AGENDA
Tuesday, July 26, 2022 6:00 P.M. Open Session
SPECIAL MEETING
CITY COUNCIL, AIRPORT COMMISSION,
MARINA ABRAMS B NON-PROFIT CORPORATION, PRESTON PARK SUSTAINABLE
COMMUNITY NON-PROFIT CORPORATION, SUCCESSOR AGENCY OF THE FORMER
MARINA REDEVELOPMENT AGENCY AND MARINA GROUNDWATER
SUSTAINABILITY AGENCY
Council Chambers
211 Hillcrest Avenue
Marina, California
Zoom Meeting URL: https://zoom.us/j/730251556
Zoom Meeting Telephone Only Participation: 1-669-900-9128 - Webinar ID: 730 251 556
In accordance with California Government Code §54953(e)(1)(A) and (C) and the Proclamation of a State of Emergency issued by Governor Newsom o n March 4, 2020, under the pro visions of Government Code §8625 related t o the COVID-19 (coronavirus) pandemic, consistent with recommendations by State and local health officials regarding social distancing and in order to prevent an imminent risk to the health and safety of attendees as determine d in Resolution 2022-94, public participation in City of Marina City Council public meetings shall be electronic only and without a physical location for public participation until the earlier of March 31, 2022, or such time as the City Counci l may adopt a resolution in accordance with Government Code §54953(e)(3). This meeting is being broadcast “live” on Access Media Productions (AMP) Community Television Cable 25 and on t he City of Marina Channel and on the i nternet at https://accessmediaproductions.org/
PARTICIPATION
You may participate in the City Council meeting in real-time by calling Zoom Meeting via the weblink and phone number provided at the top of this a genda. Instructions on ho w to acce ss, vie w and participate in remot e meetings are provided by visiting the City’s home page at https://cityofmarina.org/. Attendees can make oral comments during the meeting by usi ng the “Raise Your Hand” fe ature in the webinar or by pressing *9 on your telephone keypad if joining by phone only. If you are unable to participate in real-time, you may email to [email protected] with the subject line “Public Comment Item#__ ” (insert the item number relevant to your comment) or “Public Comment – Non Agenda Item.” Comments will be reviewed and distr ibuted before the meeting if received by 5:00 p.m. on the day of the meeting. All com ments received will become part of t he record. Council will have the option to modify their action on items based on comments received.
AGENDA MATERIALS
Agenda materi als, staff reports and background information related to regular agenda items are available on the City of Marina ’s website www.cityofmarina.org. Materials r elated to an item on this agenda submitted to the Coun cil after distribution of the agenda packet will be made available on the City of Mari na website www.cityofmarina.org subject to City staff’s ability to post the documents before the meeting
Agenda for Special City Council Meeting of Tuesday, July 26, 2022 Page 2
VISION STATEMENT
Marina will grow and mature from a small tow n bedroom community to a small city which i s diversified, vibrant and through positive relationships with regional agencies, self-sufficient. The City will develop in a way that insulates it from the negative impacts of urban sprawl to become a desirable residential and business community in a natural setting. (Resolution No. 2006-112 - May 2, 2006)
MISSION STATEMENT
The City Council will provide the leadership in protecting Marina’s natural setting while developing the City in a way that provides a bala nce of housing, jobs and business opportuni ties that will result in a com munity c haracterized by a desirable qualit y of life, including recreation and cultural opportunities, a safe environment and an economic viability that supports a high level of munici pal services and infrastructure. (Resolution No. 2006-112 - May 2, 2006)
1. CALL TO ORDER
2. ROLL CALL & ESTABLISH MENT OF QUORUM: (City Council, Airport Commissioners, Marina Abrams B Non -Profit Corporation, Preston Park Sustainable Communities Nonpr ofit Corporation, Successor Agency of the Former Redevelopment Agency Members and Marina Groundwater Sustainability Agency)
Cristina Medina Dirksen, David Burnett, Lisa Berkley, Mayor Pro -Tem/Vice Chair Kathy Biala, Mayor/Chair Bruce C. Delgado
3. MOMENT OF SILENCE & PLEDGE OF ALLEGIANCE (Please stand)
4. OTHER ACTIONS:
a. City C ouncil adopting a Resolution determining that the public interest and necessity demand the acquisition of a ladder truck and construction of certain municipal improvements, and their financing through the issuance of General Obligation Bonds and making findings relating thereto; and Introduce and hold a first reading of an Ordinance ordering the submission of a proposition incurring bonded indebtedness to the qualified voters of the City of Marina at the general municipal election to be held on November 8, 2022, for the purpose of financing the acquisition of a ladder truck and the construction of certain municipal improvement projects.
5. ADJOURNMENT:
CERTIFICATION
I, Anita Sharp, Deputy City Clerk, of the City of Marina, do hereby certify that a copy of the foregoing agenda was posted at City Hall and Council C hambers Bulletin Board at 211 Hillcrest Avenue, Monterey County Library Marina Branch at 190 Seaside Circle, City Bulletin Board at the corner of Reservation Road and Del Monte Boulevard on or before 6:00 p.m., Friday, July 22, 2022.
___________________________________
ANITA SHARP, DEPUTY CITY CLERK
Agenda for Special City Council Meeting of Tuesday, July 26, 2022 Page 3
City Council, Airport Commission and Redev elopment Agency meet ings are recorded on tape and available for public review and listening at the Office of the City Clerk and kept for a period of 90 days after the formal approval of MINUTES.
City Council meetings may be vie wed live on the meeting night and at 1 2:30 p.m. and 3:00 p.m. on Cable Chan nel 2 5 on th e Sunday following the Regular City Council meeting date. In addition, Council m eetings can be viewed at 6: 30 p.m. every Monday, Tuesday and W ednesday. For more information ab out viewing t he Counc il Meetings on Chann el 2 5, y ou ma y contact Acc ess M onterey Peninsula directly at 831-333-1267.
Agenda items and staff re ports are public re cord and are available for public review on the City's website (www.ciytofmarina.org), at the Monterey C ounty Marina Li brary Branch at 190 Seaside Circle and at the Office of the City Clerk at 211 Hillcrest Avenue, Marina between the hours of 10:00 a.m. 5:00 p.m., on the Monday preceding the meeting.
Supplemental materials received after the close of the final agenda and through noon on the day of the scheduled meeting will be available for pu blic review at the City Clerk’s Office during regular office hours and in a ‘Supplemental Binder’ at the meeting.
Members of the public may receive the City Council, Airport Commission and Successor Agency of the Former Redevelopment A gency Age nda at a cos t of $55 per year or by providing a self -addressed, stamped envelope to the City Clerk. The Agenda is also available at no cost via email by notifying the City Clerk at [email protected]
ALL MEETINGS A RE OPEN TO THE PUBLIC. THE CIT Y OF M ARINA DOE S N OT DISCRIMINATE AGAINST PER SONS WITH D ISABILITIES. Council Chambers are wheelc hair accessible. meetings are broadcast on cable channel 25 and recordings of meetings can be provided upon request. to request assistive listening de vices, sign language in terpreters, readers, large pri nt agendas or other accommodations, please call (831) 884-1278 or e-mail: [email protected]. requests must be made at least 48 hours in advance of the meeting.
July 22, 2022 Item No. 4a
Honorable Mayor and Members City Council Meeting
of the Marina City Council of July 26, 2022
CITY COUNCIL ADOPT A RESOLUTION DETERMINING THAT THE
PUBLIC INTEREST AND NECESSITY DEMAND THE ACQUIS ITION OF A
LADDER TRUCK AND CONSTRUCTION OF CERTAIN MUNICIPAL
IMPROVEMENTS, AND THEIR FINANCING THROUGH THE ISSUANCE
OF GENERAL OBLIGATION BONDS, AND MAKING FINDINGS
RELATING THERETO
CITY COUNCIL INTRODUCE AND HOLD A FIRST READING OF AN
ORDINANCE ORDERING THE SUBMISSION OF A PROPOSI TION
INCURRING BONDED INDEBTEDNESS TO THE QUALIFIED VOTERS OF
THE CITY OF MARINA AT THE GENERAL MUNICIPAL ELECTION TO BE HELD ON NOVEMBER 8, 2022, FOR THE PURPOSE OF FINANCING
THE ACQUISITION OF A LADDER TRUCK AND THE CONSTRUCTION OF
CERTAIN MUNICIPAL IMPROVEMENT PROJECTS
REQUEST:
It is requested that the City Council consider:
1. Adopting a Resolution determining that the public interest and necessity demand the acquisition of a ladder truck and construction of certain municipal improvements, and their financing through the issuance of General Obligation Bonds and making findings relating thereto;
2. Introduce and hold a first reading of an Ordinance ordering the submission of a proposition incurring bonded indebtedness to the qualified voters of the City of Marina at the general municipal election to be held on November 8, 2022, for the purpose of financing the acquisition of a ladder truck and the construction of certain municipal improvement projects.
A 2/3 vote of the City Council is required.
BACKGROUND:
At its July 6, 2022 meeting, the City Council directed staff to bring back to the Council for approval a $50 million General Obligation bond (“Bonds”) to be placed on the November 8, 2022 ballot.
This ballot measure would be to fund construction of a new fire station, acquire a ladder truck and construction of a police station/civic center/city hall community facility. The Council directed that an Oversight Committee be established if the measure passes, and the Bonds are issued, with an equal number of property owners and renters. Additionally, the Council asked staff to explore options for providing financial assistance should there be a need. Staff is continuing to review this request and will come back with a response to Council at another time.
Over the p ast couple years, the City of Marina (“City”) has held numerous public meetings evaluating unmet community facility, infrastructure, public safety and staffing needs and possible funding options and strategies to address these needs.
In 2019, Emergency Se rvices Consulting International (“ESC”) was hired to conduct a study evaluating the fire and emergency services provided by the City. This study was completed in June 2021 and a presentation was made before the City Council by the consultant. (EXHIBITS A & B).
A Community Priorities survey (“Survey”) was conducted in April 2021 prior to a City Council Budget Strategic Priorities Retreat. The Survey identified and ranked priorities in the City. (EXHIBIT C).
In October 2021, the budget for fiscal years 2021/22 and 2022/23 was adopted. As part of the budget process, many public meetings and hearings were held including reviewing the Survey. In these meetings, many unmet community needs were discussed. In adopting the budget, the City Council ranked, prioritized and funded some of the most important and urgent identified needs of the community which were able to be funded through existing revenue sources.
However, other community facilities, road and park infrastructure, public safety and new staffing needs were identified and discussed, which were not able to be funded due to insufficient revenue.
The City Council gave direction to staff to schedule a special study meeting to discuss these unmet needs and explore possible funding options, which may include a future ballot measure.
On January 25, 2022, a Special City Council study meeting was held to discuss unmet community facilities, infrastructure, publ ic safety and staffing needs and possible funding options and strategies to address these needs and provide direction to City staff. (EXHIBITS D & E)
Two priorities identified that are not able to be funded from ongoing revenues or other reserve funds are: 1 ) a new fire station to serve the Reindollar Avenue ne ighborhood, Abrams/Preston Park, Sea Haven, Dunes, and new commercial areas in the southern part of the City; and 2) a new police station/civic center/city hall facility.
ANALYSIS:
Police and Fire Facility Needs
The existing police and fire station was built over twenty (20) years ago. It was originally designed to accommodate a combined Public Safety model configuration and not the separate police and fire departments we have today. The current fire and police department staffing and the service demands of the public have exceeded the capacity and capability needs of the current facility. The current building, and its location, will not meet the future public safety needs of the community.
This building will require $3 – 5 million dollars in repairs in the near future just to keep the facility operational.
The fire and emergency services study conducted by ESC analyzed the City’s fire suppression, medical, and rescue operations; assessed the sa fety needs of the community; and identified hazards, risks, and challenges of the City. The study made key recommendations to address and improve the City’s fire, emergency medical and rescue services. Recommendation G was to relocate both fire stations to improve travel time coverage, as both stations are not well located to serve our growing community.
The National Fire Protection Association establishes standards for the fire service and one of the standards is a five (5) minute response time for medical emergencies and a five (5) minute and twenty (20) second response time for fire structural emergencies. While meeting this standard is not a requirement, it is a goal for a standard level of service. The average response time in Marina for an emergency medical call is 8:02 minutes and for a fire call is 10:03 minutes. The primary factor influencing this high response time is the location of our fire stations. To achieve th e five (5) minute standard will require a travel time for a fire engine fr om the station to the incident of four (4) minutes. Marina’s average travel times are 6:51 minutes for emergency services and 8:42 minutes for fire services.
The proposed new fire station is located at the corner of California Avenue and Imjin Parkway. A fire station at this location will meet the four (4) minute standard travel time needed for today and will be able to meet the four (4) minute response time needed for the future growth needs of all the southern area of the City. This station will also become the headquarter station of the City and will staff the fire chief and administrative staff and will be of sufficient size to house a fire ladder truck, which is also a critical need to be funded in the Bonds.
The Presidio of Monterey Fire Station which is currently located on General Jim Moore and Gigling Avenue will be closing next summer and relocating further away in Seaside or in Monterey. The City currently relies on this station for primary mutual aid back up . When it relocates further away, response times will increase.
The City also in 2021 explored with the City of Seaside the option of jointly building and staffing a fire station on border. A study was conducted by Citygate and it concluded that a fire station located on our border would not allow either City to achieve the desired four minute response time capability and created gaps in areas of both cities that would not achieve the needed response times.
The attached Exhibits show the influence of time on the growth of a fire and t he chances for survival with a life threatening medical emergency.
When cities incorporate, a fire station is typically located in the heart or center of the City so that adequate response times can be met. However, as cities develop and spread out, the fire station located in the center of the City, often is no longer able to provide adequate response times to the newly developed areas of the community. This is what is happening to Marina, particularly in the Dunes, Sea Haven and Abrams Park areas.
The plan is for a new headquarter fire station to be built at California and Imjin that is of sufficient size to accommodate a ladder truck. The small fire station out at the Marina Airport, will no longer be utilized and the existing fire station at Palm Avenue will continue to be utilized in the short term and will be able to provide the needed four (4) minute travel time coverage for the central and northern parts of Marina. However, when Marina Station starts to develop, a new fire station will need to be built in the Vince DiMaggio Park area. A station at this location combined with a new station at the California and Imjin location will provide a four (4) minutes travel time to all areas in the City of Marina.
City Hall, Community Center, Council C hambers, Community Development Annex Facility Needs
The current City hall and City council chambers are doubl e-wide trailers hooked together and installed when the City was incorporated in 1975. The original plan was these were temporary facilities while the city moved forward with building a civic center complex for City hall and other community facilities. These buildings are now over 45 years old and need significant maintenance, ADA updates, and repairs over the next five years just to be able to continue to be used. As the City has developed and City staff have grown over the years, the building space is not sufficient to accommodate existing and future staff needs. Additionally, with the new work environment changes that will be required to accommodate current and future Covid conditions, the existing space needs to be reconfigured to address safety needs for employees and the public.
The estimated cost just to address the minimum maintenance, ADA, repair and renovations needed to continue to work in these facilities is estimated at $7 million. This will leave a building that is still 45 years old that will not meet current and future space and staffing needs.
The City’s General Plan which was adopted in 2000. One of the main purposes of this Plan is to guide daily and long-term planning and development decisions by the City in a manner consistent with stated City goals. Section 2.99 of the Plan states, “On e of the primary goals of the General Plan is to bring together civic, commercial, cultural and recreational uses to create a center, or centers, to serve as a focus for community life and a source of community identity in Marina.” The General Plan identified three potential sites for a future civic center: 1) Locke-Paddon Park/ Marina Landing; 2) Expanded City Hall Site; and 3) Salinas Road Site.
The Salinas Road site is not feasible due to environmental issues and endangered species on the site. Expanding City Hall is not feasible because it would require acquiring additional commercial and residential properties adjacent to the site.
The Locke-Paddon site is the most feasible, especially since the library is built there. This site allows for the integration of city facilities and connections to Vince DiMaggio and Locke-Paddon Park. There is sufficient property at this site to accommodate a police station/civic center/city hall facility. Additionally, this property is adjacent to the Walmart commercial development and at the other end is at the entrance to the downtown area at the intersection of Reservation and Del Monte.
Funding Options
The State of California by law gives cities four primary tax revenue sources in order to operate and meet the se rvice demands, infrastructure and facility needs of their community: sales tax, property tax, transient occupancy tax (TOT, hotel tax) and utility users tax (UUT).
After Council consideration of these potential revenue sources, it was determined a General Obligation Bond is the only option to fund $50 million dollars to build new city facilities. The estimated cost for these facilities are:
1. Fire Station - $15 – 17 million ($625 per square foot)
2. Fire ladder truck - $1.5 million
3. Police Station/Civic Center/ City Hall - $30 – 35 million
General Obligation Bond Cost
A $50 million General Obligation bond is expected to levy a tax rate averaging $61.34 per $100,000 of assessed value. This bond is estimated to cost the average residential homeowner in Marina approximately $263 per year or $22 per month.
The ballot measure requires approval of two-thirds (2/3) of the voters.
Survey
The City hired Fairbank, Maslin, Maulin, Metz & Associates a public opinion research services firm, to conduct a community research survey to gauge community interest in a General Obligation bond measure and to obtain community feedback. Attached are the highlights of this survey. (EXHIBIT F).
Next Steps
Should the Council approve the first reading of the Ordinance then a second reading will be scheduled for the Council’s regular meeting on August 2, 2022. Assuming the Council approves the second reading, it would then take up a resolution placing the measure on the ballot. The Council may also consider actions related to primary and rebuttal arguments.
CONCLUSION
A General Obligation Bond if approved by two-thirds of the voters, would authorize the City to levy an ad valorem property tax on taxable property in the City to generate funds sufficient to pay the debt service on the $50 million bonds issued. It is anticipated that not all the $50 million bond would be issued at once, as the City first would move forward with hiring architects, designing the facilities and hiring the construction team prior to issuing the bond.
The City Council has also directed staff to hire a consultant to help with the education and outreach of facts and information to the citizens regarding the ballot measure.
Respectfully submitted,
___________________________
Layne Long
City Manager
City of Marina
RESOLUTION NO. 2022-
A RESOLUTION OF THE CITY COUNCIL OF THE CITY OF MARINA
DETERMINING THAT THE PUBLIC INTEREST AND NECESSITY
DEMAND THE ACQUISITION, IMPROVEMENT AND CONSTRUCTION
OF CERTAIN MUNICIPAL IMPROVEMENT PROJECTS, AND THEIR
FINANCING THROUGH THE ISSUANCE OF GENERAL OBLIGATION
BONDS, AND MAKING FINDINGS RELATING THERETO
WHEREAS, the City of Marina (the “City”) is a municipal corporation and charter city duly organized and existing under the Constitution and laws of the State of California; and
WHEREAS, the City is authorized to call an election for the proposition of incurring a bonded indebtedness and to issue such general obligation bonds to finance municipal improvements pursuant to certain provisions of the California Government Code, including Article 1, commencing with Section 43600, of Chapter 4 of Division 4 of Title 4 and Article 4.5, commencing with Section 53506, of Chapter 3 of Part 1 of Division 2 of Title 5 (collectively, the “Bond Law”); and
WHEREAS, the City intends t o issue its general obligation bonds (the “Bonds”) under and pursuant to the Bond Law to finance the cost of the construction of certain municipal improvements of the City to ensure 9 -1-1 emergency/medical/fire/disaster response and public safety and improve essential services by constructing a new fire station, acquiring a ladder truck, and constructing an earthquake-safe police station/civic center/city hall (the “Improvements”); and
WHEREAS, in order to initiate proceedings under the Bond Law to provide for the issuance of general obligation bonds, the City Council of the City (the “City Council”) must make certain findings and determinations.
NOW, THEREFORE, THE CITY COUNCIL OF THE CITY OF MARINA DOES HEREBY RESOLVE AS FOLLOWS:
Section 1. Recitals. The foregoing recitals are true and correct and are incorporated herein by reference.
Section 2. Declaration of Necessity to Issue Bonds . The public interest and necessity demand, and it is the intention of the City Council to require, the construction of the Improvements and the issuance of the Bonds to finance the cost thereof, subject to completion of the proceedings required by the Bond Law.
Section 3. Findings. The City Council hereby finds and determines that the estimated costs of the Improvements will require an expenditure by the City greater than the amount allowed for it by the annual tax levy of the City. The principal amount of the Bonds will not exceed the estimated cost of the Improvements.
Section 4. Issuance of the Bonds. This Resolution is adopted, and the Bonds, if approved by two-thirds of all qualified voters voting on the issuance of the Bonds, are to be issued pursuant to the Bond Law for the purposes of financing the Improvements. The maximum amount of bonded indebtedness to be incurred is $50,000,000, and the maximum term of the bonds to be issued shall in no event exceed forty (40) years.
Resolution No. 2022-
Page Two
Section 5. Appointment of Consultants . In connection with the proposed issuance of the Bonds and related election matters, the City Council hereby authorizes and ratifies the appointment of KNN Public Finance, LLC, as municipal advisor to the City, and Quint & Thimmig , LLP, as Bond Counsel and Disclosure Counsel to the City , and authorizes the City Manager to engage other consultants as may be necessary . The City Manager is hereby authorized and directed to execute, on behalf of the City, a professional services agreement with each such firm.
Section 6. Effective Date. This Resolution shall take effect upon its adoption by two-thirds of all members of the City Council.
PASSED AND ADOPTED by the City Council of the City of Marina at a special meeting held this 26th day of July 2022, by the following vote:
AYES, COUNCIL MEMBERS:
NOES, COUNCIL MEMBERS:
ABSENT, COUNCIL MEMBERS:
ABSTAIN, COUNCIL MEMBERS:
Bruce C. Delgado, Mayor
ATTEST:
Anita Sharp, Deputy City Clerk
ORDINANCE NO. 2022-
AN ORDINANCE ORDERING THE SUBMISSION OF A PROPOSITION
INCURRING BONDED INDEBTEDNESS TO THE QUALIFIED VOTERS OF THE
CITY OF MARINA AT THE GENERAL MUNICIPAL ELECTION TO BE HELD ON NOVEMBER 8, 2022, FOR THE PURPOSE OF FINANCING THE ACQUISITION,
IMPROVEMENT AND CONSTRUCTION OF CERTAIN MUNICIPAL
IMPROVEMENT PROJECTS
WHEREAS, under Sections 3, 5, and 7 of Article XI of the California Constitution and Section 1.01 of the City of Marina Charter, the City of Marina (“City”) is authorized to make and enforce all laws and regulations concerning municipal affairs and certain other matters. Pursuant to such authority, as well as the authority provided by the California Government Code and California Elections Code, the City Council proposes to order the submission o f a proposition authorizing the City to issue general obligation bonds (the “Bonds”) to qualified voters of the City at the general municipal election to be held on November 8, 2022; and
WHEREAS, the City’s existing police and fire station was built over twenty (20) years ago and the current building, and its location, is not sufficient to meet the current and future public safety needs of the community; and
WHEREAS, one of the priority needs of the City’s fire department is the acquisition of a ladder truck; and
WHEREAS, to improve the emergency/medical/fire/disaster response times and public safety, and to accommodate a ladder truck, the City requires a new and larger fire station; and
WHEREAS, the City intends to construct a new fire station , acquire a ladder truck, and construct a new police station/city hall/civic center and related community facilities (together, the “Improvements”); and
WHEREAS, on July 26, 2022, the City Council adopted, by a two -thirds (2/3) vote of all its members, a resolution entitled “Resoluti on of the City Council of the City of Marina Determining that the Public Interest and Necessity Demand the Acquisition, Improvement, and Construction of Certain Municipal Improvement Projects and Their Financing Through the Issuance of General Obligation Bonds, and Making Findings Relating Thereto,” pursuant to which the City Council has found and determined that the public interest and necessity demand the issuance of general obligation Bonds to finance the cost of construction of the Improvements; and
WHEREAS, to provide for the issuance by the City of general obligation Bonds to provide financing for the Improvements, it is necessary for the City Council to adopt an ordinance ordering the submission of the proposition to incur bonded indebtedness for such purpose to the qualified voters of the City at a municipal election; and
WHEREAS, the City Council desires to submit said ballot measure to the qualified voters of the City at the regular election to be held in the City on November 8, 2022, and to consolidate the bond election with other elections held within the City on that date.
NOW, THEREFORE, THE CITY COUNCIL OF THE CITY OF MARINA HEREBY ORDAINS, FINDS, DECLARES, DETERMINES, AND ORDERS AS FOLLOWS:
Section 1. Recitals. The foregoing recitals are true and correct, and are incorporated herein by reference.
Section 2. Call for Election. The City Council hereby orders that there be submitted to the qualified voters of the City a proposition on incurring bonded indebtedness (the “Bonds”) for the purposes set forth in this Ordinance, at the regular election to be held on November 8, 2022.
Ordinance No. 2022-
Page Two
Section 3. Ballot Proposition. The City Council hereby submits to the qualified voters of the City, at the regular election to be held on November 8, 2022, a proposition on issuing the Bonds in substantially the following form:
“To ensure 9 -1-1 emergency/medical/fire/disaster response and public safety and improve essential services by building a new fire station, acquiring a ladder truck, and constructing an earthquake-safe police station/civic center/city hall, shall the City of Marina’s measure authorizing $50,000,000 in bonds at legal rates, levying an average of $61.34 per $100,000 of assessed value, generating $2,960,000 annually while bonds are outstanding, requir ing public spending disclosure and oversight, be adopted?”
Section 4. Object and Purpose of Bonds. The object and purpose of issuing the Bonds is to finance the costs of the Improvements.
The Improvements shall include, without limitation:
A new and larger fire station that can accommodate a ladder truck;
Acquisition of a ladder truck; and
A new earthquake-safe police station/civic center/city hall.
Each of the Improvements listed above includes all work, facilities, and expenditures necessary and incidental to the projects described above. Examples of such costs for work, facilities, and expenditures include, but are not limited to: costs of design, engineering, architect and other profes sional services, inspections, site preparation, utilities, landscaping, construction management and other planning and permitting, legal, accounting and similar costs; a customary construction contingency; demolition and disposal of existing structures; rental or construction of storage facilities and other space on an interim basis for materials and oth er equipment and furnishings displaced during construction; interim facilities for municipal functions, including modular facilities; addressing unforeseen conditions revealed by construction or renovation, and other necessary improvements required to comp ly with existing building codes; environmental improvements to preserve energy and water; access requirements of the Americans with Disabilities Act; costs of the election; bond issuance costs; and project administration during the duration of such projects, as permitted by law.
The final costs, locations, designs, layouts and other details of the Improvements will be determined as plans are finalized, construction bids are awarded, and projects are completed.
Section 5. Estimated Cost of Improvements. The estimated cost of the Improvements is $50,000,000. The estimated cost includes legal or other fees, the costs of printing the Bonds, and other costs and expenses incidental to or connected with the authorization, issuance and sale of the Bonds.
Section 6. Principal Amount of Bonds. The amount of the principal of the Bonds shall not exceed $50,000,000.
Section 7. Maximum Interest Rate. The maximum rate of interest to be paid on the Bonds shall be the statutory maximum of 12% per annum. Said interest shall be payable semiannually, except that interest for the first year after the date of the Bonds may be made payable at the end of said year.
Ordinance No. 2022-
Page Three
Section 8. Tax Rate Statement. The City Council hereby directs the City Manager or the Finance Director to prepare a Tax Rate Statement to be filed with the Monterey County Elections Department as required by Section 9401 of the California Elections Code.
Section 9. Issuance and Sale of Bonds. The City proposes to issue and sell the Bonds pursuant to Article 1, commencing with Section 43600, of Chapter 4 of Division 4 of Title 4 of the California Government Code, or Article 4.5, commencing with Section 53506, of Chapter 3 of Part 1 of Division 2 of Title 5 of the California Government Code, in one or more series, in the maximum amount and for the objects and purposes set forth above if two-thirds (2/3) of all qualified voters voting on the proposition set forth above vote in favor ther eof. The Bonds will be general obligations of the City payable from and secured by ad valorem taxes levied and collected in the manner prescribed by the laws of the State of California. The revenue generated from the ad valorem tax levied and collected will be used for the payment of debt service on the Bonds. All of the Bonds shall be equally and ratably secured, without priority, by the taxing power of the City.
Section 10. Manner of Conducting Election. The election on the Bonds held on November 8, 2022 shall be held and conducted, election officers appointed, voting precincts designated, ballots printed, polls opened and closed, ballots counted and returned, returns canvassed, results declared, and all other proceedings incidental to and connected with the election shall be regulated and done in accordance with the provisions of law regulating the election with which it is consolidated, as specified herein.
Section 11. Procedure for Voting on Proposition. Ballots for the election shall be provided in the form and in the number provided by law. Voters shall be provided an opportunity to vote for or against the proposition on the ballot, in accordance with procedures to be adopted by the authorized officers of Monterey County charged with conducting the election.
Section 12. Accountability Requirements. In accordance with Sections 53410 and 53411 of the California Government Code, the City Council hereby adopts the following accountability requirements relating to the Bonds:
(a) A separate account shall be created and held by the City, into which the proceeds of the Bonds are deposited and applied solely for the purpose of financing the Improvements.
(b) The Finance Director of the City shall file a report with the City Council at least annually showing the amount of Bond proceeds collected and expended, and the status of the Improvements.
Section 13. Identification of Tax. The tax imposed by this measure is an ad valorem tax levied upon taxable real property in the City, and will be used to pay the principal and interest on the Bonds.
Section 14. Establishment of Oversight Committee. In the event the ballot proposition is passed by two - thirds (2/3) of all qualified voters voting on the proposition, and the Bonds are issued, the City Counci l shall establish and appoint members to an oversight committee, which shall have responsibility for reviewing and reporting on the expenditure of the proceeds of the Bonds.
Section 15. Official Actions. The Mayor, the City Manager, the Finance Director, the City Clerk, and any of their designees, are hereby authorized to execute any documents and to perform all acts necessary to place the bond measure on the ballot.
Ordinance No. 2022-
Page Four
Section 16. Publication of Ordinance. This Ordinance shall be published once a day for at least seven (7) days in a newspaper published at least six (6) days a week in the City, or once a week for two (2) weeks in a newspaper published less than six (6) days a week in the City. The first of said publications shall, in either event, be within fifteen (15) days after the adoption of this Ordinance.
Section 17. Projections. The City Council hereby finds that the estimates and projections contained in the Tax Rate Statement prepared in connection with the measure, and in the measure, have been made based on currently available information, but depend on a number of variables which are subject to variation.
Such estimates and projections have been made in good faith, and are n ot binding or intended to be limitations on the terms of the Bonds.
Section 18. Interpretation. The provisions of this Ordinance, being necessary for the health, welfare, and safety of the City and its residents, are to be liberally interpreted to carry out its purposes. No error, irregularity or informality, and no neglect or omission of any officer, in any proceeding taken related to the submission of the proposition incurring bonded indebtedness to the qualified voters of the City shall void or invalidate any such proceeding, any Bonds issued by the City or any levy of ad valorem taxes to pay principal of and interest on the Bonds.
Section 19. Severability. If any provision of this Ordinance or the application thereof to any person or circumstance is held invalid, such invalidity shall not affect any other provisions or applications, and to this end the provisions this Ordinance are declared to be severable.
Section 18. Effective Date. In accord with the Charter and Section 36937(a) of the California Government Code, this Ordinance shall become effective immediately, as an ordinance relating to an election, upon its adoption by two-thirds (2/3) vote of all the members of this City Council.
The foregoing ordinance was introduced at a special meeting of the City Council of the City of Marina duly held on July 26, 2022 , and was passed and adopted at a regular meeting duly held on August 2, 2022 , by the following vote:
AYES, COUNCIL MEMBERS:
NOES, COUNCIL MEMBERS:
ABSENT, COUNCIL MEMBERS:
ABSTAIN, COUNCIL MEMBERS:
Bruce C. Delgado, Mayor
ATTEST:
Anita Sharp, Deputy City Clerk
City of Marina
Fire Department
California
STANDARDS OF COVER:
DEPLOYMENT ANALYSIS
FINAL
EXHIBIT A
Standards of Cover: Deployment Analysis Amended 6/13/2021 City of Marina Fire Department, CA PAGE i
INTRODUCTION
The following report serves as the Marina Fire Department’s Standards of Cover and Deployment Plan. It follows closely the Center for Fire Public Safety Excellence (CPSE) Standards of Cover model that develops written procedures to determine the distribution and concentration of a fire and emergency service agency’s fixed and mobile resources. The purpose for completing such a document is to assist the agency in ensuring a safe and effective response force for fire suppression, emergency medical services, and specialty response situations.
Creating a Standards of Cover and Deployment Plan document requires that a number of areas be researched, studied, and evaluated. This report will begin with an overview of both the community and the agency. Following this overview, the plan will discuss topics such as community assessment, critical task analysis, agency service level objectives, and distribution and concentration measures. The report will provide analysis of historical performance and will conclude with policy and operational recommendations. ESCI extends its app reciation to the elected officials , business members, and community members of the City of Marina, the Marina Fire Department, and all others who contributed to this plan.
Bruce Carlos Delgado
Mayor
Frank O’Connell
Council Member
Gail Morton
Mayor Pro Tem
Lisa Berkley
Council Member
Adam Urrutia
Council Member
Standards of Cover: Deployment Analysis Amended 6/13/2021 City of Marina Fire Department, CA PAGE ii
TABLE OF CONTENTS
Introduction.................................................................................................................... i Table of Figures ............................................................................................................. v Executive Summary ....................................................................................................... 1 Description of Community Served ................................................................................... 2 Organization Overview ......................................................................................................... 2 Financial Overview ................................................................................................................ 3 Organizational Finance ...................................................................................................................... 3 City of Marina Fire Department .......................................................................................................... 4 Service Area Overview........................................................................................................... 5 Review of Services Provided ........................................................................................... 6 Staffing Information ............................................................................................................. 6 Resources as Currently Deployed ........................................................................................... 8 Apparatus ............................................................................................................................ 9 Review of Community Expectations .............................................................................. 10 Stakeholder Input ................................................................................................................ 10 Community Risk Assessment ........................................................................................ 17 Risk Classification ................................................................................................................ 17 Population Density ............................................................................................................. 19 At-Risk Populations ............................................................................................................. 23 Physical Hazards .................................................................................................................. 25 Earthquakes .................................................................................................................................... 25 Wildfires .......................................................................................................................................... 26 Severe Weather ............................................................................................................................... 28 Seasonal Winds ............................................................................................................................... 29 Floods ............................................................................................................................................. 29 Dam Failure ..................................................................................................................................... 30 Extreme Heat .................................................................................................................................. 30 Drought ........................................................................................................................................... 31 Technological (Human-Caused) Hazards ................................................................................ 33 Transportation ................................................................................................................................ 33 Physical Assets Protected ..................................................................................................... 35 Public Assembly ............................................................................................................................... 38 Child Care Facilities .......................................................................................................................... 39 Schools ........................................................................................................................................... 39 Hospital and Medical Care Facilities ................................................................................................. 41 Other Critical Infrastructure .................................................................................................. 42 Communications .............................................................................................................................. 42 Energy ............................................................................................................................................. 43 Water Distribution ........................................................................................................................... 43 Standards of Cover: Deployment Analysis Amended 6/13/2021 City of Marina Fire Department, CA PAGE iii
Structural Hazards .............................................................................................................. 46 Hazardous Materials ........................................................................................................................ 46 Buildings Three or More Stories in Height ......................................................................................... 48 Large Square Footage Buildings ....................................................................................................... 49 Comparison of Fire Risk in Other Communities ....................................................................... 50 Fire Loss .......................................................................................................................................... 50 Arson .............................................................................................................................................. 50 ISO Fire Protection Class Rating ....................................................................................................... 51 Community Risk Reduction .................................................................................................. 52 Fire Inspections ................................................................................................................... 53 Historical System Response Workload ........................................................................... 55 Temporal Analysis ...............................................................................................................56 Spatial Analysis .................................................................................................................. 58 Unit Workload Analysis ....................................................................................................... 61 Response Unit Workload .................................................................................................................. 61 Population and Incident Workload Projection ........................................................................63 Critical Tasking and Alarm Assignments ........................................................................ 64 Critical Task Analysis ............................................................................................................65 Alarm Assignments .............................................................................................................. 70 Review of Historical System Performance ...................................................................... 74 Detection ........................................................................................................................................ 76 Call Processing ................................................................................................................................ 76 Turnout Time ................................................................................................................................... 78 Distribution and Initial Arriving Unit Travel Time ............................................................................... 80 First Arriving Unit Response Time ..................................................................................................... 83 First Arriving Unit Received to Arrival Time ....................................................................................... 84 Concentration and Effective Response Force Capability Analysis ....................................................... 85 Second Unit Arrival Time.................................................................................................................. 89 Incident Concurrency and Reliability ................................................................................................. 89 Performance Objectives and Performance Measures ...................................................... 91 Dynamics of Fire in Buildings ............................................................................................... 91 Emergency Medical Event Sequence ..................................................................................... 94 People, Tools, and Time .......................................................................................................95 Overview of Compliance Methodology .......................................................................... 96 Compliance Model .............................................................................................................. 96 Phase 1— Establish/Review Performance Measures ........................................................................... 96 Phase 2— Evaluate Performance ...................................................................................................... 97 Phase 3— Develop Compliance Strategies ......................................................................................... 97 Phase 4— Communicate Expectations to Organizations .................................................................... 97 Phase 5— Validate Compliance ......................................................................................................... 97 Phase 6— Make Adjustments/Repeat Process ................................................................................... 98 Standards of Cover: Deployment Analysis Amended 6/13/2021 City of Marina Fire Department, CA PAGE iv
Overall Evaluation, Conclusions, and Recommendations ................................................ 99 Overall Evaluation .............................................................................................................. 99 Recommendations ............................................................................................................. 100 Recommendation A: Adopt response performance goals to guide service delivery improvement. ...... 100 Recommendation B: Reduce the time required to dispatch a fire incident. ........................................ 103 Recommendation C: Improve MFD response unit turnout times. ...................................................... 103 Recommendation D: Improve the efficiency of response to emergency medical incidents. ................ 103 Recommendation E: Explore cooperative service and consolidation opportunities. ........................... 104 Recommendation F: Add response units during periods of high incident activity. ............................. 104 Recommendation G: Relocate both fire stations to improve travel time coverage. ........................... 106 Recommendation H: Explore opportunities to reduce response workload. ......................................... 107 Recommendation I: Implement a quality control process for incident reporting fire loss data. ........... 112 Recommendation J: Conduct pre-incident plans for commercial buildings and target hazards. ......... 112 Recommendation K: Develop a fire inspection program for all commercial properties and multi -family occupancies. .................................................................................................................................. 112 Appendix A: Hazard Vulnerability Risk Tables .............................................................. 113 Appendix B: Fire Stations/Capital Assets ..................................................................... 119 Capital Assets and Improvements ....................................................................................... 119 Fixed Facilities ............................................................................................................................... 119 Facilities Summary ........................................................................................................................ 123
Standards of Cover: Deployment Analysis Amended 6/13/2021 City of Marina Fire Department, CA PAGE v
TABLE OF FIGURES
Figure 1: City of Marina General Fund Resources, FY 16/17 –18/19 Actual and Budgets for FY 19/20 and 20/21 ........................................................................................................................................................ 3 Figure 2: City of Marina Fire Department, FY 16/17–18/19 Actual and Budgets for FY 19/20 and 20/21 ..... 4 Figure 3: Fire Department Expenditures by Year, Actual FY 15/16–FY 18/19 and Budget FY 19/20 ............ 4 Figure 4: Location of Marina, CA .............................................................................................................. 5 Figure 5: Marina Fire Department Organizational Chart ........................................................................... 6 Figure 6: Administrative and Support Staff .............................................................................................. 7 Figure 7: Response Personnel by Rank ...................................................................................................... 7 Figure 8: Resource Staffing and Capabilities ............................................................................................. 8 Figure 9: MFD Fire Stations and Apparatus .............................................................................................. 9 Figure 10: Mutual Aid Resources ............................................................................................................... 9 Figure 11: Hazard Risk Summary ............................................................................................................ 18 Figure 12: Relative Community Risk ....................................................................................................... 18 Figure 13: Study Area Population Density ............................................................................................... 19 Figure 14: Population History, 2000–2018, .............................................................................................. 20 Figure 15: Demographics for the MFD Service Area, 2018 ...................................................................... 21 Figure 16: Marina Household Incomes, 2017 ........................................................................................... 24 Figure 17: Federally Declared Disasters, Jan. 1965–Mar. 2018 ................................................................. 25 Figure 18: Earthquakes Measuring 5.5 or Greater Within 50 Miles .......................................................... 26 Figure 19: MFD Study Area Wildland Fire Risk ........................................................................................ 27 Figure 20: Tornado Intensity, Enhanced Fujita Scale .............................................................................. 28 Figure 21: Marina Average Monthly Wind Speeds .................................................................................. 29 Figure 22: NWS Heat Index ..................................................................................................................... 30 Figure 23: Marina Average Monthly Temperatures ................................................................................. 31 Figure 24: U.S. Drought Conditions, February 2020 ................................................................................ 32 Figure 25: Marina Municipal Airport........................................................................................................ 34 Figure 26: Critical Facilities ..................................................................................................................... 36 Figure 27: Buildings Requiring Fire Flow over 3,000 GPM or More .......................................................... 37 Figure 28: Public Assembly Facilities ...................................................................................................... 38 Figure 29: School Locations .................................................................................................................... 40 Figure 30: Hospitals and Care Facilities ................................................................................................... 41 Figure 31: Marina Coast Water District Facilities ..................................................................................... 44 Figure 32: Fire Hydrants .......................................................................................................................... 45 Figure 33: Hazardous Materials Locations ............................................................................................... 47 Figure 34: Buildings Three or Four Stories in Height ............................................................................... 48 Figure 35: Buildings 25,000 Square Feet and Larger ............................................................................... 49 Figure 36: Fire Losses by Region and Size of Community, 2018 .............................................................. 50 Standards of Cover: Deployment Analysis Amended 6/13/2021 City of Marina Fire Department, CA PAGE vi
Figure 37: Arson Rate per 100,000 Population ........................................................................................ 50 Figure 38: Comparison of ISO Class Ratings, California ........................................................................... 51 Figure 39: The Community Risk Assessment Process ............................................................................. 52 Figure 40: IBC Occupancy Classifications ................................................................................................ 54 Figure 41: Response Workload History, 2010–2019 ................................................................................ 55 Figure 42: Responses by Type of Incident ............................................................................................... 55 Figure 43: Monthly Response Workload ................................................................................................. 56 Figure 44: Daily Response Workload ...................................................................................................... 56 Figure 45: Hourly Response Workload .................................................................................................... 57 Figure 46: Service Demand Density, 2019 .............................................................................................. 58 Figure 47: Fires, 2019 .............................................................................................................................. 59 Figure 48: Emergency Medical Incidents per Square Mile, 2019 .............................................................. 60 Figure 49: Response Unit Workload ........................................................................................................ 61 Figure 50: Average Time Committed to an Incident by Unit ................................................................... 61 Figure 51: Unit Hour Utilization, Engine 5411 .......................................................................................... 62 Figure 52: Staffing Recommendations Based on Risk ............................................................................. 65 Figure 53: Low-Rise Structure Fire .......................................................................................................... 65 Figure 54: Moderate-Risk Commercial Structure Fire ............................................................................. 66 Figure 55: High-Risk Commercial Structure Fire ..................................................................................... 66 Figure 56: Wildland Fire— Low Risk ......................................................................................................... 66 Figure 57: Wildland Fire— High Risk ........................................................................................................ 66 Figure 58: Aircraft Emergency ................................................................................................................ 67 Figure 59: Hazardous Materials— Low Risk ............................................................................................. 67 Figure 60: Hazardous Materials— High Risk ............................................................................................ 67 Figure 61: Emergency Medical Aid (Life Threatening) ............................................................................ 67 Figure 62: Major Medical Response (10+ Patients) .................................................................................. 68 Figure 63: Motor Vehicle Accident (Non-Trapped) .................................................................................. 68 Figure 64: Motor Vehicle Accident (Trapped) ......................................................................................... 68 Figure 65: Technical Rescue— Beach Rescue ........................................................................................... 69 Figure 66: Technical Rescue— Rope ........................................................................................................ 69 Figure 67: Technical Rescue— Confined Space ........................................................................................ 69 Figure 68: Low-Rise Structure Fire .......................................................................................................... 70 Figure 69: Moderate-Risk Commercial Structure Fire ............................................................................. 70 Figure 70: High-Risk Commercial Structure Fire ..................................................................................... 70 Figure 71: Wildland Fire— Low Risk ..........................................................................................................71 Figure 72: Wildland Fire— High Risk .........................................................................................................71 Figure 73: Aircraft Emergency ..................................................................................................................71 Figure 74: Hazardous Materials— Low or High Risk ..................................................................................71 Figure 75: Emergency Medical Service (Life Threatening) ....................................................................... 72 Standards of Cover: Deployment Analysis Amended 6/13/2021 City of Marina Fire Department, CA PAGE vii
Figure 76: Major Medical Response (10+ Patients) .................................................................................. 72 Figure 77: Motor Vehicle Accident (Non-Trapped) .................................................................................. 72 Figure 78: Motor Vehicle Accident (Trapped) .......................................................................................... 72 Figure 79: Technical Rescue— Beach Rescue ........................................................................................... 73 Figure 80: Technical Rescue— Rope ........................................................................................................ 73 Figure 81: Technical Rescue— Confined Space ........................................................................................ 73 Figure 82: Technical Rescue— Trench ..................................................................................................... 73 Figure 83: Summary of MFD Performance Goals .................................................................................... 75 Figure 84: MCEC Dispatch Time Performance ......................................................................................... 77 Figure 85: Call Processing Time by Hour of Day, 2019 ............................................................................. 77 Figure 86: Turnout Time Performance .................................................................................................... 78 Figure 87: Turnout Time by Hour of Day, 2019 ........................................................................................ 79 Figure 88: Initial Unit Four Minute Travel Time Capability ...................................................................... 80 Figure 89: Initial Unit Four Minute Travel Time Capability with Station 2 ............................................... 81 Figure 90: Travel Time Performance— First Arriving Unit ........................................................................ 82 Figure 91: Overall Travel Time and Incidents by Hour of Day— First Arriving Unit, 2019.......................... 82 Figure 92: Response Time Performance— First Arriving Unit .................................................................. 83 Figure 93: Hourly Response Time Performance, 2019 ............................................................................. 84 Figure 94: Received to Arrival Time— First Arriving Unit ......................................................................... 84 Figure 95: Hourly Received to Arrival Performance, 2019 ....................................................................... 85 Figure 96: Effective Response Force Performance .................................................................................. 86 Figure 97: Effective Response Force— Firefighters .................................................................................. 87 Figure 98: Effective Response Force— Apparatus, Low Rise Fire ............................................................. 88 Figure 99: Incident Concurrency ............................................................................................................. 89 Figure 100: Response Unit Concurrency ................................................................................................. 90 Figure 101: Fire Growth versus Reflex Time ............................................................................................ 92 Figure 102: Fire Extension in Residential Structures— United States, 2011–2015 .................................... 93 Figure 103: Cardiac Arrest Event Sequence ............................................................................................. 94 Figure 104: Six-Step Compliance Model ................................................................................................. 96 Figure 105: Incidents by Period of Day, 2019 ........................................................................................ 105 Figure 106: Probability of Wait— Current Response Units ..................................................................... 105 Figure 107: Probability of Wait— Single Response Unit ......................................................................... 105 Figure 108: Proposed Station Locations ............................................................................................... 106 Figure 109: Number of Incidents by Location ....................................................................................... 108 Figure 110: Facilities With 20 or More Incidents, 2019 ........................................................................... 110 Figure 111: Fire Station Condition Definitions ....................................................................................... 120 Figure 112: Marina Fire Department Station 1 & Administrative Offices ............................................... 121 Figure 113: Marina Fire Department Station 2 ...................................................................................... 122 Standards of Cover: Deployment Analysis Amended 6/13/2021 City of Marina Fire Department, CA PAGE 1
EXECUTIVE SUMMARY
This document describes the City of Marina Fire Department’s Standards of Cover and Deployment Plan.
Community risks, response resources, deployment strategies, and service levels have been evaluated in this study. It establishes response time goals and standards for measuring the ef fectiveness of fire department services and the deployment of its resources. The document is segregated into components generally based on the format recommended by the Center for Public Safety Excellence.
MFD serves a population of approximately 22,535 residents. It protects an area of approximately 10 square miles. The D epartment operates two fire stations utilizing seven response apparatus, including reserve apparatus. Emergency (9 -1-1) answering is provided by Monterey County’s Consolidated Emergency Communications Department (ECD).
The Insurance Services Office (ISO) reviews the fire protection resources within communities and provides a Community Fire Protection Rating system from which insurance rates are often based. The rating system eva luates three primary areas: the emergency communication and dispatch system, the fire department, and the community’s pressurized hydrant water supply. The overall rating is then expressed as a number between 1 and 10, with 1 the highest level of protectio n and 10 unprotected or nearly so. As of the latest survey (2019), ISO gave MFD a rating of Class 3.
The analysis completed during this study revealed a number of important findings. These include:
• There may be funding sources available to upgrade or expand traffic signal preemption. • There has been a large increase in alarm activations at CSUMB in 2019. • Inspections of apartment buildings are not occurring in accordance with the California State Fire Code.
• The Department lacks a defined schedule to complete inspections of all commercial occupancies. • Pre-incident planning is not occurring for all commercial and target hazard properties. • General Fund revenues have increased over the past few years and have improved significantly with the voter approval of additional sources of revenue. • An adopted, citywide capital improvement program, including the fire department, exists, however it appears funding is in sufficient to accommodate the needs of all of the City’s departments.
• The level of administrative support appears to be inadequate for an organization the size and complexity of MFD. The total response workload has increased by 51.4% over the 8 years. • Overall call processing performance during 2019 exceeded MFD’s performance goal. • During 2019, turnout time for fire incidents exceeds the Department’s performance goal. • Travel time for all incidents during 2019 exceeded the Department’s performance goal. • The minimum complement of 16 firefighters needed for a low -rise residential fire c annot be provided to any part of the city.
• Fire Station 1 is of an inadequate configuration and size for a shared facility.
Standards of Cover: Deployment Analysis Amended 6/13/2021 City of Marina Fire Department, CA PAGE 2
DESCRIPTION OF COMMUNITY SERVED
Organization Overview
Marina is a city in Monterey County, California, United States. The United States Census Bureau estimated its 2018 population at 22,535. Marina is located along the central coast of California, 8 miles west of Salinas, and 8 miles north of Monterey. Marina is also connected to Monterey, California, by California State Route 1, which also connects it with Santa Cruz, California, after driving for about 35 miles. Marina is at an elevation of 43 feet. Incorporated in 1975, Marina is the newest city on the Monterey Peninsula and home to the Fort Ord National Monument . The city includes part of the California State University, Monterey Bay (CSUMB) campus. In addition to CSUMB, the City has been developing the Dunes on Monterey Bay (“The Dunes”) , a mixed-use, diverse, planned community that encompasses 429 acres of former Fort Ord, located just east of Highway 1 and south of Imjin Parkway. The long-term development consists of multiple phases and is actively under construction.
The City Council is responsible for hiring a City Manager to oversee the day -to-day affairs of the City through various departments, including the fire department. A department director manages each City department or, in the case of the police and fire departments, a chief. A five-member City Council governs the City, which includes the Mayor . The Mayor is elected at large with the four other members being elected by district. The City Council is responsible for the enactment of local laws /ordinances, the adoption of the annual City budget and capital improvement program, and other policy-level responsibilities.
Standards of Cover: Deployment Analysis Amended 6/13/2021 City of Marina Fire Department, CA PAGE 3
Financial Overview
Organizational Finance
The City of Marina has an assessed valuation of $2,168,132,130 as of June 30, 2019 .1 This represents an increase in taxable value of approximately 46% from 2010. The City prepares a two-year operating budget and related other various capital improvement plans based on a July through June fiscal year. As with most municipalities, the City of Marina operates through numerous funds with the General Fund recording revenues and expenses for most governmental activities. General Fund revenues have increased from $12,668,923 in FY 14/15 to $18,859,358 in FY 18/19. General Fund revenues consist of property taxes and assessments (73%), licenses, permits, and fees (9%), charges for services (13%) , and other types of revenues (5%). The City anticipates, through its budget adoption, the General Fund revenues will continue to increase. The City’s operating expenditures provide for the majority of services provided. These expenditures include general government (23%), public safety (51%), economic development (12%), public works (7%), recreation (5%), capital outlay (1%), and debt service (1%). The voters recently approved additional funding resources for the City that will serve to strengthen the City’s financial picture, allow for several items of deferred maintenance to be addressed, and create reserves for future years.
Municipalities, unlike a for -profit business, do not have the ability to immediately respond to changing economic conditions and require reasonable reserves to continue to provide service levels.
Figure 1: City of Marina General Fund Resources,
FY 16/17–18/19 Actual and Budgets for FY 19/20 and 20/21 Actual
16/17
Actual
17/18
Actual
18/19
Budget
19/20
Budget
20/21
Revenues 20,998,269 23,534,750 25,837,621 26,237,667 26,059,667 Operating Expenditures 19,905,925 19,437,06 20,114,520 27,770,387 28,411,407 Transfers In (Out), Net 94,267 (619,209) (865,047) 2,667,300 3,315,000 Net Change 1,186,611 3,478,135 4,858,054 1,134,580 962,810 Beginning Balance 7,901,437 9,088,048 12,566,183 17,424,237 18,558,817 Ending Balance 9,088,048 12,566,183 17,424,237 18,558,817 19,521,627
1 City of Marina Comprehensive Annual Financial Report, June 30, 2019.
Standards of Cover: Deployment Analysis Amended 6/13/2021 City of Marina Fire Department, CA PAGE 4
City of Marina Fire Department
The Marina Fire Department (MFD) provides some funding support to defray the cost of its services to the residents of the City. The Department charges for certain services it provides, receives compensation from the State for responses to wildfire incidents, and continuously seeks grant funding for new or replacement capital resources.
Figure 2: City of Marina Fire Department, FY 16/17–18/19 Actual and Budgets for FY 19/20 and 20/21 Actual
16/17
Actual
17/18
Actual
18/19
Budget
19/20
Budget
20/21
Revenues, Reimburse., & Grants 273,016 524,997 429,006 160,350 117,350 Operating Expenditures 3,294,504 3,322,853 3,180,336 3,727,210 3,750,810 Required General Fund Tax
Revenue Subsidy 3,021,488 2,797,856 2,751,330 3,566,860 3,633,460 The next figure shows the general operating expenditure history for the previous four fiscal years and the current adopted budget. During the five-year period, the Department’s overall budget increased by 14%.
The most significant operational and financial event in this period is the addition of four additional firefighters in the current (FY 19/20) budget cycle.
Figure 3: Fire Department Expenditures by Year, Actual FY 15/16–FY 18/19 and Budget FY 19/20 Actual
15/16
Actual
16/17
Actual
17/18
Actual
18/19
Budget
19/20
Salaries & Wages 1,905,771 1,914,182 1,964,244 1,882,010 2,647,700 Employee Benefits 1,084,494 1,075,340 838,827 873,387 706,460 Services, Supplies, & Other Charges 271,468 304,982 444,782 424,940 373,050 Capital Outlay - - 75,000 - -
Total 3,261,733 3,294,504 3,322,853 3,180,337 3,727,210 A comprehensive capital improvement and replacement program is important to the long-term financial and operational stability of any fire and/or emergency medical service organization. Such programs provide systematic development and renewal of the physica l assets and rolling stock of the agency. A capital program must link with the planning process to anticipate and time capital expenditures in a manner that does not adversely influence the operation of the agency or otherwise place the agency in a negative financial position. Items usually included in capital improvement and replacement programs are facilities, apparatus, land acquisition, and other major capital projects. At the time of this writing, the City of Marina has an adopted multi -year capital im provement plan and separate fund (110) with approximately $6,400,000 set aside for General Fund facilities and major equipment inclusive of fire apparatus. This amount is insufficient to provide for the needs of the City’s multiple departments.
Additional revenue sources were recently approved by the voters that may allow this to be better funded in the future.
Standards of Cover: Deployment Analysis Amended 6/13/2021 City of Marina Fire Department, CA PAGE 5
Service Area Overview
Positioned at an elevation of 43 feet, Marina is located along the central coast of California, 8 miles west of Salinas, and 8 miles north of Monterey. Marina was incorporated in 1975, becoming the newest city on the Monterey Peninsula.
Figure 4: Location of Marina, CA
Marina Fire Department’s service area population has grown by 15.8% since 2009 after a period when the population dropped from 20,049 in 2000, to 19,449 in 2008. There was a 14.3% increase in population between 2010 and 2018. The 2018 service area population was estimated at 22,535. The city covers approximately 10 square miles. A greater analysis of Marina’s population is discussed later in this report.
Over the course of the year, the temperature typically varies from 44°F to 70°F and is rarely below 36°F or above 80°F.
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REVIEW OF SERVICES PROVIDED
Marina Fire Department is a combination fire department with both career and reserve members . The department’s service area includes all of the City of Marina and shares a common border with the cities of Seaside Monterey County Regional Fire District and North County Fire Protection District . Marina Fire Department is an all- risk fire agency that provides and receives mutual aid to other agencies within the region when requested. The fire department provides a variety of response services, including structural and wildland fire suppression, basic life support (BLS) level emergency medical care, entrapment/extrication, and hazardous materials response at the technician level. Marina Fire Department also provides non -emergent response services , such as public assists, which encompasses the level of risk reduction within the community. Emergency (9 -1-1) answering is provided by Monterey County’s Consolidated Emergency Communications Department (ECD). Monterey County's Consolidated Emergency Fire Dispatch Center is staffed by full -time dispatchers and supplemented by professional firefighters. The ECD dispatches for 17 agencies (21 fire districts), one paramedic ambulance provider, and coordinates dispatch services for 16 other agencies. At the time of this study, ECD was utilizing Medical Priority Dispatch to prioritize requests for emergency medical services for AMR responses only.
Staffing Information
There are 15 full-time shift personnel involved in delivering services to the jurisdiction augmented by 14 reserves. Staffing coverage for emergency response is through career firefighters on 48-hour shifts. For immediate response, no less than 5 personnel are on-duty at all times.
Figure 5: Marina Fire Department Organizational Chart
Standards of Cover: Deployment Analysis Amended 6/13/2021 City of Marina Fire Department, CA PAGE 7
MFD currently operates with a limited number of administrative support staff . The positions assigned to administration are one full-time Fire Chief, one full-time Division Chief, and one Administrative Assistant.
ESCI noted that the Fire Chief and the Division Chief also provide emergency response and shift coverage.
The level of administrative support appears to be inadequate for an organization the size and complexity of MFD.
The following figure illustrates administrative and staffing support for the Marina Fire Department.
Figure 6: Administrative and Support Staff
Position Number
Fire Chief 1
Division Chief 1
Administrative Assistant 1
Total 3
The following figure illustrates response personnel by rank in the organization.
Figure 7: Response Personnel by Rank
Position Number
Fire Chief 1
Division Chief 1
Fire Captain 6
Fire Apparatus Operator 6
Firefighter— Career 3
Firefighter Reserve 14
Total 31
Standards of Cover: Deployment Analysis Amended 6/13/2021 City of Marina Fire Department, CA PAGE 8
Resources as Currently Deployed
The following figure provides basic information on each of the Department’s core services, its general resource capability, and information regarding staff resources for each service.
Figure 8: Resource Staffing and Capabilities
Service General Resource/Asset
Capability
Basic Staffing Capability per
Shift
Fire Suppression 1 Staffed Engine
1 Staffed Squad
1 Command Response Unit
(Additional automatic and
mutual aid engines, aerials, and
support units available)
5 Suppression-Trained
Personnel
(Off-duty personnel, reserve
firefighters, and additional
automatic and mutual aid
firefighters available)
Emergency Medical Services 1 Engine, BLS equipped
1 Squad
5 Certified Emergency Medical
Technicians
Vehicle Extrication 1 Engine equipped with
hydraulic rescue tools, hand
tools, air bags, stabilization
cribbing, and a cutter and a
spreader hydraulic rescue tool
1 Squad
All firefighters are vehicle
extrication/rescue trained
High-Angle Rescue Countywide USAR Team Department response: Evaluate and request mutual aid as
needed
Trench and Collapse Rescue Countywide USAR Team Department response: Evaluate and request mutual aid as
needed
Swift-Water Rescue Beach Rescue, Rope Gun, PFDs,
and rescue disc
All personnel trained to the
awareness level.
Confined Space Rescue Countywide USAR Team Department response: Evaluate and request mutual aid as
needed
Hazardous Materials Response Countywide Haz Mat Team via Mutual Aid
Captains trained to IC level
All personnel trained to FRO
level
Standards of Cover: Deployment Analysis Amended 6/13/2021 City of Marina Fire Department, CA PAGE 9
Apparatus
Response vehicles are an important resource of the emergency response system. If emergency personnel cannot consistently arrive quickly due to unreliable transport, or if the equipment does not function properly, the delivery of emergency service is likely compromised. F ire apparatus are unique and expensive pieces of equipment, customized to operate efficiently for a specifically defined mission. The following figure lists the apparatus assigned to each of the MFD fire stations.
Figure 9: MFD Fire Stations and Apparatus
Station 1
Apparatus
Designation Type Year Make/Model Condition
Seating
Capacity
Pump
Capacity
Tank
Capacity
5400 SUV 2015 Ford Good 4 N/A N/A
5401 SUV 2017 Ford Good 4 N/A N/A
5404/Reserve SUV 2008 Ford Fair 4 N/A N/A
5411 Type I Engine 2019 Rosenbauer New 4 1500 500
5421/Reserve Type I Engine 1998 Ferrara good 4 1250 500 5431 Type III Engine 2004 Pierce/Internat’l Good 4 500 500 5461 Rescue 1998 Ford Fair 2 500 500
Station 2
Apparatus
Designation Type Year Make/Model Condition
Seating
Capacity
Pump
Capacity
Tank
Capacity
5412 Type I Engine 2007 Ferrara Good 4 1500 500
5422/Reserve Type I Engine 1994 Pierce Good 5 1250 500 5452 Engine/Patrol 1996 Becker Good 2 120 300
Figure 10: Mutual Aid Resources
Department Engines Ladders Trucks Other
Total Available
Staffing
Presidio Fire Department 1 1 2 8
Seaside Fire Department 1 1 3 6
North County Fire District 3 1 3 7
Monterey County Regional Fire 7 – 7 19
Monterey Fire Department 6 2 – 22
Salinas Fire Department 6 2 – 26
Totals 26 7 15 87
These are the types of apparatus shown in the preceding figure:
• Engine— Primary response unit from each station for most types of service requests equipped with a pump and ability to carry water.
• Wildland Engine ( Type III)— A smaller vehicle with a pump and water tank designed to be used for brush and grass fires in wildland areas.
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REVIEW OF COMMUNITY EXPECTATIONS
The ultimate goal of any emergency service delivery system is to provide sufficient resources (personnel, apparatus, and equipment) to the scene of an emergency in time to take effective action to minimize the impacts of the emergency. This need applies to fires, medical emergencies, and other emergency situations to which the fire department responds . Obtaining and understanding the desires and expectations of community stakeholders is an important first step. MFD is committed to incorporating the needs and expectations of residents and policymakers in the service delivery planning process.
It is important to note that the information solicited and provided during this process was provided in the form of “individual inputs,” some of which are perceptions as report ed by stakeholders. All information was accepted at face value without an in -depth investigation of its origination or reliability. The project team reviewed the information for consistency and frequency of comment to identify specific patterns and/or tren ds. The observations included in this report were confirmed by multiple sources , or the information provided was significant enough to be included. Based on the information review, the team was able to identify a series of observations, recommendations, and needs that are included in this report.
Stakeholder Input
Community attitudes about the Marina Fire Department and its services were gathered by in-person and phone interviews of s takeholders. Eighteen stakeholders were scheduled for interviews that were completed over a multi- day period. The interviewees represented the City Council, City Administration, Community Members, Business Community, MFD Labor, Administrative Staff Members, and Chief Officers.
The stakeholder responses are summarized as follows:
BUSINESS, COMMUNITY GROUPS, AND CITIZENS
Describe your expectations of the Fire Department.
• Residents have high expectations when it comes to the delivery of service by the Fire Department. • Reasonable response time, accessibility, visible to the public, and competent.
Which of these expectations are not being met to your satisfaction? • Most comments heard are complementary; the Fire Department does a great job trying to meet service demands.
• The Fire Department responds as quickly as possible.
• If our Fire Engine is committed when another request for its service occurs, we are relying on POM or North County, the response time is affected and longer. • The current management of funds for the Fire Department is a detriment to the City, its residents, and visitors.
• The Fire Department needs to hire more Firefighters.
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What do you think the Fire Department is doing particularly well? • Community relations.
• They provide excellent service.
• The Firefighters are all well-trained.
• They do an amazing job of managing their on-duty time with a limited number of responders. • The Fire Chief has done a good job leading this Fire Department.
Are there services that you think the Department should be providing that they are not providing now? • Seriously consider purchasing and staffing a Rescue-Medical Squad primarily assigned to respond to medical aid calls.
• The devel opment review services , i.e., tentative maps, etc. , all which includes the Fire Department to participate in the review process.
• Growth stimulates the economy and creates jobs.
• Stand up a City of Marina Community Emergency Response Team. • Dedicated Fire Marshal.
• Enhance service to the City by adding Paramedics to the Fire Department as First Responders , which strengthens the Fire Department’s capabilities and enhances services to the community.
Are there services the Fire Department is providing that you think should be discontinued or done differently?
• The Fire Department needs additional staff and reso urces in order to meet the demands of upcoming development/s.
• Currently, there is no back-up when the fire engine is committed to a call; cannot always depend on assistance via surrounding resources.
• Due to the size of the Department, they need more staff and equipment. • Community Outreach is vital, and there isn’t enough staffing to do this as often as they should. • Public Information Officer— there is no staffing to share current information the public may want or need to know. As an example, the Fire Department has a Smoke Detector program, and most of the community doesn’t even know what services are offered.
When you dial 9-1-1 to report an emergency, how long should it take for help to arrive? • Several minutes 3–4. No longer than 5 minutes.
• Most of Marina: 3 to 5 minutes; further out, the response will take longer. • Within 2 minutes, although the interviewee realizes it can be longer if the engine is in the Station or not.
Does that expectation change depending on where in the community you are located? • Expectations may need to be managed, but response time shouldn’t change. • No, expectations do not change.
• It does change due to requests for services in areas that have no easy access to some residential developments, traffic, i.e., time of day, type of call, resources available, etc.
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Do you believe the first arriving response units should be staffed and equipped to take appropriate actions given the emergency?
• Staff and appropriate equipment are needed in order to meet the contemplated risk at hand. • Equipment should be properly staffed for that specific type of apparatus. • Add a Rescue Unit in lieu of responding with an engine company for medical calls. • Absolutely.
ELECTED OFFICIALS, CITY MANAGEMENT, AND DEPARTMENT HEADS What strengths contribute to the success of the Fire Department? • The biggest strength is the Fire Chief, who understands the fire industry and works well with the City’s Administrative Team as well as with the community. • The Firefighters appear to be very close, very much like a family. • Upward mobility is being experienced, which allows opportunities to promote. • There exists an extremely positive relationship between the Fire Department and the community.
What do they do well?
• The Fire Department appears to be aware of existing environmental issues and is following the City’s General Plan.
• The Fire Department does an outstanding job and has an excellent relationship with neighboring agencies in which they can depend on for mutual aid.
• They do a very good job responding to request(s) for service and successfully accomplishes this with limited staffing.
• Responds to an incident as quickly as they can.
• Do well under stressful situations while experiencing multiple requests for service.
What are some areas in which you think the Department could make improvements? • Reduced response time.
• Additional support.
• Purchase new equipment.
• Have the capability to protect two-or-more story structures/buildings in the event of a fire. • Improve disaster management by providing the appropriate training. • Adopt Equipment Replacement Standards.
What opportunities, in your view, are available to improve the service and capabilities of the fire department?
• When reviewing plans, we need to refer to the policies. Why approve a 5-story building when we do not have the appropriate equipment to protect the building? • Add a Ladder Truck; however, we do not have a station capable of housing it. • Increase our focus by providing the equipment that they need so they can do their job.
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Please share your thoughts with us regarding staffing utilizing 12-hour shifts and peak hour units. • Absolutely need to look into things like this.
• An analysis is needed.
• Need to look at things like this for the future.
What do you see as critical issues faced by the fire department today? • The current budget is adequately funded; however, we are aware that future budgetary issues are going to be difficult.
• Fire and Police Budgets take a very large portion of the City’s Budget and it is not sustainable. • Restructure the existing service model used in responding to medical requests; requests for services will continue to grow.
• To have the capability to retain qualified staffing.
• To have the ability to fully fund additional staffing. • Decide on the location of the second station.
• Succession planning beginning at the top to the bottom.
If you could change one thing in the fire department, what would it be? • Review how we allocate our staffing resources in order to see if there is a better way. • Break down the standard and look at data, demands. Is there a better way? • Three fully staffed shifts with reasonable overtime.
• Does not see any major issues with the Fire Department. • The Fire Department is incredible; they do best with what they have.
How would you describe the level of services provided by the fire department? • There will be improvement due to staffing the second station. • Has not heard any complaints.
• The community has voiced their support of the Fire Department.
What opportunities, in your view, are available to improve the service and capabilities within the region?
• Sharing stations on borders; Seasid e is a prime example; the entire region would be positively affected.
• Emergency Planning that include department heads.
• Emergency Operations Center “EOC” exercises.
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CHIEF OFFICERS, LABOR LEADERS, RESERVES, RANK & FILE, ADMINISTRATION What strengths contribute to the success of the fire department? • Versatile in having to change how to respond to requests for our services due to back-to-back calls and keep up with the volume.
• Working out of grade.
• Each individual’s participation and enthusiasm.
• The Department's strong suit is the level of care while on EMS calls. • We try to treat EMS patients with empathy and care that is equal to the care that would be provided to our own family members.
• Ability to focus on Fire since Fire and Police are now separate divisions.
What do you do well?
• Planning and how we will grow into full buildout.
• Connecting with the community and utilizing our Reserve Firefighters events. • Attending public events and providing education to children. • Training is going well.
• Interacting with the community.
What are some areas in which you think the Department could make improvements? • Training: consider using props, identify a dedicated training facility, etc. • Consider using the station at the Airport as a training facility. • Communication
• Tactical co-officer training. We lack training in strategy and tactics. • Staffing is an issue and we are working on it now.
• Reduce the reliance on neighboring agencies.
What opportunities, in your view, are available to im prove the service and capabilities of the fire department?
• Hiring additional firefighters.
• Staffing 2nd engine at the other Marina, rather than having POM cover for us. • Strategies and tactics training at the company officer level. • Improve existing internal communication.
• Our responses are limited; we are not capable of responding to specialty calls such as Haz Mat, etc.
• Some of our Firefighters have experience, i.e., water rescue as an example, but can’t utilize their skills.
• Improve capabilities to respond to specialty calls such as surf rescue, Haz Mat, etc.
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What do you see as critical issues faced by the fire department today? • Staffing is definitely #1 – of 3 at each station.
• Making sure the Firefighters are well trained for the po sition they’re assigned to . Minimum staffing and adequate training for moving up.
• Investing in outreach to the community.
• Investing in the community, disaster preparedness, training to the community. • Lack of a Public Education staff person.
• Amount of calls for one engine.
• Trained Firefighter Reserves that have a Class B driver’s license, and who won’t be limited to just covering the fire station.
• Leadership
• Quality training.
• Culture
• Excess amount of collateral duties given our limited staff.
Please share your thoughts/ideas regarding alternative staffing and dynamic deployment. • Not sure; is a proponent of 3 and 3 staffing for two stations. • Staff a 2nd engine and it would be an enhancement.
• All for departments trying different things and if it provides better service. • Open to suggestions.
If you could change one thing in the fire department, what would it be? • Add staffing.
• A Fire Station separate from the Police Station; two separate entities. • At least one additional Chief Officer position; with the assumption the Department has adequate engine staffing.
• Culture
How would you describe the level of emergency services provided by the fire department? • We do a great job; regularly are complimented by the ambulance crews. • Training could be a lot better.
• Top-notch.
• Work well with other departments.
• Very good for what they have.
• The best.
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SURROUNDING AREA CHIEFS
What strengths contribute to the success of the Seaside and Marina Fire Departments? What do the departments do well?
• Auto aid.
• Support one another.
• The level of service both Fire Departments provide is outstanding. • Enjoys working with both Fire Departments.
• Seaside covers day to day requests for services without heavy reliance on their neighbors. • Good leadership is in place.
• Work well with surrounding agencies.
What are some areas in which you think the departments could make improvements? • Training, including high-rise.
• Closest resource dispatch regardless of where the incident is and who’s jurisdiction it is in. • Succession planning.
• Deployment and staffing.
• Reduce reliance on Presidio of Monterey.
What opportunities, in your view, are available to improve the service and capabilities within the region?
• A collaborative approach to addressing the impact of development. • Enhanced EMS, such as Firefighter Paramedics.
• Standardize training throughout the region.
• Regional training, recruitment academy, etc.
• Enhanced command/Chief Officer response to incidents. • Good job on communication/shared dispatch.
What are the critical issues facing the region over the next 5 years? • Community risk reduction.
• Regional Communication is working, however, enhanced staffing. • Training.
• Response times.
• Availability of firefighters.
• Upcoming development.
• Succession planning.
• Tightening of finances
• Boundary drop.
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COMMUNITY RISK ASSESSMENT
Numerous risk factors can influence the types of services a community requires . Hazard identification is the process of recognizing the range of natural or human -caused events that threaten an area. Natural hazards result from uncontrollable, naturally occurring events such as flooding, windstorms, and earthquakes, whereas human-caused hazards result from human activity and technological hazards. An example of a technical hazard is an accidental hazardous materials release.
Community risk is assessed based on several factors; service area population, population density, demographics of the population served, local land use and development, and the geography and natural hazards present within the community. These factors affect the number and type of resources — both personnel and apparatus— necessary to mitigate an emergency. • Population density is a risk factor, and demographics presents another unique risk. Over 21% of the population is under the age of 18 years of age, and over 37% of the population speak languages other than English at home.
• The physical characteristics of the area and the resultant natural hazards are risk factors. Marina lies in a valley and is at risk of earthquake s and flash floods. Marina lies along the coast near Monterey Bay and is at risk of earthquakes and flash floods. The wildfire risk within Mar ina is considered moderate in the majority of the city.
• Land use and zoning can also affect risk. Risk can be characterized as low (e.g., agricultural or low-density housing ); moderate (e.g., small commercial and office); or high (e.g., large commercial, industrial, and high-density residential).
Risk Classification
Based on the narrative descriptions of the various hazards found throughout the Marina response area, ESCI has developed a numerical ranking of community hazards using historical incident data, as well as an assessment of the community and its vulnerabilities. Community hazards were grouped into broad categories as follows:
• Structure Fires
• Hazardous Materials
• Non-structure Fires
• Natural Hazards
• EMS-Medical Assist
• Technological Hazards
• Rescue
• Human Hazards
Within each category, specific hazards were identified, and a probability (likelihood) score between zero (representing “Not Applicable”) and four (representing “ Catastrophic”) was assigned to each of the categories.
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A severity score is developed by revie wing an incident’s impact o n the community and the ability to mitigate the event. Community Impact scores the effect of an incident on humans, property, and businesses. As the score increases, the impact in the community expands. Mitigation Capacity rates how well a community responds to an event based on preparedness and internal and external response. The lower the mitigation score indicates that the community is prepared for an event.
The overall scores were then used to generate a relative risk score as it applies to the City of Marina.
Documentation of categorical scoring can be found in the appendices of this report. The completed hazard vulnerability analysis, including relative community risk, is shown in the following figures.2 Details of each risk category are in Appendix A.
Figure 11: Hazard Risk Summary
Figure 12: Relative Community Risk
ESCI also identified the following vulnerabilities specific to fire operations. Each is discussed in greater detail on the following pages.
• Population Density
• Physical Hazards
2 Based on reported NFIRS data January 01, 2016, to December 31, 2018, the Monterey Community Wildfire Plan, the Monterey County Multi- Jurisdictional Hazard Mitigation Plan, and others.
• At-Risk Populations
• Human-Caused Hazards
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Population Density
According to the United States Census Bureau, Marina is classified as an urban city at 8.88 square miles in area. The 2018 estimated population is 22, 535, with an estimated population density of about 2, 537 per square mile, compared to an average of 239 people per square mile for California.
The population decrease in Marina can be attributed to the closing of Fort Ord in 1994. It has been steadily increasing since 2009 and tends to be concentrated in the northern and central parts of th e community, in neighborhoods and planned development communities, surrounded by less densely populated areas near the airport. Much of the population density is defined by areas used for agricultural use or flood plain areas where lower population densit ies exist. The areas displaying the highest population density correspond to the highest incident response locations , as illustrated in the Service Demand Analysis.
Figure 13: Study Area Population Density
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Figure 14: Population History, 2000–20183,4
3 Retrieved from: https://factfinder.census.gov/faces/tableservices/jsf/pages/productview.xhtml?src=CF. 4 Retrieved from: https://www.census.gov/data/datasets/time-series/demo/popest/intercensal-2000-2010-cities-and-towns.html. 20,049
19,690 19,718
21,100
22,535
17,000
18,000
19,000
20,000
21,000
22,000
23,000
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Figure 15: Demographics for the MFD Service Area, 2018
Category Number/%
Population
Population estimates, July 1, 2018 22,535
Population estimates base, April 1, 2010 2,217.7
Population, percent change— April 1, 2010 (estimates base)–July 1, 2017 14.3% Geography
Population per square mile, 2017 (estimate) 4,719.2
Population per square mile, 2010 4,374.8
Land area in square miles, 2010 8.88
Age and Sex
Persons under 5 years, 2017 (estimate) 8.7%
Persons under 18 years, 2017 (estimate) 22.1
Persons 65 years and over, 2017 (estimate) 13.9
Male persons, 2017 (estimate) 48.8%
Female persons, 2017 (estimate) 51.2%
Race
Hispanic or Latino 29.5%
White alone 50.2%
Other Races or "two or more races" 20.3%
Population Characteristics
Veterans, 2014–2018 1,519
Foreign born persons, 2014–2018 24.9%
Housing
Housing units, 2018 ACS estimate 8,066
Owner-occupied housing unit rate, 2018 ACS estimate 44.5% Median value of owner-occupied housing units, 2018 ACS estimate $469,500 Median selected monthly owner costs— with a mortgage, 2018 ACS estimate $2,082 Median selected monthly owner costs— without a mortgage, 2018 ACS estimate $458 Median gross rent, 2018 ACS estimate $1,308
Families and Living Arrangements
Households, 2014–2018 7,549
Persons per household, 2014–2018 2.74
Living in same house 1 year ago, persons age 1 year+, 2014–2018 85.5% Language other than English spoken at home, persons age 5 years+, 2014–2018 37.4% Education
High school graduate or higher, persons age 25 years+, 2014–2018 83.6% Bachelor's degree or higher, persons age 25 years+, 2014–2018 27.8% Health
With a disability, under age 65 years, 2014–2018 9.7%
Persons without health insurance, under age 65 years 11.1% Standards of Cover: Deployment Analysis City of Marina Fire Department, CA PAGE 22
Category Number/%
Economy
In civilian labor force, total, population age 16 years+, 2014–2018 64.1% In civilian labor force, female, population age 16 years+, 2014–2018 57.7% Total accommodation and food services sales, 2012 ($1,000) $41,713 Total health care and social assistance receipts/revenue, 2012 ($1,000) $31,515 Total merchant wholesaler sales, 2012 ($1,000) $45,927
Total retail sales, 2012 ($1,000) $208,952
Total retail sales per capita, 2012 $10,317
Transportation
Mean travel time to work (minutes), workers age 16 years+, 2014–2018 24.3 Income and Poverty
Median household income (in 2017 dollars), 2014–2018 $62,803 Per capita income in the past 12 months (in 2017 dollars), 2014–2018 $29,686 Persons in poverty 11.2%
Businesses
All firms, 2012 1,223
Women-owned firms, 2012 442
Men-owned firms, 2012 597
Minority-owned firms, 2012 671
Nonminority-owned firms, 2012 499
Veteran-owned firms, 2012 154
Nonveteran-owned firms, 2012 1,001
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At-Risk Populations
In addition to the distribution of the population, the demographics can affect the amount of service demand and the nature of hazards within a community. In urban cities, several factors that place groups of people at risk have been identified. An NFPA report has identified the groups that face a higher risk of being injured or killed in a fire as follows:5
• Children under 5 years of age
• Older adults over 65 years of age
• People with disabilities
• Language barrier
• People in low-income communities
According to the 2017 Census Bureau estimate, a number of the residents of Marina are in one or more at-risk population groups. This segment of the population is more likely to use fire department services, especially EMS, than other population groups.
Age
The percentage of young children in Marina is a factor that increases service demand and hence community risk in the service area. The median age of the population is 31.9 years old. This compares to an average age for the population of California of 36.5 years old and 37.8 years old for the U.S.6 Of concern is the number of children under 5 years of age and adults over 65 years of age, representing 22.6% of the population. Adults 75 or older is 6.3% of the population compared to 6% for California.
Disabilities
People under 65 years of age with disabilities make up 9.7% of the population. These people may have difficulty or be incapable of self -preservation during an emergency. Likewise, people under 65 years of age with no health insurance are more prone to chronic illness or exhibit poor physical condition simply because they do not seek treatment promptly. More than 11% of the population is under 65 and has no health insurance, which is higher than the California average of 8.3% ; thus, they may require a higher level of fire-rescue response.
5 National Fire Protection Association, 2007; Urban Fire Safety Project, Emmitsburg, MD; retrieved from http://www.nfpa.org/public-education/by- topic/people-at-risk/urban-fire-safety/reports-and-presentations. 6 The U.S. Census Bureau.
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Low-Income
Likewise, low-income people are more at risk from fire or medical condition; almost one in five residents (17.3%) of Marina live below the poverty level.7 Low income is often combined with other factors such as education, disability, and work status, as shown in the following figure.
Figure 16: Marina Household Incomes, 20178
Subject
Households’
Estimate
Families’
Estimate
Married-Couple
Families’
Estimate
Nonfamily
Households’
Estimate
Total 7,549 4,829 3,226 2,720
Less than $10,000 5.5% 3.7% 1.0% 9.9%
$10,000 to $14,999 3.6% 1.4% 0.2% 8.2%
$15,000 to $24,999 8.20% 5.3% 3.8% 14.6%
$25,000 to $34,999 6.8% 5.7 4.5% 9.3%
$35,000 to $49,999 12.10% 11.7% 9.6% 12.5%
$50,000 to $74,999 20.8% 21.6% 19.5% 19.9%
$75,000 to $99,999 13.8% 15.0% 17.9% 11.2%
$100,000 to $149,999 18.1% 21.0% 24.1% 10.1%
$150,000 to $199,999 6.6% 9.4% 13.1% 1.2%
$200,000 or more 4.5% 5.1% 6.2% 3.1%
Median income $62,803 $76,273 $87,656 $45,633
Mean income $81,147 $89,673 * $61,537
7 “The U.S. Dept of Health and Human Services 2019 poverty threshold is defined as $12,490 for an individual, $25,750 for a family of four.” Retrieved from https://aspe.hhs.gov/prior-hhs-poverty-guidelines-and-federal-register-references. 8 U.S. Census https://data.census.gov/cedsci/table?q=marina%20ca%20income&g=1600000US0645778&lastDisplayedRow= 16&table=S1901&tid=ACSST5Y2018.S1901&t=Income%20%28Households,%20Families,%20Individuals%29.
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Physical Hazards
Since 1965, the number of federally declared disasters in Monterey County (20) is higher when compared to both the state (19) and national (16) averages .9 The cause for each of these declarations is shown in the next figure. Although most of these declarations did not affect Marina directly, they are an indication of the hazards present throughout the County. The figure excludes one declaration related to Hurricane Katrina when evacuees were transported from New Orleans to Monterey County for shelter.
Figure 17: Federally Declared Disasters, Jan. 1965–Mar. 2018 Type Type, Number Type, Percent
Fire 3 15%
Flood 5 25%
Severe Storms 5 25%
Coastal Storm 1 5%
Freezing 3 15%
Earthquake 1 5%
Drought 1 5%
Tsunami 1 5%
Total 20 100.0%
Earthquakes
Earthquakes occur throughout California, but certain areas, including Marina, ha ve a slightly lower probability of experiencing damaging ground motions caused by seismic activity compared to California.
Marina has an earthquake index of 16.63 compared to C alifornia at 21.8. Most of Marina’s population is in a high shaking hazard area. Marina is in the Reliz fault zone. A fault from the coast to the Municipal Airport and another just south and travels through California State University Monterey Bay. The Monterey County Draft Environmental Impact Report (2007) stated that there had not been any major activity along this fault in more than 100 years. A high ground shaking hazard area is derived from the U.S. Geological Survey (USGS) seismic hazard map, which shows the distribution of earthquake shaking levels that have a certain probability of occurring.
Soil liquefaction is primarily low in most of Marina but increases to moderate or high along the coast and Salinas River. Soil liquefaction occurs when seismic waves cause the soil to lose its strength and cause buildings to collapse.
According to one source, the risk of an earthquake greater than 5.0 within 50 years is 99.91% in Marina and gradually lower to approximately 28.12% for 7.0 or greater. Thus, the risk of earth movement, or ground shaking, ranges from strong to severe.10
9 FEMA Disaster Declarations Summary— Open Government Dataset, U.S. Department of Homeland Security, last updated December 8, 2019.
Retrieved from: https://www.fema.gov/openfema-dataset-disaster-declarations-summaries-v2. 10 https://www.homefacts.com/earthquakes/California/Monterey-County/Marina.html.
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The Marina area has had a total of 5,182 earthquakes since 1931. The largest earthquake to date was the 1989 Loma Prieta with a magnitude of 6.9 and centered 26 miles from Marina.11 Most losses of life and injuries resulting from an earthquake occur in or near structures. The potential for damage to and the collapse of structures is greatest in the downtown area due to the high number of masonry buildings.
Historical Earthquake Events
A total of 237 historical earthquake events that had recorded magnitudes of 3.5 or above were found in or near Marina, CA. Those measuring 5.6 or greater on the Richter Scale are shown here.12 Figure 18: Earthquakes Measuring 5.5 or Greater Within 50 Miles Distance (miles) Date Magnitude Depth (km) Latitude Longitude
43.3 1911-07-01 6.6 N/A 37.25 - 121.75
48.5 1984-04-24 6.2 8 37.32 - 121.7
13.3 1926-10-22 6.1 N/A 36.75 - 122
37.3 1979-08-06 5.9 6 37.1 - 121.5
29.2 1961-04-09 5.6 10 36.68 - 121.3
Wildfires
Like many fire jurisdictions in the Western United States, especially California, wildland fire risk is a factor in the MFD service area. The following figure uses CAL FIRE GIS data to examine the wildland fire hazard in and around Marina. This model produ ced by CAL FIRE considers vegetation, topography, weather, crown fire potential, and ember production and movement to summarize fire hazard zones as moderate, high, or very high. This figure demonstrates that most of the City of Marina has a moderate risk of wildfire due to urbanization, and a small portion north of Reservation Rd. is considered a higher risk.
The vast majority of Marina is an urbanized community with some agricultural lands on the northern portion of the city. The California Fire Resource and Assessment Program (FRAP) considers most of the city in a moderate wildland fire hazard area. This includes more than 25,000 residents, 6,300 residential buildings, 21 critical facilities, and the airport. A small percentage of residents are exposed t o a high wildland fire hazard. The risks of wildland fires are greatest in undeveloped areas, primarily on the northeast and southeast sections of the city , and they should be evaluated on a continual basis for wildland-urban interface issues.
The Marina Fire Department participates in State and County -level mutual aid agreements, which provide additional resources for all risk incidents if they occur.
11 http://www.usa.com/marina-ca-natural-disasters-extremes.htm. 12 Earthquakes that measure 6.0–6.9 on the Richter Scale are considered to be strong earthquakes (VIII to X on the Mercalli intensity scale) and are expected to result in damage to a moderate number of well-built structures in populated areas. Earthquake-resistant structures survive with slight to moderate damage. Poorly designed structures receive moderate to severe damage. Strong to violent shaking in the epicenter, felt in wider areas, up to hundreds of miles/kilometers away.
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Figure 19: MFD Study Area Wildland Fire Risk
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Severe Weather
Tornadoes are created when warm, moist air near the ground interacts with cooler air above and rapidly increasing winds that change direction. Tornadoes are rare in California and even more so in Marina; the expectation of a tornado in Marina is almost 15 times lower than the U.S. average. The tornado index for Marina is 9.13 compared to California at 18.56 and the United States at 136.45.13 Since 1965, only 11 tornado es have been recorded within 30 miles of Marina (interestingly half of these occurred in the month of December). 14 Only one of these events caused injuries when two individuals were injured after 75 mph winds shattered glass near the east/northeast section of Monterey and the adjoining Seaside-area on December 6, 1992.15
Figure 20: Tornado Intensity, Enhanced Fujita Scale
Designation Wind Speed,
mph Typical Damage16
EF-0 65–85
Minor or no damage. Peels surface off some roofs; some
damage to gutters or siding; branches broken off trees; shallow-rooted trees pushed over. Confirmed tornadoes
with no reported damage (i.e., those that remain in open fields) are always rated EF0.
EF-1 86–110
Moderate damage. Roofs severely stripped; mobile homes
overturned or badly damaged; loss of exterior doors;
windows and other glass broken.
EF-2 111–135
Considerable damage. Roofs torn off well- constructed
houses; foundations of frame homes shifted; mobile homes completely destroyed; large trees snapped or uprooted;
light-object missiles generated; cars lifted off ground.
EF-3 136–165
Severe damage. Entire stories of well -constructed houses destroyed; severe damage to large buildings such as
shopping malls; trains overturned; trees debarked; heavy cars lifted off the ground and thrown; structures with weak foundations are badly damaged.
EF-4 166–200
Devastating damage. Well -constructed and whole frame
houses completely leveled; cars and other large objects thrown and small missiles generated.
EF-5 > 200
Extreme damage. Strong-framed, well-built houses leveled off foundations are swept away; steel -reinforced concrete structures are critically damaged; tall buildings collapse or have severe structural deformations; some cars, trucks, and train cars can be thrown approximately 1 mile (1.6 km).
13 http://www.usa.com/marina-ca-natural-disasters-extremes.htm#TornadoIndex. 14 https://www.homefacts.com/tornadoes/California/Monterey-County/Marina.html. 15 https://met.nps.edu/~ldm/renard_wx/dec92wx.pdf.
16 Wikipedia. https://en.wikipedia.org/wiki/Enhanced_Fujita_scale.
Standards of Cover: Deployment Analysis City of Marina Fire Department, CA PAGE 29
Microbursts can cause devastation similar to that caused by a tornado, but the mechanism is different.
A microburst is a strong, small-scale downdraft of wind that hits the ground and spreads out; there is no rotation as there is with a tornado. Microbursts are frequently associated with strong thunderstorms.
A macroburst is another form of straight-line wind, similar to a microburst but spread out over a larger area. These damaging downdrafts do not occur very often in and around Marina unless associated with significant and violent thunderstorms.
Seasonal Winds
Marina has mild winds much of the year but spikes in February, May, and September, having a sharp increase in wind speeds (averaging up to 17 mph). The winds drop to less than 15 mph until rising again in November to approximately 20 mph. The annual average wind speed is 11.83 mph in Marina compared to 13.54 mph in California.17 Prevailing winds are generally out of the west.
Figure 21: Marina Average Monthly Wind Speeds
Floods
Flooding can occur in localized areas during rain events and runoff from agricultural irrigation on the eastern side of the City. The Salinas River traverses the northeastern and eastern city limits and can pose minimal flooding. Other localized flooding c an occur during heavy rain events and from wave action directly from the Pacific Ocean.
There are approximately 525 people and 293 buildings valued at more than $60 million within the 100 - year flood zone. None of these buildings are considered critical facilities or infrastructure. The only road that may be impacted by flooding is Blanco Rd. where it crosses the Salinas River.
Even though major flooding within the 100 -year flood plain is minimal, MFD should be aware of all locations and develop contingency plans in the event of flooding, whether localized or widespread.
17 http://www.usa.com/santa-maria-ca-weather.htm#HistoricalWind%20Speed.
Standards of Cover: Deployment Analysis City of Marina Fire Department, CA PAGE 30
Dam Failure
The San Antonio and Nacimiento dams present a minimal risk along the eastern and northeastern city limits, affecting nine citizens and three residential and two non-residential buildings.
Extreme Heat
Extreme heat is any period when the temperature is high enough that overexposure can cause distress, including injury, heat-related illness, or death to humans and animals. Related to temperature is the heat index— an indicator of how hot it feels based on actual temperature and relative humidity. The higher the humidity, the hotter it feels due to the body’s inability to cool itself. The National Weather Service (NWS) publishes a Heat Index, shown in the next figure, to help local planners prepare for and mitigate the effects of extreme temperatures.18
Figure 22: NWS Heat Index
While extreme temperatures are known to occur, prolonged heatwaves in Marina are rare. The hottest recorded temperature at the Monterey Peninsul a AP weather station located near the Monterey Regional Airport was 103˚F in September 2017. The coldest extremes typically occur during December and January w ith the coldest temperature recorded is 25˚F. 19 Overall, Marina has relatively mild
temperatures with a very low seasonal variation.
18 U.S. Department of Commerce, National Oceanic and Atmospheric Administration, National Weather Service. http://www.nws.noaa.gov/om/heat/heat-images/heatindexchart.png. 19 https://wrcc.dri.edu/cgi-bin/cliMAIN.pl?ca5796.
Standards of Cover: Deployment Analysis City of Marina Fire Department, CA PAGE 31
Figure 23: Marina Average Monthly Temperatures20
Drought
Drought is any period of dry weather, characterized by insufficient rain to grow crops or replenish surface water supplies. Droughts are gradual and persistent with secondary impacts on wildfire, crop production, oil and gas production, and socio -economic impact. Currently, portions of the W est are reporting moderate and severe drought conditions. Abnormally dry conditions are only observed in C entral California. Even though Monterey County is currently not in drought conditions, as little as three years ago, the area was experiencing a moderate to severe drought.21
20 http://www.usa.com/salinas-ca-weather.htm.
21 United States Drought Monitor, https://droughtmonitor.unl.edu/.
Standards of Cover: Deployment Analysis City of Marina Fire Department, CA PAGE 32
Figure 24: U.S. Drought Conditions, February 202022
22 United States Drought Monitor, https://droughtmonitor.unl.edu/CurrentMap/StateDroughtMonitor.aspx?West.
Standards of Cover: Deployment Analysis City of Marina Fire Department, CA PAGE 33
Technological (Human-Caused) Hazards
The most prominent technological, or human -caused, hazards faced by residents of Marina are transportation emergencies, structural fires, long-time power outage, and hazardous materials releases.
Transportation
Transportation corridors provide necessary access and egress for the Department. The configuration of transportation systems can also affect the response capability of emergency services. Limited access freeways can interrupt street connectivity, forcing apparatus to negotiate a circuitous route to re ach an emergency scene.
Roads
Surface streets dominate the MFD service area. California State Route 1 is primarily a north -south highway with controlled access points. The p rimary hazard is related to over- the-road shipments of combustible and hazardous materials and motor vehicle accidents. The remainder of the Department ’s service has a mix of relatively well -interconnected street networks and disconnected neighborhoods characterized by some winding streets and cul-de-sacs.
There are some intersections with traffic signal preemption and use the older infrared technology. The signal pre-emption can provide a significant response time performance advantage as well as improved safety to mo torists. Funding for additional locations is potentially available from Monterey Bay Air Resources District through the AB2722 program. More information can be provided by Monterey-Salinas Transit for other funding sources.
Airport
The Marina Municipal Airport is operated by the C ity and provides one runway. The airport utilizes minimal navigation aids for landings. The fire station located on airport property houses one engine and has recently been staffed with a Captain and an Engineer. Other facilities on airport property include hangers and fueling operations. Fueling is available 24 hours per day from a 12,000-gallon tank providing aviation gas and Jet A fuels. There are approximately 50 aircraft based at the airport and 40,000 annual operations, and the control tower is not staffed. The 2018 Marina Airport Master Plan recommend ed transiting from a recreational facility to one focused on business aviation. This change may affect fire department operations as more aircraft use the facility and additional structures are built on airport property.23
23 https://www.cityofmarina.org/DocumentCenter/View/10126/OAR-Complete-Final-Master-Plan-June-2018.
Standards of Cover: Deployment Analysis City of Marina Fire Department, CA PAGE 34
Figure 25: Marina Municipal Airport
Standards of Cover: Deployment Analysis City of Marina Fire Department, CA PAGE 35
Physical Assets Protected
The definition of target hazards varies among jurisdictions; thus, every department must determine what is important in their community and must define and identify those special target hazards. For continuity, ESCI uses the FEMA definition of target hazards as “facilities in either the public or private sector that provide essential products and services to th e general public, are otherwise necessary to preserve the welfare and quality of life in the community, or fulfill important public safety, emergency response, and/or disaster recovery functions.”24
Critical Infrastructure and Key Resources
Critical infrastructure and key resources (CIKR) explain what is crucial for a community to function in a modern economy. Critical infrastructure is defined as a sector “whose assets, systems, and networks, whether physical or virtual, are considered so vi tal to the United States that their incapacitation or destruction would have a debilitating effect on security, national economic security, national public health or safety, or any combination thereof.” There are sixteen defined Critical Infrastructure Sec tors (CIS):25
• Chemical Sector
• Commercial Facilities Sector
• Communications Sector
• Critical Manufacturing Sector
• Dams Sector
• Defense Industrial Base Sector
• Emergency Services Sector
• Energy Sector
• Financial Services Sector
• Food and Agriculture Sector
• Government Facilities Sector
• Healthcare and Public Health Sector
• Information Technology Sector
• Nuclear Reactors, Materials, and Waste Sector
• Transportation Systems Sector
• Water and Wastewater Systems Sector
Although these types of sectors may not be in Marina, the goal is for each community to determine where critical infrastructure is located and develop pre-incident plans for responding personnel.
Other buildings to consider listing as target hazards could include occupancies with a potential for a large loss of life such as places of public assembly, schools and childcare centers, medical and residential care facilities, and multifamily dwellings. Other considerations include buildings with substantial value to the community— economic loss, replacement cost, or historic significance — that, if damaged or destroyed, would have a significant negative impact.
24 Community Risk Assessment: A Guide for Conducting a Community Risk Assessment, Version 1.5, John Stouffer for Vison 20/20, 2016, page 12. 25 Infrastructure Security, Department of Homeland Security.
Standards of Cover: Deployment Analysis City of Marina Fire Department, CA PAGE 36
Responses to target hazards are expected to require a significant number of MFD resources and automatic aid during an incident. MFD states that certain target hazards have pre -incident plans. Pre - incident plans completed by MFD should include the resources needed to provide an ERF for each type of incident. The following figure lists the inventory of critical facilities as provided by the City. ESCI purposely did not identify the location of these facilities in the interest of homeland security. MFD should maintain detailed information about critical facilities.
Figure 26: Critical Facilities
Type Number
Airport 1
Detention Center 1
Fire Department Stations 2
Health Care Facilities 4
Law Enforcement Facilities 3
Maintenance Yards 1
Residential Elderly Facilities 2
Library 1
Schools 6
Public Utilities 1
Total 22
Occupancies can be classified according to the risk level; low, medium, or high -risk. These factors are used to assign a classification to an individual occupancy . They include the size of the building(s), construction type, the presence or absence of fire suppression features such as sprinklers and standpipes, the needed fire flow, the risk to life, the presence of chemicals and/or hazardous processes, and the amount of water available in relation to the needed fire flow. An effective response force can be established based on risk factors associated with the occupancy.
The ISO batch report lists the needed fire flow (the amount of water required to extinguish a fire if the building was fully involved) for every occupancy in Marina. The following figure lists the properties in Marina with needed fire flows of 3,000 gallons per minute or greater.
Standards of Cover: Deployment Analysis City of Marina Fire Department, CA PAGE 37
Figure 27: Buildings Requiring Fire Flow over 3,000 GPM or More
Standards of Cover: Deployment Analysis City of Marina Fire Department, CA PAGE 38
Public Assembly
Numerous buildings lie within cities in which large numbers of people gather for entertainment and worship. Venues include nightclubs, theaters, and other entertainment facilities that require pre-incident planning. Other examples include large outside festivals or sporting events and should be considered target hazards that may presen t issues for responders because of blocked streets or access to the location.
These facilities and locations present additional hazards , primarily for mass casualty incidents. Fire, criminal mischief, and potentially terrorism could cause a major medical emergency requiring significant emergency services resources. The following figure shows the locations of buildings identified as public assembly facilities within the city.
Figure 28: Public Assembly Facilities
Standards of Cover: Deployment Analysis City of Marina Fire Department, CA PAGE 39
Child Care Facilities
Several childcare facilities exist in Marina. Childcare facilities are of special concern due to the hazards associated with very young children during emergencies. Employees of these facilities must be familiar with required evacuation plans if an emergency occurs during operating hours.
Schools
The Monterey Peninsula Unified School District (MPUSD) serves more than 10,000 students in 24 schools and eight after school learning programs in several cities, including Marina. There is one early childhood learning center, one charter school (grades 7–12), three elementary, one middle, and one high school in Marina’s jurisdiction. Pre-incident planning is necessary to properly prepare for emergencies and allow fire service personnel to become familiar with the building(s).
Student demographics from MPUSD include s 66% considered socioeconomically disadvantaged, 28% learning the English language, and 10% special education students. 26 These demographics can be
considered risk factors because of low-income, which translates to less health care access, thus an increase in medical responses.
California State University Monterey Bay is located along the southern border of the city. While most of the classroom buildings are located in Seaside, several dormitories and apartments for students are in the city. These buildings accounted for 250 false alarms in 2019. MFD should investigate the reason for these false alarms to determine if they are caused by design features or other problems creating the activations.
The following figure shows the locations of public and private school facilities inside or near the city limits of Marina.
26 Monterey Peninsula Unified School District https://www.mpusd.net/.
Standards of Cover: Deployment Analysis City of Marina Fire Department, CA PAGE 40
Figure 29: School Locations
Standards of Cover: Deployment Analysis City of Marina Fire Department, CA PAGE 41
Hospital and Medical Care Facilities
Medical care facilities — particularly hospitals — house vulnerable populations. Although there is not a hospital in Marina, the Veteran’s Administration operates the Major General William H . Gourley Outpatient Clinic. This facility provides basic h ealth care services but not an emergency room. These facilities are generally built of fire -resistive construction with built-in fire suppression, but emergencies can occur that require the quick movement of patients away from the hazard. Smaller medical f acilities such as urgent care clinics or doctor offices may not have built -in fire protection systems. This information should be collected during a pre-incident survey. The following figure shows the location of medical facilities and offices.
Figure 30: Hospitals and Care Facilities27
27 As reported by MFD , April 2019.
Standards of Cover: Deployment Analysis City of Marina Fire Department, CA PAGE 42
Other Critical Infrastructure
In this section, other types of infrastructure critical to a community are discussed in general terms. It is important the fire department plan for emergencies at any of these facilities.
Communications
Emergency communication centers and the associated transmitting and receiving equipment are essential facilities for emergency response. The Marina Fire Department is dispatched by the Monterey County Consolidated Emergency Fire Dispatch Center and accounts for 5.11% of fire incidents in the County. This communication center is equipped with a state-of-the-art computer-aided-dispatch system and has the primary responsibility to receive and process 9 -1-1 calls for service and coordinate the response of emergency equipment and personnel.
The communication center is staffed by full-time telecommunicators and supplemented by professional firefighters. It provides emergency fire and law enforcement dispatch s ervice for the entire County, dispatching for 26 agencies (13 fire and 13 law enforcement).
The communication center is prepared to answer calls from the public who speak various worldwide languages. The State of California provides transfer numbers for translation services for 9-1-1 telephone calls in foreign languages (Spanish, Vietnamese, and Mandarin Chinese) or via telecommunications devices for the deaf. In addition, the Monterey County Dispatch Center subscribes to Voiance Language Line Service, a commercial service providing telephone translation in over 140 languages. EMS incidents are sent to fire telecommunicators and AMR concurrently for dispatch. Emergency Medical Dispatch (EMD), a method used to prioritize responses, is provided by AMR for appr oximately 60% of their incidents. The remaining incidents not using EMD are received from other public safety agencies such as California Highway Patrol.
There is not a back -up dispatch facility or known back -up plan if Monterey County Emergency Communications Center experiences an incident that disrupts dispatch services. Salinas ha d a mobile command unit in its fleet that can receive 9-1-1 call diversions and has been transferred to Monterey County Sheriff’s Department.
There are other communication facilities and equipment equally important to the community and government operations. Telephone company central offices and transmission lines of local service providers are necessary to support the community. Many businesses and residential customers now use internet providers for telephone services. Wireless cellular communication providers provide essential communication capabilities for the community as well as emergency personnel through their facilities and equipment.
Standards of Cover: Deployment Analysis City of Marina Fire Department, CA PAGE 43
Energy
Previously discussed community services, from communications to traffic signals to normal operations, require the use of energy. Whether it is electricity generation and transmission systems, fuel distribution and storage tanks, or natural gas pipelines and regulator stations, the community is dependent upon energy sources. Electrical power is provided by Pacific Gas and Electrical (PGE). PGE operates two high- voltage transmission lines in Marina and two natural gas transmission pipelines.
Water Distribution
The most obvious concern to the fire department is water availability and mains, and fire hydrant system.
Providing sufficient storage, distribution, and access to this valuable firefighting resource through well- distributed fire hydrants is necessary. As shown in the next figure, hydrants are well-distributed through portions of the city.
The Marina Coast Water District (MCWD) provides potable water for drinking and firefighting needs to MFD. The initial system expanded after the closure of Fort Ord in 1997. In 2001, the military transferred the system to MCWD. Combining the two systems has enhanced services and lowered costs for MCWD.
In 2017, MCWD adopted a five -year strategic plan that examined water sources, infrastructure, fiscal planning, strategic partners, employees, and administrative management. The District has an adopted Capital Improvement Plan to maintain, expand, and upgrade the system. 28 All inspections, maintenance,
and repairs of hydrants are completed by MCWD.
28 Marina Coast Water District https://www.mcwd.org/index.html.
Standards of Cover: Deployment Analysis City of Marina Fire Department, CA PAGE 44
Figure 31: Marina Coast Water District Facilities
Standards of Cover: Deployment Analysis City of Marina Fire Department, CA PAGE 45
Figure 32: Fire Hydrants
Standards of Cover: Deployment Analysis City of Marina Fire Department, CA PAGE 46
Structural Hazards
Certain buildings, their contents, functions, and size present a greater firefighting challenge and require special equipment, operations, and training. Information for this section has been drawn from MFD records and the Insurance Services Office (ISO) database.
Hazardous Materials
Buildings that have been identified as containing hazardous materials can create a dangerous environment to the community as well as the firefighters during a spill or fire. Special equipment , such as protective clothing and sensors, along with specialized training, is necessary to mitigate a hazardous materials incident successfully . Any location that has on -site, for any one day in a calendar year, an amount of a hazardous chemical equal to or greater than the following thresh old limits established by the EPA must file information, known as Tier II reports, about each material and the on-site amount with local authorities, planning committees, and the State’s Emergency Response Commission under the Emergency Planning and Commun ity Right-to-Know Act of 1986 (EPCRA), commonly known as SARA Title III:
• Ten-thousand pounds for hazardous chemicals
• Lesser of 500 pounds or the threshold planning quantity for extremely hazardous substances Currently, there are no facilities with Extremely Hazardous Substances (EHS) in Marina. There are other businesses, such as big-box and hardware stores, that sell products considered hazardous materials. Pre- incident plans of these locations should be completed and updated to provide information on types and locations of hazardous substances to responding firefighters.
Standards of Cover: Deployment Analysis City of Marina Fire Department, CA PAGE 47
Figure 33: Hazardous Materials Locations
Standards of Cover: Deployment Analysis City of Marina Fire Department, CA PAGE 48
Buildings Three or More Stories in Height
The Insurance Services Office calls for a ladder truck within 2.5 miles of developed areas containing buildings three or more stories in height. Accessing the upper floors and roof of buildings this tall typically requires ladder truck capability as ground ladders may not provide access. The MFD does not have a ladder truck of its own and must rely on automatic aid for coverage from Monterey County. This discrepancy is noted in the recent ISO classification letter identifying that only 1.56 points were given out of 4.0. The following figure shows the locations of buildings that are three or more stories in height.
Figure 34: Buildings Three or Four Stories in Height
Standards of Cover: Deployment Analysis City of Marina Fire Department, CA PAGE 49
Large Square Footage Buildings
Large buildings, such as warehouses, malls, and large “box” stores, need greater volumes of water for firefighting and require more firefighters to advance hose lines long distances into the building. The following figure is based on data from ISO and shows the locations for buildings 25,000 square feet and larger.
Figure 35: Buildings 25,000 Square Feet and Larger
Standards of Cover: Deployment Analysis City of Marina Fire Department, CA PAGE 50
Comparison of Fire Risk in Other Communities
Using information provided by MFD, recent NFPA reports, and other sources, ESCI compared fire risk in Marina with communities of comparable population across the U.S. The information contained in this section is based on the latest data reported to the NFPA and other sources. As such, the information does not reflect recommended rates or defined fire protection standard s and is provided for illustrative, benchmark purposes only.
Fire Loss
For additional context, United States fire departments responded to an estimated 1,318,500 fires in 2018.
These fires resulted in 3,655 civilian fire fatalities, 15,200 civilian fire injuries, and an estimated $25.6 billion in direct property loss (this figure includes a $12 billion loss in Northern California wildfires). Home fires caused 2,720, or 74%, of the civilian fire deaths .
Figure 36: Fire Losses by Region and Size of Community, 2018 Community Size
150,000–199,999
Number of Fires
Per Thousand Population
Property Loss
Per Capita
Marina 1.77 $35.63
The U.S. 3.7 $78.25
The fire loss for Marina of $35.63 in 2018 is less than half the United States per capita. This rate can vary from year-to-year based on the number and severity of fires. In 2017, the rate decreased to $ 5.33 when the fire loss was $117,375. In smaller communities such as Marina, even a single fire or death can greatly affect annual statistics. T herefore, these numbers should be considered in that context. It was noted during ESCI’s analysis that an incident involving water damage was included in the fire loss values incorrectly. That fire loss was removed for analysis , and it is recommended to begin a quality control process for incident reports.
Arson
Arson is defined as “any willful or malicious burning or attempt to burn, with or without intent to defraud, a dwelling house, public building, motor vehicle or aircraft, personal property of another.” 29 Intentionally set fires should be investigated and tracked to determine if a problem exists. Data from Marina indicates these types of fires were well above the national averages for 2016 and 2017 but decreased substantia lly in 2018. The increase has been attributed to abandoned houses on the closed Ft. Ord property intentionally set on fire. The C ity is currently developing a plan to remove “blight” properties for redevelopment. This will decrease the number of abandoned properties within the city.
29 https://www.ucrdatatool.gov/offenses.cfm.
15.2 13.2
16.2 23.1
40.9 4.4
0 5
10 15
20 25
30 35
40 45
2016 2017 2018
U.S.
Marina
Figure 37: Arson Rate per
100,000 Population
Standards of Cover: Deployment Analysis City of Marina Fire Department, CA PAGE 51
ISO Fire Protection Class Rating
The Insurance Services Office, Inc. (ISO ©) is an independent company that collects and analyzes data about municipal fire suppression efforts in communities throughout the United States. According to their report, the ISO’s Public Protection Classification program, or PPC, “is a proven and reliable predictor of future fire losses.” All other factors being equal, commercial property insurance rates are expected to be lower in areas with lower (better) ISO PPC Class rating.
At the time of the most recent ISO survey, the ISO Fire Suppression Rating Schedule (FSRS) measured four primary elements of a community’s fire protection system: Emergency Communications (max 10 points); Fire Department (max 50 points); Water Supply (max 40 points), and Community Risk Reduction (max 5.5 points) for a maximum possible total of 105.5 points. ISO then assigns a grade using a scale of 1 to 10, with Class 1 representing the highest degree of fire protection, and Class 10 designating a fire suppression program that does not meet ISO's minimum criteria.
In 2019, the City of Marina was assigned an ISO classification of Group 3/3Y. Marina is one of 214 communities out of 892 communities surveyed across the State to achieve a Class 3 rating , as shown in the following figure.
Figure 38: Comparison of ISO Class Ratings, California
37 157
214
179
147
59 17
1 43
29 9
0 50
100
150
200
250
Class 1 Class 2 Class 3 Class 4 Class 5 Class 6 Class 7 Class 8 Class 8B Class 9 Class 10 Standards of Cover: Deployment Analysis City of Marina Fire Department, CA PAGE 52
Community Risk Reduction
Developing a community risk reduction (CRR) should be a goal of every organization. The completion of an assessment provides basic information about hazards in a community. Every department should continue to review their data to determine if specific hazard s are increasing or decreasing based on incident responses. Risks may change as new development occurs in a community and impacts service delivery.
CRR can be defined as, “The identificat ion and prioritization of risks followed by the integrated application of resources to improve public safety and reduce increasing call volumes.” 30 The goal is to
begin the integration of emergency operations with prevention efforts at the fire station lev el, where operations personnel are involved in the process of developing a risk reduction program. The station- level approach is preferred because risks vary from one station to another and can even vary within a station’s district. Simply put, CRR is exam ining problems and developing prevention or mitigation strategies to reduce the hazards.
Figure 39 is a basic methodology offered by Vision 20/20 to identify and analyze risks within a community.31 Vision 20/20’s website (www.strategicfire.org) provides substantial information on how to create a community risk reduction plan.
Figure 39: The Community Risk Assessment Process
30 Vision 20/20.
31 Retrieved from http://strategicfire.org/wp-content/uploads/2016/04/Community-Risk-Assessment-Guide-v1.5.pdf.
Standards of Cover: Deployment Analysis City of Marina Fire Department, CA PAGE 53
MFD offers several risk reduction programs , and information is available on their website. Programs include weed abatement to reduce wildfire hazards, disaster preparedness, building and fire safety to prevent fires. Marina has a Community Emergency Response Team (CERT) to assist in a natural disaster, but it is currently inactive . The department has a partnership with the American Red Cross to install smoke alarms in homes where they are not present or operating properly. They have an open house at the fire station during Fire Prevention Week each year and promote fire safety during the event. MFD has representation on the City’s transportation committee to address pedestrian injuries and deaths.
Each of these risk-reduction programs is intended to improve the health and safety of the citizens of Marina. What is missing is an evaluation to determine if the programs are meeting their intended goal(s).
Any CRR program should have goals with clear timelines and milestones. Using the Vision 20/20 model, MFD can enhance these programs through additional partnerships based on the hazards identified in this assessment. This process will allow them to develop risk reduction programs that focus on the problems they face on a day-to-day basis and specific to Marina.
Fire Inspections
Currently, Marina does not have a schedule for inspections of commercial properties, but only follows requirements set forth by the State of California. Apartment inspections are required but are not being completed. The Fire Chief has the ultimate responsibility of conducting inspections along with his administrative duties. The Chief conducts all rough -in inspections for residential fire sprinkler systems and is assisted by the Deputy Chief . All other final inspections for new construction are conducted by a private contractor . MFD reviews site plans for new construction prior to approval by the Community Development department. An outside contractor provides plan reviews for fire sprinklers, alarms, and commercial hood systems. All schools and hotels are inspected by engine company personnel.
Inspections are tracked with different software packages. New commercial construction is entered in Citizen Serve, which is the software utilized by the Community Development department. This software tracks the project from conception until it has been completed for occupancy. The administrative assistant tracks schools, hotel s, and weed abatement inspections conducted by an engine company.
None of the personnel are certified as an inspector. Business inspections are conducted when a new business license is issued. No periodic inspections of other businesses are completed unles s they fall in any of the previous categories.
A component of CRR is the inspection of commercial properties. When a jurisdiction has not adopted a schedule for required or periodic inspections, priority should be based on identified hazards. Occupancy classifications such as assembly, educational, institutional, high -rise, and hazardous should be considered the highest risks when developing an inspection schedule. Figure 40 provides an example of occupancies and their associated risk and can guid e the development of an inspection schedule. High - risk occupancies should be performed annually, moderate every two years, and low at a three -year interval. Nothing prevents a j urisdiction from adjusting the schedule to meet the needs of the community.
Standards of Cover: Deployment Analysis City of Marina Fire Department, CA PAGE 54
Figure 40: IBC Occupancy Classifications
PRI Risk IBC Group Examples
High
A-1, A-2
A-3, A-4, A-5
H-1, H-2, H-3, H-4, H-
5 B
E
I-1, I-2, I-3, I-4
M
R-1, R-2
Special Risk
(Target hazard)
Nightclub, restaurant, theater, airport/cruise ship terminal Arenas, museums, religious
Hazardous materials sites (Tier II)
All government & public buildings, other office buildings over 2 stories
Schools, daycare centers
Hospitals, assisted living centers, correctional
Strip centers, closed-air shopping malls, big box stores Hotels, motels, dormitories, apartments, board & care
Railroads, Interstate highways, airports
Any building with life safety risk beyond the reach of
preconnected hose lines > 200 feet such as a high-rise
Moderate
B
F-1
M
I-2, R-4
S-1
Outpatient clinics, general business, offices < 3 stories Fabrication or manufacturing of combustible materials
Mercantile, free-standing
Foster group homes, assisted living homes
Storage of combustible materials, car repair, hangars
Low
F-2
R-1
S-2
U
Fabrication or manufacturing of non-combustible materials 1- and 2-family dwellings, foster homes
Storage of combustible materials
Barns, silos, other unclassified
ESCI recommends that the Marina Fire Department establish a schedule to inspect all commercial properties based on the risk associated with the occupancy type. The California State Fire Code requires operational permits for process or storage in an occupancy. Currently, permits are not being issued for these occupancies or are fees assessed. Without the permits being issued, fees are not collected for cost recovery. To properly administer an inspection and operational permitting program, it is recommended that MFD hire a dedicated Fire Inspector. This employee can manage these programs and administer the Department’s CRR program.
Standards of Cover: Deployment Analysis City of Marina Fire Department, CA PAGE 55
HISTORICAL SYSTEM RESPONSE WORKLOAD
Before a full response time analysis is conducted, it is important first to examine the level of workload (service demand) that a fire department experiences. Higher service demands can strain the resources of a department and may result in a negative effect on response time performance.
The following figure shows response workload for the past 8 years. The t otal response workload has increased by 51.4% over the 8 years. The community utilization rate of fire department services was 137.6 incidents per 1,000 population. This is somewhat higher than in other similar urban areas.
Figure 41: Response Workload History, 2010–2019
During 2019, MFD responded to 2,676 incidents. The next figure shows responses by type of incident during 2019. Emergency medical type responses are the most common at 54% of total responses.
Figure 42: Responses by Type of Incident
0 500
1000
1500
2000
2500
3000
2012 2013 2014 2015 2016 2017 2018 2019
Incidents
Fire EMS Other Total
Building fire
0.78%
Emergency
medical
54.45%
False alarm
14.01%
Good intent
8.48%
Hazard
5.68%Motor vehicle
accident
7.06%Other
0.26%
Other fire
1.01%
Public assist
7.88%
Vehicle fire
0.37%
Standards of Cover: Deployment Analysis City of Marina Fire Department, CA PAGE 56
Temporal Analysis
A review of incidents by time of occurrence also reveals when the greatest response demand is occurring.
The following figures show how activity and demand change for MFD based on various measures of time.
The following figure shows response activity during 2017, 2018, and 2019 (study period) by month. There is some variation by month.
Figure 43: Monthly Response Workload
Next, the response workload is compared by the day of the week. Again, there is little variation in response workload by weekday.
Figure 44: Daily Response Workload
0 50
100
150
200
250
300
Jan Feb Mar Apr May Jun Jul Aug Sep Oct Nov Dec
Incidents
2017 2018 2019
0 50
100
150
200
250
300
350
400
450
Sun Mon Tue Wed Thu Fri Sat
Incidents
2017 2018 2019
Standards of Cover: Deployment Analysis City of Marina Fire Department, CA PAGE 57
The time analysis that always shows significant variation is response activity by the hour of the day.
Response workload directly correlates with the activity of people, w ith workload increasing during daytime hours and decreasing during nighttime hours, as shown in the following figure. Incident activity is at its highest between 9:00 a.m. and 9:00 p.m.
Figure 45: Hourly Response Workload
0 20
40 60
80 100
120
140
160
180
200
0 1 2 3 4 5 6 7 8 9 10 11 12 13 14 15 16 17 18 19 20 21 22 23 Incidents
Hour
2017 2018 2019
Standards of Cover: Deployment Analysis City of Marina Fire Department, CA PAGE 58
Spatial Analysis
In addition to the temporal analysis, it is useful to examine the geographic distribution of service demand.
The following figures indicate the distribution of emergency incidents in MFD during 2019.
The first figure displays the number o f incidents per square mile within various parts of the city. The greatest service demand occurs around Marina Fire Station 1.
Figure 46: Service Demand Density, 2019
Standards of Cover: Deployment Analysis City of Marina Fire Department, CA PAGE 59
The preceding figure reflects all calls within the city served by MFD. Service demand can vary by area based on incident type. The following figure displays the location of fires occurring within the MFD service area during 2019. This illustrates that fire incidents are distributed throughout the developed area of the city.
Figure 47: Fires, 2019
Standards of Cover: Deployment Analysis City of Marina Fire Department, CA PAGE 60
Similarly, emergency medical incidents also occur in greater concentration in areas of higher population density. The following figure displays emergency medical incidents per square mile during 2019. Incident concentration follows population density.
Figure 48: Emergency Medical Incidents per Square Mile, 2019
Standards of Cover: Deployment Analysis City of Marina Fire Department, CA PAGE 61
Unit Workload Analysis
A review of workload by response unit can reveal much about response time performance. Although fire stations and response units may be distributed in a manner to provide quick response, that level of performance can only be obtained when the response unit is available in its primary service area. If a response unit is already o n an incident and a concurrent request for service is received, a more distant response unit will need to be dispatched. This will increase response times.
Response Unit Workload
The workload on individual response units during the study period is shown in the following figure. The individual response unit workload can be greater than the workload in its home station area. Many incidents, such as structure fires, require more than one response unit. Engine 5431 is cross -staffed by the on-duty crew. Engine 5412 is staffed only by call-back personnel.
Figure 49: Response Unit Workload
Unit 2017 2018 2019
Engine 5411 1,937 2,255 2,157
Engine 5412 39 28 12
Engine 5431 29 8 11
The amount of time a given unit is committed to an incident is also an important workload factor. The following figure illustrates the average time in minutes each unit was committed to an incident, from initial dispatch until it was available for another incident.
Figure 50: Average Time Committed to an Incident by Unit Unit 2017 2018 2019
Engine 5411 20.82 19.80 20.26
Engine 5412 22.13 20.90 15.52
Engine 5431 25.93 19.39 113.08
Unit hour utilization is an important workload indicator. It is calculated by dividing the total time a unit is committed to all incidents during a year divided by the total time in a year. Expressed as a percentage, it describes the amount of time a unit is not available for response since it is already committed to an incident. The larger the percentage, the greater a unit’s utilization and the less available it is for assignment to an incident.
Unit hour utilization is an important statistic to monitor for those fire agencies using percentil e-based performance standards, as does MFD . In MFD’s case, where performance is measured at the 90 th
percentile, a response unit with greater than 10 % utilization will not be able to provide an on-time response to its 90% target even if response is its only activity.
Standards of Cover: Deployment Analysis City of Marina Fire Department, CA PAGE 62
The only unit with enough workload to evaluate unit hour utilization is Engine 5411. It remains below 10% utilization.
Figure 51: Unit Hour Utilization, Engine 5411
0%
1%
2%
3%
4%
5%
6%
7%
8%
9%
2017 2018 2019
7.67%
8.49% 8.32%
Engine 5411 unit hour utilization
Standards of Cover: Deployment Analysis City of Marina Fire Department, CA PAGE 63
Population and Incident Workload Projection
The most significant predictor of future incident workload is population; 100% of requests for emergency medical services are people-driven. The National Fire Protection Association reports that approximately 70% of all fires are the result of people either doing something they should not have (i.e., misuse of ignition source) or not doing something they should have (i.e., failure to maintain equipment). It is reasonable to use forecast population growth to predict future fire department response workload.
The current population of the City of Marina is 22,535. The City provided a population forecast. Marina’s population is forecast to grow to 30,510 by 2040.
The current fire department services utilization rate is 137.6 incidents per 1,000 popul ation. The total utilization rate has increased by 51.4% over the last 8 years.
If the utilization growth rate of the past eight years continues, the total utilization rate could reach 189.4 incidents per 1,000 population. The increased utilization rate, plus expected population growth, will increase the MFD’s workload to as many as 5,700 incidents by the year 2040, driven primarily by requests for emergency medical services.
Several new developments within the city may increase the future population even more. Each is in various levels of completion.
• Sea Haven – 1,050 dwelling units
• The Dunes – 1,237 dwelling units
• Marina Station – 1,360 dwelling units
MFD will need to monitor these and future developments to track the impact on emergency services.
Standards of Cover: Deployment Analysis City of Marina Fire Department, CA PAGE 64
CRITICAL TASKING AND ALARM ASSIGNMENTS
The MFD service area is a highly populated urban environment and, as such, contains an elevated number, density, and distribution of risk. As the actual or potential risk increases, the need for higher numbers of personnel and apparatus also increases. With each type of incident and corresponding risk, specific critical tasks need to be accomplished , and certain numbers and types of apparatus should be dispatched.
Tasks that must be performed at a fire can be broken down into two key components: life safety and fire flow. Life safety tasks are based on the number of building occupants, and their location, status, and ability to take self -preservation action. Life safety -related tasks involve the s earch, rescue, and evacuation of victims. The fire flow component involves delivering sufficient water to extinguish the fire and create an environment within the building that allows entry by firefighters.
The number and types of tasks needing simultaneou s action will dictate the minimum number of firefighters required to combat different types of fires. In the absence of adequate personnel to perform concurrent action, the commanding officer must prioritize the tasks and complete some in chronological order, rather than concurrently. These tasks include the following:
• Command
• Scene safety
• Search and rescue
• Fire attack
• Water supply
• Pump operation
• Ventilation
• Backup/rapid intervention
Critical task analyses also apply to non-fire-type emergencies, including medical, technical rescue, and hazardous materials emergencies. Numerous simultaneous tasks must be completed to control an emergency effectively. The department’s ability to muster needed numbers of trained personnel quickly enough to make a difference is critical to successful incident outcomes.
The following figure illustrates the minimum emergency incident staffing recommendations of the Commission on Fire Accreditation, International. The following definitions apply to the figure:
• Low-Risk: Minor incidents involving small fires (fire flow less than 250 gallons per minute), single patient non-life-threatening medical incidents, minor rescues, small fuel spills, and small wildland fires without unusual weather or fire behavior. • Moderate-Risk: Moderate-risk incidents involving fires in single-family dwellings and equivalently sized commercial office properties (fire flow between 250 gallons per minute to 1,000 gallons per minute), life-threatening medical emergencies, hazardous materials emergencies requiring specialized skills and equipment, rescues involving specialized skills and equipment, and larger wildland fires.
• High-Risk: High-risk incidents involving fires in larger commercial properties with a sustained attack (fire flows more than 1,000 gallons per minute), multiple patient medical incidents, major releases of hazardous materials, high-risk rescues, and wildland fires with extreme weather or fire behavior.
Standards of Cover: Deployment Analysis City of Marina Fire Department, CA PAGE 65
Figure 52: Staffing Recommendations Based on Risk
Incident Type High
Risk
Moderate
Risk
Low
Risk
Structure Fire 29 15 6
Emergency Medical Service 12 4 2
Rescue 15 8 3
Hazardous Materials 39 20 3
The MFD has developed the following Critical Task Analysis for various incident types. Further, it has defined, based on current unit staffing levels, the number and type of apparatus needed to deliver sufficient numbers of personnel to meet the critical tasking identified. ESCI’s review of the Critical Task Analysis concludes that all are generally in keeping with industry standards and provide the minimum number of personnel needed for effective incident operations.
Establishing resource levels needed for various types of emergencies is a uniquely local decision. Factors influencing local decisions for incident staffing include the type of equipment operated, training levels of responders, operating procedures, geography, traffic, and the nature of buildings and other hazards protected.
Critical Task Analysis
Critical tasks are those activities that must be conducted early on and in a timely manner by firefighters at emergency incidents in order to control the situation, to stop loss, and to perform necessary tasks required for a medical emergency. MF D is responsible for en suring that responding companies are capable of performing all of the described tasks in a prompt, efficient, and safe manner. These are the minimum number of personnel needed by incident type. More personnel will be needed for incidents of increased complexity or size.
Figure 53: Low-Rise Structure Fire
Task Number of Personnel
Command/Safety 1
Pump Operations 3
Attack Line 2
Search and Rescue/Back up Line 2
Ventilation 3
IRIC 2
Non-Suppression Medic Amb 2
Total 15
Standards of Cover: Deployment Analysis City of Marina Fire Department, CA PAGE 66
Figure 54: Moderate-Risk Commercial Structure Fire
Task Number of Personnel
Command/Safety 2
Pump Operations 3
Attack Line 4
Search and Rescue/Back-up Line 4
Ventilation 3
RIC 4
Non-Suppression Medic Amb 2
Total 22
Figure 55: High-Risk Commercial Structure Fire
Task Number of Personnel
Command/Safety 2
Pump Operations 4
Attack Line 9
Search and Rescue/Back-up Line 3
Ventilation 3
RIC 4
Non-Suppression Medic Amb 2
Total 27
Figure 56: Wildland Fire— Low Risk
Task Number of Personnel
Command/Safety 1
Pump Operations 1
Attack Line 2
Total 4
Figure 57: Wildland Fire— High Risk
Task Number of Personnel
Command/Safety 1
Pump Operations 2
Attack Line 4
Structure Protection 3
Water Supply 2
Total 12
Standards of Cover: Deployment Analysis City of Marina Fire Department, CA PAGE 67
Figure 58: Aircraft Emergency
Task Number of Personnel
Command/Safety 1
Aircraft Fire Suppression 4
Pump Operations 6
Backup Line 4
Rescue 3
Emergency Medical Care 2
Water Supply 2
Total 22
Figure 59: Hazardous Materials— Low Risk
Task Number of Personnel
Pump and Attack Line 3
Total 3
Figure 60: Hazardous Materials— High Risk
Mutual aid will be requested f rom the County Haz -Mat Team and the County Health Department Hazardous Materials Technician. Marina Fire would respond as initial responder and FRO activities as needed per Haz-Mat Team.
Task Number of Personnel
Command 1
Safety 1
Decontamination 3
Research Support/Tech Spec 2
Team Leader, Safety, Entry Team,
and Backup Team 7
Total 14
Figure 61: Emergency Medical Aid (Life Threatening)
Task Number of Personnel
Patient Management (AMR) 2
Patient Care 2
Documentation 1
Total 5
Standards of Cover: Deployment Analysis City of Marina Fire Department, CA PAGE 68
Figure 62: Major Medical Response (10+ Patients)
Task Number of Personnel
Incident Command/Safety 1
Triage Manager 1
Treatment Manager 1
Patient Care 20
Transportation Manager 1
AMR Supervisor 1
Medic Units 10
Total 35
Figure 63: Motor Vehicle Accident (Non-Trapped)
Task Number of Personnel
Scene Management/Documentation 1
Patient Care/Extrication 2
Non-Suppression Medic Unit 2
Total 5
Figure 64: Motor Vehicle Accident (Trapped)
Task Number of
Personnel
Command/Safety 1
Patient Care 2
Extrication/Vehicle Stabilization 3
Pump Operator/Suppression Line 1
Non-Suppression Medic Amb 2
Total 9
Standards of Cover: Deployment Analysis City of Marina Fire Department, CA PAGE 69
Figure 65: Technical Rescue— Beach Rescue
Task Number of Personnel
Command/Safety 1
Rescue Team / Life Guard 3
Backup Team 2
Patient Care 2
Rescue Boat 2
Total: MFD is Awareness Level.
Operations requires Mutual Aid. 10
Figure 66: Technical Rescue— Rope
Task Number of Personnel
Command/Safety 1
Rescue Team 2
Backup/Support Team 2
Patient Care 2
Rigger 1
Attendant 1
Ground Support 4
Edge Person 1
Total 14
Figure 67: Technical Rescue— Confined Space
Task Number of Personnel
Command/Safety 1
Rescue Team 2
Backup/Support Team 2
Patient Care 2
Attendant 1
Rigger 1
Ground Support 4
Total: MFD is Awareness Level.
Operations requires Mutual Aid 13
Standards of Cover: Deployment Analysis City of Marina Fire Department, CA PAGE 70
Alarm Assignments
To ensure sufficient personnel and apparatus are dispatched to an emergency event , the following first alarm response assignments have been established. “Total Staffing Needed” is the number identified in the previous Critical Tasking Analysis. The number of personnel and apparatus required to mitigate an active and complex working incident will require additional resources above and beyond the numbers listed next. With currently available resources, MFD is able to staff a number of incident types in accordance with its Critical Tasking Analysis.
Figure 68: Low-Rise Structure Fire
Unit Type Number of Units Total Personnel
Engine 3 10
Truck 1 3
Squad 1 2
Duty Chief 1 1
Non-Suppression Medic Ambulance 1 2
Total Staffing Provided 18
Total Staffing Needed 15
Figure 69: Moderate-Risk Commercial Structure Fire
Unit Type Number of Units Total Personnel
Engine 3 10
Truck 2 7
Squad 1 2
Duty Chief 2 2
Non-Suppression Medic Amb 1 2
Total Staffing Provided 23
Total Staffing Needed 22
Figure 70: High-Risk Commercial Structure Fire
Unit Type Number of Units Total Personnel
Engine 4 13
Truck 2 7
Squad 1 2
Duty Chief 2 2
Non Suppression Medic Amb 1 2
Total Staffing Provided 26
Total Staffing Needed 27
Standards of Cover: Deployment Analysis City of Marina Fire Department, CA PAGE 71
Figure 71: Wildland Fire— Low Risk
Unit Type Number of Units Total Personnel
Engine 1 3
Duty Chief 0 0
Total Staffing Provided 3
Total Staffing Needed 3
Figure 72: Wildland Fire— High Risk
Unit Type Number of Units Total Personnel
Brush Engine Type 3 1 3
Type 1 Engine 2 6
Water Tender 1 2
Duty Chief 1 1
Total Staffing Provided 12
Total Staffing Needed 12
Figure 73: Aircraft Emergency
Unit Type Number of Units Total Personnel
Engine 4 13
Truck 1 3
Squad 1 2
Non-Suppression Medic Amb 1 2
Duty Chief 1 1
Total Staffing Provided 21
Total Staffing Needed 22
Figure 74: Hazardous Materials— Low or High Risk
Unit Type Number of Units Total Personnel
Engine 1 3
Truck
Duty Chief
Total Staffing Provided 3
Total Staffing Needed 3
Standards of Cover: Deployment Analysis City of Marina Fire Department, CA PAGE 72
Figure 75: Emergency Medical Service (Life Threatening) Unit Type Number of Units Total Personnel
Engine or Truck 1 3
Total Staffing Provided 3
Total Staffing Needed 3
Figure 76: Major Medical Response (10+ Patients)
Unit Type Number of Units Total Personnel
Engine 6 18
Squad 1 2
Truck or Engine 0 0
Non-Suppression Medic Unit 6 12
Non-Suppression EMS Supervisor 1 1
Total Staffing Provided 33
Total Staffing Needed 35
Figure 77: Motor Vehicle Accident (Non-Trapped)
Unit Type Number of Units Total Personnel
Engine or Truck 1 3
Non-Suppression Medic Unit 1 2
Total Staffing Provided 5
Total Staffing Needed 5
Figure 78: Motor Vehicle Accident (Trapped)
Unit Type Number of Units Total Personnel
Engine 1 3
Squad 1 2
Non-Suppression Medic Unit 1 2
Duty Chief 1 1
Total Staffing Provided 8
Total Staffing Needed 9
Standards of Cover: Deployment Analysis City of Marina Fire Department, CA PAGE 73
Figure 79: Technical Rescue— Beach Rescue
Unit Type Number of Units Total Personnel
Engine 1 3
Duty Chief 1 1
Mutual Aid, if Warranted 3 5
Non-Suppression Medic Unit 1 2
Total Staffing Provided 11
Total Staffing Needed 10
Figure 80: Technical Rescue— Rope
Unit Type Number of Units Total Personnel
Engine 1 3
USAR Team 1 8
Duty Chief 1 1
Non-Suppression Medic Unit 1 2
Total Staffing Provided 14
Total Staffing Needed 14
Figure 81: Technical Rescue— Confined Space
Unit Type Number of Units Total Personnel
Engine 1 3
US&R 1 8
Duty Chief 1 1
Non-Suppression Medic Unit 1 2
Total Staffing Provided 14
Total Staffing Needed 13
Figure 82: Technical Rescue— Trench
Unit Type Number of Units Total Personnel
Engine 1 3
US&R Team 1 8
Duty Chief 1 1
Non-Suppression Medic Unit 1 2
Total Staffing Provided 14
Total Staffing Needed 13
Standards of Cover: Deployment Analysis City of Marina Fire Department, CA PAGE 74
REVIEW OF HISTORICAL SYSTEM PERFORMANCE
Incident data for the period between January 1, 201 7, and December 31, 201 9 (study period) , was evaluated in detail to determine MFD’s current performance. Data was obtained from MFD incident reports and the dispatch center’s computer-aided dispatch system.
Only priority incidents occurring within the MFD service area are included in the analysis. Priority incidents involve emergencies to which the fire department initiated a “code 3” (using warning lights and sirens) response (1,720 incidents during 2017, 1,819 during 2018, and 2,156 during 2019). Non-emergency public assistance requests were excluded. Performance is reported based on the initial type of incident as dispatched. Three categories are used to report performance:
• Fire— Responses to a report of fire or other hazardous incident. • Emergency medical— All emergency medical incidents.
• Other— Any other incident to which the fire department responded with lights and sirens.
Each phase of the incident response sequence was evaluated to determine the current performance. This allows an analysis of each individual phase to determine where opportunities might exist for improvement.
The total incident response time continuum consists of several steps, beginning with the initiation of the incident and concluding with the appropriate mitigation of the incident. The time required for each of the components varies. The policies and practices of the fire department directly influence so me of the steps.
MFD’s response performance was compared to its own adopted goals. These goals match those found in the national consensus standard for response performance ; the National Fire Protection Association Standard 1710: Standard for the Organization and Deployment of Fire Suppression Operations, Emergency Medical Operations, and Special Operations to the Public by Career Fire Departments , 2016 Edition. The dispatch center’s performance was compared to the MFD ’s goals as well as standards found in the National Fire Protection Association Standard 1221: Standard for the Installation, Maintenance, and Use of Emergency Services Communications Systems, 2019 Edition.
Standards of Cover: Deployment Analysis City of Marina Fire Department, CA PAGE 75
The following figure summarizes the performance standards found in the National Fire P rotection Association (NFPA) documents.
Figure 83: Summary of MFD Performance Goals
Incident Interval Performance Goal
9-1-1 call answer time (time from first ring to answer). Within 15 seconds, 90% of the time Call process time (time from acceptance at the dispatch center until notification of response units). Within 60 seconds, 90% of the time Turnout time (time from notification of response
personnel until the initiation of movement towards the
incident).
Fire incidents and special operations incidents
All other emergency incidents
Within 80 seconds, 90% of the time
Within 60 seconds, 90% of the time
First unit travel time (time from initiation of response until arrival of the first unit at the incident).
Within 4 minutes, 90% of the time
First unit response time (time from dispatch until arrival of the first unit at the incident).
Fire incidents and special operations incidents
All other emergency incidents
Within 5 minutes, 20 seconds, 90% of the time
Within 5 minutes, 90% of the time
Full effective response force travel time (time from
dispatch until all units initially dispatched arrive at the incident. Response resources needed for a low-rise
building fire are used for the evaluation.)
Within 9 minutes, 20 seconds, 90% of the time
In keeping with NFPA Standards 1710 and 1221 and MFD’s performance goals, all response time elements are reported at a given percentile. Percentile reporting is a methodology by which response times are sorted from least to greatest, and a “line” is drawn at a certain percentage of the calls to determine the percentile. The point at which the “line” crosses the 90th percentile, for example, is the percentile time performance. Thus, 90% of the times were at or less than the result. Only 10% were longer.
Percentile differs greatly from average. Averaging calculates response times by adding all response times together and then dividing the total number of minutes by the total number of responses (mean average). Measuring and reporting average response times is not recommended. Using averages does not give a clear picture of response performance because it does not clearly identify the number and extent of events with times beyond the stated performance goal.
What follows is a detailed description and review of each phase of the response time continuum. A ll phases will be compared to MFD’s performance goals.
Standards of Cover: Deployment Analysis City of Marina Fire Department, CA PAGE 76
Detection
The detection of a fire (or medical incident) may occur immediately if someone happens to be present or if an automatic system is functioning. Otherwise, detection may be delayed, sometimes for a considerable period. The time period for this phase begins with the inception of the emergency and ends when the emergency is detected. It is largely outside the control of the fire department and not a part of the event sequence that is reliably measurable.
Call Processing
Most emergency incidents are reported by telephone to the 9 -1-1 center. Call takers must quickly elicit accurate information about the nature and location of the incident from persons who are apt to be excited. A citizen well-trained in how to report emergencies can reduce the time required for this phase.
The dispatcher must identify the correct units based on incident type and location, dispatch them to the emergency, and continue to update information about the emergency while th e units respond. This phase begins when the 9-1-1 call is answered at the primary public safety answer point (PSAP) and ends when response personnel are notified of the emergency. This phase, which has two parts, is labeled “call processing time.”
Monterey County Emergency Communications (MCEC), is the PSAP and dispatch service provider for the Marina. It answers the call, processes the information, and dispatches MFD response units.
National Fire Protection Association Standard 1221 recommends that 9- 1-1 calls be answered within 15 seconds, 90% of the time (within 20 seconds, 95 % of the ti me). MCEC reports that during 2019 they answered calls within 15 seconds 95.5% of the time.
The second part of call processing time, dispatch time, begins when the call is received at the dispatch center (MCEC) and ends when response units are notified of the incident. MFD standards prescribe that this phase should occur within 60 seconds, 90% of the time.
Standards of Cover: Deployment Analysis City of Marina Fire Department, CA PAGE 77
The following figure illustrates performance by MCEC from the time it receives the call until it notifies response units. Overall performance during 2019 was within 1 minute, 17 seconds, 90% of the time, more than MFD’s goal.
Figure 84: MCEC Dispatch Time Performance
The w orkload at the d ispatch center can influence call processing performance. The following figure illustrates performance at different times of the day compared to the fire department’s response workload. It does not appear that workload is impacting dispatch center performance.
Figure 85: Call Processing Time by Hour of Day, 2019
0:00
0:30
1:00
1:30
2:00
2:30
3:00
EMS Fire Other EMS Fire Other EMS Fire Other
2017 2018 2019
2:21
2:47 2:53
1:13
1:49
1:35
1:09
1:47 1:38
Call processing minutes
0 20
40 60
80 100
120
140
160
0:00
0:30
1:00
1:30
2:00
2:30
0 1 2 3 4 5 6 7 8 9 10 11 12 13 14 15 16 17 18 19 20 21 22 23 Incidents
Call process minutes
Hour
Call process Incidents
Standards of Cover: Deployment Analysis City of Marina Fire Department, CA PAGE 78
Turnout Time
Turnout time is a response phase controllable by the fire department. This phase begins at the notification of an emergency in progress by the dispatch center and ends when personnel and apparatus begin movement towards the incident location. Personnel must don appropriate personal protective equipment (PPE), assemble on the response vehicle, and begin travel to the incident. Good training and proper fire station design can minimize the time required for this step.
The performance goal for turnout time is within 80 seconds , 90% of the time for fire and special operations incidents, within 60 seconds, 90% of the time for all other priority emergency incidents. The following figure lists turnout time for all incidents as well as specific incident types. Turnout times for all incident types exceed standards . During 2019, turnout time for fire incidents was within 2 minutes, 28 seconds, 90% of the time, within 2 minutes, 2 seconds, 90% of the time for EMS incidents, and within 2 minutes, 39 seconds, 90% of the time for other incidents.
Figure 86: Turnout Time Performance
0:00
0:30
1:00
1:30
2:00
2:30
3:00
EMS Fire Other EMS Fire Other EMS Fire Other
2017 2018 2019
2:00
2:31
2:08 2:01
2:10 2:12
2:02
2:28
2:39
Turnout minutes
Standards of Cover: Deployment Analysis City of Marina Fire Department, CA PAGE 79
Turnout time can vary by the hour of the day. In this case, turnout time varied by 78 seconds between the early morning hours and daytime hours.
Figure 87: Turnout Time by Hour of Day, 2019
0 20
40 60
80 100
120
140
160
0:00
0:30
1:00
1:30
2:00
2:30
3:00
3:30
4:00
0 1 2 3 4 5 6 7 8 9 10 11 12 13 14 15 16 17 18 19 20 21 22 23 Incidents
Turnout minutes
Hour
Turnout Incidents
Standards of Cover: Deployment Analysis City of Marina Fire Department, CA PAGE 80
Distribution and Initial Arriving Unit Travel Time
Travel time is potentially the longest of the response phases. The distance between the fire station and the location of the emergency influences response time the most. The quality and connectivity of streets, traffic, driver training, geography, and environmental conditions are also factors. This phase begins with the initial apparatus movement towards the incident location and ends when response personnel and apparatus arrive at the emergency’s location. Within the performance goal, four minutes is allowed for the first response unit to arrive at an incident.
The following figure illustrates the street sections that can be reached from the MFD fire station and neighboring stations in four minutes of travel time. It is based on posted road speeds modified to account for turning, stops, and acceleration.
Figure 88: Initial Unit Four Minute Travel Time Capability
Standards of Cover: Deployment Analysis City of Marina Fire Department, CA PAGE 81
MFD recently staffed Station 2 with a two -person rescue. The following figure shows the area served when its four -minute travel coverage is included. Note that this did not improve coverage for the first due fire engine, only the first unit of any type.
Figure 89: Initial Unit Four Minute Travel Time Capability with Station 2
Standards of Cover: Deployment Analysis City of Marina Fire Department, CA PAGE 82
The following figure lists travel time for all priority incidents as well as specific incident types. MFD’s travel times exceed its goal in all incident types . Travel time for all incidents during 201 9 was within 6 minutes, 52 seconds, 90% of the time.
Figure 90: Travel Time Performance— First Arriving Unit
Travel time can vary considerably by the time of the day. Heavy traffic during morning and evening rush hours can slow fire department response. Concurrent incidents can also increase travel time since units from more distant stations would need to respond. Traffic does not appear to be a factor here as daytime travel was shorter than nighttime.
Figure 91: Overall Travel Time and Incidents by Hour of Day— First Arriving Unit, 2019
0:00
2:00
4:00
6:00
8:00
10:00
EMS Fire Other EMS Fire Other EMS Fire Other
2017 2018 2019
6:48
7:48 7:24 6:47
7:43
6:58 6:51
8:42
6:32
Travel minutes
0 20
40 60
80 100
120
140
160
0:00
2:00
4:00
6:00
8:00
10:00
0 1 2 3 4 5 6 7 8 9 10 11 12 13 14 15 16 17 18 19 20 21 22 23 Incidents
Travel minutes
Hour
Travel Incidents
Standards of Cover: Deployment Analysis City of Marina Fire Department, CA PAGE 83
To provide an on-time response, a response unit must be within four travel minutes of the incident.
Incidents were reviewed to identify how many occurred within four travel minutes of a fire station. During 2019, 2,027 of the 2,553 incidents within the MFD service area (79.4%) occurred within four travel minutes of a fire station. With Station 2 now added, 2,202 of 2,553 incidents (86.2%) would have been within four travel minutes of a fire station.
First Arriving Unit Response Time
Response time is defined as that period between the notification of response personnel by the dispatch center that an emergency is in progress until the arrival of the first fire department response unit at the emergency. When turnout time and travel time are combined, the performance goal for response time is within 5 minutes, 20 seconds, 90% of the time for fire and special operations incidents, and within 5 minutes, 90% of the time for all other priority incidents.
The following figure illustrates the response time for all priority incidents as well as specific incident types. Overall, response time for all priority incidents was within 8 minutes, 10 seconds, 90% of the time during 2019.
Figure 92: Response Time Performance— First Arriving Unit
The next figure shows response time and the number of incidents by the hour of the day for all incidents.
Response time is slowest during the nighttime hours and fastest during the day. Generally, MFD ’s best response times occur during the period of the day when response activity is at its highest. 0:00
2:00
4:00
6:00
8:00
10:00
12:00
EMS Fire Other EMS Fire Other EMS Fire Other
2017 2018 2019
7:51
9:31
8:54 8:02
9:49
8:33 8:02
10:03
7:54
Response minutes
Standards of Cover: Deployment Analysis City of Marina Fire Department, CA PAGE 84
Figure 93: Hourly Response Time Performance, 2019
First Arriving Unit Received to Arrival Time
From the customer’s standpoint, response time begins when the emergency occurs. Their first contact with emergency services is when they call for help, usually by dialing 9 -1-1. Received to arrival time combines call processing, turnout, and travel time. When the performance goals are combined, received to arrival ti me should be within 6 minutes , 20 seconds, 90% of the time for fire and special operations incidents, and within 6 minutes, 90% of the time for all other priority incidents.
The next figure shows received to arrival performance for priority incidents within the MFD service area.
Overall, received to arrival time was within 9 minutes, 4 seconds, 90% of the time during 2019.
Figure 94: Received to Arrival Time— First Arriving Unit
0 20
40 60
80 100
120
140
160
0:00
2:00
4:00
6:00
8:00
10:00
12:00
0 1 2 3 4 5 6 7 8 9 10 11 12 13 14 15 16 17 18 19 20 21 22 23 Incidents
Response minutes
Hour
Response Incidents
0:00
2:00
4:00
6:00
8:00
10:00
12:00
14:00
EMS Fire Other EMS Fire Other EMS Fire Other
2017 2018 2019
9:47
12:30
11:29
9:08
11:01
9:33 9:00
10:51
8:55
Received to arrival minutes
Standards of Cover: Deployment Analysis City of Marina Fire Department, CA PAGE 85
The next figure shows received to arrival performance by time of day also compared to incident activity by time of day. Received to arrival, from the customer’s standpoint, is quickest during the day and slowest during the early morning hours.
Figure 95: Hourly Received to Arrival Performance, 2019
Concentration and Effective Response Force Capability Analysis Effective Response Force (ERF) is the number of personnel and apparatus required to be present on the scene of an emergency incident to perform the critical tasks in such a manner to effectively mitigate the incident without unnecessary loss of life and/or property. The ERF is specific to each individual type of incident and is based on the critical tasks that must be performed.
The response time goal for the delivery of the full ERF to a building fire is within 9 minutes , 20 seconds, 90% of the time. MFD has defined the minimum full effective response force for low rise building fires as three fire engines, one truck, and one Division Chief and a total of 16 firefighters. Higher risk fires require additional apparatus and personnel.
No data is available to identify if building fires by type of risk ( low-rise, high-risk commercial, etc.). All building fires have been evaluated using the low -rise effective response force criteria. The following figure illustrates effective response performance during the study period. The effective response force was delivered to 11 building fires during the study period . The following figure illustrates the time required to deliver the effective response force of apparatus to each of these fires. 0 20
40 60
80 100
120
140
160
0:00
2:00
4:00
6:00
8:00
10:00
12:00
0 1 2 3 4 5 6 7 8 9 10 11 12 13 14 15 16 17 18 19 20 21 22 23 Incidents
Received to arrival minutes
Hour
Received to arrival
Incidents
Standards of Cover: Deployment Analysis City of Marina Fire Department, CA PAGE 86
Figure 96: Effective Response Force Performance
Year Time to Effective
Response Force Arrival
2017 26:59
2017 10:58
2017 13:05
2017 08:46
2017 11:37
2017 25:12
2017 21:33
2018 18:12
2019 19:29
2019 17:03
2019 14:58
Concentration analysis reviews the physical capability of MFD’s resources to achieve its target ERF travel time to its service area. The following figures depict the physical capability of MFD to assemble apparatus and firefighters by area within an eight-minute travel time. The modeled analysis shown assumes that all response units are available. Included is the Marina airport station recently staffed with a rescue and two firefighters.
The first figure shows the area that can be reached by the various numbers of firefighters. Eight minutes of travel time is allowed to assemble the defined full effective response force on-scene. Since automatic aid resources are required to deliver an effective response force, this figure include s the resources of adjacent agency stations. The minimum complement of 16 firefighters needed for a low-rise residential fire cannot be provided to any part of the city.
Standards of Cover: Deployment Analysis City of Marina Fire Department, CA PAGE 87
Figure 97: Effective Response Force— Firefighters
Standards of Cover: Deployment Analysis City of Marina Fire Department, CA PAGE 88
The next figure shows the area to which three fire engines, one truck, and a Division Chief can respond within eight minutes of travel time. The model indicates these resources cannot be delivered within eight minutes of travel to any portion of the city.
Figure 98: Effective Response Force— Apparatus, Low Rise Fire
Standards of Cover: Deployment Analysis City of Marina Fire Department, CA PAGE 89
Second Unit Arrival Time
MFD fire engines are staffed with three personnel. Safety regulations require that at least four firefighters be on-scene before firefighters can enter a burning building. The only exception is if it is known that a person is inside the building and needs rescue. Current staffing levels on engines require the arrival of a second response unit before non-rescue interior firefighting activities can be initiated.
Incident data for building fires during the study period were reviewed to determine the time the second response unit arrived on the scene. According to the data, the second unit arrived on-scene of a structure fire within 5 minutes, 44 seconds, 90% of the time after the arrival of the first unit (3 minutes, 24 seconds on average).
Incident Concurrency and Reliability
When evaluating the effectiveness of any resource deployment plan, it is necessary to evaluate the workload of the individual response units to determine to what extent their availability for dispatch is affecting the response time performance. In simplest terms, a response unit cannot make it to an incident across the street from its own station in four minutes if it is unavailable to be dispatched to that incident because it is committed to another call.
Concurrency
One way to look at resource workload is to examine the number of times multiple incidents happen within the same time frame. Incidents during the study period were examined to determine the frequency of concurrent incidents. This is important because c oncurrent incidents can stretch available resources and delay response to other emergencies. This factor significantly impacts total response times to emergencies in the jurisdiction.
The following figure shows the number of times that one or more incidents occurred concurrently. This shows that 2,376 times during 201 9, only one incident was in progress at a time. However, 284 times there were two incidents in progress at the same time; 15 times there were three incidents in progress at the same time; and once there were four incidents in progress at the same time.
Figure 99: Incident Concurrency
No. of Incidents 2019
1 2,376
2 284
3 15
4 1
Standards of Cover: Deployment Analysis City of Marina Fire Department, CA PAGE 90
It is also useful to review the number of times one or more response units are committed to incidents at the same time. Since MFD only operated one response unit during the study period, response units from other agencies were included. The following figure shows the number of times one or more MFD and other agency response units were committed to incidents within Marina . It is common for multiple response units to be simultaneously committed to incidents , with two and three concurrent responses occurring regularly.
Figure 100: Response Unit Concurrency
Concurrent
Unit Responses 2019
1 2,444
2 453
3 95
4 33
5 10
6 9
7 5
8 1
Standards of Cover: Deployment Analysis City of Marina Fire Department, CA PAGE 91
PERFORMANCE OBJECTIVES AND PERFORMANCE MEASURES
Dynamics of Fire in Buildings
Most fires within buildings develop predictably unless influenced by highly flammable material. Ignition, or the beginning of a fire, starts the sequence of events. It may take several minutes or even hours from the time of ignition until a flame is visible. This smoldering stage is very dangerous, esp ecially during times when people are sleeping, because large amounts of highly toxic smoke may be generated during this phase.
Once flames do appear, the sequence continues rapidly. Combustible material adjacent to the flame heat and ignite, which, in turn, heats and ignites other adjacent materials if sufficient oxygen is present. As the objects burn, heated gases accumulate at the ceiling of the room. Some of the gases are flammable and highly toxic.
The spread of the fire from this point continues quickly. Soon, the flammable gases at the ceiling, as well as other combustible material in the room of origin , reach ignition temperature. At that point, an event termed “flashover” occurs; the gases and other material ignite, which , in turn, ignites everything in the room. Once flashover occurs, damage caused by the fire is significant , and the environment within the room can no longer support human life. Flashover usually occurs about five to eight minutes from the appearance of flame in typically furnished and ventilated buildings. Because flashover has such a dramatic influence on the outcome of a fire event, the goal of any fire agency is to apply water to a fire before flashover occurs.
Although modern codes tend to make fires in newer structures more infrequent, today’s energy-efficient construction (designed to hold heat during the winter) also tends to confine the heat of a hostile fire. In addition, research has shown that modern furnishings generally ignite more quickly and burn hotter (due to synthetics). In the 1970s, scientists at the National Institute of Standards and Technology found that after a fire broke out, building occupants had about 17 minutes to escape before being overcome by heat and smoke. Today, that estimate is as short as three minutes. 32 The necessity of effective early warning
(smoke alarms), early suppression (fire sprinklers), and firefighters arriving on the scene of a fire in the shortest span of time is more critical now than ever.
The prompt arrival of at least four personnel is c ritical for structure fires. Federal regulations (CFR 1910.120) require that personnel entering a building involved in fire must be in groups of two. Further, before personnel can enter a building to extinguish a fire, at least two personnel must be on scene and assigned to conduct search and rescue in case the fire attack crew becomes trapped. This is referred to as the two-in, two-out rule.
32 National Institute of Standards and Technology, Performance of Home Smoke Alarms, Analysis of the Response of Several Available Technologies in Residential Fire Settings, Bukowski, Richard, et al.
Standards of Cover: Deployment Analysis City of Marina Fire Department, CA PAGE 92
However, if it is known that victims are trapped inside the building, a rescue attempt can be performed without additional personnel ready to intervene outside the structure. Further, there is no requirement that all four arrive on the same response vehicle. Many fire departments rely on more than one unit arriving to initiate an interior fire attack.
Perhaps as important as preventing flashover is the need to control a fire before it does damage to the structural framing of a building. Materials used to construct buildings today are often less fire -resistive than the heavy structural skeletons of older frame buildings. Roof trusses and floor joists are commonly made with lighter materials that are more easily weakened by the effects of fire. “Lightweight” roof trusses fail after five to seven minutes of direct flame impingement. Plywood I-beam joists can fail after as little as three minutes of flame contact. This creates a dangerous environment for firefighters.
In addition, the contents of buildings today have a much greater potential for heat production than in the past. The widespread use of plastics in furnishings and other building contents rapidly accelerate s fire spread and increases the amount of water needed to control a fire effectively. All of these factors make the need for early application of water essential to a successful fire outcome.
The following figure illustrates the sequence of events during the growth of a structure fire over time.
Figure 101: Fire Growth versus Reflex Time
Standards of Cover: Deployment Analysis City of Marina Fire Department, CA PAGE 93
As is apparent by this description of the sequence of events, the application of water in time to prevent flashover is a serious challenge for any fire department. It is critical, though, as studies of historical fire losses can demonstrate.
The National Fire Protection Association found that fires contained to the room of origin (typically extinguished prior to or immediately following flashover) had significantly lower rates of death, injury, and property loss when compared to fires that had an opportuni ty to spread beyond the room of origin (typically extinguished post-flashover). As evidenced in the following figure, fire losses, casualties, and deaths rise significantly as the extent of fire damage increases.
Figure 102: Fire Extension in Residential Structures— United States, 2011–2015 Extension
Rates per 1,000 Fires
Civilian Deaths Civilian Injuries
Average Dollar
Loss Per Fire
Confined to room of origin or smaller 1.8 24.8 $4,200
Confined to floor of origin 15.8 81.4 $36,300
Confined to building of origin or larger 24.0 57.6 $67,600 Source: National Fire Protection Association
Standards of Cover: Deployment Analysis City of Marina Fire Department, CA PAGE 94
Emergency Medical Event Sequence
Cardiac arrest is the most significant life -threatening medical event in emergency medicine today. A victim of cardiac arrest has mere minutes in which to receive lifesaving care if there is to be any hope for resuscitation. The American Heart Association (AHA) issued a set of cardiopulmonary resuscitation guidelines designed to streamline emergency proce dures for heart attack victims and to increase the likelihood of survival. The AHA guidelines include goals for the application of cardiac defibrillation to cardiac arrest victims. Cardiac arrest survival chances fall by 7 to 10% for every minute between collapse and defibrillation. Consequently, the AHA recommends cardiac defibrillation within five minutes of cardiac arrest.
As with fires, the sequence of events that lead to emergency cardiac care can be graphically illustrated, as in the following figure.
Figure 103: Cardiac Arrest Event Sequence
The percentage of opportunity for recovery from cardiac arrest drops quickly as time progresses. The stages of medical response are very similar to the components described for a fire res ponse. Recent research stresses the importance of rapid cardiac defibrillation and administration of certain medications as a means of improving the opportunity for successful resuscitation and survival.
Standards of Cover: Deployment Analysis City of Marina Fire Department, CA PAGE 95
People, Tools, and Time
Time matters a great deal i n the achievement of an effective outcome to an emergency event. Time, however, is not the only factor. Delivering sufficient numbers of properly trained, appropriately equipped personnel within the critical time period completes the equation.
For medical emergencies , this can vary based on the nature of the emergency. Many medical emergencies are not time -critical. However, for serious trauma, cardiac arrest, or conditions that may lead to cardiac arrest, a rapid response is essential.
Equally critical is delivering enough personnel to the scene to perform all of the concurrent tasks required to deliver quality emergency care. For a cardiac arrest, this can be up to six personnel; two to perform CPR, two to set up and operate advanced medical equipment, one to record the actions taken by emergency care workers, and one to direct patient care.
Thus, for a medical emergency, the real test of performance is the time it takes to provide the personnel and equipment needed to deal effectively with the pa tient’s condition, not necessarily the time it takes for the first person to arrive.
Fire emergencies are even more resource critical. Again, the true test of performance is the time it takes to deliver sufficient personnel to initiate the application of w ater to a fire. This is the only practical method to reverse the continuing internal temperature increases and ultimately prevent flashover. The arrival of one person with a portable radio does not provide fire intervention capability and should not be counted as “arrival” by the fire department.
Standards of Cover: Deployment Analysis City of Marina Fire Department, CA PAGE 96
OVERVIEW OF COMPLIANCE METHODOLOGY
The preceding sections of this report provide a detailed analysis of the historical performance of the Marina Fire Department. For this analysis to prove beneficial to the Department and City policymakers, the continued analysis should be performed on a routine basis. The data provided to the project team for analysis proved to be difficult to analyze from the standpoint of consistency and completeness. These issues will also hinder future efforts to measure performance without significant improvement in the data collection process.
MFD is committed to a continual process of analyzing and evaluating actual performance against the adopted Standards of Cover and will enhance the data collection procedures of field operations personnel. A periodic review of the Department’s records management system reports will be necessary to ensure compliance and reliability of data.
Compliance Model
Compliance is best achieved through a systematic approach. Marina Fire Department has identified the following six-step compliance model.
Figure 104: Six-Step Compliance Model
Phase 1—Establish/Review Performance Measures
Complete the initial Standards of Cover process. Conduct a full review of the performance measures every five years:
• Identify services provided.
• Define levels of service.
• Categorize levels of risk.
• Develop performance objectives and measures:
By incident type
By geographic demand zone
Distribution (first on scene)
Concentration (arrival of full first alarm)
Standards of Cover: Deployment Analysis City of Marina Fire Department, CA PAGE 97
Phase 2—Evaluate Performance
Performance measures are applied to actual services provided:
• System level
• First due area level
• Unit level
• Full effective response force (ERF)
Phase 3—Develop Compliance Strategies
Determine issues and opportunities:
• Determine what needs to be done to close the gaps.
• Determine if resources can/should be reallocated.
• Seek alternative methods to provide service at the desired level. • Develop budget estimates as necessary.
• Seek additional funding commitment as necessary.
Phase 4—Communicate Expec tations to Organizations
Communicate expectations:
• Explain the method of measuring compliance to personnel who are expected to perform services. • Provide feedback mechanisms.
• Define the consequences of noncompliance.
Train personnel:
• Provide appropriate levels of training/direction for all affected personnel. • Communicate the consequences of noncompliance.
• Modify (remediate) business processes, business application systems, and technical infrastructure as necessary to comply.
Phase 5—Validate Compliance
Develop and deploy verification tools and/or techniques that can be used by subsections of the organization on an ongoing basis to verify that they are meeting the requirements:
• Monthly evaluation:
Performance by unit
Overall performance
Review of performance by division/section management
• Quarterly evaluation:
Performance by unit
Performance by first due
Overall performance
Review of performance by executive management
Standards of Cover: Deployment Analysis City of Marina Fire Department, CA PAGE 98
Phase 6—Make Adjustments/Repeat Process
Review changes to ensure that service levels have been maintained or improved. Develop and implement a review program to ensure ongoing compliance:
• Annual review and evaluation:
Performance by unit
Performance by first due
Overall performance
Review of performance by governing body
Adjustment of performance standards by governing body as necessary • Five-year update of Standards of Cover:
Performance by unit
Performance by first due
Full effective response force
Overall performance
Adoption of performance measures by the governing body • Establish management processes to deal with future changes in the MFD service area.
Standards of Cover: Deployment Analysis City of Marina Fire Department, CA PAGE 99
OVERALL EVALUATION, CONCLUSIONS, AND RECOMMENDATIONS
Overall Evaluation
This Community Assessment: Standards of Cover is based on the CFAI Standards of Cover, 6th Edition. It required the completion of an intensive analysis of all aspects of the MFD deployment policies. The analysis used various tools to review historical performance, evaluate risk, validate response coverage, and define critical tasking and alarm assignments. The analysis relied on the experience of staff officers and their historical perspective combined w ith historical incident data captured by both the dispatch center and MFD’s in-house records management system.
The Description of Community Served section provided a general overview of the organization, including governance, lines of authority, finance, and capital and human resources, as well as an overview of the service area , including population and geography served. The Review of Services Provided s ection detailed the core services the organization provides based on general resource/asset capability and basic staffing complements.
An overview of the community was provided to identify the risks and challenges faced by the fire department. Geospatial characteristics, topographic and weather hazards, transportation network risks, physical assets, and c ritical infrastructure were reviewed and then identified as medical incidents, structure fires, and rescues as the primary risks within the community. As a factor of risk, community populations and demographics were evaluated against historic al and project ed service demand.
Population and service demand has increased over the past decade and will continue to increase in the future.
Evaluating risk using advanced geographic information systems (GIS) provided an increased understanding of community risk factors and led to an improved deployment policy.
During the analysis of service level goals, critical tasking assignments were completed for incident types ranging from a basic medical emergency to a high-rise structure fire. Critical tasking required a review of on-scene staffing requirements to mitigate the effects of an emergency. These tasks ultimately determine the resource allocation necessary to achieve a successful operation. The results of the analysis indicate that a low-rise building fire required a minimum of 17 personnel.
The review of historical system performance evaluated each component of the emergency incident sequence. These included call processing, turnout, and travel time. Beyond the response time of the initial arriving units, the additional components of concentration and effective response force, reliability, and call concurrency were evaluated.
Standards of Cover: Deployment Analysis City of Marina Fire Department, CA PAGE 100
The analysis completed during this study revealed a number of important findings. These include the following:
• There may be funding sources available to upgrade or expand traffic signal preemption. • There has been a large increase in alarm activations at CSU-MB in 2019. • Inspections of apartment buildings are not occurring in accordance with the California State Fire Code.
• The Department lacks a defined schedule to complete inspections of all commercial occupancies. • Pre-incident planning is not occurring for all commercial and target hazard properties. • General Fund revenues have increased over the past few years and have improved signific antly with the voter approval of additional sources of revenue. • An adopted, citywide capital improvement program, including the fire department, exists, however it appears funding is insufficient to accommodate the needs of all of the City’s departments.
• The level of administrative support appears to be inadequate for an organization the size and complexity of MFD. The total response workload has increased by 51.4% over the 8 years. • Overall call processing performance during 2019 exceeded MFD’s performance goal. • During 2019, turnout time for fire incidents exceeds the Department’s performance goal. • Travel time for all incidents during 2019 exceeded the Department’s performance goal. • The minimum complement of 16 firefighters needed for a low -rise residential fire cannot be provided to any part of the city.
• Fire Station 1 is of an inadequate configuration and size for a shared facility.
Based on the analysis and considering community expectations, recommendations are offered to improve the delivery of fire and emergency services to the community by MFD. It is not expected that all will be implemented in the short term. Some may wait until economic conditions allow their implementation. However, all of the recommendations offered to chart a course to improved capability and service.
Recommendations
Recommendation A: Adopt response performance goals to guide service delivery improvement.
A community’s desired level of service is a uniquely individual decision. No two communities are exactly alike. Performance goals must be tailored to match community expectations, community conditions, and the ability to pay for the resources necessary to attain the desired level of service.
Levels of service and resource allocation decisions are the responsibility of the community’s elected officials, in this case, the Marina City Council. The policy-making body must carefully balance the needs and expectations of its citizenry when deciding how to allocate money to all the services it provides.
MFD’s current response performance goals will be difficult to achieve without the addition of many new resources, including response personnel and vehicles. The cost will be significant.
Standards of Cover: Deployment Analysis City of Marina Fire Department, CA PAGE 101
The following are recommended as MFD ’s fire and life safety response performance goals. They align directly with nationally recommended standards. These are not levels of service that must be achieved immediately but, instead, are targets for achievement when resources are available to do so. Further, the adoption of goals allows MFD management to regularly report progress on the achievement of these goals, conditions that are impeding progress, and resources needed to improve service.
Call-Processing Performance Goal
The first phase of overall response time is call processing time. This phase begins when the call is received at the PSAP center and ends when response resources are notified of an emergency. There are two components: answer time and dispatch time.
Recommended Call Processing Goal
• 9-1-1 calls will be answered at the primary PSAP within 15 seconds, 90 percent of the time. • Response resources shall be notified of a priority incident within 6 0 seconds from receipt of the call at the dispatch center, 90 percent of the time.
Exceptions: These call types shall be processed and dispatched within 90 seconds, 90 percent of the time:
• Calls requiring emergency medical dispatch questioning • Calls requiring language translation
• Calls requiring the use of TTY/TTD devices
• Calls of criminal activity
• Hazardous materials and technical rescue incidents
Current performance: Answer time is within 15 seconds, 99.5 percent of the time. Dispatch time currently is within 77 seconds, 90 percent of the time.
Turnout Time Performance Goal
Turnout time is one area over which the fire department has total control and is not affected by outside influences. Turnout time, or the time between when the call is received by the response units (dispatched) and when the unit is en route to the incident location (responding), affects overall response times. Reducing this time component reduces total response time.
The National Fire Protection Association Standard 1710 recommends turnout time performance of 80 seconds or less for fire and special operat ions response , and 60 seconds or less for all other priority responses.
Recommended Turnout Goal
• Response personnel shall initiate the response of a unit capable of mitigating an incident to a priority fire and special operations incident 80 seconds from notification, 90 percent of the time.
Current performance: Within 2 minutes, 28 seconds, 90 percent of the time. • Response personnel shall initiate a response to all other priority incidents within 60 seconds from notification 90 percent of the time.
Current performance: Within 2 minutes, 2 seconds, 90 percent of the time.
Standards of Cover: Deployment Analysis City of Marina Fire Department, CA PAGE 102
Response Time for the First-Due Unit Goal
The time required to deliver the first response unit capable of intervening in the emergency includes both turnout time and travel time, but not call processing time. When the recommended standards for turnout time and travel time are combined, response time should be within 5 minutes, 20 seconds, 90 percent of the time for fire and special operations incidents, and within 5 minutes, 90 percent of the time for all other priority incidents.
Recommended First-Due Response Time Goal
• The first response unit capable of initiating effective incident intervention shall arrive at a priority fire or special operations incident within 5 minutes, 2 0 seconds from notification of response personnel, 90 percent of the time.
Current performance: Within 8 minutes, 2 seconds, 90 percent of the time. • The first response unit capable of initiating effective incident intervention shall arrive at all other priority incidents within 5 minutes from notification of response personnel, 90 percent of the time.
Current performance: Within 10 minutes, 3 seconds, 90 percent of the time.
Effective Response Force Performance Goal
A fire department’s resource concentration is the spacing of multiple resources close enough together so that an initial “Effective Response Force” (ERF) can be assembled on the scene of an emergency within the specific time frame identified in the community’s performance goals for that risk ty pe. An initial effective response force is defined as that which will be most likely to stop the escalation of the emergency.
The minimum ERF for low-rise structure fires is identified as the arrival of at least three fire engines, one ladder truck, and one Battalion Chief (15 personnel total). This initial ERF does not necessarily represent the entire alarm assignment, as additional units may be assigned based on long-term incident needs and risks. Additional engines, ladders, or other specialty companies are assigned to higher risk responses to accomplish additional critical tasks that are necessary beyond the initial attack and containment.
Recommended Effective Response Force Goal
• The full effective response force shall arrive at a moderate -risk structure fire within 9 minutes, 20 seconds of notification of response personnel, 90 percent of the time.
Current performance: Within 19 minutes, 90 percent of the time.
Cost to Implement: No cost to establish the goals.
Standards of Cover: Deployment Analysis City of Marina Fire Department, CA PAGE 103
Recommendation B: Reduce the time required to dispatch a fire incident.
Currently, it takes 1 minute, 47 seconds, 90 percent of the time for MCEC to dispatch a fire incident.
Performance for other incident types is at or near national recommendations.
MFD and MCEC should explore this to determine what is taking so much time during the dispatch sequence. Changes in procedures or other actions should be accomplished to shorten this time.
Cost to Implement: Dependent on solutions selected.
Recommendation C: Improve MFD response unit turnout times.
National guidance suggests turnout time should be within 80 seconds, 90 percent of the time for fire and special operations incidents, and within 60 seconds, 90 percent of the time for all other priority incidents.
MFD response crew turnout times currently are longer.
A review of station configuration, alerting systems, and other factors should be conducted to identify and remove any obstacles to prompt initiation of response.
Crew performance must also be addressed. Personnel should be provided regular reports of turnout time performance. Performance standards should be adopted and enforced.
Cost to Implement: Dependent on changes needed.
Recommendation D: Improve the efficiency of response to emergency medical incidents.
MFD’s current practice is to send a fire engine to all emergency medical incidents regardless of severity.
Some responses are undoubtedly non -emergent but are not recognized as such until the ambu lance response has been downgraded or the arrival of the MFD responding unit.
Many dispatch centers will query the caller with a standardized list of questions that can quickly differentiate between a life- threatening incident and a non -life-threatening i ncident, or between emergent and non-emergent. The response (or other alternative) to a medical incident is based on the results of this query.
MCEC does not currently offer this service for fire unit dispatch but should. Serious attention should be given to this because the resulting reduction in unit utilization and improvement in system reliability would be valuable. Furthe r, it better matches resource to need , keeping critical resources available for other, higher priority calls, thus, potentially reducing response time.
ESCI recommends MFD c oordinate with County EMS to implement E mergency Medical Dispatch protocols for fire unit dispatch. The final decision as to the number and type of apparatus and staff dispatched should be determined by MFD consistent with the department’s and City’s 201 rights.
Cost to Implement: Minimal as EMD is currently being provided for ambulance response.
Standards of Cover: Deployment Analysis City of Marina Fire Department, CA PAGE 104
Recommendation E: Explore cooperative service and consolidation opportunities.
MFD is highly dependent on neighboring fire agencies for the delivery of effective response services to the City of Marina. Although many incidents can be handled with one or both of the MFD response units, all building fires and other large incidents require support from outside agencies.
Although MFD is dependent on outside resources, it has no direct control over them. Support is provided by the other agencies at their discretion. Personnel qualifications and training are also at the discretion of the other agencies.
MFD should work with neighbo ring communities and the Department of Defense to develop a more integrated system. This could include agreements for shared training services, fire prevention services, joint purchasing, and the like.
Ideally, the communities in the region consolidate thr ough a joint -powers authority (JPA) or similar structure. Orange County Fire Authority is a California example.
Each partner would designate a representative to the JPA Board of Directors, which would be the JPA’s governing body. The JPA Board of Director s would select its Fire Chief, who would then have the authority to build a fully integrated fire services system.
The resulting system will provide a more effective response system. Cost reductions from current are likely since the number of administrative personnel may be reduced.
Cost to Implement: Dependent on the model selected.
Recommendation F: Add response units during periods of high incident activity.
Fire stations should be located, staffed, and equipped to provide response resources using two primary considerations:
1. Provide response times that ensure unit(s) arrive in time to mitigate an emergency effectively.
2. Provide sufficient resources to ensure a reliable response to predictable emergency service requests.
The first consideration suggests that stations and response units should be located to minimize travel time to emergencies. The second consideration suggests that during periods of higher incident activity, additional resources should be available to respond. The additional resources shou ld be of the type necessary for predictable requests for service. Emergency medical incidents are the most common.
The second consideration is a dynamic approach to deployment and provides two benefits. First, additional response resources can be made avai lable during times each is predictably needed. Second, because these resources are not needed or assigned during slower workload periods, the organization is maximizing its ability to match resources with system demand.
Peak workload periods occur every day of the week. The following figure illustrates the workload by the time of day during the study period.
Standards of Cover: Deployment Analysis City of Marina Fire Department, CA PAGE 105
Figure 105: Incidents by Period of Day, 2019
Incidents
9:00 a.m.–8:59 p.m.
Incidents
9:00 p.m.–8:59 a.m.
Incidents per hour
9:00 a.m.–8:59 p.m.
Incidents per hour
9:00 p.m.–8:59 a.m.
1,806 870 0.41 0.20
A process called “queuing analysis” has been used to determine the number of units needed in each station area by the time of day. This process utilizes probability analysis to determine the number of units needed in each station area to reduce the likelihood that a response unit would not be available to serve an incident to 10 percent or less. It uses the variables incidents per hour, number of available response units, and the average time committed per incident.
Though very useful to this effort, queui ng analysis has some limitations. It assumes that customers (incidents) arrive at a constant rate. This is not always true in emergency services. It also assumes that each customer requires an equal amount of time from servers (response units). While the a verage time committed to an incident was used for service time, some incidents require less or substantially more than the average.
The following figure illustrates the current deployment for both daytime ( 9:00 a.m. to 8:59 p.m.) and nighttime (9:00 p.m. to 8:59 a.m.). The figure includes the current probability of wait analysis based on the current number of response units.
Figure 106: Probability of Wait— Current Response Units Current Units Day Current Units Night Current Probability of Wait— Day
Current Probability of
Wait— Night
2 2 1.0% .02%
The next figure shows what the probability of wait would be with only a single unit available. This demonstrates that, at least during daytime hours, two units are necessary to maintain a reliable response capability.
Figure 107: Probability of Wait— Single Response Unit
Units Day Units Night Current Probability of
Wait— Day
Current Probability of
Wait— Night
1 1 14.4% 7.0%
MFD is currently operating two response units 24 hours per day. It should continue to do so , at least during daytime hours.
Cost to Implement: No additional expense above the current cost.
Standards of Cover: Deployment Analysis City of Marina Fire Department, CA PAGE 106
Recommendation G: Relocate both fire stations to improve travel time coverage.
MFD’s Station 1 and 2 are not well located to serve the growing community. Travel coverage from Station 1 does not extend north far enough. Travel coverage from Station 2 is very limited by the airport.
Each station should be relocated to improve service. The following figure illustrates locations suggested for each. These are not exact points. A suitable site within a few blocks of each will suffice. Also shown on the map is the four-minute travel time coverage that would be provided from the new locations and from adjacent agency stations. The coverage is nearly 100 percent.
Figure 108: Proposed Station Locations
Each station should have a staffed fire engine. This will improve effective response force coverage.
Cost to implement: Total cost is dependent on size and configuration. The average square foot cost for fire station construction in the area as of 2019 was $625 per square foot.
Standards of Cover: Deployment Analysis City of Marina Fire Department, CA PAGE 107
Recommendation H: Explore opportunities to reduce response workload.
Response workload has grown by 51% over the past 8 years. At this rate of growth, MFD will be unable to maintain service levels without new resources. Response workload is expected to increase to over 5,700 incidents per year by 20 40. The City’s ability to fund new resources to maintain service levels is limited.
Work with Frequent Users of EMS Services to Reduce Utilization Most fire service agencies have patients and facilities who routinely call multiple times for a response from the local fire department. While some of these patients undoubtedly have acute medical challenges that require a response and assessment, many others have chronic illnesses and have become reliant upon first responders as their primary care provider. Still others are living alone but struggling to live independently, relying instead on first responders to address their routine challenges. A smaller subset may be relying upon first responders for social needs or may have mental health challenges that cause them to call inappropriately for first responders.
Fire agencies can also have significant response workload at single facilities such as nursing homes, assisted living, and mobility -impaired resident facilities. Many calls for service are legitimate medical emergencies, while some are lift-assists that occur when a mobility-impaired resident falls from bed and needs assistance getting back into bed. First responders in these cases perform a quick assessment of the latter group and place them back into bed. While this may seem to be an appropriate service to provide to the residents of such facilities, in many cases it is a liability shift and/or a staffing shift from a fee-for-service facility to the taxpayer -provided emergency responders. Further, it misuses critical emergency response resources to address decidedly non-emergent problems.
The following figure illustrates the locations that used fire department services 20 or more times during 2019.
Standards of Cover: Deployment Analysis City of Marina Fire Department, CA PAGE 108
Figure 109: Number of Incidents by Location
There are different approaches available to fire departments that experience the high -frequency individual and the high-frequency facility. These approaches are explained more fully in the two following subsections.
Standards of Cover: Deployment Analysis City of Marina Fire Department, CA PAGE 109
Responses to High-Frequency Patients
A growing concept nationally is the community paramedicine program. The concept of this approach is to better support high-frequency EMS system users. Community paramedicine is intended to decrease 9-1-1 over-users or abusers, decrease the on-scene time for response units, and provide a higher level of service to customers.
There are a variety of models in use throughout the country. Some employ a single paramedic in a vehicle who conducts follow-up visits of patients recently released from the hospital. The purpose is to ensure the patient is taking appropriate medications, following up with their primary care physician, and to check the patient’s overall well-being. These single paramedic units can also be dispatched to incidents known to be non-life threatening.
Other models team a paramedic with community social service workers who can also address other needs such as food, housing, mental health care, and the like.
Agencies that have successfully implemented a community paramedicine type program include Mesa, Arizona, which developed the concept; Spokane, Washington, Tualatin Valley Fire and Rescue, Oregon, and Bellevue, Washington.
This is a shared service opportunity. This type of resource could easily be shared between the cities of Marina and Seaside.
Standards of Cover: Deployment Analysis City of Marina Fire Department, CA PAGE 110
Responses to High-Frequency Facilities
There are a number of facilities within Marina that generate frequent requests for emergency medical assistance. Some of these facilities have medical professionals on -site; others may not. Of the top 1 5 addresses with repeat service requests for 2019, three are medical facilities. They are listed in order of response frequency.
Figure 110: Facilities With 20 or More Incidents, 2019
Incidents Location
87 201 9th St – VA Clinic
83 400 8th St Bldg B – CSUMB Promontory
56 400 8th St Bldg C – CSUMB Promontory
39 400 8th St Bldg A – CSUMB Promontory
38 356 Reservation Rd – El Rancho Mobile Home Park
34 3082 Sunset Ave – an Apartment Complex Low Income
32 6015 Gen. Jim Moore Blvd – CSUMB Vineyard Suites
26 3095 Marina Dr – a Condominium Complex
23 Marina Airport
22 294 Hillcrest Ave – Los Arboles School
21 6011 Gen. Jim Moore Blvd – CSUMB Pinnacles Suites
21 Reservation Rd & Imjin Rd
21 298 Patton Parkway – Marina High School
21 2920/2930 2nd Ave Montage Medical/Urgent Care Same Building 20 930 2nd Ave Davita Dialysis Center
For facilities with qualified medical professionals, the dispatch center currently should have the ability to send only an ambulance when all that is needed is the transportation of the patient to a medical facility.
MFD should review this practice and revise procedures as necessary to allow for this.
For facilities without qualified medical profession als, a full response is typically sent to a request for emergency medical assistance. However, many of these requests can turn out to be lift-assists, or other minor problems.
MFD should work with managers of high-frequency facilities to ensure fire department resources are not overused. This may involve providing training to facility staff, modifying EMS system regulations to allow alternative response practices, or other creative solutions.
Standards of Cover: Deployment Analysis City of Marina Fire Department, CA PAGE 111
Cost to Implement a single paramedic in a vehicle: The following figure identifies the cost to implement the community paramedicine program, plus vehicle and equipment. It is expected that community health partners would likely provide subsidies for a program of this type.
Description Factor Amount
Base Compensation 26.2520
Paramedic Incentive (Est.) 1.0000
Hourly Compensation 27.2520
Contract Equity Pay (7-1-2020) 2.00% 0.5450
COLA (7-1-2020) 3.50% 0.9538
Education/Certification Pay 2.50% 0.6813
Hourly Rate 29.4322
Annual Hours 2,080
Annual Compensation 61,219
CalPERS 7.7320% 4,733
UAL 5,149
CalPERS Pension 9,882
Medical Insurance 541
Uniforms 600
Benefits Cost 11,023
Total Salary & Benefits Cost 72,242
Vehicle Operations 5,000
Medical Supplies 5,000
Total Annual Program Costs 82,242
Capital Start-up Costs
Assume Full-size 4-door PU 40,000
Emergency Equipment Upfit 20,000
Medical Equipment 50,000
Total Capital Costs 110,000
Standards of Cover: Deployment Analysis City of Marina Fire Department, CA PAGE 112
Recommendation I: Implement a quality control process for incident reporting fire loss data.
Proper coding of incident reports provides accurate data to make operational decisions and assist s in strategic planning. It is recommended that all incident reports be reviewed for accurate fire loss data as part of a quality control process.
Cost to Implement: The estimated cost relates to staff time to review each incident report.
Recommendation J: Conduct pre-incident plans for commercial buildings and target hazards.
Pre-incident planning is designed to provide information for responding personnel to assist with strategies and tactics during an event and provides building familiarization to operations staff. It allows responding personnel to conduct a site visit to gat her information on built -in fire protection features, building construction, floor plans, or hazards in a building.
Cost to Implement: Staff time, the department’s record management system provides a method for tracking building information for use during an emergency.
Recommendation K: Develop a fire inspection program for all commercial properties and multi-family occupancies.
Currently, there is not a defined schedule to inspect all commercial properties in Marina. Inspections of occupancies are designed to meet the enforcement and educational components of a community’s risk reduction program. ESCI recommends Marina develop a schedule to inspect all commercial buildings for fire code compliance.
Inspections of Multi-family Housing: Inspections of the common areas for multi-family housing should be implemented immediately to ensure compliance with California State Fire Code requirements that all residential apartments be inspected annually.
Cost to Implement: The cost would include salary and benefits for a Fire Marshal comparable to the Department’s current Chief Officer pay schedule. This position would be responsible for the development and management of a fire safety inspection program, manage code compliance, and issuance of permits. There could be some cost recovery through the collection of new permit fees.
Standards of Cover: Deployment Analysis City of Marina Fire Department, CA PAGE 113
APPENDIX A: HAZARD VULNERABILITY RISK TABLES
Standards of Cover: Deployment Analysis City of Marina Fire Department, CA PAGE 114
Standards of Cover: Deployment Analysis City of Marina Fire Department, CA PAGE 115
Standards of Cover: Deployment Analysis City of Marina Fire Department, CA PAGE 116
Standards of Cover: Deployment Analysis City of Marina Fire Department, CA PAGE 117
Standards of Cover: Deployment Analysis City of Marina Fire Department, CA PAGE 118
Standards of Cover: Deployment Analysis City of Marina Fire Department, CA PAGE 119
APPENDIX B: FIRE STATIONS/CAPITAL ASSETS
Capital Assets and Improvements
Three basic resources are required to successfully carry out the mission of a fire department―trained personnel, firefighting equipment, and fire stations. No matter how competent or numerous the firefighters, if appropriate capital equipment is not available for use by responders, it is impossible for a fire department to deliver services effectively. The capital assets that are the most essential to the provision of emergency response are facilities and apparatus (response vehicles). The following figures summarize the fire stations and fire and EMS apparatus operated by the Marina Fire Department.
Fixed Facilities
Fire stations play an integral role in the delivery of emergency services for several reasons. A station’s location will dictate, to a large degree, response times to emergencies. A poorly located station can mean the difference between confining a fire to a single room and losing the structure. Fire stations also need to be designed to adequately house equipment and apparatus, as well as meet the needs of the organization, its workers, and/or its members.
Consideration should be given to a fire station’s ability to support the jurisdiction’s mission as it exists today and into the future. The activities that take place within the fire station should be closely examined to ensure the structure is adequate in both size and function.
ESCI associates conducted walk -through inspections of the Marina Fire Department’s Administrative Headquarters and fire stations utilizing a standard checklist at each facility.
Special attention was made to the building’s location, future use viability in terms of serving the community, and the capability of accommodating an increase in staffing levels and emergency response apparatuses in the future.
Standards of Cover: Deployment Analysis City of Marina Fire Department, CA PAGE 120
Figure 111: Fire Station Condition Definitions
Excellent
Like new condition. No visible structural defects. The facility is clean and well maintained. Interior layout is conducive to function with no unnecessary impediments to the apparatus bays or offices. No significant defect history. Building design and construction match the building’s purposes.
Good
The exterior has a good appearance with minor or no defects. Clean lines, good workflow design, and only minor wear of the building interior. Roof and apparatus apron are in good working order, absent any significant full- thickness cracks or crumbling of a pron surface or visible roof patches or leaks. Building design and construction match the building’s purposes.
Fair
The building appears to be structurally sound with weathered appearance and minor to moderate nonstructural defects. The interior condition shows normal wear and tear but flows effectively to the apparatus bay or offices. Mechanical systems are in working order. Building design and construction may not match the building's purposes well. Showing increasing age -related maintenance, but with no critical defects.
Poor
The building appears to be cosmetically weathered and worn with potentially structural defects, although not imminently dangerous or unsafe. Large, multiple full- thickness cracks and crumbling of concrete on apron may exist. The roof has evidence of leaking and/or multiple repairs. The interior is poorly maintained or showing signs of advanced deterioration with moderate to significant nonstructural defects.
Problematic age-related maintenance and/or major defects are evident. May not be well suited to its intended purpose.
The following figures depict the results of ESCI’s inspections:
Standards of Cover: Deployment Analysis City of Marina Fire Department, CA PAGE 121
Figure 112: Marina Fire Department Station 1 & Administrative Offices Station Name/Number: Station #1
Address/Physical Location: 211 Hillcrest, Marina, CA 93933
This station was originally designed to accommodate a
Public Safety Model configuration. The department has
exceeded the administrative and crew capability needs of the current facility. As currently configured , the area occupied by the fire department is inadequate and
presents safety concerns.
Structure
Construction Type Type 2
Date of Construction 2000
Seismic Protection Yes
Auxiliary Power Yes
General Condition Good
Number of Apparatus Bays Drive-through bays 4 Back-in bays Special Considerations (ADA, etc.) No
Square Footage 3,300
Facilities Available
Separate Rooms/Dormitory/Other 4 Bedrooms 4 Beds Dormitory Beds Maximum Station Staffing Capability
Exercise/Workout Facilities No
Kitchen Facilities Yes
Individual Lockers/Storage Assigned Yes
Shower Facilities Yes
Training/Meeting Rooms Yes
Washer/Dryer No
Safety & Security
Sprinklers Yes
Smoke Detection Yes
Decontamination/Biohazard Disposal No
Security Yes
Apparatus Exhaust System Ward No Smoke
Standards of Cover: Deployment Analysis City of Marina Fire Department, CA PAGE 122
Figure 113: Marina Fire Department Station 2
Station Name/Number: Station #2
Address/Physical Location: 3260 Injim Road
The Department has plans to staff this station in the near future with a full-time crew. While the station has recently undergone some remodeling, it will need additional work to meet safety and OSHA mandates.
Structure
Construction Type Type 3
Date of Construction
Seismic Protection No
Auxiliary Power Yes
General Condition Good
Number of Apparatus Bays Drive-through bays 2 Back-in bays Special Considerations (ADA, etc.)
Square Footage
Facilities Available
Separate Rooms/Dormitory/Other 3 Bedrooms 3 Beds Dormitory Beds Maximum Station Staffing Capability
Exercise/Workout Facilities No
Kitchen Facilities Yes
Individual Lockers/Storage Assigned No
Shower Facilities Yes
Training/Meeting Rooms No
Washer/Dryer Yes
Safety & Security
Sprinklers Yes
Smoke Detection Yes
Decontamination/Biohazard Disposal No
Security Alarm
Apparatus Exhaust System Ward No Smoke
Standards of Cover: Deployment Analysis City of Marina Fire Department, CA PAGE 123
Facilities Summary
The facilities range in age from 20 to in excess of 40 years old. Fire Station 2 has recently undergone a remodel/upgrades in an effort to prepare it to be staffed full-time.
Fire Station 1 is of an inadequate configuration and size for a shared facility. Firefighter protective clothing is stored in an area that results in direct contact with contaminants gen erated by apparatus exhaust. The efficiency of the HVAC system is questionable given the increased call loads and design of the original building. Firefighters do not have locker space due to the needs of the police department ; the design of the station is an impediment to effective turnout times as the only way from the crews quarters is via a stairwell , which creates a safety concern for crews attempting to quickly travel to the apparatus bay.
Fire Station 2 has previously been an unstaffed facility used mostly for storage and has recently undergone some upgrades to prepare it to be staffed full time. Prior to assigning full-time staff, the doors leading into the apparatus bay should be updated to fire-resistive rated doors, with smoke seals and self- closers. Accommodations need to be considered that will permit the storage of all firefighter protective gear to be stored in such a location and manner that will minimize contamination. Given the size of this station, crew size should be considered prior to activation.
Community Risk Assessment:
Standards of Cover
City of Marina Fire Department
June 15,2021
EXHIBIT B
Prepared in 2019/20 for MFD
Done in accordance with the guidelines of the Commission on Fire Accreditation, International, Standards of Cover, 6th edition and industry standards of best practice
•Description of Community Served
•Services Provided
•Community Expectations and Performance Goals
•Community Risk Assessment
•Critical Tasking and Alarm Assignments
•Historic System Performance
•Overall Evaluation, Conclusions, and Recommendations
This document is:
• A thorough review and assessment of community risk,
emergency response capability, apparatus, and facilities • An analysis of the level of service currently provided to the community
• Identification of issues impeding performance
• Recommendations for service delivery improvement
This document is NOT:
• A mandate requiring system changes or the expenditure of money on new fire department resources
The Community
• Urban community
• Resident population – 22,535
• Roughly 10 square miles
MFD
• Full-service fire department
• 2 staffed fire stations, 15 full-time employees and 14 reserve firefighters
• Minimum 5 firefighters on duty
Description of Community Served
• Fire suppression (structural, wildland, other)
• Emergency medical services (Basic life support)
• Technical rescue
•Entrapment extrication
•Confined space rescue
•High angle
•Swift water
•Hazardous materials emergency response
Services Provided
Community Risk Assessment - Environment
Risks of Note:
• Earthquake
• Numerous high fire-flow buildings
• Hazardous materials
Community Risk Assessment: Response Workload
0 500
1000
1500
2000
2500
3000
2012 2013 2014 2015 2016 2017 2018 2019
Incidents
Fire EMS Other Total
Building fire
0.78%
Emergency
medical
54.45%
False alarm
14.01%
Good intent
8.48%
Hazard
5.68%Motor vehicle
accident
7.06%Other
0.26%
Other fire
1.01%
Public assist
7.88%
Vehicle fire
0.37%
2,676 incidents during 2019: 54.45% EMS
51% increase over past 8 years
Community Risk Assessment: Response Workload
0 50
100
150
200
250
300
Jan Feb Mar Apr May Jun Jul Aug Sep Oct Nov Dec
Incidents
2017 2018 2019
0 50
100
150
200
250
300
350
400
450
Sun Mon Tue Wed Thu Fri Sat
Incidents
2017 2018 2019
0 20
40 60
80 100
120
140
160
180
200
0 1 2 3 4 5 6 7 8 9 10 11 12 13 14 15 16 17 18 19 20 21 22 23 Incidents
Hour
2017 2018 2019
Community Risk Assessment: Response Concentration
Community Risk Assessment: Response Concentration
Community Risk Assessment: EMS Concentration
Community Risk Assessment: Response Unit Workload
Unit 2017 2018 2019
Engine 5411 1,937 2,255 2,157
Engine 5412 39 28 12
Engine 5431 29 8 11
0%
1%
2%
3%
4%
5%
6%
7%
8%
9%
2017 2018 2019
7.67%
8.49% 8.32%
Engine 5411 unit hour utilization
Engine 5411
Community Risk Assessment: Response Workload Forecast
5,780 incidents by 2040
0 1000
2000
3000
4000
5000
6000
7000
2020
2021
2022
2023
2024
2025
2026
2027
2028
2029
2030
2031
2032
2033
2034
2035
2036
2037
2038
2039
2040
Incidents
Fire EMS Other Total
Community Expectations
Community attitudes about the Marina Fire
Department and its services were gathered by in-
person and phone interviews of stakeholders.
Eighteen stakeholders were scheduled for interviews
that were completed over a multi-day period. The
interviewees represented the City Council, City
Administration, Community Members, Business
Community, MFD Labor, Administrative Staff
Members, and Chief Officers.
Citizen and Business Community Expectations
• Residents have high expectations when it comes to the delivery of service by the Fire Department.
• Reasonable response time, accessibility, visible to the public, and competent.
City Council–City Administration: Department Strengths • The biggest strength is the Fire Chief, who
understands the fire industry and works well with
the City’s Administrative Team as well as with the
community.
• The Firefighters appear to be very close, very much
like a family.
• Upward mobility is being experienced, which allows
opportunities to promote.
• There exists an extremely positive relationship
between the Fire Department and the community.
Chief Officers, Labor Leaders & Rank and File Opinions
• Versatile in having to change how to respond to
requests for our services due to back-to-back calls
and keep up with the volume.
• Each individual’s participation and enthusiasm.
• The Department's strong suit is the level of care
while on EMS calls.
• We try to treat EMS patients with empathy and care
that is equal to the care that would be provided to
our own family members.
• Ability to focus on Fire since Fire and Police are now separate divisions.
System Performance
People + Tools + Time = Effectiveness
• People – Trained emergency responders
• Tools – Apparatus, equipment
• Time – Duration between event start and intervention
• Effectiveness – Degree to which harm caused by the event is limited
Critical Tasking and Alarm Assignments
People
Tools
Low-Rise Structure Fire
Task Number of Personnel
Command/Safety 1
Pump Operations 3
Attack Line 2
Search and Rescue/Back up Line 2
Ventilation 3
IRIC 2
Non-Suppression Medic Amb 2
Total 15
Unit Type Number of Units Total Personnel
Engine 3 10
Truck 1 3
Squad 1 2
Duty Chief 1 1
Non-Suppression Medic Ambulance 1 2
Total Staffing Provided 18
Total Staffing Needed 15
Phases of an Emergency Event
1. Detection
2. Contact with emergency dispatch center
3. Dispatch incident processing
4. Response crew notification
5. Turnout time
6. Travel time
7. Set-up time
8. Incident control time
Phases of an Emergency Event
1. Detection
2. Contact with emergency dispatch center
3. Dispatch incident processing
4. Response crew notification
5. Turnout time
6. Travel time
7. Set-up time
8. Incident control time
Influence of Time
Consequence of Fire Extension in Residential Structures 2011–2015 Extension
Rates per 1,000 Fires
Civilian Deaths Civilian Injuries
Average Dollar
Loss Per Fire
Confined to room of origin or smaller 1.8 24.8 $4,200
Confined to floor of origin 15.8 81.4 $36,300
Confined to building of origin or larger 24.0 57.6 $67,600
Influence of Time
Influence of Time
•Trauma – “Golden hour”
•STEMI – Onset to recognition to treatment in cath lab
•Respiratory compromise during entrapment
•Physical and environmental harm from hazardous
materials release
Response Performance Goals Used for Evaluation
Incident Interval Performance Goal
9-1-1 call answer time (time from first ring to answer). Within 15 seconds, 90% of the time Call process time (time from acceptance at the
dispatch center until notification of response units). Within 60 seconds, 90% of the time Turnout time (time from notification of response
personnel until the initiation of movement towards
the incident).
Fire incidents and special operations incidents
All other emergency incidents
Within 80 seconds, 90% of the time
Within 60 seconds, 90% of the time
First unit travel time (time from initiation of response until arrival of the first unit at the incident).
Within 4 minutes, 90% of the time
First unit response time (time from dispatch until
arrival of the first unit at the incident).
Fire incidents and special operations incidents
All other emergency incidents
Within 5 minutes, 20 seconds, 90% of the time
Within 5 minutes, 90% of the time
Full effective response force travel time (time from
dispatch until all units initially dispatched arrive at the incident. Response resources needed for a low rise
building fire are used for the evaluation.)
Within 9 minutes, 20 seconds, 90% of the time
Historic System Performance: Call Processing Time
Call answer time
• Within 15 seconds, 95.5% of the time
0:00
0:30
1:00
1:30
2:00
2:30
3:00
EMS Fire Other EMS Fire Other EMS Fire Other
2017 2018 2019
2:21
2:47 2:53
1:13
1:49
1:35
1:09
1:47 1:38
Call processing minutes
0 20
40 60
80 100
120
140
160
0:00
0:30
1:00
1:30
2:00
2:30
0 1 2 3 4 5 6 7 8 9 10 11 12 13 14 15 16 17 18 19 20 21 22 23 Incidents
Call process minutes
Hour
Call process Incidents
Historic System Performance: Turnout Time
0:00
0:30
1:00
1:30
2:00
2:30
3:00
EMS Fire Other EMS Fire Other EMS Fire Other
2017 2018 2019
2:00
2:31
2:08 2:01
2:10 2:12
2:02
2:28
2:39
Turnout minutes
0 20
40 60
80 100
120
140
160
0:00
0:30
1:00
1:30
2:00
2:30
3:00
3:30
4:00
0 1 2 3 4 5 6 7 8 9 10 11 12 13 14 15 16 17 18 19 20 21 22 23 Incidents
Turnout minutes
Hour
Turnout Incidents
Historic System Performance: Travel Time
0:00
2:00
4:00
6:00
8:00
10:00
EMS Fire Other EMS Fire Other EMS Fire Other
2017 2018 2019
6:48
7:48 7:24 6:47
7:43
6:58 6:51
8:42
6:32
Travel minutes
0 20
40 60
80 100
120
140
160
0:00
2:00
4:00
6:00
8:00
10:00
0 1 2 3 4 5 6 7 8 9 10 11 12 13 14 15 16 17 18 19 20 21 22 23 Incidents
Travel minutes
Hour
Travel Incidents
Historic System Performance: Travel Time continued…
86.2% of incidents within 4 travel minutes of a fire station
Historic System Performance: Response Time
0:00
2:00
4:00
6:00
8:00
10:00
12:00
EMS Fire Other EMS Fire Other EMS Fire Other
2017 2018 2019
7:51
9:31
8:54 8:02
9:49
8:33 8:02
10:03
7:54
Response minutes
0 20
40 60
80 100
120
140
160
0:00
2:00
4:00
6:00
8:00
10:00
12:00
0 1 2 3 4 5 6 7 8 9 10 11 12 13 14 15 16 17 18 19 20 21 22 23 Incidents
Response minutes
Hour
Response Incidents
Historic System Performance: Received to Arrival Time
0:00
2:00
4:00
6:00
8:00
10:00
12:00
14:00
EMS Fire Other EMS Fire Other EMS Fire Other
2017 2018 2019
9:47
12:30
11:29
9:08
11:01
9:33 9:00
10:51
8:55
Received to arrival minutes
0 20
40 60
80 100
120
140
160
0:00
2:00
4:00
6:00
8:00
10:00
12:00
0 1 2 3 4 5 6 7 8 9 10 11 12 13 14 15 16 17 18 19 20 21 22 23 Incidents
Received to arrival minutes
Hour
Received to arrival
Incidents
Historic System Performance - Effective Response Force
Year Time to Effective
Response Force Arrival
2017 26:59
2017 10:58
2017 13:05
2017 08:46
2017 11:37
2017 25:12
2017 21:33
2018 18:12
2019 19:29
2019 17:03
2019 14:58
Historic System Performance: Effective Response Force
Firefighters
(with outside aid)
Historic System Performance: Effective Response Force
Apparatus
Low-Rise Fire
(with outside aid)
Concurrency
No. of Incidents 2019
1 2,376
2 284
3 15
4 1
Concurrent Unit
Responses
2019
1 2,444
2 453
3 95
4 33
5 10
6 9
7 5
8 1
Recommendations
The following represent overviews of
recommendations contained in the study
Recommendations – Improvement Goal A
Adopt response performance goals to guide service
delivery improvements
Incident Interval Performance Goal
9-1-1 call answer time (time from first ring to answer). Within 15 seconds, 90% of the time Call process time (time from acceptance at the
dispatch center until notification of response units). Within 60 seconds, 90% of the time Turnout time (time from notification of response
personnel until the initiation of movement towards
the incident).
Fire incidents and special operations incidents
All other emergency incidents
Within 80 seconds, 90% of the time
Within 60 seconds, 90% of the time
First unit travel time (time from initiation of response until arrival of the first unit at the incident).
Within 4 minutes, 90% of the time
First unit response time (time from dispatch until
arrival of the first unit at the incident).
Fire incidents and special operations incidents
All other emergency incidents
Within 5 minutes, 20 seconds, 90% of the time
Within 5 minutes, 90% of the time
Full effective response force travel time (time from
dispatch until all units initially dispatched arrive at the incident. Response resources needed for a low rise
building fire are used for the evaluation.)
Within 9 minutes, 20 seconds, 90% of the time
Recommendations – Improvement Goal B
Reduce the time required to dispatch a fire incident.
Currently, it takes 1 minute, 47 seconds, 90 percent
of the time for MCEC to dispatch a fire incident.
Performance for other incident types is at or near
national recommendations.
MFD and MCEC should explore this to determine
what is taking so much time during the dispatch
sequence. Changes in procedures or other actions
should be accomplished to shorten this time.
Recommendations – Improvement Goal C
Improve MFD response unit turnout times
National guidance suggests turnout time should be
within 80 seconds, 90 percent of the time for fire
and special operations incidents, and within 60
seconds, 90 percent of the time for all other priority
incidents. MFD response crew turnout times
currently are longer.
A review of station configuration, alerting systems,
and other factors should be conducted to identify
and remove any obstacles to prompt initiation of
response.
Recommendations – Improvement Goal D
Improve the efficiency of response to emergency
medical incidents.
MFD’s current practice is to send a fire engine to
all emergency medical incidents regardless of
severity. Some responses are undoubtedly non-
emergent but are not recognized as such until the
ambulance response has been downgraded or the
arrival of the MFD responding unit.
MFD should coordinate with County EMS to
implement Emergency Medical Dispatch protocols
for fire unit dispatch.
Recommendations – Improvement Goal E
Explore cooperative service and consolidation opportunities.
MFD is dependent on neighboring fire agencies for the
delivery of effective response services to the city.
Although many incidents can be handled with one or
both of the MFD response units, all building fires and
other large incidents require support from outside
agencies.
MFD should work with neighboring agencies and the
Department of Defense to develop a more integrated
system. This could also include agreements for shared
training services, fire prevention services, joint
purchasing, and the like.
Recommendations – Improvement Goal F
Add response units during periods of high incident activity Analysis proved that operating two units
during daytime hours improved system
reliability. MFD should continue to do so.
Recommendations – Improvement Goal G
Relocate both fire stations to improve travel time coverage Each station should be relocated to improve service.
The following figure illustrates locations suggested for each. These are not exact points. A suitable site
within a few blocks of each will suffice. Also shown on the map is the four-minute travel time coverage that
would be provided from the new locations and from
adjacent agency stations. The coverage is nearly 100
percent.
Recommendations – Improvement Goal G
Recommendations – Improvement Goal H
Explore opportunities to reduce response workload
Response workload has grown by 51%
over the past 8 years. At this rate of
growth, MFD will be unable to maintain
service levels without new resources.
Response workload is expected to
increase to over 5,700 incidents per year
by 2040. The City’s ability to fund new
resources to maintain service levels is
limited.
Recommendations – Improvement Goal H
Explore opportunities to reduce response workload
Recommendations – Improvement Goal I
Implement a quality control process for incident reporting fire loss data
Proper coding of incident reports provides
accurate data to make operational decisions
and assists in strategic planning. It is
recommended that all incident reports be
reviewed for accurate fire loss data as part
of a quality control process.
Recommendations – Improvement Goal J
Conduct pre-incident plans for commercial buildings and target hazards
Pre-incident planning is designed to provide
information for responding personnel to
assist with strategies and tactics during an
event and provides building familiarization
to operations staff. It allows responding
personnel to conduct a site visit to gather
information on built-in fire protection
features, building construction, floor plans,
or hazards in a building.
Recommendations – Improvement Goal K
Develop a fire inspection program for all commercial
properties and multi-family occupancies.
Currently, there is not a defined schedule to inspect all commercial properties in Marina. Inspections of
occupancies are designed to meet the enforcement and
educational components of a community’s risk reduction
program. ESCI recommends Marina develop a schedule to
inspect all commercial buildings for fire code compliance.
Questions/Discussion
City of Marina
C ommunity
Priorities
Su r v ey :
Updated Results
Marina City Council Meeting
May 18, 2021
EXHIBIT C
Updated Results
● Draft Results Presented to C ity C ouncil on April 1 6, 2021 ● Prepared in the 24 Hours After Survey Closed
○ With More Time, Have Examined Data Quality &
Excluded Some Responses
○ Identified a More Recent Census Estimate for Sample
C omparison (201 9 vs. 201 0)
● C ity C ouncil Requested Additional Analyses
○ This Report Addresses Council’s Quest ions
Data Quality
● Initial Sample: N = 748
○ If 4+ Responses Received from Same Household, The First Response Was Retained but S ubsequent Excluded
○ 46 Responses from 6 Households Were Excluded Before
Mean Scores Were Calculated
■ Qualitat ive Results Retained from All Respondents for E xamination of Priority Themes
● Final Sample: N = 702
○ Only Very S light C hanges to Demographic C haracteristics Sam p l e Si ze
● 2019 U.S. Census Bureau American Community Survey:
○ E s timated P opulation: 21 ,981
○ E s timated Adult P opulation: 1 6,991
● Final Sample ( N = 702):
○ 3% of estimated 2019 Marina population
○ 4% of estimated 2019 Marina adult population
Is the sample representative of Marina?
Respondent v s. Census Ages
● 652 (93%) provided codable age information
Respondent v s. Census Ages - Adults Only
Adults -Only
Census Dat a is
Likely a Better
Comparison
Group than Full
Cen su s Dat a
Respondent Gender
● 668 (95%) provided codable gender information
Adults -Only
Census Data
(Center Bar) is
Likely a Better
Comparison
Group than Full
Census Data
(Left Bar)
Respondent Race / Ethnicity
● 647 (92%) provided codable race/ethnicity information
Respondent Residency
● 695 (99%) provided codable residency information
S ummary of Q uantitative R es ults
Based on Limited Resources:
1 = Low Priority
4 = High Priority
Result s present ed as mean scores
(ordered from highest to lowest)
Broad Areas of City Services
Most Mean
Scores Fell
Between
2 and 3
Sidewalk/ Street Improvements
Facility Improvements
Park Improvements
Economic Growth Opportunities
Aesthetic Improvements
Public Safety Improvements
C ommunity Planning Efforts
C ommunity E ngagement Activities & Programs
Since some minority groups were
underrepresented, might that have
influenced mean scores regarding
diversity/social equity initiatives
and the Martin Luther King, Jr.
s tatue projec t?
Diversity & S ocial E quity E fforts
Sample sizes for American Indian/ Alaskan Native and Native Hawaiian/ Pacific Islander were too small for mean scores to be reliable.
Martin Luther King Jr. Statue & Landscaping
Sample sizes for American Indian/ Alaskan Native and Native Hawaiian/ Pacific Islander were too small for mean scores to be reliable.
Potential Implications
● These additional analyses focused solely on the Diversity & Social Equity and MLK, Jr. Statue Project, as requested ○ It is possible that more complex patterns would
emerge if all variables were examined across
demographic groups
○ Fut ure st udies could implement st rat egies such as oversampling or survey weighting to ensure
respondents are representative of the community
Lessons f or Fut ure
S urvey E fforts
Lessons for Future Survey Implementation
● This pilot demonstrated that a flier can engage hundreds of communit y members t o communicat e in a st ruct ured manner ● C ost: Approximately $4,500
● In the future, consider:
○ S tart Process E arlier - More Time for Each Step
○ Sen d t o CSUMB / East Cam p u s
○ S urvey S ent Directly via Mail
○ S upermarket S ampling
○ Make Paper Surveys Available at City Hall
○ Ensuring S urvey is Easy to Locate Online (e.g., use tinyurl) ○ Consider Social Media Presence (multiple platforms)
■ Pros (out reach) & Cons (represent at iveness)
○ Add Where People Learned About Survey
Quest ions?
Analysis Not es & Disclosures
● Summary prepared by Matt Mogensen in collaboration with Danielle Burchett, PhD
○ Associate Professor of Clinical Psychology
○ California State University, Monterey Bay
○ Email: [email protected]
● This is not a systematic investigation and is not intended to develop or contribute to generalizable knowledge. It summarizes information for organizational use. It is not considered to be human subjects research and was therefore not reviewed by the CSUMB Committee for the Protection of Human Subj ect s.
● Dr. Burchett has no relevant financial disclosures.
City of Marina
Unfunded
Essential
Services –
Public
Discussion
JANUARY 25, 2022
1 EXHIBIT D
Major
Unfunded
Needs
• Street Infrastructure
• Facilities
• Staffing
• Vehicles
2 Road
Repairs and
Maintenance
• Instituted a Pavement Management
Program in 2015-2016
• Goal: All City streets should achieve a PCI of
70 (good condition)
3 4
Road Repairs
and
Maintenance
• To achieve this goal:
• Requires $2.3 million annually in pavement
management repairs ($2.6 million funded in
budget)
• $11.6 million in one-time funds for street
reconstruction
• $8.2 million Measure X bond
• $3.4 million one-time General Fund (consider
ARPA funds)
5 City Facilities - Critical
6 7
8 City Facilities - Other
9 Unmet Current Staffing Needs
10 Future
Revenues -
Ongoing
• Hotel TOT - $2.3 million annually in 2-5 years
• Property Tax Revenue growth from Sea Haven -
$800k annually, once fully built out in 5-7 years
11 Future
Revenues –
One-time
• Dunes Phase 3 - $13.5 million, one-time in 2-3
years
• FORA Blight removal funds can be allocated for
Sports and Aquatic Center renovations - $3.4
million, one-time, in 2 years
• ARPA – can be used to replenish General Fund for
lost revenues - $5.1 million, one-time
12 Potential Future
Revenue Source
13 Potential General
Obligation Bond
14 • Monthly/Annual Amounts shown per $100,000 of assessed property value • A property valued at $600,000 would pay $31.50, $42, or $52.50 per month City of Marina
Potential
General
Obligation Bond
Discussion
JULY 6, 2022
1 EXHIBIT E
City
Facilities to
Replace
• Fire Station - $17 million
• Community Center (council chambers, city
hall, senior center) - $23 million
• Police Station (part of community center) -
$12 million
• Total Estimated Cost $52 million
2 Estimated
Cost to
Property
Owner
• $30 million bond
• $5.25 per month ($63 annually) per
$100,000 assessed value. Average
homeowner cost $24 per month, $290
annually
• $50 million bond
• $8.75 per month ($105 annually) per
$100,000 assessed value. Average
homeowner cost $40 per month, $483
annually
3 Why are new
facilities
needed?
• Fire Station
• 2nd fire station needed to service new growth areas and meet critical response times
• Fire ladder truck
• Commercial structures
• Community Center
• Existing facility 47 years old
• Deteriorating, ADA non-compliant
• Safety and security issues
• Over $ 7 million needed in next few years just to keep open • Police Station
• Existing facility over 20 years old
• Does not meet growing public safety needs of community • Over $ 5 million needed in next few years just to keep open 4 Why General
Obligation
Bond
• Mechanism that provides a way for local governments
to raise money for facility and infrastructure projects • Typically local governments do not have sufficient
revenues to fund these types of projects
• Paying for public assets over time provides for
“intergenerational equity”. The users of a facility will pay their fair share over time.
5 Public
Opinion
Survey
• Survey responses continuing – about 75%
completed
• Results will be ready for the July 19th city council
meeting
• Assessing quality of life; need for additional city
facilities; support for additional funds to provide
services; support for a GO bond at different levels.
• Public outreach, education and engagement is
critical
6 Next Steps
• Need to adopt a Resolution of Necessity, Ordinance,
and Resolution with ballot language.
• August 12 – last day to file a local measure with the County
• August 13 – 18 – period to file primary arguments in
favor/against measure
• August 18 – last day to file impartial analysis
• August 19 – 25 – period to file rebuttal arguments
7 Opinions on Local Funding Options
for the City of Marina
Highlights of a Survey of Likely Voters
220-6450
EXHIBIT F
2 Dates June 22 - July 7, 2022
Research Population Likely November 2022 voters in the City of Marina Total Interviews 301
Margin of Sampling Error (Full Sample) ±5.7% at the 95% Confidence Level Contact Method(s)
Data Collection Mode(s)
Survey Tracking July 2016
(Note: Not All Results Will Sum to 100% Due to Rounding) Survey Specifics and Methodology
Text
Invitations
Telephone
Calls
Email
Invitations
Telephone
Interviews
Online
Interviews
EXHIBIT F
3 General Community
Attitudes
EXHIBIT F
4 Half of likely voters in the City of Marina think things in the City of Marina are headed in the right direction, a high rating for a California city, and which is backed up by the results of other questions.
Q1.
Do you think things in the City of Marina are headed in the right direction or are they off on the wrong track?
Right
Direction
51%
Wrong Track
23%
Don't Know
26%
EXHIBIT F
5 More than three-quarters describe the quality of life in Marina as excellent or pretty good,
similar to the 2016 survey.
Q2. Would you say the overall quality of life in Marina is excellent, pretty good, only fair, or poor? 13%
63%
22%
2%
0%
Excellent/
Pretty
Good
76%
Excellent
Pretty good
Only fair
Poor
Don’t know
July 2016 June/July 2022
11%
64%
20%
4%
0%
Excellent/
Pretty
Good
76%
EXHIBIT F
6 Seven-in-ten voters continue to approve of the
job being done by the City of Marina.
Q3. Overall, would you say you approve or disapprove of the job being done by the City of Marina? 20%
50%
15%
9%
6%
21%
48%
18%
6%
8%
Total
Disapprove
24%
Total
Disapprove
23%
Total
Approve
70%
Strongly approve
Somewhat approve
Somewhat disapprove
Strongly disapprove
Don’t know
Total
Approve
69%
July 2016 June/July 2022
EXHIBIT F
7 More than seven-in-ten voters perceive that the City
has at least some need for additional funding, which
is up notably from the 2016 survey.
Q4. In your personal opinion, do you think there is a great need, some need, a little need, or no real need for additional funds to provide the level of City services that Marina residents need and want?
27%
37%
14%
13%
9%
Great need
Some need
A little need
No real need
Don’t know
July 2016 June/July 2022
Great/
Some Need
64%
A Little/
No Real
Need
27%
35%
42%
6%
7%
10%
Great/
Some Need
77%
A Little/
No Real
Need
13%
EXHIBIT F
8 Initial Ballot Measure
Opinions
EXHIBIT F
9 Hypothetical Ballot Question
Tested in Survey
Q5. Based on this description, would you vote yes in favor of this ballot measure or no to oppose it?
MARINA EMERGENCY RESPONSE, PUBLIC SAFETY , ESSENTIAL
CITY SERVICES MEASURE
To improve 911 emergency/natural disaster response, public safety by building a fire station, upgrading police station; improve local essential services/senior services by establishing an earthquake-safe Community Center, shall the City of Marina issue $50,000,000 in bonds at legal rates, levy $105 per $100,000 of assessed value, providing $3,000,000 annually while bonds are outstanding, requiring public spending disclosure, independent oversight, all bond measure funds for Marina?
EXHIBIT F
10 A majority of voters initially support the
measure, but it falls well short of the two-thirds
threshold necessary for passage.
Q5. Would you vote yes in favor of this ballot measure or no to oppose it? 29%
15%
8%
5%
11%
21%
11%
Definitely yes
Probably yes
Undecided, lean yes
Undecided, lean no
Probably no
Definitely no
Undecided
Total
Yes
52%
Total
No
37%
44%
EXHIBIT F
11 The top priorities for the measure include emergency response, improving essential City services, and removing hazardous materials from public buildings, along with fiscal accountability.
Q6. I am going to read you a list of specific City projects and services that could be funded by, or provisions included in, the measure you just considered.
Recognizing that there will not be enough funding for all of these projects, please tell me how important each one is to you:extremely important, very important, somewhat important, or not important.
Ext./Very
Impt.
86%
80%
77%
68%
67%
64%
64%
60%
60%
55%
43%
53%
23%
36%
30%
24%
28%
28%
30%
36%
23%
45%
31%
35%
40%
32%
32%
10%
14%
15%
22%
19%
19%
24%
28%
27%
6%
5%
9%
13%
7%
12%
8%
5%
5%
5%
6%
Requiring public spending disclosure
Ensuring public safety agencies can
respond in case of an emergency
Requiring all funds spent locally
Improving essential City services
Improving 911, fire and emergency
medical response times
Removing asbestos, mold and lead paint
from public buildings
Preventing disruptions to City services
Renovating city parks, indoor recreation
and aquatic centers
Requiring independent audits
Ext. Impt. Very Impt. Smwt. Impt. Not Too Impt. Don't Know
EXHIBIT F
12 Voter Priorities, Continued
Q6. I am going to read you a list of specific City projects and services that could be funded by, or provisions included in, the measure you just considered.
Recognizing that there will not be enough funding for all of these projects, please tell me how important each one is to you:extremely important, very important, somewhat important, or not important.
Ext./Very
Impt.
59%
57%
56%
56%
52%
50%
49%
48%
48%
23%
22%
26%
26%
19%
16%
20%
17%
20%
18%
6%
38%
31%
30%
38%
36%
30%
32%
28%
29%
16%
27%
33%
26%
29%
31%
28%
27%
24%
31%
31%
10%
9%
15%
12%
11%
17%
18%
21%
17%
40%
6%
5%
6%
6%
7%
Improving natural disaster preparedness
Improving the condition of City parks
and ballfields
Making City Hall accessible to residents
with disabilities
Replacing seismically-unsafe
public buildings
Replacing deteriorating public buildings
Creating a senior center
Creating a fire station with capacity to
hold a ladder truck
Building a fire station
Creating an adequate police station
Completing extensive repairs of current
City Council chambers
Ext. Impt. Very Impt. Smwt. Impt. Not Too Impt. Don't Know
EXHIBIT F
13 Impact of Information
EXHIBIT F
14 The most compelling themes about the measure
include fiscal accountability, the condition of the City Hall offices, and inadequacy of the fire station.
Q7. I am going to read you some statements from both supporters and opponents of the MARINA EMERGENCY RESPONSE, PUBLIC SAFETY, ESSENTIAL CITY SERVICES MEASURE. First, I am going to read some statements from people who support the measure. Please tell me whether you find it very convincing, somewhat convincing, or not convincing as a reason to support this measure on a future ballot. 44%
51%
42%
39%
30%
38%
83%
81%
80%
Very Conv. Smwt. Conv.
(ACCOUNTABILITY) This measure includes strict accountability provisions to ensure funds are used as promised, such as requiring public disclosure of all spending, independent audits, and a fiscal oversight committee of local residents. And by law, all funds must be used to benefit Marina residents and cannot be taken by the County, State or federal government. (COMMUNITY CENTER) When Marina first became a city in 1975, a few temporary, portable buildings were set up to operate as the City Hall offices.
The plan was to replace them in about six months. But, 47 years later those temporary portable buildings are still being used to house our city services, despite the fact that they are deteriorating, are not accessible for residents with disabilities, have mold, asbestos, leaky roofs, are not earthquake safe, and do not provide adequate space to host our local services. It is beyond time to create a real City Hall to serve all Marina residents.
(FIRE) Over the last eight years the fire service workload has increased by more than 50%. But our City relies on two old, inadequate fire stations with safety concerns, that are in the wrong location to meet response times needed for fire and medical emergencies. What's more the fire station in Seaside which provides backup support in our city is being moved farther away. This measure would help maintain and improve our public safety as Marina grows.
EXHIBIT F
15 The importance of the measure for emergency
medical response times resonates strongly as well.
Q7. I am going to read you some statements from both supporters and opponents of the MARINA EMERGENCY RESPONSE, PUBLIC SAFETY, ESSENTIAL CITY SERVICES MEASURE. First, I am going to read some statements from people who support the measure. Please tell me whether you find it very convincing, somewhat convincing, or not convincing as a reason to support this measure on a future ballot. 42%
22%
26%
38%
46%
32%
80%
68%
58%
Very Conv. Smwt. Conv.
(RESPONSE TIMES - MEDICAL) When you have an emergency, seconds count. In 2021, 80 percent of calls to the Marina Fire Department were related to medical emergencies. But response times for some areas of the city are close to 8 minutes. This measure provides funding to build a much-needed, additional fire station in Marina, so all residents can get the timely 911 response they need.
(QUALITY OF LIFE) Marina is a place where people desire to work, live and raise families. However, we need to invest in our fire and police protection, and community center to be able to provide high-quality essential City services. This measure will help protect residents and maintain our community as a safe, clean place to live.
(PROPERTY VALUE) By improving 911 emergency response, fire and public safety capabilities, this measure will help to protect property values for Marina homeowners.
EXHIBIT F
16 Support for the measure increases
substantially after information.
Q5 & Q8. Would you vote yes in favor of this ballot measure or no to oppose it? 29%
15%
8%
5%
11%
21%
11%
35%
15%
10%
4%
8%
17%
10%
Definitely yes
Probably yes
Undecided, lean yes
Undecided, lean no
Probably no
Definitely no
Undecided
Total
Yes
52%
Total
No
37%
Total
Yes
61%
Total
No
29%
44% 50%
Initial Vote Vote After Information
EXHIBIT F
17 Support also increases when voters consider a
lower tax rate for the bond measure.
Q5, Q8 & Q9. Would you vote yes in favor of this ballot measure or no to oppose it? 29%
15%
8%
5%
11%
21%
11%
Total
Yes
52%
Total
No
37%
Initial vote
($105/$100K)
$60/$100K
Tax Rate Vote
Vote After
Information
($105/$100K)
35%
15%
10%
4%
8%
17%
10%
Total
Yes
61%
Total
No
29%
31%
26%
8%
2%
11%
11%
12%
Total
Yes
64%
Total
No
24%
Definitely yes
Probably yes
Undecided, lean yes
Undecided, lean no
Probably no
Definitely no
Undecided
EXHIBIT F
18 Several opposition statements
resonate strongly
Q10. Here are some statements from people who oppose this ballot measure. Please tell me whether you find it very convincing, somewhat convincing, or not convincing as a reason to oppose this measure on a future ballot. 51%
34%
27%
22%
27%
37%
30%
33%
78%
71%
57%
55%
Very Conv. Smwt. Conv.
(TAXES) We are being overwhelmed by higher taxes and rising prices for gas, food, healthcare, housing, and other everyday essentials.
Passing this bond measure would raise local property taxes by more than $450 for the average homeowner, hurting those who can least afford it, like working families and seniors on fixed incomes. (NO NEED) With all the money the City has raised from land sales, past bond measures, sales taxes, hotel taxes and millions of dollars in new funding from the state and federal government, it should have enough funding without raising even more taxes.
(WASTE) Instead of raising taxes, the City should just cut unnecessary spending. We don't need to raise taxes again and allow bureaucrats and politicians to waste our tax dollars.
(CITY HALL) Most of the money from this measure is going to build fancy new offices for City employees. This is not a good use of our tax dollars, especially when so many employees can be working from home.
EXHIBIT F
19 Simulating a robust opposition campaign drops
support for the measure very considerably.
Q5, Q8, Q9 & Q11. Would you vote yes in favor of this ballot measure or no to oppose it? 52%
61% 64%
48%
37%
29%
24%
39%
11% 10% 12% 13%
Initial
Vote
Vote After
Information $60/$100K Vote
Vote After
Opposition
Total No
Total Yes
Undecided
67%
EXHIBIT F
20 In 2016, support for Marina’s business license tax measure exceeded survey results which simulated an equal amount of pro and con messaging; however there was no organized opposition to the measure.
Would you vote yes in favor of this ballot measure or no to oppose it? 68%
54%
83%
25%
33%
17%
8% 13%
Initial
Vote
Vote after Pro & Con
Messages Election Outcome
Total No
Total Yes
Undecided
50%
Measure U - Business License Tax (2016)
EXHIBIT F
21 Conclusions
EXHIBIT F
22 Conclusions
• Survey results show that approximately half of Marina voters support a $50 million bond measure for the development of a Community Center and fire station. After information about the reasons the City could pursue the measure, support grows to 61% but remains below the two-thirds threshold necessary for passage of the measure.
• Compared to 2016, there is a lot of consistency on attitudes on the quality of life in Marina and approval of the City’s job performance.
• More than three-quarters of voters think the City has a need for additional funding, which is up from the 2016 survey.
EXHIBIT F
23 Conclusions; Continued
• Voters top priorities for the measure include:
o Ensuring public safety agencies can respond in case of an emergency
o Improving essential City services
o Improving 911, fire and emergency medical response times o Removing asbestos, mold and lead paint from public
buildings
o Preventing disruptions to City services
• Voters also value fiscal accountability provisions such as requiring public disclosure of spending and that all funds would be spent locally.
EXHIBIT F
24 Conclusions; Continued
• Several informational themes resonate with voters
including that the current City Hall was set up to be
temporary 40 years ago and does not meet current
safety/accessibility needs, the need for improved fire
station capacity to meet current needs for fire and
medical emergencies.
• Support for a smaller bond measure with a lower tax rate ($60/$100,000 of assessed value) is somewhat stronger,
but still does not quite reach the two-thirds level.
• Simulating a robust opposition campaign knocks down
the level of support for the measure below its initial level.
EXHIBIT F
Opinions on Local Funding Options
for the City of Marina
Highlights of a Survey of Likely Voters
220-6450
EXHIBIT F