . V-II
Impact of Large Buildings................................................................................ V -12
Urban Wildland Interface ........... .......... .............. .......... ................................ .... V -13
F. Review of Basic Goals for Fire Department..................................................... V-13
10 Basic Goals.................................................................................................. V -13
How Do These Goals Relate to the Gilroy Fire Department Today? ............... V-14
Visionary Goal 1 ... ............. ................. ............ .............. ........... ............ ......... .... V -14
Visionary Goal 2............ ........ ..................... ............. ............ .......... ......... .... ...... V -14
Visionary Goal 3 ............................................................................................... V -15
Visionary Goal 4............................................................................................... V -15
Visionary Goal 5 ............................................................................................... V -16
Visionary Goal 6 ............................................................................................... V -16
G. General Fire Protection Management Objectives............................................. V-16
Fire Suppression Objectives. ..................... ................................ ....................... V -17
Performance Statement. ........ .................. ............ ......... ................ ..... .... V -17
Fire Prevention Objectives................... .............. ............ ......... ................ .......... V -18
Fire Prevention Objectives............................... .......... ............... .......... ......... ..... V -18
Fire Investigation Objectives ..................... ...... .......... ............... .......... .............. V -18
Emergency Medical Services Goal................................................................... V-18
EMS Objectives ... ............. ................... .............. ............ ........... ............. ........... V -19
Hazardous Materials Control Goal................................................................... V-19
Hazardous Materials Control Objectives .......................................................... V -19
Training and Personnel Development............................................................... V - 20
Apparatus Maintenance and Replacement Goal............................................... V-21
Communications and Dispatch ....................... .............. ............. ............ ....... .... V -21
Facilities Maintenance Goal... .......................................................................... V -21
Objectives .... ....... ..................... ................ .............. ..... ....... ............. ...... V -22
Table ofContents-iv
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Appendix A
Appendix B:
Appendix C:
DRAFT
Disaster Planning.............................................................................................. V - 22
System Integration with Other Departments..................................................... V-23
Inter-City Relationships .................. ....... .......... ......................... ...... ......... .... ..... V -23
Building Department Fire Protection Goals ..................................................... V-23
Fire Protection Objectives...... ...... ......................... ......... ............. .......... V -24
Planning Department Fire Protection Goals ..................................................... V-24
Fire Protection Objectives..................... .............. ......... ......... ........... ..... V -24
Public Works and Engineering Fire Protection Goals ...................................... V-25
Fire Protection Objectives...................................... .......... ..................... V -25
Water Department Fire Protection Goals.......................................................... V-25
Fire Protection Objectives............. ....................................... ............. .... V -25
Law Enforcement Fire Protection Goals........................................................... V-26
Supportive Objectives.. ......... ............... .............. ................... ............. ... V -26
Future Distribution....................... ................. ....... .................. ................. .......... V -27
Future Concentration ................. ............. ........... .................. ....... ...... ................ V -30
Findings and Recommendations ....................................................................... V -31
Summary ... ................ ............. .... ....... ............... .......... ........ ......... .......... ......... '.' V -36
TABLE OF CONTENTS
VOLUME 2: ApPENDICES (BOUND SEPARATELY)
Map Atlas, ." '"'' .......
Critical Tasking Exercise...... . .... , ... "...',
LAFCO Propositions for Planning of Services...",,,
.Appendix A.I
Appendix B.1
,. Appemhx C 1
Table of Contents-v
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DRAFT
EXECUTIVE SUMMARY
A. PURPOSE OF THE STUDY
Citygate Associates, LLC was retained by the City of Gilroy to develop a Revised Master Plan for
fire and emergency services. The goal of the study was to provide an objective and systematic
examination of the Department's policies, practices, and activities in the context of the City's
growth in population and existing jurisdictional area. Moreover, the intent of this process was to
provide an evaluation by an independent source for the development of information to aid in
policy direction for the Department's growth and response to changing service demand related to
current and future growth.
The Fire Services Master Planning is one of a series of department master plans that support the
City's General Plan. The City has completed nine master plans, from a Parks and Recreation
Master Plan to a Police Facility Master Plan.
This report has been designed to provide the necessary information for development of policy
guidelines. It is written for use by management to adopt, support, evaluate, and/or modify
actions needed to assure that the Gilroy Fire Department service is adequate to meet the needs of
the community through the time horizon of the plan.
B. SCOPE OF THE STUDY
The process of defining the project's specific scope and objectives consisted of the provision of a
proposal and meeting with the City's Project Team. A dialogue between Citygate and the City's
Project Team resulted in a calendar of events and criteria for development of the departmental
meetings.
The scope of this Master Planning study was to address questions related to the mission, goals
and objectives, community risks, demand for service, organization and staffing, deployment and
concentration of resources, levels of service, and standards for response coverage for the next 20
years.
This project differs from a management audit. It focuses on future performance rather than
current conditions. Citygate, in conducting the engagement, attempted to determine if the Fire
Department is being managed and operated to maximize its performance. In addition, Citygate
evaluated the Department's future potential for efficient, effective, responsive, and timely
service. The emphasis was on developing a framework for decision-making that will occur in
the future.
c. OBJECTIVES OF THE STUDY
This project's overall objective is to provide the City of Gilroy with an updated Fire Services
Master Plan. According to the City, the project scope includes the following key steps:
1. Review and determine appropriateness of using videotape of a training burn for
performing "critical task" analysis of "fire attack" operations for typical risk structure
Executive Summary-l
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DRAFT
fire response. The tape has been professionally edited and includes a timer for
measuring activities.
2. For critical task analysis data not obtained through videotape review of the
Department's training bum, develop a critical task analysis plan to be performed by the
Gilroy Fire Department (GFD) resources. The critical task analysis plan should include
to the following:
a. Number of personnel and equipment resources needed to perform each critical
task analysis
b. A description or outline of the activities to be performed by GFD to prepare for
conducting each critical task (e.g., use of Critical Task Analysis as basis for
planned activities)
c. Prioritization of the importance of each critical task analysis to support the
completion of the final report.
3. Review RHA VE data supplied by the City to determine its ability to support the
identification and analysis of specific risk types within the City for the purposes of
applying a Standards of Response Coverage (SaC) deployment planning.
4. Review and analyze existing data sources to determine current performance of existing
resources. Where appropriate, use Geographical Information System (GIS) tools to
graphically illustrate current performance.
5. Work with City staff to develop empirically supported "thresholds" or "triggers" for the
addition of capital and human resources. Examples of possible criteria for thresholds
include:
a. Service level equity measures
b. Residential and commercial development
c. Response volume and type
d. Probability of occurrence
e. Other risk measures.
6. Determine Effective Response Force (ERF) for identified risk types in existing and
planned development areas, including wildland interface areas.
7. Review and include in the sac analysis the City's recently released General Plan,
Residential Development Ordinance (RDO) allocation, recent decisions regarding
commercial and industrial development, and mutual aid agreements and other reports
(e.g., LAFCO report).
8. Review and include in the analysis the capability to mobilize and use community-based
resources for routine and disaster-related responses. Specifically address:
a. Community Emergency Response Team (CERT) program
b. Public access defibrillation (PAD)
c. Other preparedness programs.
Executive Summary-2
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DRAFT
9. Work with City staff to develop report text used to explain and present results of critical
task analysis and other findings in a draft report. The report should include:
a. Description of current response capabilities (e.g., existence or nonexistence of
ERF) and service levels in comparison to existing performance requirements
b. If applicable, a gap analysis of current and needed capabilities to comply with
agreed upon threshold criteria and future needs
c. Description of alternative approaches with priority and timing of
recommendations to meet ERF requirements with changes in City growth and
development.
10. Provide review, editing, and production services to produce a final report endorsed by
Citygate as an "update" to the "Master Plan of Fire Services."
D. STUDY METHODOLOGY
The Citygate Consulting teams included the following personnel: David DeRoos, Project
Director and President of Citygate Associates, Ron Coleman, Project Manager/Facilitator and
Senior Consultant for Fire Services, Fire Chief Stewart Gary, Consultant for Standards of Cover.
The group initiated the study on September 1 ih, 2003.
Master Planning in General
The purpose of a Master Plan is to serve as a single source of results from a variety of planning
and administrative processes.
Master Plan development consists of the following steps:
. Defining existing conditions by:
~ Identifying risks to the community
~ Defining community service level requirements
~ Determining the adequacy of existing resources to meet servIce level
requirements
. Determining the type and quantity of resources necessary to comply or meet
service level requirements
. Developing and providing options and alternatives to comply or meet current and
future service level requirements.
The basic elements of a Master Plan include the following:
1. A description of the current level of service provided by the Department, as reflected in
the Mission Statement;
2. A description of current and projected controllable (e.g., development) and
uncontrollable (e.g., wildland fires) risks and hazards in the community;
3. The identification and adoption of desired service levels;
4. A series of "blueprints" for action which have budgetary implications; and
Executive Summary-3
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DRAFT
5. A description of how the City should be monitoring progress to assure the system is
following the blueprint.
The Master Plan should serve a governing body with an analysis of current conditions, but must
also focus on a longer planning period consistent with adopted community's standards. This
plan will address at least three increments: current conditions, 5-10 year forecasts, and a 20-year
projection.
Studying a fire department requires an inventory of both preparatory and resource effectiveness
and efficiency in meeting service level requirements. To improve the readability of this report
without reducing its specificity, the consulting team developed a straightforward framework for
this plan that consists of:
a. A review and discussion of previous master planning efforts
b. A process-defined organization of the report.
Time Frame for this Plan
The Master Plan is a living document that must be continually updated to remain relevant, which
gives the document an infinite planning horizon. Emphasis in this Master Plan is placed on
review of baseline information and on practical benchmarks for levels of service that are in line
with the risk that the City of Gilroy is willing to accept (as expressed through its elected City
officials). The Master Plan is based upon the assumption that all staffing and resource decisions
in the future will be made incrementally, but that the capacity of the Department will be directed
towards an overall condition of balancing risks with resources.
The policy recommendations are based upon the contingency that resources will be made
available during budget cycles that will occur over the same time period. The process of
planning for such an extended period of time (20 years) places emphasis on each year's budget
process. Measurable performance objectives should be established for each goal statement in the
Master Plan to provide for the actions needed to make this document a viable part of the
planning process.
It is important to note that since service demand is driven by community risk, the Master
Planning process must also take into consideration City-wide planning initiatives as well as other
department planning decisions. This explains why there are frequent references in this study
linking findings back to the City's General Plan. In addition, since Community Development
policy decisions affect community risk and Police Department decisions affect Fire Department
mission critical service (e.g., communications) the Department's success or failure in meeting its
service requirement is dependent on other departments. As a result, other department efforts
need to be closely coordinated and evaluated.
E. GILROY FIRE SERVICES MASTER PLAN REVISION PROCESS
In accordance with the project schedule, a meeting was conducted with the Fire Chief and
members of the staff that had been appointed to discuss the mission and activities of the project.
An overview of the master planning revision process was discussed with the Chief and key staff
members to provide a framework for discussion. The project schedule and the project's work
Executive Summary-4
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DRAFT
plan were also reviewed, as well as a task list and task force guidelines. A telephone and e-mail
contact list was created to aid in communications.
In conducting our analysis to address the study objectives in the Scope of Services, Citygate used
an approach that would facilitate the effective gathering of the necessary information in the most
expeditious manner possible. We examined the manner and method of achieving the project's
overall scope and objectives by using the following methods:
. Meeting, interviewing and working interactively with the Fire Department's
Project Team
. Reviewing all key documentation generated by both the City and the Fire
Department that relates to fire service operations. This included reviewing the
General Plan, development agreements, Fire Department documents and
presentations
. Obtaining and analyzing data from the Fire Department's record management
system (RMS), occupancy data base, the City's geographic information system
(GIS), Insurance Services Office (ISO) analysis, US Census Bureau and US
Geologic Survey, etc.
. Conducting a series of meetings with members of the Fire Department to test
basic assumptions and the accuracy of gathered information. This meeting
process also served to validate some of the more important goals and objectives to
be included in the report.
The completion of this task list was somewhat impacted by a series of events that were not
necessarily planned for. They included the changing of command of the Department by the
exiting of the Fire Chief who initiated the project and members of his staff and the appointment
of an acting Fire Chief. In addition, there was a change in staff members that were associated
with the study. These types of events occur frequently in fire departments and are not
necessarily detrimental. However, they do create transition issues with respect to the project
schedule, direction, and accuracy of the project.
F. SECTION I - INTRODUCTION
The Introduction of the Study covers the purpose of the study, the scope of the study, and the
objectives of the study. This section also describes the methods used to formulate the study and
describes the concept of Master Planning in General. The time frame for the use of this plan is
discussed along with the process used to define the revisions of the Master Plan. There is a
reference in this Section to the impact upon all fire studies with respect to conforming to state
and federal mandates.
G. SECTION" - CURRENT ORGANIZA TlONAL CONTEXT
This Section of the report contains information on the actions taken by the Department to
complete the original recommendations from the first Master Plan. There are a total of 17
separate achievements and accomplishments described in this Section. They are as follows:
Executive Summary-5
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Emergency Medical Services - The Department has completed the implementation of two
paramedic engine companies and one paramedic Supplemental Transport Ambulance Resource
(STAR) unit, executed a contract with Santa Clara County to provide ALS first responder
services, and executed a contract with County Communications to obtain Emergency Medical
Dispatch services for 911 callers. Current service levels are now equal to or exceed other
comparable communities in Santa Clara County for EMS.
Records Management - The Department has completed the implementation of a Records
Management System (RMS) that includes a comprehensive occupancy module. Data from this
system and other City records have been compiled to create a Gilroy-specific risk assessment
score for the purpose of fire master planning.
The Department has also completed the implementation of a comprehensive RMS system.
Response time performance data from the system is analyzed monthly, with quarterly analysis of
incident type and location. Other ad hoc reports are created to support senior staff and Council
decision processes.
New Station - The Department has completed construction on its Sunrise Fire Station in March
of this year and is a signatory to a development agreement that includes a land allocation for a
fourth fire station in the Southwest quadrant of the City. The specific timing will be dependent
on the location and timing of development.
Geographic Information Systems - The Department is in the process of implementing ArcView
geographic information system (GIS) software and is updating its current resource deployment
strategy through this Master Planning update. The Department is participating in the City's
development of GIS and is in the process of purchasing Fire View. The Department is working
closely with GIS specialists in other City departments and the City's GIS contractors to ensure
Department GIS needs are met.
South County Fire and EMS Services - Department staff has recommended that three South
County agencies work together to determine the optimal fire protection system design after the
completion of the department Master Plan Update and considering conclusions and
recommendations presented in the County's LAFCO fire services study.
Professional Development and Competency - The Department has recently filled its Training
Division Chief position. One of the several initial assignments is the creation of a career
development program. Initial opportunities already provided include attendance at a supervisor
training class offered to City employees responsible for supervision and an internship position to
assist in the development of Department programs. Additionally, the Department has hired an
outside contractor to provide career development raining to assist department members in
preparation for future promotional opportunities.
Recruitment and Career Development - The Department has worked with HR to create entry
requirements for firefighter paramedics, a lateral hiring process, as well as, eliminating a 60-
college unit requirement to increase applicant pools. Furthermore, the Department has created a
career path for persons interested in applying for open firefighter and firefighter paramedic
positions through its Volunteer and Paid Call Firefighter programs. Information regarding entry-
level skills, knowledge and abilities are provided through monthly meetings in each program. To
date, four volunteers have been sponsored to attend the basic firefighter academy. Two Paid Call
Firefighters (PCF) have attended a local paramedic program.
Executive Summary-6
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DRAFT
Training Facility - The Department's Training Division is working with Community
Development to identify and appropriate location and timing for the construction of training
facility structures. Most recently, the construction of a "training prop" has been initiated to
support structure fire training, as well as, the annual rental of a portable live fire training facility.
Other preliminary work has been completed to identify desirable features of a burn tower
facility.
Computer Aided Dispatch - The Department continues to participate on the CAD
implementation project team. A liaison has been established to work with the Communication
Center to ensure Fire Department needs are addressed with respect to CAD programming and
modifications. The most notable of these modifications include response prioritization and the
capture of additional time stamps to enhance response time interval analysis.
Built-in Fire Protection - The department is working with the Building Life and Environmental
Services (BLES) to develop a more stringent fire sprinkler ordinance for larger homes in high
fire hazard areas of the City.
Improving Response Times -The Fire Chief is a committee member on a City task force to
study alternative measures for traffic calming that will not adversely impact response time
performance.
Public Education - The Training Division has created Public Education objectives that include
injury and illness prevention. Furthermore, Public Education unit is using data from RMS to
identify at risk populations (e.g. children, elderly, non-English speaking populations, etc.) to
focus educational efforts. Implemented outcome measures include the use of pre and post
awareness and activity surveys.
Management Information Systems - The Department is reviewing operational data monthly
and completes a quarterly review of departmental operational performance and Goals and
Objectives with the City Administrator. Other review efforts include the creation of Ad Hoc
reports and reviews for City Council and administrators.
ISO Rating - The ISO team was created and the review was completed in 2003. The department
was rated as an ISO Class 4.
Fleet Management - The Department reviews and modifies fleet replacement and impact fee
budgets annually. The Department has developed specifications and received Council approval
to purchase a "Quint" to address changes in City's risk profile. Expected delivery is 2005.
Standards of Response Improvements - The Department is currently in the process of
identifying appropriate outcome measures for the purposes of completing an SOC analysis.
Dynamic Planning Process - The Department has completed its Master Plan update and has
instituted a data analysis review and master plan update process to continuously revise its Master
Plan.
Organizational Development - The Department has reviewed and realigned reporting
relationships to improve span of control and command and control procedures. Currently, efforts
are underway to redistribute "Program" assignments to balance administrative workload.
There is a brief description of emerging issues including discussion of the community's growth
and development and the impact of the recent LAFCO study on Fire Services in the County of
Santa Clara. There is also a brief description of the comparative analysis of fire service
Executive Summary- 7
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DRAFT
indicators in the County. A description of a scenario for what Gilroy is likely to look like in 20
years is included, and there is a brief description of the "fire of the future" as it relates to
structural fire.
H. SECTION 11I- ASSESSMENT OF THE CITY VALUES AT RISK
This Section of the report is focused on the values at risk in the community. It starts with the
history of the City's development, and describes the climate and natural hazards. It describes
land-use issues and population factors as well as economic factors that determine some of the
City's characteristics. The Planning Area is defmed as well as some population attributes that
impact fire and EMS service levels. This information has been expanded to include the
relationship between risk and the resource needs of the Department. The Section identifies some
risk factors that have not changed significantly since the first edition of the Fire Master Plan, as
well as describing those factors that have changed. Update information is provided regarding
life-safety issues and property related values. A description of how Risk Hazard and Value was
used to develop an assessment of all risks is provided. There is a portion of this Section that
focuses on the change in composition of the Commercial Risk in the City.
Differences in the typical to atypical risk in residential development are discussed as well as an
overview of how demographics can impact service levels. The Section also provides an
overview of the GIS maps that were prepared as part of the process of developing the Risk and
Hazard Assessment.
I. SECTION IV - CURRENT ORGANIZA TlONAL, OPERA TlONAL AND DEPLOYMENT
CAPABILITY
This Section of the report deals with the operational capability of the Department. It focuses
upon the fire station locations and the staffing issues that emerge from those locations. This
chapter is not a complete Standards of Response Cover. Rather, it is an update of the findings of
the last Master Plan with respect to deployment patterns and systems enhancements that have
occurred in the intervening years. There is discussion of the impact of an arbitration award, as
well as a description of the current configuration of service. There is a discussion of Distribution
and Concentration and maps to illustrate the current configuration.
Elements that have an effect upon service levels, such as under or hard to serve areas and
roadbed considerations are discussed. A review was conducted of the Gilroy Fire Departments
efforts in establishing critical task analysis baseline for the Department.
The impact of growth on the future decisions was discussed in this chapter as well as the
thresholds and triggers that increased development and population create. Criteria were defined
as to how this applies to the Gilroy Fire Department. Response time analysis was performed on
existing stations to draw observations about response time failure. The planning aspects of
dealing with multiple factors to trigger a new station or increased staffing were provided.
This Section discusses when Sunrise should be upgraded to a full-service company and projects
when Station should be considered in the Southwest quadrant of the City.
Executive Summary-8
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DRAFT
J. SECTION V - FUTURE POLICY DIRECTION
This Section of the report provides a synopsis of the overall trends and patterns that are likely to
impact this Department over the planning period. There is a discussion of the impact of
Homeland Security on the fire service as well as discussion of the lack of stability in financial
planning for future budgets. The primary purpose of this Section is to focus on the need for the
Gilroy Fire Department to become more oriented to setting its own future into motion through
the adoption and implementation of a cycle of goals and objectives over the next five years.
Emphasis in this Section is Local Conditions versus Mandates on the role the Department needs
to play in the overall city management plan, as well how its future is impacted by the actions of
peer departments. The last Section of the report is another series of Action Plan statements that
can be used to promote incremental improvement in the Department over this planning cycle.
Citygate recognizes that each fire agency has to determine its policies and procedures based upon
local conditions. However, the consultants also recognizes the requirement that fire agencies are
mandated to adhere to specific federal and state regulations. Furthermore, the fire profession is
one that has adopted a wide variety of technical standards and recognized professional standards
that are consistent from one agency to another. For example, a community has to address the
Cal-OSHA requirements for compliance with protective clothing and fire attack practices.
However, the manner in which the agency complies varies from community to community. In
another instance, all cities must enforce the provisions of local and state fire codes. The manner
in which they conduct that enforcement varies according to a wide variety of variables.
Executive Summary-9
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DRAFT
K. OTHER SOURCES USED IN THE REVIEW OF DEPARTMENTAL PRACTICES
Citygate has relied upon a wide variety of other information sources to prepare this plan. These
sources included:
. The Fire Department's adopted policies, practices and techniques
. County and State legislative and regulatory provisions that impact operations
. OSHA safety mandates
. The International City/County Management Associations (lCMA) Performance
Consortium publications as they relate to performance measures
. Gilroy's Insurance Services Office report and Needed Fire Flow data
. The ICMA publication Managing Fire Services
. The Commission on Fire Accreditation, International (CF AI)
. NFP A standards
. County ALS First Responder Agreement
. City Council adopted performance goals (travel time goal of four minutes).
L. SUMMARY
Five years ago, the Citygate team worked with Gilroy to develop a Master Plan based upon
conditions that were in existence at that time. That report made many recommendations on
operational improvements that have been achieved and are part of the management make-up of
the Department today. The purpose of the revision process is to determine if any of the
conditions have changed significantly, and if so, how did they impact the Department's decision-
making process for the next foreseeable planning horizon. This report looks at current
conditions and makes observations about the next five to ten years with a vision discussion of a
twenty-year projection.
This report is slightly different in format from the original plan. This is because the Department
has matured and evolved in a direction of being more strategically focused. Citygate has chosen
not to repeat sections of the previous plan unless necessary to provide the reader with a stand-
alone document for consideration. For example, this version will not contain appendices that
were in the previous plan, for they have not changed significantly and can be referenced easily.
In view of the Department's transition with the new Chief Officer in the immediate future, this
document will contain a more strategic focus to allow flexibility in both the leadership and
management of departmental resources in the future.
Executive Summary-13
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DRAFT
I. INTRODUCTION
A. PURPOSE OF THE STUDY
Citygate was retained by the City of Gilroy to develop a Revised Master Plan for fire and
emergency services. The goal of the study was to provide an objective and systematic
examination of the Department's policies, practices, and activities in the context of the City's
growth in population and existing jurisdictional area. Moreover, the intent of this process was to
provide an evaluation by an independent source for the development of information to aid in
policy direction for the Department's growth and response to changing service demand related to
current and future growth.
The Fire Services Master Planning is one of a series of department master plans that support the
City's General Plan. The City has completed nine master plans from Parks and Recreation
Master Plan to a Police Facility Master Plan.
This report has been designed to provide the necessary information for development of policy
guidelines. It is written for use by management to adopt, support, evaluate, and/or modify
actions needed to assure that the Gilroy Fire Department service is adequate to meet the needs of
the community through the tenure of the plan.
B. SCOPE OF THE STUDY
The process of defining the project's specific scope and objectives consisted of the provision of a
proposal and meeting with the City's Project Team. A dialogue between Citygate and the City's
Project Team resulted in a calendar of events and criteria for development of the departmental
meetings.
The scope of this Master Planning study was to address questions related to the mission, goals
and objectives, community risks, demand for service, organization and staffing, deployment and
concentration of resources, levels of service, and standards for response coverage for the next 20
years.
This project differs from a management audit. It focuses on future performance rather than
current conditions. Citygate, in conducting the engagement, attempted to determine if the Fire
Department is being managed and operated to maximize its performance. In addition, Citygate
evaluated the Department's future potential for efficient, effective, responsive, and timely
service. The emphasis was on developing a framework for decision-making that will occur in
the future.
c. OBJECTIVES OF THE STUDY
The project's overall objective is to provide the City of Gilroy with an updated Fire Services
Master Plan. According to the City, the project scope includes the following key steps:
1. Review and determine appropriateness of using videotape of training bum for
performing "critical task" analysis of "fire attack" operations for typical risk structure
1-1
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DRAFT
fire response. The tape has been professionally edited and includes a timer for
measuring activities.
2. For critical task analysis data not obtained through videotape review of the
Department's training burn, develop critical task analysis plan to be performed by GFD
resources. The critical task analysis plan should include to the following:
a. Number of personnel and equipment resources needed to perform each critical
task analysis
b. A description or outline of the activities to be performed by GFD to prepare for
conducting each critical task (e.g., use of CPS as basis for planned activities)
c. Prioritization of the importance of each critical task analysis to support the
completion of the final report.
3. Review RHA VE data supplied by the City to determine its ability to support the
identification and analysis of specific risk types within the City for the purposes of
applying a sac deployment planning.
4. Review and analyze existing data sources to determine current performance of existing
resources. Where appropriate use GIS tools to graphically illustrate current
performance.
5. Work with City staff to develop empirically supported "thresholds" or "triggers" for the
addition of capital and human resources. Examples of possible criteria for thresholds
include:
a. Service level equity measures
b. Residential and commercial development
c. Response volume and type
d. Probability of occurrence
e. Other risk measures.
6. Determine Effective Response Force (ERF) for identified risk types in existing and
planned development areas, including wildland interface areas.
7. Review and include in the sac analysis the City's recently released General Plan,
Residential Development Ordinance (RDO) allocation, recent decisions regarding
commercial and industrial development, and mutual aid agreements and other reports
(e.g., LAFCO report).
8. Review and include in the analysis the capability of and ability to mobilize and use
community-based resources for routine and disaster-related responses. Specifically
address:
a. CER T program
b. Public access defibrillation (PAD)
c. Other preparedness programs.
1-2
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DRAFT
9. Work with City staff to develop report text used to explain and present results of critical
task analysis and other findings in a draft report. The report should include:
a. Description of current response capabilities (e.g., existence or nonexistence of
ERF) and service levels in comparison to existing performance requirements
b. If applicable, a gap analysis of current and needed capabilities to comply with
agreed upon threshold criteria and future needs
c. Description of alternative approaches with priority and timing of
recommendations to meet ERF requirements with changes in City growth and
development.
10. Provide review, editing, and production services to produce a final report endorsed by
Citygate as an "update" to the "Master Plan of Fire Services."
D. STUDY METHODOLOGY
The Citygate Consulting teams included the following personnel: David DeRoos, Project
Director and President of Citygate Associates, Ron Coleman, Project Manager/Facilitator and
Senior Consultant for Fire Services, Fire Chief Stewart Gary, Consultant for Standards of Cover.
The group initiated the study on September 17th, 2003.
Master Planning in General
The purpose of a Master Plan is to serve as a single source of results from a variety of planning
and administrative processes.
Master Plan development consists of the following steps:
. Defining existing conditions by:
~ Identifying risks to the community
~ Defining community service level requirements
~ Determining the adequacy of existing resources to meet servIce level
requirements
. Determining the type and quantity of resources necessary to comply or meet
service level requirements
. Developing and providing options and alternatives to comply or meet current and
future service level requirements.
The basic elements of a Master Plan include the following:
1. A description of the current level of service provided by the Department, as reflected in
the Mission Statement;
2. A description of current and projected controllable (e.g., development) and
uncontrollable (e.g., wildland fires) risks and hazards in the community;
3. The identification and adoption of desired service levels;
4. A series of "blueprints" for action which have budgetary implications; and
1-3
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DRAFT
5. A description of how the City should be monitoring progress to assure the system is
following the blueprint.
The Master Plan should serve a governing body with an analysis of current conditions, but must
also focus on a longer planning period consistent with adopted community's standards. This
plan will address at least three increments: current conditions, 5-10 year forecasts, and a 20-year
projection.
Studying a fire department requires an inventory of both preparatory and resource effectiveness
and efficiency in meeting service level requirements. To improve the readability of this report
without reducing its specificity, the consulting team developed a straightforward framework for
this plan that consists of:
. A review and discussion of previous master planning efforts
. A process-defmed organization of the report.
Time Frame for this Plan
The Master Plan is a living document that must be continually updated to remain relevant which
gives the document and infinite planning horizon. Emphasis in this Master Plan is placed on
review of baseline information and on practical benchmarks for levels of service that are in line
with the risk that the City of Gilroy is willing to accept (as expressed through its elected City
officials). The Master Plan is based upon the assumption that all staffing and resource decisions
in the future will be made incrementally, but that the capacity of the Department will be directed
towards an overall condition of balancing risks with resources.
The policy recommendations are based upon the contingency that resources will be made
available during budget cycles that will occur over the same time period. The process of
planning for such an extended period of time (20 years) places emphasis on each year's budget
process. Measurable performance objectives should be established for each goal statement in the
Master Plan to provide for the actions needed to make this document a viable part of the
planning process.
It is important to note that since service demand is driven by community risk, the Master
Planning process must also take into consideration City-wide planning initiatives as well as other
department planning decisions. This explains why there are frequent references in this study
linking findings back to the City's General Plan. In addition, since Community Development
policy decisions affect community risk and Police Department decision affect fire department
mission critical service (e.g., communications) the Department's success or failure in meeting its
service requirement is dependent on other departments. As a result, other department efforts
need to be closely coordinated and evaluated.
E. MASTER PLAN REVISION PROCESS
In accordance with the project schedule, a meeting was conducted with the Fire Chief and
members of the Staff that had been appointed to discuss the mission and activities of the project.
A list of these members is provided in the Acknowledgements of this report. An overview of the
master planning revision process was discussed with Chief and key staff members to provide a
framework for discussion. The project schedule and the project's work plan were also reviewed,
1-4
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DRAFT
as well as a task list and task force guideline. A telephone and e-mail contact list was created to
aid in communications.
In conducting our analysis to address the study objectives in the Scope of Services, Citygate
Associates used an approach that would facilitate the effective gathering of the necessary
information in the most expeditious manner possible. We examined the manner and method of
achieving the project's overall scope and objectives by using the following methods:
. Meeting, interviewing and working interactively with the Fire Department's
Project Team
. Reviewing all key documentation generated by both the City and the Fire
Department that relates to fire service operations. This included reviewing the
General Plan, development agreements, Fire Department documents and
presentations
. Obtaining and analyzing data from the fire department's record management
system (RMS), occupancy data base, the City's geographic information system
(GIS), Insurance Services Office (ISO) analysis, US Census Bureau and US
Geologic Survey, etc.
. Conducting a series of meetings with members of the fire department to test basic
assumptions and the accuracy of gathered information. This meeting process also
served to validate some of the more important goals and objectives to be included
in the report.
The completion of this task list was somewhat impacted by a series of events that occurred that
were not necessarily planned for. They included the changing of command of the department by
the exiting of the fire chief that initiated the project and members of his staff and the
appointment of an acting Fire Chief. These types of events occur frequently in fire departments
and are not detrimental per se. However, they do create transition issues with respect to direction
and accuracy of the project.
Local Conditions versus Mandates
Citygate recognizes that each and every fire agency has to determine its policies and procedures
based upon local conditions. However, the consultants also recognizes the requirement that fire
agencies are mandated to adhere to specific federal and state regulations. Furthermore, the fire
profession is one that has adopted a wide variety of technical standards and recognized
professional standards that are consistent from one agency to another. For example, a
community has to address the Cal-OSHA requirements for compliance with protective clothing
and fire attack practices. However, the manner in which the agency complies varies from
community to community. In another instance, all cities must enforce the provisions oflocal and
state fire codes. The manner in which they conduct that enforcement varies according to a wide
variety of variables.
Citygate has relied upon a wide variety of other information sources to prepare this plan. These
sources included:
. The Fire Department's adopted policies, practices and techniques
. County and State legislative and regulatory provisions that impact operations
1-5
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. OSHA safety mandates
. The International City/County Management Associations (ICMA) Performance
Consortium publications as they relate to performance measures
. Gilroy's Insurance Services Office report and Needed Fire Flow data
. The ICMA publication Managing Fire Services
. The Commission on Fire Accreditation, International (CF AI)
. NFP A standards
. County ALS First Responder Agreement
. City Council adopted performance goals (travel time goal of four minutes)
F. SUMMARY
Five years ago the Citygate team worked with the City to develop a Master Plan based upon
conditions that were in existence at that time. That report made many recommendations on
operational improvements that has been achieved and is part of the management make-up of the
department today. The purpose of the revision process is to determine if any of the conditions
have changed significantly and if so how did they impact the department's decision-making
process for the next foreseeable planning horizon. This report will look at current conditions and
make observations about the next five to ten years with a vision discussion of a twenty-year
projection.
This report is going to be slightly different in format from the original plan. The reason for that
is that the department has matured and evolved in a direction of being more strategically focused.
Citygate has chosen to not repeat section of the previous plan unless necessary to provide the
readership with a stand-alone document for consideration. For example, this version will not
contain appendices that were in the previous plan for they have not changed significantly and can
be referenced easily. In view of the departments transition with the new Chief Officer in the
immediate future this document will contain a more strategic focus to allow flexibility in both
the leadership and management of departmental resources in the future.
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II. CURRENT ORGANIZATIONAL CONTEXT
A. PREVIOUS RECOMMENDA TIONS
When the Gilroy Fire Department underwent the first iteration of this document, there was an
entire committee devoted to studying the issue. The Chief of Department at that time set in
motion the completion of Citygate's original inventory of recommendations. The first Master
Plan contained a great deal of information that was educational and informational in nature. This
was necessary to obtain community support for the recommendations that were proposed.
That Fire Chief retired and was replaced shortly by a Chief Officer who embraced the Master
Plan recommendations as policy guidance to change the Department. Over a period of
approximately four years, the organizational context of this Department was changed
considerably by the series of Fire Chiefs who were managing the Department after the retirement
of Chief Gillespie. Fire Chief Hugh Holden was interim for one year, Fire Chief Jeff Clet was
responsible for two years and Chief Holden has returned to serve as interim Chief. This resulted
in three chiefs being involved in the decision processes of upgrading the Department's activities
over the period of the last 4 years. It appears obvious that these Chief officers took the
recommendations seriously because the Department achieved almost all of the recommendations
As a result of achieving the majority of the recommendations, as well as incorporating renewed
focus and managerial responsibility for the direction of the department the Master Planning
process as used in this department is poised to move to a more strategic level.
It should be noted in this section of the report that this revision process did not involve a
community-based committee. This project was based upon interface between the leadership and
management of the Department and Citygate personnel. As a result of that interaction, this
Master Plan is less "educational" and is more focused upon the decision-making process by the
leadership of the Department. In that sense, it still has a Master Plan context but is more focused
on performance and recognizes that the triggers and thresholds for future growth and
development need to be incorporated into the overall planning process for the City.
B. THE FOLLOWING HAS BEEN ACCOMPLISHED
Emergency Medical Services - The Department has completed the implementation of two
paramedic engine companies and one paramedic Supplemental Transport Ambulance Resource
(STAR) unit, executed a contract with Santa Clara County to provide ALS first responder
services, and executed a contract with County Communications to obtain Emergency Medical
Dispatch services for 911 callers. Current service levels are now equal to or exceed other
comparable communities in Santa Clara County.
Records Management - The Department has completed the implementation of a Records
Management System (RMS) that includes a comprehensive occupancy module. Data from this
system and other City records have been compiled to create a Gilroy-specific risk assessment
score for the purpose of fire master planning.
The Department has also completed the implementation of a comprehensive RMS system.
Response time performance data from the system is analyzed monthly, with quarterly analysis of
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incident type and location. Other ad hoc reports are created to support senior staff and Council
decision processes.
New Station - The Department has completed construction on its Sunrise Fire Station in March
of this year and is a signatory to a development agreement that includes a land allocation for a
fourth fire station in the Southwest quadrant of the City. The specific timing will be dependent
on the location and timing of development.
Geographic Information Systems - The Department is in the process of implementing Arc View
geographic information system (GIS) software and is updating its current resource deployment
strategy through this Master Planning update. The Department is participating in the City's
development of GIS and is in the process of purchasing Fire View. The Department is working
closely with GIS specialists in other City departments and the City's GIS contractors to ensure
Department GIS needs are met.
South County Fire and EMS Services - Department staff has recommended that three South
County agencies work together to determine the optimal fire protection system design after the
completion of the department Master Plan Update and considering conclusions and
recommendations presented in the County's LAFCO fire services study.
Professional Development and Competency - The Department has recently filled its Training
Division Chief position. One of the several initial assignments is the creation of a career
development program. Initial opportunities already provided include attendance at a supervisor
training class offered to City employees responsible for supervision and an internship position to
assist in the development of Department programs. Additionally, the Department has hired an
outside contractor to provide career development training to assist Department members in
preparation for future promotional opportunities.
Recruitment and Career Development - The Department has worked with HR to create entry
requirements for firefighter paramedics, a lateral hiring process, as well as eliminating a 60-
college unit requirement to increase applicant pools. Furthermore, the Department has created a
career path for persons interested in applying for open firefighter and firefighter paramedic
positions through its Volunteer and Paid Call Firefighter programs. Information regarding entry-
level skills, knowledge and abilities are provided through monthly meetings in each program. To
date four volunteers have been sponsored to attend the basic firefighter academy. Two Paid Call
Firefighters (PCF) have attended a local paramedic program.
Training Facility - The Department's Training Division is working with Community
Development to identify an appropriate location and timing for the construction of training
facility structures. Most recently, the construction of a "training prop" has been initiated to
support structure fire training, as well as, the annual rental of a portable live fire training facility.
Other preliminary work has been completed to identify desirable features of a burn tower
facility.
Computer Aided Dispatch - The Department continues to participate on the CAD
implementation project team. A liaison has been established to work with the Communication
Center to ensure Fire Department needs are addressed with respect to CAD programming and
modifications. The most notable of these modifications include response prioritization and the
capture of additional time stamps to enhance response time interval analysis.
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Built-in Fire Protection - The Department is working with the Building Life and Environmental
Services (BLES) to develop a more stringent fire sprinkler ordinance for larger homes in high
fire hazard areas of the City.
Improving Response Times -The Fire Chief is a committee member on a City task force to
study alternative measures for traffic calming that will not adversely impact response time
performance.
Public Education - The Training Division has created Public Education objectives that include
injury and illness prevention. Furthermore, the Public Education unit is using data from RMS to
identify at risk populations (e.g. children, elderly, non-English speaking populations, etc.) to
focus educational efforts. Implemented outcome measures include the use of pre and post
awareness and activity surveys.
Management Information Systems - The Department is reviewing operational data monthly
and completes a quarterly review of departmental operational performance and Goals and
Objectives with the City Administrator. Other review efforts include the creation of Ad Hoc
reports and reviews for City Council and administrators.
ISO Rating - The ISO team was created and the review was completed in 2003. The
Department was rated as an ISO Class 4.
Fleet Management - The Department reviews and modifies fleet replacement and impact fee
budgets annually. The Department has developed specifications and received Council approval
to purchase a "Quint" to address changes in City's risk profile. Expected delivery is 2005.
Standards of Response Improvements - The Department is currently in the process of
identifying appropriate outcome measures for the purposes of completing an SOC analysis.
Dynamic Planning Process - The Department has completed its Master Plan update and has
instituted a data analysis review and master plan update process to continuously revise its Master
Plan.
Organizational Development - The Department has reviewed and realigned reporting
relationships to improve span of control and command and control procedures. Currently, efforts
are underway to redistribute "Program" assignments to balance administrative workload.
c. NEWL Y EMERGING ISSUES
Since the Original Master plan for the City of Gilroy was prepared, many events have occurred
that change both the operational aspects of the Department as well as the environment.
During the period of this Master Plan development, there is a considerable amount of dialogue
about the stability of funding sources. Only recently has there been any agreement at the state
level of how local government is to be treated with respect to revenue forecasting. The City has
engaged in a Nexus study, which has incorporated consideration of the planning for economic
impact of future growth and development.
A major event impacting the Department was the creation of the STAR Unit Deployment. Now
that the Department has incorporated Emergency Medical Dispatch (EMD) and that the
Department has improved upon its deployment utilization, meeting the emergency medical
services needs in the community has been significantly enhanced.
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The recent approval of the general plan and the re-issuance of the RDO place more emphasis on
the need to plan for future fire station implementation.
1994-2002 Overview
Build-out 2004 2005 2006 2007 2008 2009 2010 2011 2012 2013 Totals
year 2004-2013
Total: 276 360 315 166 202 202 202 202 203 131 2,259
LAFCO Study
In August 2003, an organization called the Matrix Consulting Group provided a draft copy of a
document entitled "Fire Protection Alternatives for Areas Outside of Organized Fire Protection
Jurisdictions." Citygate has not received an updated copy of any subsequent reports produced by
this consultant. However, in this document there is discussion of the creation of a county service
area (CSA) to provide a funding mechanism for a regional service delivery system. This
document proposes the establishment of a new property tax rate to support the level of revenue
generation. There were various advantages and disadvantages cited, as well as a section that
describes steps for implementation. This document further goes on to discuss continuation of the
current system of local service delivery.
Chapter II of that document suggests regional protection alternatives. The area proposed as part
of this regional protection alternatives includes the following cities: Santa Clara County FPD,
South Santa Clara County FPD, California Department of Forestry (CDF), and Gilroy Fire
Department.
Within that report Gilroy has been identified with the following statement:
"Gilroy is currently served by 3 Fire Stations with the primary distinguishing
characteristic of the service delivery model found there being the staffing levels:
with 4- person engine companies and a 2 -person Rescue/Ambulance. "
The report continues by describing characteristics of these departments including additional
attributes for the City of Gilroy. The following chart derived from that report provides
comparative analysis of these respective agencies:
Comparative Analysis of Fire Service Indicators in Santa Clara County
Stations/ Apparatus/ Cost/ Cost/ Cost! FF's/ FF's/ Calls/
Sq. Mile Sq. Mile Capita Call Company 1,000 Pop 100 Calls Sq. Mile
South County 0.01 0.01 $71.09 $1,161.12 $829,427 0.229 0.373 8.1
FPD
City of Gilroy 0.19 0.25 $95.05 $1,933.69 $1,069,332 0.311 0.633 138.3
CDF Un- 0.01 0.01 $123.33 $1,051.14 $370,000 0.002 1.705 1.8
incorporated
City of Morgan 0.17 0.17 $101.82 $1,989.52 $1,777,636 0.200 0.392 148.9
Hill
South County 0.09 0.11 $97.82 $1,533.87 $1,011,599 0.186 0.776 74.3
Mean
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Stations/ Apparatus/ Cost! Cost! Cost/ FF's/ FF's/ Calls/
Sq. Mile Sq. Mile Capita Call Company 1,000 Pop 100 Calls Sq. Mile
Overall County 0.25 0.34 $166.67 $2,656.05 $1,833,841 0.289 0.462 234.3
Mean
PERCENTAGE
DIFFERENCE
South County VS. (62.20%) (68.22%) (41.31%) (42.25) (44.840/0) (35.72 %) 67.88% (68.30%)
Overall
The report continued with developing the concept of a regional service delivery model. For
purposes of succinctness, we will not provide any additional information regarding that report
other than to note that the concept of regional alternatives is a growing trend in the fire service.
Those agencies with effective automatic aid agreements have tended to be less vulnerable to
criticism. Notably the LAFCO report did not give Gilry credit for its current automatic aid
agreements.
The most meaningful discussion out of this LAFCO report is the concept that performance
measurement and the adoption of "management best practices" appear to be gaining in stature
with regard to evaluating levels of fire protection being provided. Because this report starts
talking about performance targets Citygate has proposed that this same approach be utilized in
setting forth in Section 5 of this document suggests the adoption of some rather straightforward
performance measurements linked with goals and objectives be achieved by the Gilroy Fire
Department. This approach will tend to drive the departments year to year and improve event-
horizon decision-making processes in a very practical and measurable fashion.
The LAFCO report proposes a diagnostic assessment of fire and emergency services utilizing a
series of components. They are not relevant at this time to this study, but may become more
pertinent if this regional concept is resurrected. Citygate has placed these components in an
Appendix to provide a placeholder on the perspective being suggested. It is listed in the
Appendices
D. THE FIRE OF THE FUTURE
The concept of being prepared to fight fires in a single-family dwelling has been one the most
fundamental aspects of providing fire protection in most communities. The dwelling fire
constitutes the primary fire problem in most communities. When compared to the number of
places where people are sleeping under a strange roof, such as at a hotel or motel, and/or
recreating or carrying out a business venture, such as in a restaurant or theatre, the total number
of single-family dwellings dwarfs the commercial enterprises in most communities. The
significance of this statement is that many of the assumptions about the tools and techniques of
firefighting are based upon fighting fires in large buildings. In reality, the majority of critical fire
scenarios are in single-family dwellings.
Much has changed in the configuration of what constitutes a dwelling or single-family home
today in comparison to what it was fifty years ago.
If we compare the footprint of an average home in the 1950's with the footprint of a new home
being constructed in 2004 you would find many remarkable, and in some cases, very
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complicated differences, between these two fire environments. A recent report by a homebuilder
association noted that the amount of floor space in a single-family dwelling has grown over 40
percent in the last 20 years. For purposes of this report, we should note that the types of
buildings being protected as "dwellings" are beginning to approach the scope and complexity of
commercial buildings. Fire agencies may soon have to regard them as being much more
complicated than previous tract home dwellings were.
First and foremost, the expectation for the quality of life in a single-family dwelling has
improved significantly with almost every new generation. Homes are much bigger today than
they were thirty years ago. In addition to that, many homes and housing tracts today are a
minimum of two stories with all of the accompanying problems associated with having interior
stairwells and increased complexity of the room structure itself.
There are several reasons why a modem structure is not the same in other ways too. For
example, with the influx of energy requirements buildings are built much tighter and less likely
to leak to the outer atmosphere than their predecessors. All this may seem like a logical thing to
do to preserve energy it also has a consequence in firefighting. Buildings do not ventilate
themselves nearly as rapidly as they used to.
The construction materials of buildings have also undergone quite a transition. Among the more
obvious is the fact that there are many more artificial materials, such as vinyl, plastics, and
composite materials, At a different level, new construction techniques that did not exist
previously have been employed in these types of dwellings. These would include, but not be
limited to, large open space areas in living rooms and atriums. There are many single-family
dwellings constructed today using considerable lightweight wood construction, such as the use of
wooden I-Joists or glue-laminated beams that create much larger spans than were previously
approved in the codes. It is not uncommon for single-family dwellings to have rather large open
expanse "vaulted" ceilings over open areas.
It has also been demonstrated that the fire loading of the dwelling has undergone quite a
transition. It has always been an expectation that people will put more material into their homes.
This term is called "fire loading". In the case of modem homes, the fire loading that is expected
to increase from one factor alone; consumer availability. The combination of materials allowed
in dwellings in the form of appliances, furniture and fixtures contribute to more rapid flashover
in these buildings than what the fire service experienced previously.
Last but not least are the issues of neighborhood access, water supply and other factors that make
up the design and environment of contemporary housing tracts. Communities are not laid out in
a simple grid fashion as they used to be. The combination of meandering roads, cul-de-sacs,
traffic calming devices and other forms of "neighborhood ambiance" are causing the fire
environment of the single family dwelling to be difficult from a point of access and
maneuverability for the fire service. The work being done in fire codes is designed to minimize
the impact of these phenomena, but it can also have implications in the operational areas.
In response to these phenomena, the fire service is undergoing some operational evolutions.
Many fire departments are now treating multi-story, single-family dwellings the same as they
would an apartment complex. The fire code provision that any portion of a building must be
within 150 feet of a pre-connected hose line is being challenged by a combination of landscaping
and building orientation. Contemporary fire departments must look not only at its housing stock
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from a standpoint of where it is, but they must also evaluate it in relationship to its size and
complexity .
Newer housing tracts will continue to evolve in the direction of simple to complex. Therefore, it
drives the need of a fire department to plan for options and alternatives that previously were not
required for this type of occupancy.
Therefore, if these trends continue, the public will have a much higher level of expectation of the
Gilroy Fire Department. With the increased emphasis upon emergency medical services,
hazardous materials, and even environmental issues, the fire service of the future may have need
to re-evaluate hiring practices to emphasize different skills and abilities. Fire agencies will also
likely be impacted by legislative and regulatory changes in the field of health care. Moreover,
fire equipment may evolve into different configurations to take into consideration both higher
road activity and the need to meet a different mission assignment.
E. THE CITY OF GILROY 20 YEARS FROM Now
Ifa person drove down the streets of Gilroy in 1980 and had a perfect memory of what they saw,
and then came back in the year 2004, they would have two different impressions. The first is
that some things did not change. The second would be that there have been some very important
changes that have made the City a different place. If one projected those same phenomena from
the current year 2000 to the year 2020, a person would most probably have a similar experience.
The similarities are important, but not nearly as important as the differences. From a fire
protection planning perspective, the fire problem in a community is a fairly slowly changing
phenomenon. The General Plan will determine a great deal with respect to what is allowed to be
built within the City. In addition, the increased population will bring with it increased service
demands on the Fire Department. These were projected in Section III of the 1 st Edition of this
plan.
The most important thing to consider in this planning process is not that things may change, but
rather that they will change one day at a time. Often problems are created before anyone
recognizes them as problems. Based upon some of the existing changes going on in the
community, we can anticipate that there will be a continuation of increased traffic on streets and
the construction of a wide range of buildings for a wide variety of occupancies. There will be an
anticipated change in type and distribution of housing stock, with some considerations given to
increasing both the purchase-ability and the availability for local work forces. There is likely
going to be a change in the make-up of the age distribution in the community.
It is unlikely that there will be major shifts in the types and sizes of business and industry
currently in the City. New processes will be created and new products stored in old occupancies.
It is likely that the number of occupancies that will require fire inspections and pre-fire planning
will increase. New neighborhoods will become older neighborhoods.
All of these things may happen, but when they do, they will not happen at the same time. The
Fire Department must monitor and respond to these changes in the community or there will be
service level deficiencies.
The fire service of the future is not easy to predict. If one looks at the fire service of 1980 and
compares it to the fire service of 2000, he or she would find that the fire profession has changed
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very little. There are still traditional fire stations and the basic fire fighting and staffing
configurations. Slight improvements would include the means of fire extinguishment from
automatic fire sprinklers and the number and type of built-in fire protection devices.
What has changed the most is that fire departments have become "all-risk" agencies - given
increasingly multi-tasked assignments. Basically, this has been for emergency medical services
and hazardous materials. In addition, the majority of the fire service has a strong disaster
management focus. Another change has been an increasing demand upon firefighters to meet
training and education standards since there has been more regulation of the types of training and
education required and a general increase in accountability and productivity of fire agencies.
F. SUMMARY
The first Master Plan was based upon the assumption that the Fire Department would conduct an
annual review of the level of effort and achievement in the community to create an ongoing list
of goals, objectives, and projects to be completed. This process would also include periodic
review of policy and procedure to assure that adequate effort and standards were being applied to
keep the Department matched with its responsibilities to provide fire protection.
The level of activity and the degree of achievement and change that has occurred within this
department is significant. The Department should be proud of this effort. Moreover, it is an
excellent foundation to move the Department to the next level of planning, which will provide an
emphasis upon performance measurement and accountability to the community.
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III. ASSESSMENT OF THE CITY VALUES AT RISK
A. UPDA TES AND RETENTION OF INFORMA TION BASED UPON THE FIRST EDITION
This chapter will deal with the current and proposed changes to the risk assessment profile of the
city. In the first edition of the Master Plan Citygate provided a Section that was an overview of
the City. This was an II-page section that included some detail derived from Census 2000 data
as well as locally produced information from the general plan. For purposes of continuity in
understanding the framework of this Master Plan, we have chosen to reproduce some of that
same material, but to edit out the portions that must be dealt with in meeting the scope of this
revised plan. For example, Citygate believes that the overall demographic information is need
by the reader to understand the framework of the organization, but we have eliminated the
Appendices that were primarily educational in nature in the 1 st Edition.
History
The Town of Gilroy was founded in Santa
Clara County in 1868. It became a Charter
City in 1870. Agricultural processing has
long been the backbone of Gilroy's
industry, including canneries and the seed
production. While farming employment has
declined in Gilroy since the 1970s,
agriculture remains an important part of the
economy, with food processors being the
City's largest private employers.
At incorporation in 1870, Gilroy had a
population of 1,625. The town did not
double its original size until 60 years later.
Rapid growth began in the 1950s, following
Wodd War II, mirroring the high rates of
growth throughout the State and the
subsequent rise of "Silicon Valley." Growth slowed in the 1980s, due in part to insufficient
sewer capacities and the Residential Development Ordinance (passed in 1979). Nonetheless,
Gilroy continued to be one of the fastest growing cities in Santa Clara County.
Climate
Gilroy's temperature is on average 62 degrees. While summer temperatures have been known to
exceed 100 degrees, the average July high temperature is about 90 degrees. Winter temperatures
drop to an average of about 50 degrees and the first freeze generally arrives in November. The
current climatic conditions are referred to in the Findings of Fact filed with the adoption of the
City's amendments to the Uniform Codes. These findings of climate, topographic and
geographic conditions allow the City to pursue the adoption of requirements that are not
currently in the State's adopted codes. One of the ways in which climate has an effect upon a
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fire problem IS when drought, high winds or high temperatures result in unusual burning
conditions.
Natural Resources
Because of its environmental setting, the Gilroy area has a rich abundance of natural resources
that have supported the local economy and enhanced the quality of life. The most important of
these for fire protection is the City's water supply. Gilroy is able to meet all of its water needs
through wells that tap into the Llagas sub-basin, a 74 square mile natural groundwater supply.
Natural Hazards
Seismic Hazards
The system of faults in the coastal portion of central California has had a complex history of
seismic movement. The closest and most important faults for Gilroy are the San Andreas,
Calaveras, and Sargent faults. These and other faults have posed risks to Gilroy in the recent
past, and will continue to do so in the future, requiring special attention in the sighting of new
development and design of new buildings. Currently the City has files on 32 "un-reinforced
masonry buildings" (URM' s).
Floodina
Southerly portions of Gilroy are subject to flood hazards due to seasonal run-off along Llagas
and Uvas Creeks. The problem is particularly acute in the southeastern agricultural areas along
Llagas Creek and along the southern portion of Uvas Creek. The recurrence of flooding in these
areas has contributed to the richness of the soil and suitability for agricultural uses.
Fire Hazards
The western hillside areas pose a high fire hazard for the residents who live there, especially
along the "urban-wildland interface." These areas are subject to special development controls to
help reduce the potential loss of life and property in the event of a local wildfire.
Existing Land Use
As shown in the Table 111-1 below, agriculture remains the largest single use in the planning
area, accounting for 41 percent of the land area. This is followed by residential uses and "other
developed" uses which includes such large areas as Christmas Hill Park, the southwest hillside
open space areas, and the South County Regional Wastewater Authority sewer facility, for a total
of 25 percent of the land area.
When combined, agricultural and vacant lands account for more than half of the land in the
planning area. These lands are considered "undeveloped," and represent significant development
capacity to accommodate growth. These are potential locations for future occupancies that will
generate service demands. Even within the existing City limits, more than 6,500 acres of land
are either vacant or in agricultural use. This represents approximately half of all existing land
use. Since some of these lands are slated for development, they provide suitable lands to
accommodate considerable growth, underscoring the importance of in-fill development to meet
future growth needs.
III - 2
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DRAFT
Table III-I: Existing Land Use
Land Use Category Total Acres Percent of Total
Residential 2,113 16.6%
Industrial 367 2.9%
Commercial 444 3.5%
Other Developed 3,231 25.4%
Agriculture 5,241 41.3%
Vacant 1,304 10.3%
TOTAL 12,700 100%
Population Growth
Chart 111-1 below indicates a growth from a population of 21,641 in 1980 to the current
population of 46,195. Estimates would place the population in the area of 61,500 by the year
2020. This projection is based upon ABAG and Gilroy's Residential Development Ordinance
(RDO). The City has grown by an average factor of3.1 percent over the last 20 years. Current
projections indicate a 10-year growth of about 2.3 percent. The 20-year growth estimate is about
1.7 percent.
ABAG projects a population different than that established by the General Plan Committee.
ABAG projects an average annual growth rate of 2 percent in Gilroy, which is above the
projected countywide rate of 0.8 percent.
Population estimates would increase the number of households to 17,300 in 2020, an increase of
6,120. The average household size is expected to hold relatively steady, remaining well above
the countywide average of2.91 percent.
III - 3
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DRAFT
70,000
60,000
50,000
40,000
30,000
20,000
CHART 111-1
Gilroy Population Growth From 1980 Projected Through 2020
10,000
~~Oj~Oj~Oj~Oj~Oj.Oj~~~~~~~~~~~~~~~~
,,OJ ,,OJ " " " " " " ,,OJ "CB "C!l ~ "C!l "C!l "C!l ~ "C!l ,,~- ,,~- ,,~- .,,-S- <::>0 . III
~" ~
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[iF>oP~lation . Change I
Population Density
Chart 111-2 displayed below shows the relationship between increases in population and area
involved in the jurisdiction. What this chart demonstrates is that the area has not grown in any
significant manner, but that population has increased to the current level. This increases the
density per square mile and improves upon the ability to provide adequate response times to a
larger percentage of the population. In the event that the current jurisdictional boundaries do not
change and the population continues to rise, the density will become even greater per square
mile.
Baseline statements derived from this information are two-fold. The first is that the population
density per square mile in 2000 was approximately 2,720 persons per square mile. Today it is
about 2,854. Given the same area and a 2020 population projection of 61,500, the population
density would be 4,281 per square mile.
III -4
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DRAFT
CHART 111-2
Gilroy Square Miles of Incorporated Area Compared to Population (1945-1999)
60.000
10.000
50.000
40.000
30.000
20.000
0.000
1945
1955
1965
1975
1985
1995
1996
1999
1__ Square Miles --- Population in Thousands I
Household and Population Characteristics
Gilroy's household size has increased from 3.14 person in 1980 to 3.27 persons in 1990 and an
estimated 3.4 persons in 1997, which is higher than the County's average of 2.97. In the 1990
census, 84 percent of the households in Gilroy were family households. Married couples with
children under the age of 18 accounted for 47 percent of all households.
Gilroy is a young town with approximately a third of its citizens under 18 years old in 1990,
compared to a county figure of only one-fifth. People over 60 years old accounted for only 10
percent of the population in 1990, compared to over 16 percent in the County. Chart 111-3
shows that the population's aging will increase in the plan's 20-year time frame.
Economic Development
Farming in Gilroy is evolving away from traditional large-scale, low-intensity products toward
high yield, high-profit crops on smaller acreage. This will likely mean a reduction in the demand
for migrant farm labor. While the economic base in Gilroy has diversified considerably in the
past twenty years, agricultural-related employment remains important, with the largest private
employer in the City being Gilroy Foods.
Based on ABAG 20-year projections and on a regional economic growth model (projections
cover areas of employment, population, and households), projected employment and job growth
in Gilroy are expected to outpace growth in Santa Clara County as a whole. It is expected that
Gilroy will produce approximately 35 percent of the County's new jobs between 1995 and 2020.
The manufacturing and wholesale sectors are expected to experience the strongest growth in
Gilroy (8.6 percent), adding about 43 percent of all jobs. The service sector will also experience
III - 5
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DRAFT
significant growth (4.7 percent), adding about 40 percent of all jobs. Retail employment will
account for relatively little growth, while agricultural employment will continue to shrink. The
number of people coming into Santa Clara County is projected to balloon as job growth
continues to outpace housing growth in the County. Commuters are projected to increase from
40,000 commuters in 1990 to 170,000 in 2020.
Housing Characteristics
In 1997, single-family units accounted for nearly 68 percent of the housing units in Gilroy, with
multiple unit housing accounting for 29 percent and mobile homes the remaining 3 percent. In
1990, about 55 percent of all housing units were owner-occupied. Most homes in Gilroy (65
percent) were built between 1970 and 1990. Less than 20 percent were built prior to 1960.
According to the California Association of Realtors, the median home price in Gilroy in March
1998 was $245,500. This is a 13 percent increase since March 1997.
B. PLANNING AREA
Gilroy Sphere of Influence
This is the boundary established by the Local Agency Formation Commission (LAFCO). It
includes large unincorporated areas under County jurisdiction. It represents "the probable
ultimate physical boundaries and service area" of the City. See General Plan, page 2-8.
General Plan Area
This area encompasses both incorporated and unincorporated land that has a bearing on the
City's planning and development. It includes the land area reasonably expected to be serviced
and developed in the 20-year period. See General Plan, page 2-8.
Urban Service Area (USA)
This is the area where the City has made commitments to provide urban services and
development proposals may be submitted for consideration. Extensions to the Urban Service
Area are considered once a year, and must be approved by the LAFCO.
c. POPULA TION AND AREA TRENDS AND PROJECTIONS
Age Distribution Trend
One of the characteristics of the City that is changing with the increased population is the
distribution of different age groups within the overall population. Chart 111-3 below
demonstrates that the overall population is increasing in age over time. This factor may be
significant when evaluating calls for service in the Emergency Medical Services program. The
group with the largest increase is the age 50 to 69 categories. Chart 111-4 provides an indication
that the age 70 and age 80 categories are also increasing.
III -6
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18,000
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. 14,000
. 12,000
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6,000
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DRAFT
CHART 111-3
Age Group Growth in Gilroy
(using ABAG change percentages against 1990 Gilroy Census Data)
Gilroy 1990 Census
Est. 2000
Est. 2020
Est. 2010
III - 7
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CHART 111-4
Gilroy Growth Trend for Age Group 70+
(using ABAG's projected regional growth against 1990 Gilroy Census Data)
2,500
2,000
1,500
1,000
500
Gilroy 1990 Census
Est. 2020
Est. 2000
Est. 2010
Year
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DRAFT
D. OTHER PLANNING FACTORS
Medical Facilities
Gilroy is served by only one hospital. It is a 99-bed receiving hospital. The hospital facility has
recently changed hands and was renamed as the Saint Louise Regional Hospital, operated by the
Catholic Health West Corporation. Saint Louise is the only hospital to receive ambulances in the
immediate vicinity due to the recent closure of the hospital in Morgan Hill. The facility is not a
trauma center. CALSTAR (ambulance provider) houses a helicopter at the hospital and provides
air transportation for trauma patients. The current plan calls for such transports to be executed
from the field if possible. When that is not practical, the ground transport brings the patient to
the helipad for a transfer. The transport locations for transfer of patients are San Jose Hospital or
Valley Medical Center.
Special Events
One event that occurs in the City of Gilroy area each year produces an unusual set of
circumstances from a fire protection point of view. That is the Annual Garlic Festival. This
event, first conducted in 1979, results in a significant increase in population during the time of
the Festival. The purpose and mission of this event are very clearly stated and the leadership and
management have established policies, practices and tasks that allow the event to occur with
minimum impact on emergency services. The planning process involves over 4,000 individuals.
Fire Department personnel are involved in this planning to provide input on protection issues.
Periodic Events
The City of Gilroy is also impacted by special events that occur periodically throughout the year.
An example of this type of event is the temporary increase in the transient population created by
Christmas sales events at the retail outlet stores. There are also two downtown antique shows
that attract a great deal of transient population in the City. Most events of this kind tend to be
seasonal. The City also has a relatively new theme park located in Bonfante Gardens that is
likely to result in additional transitory populations.
E. THE RELA TIONSHIP BETWEEN RISK AND RESOURCE NEEDS
Risk is defined by a variety of factors. Once defined, policy decisions will dictate the amount of
resources available to the system to mitigate a community's risk. Therefore, defining and
understanding a community's risk profile and the number of resources needed to effectively
manage identified risks is a cornerstone of standard of response coverage planning. A high-risk
area requires timely arrival of fire companies for several reasons. More resources are required to
rescue people trapped in a high-risk building with a high occupant load than in a low-risk
building with a low occupant load. More resources are required to control fires in large, heavily
loaded combustible materials structures than are needed for small buildings with limited
contents.
Most emergency medical incidents require the quick response of at least two personnel to rapidly
intervene in life-threatening emergencies. Small, incipient fires need the prompt response of the
closest fire company to mitigate and terminate the emergency before it escalates or involves the
1II-9
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DRAFT
surrounding structure. For these typical, daily situations, all areas of the City should receive a
service level capable of addressing the most common incident types.
If resources arrive too late, or are under-staffed, the emergency will continue to escalate
requiring more resources, increasing the loss of property and threat to public safety responders.
What fire companies must do, if they are to save lives and limit property damage, is arrive within
a short period of time with adequate resources to do the job. To control a fire before it has
reached its maximum intensity requires geographic dispersion (distribution) of resources capable
of mitigating common risks and cost-effective clustering (concentration) of resources for less
common but potentially devastating catastrophic events. Matching arrival of resources with a
specific point of fire growth or medical problem severity is one of the greatest challenges of fire
administration today.
Therefore, the outcome of standards of response coverage planning enables decisions to be made
regarding distribution and concentration of field resources in relation to the potential demand
placed on them by the type of risk and historical need in the community.
F. RISK FACTORS THA T HA VE NOT CHANGED SINCE THE FIRST EDITION
. Resource availability (e.g., the department must still have a high degree of
reliance on auto-aid to fulfill an Effective Response Force on moderate risk fires)
. The Basic Fire flow ha snot changed
. Residential construction type in pre-existing areas has not changed
G. RISK FACTORS THAT HA VE CHANGED AND BEEN IDENTIFIED SINCE THE 2000 MASTER
PLAN DOCUMENT
In the 2000 Master Plan, the level of risk assessment was limited do the limitation of the
Department's Fire Prevention Inspection activity with respect to risk identification. In this
document, there is more information than previously indicated.
Current Risk Identification and Quantification
Since the development of the initial Master Plan, the. community has continued its growth and
development under the provisions of the General Planning Process. The following growth and/or
development has occurred in the study that has an impact on the fire services. They are:
. Large box retail space has increased (Regency/Newman)
. There has been additional development in urban interface areas
. The developmental process continues to progress away from existing station
locations in areas such as Hecker Pass, Mesa Ridge, Eagle Ridge/Bonfonte.
. Loss of sale tax revenue and employment from fire damage
. Changing demographics
. Increase housing costs increase number of occupants and fuel loading in single
family homes
III -10
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DRAFT
H. REVIEW OF THE USE OF RHA VE EVALUA TION ON RISK
The assessment of community risk by Citygate looked at emergency medical and fire risks from
both a probability and consequence viewpoint. Citygate relied on data provided by the Fire
Department that was gleaned through the application of a risk hazard and value evaluation
(RHA VE) approach.
In the absence of building construction type data, the use of conventional RHA VE software to
score occupancies within Gilroy was not practical. Instead, given the consistency of construction
material used throughout the City, the Department in cooperation with the consultant created a
scoring methodology that could be objectively applied within the context of the Master Plan
Update project. Two primary risk categories were created. The first category of "Life-safety"
was assigned a value from one to three, which represented the relative risk of death to occupants
in the event of a fire within or near the structure. Factors that were considered included the
number or persons, relative mobility, and ability to comprehend and react to the threat of fire.
Factors that were also considered as influencing the ability to survive were availability of egress
routes and the relative number of obstructions to smoke and flame spread.
In addition to or in lieu of Life-safety risk, each of the assessed occupancies were assigned a
"Community Risk" value. The Community Risk value objectifies the risk associated with the
loss of an identified organization and its plant and equipment or threat associated with its
destruction as a result of fire. Organizations or occupancies included in this portion of the
analysis were determined to impact the community by disrupting City revenues, impacting the
environment through the release of airborne or runoff of toxic chemicals as a result of fire, or
would result in a loss of supporting infrastructure within Gilroy.
In performing the analysis, the evaluators reviewed annual sales tax contribution to the General
Fund, number of employees employed and occupancy/manufacturing use and permit data. Each
occupancy was assigned a score from one to three, with one representing a significant threat and
three a minimal threat. The approach applied equal weighting to each subcategory of
Community Risk (e.g., economic impact, environmental and infrastructure). The combined
score was used to assign a risk value to selected occupancies within Gilroy for inclusion in a
temporal analysis of the distribution of risk throughout the City and its location to the
distribution and concentration of Department resources.
While all businesses requiring permits and inspections were subject to inclusion in the risk
hazard and value evaluation and are generally included in risk assessment processes, residential
housing, with the exception of R-3 (e.g., apartments, attached homes, condominiums), have
traditionally received the lowest classification of risk. However, changes in the size,
architectural design, location of newer residential construction, and cost of housing within the
Northwest quadrant and future planned community development with similar attributes within
Gilroy need to be considered in resource deployment decisions.
Life-Safety
Specific factors or attributes of a structure or occupancy considered and used in determining and
assigning a Life-safety score included:
1. Direct fire /smoke threat to persons (e.g., places of assembly, ambulatory status, degree
of self-preservation, etc.)
III -11
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DRAFT
2. Collateral fire/smoke threat to persons near higher risk occupancy use incident (e.g.,
contiguously located structures with high life-safety risk)
3. Construction type and presence or absence of automatic fire suppression systems
Community Risk
Community risk scores were derived considering one of the following categories of risk:
Business Risk (Loss of Sales Tax Revenue)
. Loss of sales tax revenue
~ High: $500,000 to $50,000
~ Med: $49,999 to $10,000
~ Low: $9,999 to 0
. Loss of an employer
~ 700 - 100 employees
~ 99 - 50 employees
~ 49 or less employees
Infrastructure Loss
1. Loss or interruption of commerce/employment dependent infrastructure (e.g., Post office,
train station, etc.)
2. Loss or interruption of support services infrastructure (e.g., sew treatment, power, city
yard, city hall, etc.)
3. Loss of local social support infrastructure (e.g., hospitals, clinics, medical complexes)
EnvironmentallmDact
1. Airborne potential
2. Ground water contamination potential
3. Run-off potential
Chanaes in the ComDosition of Community Risk
Commercial Development
In light of the cancerous erosion of municipal tax bases by the California State Legislature, the
City of Gilroy has capitalized on it location at a "cross roads" between the North-South Highway
101 and East- West Highway 152 routes. Higher costs of housing in Santa Clara and San Benito
Counties have forced many first-time homebuyers and lower income families to seek housing in
the San Joaquin Valley. The commute between valley communities and Santa Clara County has
resulted in a steady increase in traffic through the City's retail outlets and big box retailers. In
the last 4 years, the City has been successful in attracting a host of "large box" retail stores (e.g.
III -12
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DRAFT
Costco, Home Depot, Lowes, Target, etc.). The recent approval of Santa Clara County's only
Walmart Super Store is testament to the well-positioned location of Gilroy relative to other cities
within the County.
In accordance with the City General Plan, this development has taken place on the East side of
the community in both the North and South East quadrants of the City. While the impact of this
development to date has been primarily felt in the City's General Fund through sales tax
contributions and on City streets with additional traffic congestion, it has also dramatically
changed the profile of commercial risk from a fire suppression perspective.
For example, large buildings that house facilities such as a Home Depot or Wal-Mart are not as
subject to large loss fires as smaller buildings due to the fact they have been equipped with state-
of-the-art fire alarm and sprinkler protection. Yet, these very same buildings are not exempt
from having serious emergencies that still task firefighters. A good example would be a fire that
was controlled by several sprinklers but continued to create dense smoke conditions.
Conventional techniques such as ventilation are still required to deal with the problem.
Furthermore, an atmosphere that is considered immediately dangerous to life and health (IDLH)
may be created. This still requires compliance with the OSHA two-in and two-out rule.
Residential Development: A Shift from Typical to Atypical Risk
Since the majority of developed property within Cities consists of residential housing, the
majority of most Cities are assigned a Typical Risk assessment when using the RHA VE analysis
tool. However, like most communities within Santa Clara County, the cost of housing within
Gilroy has increased dramatically within the last 10 years. Median house prices within the City
are well over $500,000 for a moderate sized single-family dwelling. The outcome of high
housing costs is increased life safety risk within more recently constructed homes.
In an effort to keep housing affordable while also improving marketability, contractors are
building primarily two story homes with reduced lot-lines and setbacks on substantially smaller
lots. Furthermore, desirable architectural features such as vaulted ceilings, open space and lofts
increase life safety risks in the event of a fire. Smoke and heat can move unimpeded through
open and vaulted ceilings to second story rooms, which are typically designed for use as
bedrooms. Egress from these second story rooms without jumping from a window is limited to
the stairs. In the event the stairs are impassible because of heat and smoke, victims may be
reluctant to escape through a window. Children are particularly vulnerable to this situation.
In addition to egress routes, the size and design complexity of newer homes increase risks to
firefighters associated with disorientation and greater time inside structures to complete search
and rescue operations. Other potential impediments to structural fire fighting include adjacent
structure exposure protection with smaller lots and larger homes. Hillside homes off Mantelli
and those within the "Forest" pose additional risk associated more than multiple story
construction, poor access and more significant landscaping, obstructing efforts to conduct
"horizontal" ventilation. Without immediate external access to windows, heat and smoke cannot
be as effectively vented from these structures compared to smaller more accessible homes. The
majority of residential structures in these locations exceed 3,000 square feet, which is larger than
many commercial structures required to have automatic fire suppression system, such as
sprinklers.
111-13
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DRAFT
Another untoward outcome of high housing costs, which increases residential structure fire life-
safety risk, is increased "fuel loading. " Identified in a study conducted in Santa Ana, California,
a variety of cultural as well as socio-economic factors can contribute to increased occupancy of
single-family homes. When housing become less affordable, a predicted increase occurs in the
number of adult children, their spouses and children who share the home with their parents.
Over time, material possessions (e.g., clothing, furniture, etc.) grow as their families age. Other
cultural factors, such as caring for older family members, further increase life-safety risks in the
event of a fire.
I. DEMOGRAPHICS OF THE COMMUNITY
There is a relationship between the demographics of the community and the nature of the cities
fire and emergency services workload. For example, this city has a large non-English speaking
population. There are consequences of that fact. Increased fire problems can be created by
overcrowding in some family scenarios consistent with minority groups and this often reduces
system access to those that cannot overcome language barriers.
Otal population 41,464 100.0
SEX AND AGE
Male 656 49.8
Female 20,808 50.2
Under 5 years 3,903 9,4
to 9 years 3,965 9.6
10 to 14 years 3,585 8,6
15 to 19 years 3,307 8,0
o to 24 years 2,887 7,0
5 to 34 years 6,790 16.4
5 to 44 years 6,750 16,3
5 to 54 years 4,919 11.9
5 to 59 years - As housinQ costs increase it becomes less affordable for younQer families, 1,513 3,6
o to 64 years thus the aQe distribution is likely to shift to riQht or increase the portion or percentage 1,030 2.5
5 to 74 years of older residents, This will increase EMS call demand. need to research impact on 1,522 3,7
5 to 84 years fire problem. 958 2.3
5 years and over 335 0.8
Median age (years) 29,9 (X)
18 years and over 27,963 67.4
Male 13,880 33.5
emale 14,083 34.0
1 years and over 26,100 62.9
2 years and over 3,398 8.2
5 years and over 2,815 6.8
Male 1,118 2.7
Female 1,697 4.1
RACE
ne race 39,246 94,7
Vhite 24,426 58.9
lack or African American 745 1.8
merican Indian and Alaska Native 661 1,6
sian 1,810 4.4
sian Indian 129 0.3
III -14
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DRAFT
IChinese 260 0.6
IFilipino 671 1.6
apanese ~
Korean 8 0.2
~ietnamese 21~ 0.5
pther Asian 1 117 0.3
Native Hawaiian and Other Pacific Islander 105 0,3
ative Hawaiian 3S 0.1
uamanian or Chamorro 37 0.1
amoan 13 0.0
ther Pacific Islander 2 1E 0.0
orne other race 11,499 27,7
wo or more races 2,218 5.3
Race alone or in combination with one or more other races 3
White 26,364 63,6
Black or African American 942 2,3
American Indian and Alaska Native 1,010 2.4
~sian 2,371 5,7
Native Hawaiian and Other Pacific Islander 231 0,6
~ome other race 12,92S 31,2
HISPANIC OR LATINO AND RACE
!Total population . 41,464 100.0
Hispanic or Latino (of any race) A cultural norm of extended families in this population increase Iife-safetv risk 22,298 53.8
Mexican 19,226 46.4
Puerto Rican 175 0.4
lCuban 32 0.1
ptherHispanic or Latino 2,865 6.9
Not Hispanic or Latino 19,166 46.2
White alone 15,767 38.0
RELATIONSHIP
!Total population 41,464 100.0
In households 41,034 99.0
Householder 11,869 28.6
pouse 7,222 17.4
hild 14,867 35.9
wn child under 18 vears ~
ther relatives 10,0
Under 18 years 3,7
Nonrelatives 13 7.0
Unmarried partner 768 1.9
In group Quarters 430 1.0
Institutionalized population 219 0.5
jNoninstitutionalized population 211 0.5
HOUSEHOLDS BY TYPE
otal households II
Family households (families) .8
With own children under 18 vears
Married-couple family 7,2
With own children under 18 years 4,2
emale householder, no husband present 1,685 1 .
With own children under 18 vears 1,026 8.6
Nonfamilv households 2,279 19.2
Householder IivinQ alone 1,702 14.3
Householder 65 vears and over 696 5,9
Households with individuals under 18 years 6,33e 53,4
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lHouseholds with individuals 65 years and over 2,038 17.2
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Average household size 3.46 (X
Average family size 3.74 (X
HOUSING OCCUPANCY
otal housing units 12,152 100.0
)ccupied housing units 11 '86~ 97.7
acant housing units 28}
For seasonal, recreational, or occasional use 1 .
Homeowner vacancy rate (percent) 0.6 (X
Rental vacancy rate (percent) 1.6 (X
HOUSING TENURE
Occupied housing units 11,869 100.0
Owner-occupied housing units 7,264 61.2
Renter-occupied housing units 4,605 38.8
Average household size of owner-occupied unit 3.27 (X
Average household size of renter-occupied unit Larger families in units, likely to find fewer smoke detectors 3.75 (X
SCHOOL ENROLLMENT I
Population 3 years and over enrolled in school 12,788 100.01
ursery school, preschool Need to compare to national average to relate to utilization or existing studies 773
indergarten 988
lementary school (grades 1-8) 6,11
iQh school (Qrades 9-12) 2,85 22.
ollege or graduate school 2,05 16.1
EDUCATIONAL ATTAINMENT
Population 25 years and over 24,105 100.0
Less than 9th grade 4014 16.
th to 12th grade, no diploma 3,1
igh school graduate (includes equivalency) 4,
orne college, no degree 5,714 23.7
ssociate degree 1,749 7.3
ache lor's deQree 3,209 13.3
raduate or professional degree 1,388 5.8
Percent high school Qraduate or higher 70tl
Percent bachelor's degree or higher 19.
IIIARITAL STATUS
)opulation 15 years and over 30,015 100.0
ever married 8,335 27.8
ow married, except separated 17,015 56.7
eparated 722 2.4
Vidowed 1,477 4.9
emale 1,144 3.8
)ivorced j2.46i 8.2
Female 49 5.0
RANDPARENTS AS CAREGIVERS ~
randparent living in household with one or more own grandchildren under 18 years
randparent responsible for grandchildren
VETERAN STATUS
Civilian population 18 years and over 28,015 100.0
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lCivilian ve~~rans 2,57E 9.2
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ISABILlTY STATUS OF THE CIVILIAN NONINSTITUTIONALlZED POPULATION
Population 5 to 20 years 11,30E 100.0
Nith a disability 91E 8.1
IPopulation 21 to 64 years 23,46j 100.0
!With a disability 4,21e 18.0
Percent employed - Not employed percent has probability of more siQnificant disability 60.8 (X
!No disability 19,248 82.0
Percent employed 77.1 (X
Population 65 years and over 2,779 100.~
!With a disability - Life-safety risk 1,323 47.E
ESIDENCE IN 1995
Population 5 years and over 37,77A. 100.~
ame house in 1995 16,661 44.1
ifferent house in the U.S. in 1995 19,006 50.3
ame county 14,90e 39.e
ifferent county 4,09 10.8
ame state 3,04 8.0
Different state 1,05 2.8
Elsewhere in 1995 2,107 5.6
ATIVITY AND PLACE OF BIRTH
otal population 41,587 100.0
ative 31,545 75.9
orn in United States 31,177 75.0
tate of residence 24,321 58.5
ifferent state 6,856 16.5
orn outside United States 368 0.9
oreign born 10,042 24.1
ntered 1990 to March 2000 4,905 11.8
aturalized citizen 2,575 6.2
ot a citizen 7,467 18.0
EGION OF BIRTH OF FOREIGN BORN
otal (excluding born at sea) 10,042 100.0
urope 441 4.4
sia 1,020 10.2
frica 64 0.6
ceania 0 0.0
atin America 8,365 83.3
orthern America 152 1.5
LANGUAGE SPOKEN AT HOME :lE77A.
Population 5 years and over 100.0
nglish only 21,318 56.4
anguage other than English - Increases life-safety and fire problem 16,456 43.6
peak English less than "very well" 8,722 23.1
panish 14,80C 39.2
,peak English less than "very well" 8,12' 21.5
ther Indo-European languages 621 1.6
,peak English less than "very well" 13 0.4
sian and Pacific Island lanQuaQes 917 2.4
:>peak English less than "very well" 443 1.2
ANCESTRY (single or multiple)
otal population 41,587 1100.0
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[Total ancestries reported 44,387 106.7
!Arab 104 0.3
vzech' 122 0.3
Danish 280 0.7
Dutch 483 1.2
English 2,559 6.2
French (except Basque)' 836 2.0
rench Canadian' 186 0.4
German 3,614 8.7
~reek 60 0.1
lHungarian 28 0.1
Irish' 2,980 7.2
Italian 2,840 6.8
Lithuanian 20 0.0
Norwegian ~
Polish 594 1.4
Portuguese 1,080 2.6
Russian 164 0.4
cotch-Irish 3951 0.9
cottish 480 1.2
lovak t 0.0
ubsaharan African 147 0.4
wedish 539 1.3
wiss 165 0.4
Ukrainian 81 0.2
United States or American 903 2.2
/Velsh 163 0.4
/Vest Indian (excluding Hispanic groups) 35 0.1
)ther ancestries 25,101 60.4
~MPLOYMENTSTATUS
Population 16 years and over 29,324 100.0
In labor force 20,413 69.6
ivilian labor force 20,404 69.6
mployed 19,259 65.7
nemployed 1,145 3.9
ercent of civilian labor force 5.6 (X
rmed Forces 9 0.0
1N0t in labor force 8,911 30.4
emales 16 years and over 14,800 100.0
In labor force 8,99~ 60.8
pvilian labor force 8,99~ 60.8
IEmployed 8,401 56.8
Pwn children under 6 years 4,191 100.0
II parents in family in labor force 2,064 49.2
OMMUTING TO WORK
Norkers 16 years and over 18,774 100.0
ar, truck, or van -- drove alone 13,158 70.1
ar, truck, or van -- carpooled 3,602 19.2
=>ublic transportation (includinQ taxicab) 675 3.6
Nalked 331 1.8
Jther means 520 2.8
!Worked at home I 488 2.6
[rVIean travel time to work (minutes) 30.E (X
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Employed civilian population 16 years and over 19,259 100.0
OCCUPATION
Management, professional, and related occupations 5,511 28.6
ervice occupations 2,741 14.2
ales and office occupations 5,405 28.1
Farming, fishing, and forestry occupations 622 3.2
onstruction, extraction, and maintenance occupations 2,095 10.9
IProduction, transportation, and material moving occupations 2,885 15.0
INDUSTRY
~griculture, forestry, fishinQ and hunting, and mining 681 3.5
..;onstruction 1,718 8.9
Manufacturing 3,347 17.4
Nholesale trade 858 4.5
Retail trade 3,024 15.7
ransportation and warehousinQ, and utilities 686 3.6
Information 517 2.7
Finance, insurance, real estate, and rental and leasing 945 4.9
Professional, scientific, management, administrative, and waste management services 1,852 9.6
Educational, health and social services 2,673 13.9
rts, entertainment, recreation, accommodation and food services 1,202 6.2
Jther services (except public administration) = 977 5.1
Public administration 779 4.0
LASS OF WORKER
Private wage and salarv workers 15,670 81.4
overnment workers 2,383 12.4
elf-employed workers in own not incorporated business 1,146 6.0
npaid family workers 60 0.3
NCOME IN 1999
ouseholds 11,933 100.0
ess than $10,000 568 4.8
10,000 to $14,999 463 3.9
15,000 to $24,999 853 7.1
25,000 to $34,999 1,041 8.7
35,000 to $49,999 1,713 14.4
50,000 to $74,999 2,567 21.5
75,000 to $99,999 1,984 16.6
100,000 to $149,999 1,936 16.2
150,000 to $199,999 443 3.7
200,000 or more 365 3.1
Median household income (dollars) 62,135 (X
Nith earnings 10,595 88.8
Mean earnings (dollars) 74,971 (X)
Nith Social Security income 2,093 17.5
Mean Social Security income (dollars) 11,195 (X
Nith Supplemental Security Income 543 4.6
Mean Supplemental Security Income (dollars) 6,068 (X
Nith public assistance income 501 4.2
Mean public assistance income (dollars) 4,209 (X
Nith retirement income 1,630 13.7
Mean retirement income (dollars) 15,138 (X
Families 9,773 100.0
ess than $10,000 328 3.4
10,000 to $14,999 280 2.9
15,000 to $24,999 762 7.8
25,000 to $34,999 930 9.5
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1$35,000 to $49,999 1,310 13.4
1$50,000 to $74,999 1,991 20.4
75,000 to $99,999 1,795 18.4
100,000 to $149,999 1,725 17.7
150,000 to $199,999 367 3.8
200,000 or more 285 2.9
Median family income (dollars) 65,330 (X
Per capita income (dollars) 22,071 (X
Median earnings (dollars):
Male full-time, year-round workers 45,759 (X
Female full-time, year-round workers 34,710 (X
POVERTY STATUS IN 1999 (below poverty level)
Families 713 (X
Percent below poverty level (X 7.3
With related children under 18 years 642 (X
Percent below poverty level (X 10.0
With related children under 5 years 328 (X
Percent below poverty level (X 11.0
Families with female householder, no husband Dresent 348 (X
Percent below poverty level (X) 19.7
With related children under 18 years 329 (X
Percent below poverty level (X 23.9
With related children under 5 years 179 (X
Percent below poverty level (X 31.8
ndlvlduals 4,250 (X
Percent below poverty level (X 10.4
18 years and over 2,499 (X)
Percent below poverty level (X 8.9
65 years and over 182 (X
Percent below poverty level (X 6.5
Related children under 18 years 1,664 (X)
Percent below poverty level (X 12.8
Related children 5 to 17 vears 1,180 (X
Percent below poverty level (X j
Unrelated individuals 15 vears and over 1,095
Percent below poverty level (X)
otal housing units 12,167 100.0
UNITS IN STRUCTURE
1-unit, detached 7,768 63.8
1-unit, attached 742 6.1
units 252 2.1
or 4 units 1,009 8.3
to 9 units 816 6.7
10 to 19 units 351 2.9
o or more units 797 6.6
Mobile home 432 3.6
Boat, RV, van, etc. 0 0.0
rt'EAR STRUCTURE BUILT
1999 to March 2000 - Most of this construction likely to place in the NW Quad and therefore has 334 2.7
1995 to 1998 construction characteristics that create areater life-safety risk (e.a., 2 stOry, 1,706 14.0
1990 to 1994 open architecture with increased square footaQe 521 4.3
1980 to 1989 2,759 22.7
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11970 to 1979 3,234 26.6
11960 to 1969 - 1,478 12.1
11940 to 1959 1,414 11.6
11939 or earlier 721 5.9
!ROOMS (Need definition of what constitutes a room)
1 room 243 2.0
rooms 914 7.5
rooms 1,363 11.2
rooms 1,689 13.9
rooms 2,208 18.1
rooms 2,027 16.7
rooms 1,987 16.3
tl rooms 971 8.0
9 or more rooms 765 6.3
Median (rooms) 5.3 (X
Occupied Housina Units 11,894 100.0
EAR HOUSEHOLDER MOVED INTO UNIT
1999 to March 2000 2,482 20.9
1995 to 1998 4,262 35.8
1990 to 1994 1,587 13.3
1980 to 1989 1,879 15.8
1970 to 1979 I 993 8.3
1969 or earlier 691 5.8
EHICLES AVAILABLE
one 758 6.4
1 3,297 27.7
4,802 40.4
or more 3,037 25.5
OUSE HEATING FUEL ~
tility aas 8,2~
ottled, tank, or LP gas 172 1.4
lectricity 3,265 27.5
uel oil, kerosene, etc. 0 0.0
oalorcoke 8 0.1
Vood 119 1.0
olar energy 0 0.0
ther fuel 11 0.1
o fuel used 52 0.4
ELECTED CHARACTERISTICS
acking complete plumbing facilities 71 0.6
acking complete kitchen facilities 71 0.6
1N0 telephone service 119 1.0
OCCUPANTS PER ROOM
Occupied housing units 11,894 100.0
1.00 or less 9,666 81.3
1.01 to 1.50 989 8.3
1.51 or more 1,239 10.4
Specified owner-occupled units 6,595 100.[
ALUE
Less than $50,000 21 0.3
50,000 to $99,999 49 0.7
100,000 to $149,999 40 0.6
150,000 to $199,999 285 4.3
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1$200,000 to $299,999 1,693 25.7
1$300,000 to $499,999 3,876 58.8
1$500,000 to $999,999 583 8.8
1$1,000,000 or more 48 0.7
Median(dollars} (Need new values and future projections in discussion) 344,100 (X)
MORTGAGE STATUS AND SELECTED MONTHLY OWNER COSTS
Nith a mortgage 5,704 86.5
Less than $300 16 0.2
300 to $499 47 0.7
500 to $699 101 1.5
700 to $999 327 5.0
1,000 to $1,499 1,122 17.0
1,500 to $1,999 1 ,493 22.6
2,000 or more 2,598 39.4
Median (dollars) 1,930 (X
Not mortgaged 891 13.5
Median (dollars) 330 (X)
SELECTED MONTHLY OWNER COSTS AS A PERCENT AGE OF HOUSEHOLD INCOME IN 1999
Less than 15 percent 1,279 19.4
15 to 19 percent 830 12.6
o to 24 percent 1,063 16.1
5 to 29 percent 945 14.3
o to 34 percent 663 10.1
5 percent or more 1,809 27.4
Not computed 6 0.1
Specified renter-occupied units 4,611 100.0
GROSS RENT
Less than $200 232 5.0
200 to $299 189 4.1
300 to $499 393 8.5
500 to $749 669 14.5
750 to $999 1,127 24.4
1,000 to $1,499 1,471 31.9
1 ,500 or more 434 9.4
o cash rent 96 2.1
~edian (dollars) 936 (X
GROSS RENT AS A PERCENTAGE OF HOUSEHOLD INCOME IN 1999
ess than 15 percent 788 17.1
15 to 19 percent 763 16.5
o to 24 percent 627 13.6
5 to 29 percent 553 12.0
o to 34 percent 434 9.4
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35 percent or more 1,299 28.2
'lot computed 147 3.2
J. SUMMARY OF DEMOGRAPHICS
From a risk assessment perspective, the City of Gilroy is a typical suburban community with
some unique demographic characteristics that could have an impact on the demand for
emergency servIces.
In an area with a total population of 41,464, over 20,413 or 49.2 percent of the population is in
the workforce. The median household income is 62,135. The population distribution in the area
indicates that about 5,000 of the citizens are in the age range of 55 to 84 years old. As housing
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costs increase, it becomes less affordable for younger families. If the age distribution continues
to shift to an older age category or there is an increase in the percentage of older residents, this
will likely increase EMS call demand.
The table that provides a review of the year that a structure was built provides some clue as the
difference in construction of the older homes from the new ones. Most of the subsequent growth
has been in the North WestQuadrant, with growth now becoming an issue in the Southwest
Quadrant.
K. USE OF GIS IN THIS PLANNING PROCESS
Since Citygate completed the first master plan, we have integrated the use of Geographical
Information Systems (GIS) into the process to provide more comprehensive and easily observed
data displays.
L. TOPOGRAPHY AND BOUNDARIES
The following map is the "base map for the study area. This illustrates the topography and
current jurisdictional boundaries. This map also includes information on the hydrology of the
area. This is a very important consideration from an environment when dealing with hazardous
materials spills.
[.::1 Glroy City limit
llGER Hydrography
- Perenn.ls....emorfMtr
- ._.- 1nt.-m1tt1Rl: str....., rIYW. or 'MISh
Per.nlal c:_t. dkch.. Of equeduct
- Shoreline of per.IIl.1 wtlter feature
- NOIl\'islbte _. oreo deflnttlon boundory
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M. VEGETA TION MODELS
The following map illustrates the Fuel Models that exist in the general area of the City. They
range in severity from light to moderate to some areas of high concentration. This information is
valuable when assessing the existence of an urban-wildland interface area and the location of
high fire hazard severity zones.
III-24
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N. FIRE HAZARD SEVERITY ZONES
The following map illustrates the locations of the Fire Hazard Severity zones as defined in the
Bates BilL Notably there is only a very small amount of overlap into the city boundaries.
However, that should not be considered the same as not having an urban-interface problem. Any
fire that comes from the East to the West would expose the community to the distribution of
brands and heavy smoke conditions that would require emergency management.
Legend
~::::J Glroy City Limit
Rre Hazard Severity Z_
_ Vety High
_High
_ lIoderole
_ NoD_
Non SRA
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O. STA TE RESPONSIBILITY AREAS
This map illustrates the boundaries of the State Responsiblity area as defmed by the California
Resources Code. The existence of this zone creates an interface requirement between the Gilroy
Fire Department and the California Department of Forestry and Fire Protection.
.
r"....& Glroy City Limit
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Stille Re'POn.lblly Ar..
_SRA
D Non SRA
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P. CITY PARCELS AND ZONING
This map illustrates the distribution of the various types of land use zoning and the underlying
parcel information. This information is relative to the distribution of the cities risk and hazards.
[::J Gilroy City limit
Parcel.. Comd by Zone
D Not Mapped
_ Undellned
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_CM
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_M-2
OS
_PF
_1'0
_R-l
_R-2
_R-3
_ Rl.R3
_RH
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Q. ISO BUILDINGS
This map is based upon data supplied by the Insurance Services Office (ISO). It illustrates the
location of each and every building that the ISO currently maintains records on specific risk
information and fire flow requirements. This map is also a very good indicator of the location
of high value buildings
. Fire Flow Not Rat.d
Under 500 GPM
. 500 . 1000 GPII
. 1000 . 2000 GPII
. ZOOO . 4000 GPII
. 4000 . 6000 GPII
. Over 6000 GPM
- Water Mains
t:." Garoy City Limit
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R. RESPONSE WORKLOAD
The current record keeping system allows for an annual review of actual call workload as it is
distributed or concentrated within the city boundaries. This map can and should be kept up to
date with each annual report to begin to develop a more comprehensive database for policy
discussion. The Department does not have great deal of depth in this area, but in upgrading the
RMS and MIS functions, this capability is considerably more useful that the previous methods
used to evaluate workload distribution.
Legend
. Fire stations
CAD Indclents
. All Fir.
Ruptur. or Explosion
. Rescue & EMS
e H.zordous Condition
. Servlc. C..
e Good Inlenl Cell
. F.... Alarm
. We.-!lor, N.tur.1 015...10.
Specie! Ineldenl Type
[:~J Gilroy City LImit
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DRAFT
S. RESPONSE TIME PERFORMANCE
The previous map illustrated the places where event occurred. This map illustrates how close to
the Department's response goal the actual response was. Any pin on this map that is colored in
red or a shade of orange is an extended response. The concentration of these pins in the upper
North West quad is an indication of under-served areas from a response perspective. However,
this is only one year of clean data. It takes at least three years to identify the trend and pattern
that may exist in the area.
.
Legend
. Rre Stlltlon.
Incidents by Respon.. Time
e Under. Minutes
. . ~ 5 Illnutes
5 ~ 6 lIinutes
6 ~ llllnutes
.. 1 ~ 8 Illnutes
. . 101llnutes
. 10,15I1i_
. 15.20111_
. Over 20 lllnules
t::.' Gilroy City Limit
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DRAFT
T. OCCUPANCY RISKS - LIFE-SAFETY AND COMMUNITY RISK
This map provides information on the distribution and concentration of various occupancy types
in the city. It illustrates that the core section of the community is where the majority of the
commercial risk is located.
Legend
. Are StlItlons
Occupencies
. A
. B
. E
. F
. H
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. R
. 5
- Water Mllins
t:::, Glroy City Linlt
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DRAFT
u. OCCUPANCY AND LIFE RISK BY RHA VE RA TINGS
This map illustrates the distribution and concentration of life safety risk using the RHA VE
software to identify the target hazards.
. Fire Stations
Occupancies ~ Uflt Ed Community Risk
. Significant Risk 1.0
. 1.5
Moder... Risk 2J1
2.5
. Minimal RIsk l.O
[:::J GIlroy City Limit
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DRAFT
V. GEOLOGICAL HAZARDS AND UNREINFORCED MASONRY BUILDINGS (URM's)
This map illustrates the location of the potential of liquefaction in the Gilroy area from seismic
activity. This map also provides information on the possibility of landslide activity
Legend
. Unrelnforced Building.
. Rre Station.
Earthqu.ke Eplcenter.
0.0.1,0
e 1.1.2.0
. 2.1.3.0
. 3.1.4.0
. 4.1.5.0
. 5.1-6.0
[.::::1 Gilroy City Limit
Uquefllctlon PGtentllll
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DRAFT
W WATER SUPPLY
This map is an indication of the existing water supply infrastructure in the city. It provides data
on the availability of fire hydrants in relation to the transportation network.
. Rre StIItlons
. Rre Hydrants
- Water Melns
t:i GHroy City limit
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X. SUMMARY
The City of Gilroy's growth and development are systematic and incremental in nature. Based
on Gilroy's General Plan, from a fire protection point of view, the City will become more
densely populated, but will not change in character or substance. This assumption implies that
the current combination of occupancies and uses will be extrapolated into the future. The Fire
Department will likely be called upon to respond to the type of service demands that are
consistent with today's demographics. The increase in population will likely result in an
incremental increase in the total number of calls.
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DRAFT
IV. CURRENT ORGANIZATIONAL, OPERATIONAL AND
DEPLOYMENT CAPABILITY
A. OVERVIEW
This Section addresses the Gilroy Fire Department's current organizational, operational and
deployment capability. It includes a statistical review and includes maps of the jurisdictions
response pattern.
This aspect of a fire agency needs to be a reflection of the existing mission and values of the
organization independent of the chief officer. In fact, the Master Plan should be the road map by
which each successive chief can pick up where the previous left off. The future direction of the
Fire Department should not be a product of the personal opinions of the reigning fire chief, but
should be data driven. Thus, the following statements should reflect an adopted set of guiding
principles.
B. IMPACT OF THE ARBITRATION AWARD ON STAFFING
In November 2000, IAFF Local 2805, in pursuant to the Charter Impasse Resolution Procedure
filed for arbitration proceedings relative to six issues that were in dispute. Issue IV involved
staffing levels for the Department. In effect, this award increased the number of on-duty
firefighters to four on each fire company. This raised the number of on-duty personnel to eight
person's on-duty minimum. The union's final offer on staffing was granted. It establishes for
any company a base line that is intended to be used for fire suppression purposes.
C. THE PRINCIPLES OF STANDARDS OF COVERAGE.
In response to the demands of a diverse fire problem and corresponding need of community
managers and department heads to have a empirically grounded approach to determining
appropriate levels of fire protection, the International City/County Management Association
(lCMA) and International Association of Fire Chiefs (IAFC) created the Commission on Fire
Accreditation International. One of the products of this group was a process defined as
"standards of response coverage planning." More commonly described as Standards of
Coverage (SaC), sac planning are those written procedures determining the distribution and
concentration of fixed and mobile resources. This plan encompasses everything an agency
should understand to prepare and justify resource deployment.
This process uses a "systems" approach to deployment rather than a one-size-fits all prescriptive
formula. In a comprehensive approach, each agency should be able to match local need (risks
and expectations) with the costs of various levels of service. In an informed public policy
debate, each city councilor governing board "purchases" the fire and EMS protection
(insurance) the community needs and can afford. I
I Creating and Evaluating Standards of Response Coverage for Fire Departments, 4th Edition, Introduction
IV-l
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DRAFT
D. FINDINGS OF LAST MASTER PLAN
When we prepared the first edition of the Gilroy Master Plan, we were not tasked to perform a
complete sac Study. Therefore, there was not sufficient data to support very specific
recommendations on how well the City is performing in this field of deployment practices.
Other action needed to be taken before a comprehensive sac Study could be accommodated.
However, in the Executive Summary of the last report the following findings were made:
"(J) Currently, the two Gilroy fire stations, by themselves, provide a response to the
concentrated values (i.e. downtown district, commercial occupancies) in the City
that is within the stated goal.
(2) Currently, the two Gilroy fire stations, by themselves, have "response zones" that
cannot be served within the stated goal.
(3) The deployment patterns using the automatic aid companies are an effective way
to reach some of the zones, but not all of them.
(4) The current deployment pattern, utilizing the automatic aid companies, is subject
to future changes that are not under the control of the City.
(5) Additional fire stations will be required to provide response time coverage to
areas that will be developed under the General Plan.
The Task Force reviewed these findings and developed a set of criteria that was incorporated
into this document. The criteria for future fire station locations should be asfollows:
. To provide service to areas that cannot be reached with existing stations.
. To reach areas that have a measurable quantity of property or life at risk.
. To reach areas where there is a workload that becomes statistically significant.
. To improve stations' cost-effectiveness.
. To improve the overall concentration of resources. "
With the success of fire prevention efforts has come a reduction in the frequency and severity of
structure fires. While a testament to ability of the fire service to identify the cause of the fire
problem and successfully attack it, the fire services success has also created greater pressure to
justify and efficiently manage fire suppression resources used less often. In response to these
demands there have been many attempts to create a standard methodology for determining how
many firefighters a community needs. However, the diversity of the "fire problem" in each
community has defied efforts to create a "one size fits all" approach.
E. EXISTING CONFIGURA TION LEVEL OF SERVICE
The current level of service being provided by the Gilroy Fire Department is slightly lower than
the state and national benchmarks for a Fire Department. The current "on-duty" strength of the
Gilroy Fire Department is 11 personnel. This provides the ability (along with automatic aid) to
place thirteen personnel on the fire ground. This level of service can deliver an initial attack
force equal to about 1000 to 1,250 gpm by handline application for essentially basic operations
in a routine to moderate risk occupancy.
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DRAFT
Citygate examined the nature of the risk community wide and notes that the routine or moderate
residential risk level is universally distributed in the community. Based upon that fact we then
evaluated as to whether it is equitable to provide differing levels of service to different parts of
the community. The answer to that question is found in the adopted Standards of Cover
goal statement in the General Plan. It states that the policy of the City of Gilroy is to be on scene
of 95% of the calls for service within 5 minutes.
That statement is intended to apply to the entire community. The planning tools we have today
to evaluate the potential for that includes the use of GIS to anticipate the amount of the road
network where a fire vehicle can access within the travel time component of the response goal.
In Finding #9 of the First edition The Master Plan Task Force recognized that the total response
time of the Department is impacted by the alarm processing time in dispatch and the time
element involved for the dispatcher to process a call is part of the overall system. The
Department did have any data available to determine a benchmark for performance. That has
been markedly improved. However, recent studies being conducted by agencies undergoing self
assessment indicate that the overall assumption that a fire agency can process an alarm in 60
seconds (1 minute) and get out of the station in 60 seconds (1 minute is an underestimation.
Capturing hard data from CAD systems has now shown that the figure is closer to 75 to 90
seconds (1 minute and 15 or 30 second) for both of these events to transpire. In reality, that
gives a travel time closer to four (4) minutes for performance measurement.
Therefore, the anticipated response goal for this edition of the Master Plan is as follows:
To achieve the response time goal of reaching 90 percent of the emergency
calls for service within four minutes of travel time with an effective response
force of 13 personnel.
The Gilroy Fire Department currently has two fire stations and one medical services station and
is in an automatic aid agreement with the South Santa Clara County Fire District. This provides
the first alarm assignment response for the current service demand area. There are currently gaps
in the system that are reflected on the response maps as contained in this Section
F. GIS ANAL YSIS OF THE ROAD NETWORK
The method used to develop information on the degree of coverage a fire station can provide on
the road network is based upon Geographic Information systems (GIS) software. The system
used in this report was ArcView. Citygate utilizes both the 3.2 and 8.1 version of this software.
The analysis of the road network utilizes a commercial software package named "TeleAtlas, "
which provides data on street configuration, speed and direction of travel for analytical purposes.
Furthermore, in order to perform that analysis, a special software extension called "Network
Analyst is employed. Both Arc View and TeleAtlas are considered industry standards in
performing this type of analysis. The only two entities that are currently using this on a wide
spread basis are Citygate and the IAFF's GIS group.
All maps in the Map Atlas were prepared using this software configuration. Travel speeds are
based upon reasonable and prudent road speeds as defined in contemporary traffic engineering
standards. Coloring of the streets and the creation of polygons identify the area where the road
network can be expected to provide access to an address on that network. The three different
colors that are used are green for areas that are within the adopted response time criterion, yellow
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DRAFT
for the next 60-second interval and red for areas outside of that defined area. There are many
different models that can result in different polygons being created to answer various questions,
such as what can happen when a road speed is increased, or new roads are added to the network.
In this study all reports are based upon the TeleAtlas files that were current as of December of
2003
It should be noted that these are theoretical travel times. The ability for a vehicle to traverse any
given section of roadbed is dependent upon many variables. These variables have been
identified in another section of the report. The report provides "best estimate" response time
polygon based upon the assumption that the apparatus is leaving the station and travels
continuously at the posted speed limit for each section of travel.
G. DISTRIBUTION MAP GILROY ASSETS ONL Y (FIRE RESPONSE)
In conducting this review, Citygate applied the City's adopted response goal to the community
and mapped the potential for coverage in the following maps. The first of these maps illustrates
the 4-minute travel time from the 2 Fire stations that are responsible for fire suppression. The
areas that are shaded purple to the west and north of the Sunrise station are "under servedareas"
by Gilroy Fire Units.
. Rre Stlltlone
- 4 Minute Travel Network
_ 4 Minute Trave' Aree
t.:::J GRroy City limit
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DRAFT
The following map demonstrates how the response polygon would be modified if Sunrise Station
were to be increased to a full fire company status.
. Fire Statlone
- 4 Minute Trevel Network
_ 4 Minute Trevel Are.
t.::J Glroy City Limit
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DRAFT
Distribution Map All - Assets
The following illustrates the Total Coverage being provided by the use of the Automatic Aid
companies provided by CDF -Santa Clara County Fire. The Treehaven station only provides a
two-person response. The Master Station provides a three-person response.
. Rre Stations
- .. Minute Treys' Network
_ .. Minute Tl1IveI A....
~:::J GIlroy City Limit
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Under and Hard to Serve Areas
When a fire station is given a first-in response area, there is an assumption that the fire company
will respond to all incidents in that area within the response goal. The reality is that the area to
be protected is often laid out in such a fashion that it prohibits the company from achieving that.
In a practical sense, the ability to actually cover an area depends on a number of variables. One
of the major variables is the extent of the road network in providing access to all parcels
requiring a potential response. The second variable is the competition fire vehicles encounter for
priority in using the road network. In the case of the former, if the road network is laid out in a
fashion that will allow a fire vehicle to go from its point of dispatch (normally the station but not
always) to the location of an emergency without having to backtrack or take alternative routes
that are inefficient.
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DRAFT
Theoretically, a fire vehicle should move progressively from Point of Departure (POD) to scene
location with a minimum of lost time. In the event that the road network within a jurisdiction is
convoluted and/or designed for limited access, a fire company may have to make numerous turns
and directional reverses to arrive at a specific location. When this occurs, meeting a response
time goal becomes harder to accomplish.
In the context of evaluating fire station locations response polygons, GIS technology places
polygons on a road network based upon travel times and distance from the fire station only. As a
result, in any specific area of a station's response, there may be areas that will not be color-coded
as being within the response polygon. In this case, "green" means that the location is within the
adopted response goal area of anticipated performance. This will generate some degree of
concern for those parties living in the uncolored areas, but actual response times are often more
of an indication of area being under-served.
For purposes of definition, Citygate defines an area as being "underserved" if the primary reason
is that the non-color-coded area is on the perimeter of an area that is considered to be within the
travel distance. In that case, the only thing that makes an area underserved is that the area is
beyond the color-coded polygon. A hard to serve area is different. A hard to serve area is an
area that is within a polygon range, but because of topography, geography or road design a
responding apparatus cannot get to that location within the adopted response goal.
Therefore, in an area in which the roads are not, in general, laid out to expedite travel, there can
be both underserved and hard to serve areas for consideration. This is especially true in this
particular sac study.
However, being underserved or hard to serve does not necessarily mean long response times.
The reason is that fire apparatus often is dispatched from a location other than the fire station.
Therefore, an actual response time within the response goal can occur into these areas.
A good example of an underserved area in this Department's scenario is the area around Sunrise
Station. These areas can be accessed in a progressive fashion, but they are to be beyond the
range of the polygon for fire suppression services. An example of a hard to serve area would be
the area to the south of the city on the east side of Highway 101. Viewed as the crow flies, road
distance does not appear to be severe. However, actual roadbed response is a different matter.
Using the existing 4.0-minute travel time, this is an issue in both cases.
In other words, the amount of this area that is underserved constitutes a portion of developed
area. Citygate has highlighted some specific areas for discussion in the evaluation chapter of this
report.
H. ROAD BED AND TRAFFIC CONSIDERA TIONS
The existence of a roadbed to serve an area is not a given in the development of response plans.
There is considerable variability in the layout and intended performance of various roadbed
elements that impact the ability of the fire service to respond. Among the considerations of the
roadbed are basic factors such as:
A. Road surfacing methods, i.e. dirt, asphalt, concrete, etc.
B. Road width, i.e. number of lanes
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DRAFT
C. Road speed, i.e. average traffic speeds
D. Number of vehicular trips per hour
E. Impediments, such as traffic signals, stop signs and traffic claming devices
F. Road access, such as divided highways or limited access
G. Direction of flow, i.e. two-way or one-way streets
H. Steepness of grade
Based upon all of these factors, a specific station's actual response pattern may be impacted
differently from time of day, day of week, even time of year. For purposes of analyzing fire
station deployment coverage areas, the GIS software utilizes an "averaging" of these factors to
create a polygon on the deployment map.
I. CONCENTRA TION DISCUSSION
Concentration is the spacing of multiple resources arranged (close enough together) so that an
initial "effective response force" can be assembled on-scene within adopted public policy time
frames. An "initial" effective response force is that which will most likely stop the escalation of
the emergency for that risk type.
For example in urban/suburban areas, an initial effective response force is typically two to four
units arriving within 10 minutes or less total reflex time, as defined by the Cascade of Events
described in the original Master Plan appendix with the number of people that have been
identified in the critical task analysis as the effective response force.
An effective response force can stop the escalation of the emergency, even in high-risk areas.
An initial "effective response force" is not necessarily the total number of units or personnel
needed if the emergency escalated to the maximum potential. F or example, if a building was
pre-planned for a worst-case fire-flow of 4,000 gpm, a jurisdiction could plan an initial "effective
response force" to provide the gpm necessary (say 1,500 gpm) to contain the fire to a reasonably
sized compartment of origin within a prescribed time frame. Additional "alarms" or units could
be planned on from further away, including mutual aid.
If risk is well defined, such as "moderate," then the initial effective response force shall be
planned for the predominate risk type found, supported by historical fire data showing what it
took to control the average or "bread and butter" fire problem. Concentration is best measured
by risk category type - high-risk areas need second and third due units in shorter time frames
than in typical or low risk areas. The art in spacing of concentration resources is to strike a
balance of how much overlap there should be between station areas. Some overlap is necessary
to maintain not only good response times, but to provide back-up for distribution when the first-
due unit is busy on a prior incident.
As will be noted in the next section the condition stated in the last Master Plan that indicates that
it takes the entire on-duty force, plus mutual aid to deal with a structural fire is still operative
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DRAFT
J. CRITICAL TASKING
In the first edition of the Master Plan, the concept of Critical Tasking was introduced but not
evaluated in the process. A description was provided in Appendix G for review, but not acted
upon. The concept of Critical Tasking has been placed in the body of this version to provide
support for the following information developed to meet the documents scoping requirements.
It is well known that the variables of fire growth dynamics and property/life risk combine to
determine the fire-ground tasks that must be accomplished to stop the loss of life and property.
These tasks are interrelated, but can be separated into two basic types: developing fire flow and
providing for life safety. Fire flow tasks are those related to getting water on the fire. Life safety
tasks are those related to finding trapped victims and removing them from the building.
The required fire flow is based on the physical characteristics of the building; its size, structural
material, distance from other buildings, horizontal and vertical openness (lack of partitions), and
its contents; type, density, and combustibility (BTUs per pound). Fire flow tasks can be
accomplished with hand held hoses or master streams (nozzles usually attached to the engine or
ladder). Each 1-1/2" or 1-3/4" hose requires a minimum of two firefighters. These hoses can
flow 125-gpm minimum, so when these lines are used the fire flow is 65 gpm per firefighter.
The 2-1/2" hoses can flow 250 gpm and require a minimum of two or three firefighters, yielding
a flow of 75 to 125 gpm per firefighter. Master streams can flow from 500 to 1000 gpm each.
They take relatively fewer firefighters to operate because they are fixed to the apparatus or
immovable once placed into operation.
The decision to use hand lines or master streams depends upon the stage of the fire and threat to
life safety. If the fire is in a pre-flashover stage, the firefighters make an offensive attack into the
building with hand lines. The lines are used to attack the fire and shield trapped victims until
they can be removed from the building. If the fire is in its post-flashover stage and the structural
damage is a threat to the firefighters' life safety (e.g., weakened roof, stairs), then the structure is
declared lost; and master streams are employed to keep the fire from advancing to surrounding
buildings.
As the number of larger commercial occupancies (> 10,000 sq. feet), mid-rise buildings and
occupancies with high value contents are required by code to be equipped with automatic
sprinkler systems. If the buildings area is allowed to increase, without sprinklers the required
fire flow increases. Areas with very large and very valuable buildings can require fire flows of
8,000-10,000 gpm. The staffing needed to generate these fire flows can also be calculated.
The life safety tasks are based upon the number of occupants, their location (e.g., a low-rise vs.
high-rise), their status (awake vs. asleep), and their ability to take self-preservation action. For
example, ambulatory adults need less assistance than non-ambulatory. The elderly and small
children always require more assistance. The key to a fire department's success at a fire is
coordinated teamwork, regardless of whether the fireground tasks are all fire flow related or a
combination of fire flow and life safety.
The logical approach is to layout the critical tasks for a given situation in a given risk type.
Ideally, this should be done for each of the three most predominate emergency types: fires,
emergency medical and hazardous materials incidents. Two emergency scenarios used here as
examples may help illustrate the importance of simultaneous and coordinated action, and
demonstrate why different levels of fire risk require different amounts of staffing and equipment.
IV-9
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DRAFT
The first example is a fire in a detached, single-car garage, and the second is a house fire.
Several important factors make a house fire a higher risk than a burning garage. The first factor
is size. Garages are much smaller than houses, and thus require less water to extinguish than
house fires. Another factor is life risk. A garage fire is not likely to be a threat to life. Exposure
is another factor. A garage is usually separated far enough from other structures so it cannot
spread to them. Besides these factors, the combination of small size and access around all sides
allow firefighters to extinguish the fire from the exterior, and this removes the need for a backup
crew. All of these factors mean a relatively smaller force of firefighters can handle the risks of a
detached garage fire than is needed for other types of structures.
Compared to the garage example, a house fire poses a higher level of risk and requires a
correspondingly larger force of firefighters. A house's larger area and contents generate hotter
and faster growing fires that require more water and consequently more hose lines for
extinguishment. The threat to occupants requires search and rescue be conducted simultaneously
with fire suppression. In addition, the fire attack cannot be safely done without the simultaneous
ventilation of rooftop or wall openings. A backup crew is necessary anytime the firefighters are
inside the building, adding to the staffing need.
These two examples show a significantly greater number of firefighters and equipment is needed
for a house fire than for a detached garage. As the discussion below will explain, the tasks must
be performed simultaneously; therefore, the necessary staffing must arrive in a minimum amount
of time so the crews can coordinate their actions. Other structures such as apartments, nursing
homes, or large warehouses pose still higher risks than house fires because they require greater
levels of staffing and equipment to arrive in a reasonable time and work in a coordinated manner.
Fire attack practices are similar for organized fire departments throughout the country. Activities
at fires should also conform to nationally recognized safe fire fighting practices for structural
fires and comply with Occupational Safety & Health Administration (OSHA) rules for the same.
As the discussion below will show, tasks must be performed concurrently; therefore, necessary
staffing must arrive in a minimum amount of time so crews can coordinate their actions.
When identifying critical tasks, firefighter safety must be emphasized. Whenever interior fire
operations are started requiring use of protective equipment (including turnout gear, SCBA, and
a minimum 1-112 inch hose line), a command structure should be in place; and additional
personnel must be staged to perform rescue functions for the interior firefighting personnel.
Some sample individual critical tasks are:
Attack Line - A 1-112" hose delivering 130-150 gpm and handled by a minimum of two
firefighters, or a 2-112" hose producing 250 gpm and handled by two or three firefighters.
Search and Rescue - A minimum of two firefighters assigned to search for living victims
and remove them from danger while the attack crew moves between the victims and the
fire to stop the fire from advancing. A two-person crew is normally sufficient for most
moderate risk structures, but more crews are required in multi-story buildings or
structures with people not capable of self-preservation.
Ventilation Crew - A minimum of two firefighters assigned to open horizontal or vertical
ventilation channels when the attack crew is ready to enter the building. Vertical
ventilation or ventilation of a multi-story building can require more than two firefighters.
Ventilation removes superheated gases and obscuring smoke, preventing flashover and
IV -10
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DRAFT
allowing attack crews to see and work closer to the seat of the fire. It also gives the fire
an exit route so the attack crew can "push" the fire out the ventilation opening and keep it
away from endangered people and unburned property.
Back-up Line - A 1-1/2" or 2-1/2" line taken in to cover the attack crew in case the fire
overwhelms them or a problem develops with the attack line. This requires a minimum
of two firefighters.
Exposure Line - A 1-1/2" attack line handled by two firefighters and taken above the fire
in multi-story buildings to prevent fire expansion. It is also used externally to prevent
nearby structures igniting from radiant heat.
Pump Operator - One firefighter assigned to operate the pump.
Water Supply - A crew of one or two firefighters who pull large-diameter hose between
the pumper and the nearest hydrants, hook up at the hydrant, and deliver water to the
pumper before the pumper's water tank runs dry (a pumper has about four minutes of
water when one 1-1/2" line is flowing).
Rapid Intervention Team (RIT) - A ready-rescue team of firefighters outside a structure,
in direct contact with the inside crew. To provide for firefighter safety, OSHA mandates
if firefighters enter a burning structure where they must use breathing equipment to
survive, the ready-rescue team must be ready to effect rescue of the inside crew
immediately, if necessary.
Command - An officer assigned to remain outside the structure to coordinate the attack,
evaluate results, redirect the attack, arrange for more resources, and monitor conditions
that might jeopardize crew safety.
These tasks are then combined into company functions as determined by the officer in charge at
the scene of an emergency. The officer assigns these tasks to individual companies based on
critical factors present at the emergency. The prioritization of these tasks is also dependent on
the emergency and available resources.
K. GILROY'S CRITICAL TASK DEVELOPMENT
This report's overall objective included providing a review of the appropriateness of using
videotape of training burn for performing "critical task" analysis of "fire attack" operations for
typical risk structure fire response. The tape that was presented was been professionally edited
and included a timer for measuring activities.
Citygate reviewed the tape and critiqued it with staff members. Citygate did not believe that the
videotape material adequately captured or portrayed the structural fire tasking analysis in as
structured a way as the conventional time-task profile used in capturing this information. It was
a noteworthy effort, but limited in its ability to capture the details of the task analysis.
Furthermore, the critical task analysis data on two other operational areas had not been obtained
through videotape review. These included medical calls and traffic accidents and extrication.
City gate therefore, assisted the Department in completing a task analysis of these activities.
These included:
IV-II
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DRAFT
. Identifying the number of personnel and equipment resources needed to perform
each critical task analysis
. A description or outline of the activities to be performed by GFD to prepare for
conducting each critical task
. Prioritization of the importance of each critical task analysis to support the
completion of the final report.
L. DETERMINING THE GILROY FIRE DEPARTMENT'S EFFECTIVE RESPONSE FORCE (ERF)
Determining the Gilroy Fire Department's Effective Response Force (ERF) for the identified risk
types in existing and planned development areas, including wildland interface areas requires the
documentation of the Critical task expected by the current deployment configuration
Citygate participated in a series of exercises with the staff of the Department to observe and
validate the process. During that evaluation period, we personally observed two separate
exercises and reviewed the documentation of a separate one that was conducted on another day.
The observed exercises included a structural fire, and a vehicle accident and extrication. The
unobserved, but reviewed CT A was the Stat Medical aid Call. In order to understand all the
tasks necessary on a typical house fire and emergency medical rescue, the Department actually
conducted several timed trials using their existing standard operating procedures to demonstrate
what has to be done to accomplish the outcome and how much time the tasks take. Three charts
describe the finding of this exercise. They have been placed in the appendix for those who are
interested in the specifics. All charts start with the time of 911 call receipt and finish with the
outcome achieved. In the charts described in the appendix, the total time clock is shown running
alongside the individual completion time of the task.
There are several important lessons to be learned from the charts. They include:
A. These results were obtained in the best of circumstances on clear, sunny days with
optimum arrival times for the units.
B. It is noticeable how much time it takes after arrival to actually accomplish key tasks
to arrive at the actual outcome.
C. The time for task completion is usually a function of how many personnel are
simultaneously available.
D. Several of the tasks, especially on the fire scenario, were done in a linear manner due
to a smaller number of personnel being available.
E. The total firefighter count on the fire scenario assumed that the ambulance crew was
also available to respond.
M. COMBINING OUTCOME EXPECTA TIONS WITH HAZARDS, RISK AND VALUES
Outcomes desired such as "keep the fire damage to the room of origin" must be related to the
hazard class of the building. For an extreme example, to confine a fire to one room in a high rise
building requires many more firefighters than in a single story family home in a suburban
community. How much staffing is needed can be derived from the outcome and hazard class. If
IV-12
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DRAFT
Gilroy desires to confine a one-room fire in a residence to the room or area of origin, that effort
will require three to four suppression units plus a battalion chief and rapid intervention team for a
minimum of 12-15 firefighters on scene within a reasonable time frame.
This number is needed to safely conduct the simultaneous operations of rescue, fire attack, and
ventilation plus providing for firefighter accountability. A serious fire in a one story commercial
building would require additional engine and truck companies for a minimum of 15-25
personnel, thus triggering mutual aid. A typical auto accident requiring patient extrication or
other specialty rescue incidents will require a minimum of 8 firefighters plus the battalion chief
for accountability and control.
Currently this level of service can only be achieved with the use of automatic aid companies.
N. INFILL POTENTIAL
With the notable exception of the wildland fire scenario, a vacant piece of land requires very
little fire protection. Unless that ground is covered with highly combustible fuel and is in the
near proximity of structures, fire departments do not exist normally to respond to grass fires.
The concept of growth and developtpent is linked to two main characteristics. The first of these
is the creation of road transportation network that allows access to parcels of property. The
second of these is the actual development of that parcel with a structure of some type that would
serve the purposes of those that intend to live or work within it.
It also follows that whenever this development begins it seldom progresses in a linear and logical
fashion. In other words, there is often a lot of open space between buildings when they are
initiated. This can very easily be observed in rural areas. For example, a piece of property might
consist of hundreds of acres with only two structures on it. Moreover, there would be a very
limited amount of roads and access on that property.
Citygate reviewed and included in the Risk Assessment Section of this report the City's recently
released General Plan, Residential Development Ordinance (RDO) allocation. Recent decisions
regarding commercial and industrial development, and mutual aid agreements and other reports
(e.g., LAFCO report) seemingly provide an event horizon that indicates that by the year 2009 the
city will have achieved the thresholds of requiring the last station in the planning area, in Santa
Theresa.
It follows, then, when communities begin to develop, there are thresholds that require the
community planners or the governmental authority to start determining whether or not fire
protection is needed. Any number of triggers is needed to force the development of fire
protection. Most notable of these is what is called "the catastrophic theory of reform." This is a
scenario in which no fire protection is being provided to structures; then, a serious event occurs
resulting in either significant loss of life or property. Immediately thereafter, those that have the
wherewithal to do so try to institute some form of fire protection. It is sort of a classic example
of shutting the barn door after the horses have been stolen.
Yet, it is a common phenomenon for the creation of fire protection in small and relatively
isolated sets of circumstances. However as development occurs in a community there is a point
in time in which a significant part of the land mass is covered by either the transportation
network or the parcels have been fully developed. This could be expressed in terms of a
percentage of the total area that is involved.
IV-13
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DRAFT
If you go back to the day or origin of many of our communities there is a point to which the
number of buildings per square mile was relatively low. On the other end of that spectrum, there
is a point in which there are no pieces of vacant land. In between there is a concept called
"infill. "
Infill is the development of a parcel that is already bounded by other developed property. The
primary issue from a land use planning purpose is the compatibility between infill and existing.
From a fire protection point of view, one of the issues is whether infill substantially changes the
nature of the risk in the surrounding area.
When infill is expressed as being a potential in any given area of more than 50 percent of the
landmass the fire problem is not well defined. When the infill reaches the point where it is less
than ten percent of the landmass, infill is relatively insignificant with respect to the impact of any
specific building.
From a fire protection planning perspective, infill should be looked at as it relates to creating
ancillary problems such as the loss of access or increased traffic conditions that could impact
response patterns.
o. THRESHOLDS AND TRIGGERS
When a community creates a fire department and builds a fire station, a response time criterion is
usually established by default. This response time anticipates that it applies to 100 percent of the
area covered by the boundaries of that fire station. This only holds true when there is only one
fire station and a small area to cover. Simply speaking, a central fire station is among the first
public buildings created in most communities, no matter how small. As the community grows
away from that station in incremental steps, the expectation is that the original fire station will
still provide adequate coverage. It is always anticipated that at some point in the growth process
some calls for assistance will fall outside of the adopted response times.
However, establishing future response time expectations are fraught with problems. In the
simplest of terms, the total geographical area covered by a fire department mayor may not be
highly developed initially. In addition, even if a crew of a fire station responds it may not do so
in a timely manner. Most fire departments start off as totally volunteer. They usually operate
with this staffing pattern for economic reasons. When the population and area increase, there is
often pressure to add full time staff, and then consider adding additional stations. This has
already occurred in Gilroy.
In fact, there are many variations on this theme. Older established cities tend to be denser and
smaller in dimension, but they often annex new areas into the city. Newer communities may be
created from a much larger area than the first fire station can cover over time. Urban sprawl,
which is currently an active discussion in other areas of public policy, has resulted in the timing
of additional fire station construction and staffing being a major topic of concern.
The issue now is when to build new fire stations to support the entire network. The city cannot
afford to build and staff a new station every time a structure is built that is beyond the current
response area. Yet, they cannot wait until the last structure is in-filled to provide coverage
either. In reality, it is not always the fact that a building has been developed as it other risk
factors that prompt the addition of another fire station. The chart that is listed below is derived
from the CF A Standards of Cover methodology manual.
IV-14
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DRAFT
P. CRITERION GRID
A brief explanation of how this chart applies may be informative to the reader.
Figure IV-l
Criterion Grid
Criterion
Choices Distance
Response Time % of Call Building Inventory
Maintain All Risks I st Due Co is within 5
Status Quo Within 1.5 minutes travel time 90% 100 % in district Existing inventory and infill
Miles of the time.
Temporary I st Due Co. Exceeds 5
facilities Risks 1.5 to 3.0 minutes travel time 10% More than 10%
and miles from of calls are in New area has 25% of same risk distribution as in initial area
minimal existing station of the time, but never adjacent area.
staffing exceeds 8 minutes.
Risk locations I st Due Co. Exceeds 5
Permanent Exceeding 4.0 minutes travel time 20- More than 20-25 New area has 35% of same risk distribution as in initial area
station miles from the 25% of the time. % of calls are in of coverage
Needed outlying area
station Some calls < 8 m.
Outlying risk I st Due Co exceeds 5
Permanent locations minutes travel time 30% More than 30%
station Exceeding 5.0 of the time. Some of calls are in New area has 50% of same risk distribution as in initial area.
essential miles from the calls< 10m outlying area
I st station
IV-15
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DRAFT
Figure IV-2
Decision Process for Deployment Review
Yes
All risks
within 1.5 to
2 miles?
DlstaDce/Denslty
(Travel) (RIsk)
Estahlished t:.
Response Zones
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. Road network Improvements
. Fully sprinkler risks
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records within
adopted goals?
Response Failure
(performance)
Yes
Use of the Flow Chart
The flow chart (Chart IV-2) following the criterion grid has been developed to further explain
the concept of how a fire department needs to perform periodic evaluations of its Standards of
Response Coverage in order to assure that there are no gaps and that consideration is given to
service areas. The flow chart works like this:
The starting point is the existing level of service. It can be a single fire station or it can be
multiple fire stations. It makes no difference exactly how many stations are in the matrix. What
is significant are the first two decision points regarding all fire stations in the inventory.
The next section of the chart deals with two essential planning decisions. The first of these is
whether the department has established fire demand zones and that they are all within a
reasonable travel distance from existing fire facilities. The standard that is used in this
discussion is 1.5 - 2 miles. The ISO polygon is usually 1.5 miles on a north -south and east-
west axis. That encompasses about 4.5 mile square miles.
However, that criterion was established fifty years ago, which was prior to the intervention of
such things as traffic control devices, main thoroughfares, and traffic expediency devices. The
second element is the establishment of a response time goal. As stated in other sections of this
document, it makes no difference if the goal is 3 minutes of travel time, 4 minutes of travel time
or 5 minutes of travel time with regard to the goal. What is important is that it be established
with a fractal. For example, a response time goal of 5 minutes of travel time, 90 percent of the
time is a common industry norm. Nevertheless, once the response time goals have been
established, the Department's management information system should keep track of incidents.
IV-16
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DRAFT
In the utilization of this model, the two databases from which the evaluation should emerge is the
city's mapping environment and the city's records management system. The former identifies
the location of occupancies on the ground and the second identifies the actual experience and
performance of the department in providing protection to those facilities. The most common
industry practice for those agencies that utilize a recognized Standard of Cover model is to
perform an annual review to assure that both of these criterions are being met. If the answer to
the questions remain "yes," the existing level of service is satisfactory.
However, in the event that one of the two thresholds is exceeded, then the department should be
obligated to develop a level of service improvement. Notably you can exceed one and not
exceed the other. For example, a few scattered buildings that are beyond the range of response
time goal does not mean you have a serious problem. In the first place, these particular
occupancies may not be the site of a specific emergency and therefore, would not be calculated
in response time analysis. Conversely, having all of the buildings within the fire demand zone
does not mean that you will not have a response threshold failure. Many factors can cause a fire
department not to meet its response time goal. These might include, but not be limited to, such
things as:
. Extremely heavy traffic patterns during specific periods of time;
. Concurrent alarms that result in engine companies having to come out of district
more often than they should to provide first response into another district;
. Seasonal weather conditions; and
. Specific community events that have a negative impact on the availability of a fire
company to meet its response time goals.
It is important to note that response time goals are on a company-to-company basis. One should
not make the mistake of averaging all of the responses in an entire community in coming up with
a fractal. This could result in certain outlying districts having very bad response records and the
system not identifying them.
The purpose of the level of service improvement is to study fire station by fire station. The two
study elements that must be looked at for service level improvements are:
. What factors are causing the response times to get lengthy? and/or
. What areas are causing a call for service that previously had not been identified?
This takes you to a series of potential thresholds. The factors that are being evaluated to mitigate
the problem could be such things as:
. Adding an additional fire station;
. Outfitting a second company in an existing fire station;
. Requiring improvements in the road transportation network; and
. The inclusion of traffic expediting devices such as signal control by the fire
service and emergency services.
Then it is also conceivable that you could minimize risk by requiring built in fire protection in
those areas that are beyond travel distances or response time achievement.
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DRAFT
At this point in the model, the ftre department should evaluate two conditions. The ftrst of these
is what percentage of the occupancies is outside of a normal ftre demand zone. The
methodology here infers that you always look at the ftre demand zone that is immediately
adjacent to the area in which growth is occurring. For example, if it is a predominately
residential area, then the assessment should be residential growth. If it is in an industrial area,
then it is perhaps logical to look at industrial growth. To use a speciftc example, if an area had a
total of 5,000 single- and multi-family occupancies that were within the time and distance of
existing level of service, then 10 percent of that number (if that was reflected in the new growth
area) should raise the level of monitoring by the department.
Reading across the bottom of the model, there is a similar line with regard to response time
thresholds. If your goal is to have a ftve-minute travel time 90 percent of the time and you are
only able to achieve it 80 percent of the time, then it is time to start monitoring the conditions
that are causing that delay.
There are available software programs that allow the ftre department to not only identify the
location of speciftc emergency events, but also to classify and categorize them by the length of
time it takes to arrive. Therefore, looking at any time the performance measure drops below
10%, the main issue to determine is whether those long response times were within the existing
level of service area or were they being generated by the area where the new growth has
occurred. Notably, on the ftrst of this chart there is an indication that all of your responses stay
within 8 minutes. If the department has identifted a number of responses that exceed 8 minutes,
it is almost always an indicator of outlying unprotected risk.
The second set of incremental observation is when you go to a 25 percent occupancy factor and a
25 percent response time failure. These are labeled in the model as being the time and travel
threshold that should generate consideration for a temporary ftre station or the exercising of the
other options that have been identifted. If during an annual review a department discovers that it
does have up to a 25 percent occupancy distribution, the second consideration that must be
evaluated is the density of that distribution. One way of looking at that is to look at approved
development with regard to distribution and concentration. A single outlying building does not
constitute much of a risk. However, if that building was a hotel that was eight stories tall and it
was out amidst a somewhat rural area, there should be reason to be concerned. Large housing
tracks, especially those that are planned unit development, are especially important to note.
The single and multi-family dwelling occupancy is the primary occupancy for the loss of life and
property according to the ftre records in the United States. Therefore, any time there is a
concentration of single family and/or multi-family dwellings in which there is a sense of
community, there is an expectation of ftre service levels being consistent with the level of service
throughout the remainder of the community.
The last set of brackets constitute a 50 percent occupancy factor and a response failure of over 35
percent with response times exceeding 30 minutes. If a ftre agency has not provided a temporary
station and arrives at this condition, the liability for the community is extensive unless there is a
speciftc policy made to have separate response goals in different parts of the community.
For example, in a highly rural area it is not uncommon to have a different response time goal
than in an urban area. These are usually deftned by the density of the dwelling units per acre or
the population concentration per square mile.
IV-18
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DRAFT
In the event that a temporary station and/or a permanent station is put into position, the annual
review process should provide documentation on what transpires as a result of that decision.
Temporary fire stations are a common practice in the fire service. However, they have a
tendency to be allowed to remain in place long after their period of usefulness. Formative fire
stations should always be in place when the occupancy density is the equivalent of 50 percent of
the developable land.
In summary, there are a variety of factors regarding thresholds that must be considered in the
decision to add an additional station. They include:
1. Distance to the closest fire station
2. The amount of developable land
3. The amount of development on that land
4. Structural Square footage
5. Call Volume
6. Population Density
7. ISO Hydrant Score
8. Risk Score
9. Percent of calls in excess of 4-minutes travel time
10. Property valuation.
Weighting of Factors
All of these factors do not carry the same weight when it comes to impacting the need for
servIces.
When Would the New Stations Have to be Built and Staffed?
The timing of a new fire station's construction and staffing has been a point of discussion from
the beginning of this study. The following is a list of the weighting factors that can be
measured to determine whether a fire station is required to serve an area
1. What is the Percentage of Development?
. 4= 75% or more ofland in use
. 3= 50 to 74% ofland in use
. 2= 25 to 49% of land in use
. 1 = Less than 25% of land in use
2. Population at Risk
. 4= More than 12,000
. 3=5,000 to 11,999
. 2=1,000 to 4,999
IV-19
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DRAFT
. 1 = Less than 999
3. Response Time Criterion
. 4= More than 5.0 miles from existing station
. 3=3.0 to 4.9 miles exiting facility
. 2= within 2.9 of existing facility
. 1 = Distance is not a factor
4. Percent of Response Failures in previous calendar year
. 4= Expect Over 30 percent response failure
. 3= Expect Over 20 percent response failure
. 2= Less than adopted goal, but with minimum impact (10% or less)
. 1= Meets adopted goal(s)
5. Workload and Demand
. 4= 20% or more of calls generated in area
. 3= 15 to 20% of calls generated in area
. 2= 10 to 14% of calls generated in area
. 1 = Less than 10% of calls generated in area
6. Cost of construction (Budget planning impact)
. 4= Residential Station Cost range (Easiest to fund)
. 3=Commercial Industrial Cost range
. 2= Headquarters Station Cost range
. 1 = Mixed facilities Cost range (Most difficult to fund)
S I f Th h Id A I .
ampJ e 0 res 0 nalYSIS
Attribute Demand Area Score Max
Score
1. %Developed 25 to 49% of land in use 2 4
2. Population 1,000 to 4,999 2 4
3. Time Criterion o to 4.9 miles exiting facility 4 4
4. Response Failure expectation Expect Over 30 percent 4 4
response failure
5. Workload Less than 10% of calls 1 4
generated in area
Totals 15 24
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DRAFT
Minimum and Maximum Scoring
A station that scored a 24 on the above scale would absolutely have to be in place to provide
service. A station that scored only 6 on the above scale would be categorized as a fringe area
that would not have the same level of service provided to the core areas. This area scores 15 on
the Chart, which indicates that a station should be provided in the future to avoid response failure
to the area. If anyone of these factors were to be allowed to increase, specifically the area of
land in use for residential or commercial development or the call demand workload were to
increase the system would be in a failure mode
The actual location of future fire stations can be anticipated, but not be predicted. The reasons
are straightforward. In the first place, the rate and direction of growth is not mandated. It will
occur in concert with other economic factors. Secondarily, much of this proposal does not have
a road network that is at a high enough resolution to predict specific routing capabilities to be
evaluated on any existing computer program for station location.
There are three approaches used by fire agencies to locate future fire stations:
1. Require future developments, if they are large entities, to provide the fire station as part
of the developmental process.
2. Utilize a strict time and distance model and build fire stations based on an adopted
formula.
3. Use local data and experience, supported by annual analysis of growth, development and
fire and EMS response experience.
The threshold for construction should be to provide a new fire station into any zone in an area or
jurisdiction that has more than 35 to 50 percent of its parcels developed. Some of the secondary
measures currently being used to justify a full-time paid company are 300-500 calls for service
for any individual fire company or a service population of 10,000. Citygate's experience has
been that it takes a multiplicity of Standards of Coverage factors to be out-of-balance along with
having additional economic resources to justify an additional paid company or staffing increase
on one or more compames.
Q. How DOES THIS ApPL Y TO THE MASTER PLAN FOR GILROY?
As discussed in Section II of this report, the identification of risk, performance expectations must
be created that clearly articulate a "community standard" regarding the desired outcome of
efforts to mitigate or eliminate risks (e.g., fires, hazardous materials spills, medical emergencies,
etc.) to the publics' safety. For the purposes of updating the Department's Master Plan, Citygate
reviewed existing City Council policies, community expectations as expressed in fire department
budget documents, the City's adopted General Plan, the LAFCO study and the City's Residential
Development Ordinance. Other reviews and analysis consisted of response time performance
analysis and a review of the Department's Records Management System (RMS) to identify the
frequency of and response time performance to identified event types.
Response Time Performance Analysis
Response time performance for most incident types has a direct correlation with outcomes. The
sooner mitigation efforts can begin, the smaller the amount of damage extension. This rule
IV-21
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DRAFT
applies to both potential property loss and morality and morbidity. In addition, while response
time is not the only measure used for determining the effectiveness of resource deployment
plans, it is quantifiable and easily captured in automated systems. Therefore, response time
performance is commonly used as a measure in determining the distribution of resources, as well
as, the appropriateness of their concentration.
The appropriateness of current resource deployment strategies and the potential effectiveness of
other deployment options were analyzed using data from the Department's RMS. While there
are a great number of number of event types that can be used to define an incident type, the
predominate types of calls responded to by the Gilroy department are Emergency Medical
Services (EMS) and fire-related incidents that involve life-safety.
Response time data from these incident types were analyzed and compared between defined
geographic areas. To accomplish this, the City has been divided into four "first due" response
districts. Each district has been named after an existing or planned station responsible for
servicing it. The boundaries of the first due districts were determined through travel time
analysis of existing street networks using a GIS software solution developed for this purpose.
For example, the Southeast area of the City is falls within the Chestnut District, since the
apparatus responding from the Chestnut fire station at 10th and Chestnut can arrive on-scene
"first," thus the "first due" area of the Chestnut resource (i.e., Engine 61) is defined as the
Chestnut District (See figure XX: First Due Districts).
While all service requests from a customer service perspective are important to consider, service
requests that require a specific number of resources (e.g., personnel and equipment), as defined
in the critical task analysis, require a more thorough analysis to determine whether current
resource deployment strategies (i.e., from existing station locations) result in the arrival of
required resources within acceptable timeframes. From a service equity stand point an
acceptable timeframe would be defined by comparing response time performance within the
Sunrise and Santa Teresa Districts to those found within the Chestnut and Las Animas Districts
for structure fire and EMS incident types. However, further analysis is required when reviewing
EMS response data.
While all EMS requests within Gilroy are responded to as an emergency, some EMS incidents
require a greater number of resources to effectively manage than the current minimum of two
emergency responders (e.g., firefighter/paramedic and fire captain/EMT) found on the Sunrise
Medic Rescue 81. Condition types that fall into the category of "Modified" EMS response
consist of cardiac and respiratory arrest, conditions that can deteriorate into cardiac arrest,
pregnancy complications, and major trauma. In these cases, at least four persons are
recommended to effectively perform patient care.
Emergency medical services requests defined as Modified occurring in the Sunrise District
require the dispatch of a second resource, generally from the Las Animas station, if it is
available, or from the Chestnut Station if the Las Animas Station resource is not available. In
light of the required dispatch of a second resource to Modified Medical service requests in the
Sunrise District, the consultants analyzed data from the first six months of 2003 to extrapolate
response time for the second resource. These data were collected from January 1 st, 2003 to June
30, 2003, prior to the staffing of a two-person Squad at the temporary facility located on the
Sunrise Station site and reflect times and frequency of response by resources from Las Animas
and the Chestnut fire stations. The following tables present the results of response time
IV-22
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DRAFT
performance analysis from 12 months of data from January 1, 2003 to December 31, 2003,
except where noted.
Figure IV-3
Response Time Performance for Typical EMS Responses by StationFirst-In District
Sunrise Santa Teresa
Statistical Test Chestnut Las Animas July-Dee
95th Percentile Response 06:05 06:10 06:20 06:28
Time for Code 3
Percent of Code 3 Resp. > 86.2% 85.8% 87.3% 83.7%
5:00
Average 04:03 03:53 04:37 03:38
Standard Deviation 02:38 02:07 04:26 01:34
Max. Reported Resp. Time 31:05 31:59 28:35 08:31
Min. Reoorted Reso. Time 00:00 00:00 00:00 00:02
Count 610 769 53 79
Travel Time 04:03 04:06 05:31 05:47
Figure IV-4
Response Time Performance for "Modified" EMS Responses by Station First-In District
Sunrise Santa Teresa
Statistical Test Chestnut Las Animas (Extrapolated)
95th Percentile Resp. Time 06:05 06:10 08:08 06:28
for Code 3
Percent of Code 3 Resp. > 86.2% 83.7%
5:00 85.8% 39.2%
Average 04:03 03:53 05:39 03:38
Standard Deviation 02:38 02:07 01:45 01:34
Max. Reported Reso. Time 31:05 31:59 10:46 08:31
Min. Reported Resp. Time 00:00 00:00 02:25 00:02
Count 610 769 33 79
Travel Time 04:03 04:06 07:16 05:47
Figure IV-5
Response Time Performance for Fire Responses by Station First - In District
Statistical Test Chestnut Las Animas Sunrise Santa Teresa
95th Percentile Resp. Time for Code 3 09:00 08:52 08:09 05:19
Percent of Code 3 Reso. > 5:00 81.4% 65.1% 15.1% 74.1%
Average 04:25 05:10 06:40 04:51
Standard Deviation 02:33 03:05 01:32 00:24
Max. Reoorted Reso. Time 14:45 19:15 08:10 05:24
Min. Reoorted Reso. Time 00:01 01:02 04:26 04:26
Count 34 46 6* 4*
Travel Time 04:25 05:27 05:49 05:15
*
In small sample sizes, extremely short or long response times can significantly affect reliability of statistical tests.
IV-23
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DRAFT
Given the absence of historical data regarding structure fire responses within the Sunrise Station
District, the consultants used data from all responses into Sunrise District from the Los Animas
Fire Station. These data were collected from January 1, 2003 to June 30, 2003, prior to the
staffing of a two-person Squad at the temporary facility located on the Sunrise Station site. The
use of EMS responses created sufficient data points to extrapolate an accurate picture of
expected response time performance for structure fire responses as well as a second resource
necessary for effectively managing cardiac and respiratory arrest, pregnancy complications, or
major trauma into the Sunrise Station District. The Los Animas Fire Station houses the closest
Gilroy engine company to the Sunrise Station and therefore, when utilized with the Masten
station under automatic aid is capable of providing the number of personnel to create an Initial
Response force for structure fires and modified EMS response.
While both Sunrise and Santa Theresa incidents rely on contiguous district resources for specific
event types, all Santa Theresa District Incidents require the response from another area because
there is no station in that area. Hecker Pass automatic aid cannot provide in-depth response to
the area either. However, Santa Theresa's observed travel times performance is better than
Sunrise since initial development has occurred closer to existing station locations. Further more
the road network provides excellent access (i.e. Luchesa and Miller) Future Developments
decisions can quickly erode the service levels if the proposed development goes across the four-
minute response polygon line.
Figure IV-6
Statistical Test Chestnut Las Animas Sunrise Santa Teresa
Extrapolated
95th Percentile 09:00 08:52 08:08 6:28
Resp Time for
Code 3
Percent of Code 3 81.4% 65.1% 39.2% 83.7%
Resp less that 5 :00
mm.
Average 04:25 05:10 05:39 03:38
Standard Deviation 02:33 03:05 01:45 01:34
Max Reported 14.45 19:15 10:46 08:31
Resp Time
Min Reported 00:01 01:02 02:25 00:02
Resp Time
Count 34 46 33 79
Travel Time 04:25 05:27 07:16 05:47
Appropriate response time performance is time required to meet the community standard with
respect to property or loss of life from cardiac arrest.
Compliance with Community Standard
Service Levels Exoectations
While the results of the analysis of response and travel time reported in Figures IV -3 through
IV -5 use a current response time performance goal of five minutes from time of dispatch to
IV -24
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DRAFT
arrival on-scene, the question remains as to whether current department performance is sufficient
to meet service level expectations? Whether current service levels meet service level
expectations can only be answered once service level expectations have been defined. Using the
current "goal" as the only measure of performance would result in the conclusion that service
expectation is not being currently met. However, relying on only one measure such as response
time performance does not acknowledge or give sufficient weight to the community cost of
efforts or changes in deployment to meet this goal.
Multiple Threshold Factors
As stated in an earlier segment of this Section the idea of having "thresholds" is merely a way of
anticipating a need for a system improvement. Achieving one threshold does not necessarily
mean that action must be taken immediately. To the contrary, achieving one threshold merely
means that the department should be monitoring the remaining thresholds to see how many
factors are out of balance before making any decision to act. Thresholds are primarily designed
to warn the agency that other preliminary actions should be taken in order to avoid an
accumulation of issues to be resolved in a short term once the "triggers" have been reached.
The concept of the trigger is that it is a point along the line of a continuum where several
thresholds reach a point of demanding an action be taken. For example in the chart we have
provided earlier one can see that a structure can be more than 2.0 miles away from a resource
and that in an of itself is not bad. In addition, incidents in that general area may not be more than
1 or 2 percent of overall calls volume.
However, if the three main factors are all achieved at the same time, action should be taken. For
example, when an area is more than 3 miles away and has less than 25 percent of the occupancy,
and the department has less than a 10 percent failure rate and can reach it in less than 8 minutes,
this condition requires monitoring
If the Distance goes over 3 miles AND/OR the area begins to experience more than 25 percent
infill AND you are at a 20-25 percent failure rate and it takes more than 8 minutes to service the
area a temporary station should be located there.
The last trigger is 5.0 miles AND/OR the infill reaches 50 percent and the department is at a 30
percent failure rate with responses taking over 10 minutes a permanent station is essential.
In determining the whether or not changes are indicated in current resource distribution or
concentration strategies, City policy makers must evaluate and weigh the importance of the
following threshold and trigger criteria in the context of community values. Weighting one
element and the trigger criteria that comprise that element more than another element will
increase or reduce the importance of one element in relation to the others.
The following elements and there corresponding trigger criteria are initially equally weighted.
However, in the event service equity between first due response districts is an important
community value it can be weighted more heavily in comparison to Building Inventory, Risk
Distribution, and Response Time Failure. Using this approach permits a policy makers include
community values in the determination of appropriate service levels based on the following
community-tailored criterion
IV-25
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DRAFT
Planned and Existina Development as a Service Eauitv Indicator
As development occurs within the City, visitors and residents who live and visit within these
newly developed areas have expectations regarding the service levels. In addition, while they
may be uninformed as to what constitutes service level consistent with other areas within the
City, they have a reasonable expectation they will receive a similar level of service.
Unfortunately, the first homeowners within new development do not create sufficient increases
in property and sales tax to fully cover the cost of service equity within the areas of new
development. However, it is also irresponsible to wait until last the unit within a development is
sold as a trigger improving service levels within new development; the answer of course lies
somewhere in the middle.
Development is a driving factor in the distribution of resources. Depending on the type of
development (e.g., high density, multi-story or "maximum risk" vs. low density, single family
structures or "typical risk") development will also drive the concentration of resources. The
trigger criterion for when resources should be redeployed or increased to ensure service levels
are consistent with other areas within the City is an arbitrary decision at best. There are no
standards or guidelines published within industry or professional reference materials. While
sentinel events such as the Santana Row fire in San Jose or events resulting in loss of life often
motivate a decision to change or add to existing resources, a guiding precept of sac is to be
proactive by making decisions these events based on information regarding the risks and benefits
of policy choices.
Following interviews with City and Department staff, in an effort to identify existing triggers
used to determine the need for construction of supporting City infrastructure, Citygate found
examples within the Community Development Department of 51 percent being used as a trigger
for the initiation of City infrastructure, with the exception of utility functions. In the event
further analysis can demonstrate the appropriateness of increasing or reducing this percentage,
adjustments can be made. However, in the context of no value it is a reasonable starting point as
criteria for a trigger point within one element.
Following agreement on what constitutes trigger points in development, service levels must be
defined. In the course of performing this update, Citygate performed several critical task
analyses discussed earlier in this report. These analyses were organized into three primary
incident types. The incident types included:
. Typical EMS Incident
. Modified EMS Incident
. Fire Suppression Incident.
It is necessary to segment incident types into incident type categories, since each of the listed
incident types requires a different resource compliment to meet service level goals. For example,
a structure fire cannot be properly managed without water. Therefore, an engine company
arriving on-scene before "flashover" is necessary to confine the flame spread to the room of the
fire's origin.
Risk Distribution Outside of Four Minute Travel Time
While development itself serves as one service equity indicator, growth in and of itself does not
demand changes and/or increases in the distribution of resource if growth occurs within areas
IV-26
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DRAFT
receiving service at or above existing service performance goals. In the event development
decisions result in new construction occurring outside of four minutes travel time radiuses for
existing resources, planned construction and its service requirements will not be receiving
service levels consistent with of area of the City. Once again, however, what should constitute
the trigger point for either a change in and/or the addition of Department resources to maintain
desired levels of resource distribution.
In light of the 51 percent development trigger proposed for existing and proposed development,
Citygate is proposing a value that represents half of the 51 percent development value as a
trigger to be considered in resource development decisions. Fifty percent of the 51 percent
Service Equity Indicator serves to incentivize the approval of development decisions that occur
within four-minute travel radiuses of existing resources. Figure IV -4 demonstrates current four-
minute travel times for Typical EMS responses. Figure IV -5 demonstrates four-minute travel
times for Modified EMS responses and Structure Fire Responses.
In light of the differences in resource requirements for various incident types, service level
requirements are dependent on the ability of the Department to assembly the right resources
within prescribed time frames. Simply stated the criteria for this element consists of:
When 25 percent of the total planned development is predicted to have travel time performance
greater than four minutes for each of the following defined service level types:
. Initial Response Force for Fire Suppression Incident
. Initial Response Force for Modified EMS Incident
. Initial Response Force for Typical EMS Incident.
Response Time Failure
Given the importance of response time to cardiac and respiratory arrest survival rates and its
importance to confinement of flame spread, response time performance and compliance with
performance goals is an important element in determining whether or not changes in resource
distribution or concentration are indicated. The current goal of 5 minutes for 95 percent of
emergency responses is admirable, but is not realistic given observed travel times and the City
Council's approval of a four-minute travel time for station planning purposes.
In light of four-minute travel goal and dispatch call processing performance, a more meaningful
response time performance or "total reflex time" goal would be six minutes for 90 percent of
emergency responses, as measured within each of the City's four fire station districts. Support
for a six-minute response time performance goal can also be found in the EMS and fire services
literature with respect to cardiac arrest survival and fire behavior.
The importance of measuring response time performance for each stations first-in district support
efforts to ensure service equity exist between fire station districts. The following definitions
serve to define response time performance failure
Disproportionate response time failure occurs when a single fire station district has a larger
portion of noncompliant response time performance for each of the defined service level typescthan its proportion of all calls.
IV-27
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DRAFT
Effective Response Force response time failure occurs when 10 percent or more of the time an
effective response force cannot be assembled within prescribed performance targets for each of
the following defined categories of incident types:
. Initial Response Force for Fire Suppression Incident
. Initial Response Force for Modified EMS Incident
. Initial Response Force for Typical EMS Incident.
Analvsis of Disproportionate Response Time Failure
The following tables demonstrate a disproportionate share of responses requiring more than four
minutes of travel time to arrive on scene. This data indicates inadequate distribution of resources
within these fire station districts. The inadequacy of coverage in the Sunrise Fire Station district
is further emphasized in Table IV-6
Table IV-6
Chestnut 988 41.9%
Las Animas 1126 47.7%
Sunrise 129 5.5%
Santa Teresa 117 5.0%
Total Analyzed 2360
Table IV-7
Chestnut 111 36.9%
Las Animas 117 38.9%
Sunrise 33 11.0%
Santa Teresa 40 13.3%
Total Analyzed 301
R. WHEN SHOULD SUNRISE Go TO A FULL SERVICE STATION?
The Northwest quadrant of City has been identified as some of the most recent and significant
development within the City. Bordered by First StreetlWest Hwy 152 to the South, Santa Teresa
Blvd to the East, Day Road to the North and the Santa Cruz Mountains to the West, this area also
constitutes most of the Sunrise Station District. The Northwest quadrant consists of 2.7 square
miles with a perimeter of 5.29 miles. The area has 2,231 existing parcel numbers with 380
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DRAFT
parcels to be added with the Deer Park (05-06) and Rancho Hill (06-07) Developments. Thirty-
seven additional parcels are planned for undeveloped areas South of Sunrise Road and the Fire
Station, with 64 additional parcels scheduled for development North of Hecker Pass as part of
the Hecker Pass Specific Plan. With completion of construction using the remaining permits, the
Northwest quadrant will consist of2,712 parcels. Thus, 82 percent of the Northwest quadrant is
currently developed or being developed.
The Sunrise station was put into service to deal with a very specific problem; Emergency
Medical Services to an under-served area. As previously described, this station does not have a
fire suppression capability. This creates both a benefit and a liability. It serves a very specific
purpose of reducing the time for life-saving intervention on the most frequently called for service
demand, but it creates the perception that fire services are being made available and they are not.
The question that needs to be asked in the context of the Master Plan is: When will the
department upgrade that station to a fully equipped fire suppression station? The arbitrators
ruling that establishes a four person minimum for fire suppression companies would require the
addition of about 6.6 new personnel to the departments table of organization to achieve that goal.
Budget limitations clearly playa part in this discussion.
Therefore, the Department will face two choices over the next five years. They are whether to
retain the Sunrise station as an EMS resource only or upgrade it to a fully responding fire station.
Based upon the threshold analysis of the area, this station is located there for one reason at this
time. It is to provide response times that are reasonable to deal with the predominant workload
factor of EMS calls. It has already exceeded the infill requirements, but has not experienced a
high response time failure on fire calls. In order to bring this station to fully operational status,
the Department will need to double the personnel expenditures for this station by adding two
more personnel per shift (or 6 new employees).
Citygate believes this is a transitional issue that does not have specific a solution as the
requirement to add the 4th station. Nonetheless, we are prepared to state that the current
population growth rate will likely achieve the 50,000-population mark in the near future. The
Sunshine fire station should be transitioned Tnto a full servIce com~ny by the time the city
Eeaches that population f1gur~
S. WHEN SHOULD FIRE STATION NUMBER FOUR BE BUILT?
While construction specific to the Glen Lorna Development has yet to commence in an
aggressive fashion, the importance of this planned development rests on the economics that will
allow the developer to provide the agreed upon City infrastructure in a timely fashion. In other
words, if growth slows down, so will the ability to provide this station. If growth in the Glen
Lorna accelerates, underserved areas will place pressure upon the fire suppression system until
the station is built. Given the City's historical use ofa 51 percent project completion trigger for
the construction of City non-utility infrastructure for new development, the Department has
projected the need to ~egin construction of a fourth fire station in fiscal years 2009 and 2010.
This estimate is based on the current allocation of building permits approved as part of the City's
Residential Growth Ordinance. Citygate concurs with that assessment
IV-29
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DRAFT
T. SUMMARY
The Gilroy Fire Department has made significant improvements in its overall organizational
operational and deployment capabilities since the last Master Plan was published. It has added a
station and a two-person rescue squad. It now has much better management information to base
decisions on and has harder data on its response time. The effective response force for the
Department remains marginallY deficient without the assistance of automatic aid. The
opportunity to upgrade Sunris9fo a four-person fire crew and to add a new station in Glen Lorna
with another four-person company will pro~j~e the additional resources that will eventually give
this Department the capability it eventuallrill need to serve a build-out population of 60,000
people.
IV-30
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DRAFT
v. FUTURE POLICY DIRECTION
A. TRENDS AND PATTERNS
Service requirements and delivery options are subject to a host of economic, demographic, and
political influences. For example, revenue streams can fluctuate requiring changes in the scope
and depth of services. A breakthrough in technology can cause significant changes in work
practices. New tools and techniques can change efficiency and effectiveness of both individuals
and groups. Therefore, making predictions from trends is at best inaccurate over time. The
"farther out" a projection, the lower is its accuracy. Nonetheless, the best way to assure a future
outcome is to plan for its eventual implementation. This requires establishing some form of
vision of the future and therefore this Master Plan has a 20-year timeframe.
In the last version of this planning process, the report focused upon some process improvement
areas that were required to get the Department into more compliance with industry best practices.
The Department has matured over the last 5 years and now needs to focus its attention more onto
strategic issues and the need for internally driven process improvements. This Section provides
an indication of the trends and patterns that could be utilized by this department to provide a high
level of quality service to the City
B. THE EFFECTS OF IIHOMELAND SECURITY" ON THE FIRE SERVICE
The world of the fire service was changed on September 11,2001. For that matter the world of
public safety was changed too. The fact that acts of terror are now being leveled at civilian
populations and specifically at targets that can and do reside in many communities around the
country has impacted the way in which fire departments are conduction business. This new
element was not included in the previous study.
In a Position Paper authored by the major fire service organizations the following statement was
made:
"The American fire and emergency service was very encouraged when the president
proposed the creation of the Department of Homeland Security, especially since it has
long advocated the need for a central point-of-contact for terrorism preparedness. Much
has changed in the post-September 11th world, but one thing has remained constant:
America's fire service must have the adequate personnel, training, and equipment to
respond to future emergency incidents, including terrorist attacks, hazardous materials
and emergency medical services incidents, technical rescues and fires. These, plus many
other challenges, are what makes the fire service America's all-hazards first responders.
In developing a new department, Congress and the administration must consider a
number of crucial issues or the department will fall short of meeting its desired intent:
The Federal Emergency Management Agency, which is tasked with emergency
preparedness and response missions, must be at the core of the Department of Homeland
Security. This guiding principle must manifest itself during the planning and
development of a new department. To achieve this end, it is imperative that the fire and
emergency service has significant representation at the table throughout the entire
planning process.
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DRAFT
The definition of a "first responder" must be clearly articulated from the onset, placing
heavy emphasis on response times and exposure to risks. First responders are fire and
rescue, emergency medical services and law enforcement personnel. This definition will
determine to a large extent the distribution of federal funds to local, state and federal
response agencies. To this end, it is imperative that funding for training and equipment
reach the local level where it is needed most. "
The inference of this statement is that fire departments as first responders are a key element in
the response to Homeland Security issues. In reality, Gilroy is not a prime target for Weapons of
Mass Destruction, but similarly is not exempt from them either. Moreover, Gilroy will be
expected to be a participant in regional or statewide response to incidents. There are training
implications contained within that relationship as well as opening the door up for possible grants
to the Department.
The good news is that the probability of a terrorist attack is very remote for most communities,
but the possibility of it occurring has placed new requirements on both fire and police
departments to have some planning components that address this issue. Moreover, because of
the fact that some anticipated threats involve weapons of mass destruction (WMD) places more
of an obligation upon fire agencies to be prepared to respond to support the efforts of a city or
town through mutual aid.
In the context of master planning a community, this is a fairly new issue. The implications of
this are not easily adapted into day-to-day activities for a fire department. Nonetheless,
consideration should be given to establishing a few key elements in the planning process. These
include:
. Assuring that fire personnel are adequately trained in WMD
. Developing plans for interoperability between public safety agencies
. Have adequate security safeguards for Fire Department assets
c. THE EFFECTS OF THE BUDGET DECISION-MAKING PROCESS ON THE FIRE SERVICE
The last several years has provided local government with a sense of concern over the stability of
funding sources. This last year was an excellent example of how difficult it is to project the
revenue sources for purposes of master planning. Negotiations have been underway for most of
the year trying to prevent the loss of revenue to local government. In addition, while there is a
settlement that has been agreed upon for this year, there is no guarantee that it will remain intact.
This factor alone should be a red flag of caution in predicting what actions will be economically
viable over the time period of this plan.
Effects of Recent ISO Rating of City
In December of 2002 The City of Gilroy received an ISO Report that indicated that the City
received a Total Credit of 62.55 points in the grading of the community. The population at the
time of the report was 43,000. As result of that finding, the City received an ISO Class of 4.
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DRAFT
Gradina bv the Insurance Industry
The Insurance Services Office (ISO) is an organization that prepares reports on local fire
defenses. The insurance industry evaluates a community's risks when setting their rates. Once
ISO has completed their assessment and accompanied report, they sell the information to
insurance underwriters for use in rate setting. The system they use has ten different public fire
protection classifications, which define the various levels of public fire protection. Property
insurance premiums are sometimes based on the insurance classification rate and the type of
occupancy asking for the insurance. Notably, life safety issues are not considered in this
evaluation system, and the Fire Department section of the evaluation does not include a review
of public education activities or fire prevention.
The ISO report rates a city by ten class categorizations. A Class One rating is considered to be
the best rating. The ISO publishes a document titled "Fire Protection Rating Schedule" that
provides a list of those features that have a significant influence on minimizing damage once a
fire has started. There are three components evaluated in the ISO's grading, they are: (1) Fire
Department, (2) Water Supply, and (3) Communications. The components are analyzed
individually and collectively. Each component is rated on its own merit and then in comparison
to the other two. Large disparities between components can result in "divergent point" penalties.
This occurs, for example, when the fire department and water supply sections ratings differ by a
large number of points. It is of little benefit to have a fire department that is extremely capable
of fighting fire when there is no water supply to apply on the fire, or vice versa.
Commonly, a city will have a different grading than the fire department because the overall score
is only determined after evaluating all three components. The public fire protection class given
to the city is based on the percentage of credits that the city earns in the evaluation process as
follows:
Class Percent
1 90% or more
2 80% to 89.99%
3 70% to 79.99%
4 60% to 69.99%
5 50% to 59.99
6 40% to 49.99%
7 30% to 39.99%
8 20% to 29.99%
9 10% to 19.99%
10 0% to 9.99%
Receivina and Handlina Fire Alarms
This section of the Fire Suppression Rating Schedule reviews the facilities provided for the
general public to report fires, and for the operator on duty at the communications center to
dispatch fire department companies to the fires.
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DRAFT
1. Credit for Telephone Service (Item 414)
This term reviews the facilities provided for
public to report fires, including the listing of fire
and business numbers in the telephone directory.
2 Credit for Operators (Item 422)
This item reviews the number of operators on-
duty at the communication center to handle fire
calls.
3. Credit for Dispatch Circuits (Item 432)
This item reviews the dispatch circuit facilities
used to transmit alarms to fire department
members.
4. Total Credit for Receiving and Handling Fire
Alarms:
Credit
Actual
Minimum
1.70
2.00
0.99
3.00
1.75
5.00
4.44
10.00
Relative Classification for Receiving and
Handling Fire Alarms: 6
Fire Department
This section of the Fire Suppression Rating Schedule reviews the engine and ladder-service
companies, equipment carried, response to fires, training and available fire fighters.
Credit
1. Credit for Engine Companies (Item 513)
This item reviews the number of engine
companies and the hose equipment carried.
2. Credit for Reserve Pumpers (Item 523)
This item reviews the number of reserve
pumpers, their pump capacity and the hose
equipment carried on each.
3. Credit for Pump Capacity (Item 532)
This item reviews the total available pump
capacity.
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Actual
Minimum
5.36
10.00
0.80
1.00
5.00
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4. Credit for Ladder-Service Companies (Item 549)
This item reviews the number of ladder and
service companies and the equipment carried.
5. Credit for Reserve Ladder-Service Companies
(Item 553)
This item reviews the number of reserve ladder
and service trucks, and the equipment carried.
6. Credit for Distribution (Item 561)
This item reviews the percent of the built-upon
area of the City that has an adequately equipped,
responding first-due engine company within 1.5
miles and an adequately equipped, responding
ladder-service company within 2.5 miles.
7. Credit for Company Personnel (Item 571)
This item reVIews the average number of
equivalent fire fighters and company officers on
duty with existing companies.
8. Credit for Training (Item 581)
This item reviews the training facility and their
use.
9. Total Credit for Fire Department
Relative Classification for Fire Department
DRAFT
Credit
Actual
Minimum
1.00
5.00
0.63
1.00
1.96
4.00
5.99
15.00+
7.20
27.94
5
9.00
50.00+
+ This indicates that credit for manning is open-ended, with no maximum credit for this item.
Water Supplv
This section of the Fire Suppression Rating Schedule reviews the water supply system that is
available for fire suppression in the city.
1. Credit for the Water System (Item 616)
This item reviews the supply works, the main
capacity and hydrant distribution.
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Credit
Actual
Minimum
34.27
35.00
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DRAFT
Credit
Actual
Minimum
2. Credit for Hydrants (Item 621)
This item reviews the type of hydrants, and
method of installation.
3. Credit for Inspection and Condition of Hydrants
(Item 631)
This item reviews the frequency of inspections of
hydrants and their condition.
4. Total Credit for Water Supply:
Relative Classification for Water Supply
1.92
2.00
1.80
37.99
1
3.00
40.00
Feature Credit Maximum
Assifmed Credit
Receiving and Handling Fire Alarms 4.44% 10.00%
Fire Department 27.94% 50.00%
Water Supply 37.99% 40.00%
*Divergence -7.82%
Total Credit 62.55% 100.00%
The Public Protection Class is based on the total percentage credit as follows:
Class Percent
1. 90.00 or more
2. 80.00 to 89.99
3. 70.00 to 79.99
4. 60.00 to 69.99
5. 50.00 to 59.99
6. 40.00 to 49.99
7. 30.00 to 39.99
8. 20.00 to 29.99
9. 10.00 to 19.99
10. 0 to 9.99
The above classification has been developed for use in property insurance premiums in the city.
It should further be noted that this classification system does not have a great deal to do with
residential properties. The difference in Class rates are felt most specifically by the business and
industrial occupancies.
Divergence is a reduction in credit to reflect a difference in the relative credits for Fire Department and Water
Supply.
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DRAFT
What is important to note in this ISO Grading is the fact that the overall divergence between the
Fire Department and Fire Alarm and the Water Supply is almost one entire Class (See yellow
highlighted area) The Grading Schedule has been often maligned as an inadequate way of
measuring ac communities fire defenses. Yet, the reality is that most of the communities have
utilized the results of a grading as an indication of the overall capacity of the Department to
perform in preventing catastrophic losses.
Citygate would like to point out that process improvements in the area of Fire Alarm are in the
best interest of the Department overall. Furthermore, process improvements that seem to be
indicated in the area of Standards of Cover would also impact the grading in a positive manner.
These process improvements will be discussed in a later section of this Section.
D. OVERALL FIRE AND EMERGENCY SERVICES DIRECTION
The purpose of any fire protection delivery system is to minimize the risk of injury and fatality to
human beings and valued livestock and property losses due to fire through an efficient and
effective fire protection program. That is the overall goal of this department also
However, the speed of technological change is creating some difficulty in the decision- making
processes of organization to keep pace with that task. Fire protection is a quality of life issue.
Communities with high fire loss and extremely high response needs are often the ones that have
not invested in a total systems approach to fire protection. They may have lacked mitigation
through prevention, staffing to control incipient fire, or training for both the fire force and the
community .
It is also appropriate to note that fire protection is in competition with other infrastructure issues
in the community. Schools, highways, water systems, garbage disposal and law enforcement are
generally in a similar mode of growth at the same time. Balancing out risk with resources
requires constant assessment of the policy direction of the Fire Department.
Trends and patterns can be used to define a direction and to some degree a sense of incremental
change that can be projected short term. In the context of this document, the trends and patterns
have also been evaluated against the performance and professional standards used currently by
the Fire Department. Section II and Section III provide detailed information relating to these
activities. The information in these sections present basic findings used to form the foundation
of recommendations in this section.
General Issues
In the last Master Plan, Citygate proposed to the Task Force that there were six main issues to be
addressed by this organization over the time period of the plan. They were:
1) Risk Assessment Inventory
2) Fire Station Distribution and Concentration
3) Staffing
4) Maintenance of Level of Service
5) Management information systems
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DRAFT
6) Periodic Assessment of Performance
Over the last 5 years, this department has made significant progress in reducing these issues
through actions that have been taken. As noted in Section II of this report many of the original
recommendations were taken very seriously and implemented. However, the nature of fire
protection is such that these issues never really go away; they merely evolve into another level of
concern. For example:
1) The Department has done a very thorough job of creating a Risk Assessment system but
there is more data to be developed.
2) The issue of Fire Station Distribution and Concentration and availability of an Effective
Response Force is still a question to be answered
3) The issue of staffing has been impacted by the Arbitration finding which raises the costs
of operating a fire company
4) The level of service has been increased by the addition of staff and the adoption of the
Star program.
5) The Department has demonstrated significant improvements in management information
systems, but there is still work to be accomplished in conducting analysis of programs.
6) The issue of period assessment of performance is still present and will remain an issue in
the future.
What Has Not Happened
Citygate has seen major improvements in the management of the Fire Department's focus on
resolving issues raised in the first plan. There are two items that we were not able to determine if
major progress has been achieved. Hence, we have considered these for renewal in this updated
process. They are:
. Develop a career development guide that provides entry-level personnel with
general direction for acquisition of knowledge, experience, skill and abilities to
assure preparation for higher levels of responsibility.
. Develop plans and specifications for a local fire training facility. This is in order
to develop and maintain fire fighting, rescue, EMS and other skills over the time
frame of the Master Plan.
As noted in Section II, the current level of effort for providing fire protection is about $67.00 per
person. The Department has an additional fund that collects contributions to a capital outlay
fund from development processes, but the annual contributions are usually modest. If this trend
is continued, the implementation of these items will be based upon available funds and will take
most of the 20-year planning period to see total fruition.
Any incremental improvement in the level of effort would enhance the ability to see closure on
specific decisions.
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DRAFT
E. SPECIFIC POLICY CONSIDERA TIONS
Background and support documentation for these considerations are contained in the previous
three Sections. This Section identifies specific needs in these major areas that need to be
considered in determining ultimate outcomes. These issues are not listed in order of priority in
this section. Priorities have to be developed into formal action plans as the implementation of
specific items reach maturation. Funding, time frames, strategies and decisions will vary
according to facts that come into existence over the time frame of the Plan. In the Executive
Summary, these recommendations are listed in a framework that identifies who is responsible,
and approximately when they should become a priority. The Fire Chief and appropriate City
officials should consider and adopt actions to deal with the following decisions:
Program Enhancement
Citygate was asked to review and include in our analysis the capability of and/or the ability to
mobilize and use community-based resources for routine and disaster-related responses. This
task specifically asked if we would look at:
. Citizen emergency Response Teams (CERT) program
. Automatic Electronic Defibrillation AED) or Public access defibrillation (PAD)
program
. Other preparedness programs.
CERT Proarams
The concept of having the community involved in dealing with community wide disasters is not
a new idea. In fact, the basis for this concept in the American Experience goes back to the
colonial times where neighbor always helped neighbor. Over a long period of time, especially
with the development of community infrastructure such as fire and police departments, the
concept was eroded. Warfare has almost always served as an incentive to get the community
interested in their ability to cope when the infrastructure is weakened from damage itself. This
was the reason for the "Civil Defense" type of program that was used in the ear of the Cold War.
In California another reality has occurred. This state has an un-seemingly high occurrence of
natural disasters ranging from earthquakes, fire and floods. These events often overwhelm the
fire and law community too. As a result, there has been a re-cycling of the idea of neighbor
helping neighbor idea through the formation of programs that are neighborhood based. The
generic term is CERT. This stands for Community Emergency Response Team. In actual
practice, the communities that develop and utilize these programs often create more colorful and
innovative acronyms to describe their program. In actual practice, they are all pretty much the
same in concept
The Federal Emergency Management Agency witnessing the group of these programs in the
1980's created a body of knowledge to support the effort. Currently there is a complete program
located on the FEMA web site to create and maintain CERT programs. This site provides not
only organizational, but also educational materials. This program is also available in Spanish,
which considering the demographics of Gilroy, might be an important element of getting a
program off the ground.
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DRAFT
For additional information that is more specific on this program use the following Website:
. www.training.fema.gov/EMIWeb/Cert/
Citygate believes that this program would be of value in this City and therefore recommends that
the task of creating a CERT program be placed in the Goals and objective plan of the
Department for the next five years.
AED Proarams
It is common knowledge that emergency medical calls are the largest portion of the call
workload in almost every fire agency in the county. In those fire agencies that operate Advanced
Life Support, the community is usually very much aware of the consequences of the element of
time in assuring survivability from sudden cardiac arrest (SCA). One of the reasons the level of
knowledge is higher in these communities is that the very process of education the community to
adopt the program increase the awareness of the element of time in dealing with emergencies.
When a SCA occurs the victim is likely unresponsive, loses consciousness, stops breathing and
have no pulse. Most often when this occurs the victim is suffering from a heart rhythm disorder
called ventricular fibrillation. In this case, the victim needs CPR and de-fibrillation. This is
delivered in the form of a shock to correct the heart's rhythm. It needs to be given as quickly as
possible.
One has the right to assume that this is the task of the responding fire EMS forces. That is one of
the reasons for the deliverance of both Basic Life Support and Advanced Life Support efforts.
However, as already noted in the discussion of deployment analysis there is a built in delay for
the deployment of these resources. It could be as long as 6 or 7 minutes.
The Automatic Electronic Defibrillation (AED) program is designed to close that gap even more.
Public access defibrillation devices can be placed in public places where even laypersons can use
them. This program is already a stunning success story. Citygate will not elaborate upon this
other than to note that there are hundreds of articles in newspapers and magazine article where
the availability of an AED made the difference of saving or losing a life. When accompanied by
citizen CPR the use AED's has raised the survivor rates up to around 70%.
To begin an AED program there are two components. The first is to find an AED Instructor to
assist in the development of the capability to locate and use the devices. The second is to engage
in a public education program to locate facilities that would be likely places for SCA to occur
and would have personnel on the scene that could be trained in CPR and the use of AEDS.
Citygate contacted the AED Instructor Foundation and found that there are many instructors in
the Gilroy area. The list is a dynamic list and changes from time to time; therefore, we are
suggesting that when this area of the report is evaluated that contact with the web site be made to
locate a current list.
. www.aedinstructorfoundation.org
In response to the update scoping requirement that requires consideration of this concept,
Citygate is supportive of the idea that an AED program would be an appropriate strategy for
consideration by the City and the Department. Not only is this program an effective life-saving
device, but the program also results in a stronger bond between the community and the
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DRAFT
Department. Citygate believes that the AED concept would also be likely to be a way of
building a better relationship with the business community
The professional literature on this topic suggest that the AED' s should be located in facilities
such as City owned buildings, areas of large public assembly, occupancies that have high foot
traffic, especially senior citizens, schools and churches.
Citygate recommends the development of an AED program as an action element in the
Department's Goals and Objectives
Citizen Corps
Many fire agencies are recognizing that we are living in a different world than we were prior to
September 11,2001. On January 29th of 2002 President Bush, in his State of the Union Address
announced the creation of a new program called The Freedom Corps. . It was designed to
increase the capacity of citizens and organizations to get involved in community preparation
efforts. A component of that program was called the Citizens Corps. This program's goal was
to improve the ability of communities to respond to natural and manmade disasters in order to
strengthen homeland security.
In a FEMA Advisory dated February 26,2003, Citizens Corps provided a document that lists the
benefits to local fire agencies to participate in the program. U.S. Fire Administrator Dave
Paulison encourages all fire agencies to participate in the process in this document also. He is
quoted as saying" When citizens come forward to offer their time and efforts, it is important they
experience a fire service committed to the Citizens Corps initiative. With each contribution
made by the citizens of the community, this Nation and its firefighters, will be that much safer."
This initiative is supported by the International Association of Fire Chiefs, The International
Association of Firefighters, The National Association of Fire Marshal's, and the National
Volunteer Fire Council. Further is has the support of the American Red Cross, the Salvation
Army, the Health Service professionals and the law enforcement community
In April 2002, President Bush issued a document entitled "A Guide for Local Officials: The
Citizens Corps" that outlines the method implementation of a local program.
Specific information can be found on this program at the following websites:
. www.citizencoros.gOV
. www.usafreddomcorps.gov
. www.usfa.fema.gov
On these websites, one can find resources that include how to join and how to implement a local
program, publications, Independent Study Courses, Safety programs for Children and
Organizational programs.
This program has already been acted upon in the local area. For example, in review of the
website Citygate was able to locate the following Citizens Corps Councils within 50 miles of
Gilroy
. Campbell
. Cupertino
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DRAFT
. San Mateo
. Milpitas
. San Jose
. Union City
There is also a State Citizens Corps Council that functions at the state level in California.
Even closer by there are specific applications that have been utilized by the City of Morgan Hill
PD. They have a medical Reserve Corps. The cities of Watsonville and Monterey have
Volunteers in Police Service as part of the Citizens Corps.
The Gilroy Fire Department would benefit from the creation of a program of this nature. It is
recommended that it be pursued in the context of the following goals and objectives orientation
for this department.
Impact of Large Buildings
Gilroy has experienced a growth factor of what are often called "big box" stores. These are
franchised stores such as Home Depot and others. The City has a desire to see these types of
businesses come into the community for economic reasons. Notably, the Fire Department and
the fire codes that are in existence have seen to it that these buildings are well protected with
state of the art technology, such as fire sprinklers and fire alarms. However, it is also true that
fires can and do occur in these large area occupancies and a response is required. This opens up
two different aspects of response. The first of these is a need to recognize that fires will still
occur within these structures and that the Department needs to have an operational capability to
deal with the various scenarios that emerge from that possibility
For example, while major fires do not often occur in these large occupancies when they do they
create two types of operational needs. The first is to deal with adequate ventilation of smoke
conditions and to deal with overhaul and salvage situations. Normally these two operational
duties are assigned to a truck or service company. The City of Gilroy does not have that
capability. The most recent IOS Grading of the City does recognize this need. As noted in the
following segment of the report, the Department is getting only one point out a possible five for
meeting these objectives.
Credit
Actual
Minimum
4. Credit for Ladder-Service Companies (Item 549)
This item reviews the number of ladder and
service companies and the equipment carried. 1.00 5.00
The Department has indicated that it is considering converting one of the engine companies into
a "Quint" type of apparatus that will help mitigate this need. A quint is a multi-purposes type of
vehicle that can provide both Engine Company and service or ladder service. Citygate is
supportive of the concept that the Department continue with this concept as it will mitigate
against the problems of lacking resources to deal with large-area buildings and will
simultaneously provide a response to the ISO assessment in the future. A recommendation has
been placed in the Action Plan Section of this Section
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Urban Wildland Interface
In the Section on Risk Assessment, the City has been defined as having an Urban-Wildland
Interface. The Department has budgeted for two Type 3 fire apparatus, which are designed to
provide initial attack on wildland fires. While these apparatus will be cross-staffed, they indicate
a direction of improving upon the cities ability to cope with these types of fires. What is not so
clear is whether the Department personnel have received the right amount or type of training to
deal with assignment. Nor were we successful in dealing the creation of a Critical Task Analysis
for wildland operations. There was not sufficient focus upon this competency to make any
difference in the effective response force discussion. A recommendation has been placed in the
Action Plan Section of this Section
F. REVIEW OF BASIC GOALS FOR FIRE DEPARTMENT
Most all fire departments subscribe to the idea that there are some basic goals to be achieved in
providing adequate and appropriate fire protection to a community. The following are the 10
BASIC GOALS that tend to cover most of the mission alignment required for any contemporary
fire agency to be a high performing organization
In a very short period of time, this department will be provided with a new Fire Chief and it is
assumed that the City will wish this fire officer to provide an aggressive and contemporary
approach to managing the Department. This following section is intended to support that
possibility
10 Basic Goals
1) The Fire Department should be organized, operated, evaluated and modified in
accordance with the policies established by the authority having jurisdiction.
2) The Fire Department should conduct and maintain comprehensive risk, hazard and
value assessment order to determine what resources, programming and activities must
be developed in order to provide the level of service for the AHJ.
3) The Fire Department should be provided with financial resources required to carry
out the program and activities required to meet its level of service adopted by the
authority having jurisdiction.
4) A Department-wide system of establishing goals and objectives consistent with the
Department's assigned roles, responsibilities and resources should guide the
implementation of departmental actions.
5) The programs, activities and events of the departments should be planned,
implemented, evaluated and modified based upon the adopted goals, objectives and
priorities established.
6) A planned, scheduled system should be maintained to acquire, maintain, replace,
remodel, renovate or disburse of the physical assets needed to house and deploy the
Department's facilities and fleet.
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7) A system of methods and measures should be utilized to hire, promote, retire and
provide benefits to the human resources assigned to provide staffing capacity to the
departments.
8) A system of providing staff with an appropriate training, education and skills
development program to a comprehensive exposure of all departmental members to
the necessary knowledge, skills and abilities to operate the Department's adopted
processes and hardware should be provided.
9) Resources should be deployed to provide necessary infrastructure and management
information system to support the capacity of the fire organization to carry out its
missions, goals, objectives, programs and activities.
10) The Fire Administration will continuously review management and administrative
policies in order to foster and maintain a progressive, dynamic and innovative
organization.
How Do These Goals Relate to the Gilroy Fire Department Today?
As program guidance, these 10 goals do not focus upon the activity that is required by the
leadership and management of the Department to be a strong contributor to the overall City
scheme of providing services to the citizenry. Therefore, Citygate proposes that the
following "Visionary Goals" be adopted as a part of this revised Master Plan. The purpose
of adopting these concepts is to provide guidance to the behavior of the Department in
becoming a more integrated part of City services
Visionary Goal 1
The Gilroy Fire Department should emphasis the strong sense of affiliation between the Fire
Department and the community that it serves by engaging in achieving the following:
Obiectives:
. Improve the effectiveness of communications with both internal and external
stakeholders. -
. Increase the Department's involvement and activity within the community.
. Respond appropriately to the needs of the diverse aspects of the community.
. Strengthen the commitment to customer service at all levels in the organization.
Visionary Goal 2
The Gilroy Fire Department should continue to develop organizational systems to foster open,
collaborative, and trusting environment that develops a strong sense of teamwork and mutual
respect within the Department and within the City by engaging in achieving the following.
Obiectives:
. Reinforce the mISSIOn, vIsIon and values of the Department throughout the
organization.
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. Establish an accountability system for internal communications between top level,
middle management and company officer leadership.
. Better communicate goals and objectives within the entire organization.
. Resolve the widespread perception of lack of trust in mid and upper management.
. Resolve any particular conflicts or negative relationships between union and
management leadership.
. Generate enthusiasm and commitment for internal stakeholder involvement.
. Improve the relationships between line and staff personnel.
Visionary Goal 3
Insure that the Department's resources match its organizational priorities and demands by
achieving the following:
Obiectives:
. Improve upon the use of technology and staff resources to insure both effective
and efficient operations.
. Maintain a cross organizational analysis of all workload elements to insure that
resources that are available are matched to departmental expectations.
. Provide an aggressive succession-planning program to develop the organizations
future leadership.
Visionary Goal 4
Provide efficient and effective business practices to operate the organization.
Obiectives:
. Improve the quality of information and its analysis (this would include data
collection, forecasting and long range focus)
. Develop and sustain an up to date inventory of standard operating policies and
procedures that drive the accountability of the organization.
. Assure compliance by the organization with applicable state and federal
mandates.
. Enhance the availability of information to control revenue and expenditures.
. Sustain and enhance the comprehensive and fleet management policy.
. Sustain and enhance the overall approach to reducing the fire problem to fire
prevention.
. Capture any opportunity to further decentralize management activities in the
Department through the use of delegation, technology and automation.
. Sustain the need for adequate space in other facilities to improve the effectiveness
and efficiency of the sub-organizations of the Department.
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Visionary Goal 5
Provide quality services.
Obiectives:
. Adopt a comprehensive set of performance objectives for the entire program
services listed in category 5.
. Continue to improve the quality of employee training and development, with an
emphasis on succession planning.
. Sustain and enhance opportunities of the mitigation of community risk through
planning processes.
. Enhance the relationship between the Department and community development to
contribute to a more collaborative construction of the regulatory environment.
Visionary Goal 6
Sustain a clear role for all members of the Department.
Obiectives:
. Sustain a clear and widely understood definition of what the roles and
responsibilities are on all levels of the organization.
G. GENERAL FIRE PROTECTION MANAGEMENT OBJECTIVES
The following are general fire protection objectives that are derived form contemporary "best
practices literature for fire agencies. These things should be accomplished to support the goals
of the Department. This list is an excellent guide to general objectives, but lacks specificity in
the day-to-day operations of the Fire Department.
1) An annual planning process should be maintained based on the development of the
Master Plan with an annual revision process based upon performance measures.
2) Supporting organizations representing both the public and private organizations that
constitute the system should be utilized. These roles should be jointly developed by
each organization and sustained through the revision process stated previously.
3) The annual budget should include current goals and objectives of the delivery system.
Objectives should be revised over time, and they should be consistent with and
support the service levels that were originally established in the Master Plan.
4) The management information system should be maintained and monitored by the Fire
Chief, Fire Department staff, City administration and major policy decision makers
with respect to evaluating and modifying the agencies programs based upon current
trends and patterns.
5) Monthly and annual reports of progress regarding the attainment of overall goals and
specific objectives should be prepared and distributed by the Fire Department
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6) Career development and promotional criteria should be maintained for each rank
within the fire agency based upon the job descriptions and the organizational needs.
7) The implementation of the Master Plan should occur at all levels of the Fire
Department through the chain of command utilizing project and program
management technologies.
Fire Suppression Objectives
"First alarm" resources, which would include personnel and apparatus, should be maintained
which are necessary to deliver the fire flow for each type of structure based upon the
construction type, occupancy class and building fire protection.
The Department should have a series of service level statements that indicate the concentration
and distribution of engine companies with respect to the element of time.
Performance Statement
1) The first in Engine Company should arrive at the scene of 90 percent of the calls for
emergency operations within four minutes (travel time) in the suburban areas. The
effective response force on a first in engine should include four personnel
2) In areas where there is more than a ten-minute response time from a fire station
alternative methods of providing fire suppression capability for new and existing
structures that includes such concepts as automatic sprinklers, fire retardant roofing,
smoke detectors and fire alarms systems should be incorporated.
3) Residential sprinkler systems should be required in all structures at the time of
construction in specific areas that are under served
4) The total fire suppression resources (personnel and fire apparatus) that are required on
any given risk are based upon the fire flow requirements for the type of structure and
occupancy.
Fire Prevention Objectives
This fire department has an active fire prevention program.
1) The most recent edition of state adopted model code should be reviewed and adopted
within the necessary period of its consistent with state practices.
2) The Plan review and construction site inspections process of all new developments
should be continued to assure compliance with the fire code.
3) All new occupancies should be designed with consideration for both evacuation and
fire control mitigation.
4) Each inspectable occupancy should be identified in a frequency matrix that maintains
compliance with the fire and building code requirements. This could vary according
to occupancy.
5) Built in fire protection and fire protection mitigation devices should be inspected and
tested in accordance with NFP A standards. Automatic fire detection and
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distinguishing system failures should not result because of failure to provide
preventative maintenance and testing.
6) The Department should always have a means of issuing citations and notification of
compliance that has sufficient amount of enforcement authority.
7) The Department should have a set of standards with regard to built in fire protection
that would include trade offs and building design freedom for use in the citywide
building and planning process.
8) The fire agency should continue with its "one stop" plan, check and permit process in
order to integrate activities of the building, planning and public works departments.
9) A fuel modification plan or urban wildland consideration should be developed in the
areas that would be classified as an interface area. The system should have a
mechanism for the incorporation of fees for service that provides funding for any
service level that is in excess of basic level of effort in the community. This would
include but not be limited to emergency medical services, hazardous materials and
other forms of service.
Fire Safety Education Objectives
1) A comprehensive fire safety education program should be continually implemented to
provide information to the public regarding fire protection and fire safety awareness.
2) A fire safety education program should be continually implemented within the school
system to provide information to youth. This should incorporate program planning
that would go from kindergarten all the way through the twelfth grade.
3) A CERT program should be developed and provided to commercial and industrial
occupancies to assist them in preparing and maintaining fire safety; homeland
security and disaster preparedness plans.
4) A program providing public education to areas that would be classified as dealing
with urban-wildland interface or fringe should be made available to residents of these
areas.
Fire Investigation Objectives
The cause of every fire should be determined and recorded in order to provide for analysis of the
emergency operations and program planning in the field of public education. This information
should be accurately geo-coded into the GIS database
Personnel should investigate suspicious and incendiary fires with special training in arson
investigation. Personnel should further investigate those that involve criminal activity with
special skills in arson investigation and prosecution.
Emergency Medical Services Goal
The overall goal is to minimize injuries and fatalities that are related to incidents requiring
emergency medical response. This involves a variety of responses ranging from basic life
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support (BLS) through advanced life support (ALS) up to and including interface with the
emergency medical services transportation delivery system.
EMS Objectives
1) The performance statement for an EMS call should be consistent with the same
requirements that are posted for fire response within this area.
2) Advance life support personnel should arrive at 90 percent of emergency medical aids
within 7 minutes and 59 of the re.ceipt of the call for assistance (travel time)
3) All firefighters, apparatus operators and company officers should maintain an EMT 1
D Certification.
4) An early defibrillation program AED should be incorporated involving law
enforcement and cooperation with large public assembly facilities.
5) A multi-casual medical emergency disaster plan should be maintained and used for
training exercises. The plan should be exercised at least once annually but in no cases
more than two years.
6) This plan should include a coordination of multiple agencies from fire services
however it should also incorporate law enforcement and ancillary occupations.
7) Public education program such as Citizen Corps should incorporate an emergency
medical self-help program for those residents outside of the normal response control
zones.
Hazardous Materials Control Goal
The goal of the hazardous materials program is to reduce the risks to persons and property and
the environment due to the production, storage, use or transportation of hazardous materials
within the jurisdiction. This goal would involve the enforcement of safety codes, the
maintenance of incident management control systems and response to both liquid and gaseous
discharges.
Hazardous Materials Control Objectives
1) The City's disaster plan should always contain a component of hazardous materials
incident planning.
2) A list of specific personnel trained and certified as hazmat first responders as required
in federal regulations should be maintained.
3) Personnel requiring special skills development should continue to be trained and
certified as hazardous materials technicians or specialist in accordance with available
curriculum and the current Santa Clara plan.
4) All occupancies that require hazardous materials business plans should be inspected
annually for code compliance and re-issuance of those permits.
5) Industrial and commercial occupancies that must report hazardous materials under the
provisions of statute shall do so in a timely fashion.
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6) The ordinance that has been adopted and developed to control Hazardous materials
should be evaluated once every three years to see if the requirements still meet
contemporary objectives and whether the funds are adequate for the program to
assure annual compliance.
7) Those occupancies that require hazardous materials business plans shall be in
compliance within one year of the issuance of their permit.
8) There should be a current plan for hazardous materials disposal for commercial and
industrial occupancies to avoid inappropriate or illegal disposal.
9) A commitment should be made to maintain current copies of hazardous materials
business plans from all occupancies that require having such plans.
10) A thematic layer that identifies the locations of these permitted occupancies should be
incorporate in to the GIS.
Training and Personnel Development
The goals of the training and personnel development program are to recruit, train and maintain
job knowledge, skills and abilities with personnel over their entire time in service. These
training programs should be consistent with the job knowledge, skills and abilities required to
allow the Fire Department to achieve its other goals and objectives.
1) Maintain minimum levels of knowledge, skills and abilities for entry level personnel
prior to their completing initial probation.
2) Establish training and education requirements for promotion from all ranks within
three years based upon progressive educational and training requirements.
3) Develop and implement a program of skills maintenance that is required for all ranks
to assure skills degradation is kept to the minimum. This should include officer
development and specialty skills.
4) Train and certify all firefighters to perform early defibrillation according to state and
country regulations.
5) Identify training facilities which should be created within the time frame of this
master plan to enable the Department to effectively conduct; basic training, multiple
company training evolutions, large volume water flow drills, basic hose lay
operations, ladder training, multiple story structural fire training, fire control live
fires, hazardous materials spill control.
6) Use the training records and reports and evaluation system to record the training and
educational activities and to evaluate the effectiveness of the company on a minimum
of an annual basis.
7) Objectives should be established to assure that minimum amount of training is
available in the fields of hazardous materials and emergency medical service to
comply with training and certification requirements.
8) An accident prevention and physical fitness program should be continually
implemented for all fire suppression personnel.
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Apparatus Maintenance and Replacement Goal
The goal of this program should be to assure that adequate and reliable emergency operations
apparatus is provide through efficient and effective maintenance and replacement programs.
1) All apparatus equipment should continually receive regularly scheduled preventative
maintenance programs based on the following criteria: daily, weekly and monthly by
apparatus operators.
2) Preventative maintenance review by specialized fire mechanical personnel according
to an annual schedule should be provided.
3) The apparatus replacement program should be continued to assure that vehicles have
an effective first line service and are replaced in a timely fashion. A period of time to
serve as reserves and a time frame for a vehicle to eventually be retired from the
community when they are technologically obsolete should be clearly established and
adhered to. This schedule should be based on an approximate replacement time on a
first line engine for fifteen years. Five years of reserve and out of the fleet by the end
of twenty.
4) The maintenance record system should be monitored annually to keep track of down
time for scheduled or unscheduled maintenance. The Department needs to keep track
of actual maintenance costs per vehicle. The types of repairs performed and
equipment inventory on each apparatus should be thoroughly documented.
Communications and Dispatch
The goal of this program is to assure that the communications services that are provided
accomplish both dispatch and communications maintenance which provides a high level of
performance and reliability for emergency operations.
1) To participate in a joint dispatch program currently provided by the police department
2) To institute a process improvement plan in the Communication center to address
deficiencies noted in the ISO review process
3) To provide direct radio communications with all of the responding fire service
agencIes
4) To provide for coordination and interoperability of radio communication with all
internal agencies of the City, i.e. police, public works and others
5) To provide maintenance program for radio equipment that will assure that equipment
is operational when required
6) To maintain a contract with some firm or agency, which will provide service and
technical support for the Department's communications equipment and programs.
Facilities Maintenance Goal
The Department's fire station facilities should be maintained in locations that best meet the
emergency response needs of the Department. All stations must be constructed to provide a high
level of resistance to natural disaster and should be maintained through continued cost effective
maintenance programs. The overall goal is to provide maximum longevity of facilities with
V-21
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minimum repair costs with a pleasing appearance that is compatible with the community with
which the station is located.
Objectives
1) All future Fire stations should be constructed with a high level of earth quake
resistance and should be provided with emergency electrical supplies and fuel
supplies which enable a fire station to operate independently for time period no less
than 72 hours.
2) All future fire stations should be equipped with automatic fire extinguishing systems
to assure that the fire station is adequately protected in the absence of the crews.
3) Existing fire stations should be retrofitted with sprinklers when 25 percent of the
station has been remodeled.
4) Major repairs should not be required to structures or building systems due to a failure
to provide established preventative maintenance.
5) An actual preventative maintenance program should be developed that outlines types
of inspections and the types of repairs that should be done on a station on a monthly,
annual and master plan basis.
6) A records reports and evaluation system should be established to identify the
maintenance activities and cost related to each departmental facility.
Disaster Planning
The Department should maintain a capability to mitigate the results of a major emergency or
disaster that would include the most efficient and effective coordination of local, regional, state
and federal resources.
1) The Department should provide an "all hazards disaster response" program that
utilizes the concepts of both incident command as well as community planning efforts
through the use ofCERTand Citizen Corps type programs.
2) The Department should continually review the distribution of information from the
Department of Homeland Security to determine grant eligibility.
3) The citywide disaster plan should be continually reviewed in cooperation with all
other agencies that contain information and/or resources that specifically relate to the
ability of the Department to perform under disaster conditions.
4) A disaster plan exercise should be conducted at least once annually in conjunction
with the City or County departments that participate in emergency operations.
5) Each fire station should be designed and maintained to serve as a
community/community contact/service point especially in the event of a wide spread
disaster.
6) The capability of the cities emergency operations center should be reviewed and
evaluated on a three-year basis.
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7) Educational programs should be developed and presented to neighborhood groups,
commercial, industrial and other types of occupancies to encourage individual
disaster preplanning and self-help response.
H. SYSTEM INTEGRA TION WITH OTHER DEPARTMENTS
Inter-City Relationships
The following recommendations relate to the relationship between the Fire Department and other
City departments and/or outside agencies. They identify goals that address functional overlaps
between the roles and responsibilities of the Fire Department and the roles and responsibilities of
other City departments and/or outside agencies. The objectives are presented to generate a
dialogue between the respective departments and/or agencies with the Fire Department to
develop a seamless process that addresses both the needs of the Fire Department and those of
other City departments and/or outside agencies as part of the Master Planning Process. Citygate
realizes that many of the practices of this City and the Fire Department already incorporate these
concepts and principles, but feel compelled to reiterate them so that they will not erode due to
lack of documented reasons to continue.
There are also many other components in the community that deal with providing fire protection
that is not clearly identified as Fire Department operations. These are best referred to as parallel
processes. This section identifies some goals and objectives for other agencies that are major
contributors to the community fire problem. The purpose behind this section of the document is
to articulate what their goals and objectives might be to provide support to the fire agency. The
Fire Department should encourage the adoption of the following goals and objectives within
other City departments and/or outside agencies.
They would include but are not limited to:
a. Water departments
b. Building departments
c. Planning departments
d. Public works departments
e. Environmental health departments
f. Law enforcement agencies
g. Ambulance providers
h. Public School Educational system
1. Communications
Building Department Fire Protection Goals
All structures will be constructed and maintained in compliance with building processes
and standards required by the City of Gilroy to minimize the risk to life and property due
to fire.
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Fire Protection Obiectives
1) The most current addition of the adopted building code should be maintained
withlocal amendments to meet the specific needs of City of Gilroy within the context
of a community's legal requirements.
2) The program of providing building construction plans to the Fire Department staff for
coordination, review and input prior to the building department's issuance of the
building permit should be maintained.
3) The approval process for final approval of construction and issuance of the certificate
of occupancy should be coordinated with the Fire Department.
4) Any building code changes adopted by the City of Gilroy within any revision cycle,
which affects a certificate of occupancy, should be coordinated between fire and other
municipal functions.
5) When occupancies have hazardous materials installations, the Fire Department should
be responsible for coordinating the issuance of the certificate of occupancy based on
hazardous materials permitting requirements.
6) Maintain the high level of coordination between building and Fire Department
personnel that exists with both entities.
Planning Department Fire Protection Goals
All new developments should be designed to minimize threats to life and property through
coordination and cooperation between the Planning and Fire Departments in implementing
the goals of the fire protection Master Plan. Fire Department involvement in development
ae:reements is essential.
Fire Protection Obiectives
1) Whenever the general plan safety element is updated, include relevant provisions of
the fire protection Master Plan.
2) The City planning commissions should continue to obtain departmental review and
approval of all proposed projects prior to map approval and issuance of a design
review conditional use permit. This is to assure that fire protection and hazardous
materials requirements are adequately considered in each project design.
3) Fire protection impacts and requirements should be identified and mitigated in all
proposed annexations, developments and zone changes prior to approval by the City.
4) GIS should be used to provide the Fire Department with digital information, which
may be rendered in various ways to produce hard copy maps for dissemination within
the Department. The availability and content of the digital information shall meet the
informational needs of the Fire Department and be consistent with both the GIS and
IT Strategic Plans.
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Public Works and Engineering Fire Protection Goals
Provide and maintain an arterial street and transportation system that will accommodate
the response of fire protection and EMS resources and provide an infrastructure to
support the Fire Department on major emergencies.
Fire Protection Obiectives
1) Requirements of fire protection/EMS response vehicles should be identified and
integrated into street and sign standards which include:
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Street widths.
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Lengths and radius of cul-de-sacs.
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Maximum street grades.
· Maximum angles of departure and design of streets and bridges to accommodate
fire apparatus.
2) Maintaining a system of signal light control by emergency vehicles is highly desirable
as a standard requirement for all new traffic signals.
3) The designation of street names and numbering of buildings should be coordinated
with the Fire Department.
4) The City and County Public Works Department should provide support to the
Department during major emergencies upon request by providing such resources as:
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Heavy equipment, i.e. bulldozers, front-end loaders, heavy-duty trucks.
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Sand, etc.
· Barricades for minor street emergencies, for major emergencies; street closures,
Fire Department orders barricades directly from barricade company.
5) The Engineering Department should coordinate with the Fire Department with respect
to updated information on stone grain maps.
Water Department Fire Protection Goals
Provide an adequate, reliable source of water for fire suppression operations that would
include both manual fire fighting and the use of automatic fire protection systems.
Fire Protection Obiectives
1) The design of any water system component should include provisions for fire flow to
meet the basic requirements based upon building size, construction and occupancy.
2) All water system extensions and modifications in those areas should be designed to
supply minimum fire flow and to provide adequate pressure to operate NFP A design
sprinkler systems.
V-25
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DRAFT
3) Minimum fire flow and fire hydrant distribution standards should be developed and
maintained by the district with respect to growth.
4) The designated department should conduct annual street valve testing and
maintenance programs.
5) A computerized management information system should be developed and
implemented to provide records and analysis of hydrant inventory maintenance, fire
flow, and testing and street valve maintenance.
6) Water companies and other utility companies should provide the district with the
most current water system maps that would include the following data:
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Water main size and locations.
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Fire hydrants.
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Street valves.
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Pressure zones.
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Fire flows.
· (If available, this should be provided in a GIS format)
7) Procedure should be established that would provide water department personnel to
respond to major fire incidents in which fire flows are at maximum.
8) There should be a joint memorandum of understanding between the water department
and the Fire Department with respect to guidelines related to the modification and
installation of automatic sprinkler systems with respect to the requirement for
backflow devices and any change in water pressure that will affect performance.
9) There should be a published schedule of water system connection fees. These will
include but not be limited to: new construction fees and cost limited direct cost
recovery, periodic service fees which are limited to cost recovery of maintenance
inspection cost, fire flow system to develop minimum fire flows for specific areas.
Law Enforcement Fire Protection Goals
Law enforcement should support Fire Department activities in providing crowd and traffic
control, evacuation, criminal investigation support, protection in the field and coordination
of effort at the scene of emergencies.
Supportive Obiectives
1) Law enforcement officers who are on patrol should be encouraged to notify the
communications center of hazardous conditions that relate to fire and life safety,
including hazardous materials and/or emergency medical incidents.
V-26
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DRAFT
2) Law enforcement agencies should automatically provide traffic control and scene
security at the scene of emergency incidents in which firefighters are exposed to
traffic and/or human intervention.
3) Law enforcement officers should take responsibility to coordinate the evacuation of
persons exposed to injury in emergency incidents or disasters.
4) The Police Department should assist the Fire Department in the investigation and
prosecution of suspicious or fires.
5) The Fire and Police Departments should develop specific policy procedures for
handling hazardous materials, incidents, mass or multi-casualty events, and other
incidents where scene coordination between fire and police is critical to mitigation of
the emergency.
6) The Fire and Police Department should develop methods of radio interoperability so
fire and police field units to communicate with each other at the scene of major
emergencIes.
I. FUTURE DISTRIBUTION
The following map illustrates the City of Gilroy's Fire Response Zones as they currently exist.
Citygate has placed the fire station location as a theme on this map to illustrate that this map may
or may not have to be modified in the future to accommodate the overall response pattern to be
achieved at City build-out.
V-27
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DRAFT
This map illustrates the location of the stations in relation to the XXXXX
Legend
. Fire stations
r::t Gilroy City LImit
..,.,
V-28
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DRAFT
I!i Fire Stations
t::J Gilroy City Limit
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V-29
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DRAFT
J. FUTURE CONCENTRA TION
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Iii Rre StBtlons
t:J Glroy City limit
- 8 Minute TrllVeI Network
8 Minute Trave' Area
V-30
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DRAFT
I!i Rre Stations
t.::."J Gilroy City Limit
- 8 Minute Truel Network
8 Minute Concentration Density
K. FINDINGS AND RECOMMENDA TIONS
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DRAFT
L. SUMMARY
Citygate believes that the Gilroy Fire Department is a well-structured and very focused fire
service agency. It displays a great deal of professionalism in its activities and performance. The
Department should be commended for its track record of achievement and commitment. The
interview process revealed that Department members are knowledgeable and motivated.
This report has offered a number of recommendations that, if adopted, will assist the Department
in being prepared to keep pace with the changes in service demand and community expectation
over time. These adjustments cannot be dealt with all at once, but incremental adjustment over
time can accumulate to significant improvements in the Department's ability to provide quality
services to its citizens.
V-36
CllYGA TE ASS9CIA TES, LLC
. FOLSOM (SACRAMENTO)
MANAGEMENT CONSULTANTS.
. .
UPDATE OF THE FIRE
SERVICES MASTER PLAN
OF AUGUST 2000
FOR THE
CftYOP GLRoy'
AM'
Ai
",. A,".."l,,""..! ," _.,
final
VOLUME 2, ApPENDIX TO MASTER PLAN UPDATE
OCTOBER 2004
. .
.:. APPENDIX A: MAP ATLAS
.:. APPENDIX B: CRmCAL TASKING ExERCISE
.:. ApPENDIX C: LAFCO PRoposmoNS FOR PLANNING OF SERVICES
.--~:;="""
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.705 Gold Lake Drive, Suite 100 . Folsom, CA 95630 I I
6 38 · 3 1390 (InGftTE ftSS~(lftTlS. llC
(91 ) 355-1 5 or (800) 275-2764 . Fax. (916) 55- ilRf \, f!nRGiHY ,tRYi l',
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DRAFT
ApPENDIX A
GILROY FIRE DEPARTMENT
FIRE DEPARTMENT MASTER PLAN
MAP ATLAS
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DRAFT
GIS ANAL YSIS OF THE ROAD NETWORK
The method used to develop information on the degree of coverage a fire station can provide on
the road network is based upon Geographic Information systems (GIS) software. The system
used in this report was ArcView. Citygate utilizes both the 3.2 and 8.1 version of this software.
The analysis of the road network utilizes a commercial software package named "TeleAtlas,"
which provides data on street configuration, speed and direction of travel for analytical purposes.
Furthermore, in order to perform that analysis, a special software extension called "Network
Analyst is employed. Both Arc View and TeleAtlas are considered industry standards in
performing this type of analysis. The only two entities that are currently using this on a
widespread basis are Citygate and the IAFF's GIS group.
All maps in the Map Atlas were prepared using this software configuration. Travel speeds are
based upon reasonable and prudent road speeds as defined in contemporary traffic engineering
standards. Coloring of the streets and the creation of polygons identify the area where the road
network can be expected to provide access to an address on that network. The three different
colors that are used are green for areas that are within the adopted response time criterion, yellow
for the next 60-second interval and red for areas outside of that defined area. There are many
different models that can result in different polygons being created to answer various questions
such as what can happen when a road speed is increased, or new roads are added to the network.
In this study all reports are based upon the TeleAtlas files that were current as of December
2003.
It should be noted that these are theoretical travel times. The ability for a vehicle to traverse any
given section of roadbed is dependent upon many variables. These variables have been
identified in another section of the report. The report provides "best estimate" response time
polygon based upon the assumption that the apparatus is leaving the station and travels
continuously at the posted speed limit for each section of travel.
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DRAFT
ApPENDIX B
CRITICAL TASKING EXERCISE
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DRAFT
ApPENDIX B:
CRITICAL TASKING EXERCISE
STRUCTURAL FIRE RESPONSE
RESOURCE TASK LAPSE TIME
1. ENGINE ARRIVES AT SCENE 0:00:00
2. CAPTAIN Initial Size-up completed 0:01:04
and announced. Establishes
IC
3. CAPTAIN Dons SCBA report on 0:01 :28
condition completed.
Directs operations and
resources
4. FIREFIGHTER Attack and second line 0:01 :37
pulled
5. FIREFIGHTER Attack line charged 0:02:24
6. ENGINEER Assembles RIC tools near 0:03:03
point of attack entry.
Charges line 2nd line.
7. ENGINEER Dons SCBA 0:03:29
8. ENGINEER and Captain Advises Command that 2 0:04:10
assume 2 out out is in place
9. FIREFIGHTER Takes position on hose line 0:04: 10
(INTERIOR ATTACK) with Thermal Imaging
Camera. Ready for Entry
10. INTERIOR ATTACK Entry fire 0:05 :06
attack/rescue/primary
search
11. Back up line charge 0:10:44
Knock down 0:11:33
12. INTERIOR ATTACK Report on conditions and 0: 12:42
primary search reports
"Primary clear or rescue
report"
Appendix B-1
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DRAFT
RESOURCE TASK LAPSE TIME
13. "Two out" monitors Monitors entry and exit of
interior team progress all members. Ready to
respond for rescue if
necessary.
Salvage component of fire
attack
14. SECOND ENGINE ARRIVES AT 0:02:12
HYDRANT
15. ENGINEER Spot 15 feet past hydrant 0:02: 12
16. FIREFIGHTER Wraps hydrant using 360- 0:03:10
degree wrap. Signals
Engineer to lay supply line
17. ENGINEER Spots at pumping apparatus. 0:06:29
Pulls sufficient hose to
connect to pump inlet and
charges supply line.
18. CAPTAIN SECOND ENGINE 0:07:40
CAPTAIN ARRIVES
ONSCENE - Face to face
transition to IC (establish
ICP)
19. Advance and charge backup 0:09:41
line (safety or attack)
support search/rescue of
Primary Search
20. "Primary search clear" and 0:16:32
if applicable "Rescue
completed and all clear"
announced (for Primary
Search only)
21. CAPTAIN Dons SCBA
22. MEDIC/RESCUE ARRIVES AT SCENE 0:04:08
Appendix B-2
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DRAFT
RESOURCE TASK LAPSE TIME
If Medic/Rescue 81 on
scene before second engine
- Advance and charge
backup line (safety or attack
support search/rescue of
Primary Search
Assigned utilities 0:04: 10
Electrical secure 0:07:54
Gas secured 0: 11 :46
23. CAPTAIN Safety Officer established 0: 13 :46
24. FIREFIGHTER Assigned support function 0:11 :12
of ventilation
25. THIRD ENGINE ARRIVES AT SCENE 0:05 :04
26. CAPTAIN Assignment Ventilation 0:07:02
Group
27. First ladder in place 0: 10:52
28. Chain saw started on 0:14:09
ground
29. Chainsaw on roof and 0:21 :02
started
30. Roof cut open and 0:22:19
ventilation provided
31. Second ladder up to roof None
32. Protection line to roof for None
ventilation crew
33. Other assignments of
available on scene resources
Appendix B-3
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DRAFT
RESOURCE TASK LAPSE TIME
34. Secondary Search
completed and "Secondary
All Clear" announcement
35. Salvage and Overhaul
operations
36. INCIDENT COMMAND
(accomplished with
available resources)
37. Utilities reported secured 0:07:52
38. Fire reported knocked down 0:12:42
39. IC Staging established 0:14:48
40. IC Safety Officer established 0:15:05
41. PCFs available 0:19:03
42. IC Rehab established 0:20:15
Citygate was asked to witness this test and to view a videotape that had been produced to
demonstrate the concept. Our observations are that the physical test conducted to validate this
process was valid and that these time frames are a fairly accurate representation of the
performance to be expected of a full first-alarm assignment of the Gilroy Fire Department. We
did not feel that the videotape presentation was as easy to follow and did not provide accurate
time stamps for evaluation.
Appendix B-4
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DRAFT
VEHICLE RESCUE CT A
Resource Task Lapse Time
1. ENGINE #1 ARRIVES AT SCENE 0:00:00
2. Size-up by fire captain 0:00:15
3. Additional ambulance 0:00:15
resources requested
4. OT Car (# 1) cribbed to 0:00:15
support it on its side
5. Firefighter into Car#2 for 0:00:15
patient care
6. One firefighter into upright 0:00:45
car (Car#l) for patient
assessment
7. Rescue tools and patient 0:00:45
care equipment moved to
vehicle area
8. Foam line flowing onto fuel 0:02:41
spill
9. Cervical collar applied to 0:03:45
patient # 1 in Car# 1
10. Second firefighter into 0:04:15
Car# 1 for patient loading
Appendix B-5
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DRAFT
Resource Task Lapse Time
11. Second engine or ARRIVES AT SCENE 0:05:00
Medic/Rescue and Division
Chief
12. Face-to-face command 0:06:30
transition with Division
Chief
13. Hydraulic rescue tool pump 0:07:50
started
14. Windshield removed from 0:09:09
OT Car (#1)
15. Car#2 driver's door 0:16:26
removed
16. Roof cut and removed from 0:16:41
Car# I
17. Patient #2, Car #2 removed 0:17:34
by backboard
18. Patient # 1, Car # 1 removed 0:20:59
by backboard
19. Patient # 1 packaged, ready 0:21 :55
for transport
20. Patient #3, Car #2 removed 0:23 :25
from car by backboard
21. Patient #3 packaged, ready 0:23 :25
for transport
22. Patient #2 packaged, ready 0:24:53
for transport
24. Air Operations Establish LZ and
communication Air
Ambulance
Appendix B-6
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DRAFT
EMERGENCY MEDICAL SERVICES CRITICAL TASKS
STATEMS CALL
RESOURCE TASK TIME
1. ENGINE ARRIVES ON SCENE 0:00:00
2. Captain Scene safety
3. Full Crew At patient's side 0:00:42
4. Paramedic Assess level of conscious 0:00:45
5. Full Crew Position patient 0:01:04
6. EMT #1 CPR compressions begun 0:01 :40
(on going)
8. EMT #2 Ventilation with AMBU (on 0:01:59
9. Paramedic EKG monitor 0:02: 13
10. Paramedic Defibrillation # 1 0:02:45
11. EMT #2 Pulse check 0:02:50
12. Paramedic Defibrillation #2 0:03:06
13. Paramedic Pulse check 0:03: 11
14. Paramedic Defibrillation #3 0:03:27
15. Paramedic Pulse check 0:03:28
16. Paramedic ET Intubation 0:04:54
17. Paramedic IV established 0:07:34
18. Paramedic Epinephrine (1 st Med) 0:08:31
20. Paramedic Defibrillation #4 0:06:10
22. Paramedic Defibrillation #5 0:09:38
23. Paramedic Lidocaine # 1 0:10:35
24. Paramedic Defibrillation #6 0:12:02
25. Paramedic Epinephrine #3 0: 12:58
26. Paramedic Defibrillation #7 0:13:51
27. Paramedic Lidocaine #2 0:15:19
28. Paramedic Defibrillation #8 0:16:10
29. Full Crew Patient on backboard 0: 17:03
Appendix B-7
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. DRAFT
.
RESOURCE TASK TIME
.
. 30. PM & EMT #2 Transport patient 0:19:21
31. Full Crew Scene clean-up complete 0:33:36
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"n" Appendix B-8
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DRAFT
ApPENDIX C
LAFCO PROPOSITIONS FOR PLANNING OF
SERVICES
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DRAFT
ApPENDIX C:
LAFCO PROPOSITIONS FOR PLANNING OF SERVICES
IlFIRE SERVICE AREA COVERAGE
Locate build, and staff/ire stations to keep developed areas of the (a) City service area within
response time targets of 4 to 6 minutes for the first responding unit for emergency fire and
medical calls. Assuming an average travel speed of 25 miles per hour for units responding in a
"Code 3" mode (lights and sirens), maximum response distance for a station response area is
then in the 1.2 to 2.0 mile range allowing one minute following dispatchfor crew readiness and
"roll-out" and three to five minutes for travel to the scene.
RESPONSE TIME TO STRUCTURE FIRE - FIRST IN UNIT
Four to six minute response time for first responding unit for 80% to 90% of structure fire calls.
Response time targets are directly related to designing a fire protection system which can attack
structure fires prior to "flashover" - that point when all of the combustibles in a confined area
will ignite simultaneously as a result of temperature increase in a fire.
ENGINE AND AERIAL COMPANY STAFFING
3 people assigned as minimum staffing for both engine and aerial operations. In some
circumstances, this staffing can be adjusted where multiple units are dispatched as a company to
fires.
3-person company staffing has been shown to be the minimum level at which any engine or
aerial can effectively perform basic operations without additional assistance from other units
and decline in ability to provide service.
Response Time to Structure Fire - Full Structure Fire Response Including Personnel and
Apparatus Response to a Structure Fire
Deliver a minimum of 4 units (2 engines, a rescue and a truck) with at least 12 personnel with a
response time for all responding units of 12 minutes.
Response times for additional units is also important since the speed with which additional staff
resources can be delivered to the fire scene to accomplish fire control and suppression activities
impacts total ability to control fire spread.
Effectiveness standards generally involve the following related to delivery a full structure fire
response in 8 to 12 minutes of receipt of report of the incident at the communications center.
COMMAND SYSTEM FOR MAJOR FIRE AND EMERGENCY INCIDENTS
Battalion command staff and company officers trained in Incident Command System (ICS) or
comparable approach for structuring and exercising command and supervision at the fire or
emergency incident scene.
Appendix C-l
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DRAFT
This Includes periodic conduct of training exercises in ICS including incident simulation.
EMERGENCY MEDICAL SERVICES
Major trend across the United States to expedite ALS response by training and certifying engine
company personnel as Fire Fighter/Paramedics and providing ALS capabilities on first-in
engine company response units.
RESPONSE TIMES FOR LIFE THREA TENING EMERGENCY MEDICAL INCIDENTS
Response times for emergency medical calls for service as follows: (1) BLS (basic life support)
response within 4-5 minutes for 80% - 90% of calls; and (2) ALS (advanced life support)
response within 6-8 minutes for 80%-90% of calls. ALS response/service within 8 minutes has
been determined by the American Heart Association to significantly increase survivability of
heart attack victims.
SUPPORT itSELF-HELP" EMERGENCY MEDICAL SERVICE PROGRAMS
Implement and support citizen "self-help" programs in the emergency medical services area
such as locating defibrillations in high-risk areas and providing CPR training to community
residents and businesses.
FIRST LINE APPARA TUS LIFE CYCLE
Remove engines from first line status after twelve years' service and trucks after fifteen years.
ApPARA TUS MAINTENANCE
Clearly established/defined maintenance schedule and tasks for accomplishment by company
level personnel.
HARDWARE AND SOFTWARE
Computer Aided Dispatch (CAD) with automated geo-files and "run maps" / protocols for use
by the fire communications center.
On-board terminals in first response apparatus to provide visual display of dispatch/response
instructions and printout capability for run map/incident location.
EMERGENCY MEDICAL DISPA TCH
Dispatcher access to and training in soliciting information related to the emergency medical
incident and providing pre-arrival instructions to responding fire and EMS units. Includes use
of one of the systems (e.g. Clausen System), which provides structured questions and related
instructions for dispatchers to use in soliciting information and providing pre-arrival
instructions to responding units.
Appendix C-2
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DRAFT
INTER-AGENCY COMMUNICA TIONS COMPA TIBILlTY
Response units and field incident commanders can communicate directly with other fire agencies
in the event of mutual aid incidents, and with other public safety units like police officers.
NEW CONSTRUCTION PLAN CHECK AND INSPECTION
Dedicated fire specialists to review and analyze new construction/remodeling plans for
conformance with the Fire Code and the City's fire protection related codes and ordinances.
Field inspection of new construction and required fire systems by trained fire specialists
integrated with other construction inspections and successful completion required before
issuance of occupancy permit.
CODES AND ORDINANCES
Adopt and maintain most current version of the Uniform Fire Code.
COMMUNITY EDUCA TION PRACTICES
Maintain dedicated staff to coordinate function with on-going training and community interface
Programs are based upon local community experience and needs. Data systems are utilized to
identify specific community needs.
Programs are integrated on a regional basis
BUlL T-IN PROTECTION REQUIREMENTS
Require sprinklering in all new commercial/industrial occupancies and residential units.
Retrofit requiredfor commercial/industrial remodels exceeding 50% of value.
COORDINA TION WITH OTHER MUNICIPAL PLANNING AND LAND USE CONTROL UNITS
Fire prevention specialists located and work in conjunction with other development review staff
to provide customer convenience for applications and application instructions.
Fire prevention staffs participate as member(s) of application review teams and pre-application
conferences for major projects to ensure fire safety considerations addressed for all major
projects.
HAZARD INSPECTION AND CODE ENFORCEMENT
Property/Community Maintenance Involvement
At minimum, annual inspection of high-risk occupancies should be conducted by specialists.
Schedule annual fire safety inspections of all risk occupancies by companies. Central
coordination by fire prevention staff to ensure company inspections are completed.
Appendix C-3
Hn"
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· "n"
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DRAFT
Department is active in nuisance abatement of Property Management teams. Agency has
statutory role to play in such programs.
IN-SERVICE TRAINING FOR FIRE SUPPRESSION AND EMERGENCY MEDICAL SERVICES STAFF
Structured in-service training program for fire suppression staff assigned to response units to
include the following:
Annual training schedule clearly outlining training expectations by subject and hours devoted to
each.
Documented performance standards to be met by response personnel by position and type of unit
to provide a basis for company training and proficiency assessment.
Central monitoring of actual training provided and completed by companies to include centrally
maintained training records to document training provided and completed by all staff.
UNIT PROFICIENCY TESTING
AT minimum, semi-annual multi-company drills and proficiency testing in fire ground
techniqueslperformance.
DEDICA TED TRAINING STAFF FOR PROGRAM MANAGEMENT AND
Sufficient dedicated staff to develop, distribute, and ensure compliance with annual (or more
frequent master training schedule. Also, central maintenance/monitoring of training records.
Provision of training videos and other self-teaching materials for use in station level training.
RESERVE OR COMPARABLE PROGRAM TO TRAIN, QUALIFY AND ATTRACT FIREFIGHTERS
Formal program to provide opportunities for reserve or other firefighters from whom full-time
staff can be recruited.
LINE COMMAND SPAN OF CONTROL
Battalion Chief span of control in six to eight station range.
GOALS AND OBJECTIVES
Goals and Objectives are clearly articulated.
There is clear accountability for accomplishment of objectives
Records Management System exists and is sufficient to provide meaningful management
information.
Performance Measures are clearly identified and tracked on a regular basis.
Appendix C-4
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DRAFT
LEVEL OF MANAGEMENT
Organization "flattened" to reduce levels a/management involved in direct service delivery. "
Appendix C-5
"n"'
<n1tl1f 1Il'i'C1CIllS. U(
'ltl ttaIUIIO\fhIC!\
I, RHONDA PELLIN, City Clerk of the City of Gilroy, do hereby certify that the attached
Resolution No. 2004-94 is an original resolution, or true and correct copy of a city resolution,
duly adopted by the Council of the City of Gilroy at a regular meeting of said Council held on the
1st day of November, 2004, at which meeting a quorum was present.
IN WITNESS WHEREOF, I have hereunto set my hand and affixed the Official Seal of
the City of Gilroy this 4th day of November, 2004,
~ QJ~A~I
City Clerk of the City of Gilroy
(Seal)