The Alarm Has Sounded: A Descriptive Study of Performance Measures of Fire Department ESDs in Travis County Damon Fogley Applied Research Project damon.fogley @gmail.com Submitted to the Department of Political Science Texas State University-San Marcos In Partial Fulfillment for the Requirements for the Degree of Masters of Public Administration Fall 2014 Faculty Approval: _______________________________________ . Dr. Thomas Longoria, Ph.D. _____________________________________________________________________________ Dr. Emily K. Hanks, Ph.D. _______________________________________ Mr. Jason Alexander, MPA Abstract Purpose: The purpose of this research is to describe how the thirteen Emergency Service Districts (ESDs) in Travis County meet critical performance measures taken from national ISO, NFPA, CFAI and municipal benchmark standards. These recognized performance measures ensure effectiveness in protecting and preserving the life and property of citizens. Professional, scholarly and empirical literature was reviewed in order to determine “best practices” for the fire service. Fire service measures were divided into three descriptive categories: Fire (suppression) performance, staffing and training, and fire prevention. Thirteen ESDs in Travis County with varying budgets and sizes were evaluated. Methods: This study uses survey research, interviews and content analysis. A survey instrument was developed and distributed to all 13 ESDs in Travis County. A total of 10 surveys were completed followed by interviews with 15 ESD Chiefs, Commissioners, and various other emergency service administrators. Descriptive statistics were used to analyze the results of the survey. Findings: The majority of ESDs in Travis County are facing critical financial challenges and threats to their viability. The findings suggest that the fragmentation of ESDs in Travis County has played a significant role in the failure of the majority of ESDs to meet nationally recognized standards. 1 About the author The author, Damon Fogley, is a native Californian who moved to Texas during 2006 as part of his military career. He now resides in Kyle, Texas. He served as an officer in the US Army in the rank of Captain up until 2013 when he received an honorable discharge. He has 15 years in public safety, which includes 8 years of employment as a National Registry Paramedic for Austin-Travis County EMS, serving the residents of the City of Austin and Travis County communities. One of the stations he is currently assigned to is the Kennedy Station in Lago Vista, TX, which is within the jurisdiction of Travis County ESD #1 (North Lake Travis Fire Rescue). This research interest stems from his career as a paramedic in Travis County, during which time, he observed firsthand widely varying levels of performance amongst ESDs in Travis County (as compared to the Austin Fire Department, and furthermore, wanted to explore this discovery). Damon holds a bachelor’s degree in sociology and a minor in Spanish from California State University, Long Beach. Upon the successful completion of this project he will have earned a masters degree in public administration from Texas State University. Damon can be reached at: [email protected] 2 Acknowledgements A special thanks to the following people who have been instrumental to the success of this applied research project by dedicating time and effort to the data collection phase of this study: • Danny Hobby, Executive Director, Travis County Emergency Services Provided Travis County ESD financial and demographic data that was otherwise o difficult to obtain • Dave Herman, ESD #4 Commissioner Provided firsthand knowledge, anecdotal reference and insight to the ESD o problems that are faced in Travis County • Jesse Williams, Texas State Fire Marshal’s Office Provided Travis County ISO ratings that were otherwise difficult to ascertain o • Karyl Kinsey, Austin Fire Department Planning and Research Assisted with the compilation of ESD response time data and literature o pertaining to national response time standards • Ken Campbell, ESD #10 Commissioner Assisted by providing insight and knowledge with background data pertaining to o the history of ESDs in the State of Texas • Robert Bredahl, Battalion Chief, Austin Fire Department His fire service technical expertise was used to construct some of the survey o questions which in turn allowed for the compilation of meaningful and relative technical data I would like to also recognize and thank Professor Thomas Longoria, PhD, (Texas State University MPA program director), for his dedication and guidance which directly contributed to the success of this project. 3 Table of Contents List of Tables .......................................................................................................................................... 7 List of Figures ........................................................................................................................................ 8 Chapter 1: Introduction ......................................................................................................................... 10 History and Setting ................................................................................................................................ 11 ESD Population ...................................................................................................................................... 12 ESD Funding .......................................................................................................................................... 17 Research Purpose .................................................................................................................................. 21 Chapter 2: Literature Review ................................................................................................................ 22 Chapter Purpose .................................................................................................................................... 22 Performance Measures .......................................................................................................................... 22 Conceptual Framework .......................................................................................................................... 23 Fire Suppression Measures ................................................................................................................... 25 Response Times ..................................................................................................................................... 25 Equipment Readiness ............................................................................................................................ 30 Overall ISO PPC Fire Suppression Rating ................................................................................................. 32 Water Availability .................................................................................................................................. 34 Fire Extension ........................................................................................................................................ 35 Staffing and Training ............................................................................................................................ 38 Staffing .................................................................................................................................................. 38 Emergency Medical Services (Training) ................................................................................................ 43 Proficiency Training .............................................................................................................................. 45 Fire Prevention ..................................................................................................................................... 49 Education Activities ............................................................................................................................... 50 Inspection Activities .............................................................................................................................. 52 Investigation Activities .......................................................................................................................... 54 Chapter 3: Methodology ....................................................................................................................... 56 Chapter Purpose ................................................................................................................................... 56 Operationalization ................................................................................................................................ 57 Unit of Analysis ..................................................................................................................................... 67 Procedures: Online Distribution and Interview Process ......................................................................... 67 Human Subjects Protection.................................................................................................................... 69 4 Data Limitations.................................................................................................................................... 69 Chapter 4: Findings ............................................................................................................................. 71 Chapter Purpose ................................................................................................................................... 71 ESD Demographics ................................................................................................................................ 71 Call Volume ........................................................................................................................................... 72 Response Times ..................................................................................................................................... 76 Simultaneous Incidents .......................................................................................................................... 90 Equipment Readiness ............................................................................................................................ 92 CAFS ...................................................................................................................................................... 94 ISO Fire Suppression Rating ................................................................................................................... 96 Water Availability .................................................................................................................................. 97 Fire Extension ...................................................................................................................................... 100 Staffing and Training ........................................................................................................................... 101 Emergency Medical Services (Training) .............................................................................................. 109 Proficiency Training ............................................................................................................................. 114 Fire Prevention .................................................................................................................................... 117 Fire Inspection Activities ...................................................................................................................... 120 Fire Investigation Activities .................................................................................................................. 122 Chapter 5: Discussions and Recommendations: .................................................................................. 124 Chapter Purpose .................................................................................................................................. 124 Financial Constraints ........................................................................................................................... 124 Threats ................................................................................................................................................ 129 A Repeated Economic Downturn .......................................................................................................... 130 Annexation .......................................................................................................................................... 130 Cities Converting to a Municipal Fire Service ........................................................................................ 132 Recommendations ............................................................................................................................... 133 Increased leadership and accountability .............................................................................................. 133 Centralized Data Collection Systems .................................................................................................... 134 Consolidation ...................................................................................................................................... 135 Consolidated Systems .......................................................................................................................... 137 Different Public Safety Funding Models .............................................................................................. 138 LACoFD ................................................................................................................................................ 138 LVMPD ................................................................................................................................................ 141 5 Creation of Overlapping ESDs .............................................................................................................. 142 Add Automatic Aid Agreements ........................................................................................................... 143 Contract for Service ............................................................................................................................. 145 Grant Funding ..................................................................................................................................... 145 Revenues from fees ............................................................................................................................. 148 Sales Tax Revenues .............................................................................................................................. 149 Restructure Ad Valorem tax maximization laws ................................................................................... 151 Incident Billing ..................................................................................................................................... 152 Conclusion ........................................................................................................................................... 154 Recommendations for Future Research ................................................................................................ 155 Abbreviations and Reference List ........................................................................................................ 156 Bibliography ....................................................................................................................................... 161 6 List of Tables Table 1.1 ESD Organizations and jurisdictions ....................................................................15 Table 1.2 ESD Ad valorem tax rates .....................................................................................18 Table 2.1 Conceptual Framework .........................................................................................24 Table 2.2 NFPA staffing and response time recommendations ............................................28 Table 2.3 Fire extension in residential structures from 2002-2005 .......................................37 Table 3.1 Operationalization of the conceptual framework ..................................................58 Table 3.2 Survey questions pertaining to funding.................................................................62 Table 3.3 Definitions of measurable survey data ..................................................................64 Table 3.4 Research study participants ...................................................................................68 Table 4.1 ESD Demographics ...............................................................................................72 Table 4.2 CFAI response time standards by demand zone ...................................................80 Table 4.3 NFPA response time standard (NFPA 1720) ........................................................83 Table 4.4 Travis County Mission Critical Fleet Tracking ....................................................93 Table 4.5 Class A foam use amongst Travis County ESDs ..................................................95 Table 4.6 Current and Previous ISO ratings for ESDs in Travis County..............................97 Table 4.7 2014 ISO water availability scores .......................................................................98 Table 4.8 Fire extension amongst ESDs in Travis County ...................................................101 Table 4.9 NFPA 1720 Minimum Staffing Requirements .....................................................103 Table 4.10 Travis County ESD firefighter injuries 2009-2013 .............................................117 Table 4.11 Travis County ESD Fire Prevention Programs ...................................................118 Table 4.12 Travis County ESD Fire Investigations 2013 .....................................................123 Table 5.1 Total ESD Revenues 2013 ....................................................................................125 Table 5.2 LACoFD Property Taxation Formula ...................................................................140 Table 5.3 Travis County ESD Grant Funding for 2011 fires ................................................146 Table 5.4 Travis County ESD sales and use tax rates ...........................................................151 Table 5.5 Solutions Model ....................................................................................................153 7 List of Figures Figure 1.1 ESD populations in Travis County ......................................................................13 Figure 1.2 Map of ESDs in Travis County and AFD............................................................14 Figure 2.1 Response Time Cascade ......................................................................................26 Figure 2.2 Fire Propagation Curve ........................................................................................36 Figure 2.3 AFD Fire extension .............................................................................................38 Figure 4.1 Overall ESD Call Volume ...................................................................................73 Figure 4.2 Annual ESD Call Volume 2010-2014 .................................................................74 Figure 4.3 ESD #2 Call Volume 2006-2013 .........................................................................75 Figure 4.4 90th Percentile Aggregate Response Times by Zone for Fire-rescue Incidents Only .................................................................................77 Figure 4.5 90th Percentile Aggregate Response Times by Zone for EMS Priority One and Two Incidents Only .......................................................77 Figure 4.6 2014 Aggregate ESD 90th Percentile Response Time Compared to AFD (fire-rescue incidents) ....................................................................78 Figure 4.7 2014 Aggregate ESD 90th Percentile Response Time Compared to AFD (priority one and two EMS incidents) .....................................................79 Figure 4.8 2014 90th Percentile Suburban Demand Zone Response Time with CFAI standards ....................................................................................80 Figure 4.9 2014 90th Percentile Rural Response Time Applied to EMS Priority One and Two Incidents with CFAI Standards.............................................81 Figure 4.10 2014 90th Percentile Suburban Response Time Applied to Fire-Rescue Incidents with CFAI Standard .......................................................................82 Figure 4.11 2014 90th Percentile Suburban Response Time Applied to Fire-Rescue Incidents with CFAI Standard .......................................................................82 Figure 4.12 2014 90th Percentile NFPA Urban Responses Time and Standard for EMS priority One and Two incidents ........................................................84 Figure 4.13 2014 90th Percentile NFPA Suburban Responses Times with Standard ............................................................................................85 8 Figure 4.14 2014 90th Percentile NFPA Rural Responses Time Standards for EMS Priority One and Two incidents ..................................86 Figure 4.15 2014 90th Percentile NFPA Urban response Time Standards for Fire-rescue Incidents .......................................................................................87 Figure 4.16 2014 90th Percentile NFPA Suburban Response Time Standards for fire-rescue Incidents ........................................................................................88 Figure 4.17 2014 90th Percentile standard for Rural ESDs Responding to Fire-rescue Incidents............................................................................89 Figure 4.18 2014 Travis County ESD Jurisdictional Response Area ...................................92 Figure 4.19 ESD #8 Water Availability ................................................................................99 Figure 4.20 2014 Urban Zone Minimum Staffing Levels and NFPA 1720 Standard ...........................................................................................103 Figure 4.21 2014 Suburban Zone Minimum Staffing Levels and NFPA 1720 Standard ...........................................................................................104 Figure 4.22 2014 Rural Zone Minimum Staffing Levels and NFPA 1720 Standard ......................................................................................................105 Figure 4.23 2013 Peak Call Volume in ESD #8 ...................................................................107 Figure 4.24 EMS Incidents Dispatched Within ESD #2 from 2006-2013............................110 Figure 4.25 Travis County ESD First Responder Medical Certification Level ....................112 Figure 4.26 ESD #8 2013 Rescue Specialty Training Program Types .................................115 Figure 5.1 ESD #6 Ten Year Revenue Growth by Year .......................................................127 Figure 5.2 ESD #2 Revenues as Compared to Expenditures 2009-2013..............................128 Figure 5.3 Gaps Between Call Volume and Revenues for all ESDs ....................................129 Figure 5.4 Sources of Revenue for the LVMPD ...................................................................142 Figure 5.5 ESD #6 Fire Inspection Revenues from 2004-2014 ............................................149 9