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Agenda 10/28/2008 Item # 5C Pane I of I ::0 L\nenda Item No. 5C October 2008 Page 1 of 61 COLLIER COUNTY BOARD OF COUNTY COMMISSIONERS Item Number: Item Summary: 5e Presentation by Rita Greenberg, President of the Collier County Fire Chiefs ASsOciation, presenting their final report on consolidation Meeting Date: 1012812008 90000 AM Approved By James V. Mudd County Manager Date Board of County Commissioners County Manager's Office 10/15/2008 6:53 PM -".-- filf'.fj('.\ A Pf'nn~Tf'<;t\ Fxnnl1\ 1 J .:; -Orjnhf'rol" '1())R % ')n'1nnR\()':; o/" ')nPR F"FNT A TI ON"\ .:;('\ 1 n/)7nnnR ColiUe;r Cowmty fire Chnef~~ AS)s[>>~i21t[0[l Big Corkscrew Island Golden Gate Ochopee City of Marco Island Immokalee Collier E.M City of Naples Isles of Capri Collier EMS East Naples North Naples Florida D.O.F Agenda Item No. 5C ,2008 of 61 October 1, 2008 Commissioner Henning: As President of the Collier County Fire Chiefs Association, I would like to request the opportunity for the Chiefs Association to present to the Board of Commissioners our final report on consolidation, at the October 28, 2008 meeting. This report in no means is the end all be all report, but it is the final leg of our in-house journey. Our next step, with concurrence from the Steering Committee and individual Boards, is to create a Request for Proposal (RFP). The RFP will be developed with all participating agencies and sent out for solicitation. It is our hope to have this information returned by the January 2009 Steering Committee meeting, for open discussion and reVIew. Upon confirmation of the presentation date, I will forward you and the other Board members an electronic version of the [mal report. Please realize that the presentation will be a power-point swnmary of the final report. If you have any questions regarding this matter, please do not hesitate to contact me. I will be out of the office, but will be available via email chief@bcifr.com. Respectfully, 9lita.M. ~ Rita M. Greenberg, President CCFCA Fire Chief, Big Corkscrew Island FR Cc: Board of County Commissioners County Manager, James Mudd Collier County Fire Chiefs Aoenda Item r~o. 5C .. October 28 2008 Page 3 of 61 Collier County Fire Chiefs Association Operations Committee Study Group Final Report Introduction Agenda Item No 5C October 28 2008 Page 4 of 61 On October 25th, 2007 the CCFCA charged the Operations Committee with the task of examining consolidation of the ten public organizations represented, with the focus to be primarily on whether consolidation could be accomplished Q.Perationally using existing assets, resources and personnel. Introduction /:\gendc; Item No 5C October 28 20Cl8 Page 5 of 61 The initial report was presented to the Fire Service Steering Committee on January 17, 2008 and to the Board of Collier County Commissioners on February 26, 2008. The Operations Committee was subsequently directed to complete the study by evaluating all remaining unstudied aspects. Introduction Agenda Item No. 5C October 28. 2008 Page 6 of 61 Areas studied in detail included: · Administrative structure · Organization funding · Emergency Medical Service · Training · Maintenance and Logistics · Fire Prevention and Inspection P refa ce l..genda Item I'-Jo. 5C October 28,2008 Page 7 of G1 · Fire/rescue and first response services are provided throughout Collier County collectively by nine (9) separate fire/rescue organizations · CCEMS provides emergency medical response and transport of medical emergencies county-wide · Some Fire/Rescue organizations have implemented advanced emergency medical response capabilities to support that of CCEMS · These enhanced services do not exist county- wide. Agenda Item No. 5C Oct0ber 28 2008 Page 8 of 61 Study Parameters / Assumptions · Use of existing vehicles, station structures, and personnel · Establish minimum safe staffing levels at 3 personnel for engines/pumpers, 3 personnel for aerials/trucks, and 3 personnel for EMS units · Initial apparatus placement will be determined by analysis of existing response pattern data. /..,qendri Item i"~c. 5C ~ O:totJer 2EL 2008 F'aae 9 61 Study Parameters / Assumptions · Each of the general functions of operations, emergency medical services, training, prevention and administration across each of the ten participant organizations will be consolidated under one respective branch. · The organization must be created as an independent district, free of oversight by the Collier County Board of Commissioners. Service Overview Agenda Item No. 5C October 28 2008 Page10of61 · The Study Group studied an alternate approach of service delivery. This approach requires a minimum Daily Staffing of 166 field personnel. · Implementation of priority medical dispatch standards will significantly improve efficient use of available medical resources throughout the county. Service Overview {Igenda !tcrr; I~o 5C October 20D8 Page 1 of 61 · All Fire Engines and Aerials will provide Advanced Life Support, thereby providing ALS care to the patient appreciably faster than the current system utilization. · Priority medical dispatch standards, and increased medic unit staffing, will reduce the numbers of response units being dispatched to a single medical emergency. Operations Branch Agenda Item No 5C October 28. 2008 Page 12of61 Operations Agenda Item No 5C Octeber 28 2008 Page 13 of 61 · Responsible for the management and coordination of all Fire Rescue and Emergency Medical Services (EMS) activities · Lead by the Assistant Chief of Operations, supported by: - Deputy Chief of Field Operations - Division Chief of Special Operations. Managing 3 divisions between them: Operations Agenda Item No 5C October 28,2008 Page 14 of 61 · South Division serves the southwest urban and southeast rural section of Collier County · North Division serves the northwest and northeast section of Collier County. · ~pecial Operations Division contains the District's special response units which respond county wide - Marine Fire Rescue - Hazardous Materials - Dive Rescue - Technical Rescue - Homeland Security / USAR - Disaster Management / Emergency Planning Operations Section Assistant Chief Operations I I c;c)!~; Deputy Chief; c c,~< '-;'Cipera'iions.' . I I South Division ~ - - - - North Division Battalion 1 EMS BIC J Battalion 2 EMS B/C Battalion 3 !- Battalion 4 EMS B/C J - - Battalion 5 - EMS B/C - Battalion 6 /qendc: I terr. hlo 5C '- Octo8er 28.2008 Page ~5 of !31 \ Division Chief Special Operations I Marine Ops Dive Rescue Hazmat I SORT Technical Rescue Homeland Security USAR Emergency Planning Disaster Management 24/7 Staffing Agenda Item No 5C October 28. 2008 Page 16 of 61 Minimum Staffing levels Battalion Chiefs (Fire/Rescue) 6 Battalion Chiefs (EMS) 4 Firefighters, Paramedics, Supervisors & 156 Helicopter Total 166 Positions above minimum levels will be distributed in accordance with a staffing plan designed to increase staffing levels on EMS Units and Fire Apparatus Discussion /\genja Jtem ~~c. 5C October 2e, 2008 PagE~ i 7 of 61 · Disparity exists between the current daily staffing of 151 personnel and the proposed staffing number of 166 · These numbers can be reconciled via relocation of duplicate fire and/or medic unit assets (ex. station 24/47) · There is an expected "push-down" effect in the senior command ranks which will support the staffing requirements Agenda Item No. 5C October 28 2008 Page 18of61 Administration Branch Administration Branch !\oenda Iten: l'Jo. fie ,~ Oct:)bcr 28 2008 Pnge 19 of 61 · Provides professional direction and administers fiscal and human resources programs and logistics support for the Fire Rescue Department · Lead by the Assistant Chief of Administration supported by two section Chiefs: - Deputy Chief of Administration - Deputy Chief of Logistics · Utilization of personnel currently performing like duties within the departments subject to consolidation can meet the requirements of this branch. Administrative Section Agenda Item No. 5C October 28. 2008 Page 20 of 61 Finance Division · Responsible for accounts payable and receivable, EMS billing, debt management, financial planning and financial reporting and payroll. · Serves as the liaison with County, State and Federal agencies regarding fiscal and economic issues. · Assures appropriate purchasing of goods / services and obtains technical expertise from appropriate Divisions to be included in contract documents. · Reviews and approves all p.o., requisitions and releases. Administrative Section !\oende, Item r'-Jo 5C , October 28 2008 Pags 21 of 61 Human Resource Division · Responsible for the administration of personnel services, including employee benefits, policy, processing the collective bargaining agreement, petiormance evaluations, recruitment and risk management. · Risk Management develops initiatives and directives designed to increase the measure of safety for firefighters and EMS personnel while at the same time reducing the fire district's exposure to risk. Administrative Section Agenda Item No 5C October 28 2008 Page 22 of 61 Administrative Services Division · Information Technology services · Customer Relations and Administrative Assistants are managed by this Division. · Public Information Officer (PIO) duties · Planning responsibilities -,.' .~._--_.... -. ... -"~~"" Administrative Section Agenda Item No 5C O:tober 28 2008 Page 23 of 61 Assistant Chief Administration Finance Division Human Resource Division Administrative Services Division Accounts Payable Accounts Receivable Collective Bargaining Risk Management Information Technology Planning Budget EMS Billing Benefits Policy Customer Relations Administrative Assistants Payroll Contract Administration Recruitment l Performance Evaluations J l Public Information J Logistics Section Agenda Item No 5C October 28. 2008 Page 24 of 61 The Logistics Division is structured in four groups: Fleet, Communications, Facilities, Supply. Fleet · Responsible for the repair and maintenance of the Districts fleet of apparatus and Medflight helicopter. · Consolidation will merge the various fleet maintenance capabilities, but may result in a deficit in repair resources if access to the county's repair facilities is not available for the medic units. Logistics Section /\genda Itern f\jo. 5C Os!ober 28. 2U08 PagE 25 of 61 Communications · Maintains the Districts communication equipment. · Serves as a liaison to the CCSO Communications Center evaluating radio performance, run cards, mapping, talk-groups, call intake and dispatch protocols. · Will provide skilled coordination of multiple emergency incidents for the first time within the Dispatch Center. Logistics Section I\genda Item No 5C October 28 2008 Page 26 of 61 Facilities · Implements capital construction program and provides maintenance of all assets.. · The size of the consolidated organization may provide economies of scale allowing hired full time mechanical technician employees, if there is a demonstrated economic advantage to doing so. Logistics Section l\C1enda hem hlo, 5C -- October 28. 2008 PagE: 27 of 61 fumQ!y · Centralized receiving center providing a more controlled inventory process. · Provision of strict economy in order and use of products and supplies. · The sheer size of the new organization \^Jill also provide benefits in the areas of buying power and economy of scale. Fleet Apparatus Helicopter Boats Specialty Vehicles Staff Vehicles Small Equipment Logistics Section Communications Facilities Dispatch Existing Facilities Mobile Data New Facilities Radios Phones Pagers Contract Services Agenda Item No. 5C October 28 2008 Page 28 or 61 Assistant Chief Administration Su pply Supplies Equipment Uniforms PPE Inventory EMERGENCY MEDICAL SERVICES BRANCH .!-\Qena2 Item No. 5C , October 28 2008 Page 29 of 61 Agenda Item No. 5C October 28. 2008 Page 30 of 61 Emergency Medical Services Branch · EMS Branch is lead by the Assistant Chief of EMS, supported by two Divisions. - Deputy Chief of EMS Administration - Deputy Chief of the Office of Medical Direction · Responsible for the planning and coordination of the District's emergency medical services. · Accountable for the medical and administrative direction of Advanced Life Support units staffed by state certified paramedics and emergency medical technicians. f\gencia Item I~c 5C O:::tober 28,2008 Page 3: of61 Emergency Medical Services Branch EMS Administration Division · Division manages the Public Information, Education and Relations (PIER) Office coordinating automatic defibrillator, CPR and CERT programs. · The Division analyses changes to community demographics and its affects within the District's operations. · An Infection Control Officer oversees the exposure control plan and investigates communicable exposures. Agenda Item No. 5C October 28 2008 Page 32 of 61 Emergency Medical Services Branch Office of Medical Direction · The District contracts with a physician who shall act as the Medical Director for the District. · This Division researches, develops and maintains medical protocol, equipment and treatment standards. · The Division maintains contact with the area hospitals and Trauma Centers in matters of quality medical control. · The Medical Director with staff reviews patient care reports and maintains medical quality assurance standards. /\genda item No. 5C Emergency Medical Services Br~n3t3h Assistant Chief EMS Medical Di rector PIER Infection Control Protocol Research & Development Assistant Medical Director Demographic Response Specialist Quality Assurance Quality Improvement Chief Pilot State Reporting Compliance Trauma Management Flight Operations Training Manager Pilots (3) Flight Mechanic Aaenda Item No 5C ~ October 28.2008 Page 34 of 61 -~ TRAINING & SAFETY BRANCH I\08ndcl Item No. 5C , Octcber 28, 2D08 Page 35 of 61 Training & Safety Branch · Responsible for the design, delivery, and documentation of all educational programs involving department personnel. · Managed by the Assistant Chief of Training, who is supported by the Division Chief of EMS Training and the Division Chief of Fire Rescue Training. · Responsible for all training provided including emergency medical curriculum, fire/rescue skills, vehicle and apparatus driving/operating, specialty skills, disaster management and emergency preparation. Training & Safety Branch Agenda Item No. 5C October 28 2008 Page 36 of 61 Assistant Chief Training L Fire Academy . I Division Chief Division Chief FIR Training EMS Training I I . . I I . . . Training Training Training Training Training Training Officer Officer Officer Officer Officer Officer I I I I I I Training Training Training Training Training Training Officer Officer Officer Officer Officer Officer /\oenda item No. 5C , October 28.2008 Page 37 of 61 FIRE PREVENTION BRANCH Fire Prevention Branch Agenda Item No. 5C October 28.2008 Page 38 of 61 · Provides fire prevention and inspection services aimed at reducing the incidence of injury, death, and property loss attributable to fire · Lead by the Assistant Chief of Fire Prevention supported by: - Deputy Chief of New Construction - Deputy Chief of Existing Buildings Fire Prevention Branch !\genda Item No. 5C October 2e. 2008 Page 39 of 61 New Construction Division · Responsible for inspections of all permitted, new commercial and multi-family structures and permitted renovations of the same. · Conducts hydrant flow tests to facilitate water flow calculations. · Manages the process of building permit review/ approval and site development review/ approval. · Will manage county-wide Fire Investigations and Public Education program. Fire Prevention Branch Agenda Item No. 5C October 28 2008 Page 40 of 61 Existing Building Inspection Division · Responsible for all existing structures with the exception of 1 and 2 family dwellings. · Conduct inspections for occupational licensing, annual inspections, complaints, schools, and state licensing inspections. · Provides information to Operations Branch and New Construction Division on changes of use to existing buildings. Fire Prevention Section )\genda Item hlo 5C October 28 2008 Page 41 of 61 Assistant Chief Fire Prevention Plans Review Inspections Inspections Fire Investigation Inspector / Contractor Training Public Education DISTRICT FUNDING DISCUSSION Agenda Item No, 5C October 28 2008 Page 42 of 61 f\gendo Item No 5C Octooer 28-.2008 District Funding Discussion",,,g,,, Assumptions · Funding requirements are based on the combined current operating and personnel expenses, FY 2007-08. · Impact fee income and expenditures have been excluded, except as they relate to debt service. · Current cash reserves are not utilized as funding sources. · The 2007 taxable property value for Collier County has been utilized as the base for ad valorem revenue computation. Agenda Item No. 5C October 28 2008 Page 44 of 61 District Funding Discussion Three funding mechanisms have been identified: · Ad Valorem · Non-Ad Valorem assessment · Fee for Services · A fourth mechanism would be a combination of any or all of these three options. · Ad Valorem revenue requirements would be approximately $90 million /\08,>:12, Item No 5C , October 28 2008 Page 45 of 6' SWOT Analysis · The study committee utilized a SWOT analysis which is a tool of strategic planning. (SWOT is an acronym for Strengths, Weaknesses, Opportunities and Threats.) · This method of analysis was used to identify the general strengths and weaknesses of this proposal, the opportunities created by it and the potential threats posed to, by, or resulting from it. Strengths · Adequate pool of extremely experienced and trained personnel t\genda Item No. 5C October 28.2008 Page 46 of 61 · Apparatus is modern and is currently well- maintained. There exist adequate facilities for service delivery · Proposal provides for a standard minimum safe staffing level county-wide which will also increase service levels in a number of areas · The elimination of district and political boundaries will result in a reduction of response times in some . service areas Strengths /\genda Item No 5C October 213 2008 Page 47 of 61 · Plan will yield a significant improvement in response time for ALS care. · Provides for manageable span of control across the new District, and flexibility for the expansion of the District in response to service needs · Provides for sensible strategic planning of future station locations and the provision of service in an efficient and effective manner. Result: capital . savings. Strengths Agenda Item No 5C October 28. 2008 Page 48 of 61 · Provides timely response of Special Teams · Imposes standardized training of all skills county- wide, yielding better trained personnel · Provides a unified communication system county- wide. · Standard Operating Guidelines, Standard Operating Procedures, and Uniform Ru les/Reg u lations. · Single Advanced Life Support medical protocol county-wide. Strengths Aoendc: Item I~o 5C ~ October 2D08 Page of 61 · Reduces duplication of service and creates efficiency in administrative services. · Reduces bureaucracy and improves communication between the service areas. · Increased purchasing power by virtue of District's size, yielding improved prices for everything from apparatus to employee benefits. · Savings in fuel use, capital costs for construction of new stations, capital costs for new apparatus, maintenance costs and repair/replacement costs. f\genda Item No. 5C October 28 2008 Page 50 of 61 Strengths · Results in relative parity in the millage rate assessed for services, and provides a more standard service throughout the County. · County-wide standard Fire Code interpretation and code enforcement. · The consolidated District will have a low average debt ratio. Weaknesses Aoenda Item No. 5C - October 28. 2008 Page 5, of 61 · Does not provide standard response times county-wide. · While a unified communication system can be created with this proposal the District will not have control of this system. · The minimum safe staffing levels assured in the consolidated District fall short of compliance with NFPA Standard 1710. · Current funding assumptions for this consolidated District rely upon ad valorem tax revenue, making the District vulnerable to swings in property values with resulting potential budgetary challenges. Weaknesses Agenda Item No. 5C October 28. 2008 Page 52 of 61 · Challenges posed by disparities in collective bargaining agreements between the different labor unions. · Perception of loss of control locally in certain segments of the County. · Service area size raises some concerns over the provision of adequate training for each of the employees. · Concerns for adequate staffing in the Logistics Division, resulting from current personnel who "multi-task" within their organizations. Opportunities Aoenda IteIT'. No. 5C - October 28.2008 Page 53 of 61 · The consolidated District can explore alternate revenue sources. · Potential for creation of a basic life support (BLS) transport service and/or a non-emergency transport service, which would more equitably and efficiently provide medical transport of patients not requiring advanced care. · The consolidated District will be able to realize economies of scale over time, as it studies service needs and amends policies to improve response. Opportunities Agenda Item No. 5C October 28.2008 Page 54 of 61 · Provision of NIMS-qualified supervision of all emergency dispatchers. · Creation of a District communication system. · Standardized fire prevention education efforts, focusing in those areas experiencing the greatest need. · Practical field training experience through the use of field training officers in Fire and EMS. Th reats p,genda Item ~jc 5C October 28 2008 Page 55 of 61 · Lack of stakeholder acceptance of this concept. · Proposed funding mechanisms may be criticized by taxpayer groups. · Pre-existing misconception that consolidation must demonstrate immediate cost -savi ngs. Th reats Agenda Item No. 5C October 28, 2008 Page 56 of 61 · Overall resistance to change may result in inadequate momentum to propel this concept forward. · Without a unified method for funding this new District, it cannot move forward. The disparate millage rates across the County create problems to this initiative. · Future tax reform initiatives may put implementation of this proposal at risk. f\genda Itern No. 5C October 28 2008 Page 57 of 61 Areas for Further Study · The political and legal authority to consolidate must be determined. · Elected civic leaders must determine whether they want their organizations to participate in this concept. Once determined, legal research will need to be performed to map the process necessary for consolidating the participating organizations. · The governing structure of the new consolidated independent district will need to be identified. · Specific funding mechanisms associated with consolidation will need to be further researched and selected. JIgenda Item No. 5C October 28. 2008 Page 58 of 61 CONCLUSION · Consolidation is a worthwhile goal if its intent is to reduce or eliminate wastefulness and promote the efficient use of existing personnel, infrastructure .~ and resources. · By-products of consolidation should include improving public service while providing enhanced safety to all emergency responders !\qenda Item No. 5C .. October :'8 2008 Page 59 of 61 CONCLUSION · The study group believes that tens of millions of dollars can be potentially saved over an unknown period of time through the cooperative means described in this study. · The cancellation of redundant or needless pending capital projects rendered unnecessary by consolidation would provide most of these savings. · More importantly, there is serious value in this concept. The markedly improved service provided by a consolidated district warrants consideration regardless of the anticipated monetary savings. Aqenda Item No. 5C .. October 28.2008 Page 60 of 61 CONCLUSION · The study group believes it is necessary to retain a consultant experienced in studying the legal exigencies of consolidation as well as the issues associated with its financing/funding. · This consultant should clearly be accountable to all the affected participant organizations of this study. J\oenda Item r-jo 5C ,~ October 28 2DD8 Page 61 of61 Closing It is now time to engage in debate over whether the concepts contained herein warrant support. This document is hereby presented to the Collier County Fire Chiefs' Association for its consideration.