Napa City Council
February 6, 2024

City of
Napa Fire Department
Napa, California

ORGANIZATIONAL
& OPERATIONAL

ANALYSIS
January 2023
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Organizational & Operational Analysis Napa Fire Department i

CONTENTS
Contents .......................................................................................................................................... i Acknowledgments ....................................................................................................................... iv Introduction .................................................................................................................................... v Purpose & Approach ................................................................................................................ v SECTION I: EVALUATION OF CURRENT CONDITIONS ........................................................ 1 Overview of the Napa Fire Department...................................................................................... 2 History of the Fire Department ................................................................................................. 2 The City of Napa ....................................................................................................................... 2 Governance & Organizational Structure ................................................................................ 2 Operations & Deployment ....................................................................................................... 3 Service Area ............................................................................................................................... 4 Other Local & Regional Resources .......................................................................................... 5 Management Components ......................................................................................................... 7 Mission, Vision, & Values ........................................................................................................... 7 Critical Issues .............................................................................................................................. 8 Internal & External Communications ....................................................................................... 9 Financial Overview ..................................................................................................................... 13 City of Napa ............................................................................................................................ 13 Napa Fire Department ........................................................................................................... 15 NFD Revenues & Expenditures Forecast ............................................................................... 23 Staffing & Personnel .................................................................................................................... 24 Administrative and Support Staffing ..................................................................................... 24 Operational Staffing & Distribution ........................................................................................ 26 Strategic Partners—Stakeholder Interviews ............................................................................. 30 Introduction to the Stakeholder Interviews .......................................................................... 30 Capital Facilities & Apparatus ................................................................................................... 31 NFD Fire Stations & Facilities ................................................................................................... 33 NFD Capital Apparatus & Vehicles ....................................................................................... 44 Other Capital Equipment ....................................................................................................... 45 Service Delivery & Performance ................................................................................................ 46 Service Demand ...................................................................................................................... 46 Population Growth & Service Demand Projections ............................................................ 58 Resource Distribution ............................................................................................................... 60 Resource Reliability ................................................................................................................. 69 Response Performance .......................................................................................................... 71

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Organizational & Operational Analysis Napa Fire Department ii
SECTION II: SUPPORT PROGRAMS .................................................................................... 82 Communications & Dispatch ..................................................................................................... 83 The Emergency Medical Services System ................................................................................ 84 EMS Service Demand .............................................................................................................. 85 Description of the EMS System ............................................................................................... 86 Training & Continuing Education Program ............................................................................... 91 General Training Competencies ........................................................................................... 91 EMS Training Program ............................................................................................................. 93 Training Facilities & Resources ................................................................................................ 98 Life Safety Services & Public Education Programs ................................................................... 99 Code Enforcement & Permitting ........................................................................................... 99 Fire Investigations .................................................................................................................. 103 Fire & Life Safety Education Programs ................................................................................ 104 Community Risk Reduction Program .................................................................................. 104 Special Teams ........................................................................................................................... 106 Special Team Response Service Demand.......................................................................... 106 Apparatus and Staffing for Special Teams ......................................................................... 108 Special Team Resources ....................................................................................................... 109 SECTION III: COMMUNITY RISK ASSESSMENT ................................................................ 111 Overview of the City of Napa & Napa County ...................................................................... 112 All Hazards Community Risk Assessment ............................................................................... 113 Population & Demographics ............................................................................................... 113 Demographics ....................................................................................................................... 115 Additional Demographics .................................................................................................... 119 Risk Classification ...................................................................................................................... 123 Risk Assessment Methodology ............................................................................................. 123 Fire Response ......................................................................................................................... 126 Emergency Medical Services .............................................................................................. 127 Technical Rescue .................................................................................................................. 128 Hazardous Materials .............................................................................................................. 129 Wildland Fires ......................................................................................................................... 130 Land Use ..................................................................................................................................... 131 Physical Assets Protected ......................................................................................................... 132 Structural Risks ........................................................................................................................ 132 Critical Infrastructure................................................................................................................. 142 Spatial Visualization of Data & Information ............................................................................ 151 Environmental Hazards ......................................................................................................... 151 ATTACHMENT 1

Organizational & Operational Analysis Napa Fire Department iii
SECTION IV: FINDINGS & RECOMMENDATIONS ........................................................... 163 Key Findings ............................................................................................................................... 164 Introduction to Recommendations ......................................................................................... 168 Short-Term Recommendations ................................................................................................ 169 Short-Term Operations Recommendations ........................................................................ 169 Short-Term Administration Recommendations ................................................................... 172 Short-Term Prevention Recommendations ......................................................................... 177 Mid-Term Recommendations .................................................................................................. 179 Mid-Term Operations Recommendations .......................................................................... 179 Mid-Term Administration Recommendations ..................................................................... 180 Long-Term Recommendations ................................................................................................ 183 Long-Term Operations Recommendations ........................................................................ 183 Long-Term Administration Recommendations ................................................................... 188 SECTION V: APPENDICES ................................................................................................ 189 Appendix A: Stakeholder Interviews ...................................................................................... 190 Appendix B: Risk Classifications .............................................................................................. 200 Appendix C: Table of Figures ................................................................................................... 204 Appendix D: References .......................................................................................................... 209 ATTACHMENT 1

Organizational & Operational Analysis Napa Fire Department iv

ACKNOWLEDGMENTS
AP Triton Consulting wishes to extend its sincere appreciation to each of those individuals whose contributions and assistance made this project possible.

Napa City Council
Scott Sedgley
Mayor
Beth Painter
Vice Mayor
Lisa Alessio
Councilmember
Mary Luros
Councilmember
Bernie Narvaez
Councilmember

Our sincere appreciation is extended to each of you…
…and the City Manager, Fire Chief, Chief Officers,
officers, firefighters, and support staff who daily
serve the citizens and visitors of the City of Napa,
and the surrounding community of Napa County.

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Organizational & Operational Analysis Napa Fire Department v

INTRODUCTION
The City of Napa Fire Department engaged the services of AP Triton to conduct a Fire Department Organizational & Operational Analysis.

Purpose & Approach
The purpose of this study is to understand where the department is in relation to the risks the community faces today, anticipate community growth (and therefore risk growth), and recommend steps to position the department to address that growth in advance with appropriate resources and infrastructure. In short, this analysis is designed to keep Napa Fire Department from lagging behind community growth, risks and development, and maintaining or enhancing service as the community grows. It is an effective policymaking and budgeting tool as well. Knowing where and how the community will grow into the future and what will be needed in terms of policy and budget support to address the growth well in advance is a critical element of the elected officials’ deliberation.

The Triton Team analyzed the data provided by the department as well as others to determine the current levels of response performance. From this analysis, the team identified factors influencing risk and response performance and has identified opportunities for delivery system improvement. This document establishes response time objectives, standards for measuring the effectiveness of department resources, and the deployment of those resources. The document ends with findings and recommendations categorized as short, medium, and long-term.

AP Triton does not expect the City and the department to implement all recommendations in the short term. Some may wait until economic conditions allow their implementation.

However, all the recommendations offered chart a course to improve capability and service.

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Organizational & Operational Analysis Napa Fire Department 1 Section I:

EVALUATION OF

CURRENT CONDITIONS
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Organizational & Operational Analysis Napa Fire Department 2 OVERVIEW OF THE NAPA FIRE DEPARTMENT
The following section represents a general overview of the components that comprise the City of Napa Fire Department (NFD) and other local emergency services resources.

History of the Fire Department
In 1859, the Napa County Board of Supervisors
purchased a hand pumper for the purpose of fire
protection that began in 1860. In 1872, the City of
Napa was incorporated, and ownership of the
existing fire equipment was transferred from the
Pioneer Engine Company to the city.1 The Napa
Fire Department was formally established in 1906
as a volunteer organization with a paid fire chief.

The City of Napa
NFD is a municipal fire department that provides emergency services to an area comprising just over 18 square miles within the Napa City limits. Its 2021 permanent population is estimated at 79,246 persons.2,3 NFD estimates that its primary response area consists of 25% urban, 70% suburban, and 5% rural.

Just over 5% of the population is under 5 years of age, and over 17% are aged 65 or older.4 About 8.5% of the population under the age of 65 is without health insurance, while nearly 8% of the total population is impoverished.5 The median household income in 2020 dollars between 2016–2020 was $85,953, with a per capita income of $41,828.6 Governance & Organizational Structure
The City of Napa functions under a mayor-council form of government, which includes five elected Council members (including the mayor). The Fire Chief is supervised by the Napa City Manager.

The Fire Chief has a three-person span of control that includes a Management Analyst responsible for the Administration Division, a Fire Marshal that manages the Fire Prevention Division, and a Deputy Chief of the Operations Division. The following figure illustrates the current organizational structure of NFD.

Figure 1: NFD in the Early Days
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Organizational & Operational Analysis Napa Fire Department 3 Figure 2: Napa Fire Department Organization Chart

As shown in the preceding figure, the Operations Deputy Chief oversees an Administrative Battalion Chief, Training Captain, EMS Captain, and three Shift Battalion Chiefs who manage the Captains, Firefighter/Paramedics, and Firefighters on their respective shifts.

Operations & Deployment
NFD is an all-hazards public safety agency providing traditional structural fire suppression, wildland firefighting, medical first response (MFR), and special operations including water rescue, structural collapse, confined space rescue, high- and low-angle rope rescue, and hazardous materials response.

NFD deploys its apparatus and personnel from five fire stations located throughout the city, with a separate fire department administration facility (shared with other city departments) that does not house apparatus. Fire Station 1 is staffed with a minimum of six personnel and deploys a two-person squad, a three-person ladder truck, and a Battalion Chief. Other apparatus housed at that station are cross staffed when necessary.

Each of the four remaining stations house an engine company staffed with a minimum of three personnel. Some of these stations are assigned reserve apparatus and specialty vehicles (e.g., watercraft, utility vehicles, etc.).

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Organizational & Operational Analysis Napa Fire Department 4 In August 2021, NFD was assigned a Public Protection Classification (PPC®) grade of Class of 2/2X by the Insurance Services Office (ISO).

Service Area
The following image shows NFD’s primary response area and the location of each of its five fire stations.

Figure 3: Study Area

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Organizational & Operational Analysis Napa Fire Department 5 Other Services Provided by NFD
In addition to emergency operations, and through its Fire Prevention Division, NFD provides fire inspections, code enforcement, plan reviews, and several public education/prevention programs. In addition, the Fire Investigation Team, consisting of operations personnel, conducts fire-cause and arson investigations,
Other Local & Regional Resources
Ground Emergency Medical Transport
Patient transport is provided at the Advanced Life Support (ALS) level by the private for- profit company American Medical Response (AMR). AMR contracts to exclusively provide 911 ambulance service in Napa County.

Air Medical Service
Rotor-wing (helicopter) scene response is available through REACHSM Air Medical Services, which bases “REACH 3”—a helicopter—at the Napa County Airport. REACH provides high- level advanced care utilizing specially trained registered nurses and paramedics.

Mutual Aid
NFD has access to a significant number of mutual aid resources. The next figure lists each of the fire agencies, the type of apparatus, and number of staff available to NFD.

Figure 4: Mutual Aid Resources Available to NFD
Agency Station
No.

No.

Engines
No.

Aerials Other Units No.

Staff
American Canyon FPD #11 1 1 Rescue, Tender 3
American Canyon FPD #211 1 1 Brush Unit 3
Napa County FD #12 1 1 Cross-staffed aerial 4
Napa County FD #25 2 0 6
Napa County FD #27 1 0 3
The next figure shows the locations of various mutual aid stations.

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Organizational & Operational Analysis Napa Fire Department 6 Figure 5: Area with Mutual Aid Stations

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Organizational & Operational Analysis Napa Fire Department 7 MANAGEMENT COMPONENTS
Mission, Vision, & Values
There are several difficulties facing the fire service in this day and age. Departments must respond to a wide range of complex crises regularly, including medical emergencies, rescue operations, building fires, and events involving hazardous chemicals. Limited financial resources and conflicting community interests may make it more challenging to overcome these obstacles. Today's fire departments need to create and implement a laser-like concentration on service delivery goals if they want to succeed. This focus must be established and maintained through effective leadership supported by efficient and unified management.

NFD Mission Statement
“Always Here, Always Ready, Serving You with Pride and Excellence” NFD Vision Statement
“The City of Napa Fire Department is dedicated and committed to providing a high quality of life safety and service in a professional, safe, and compassionate manner to the citizens of Napa. Our personnel are extremely dedicated and well trained to ensure outstanding performance mitigating emergency situations.

We strive to assure that our citizens are highly educated and well trained to survive any significant emergency or disaster where resource allocation may be insufficient to meet community demand for an extended period of time.

We shall always reach out to our community regarding safety by providing excellent prevention practices and education. This includes attempting to equip every type of occupancy with effective, well maintained, early warning and detection systems.

We shall work collaboratively and cooperatively to maintain current partnerships and seek new ones that involve resource sharing. This will ensure a highly effective and efficient fire service delivery system.

We shall be an organization that exhibits outstanding performance through all the services we provide and by always adjusting to the changing needs of our community.”
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Organizational & Operational Analysis Napa Fire Department 8 NFD Core Values
• Knowledge • Service • Responsibility
• Cooperation • Integrity • Professionalism
The current mission, vision, and values statements have not been reviewed since the last strategic planning session in 2015. Although most of the current statements are effective, NFD should review/revise them soon.

NFD will undoubtedly face numerous future challenges, including potential funding limitations, staffing shortages, and increasing service demands. Addressing these challenges will require a focused and unified understanding, vision, and agreement on how the department moves forward. AP Triton recommends that NFD conduct a comprehensive strategic planning process to revise, adapt, and support a contemporary mission statement, vision, values, and goals for the next three to five years. This effort should include the participation and input of various key community stakeholders.

The importance of current strategic planning efforts cannot be overstated. To that end, the City Council's participation, support, and formal endorsement of the planning outcomes are vital. Without this explicit consent, the major stakeholders' efforts will probably hinder NFD’s capacity to respond quickly and effectively to shifting community needs and expectations.

Critical Issues
As a part of this study, AP Triton conducted interviews with internal and external customers.

These customers were asked to list the organization's top five critical issues. AP Triton evaluated the responses, looking for commonalities that could lead to more cohesive planning for the future. The following figure summarizes the problems facing NFD.

Figure 6: Critical Issues Identified
No. Napa Fire Department
1 Budget/Funding/Revenues
2 Fire facilities in poor condition; department lacks proper training facilities 3 Workforce development/succession planning
4 Community outreach and education
5 Department needs an Emergency Services Manager
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Organizational & Operational Analysis Napa Fire Department 9 The challenges outlined emphasize the need to develop a strategic plan soon. To help navigate the complexity of NFD's challenges, the development of specific performance standards can prioritize critical issues. Detailed information regarding performance standards can be found later in this report.

Internal & External Communications
The public expects government agencies to communicate strategically, frequently, responsively, and transparently in today's "hyper-speed" world of communications.

Employees want the same with internal communications. Without effective communication, public and employee trust in the organization can be seriously harmed, and unofficial communication channels that disseminate incorrect and misleading information throughout the neighborhood and department could be established.

NFD communicates both internally and externally using simple tools. The organization's various internal and external communication tools are listed in the following figure.

Figure 7: Communication Methods Used by NFD
Communication Method NFD
Regularly Scheduled Staff Meetings Yes
Agency Intranet Yes
Written Memos Yes
Internal Newsletters No
All-Hands Meetings No
Community Newsletter No
Department Website Yes
Social Media Accounts Yes
Community Surveys Yes (City)

Specific to internal communications, AP Triton noted that NFD holds regular meetings with administrative and operational staff. However, the team appeared to have limited documentation from the various sessions. Instead, the dissemination of information primarily follows the traditional chain of command. AP Triton recommends an additional focus on documentation and distribution of meeting minutes. A solution may be the distribution of a monthly or quarterly newsletter.

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Organizational & Operational Analysis Napa Fire Department 10 NFD has an active Facebook® and Instagram social media account and frequently posts safety and general public-interest information on social media.

Department interviews indicated the need for improved network speeds throughout the stations. Fire department staff commented that the recent COVID-19 pandemic revealed network deficiencies and inconsistencies resulting in limited capacity. The City’s IT department is currently exploring solutions.

Internal/External Communications Discussion
The use of interactive social media platforms is widespread among emergency response organizations. These instruments, which are now part of the social fabric of America, have the power to mobilize (or dissuade) massive amounts of civic engagement and concern.

Using social media channels to communicate department activities effectively requires a practical and planned approach. In the past, many departments have let their social media presence grow naturally, often through experimenting. This haphazard strategy typically has led to several social media profiles, contradictory or missing information, inconsistent messaging, and the Intermittent publishing of inappropriate content.

It is crucial to guarantee that the community highly regards the department and its staff.

Consequently, NFD is actively using Lexipol® to examine and update departmental policies concerning personnel conduct. Any revised standards should clearly define expected behaviors for department members on social media during and outside work hours. Public personnel and the organizations that employ them have come under fire in recent years for inappropriate social media remarks. Examples include, but are not limited to, the exchange of private medical information, offensive racial epithets, offensive or defamatory comments, and even inappropriate humor. Employees have frequently suffered harsh punishment, including termination with needless harm to the fire department's reputation.

To address these challenges, some agencies have implemented social media guidelines that prohibit staff members from making public statements that:
• Are defamatory, obscene, discriminatory, slanderous, unlawful; • Tend to compromise administration of agency discipline; and • Damage or impugn the reputation and efficiency of the department or member.

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Organizational & Operational Analysis Napa Fire Department 11 An employee’s First Amendment rights must be considered when drafting a social media policy. However, many available examples of policies exist that legally balance First Amendment rights with fire department requirements and responsibilities.

Recent national events have demonstrated the necessity for an emergency response to active shooter and active killer events. Based on department interviews, there is an opportunity to improve communication between the Napa Police and Fire Departments.

Routine meetings can support the utilization of the Rescue Task Force.

Regulatory Documents & Recordkeeping
Government agencies depend on written policies, standard operating procedures (SOPs), and reports as effective management and legal compliance components. The following figure summarizes NFD’s various policies and how they are applied.

Figure 8: Regulatory Documents
Regulatory Documents NFD
Rules available for review Yes
SOPs available for review Yes
SOPs regularly updated In progress
SOPs used in training evolutions Yes
Department policies available for review Yes
Internally reviewed for consistency Needs updating
Internally reviewed for legal mandates In progress
Training on policies provided Yes

NFD has baseline department policies, rules, and SOPs related to its various administrative and operational tasks and evolutions. These policies must be updated and reviewed more frequently to ensure they are contemporary and meet legal requirements.

NFD has recently experienced training accidents that have resulted in long-term disabilities. Therefore, as the department continues reviewing and revising policies and procedures, particular emphasis should be placed on SOPs. Focusing on such SOPs can help limit incidence and department liability.

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Organizational & Operational Analysis Napa Fire Department 12 Documentation & Compliance Testing
Proper recordkeeping and secure record archiving are essential when meeting government agencies' legal, regulatory, and business best practices. Secure document archiving can also address a fire department's legal or other administrative actions. NFD’s recordkeeping is summarized in the following figure.

Figure 9: Reporting & Recordkeeping
Report Type NFD
Electronic Reports Yes
Software used–Fire ESO
Software used–EMS ESO
Periodic Reports to Elected Officials
Financial Reports Yes
Management Reports (Verbal) Yes
Operational Reports Yes
Annual Report Produced Yes
Required Records Maintained & By Whom
Incident Reports Yes
Patient Care Reports Yes
Exposure Records Yes
SCBA Testing Internal
Fit Testing Internal
Hose Testing Internal
Ladder Testing Yes
Pump Testing Yes
Atmospheric Monitors Internal
Vehicle Maintenance Records City Fleet

NFD’s recordkeeping appears to be efficient and effective. Vehicle maintenance is conducted and documented by the City’s fleet services using Asset Works®. The overall process supports general maintenance and helps identify the need for future capital expenditures.

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Organizational & Operational Analysis Napa Fire Department 13 FINANCIAL OVERVIEW
City of Napa
The City of Napa operates on a fiscal year basis beginning July 1 and ending June 30. As a government entity, the City utilizes the fund accounting method for recording revenues and expenditures. This methodology recognizes all receipts as revenue and all expenditures as expenses—regardless of the typical accounting characterization. For example, loan proceeds and repayment would be treated as revenues and expenditures, respectively.

The City’s revenue from property taxes has grown by 43% from 2017 through 2021.

However, the City experienced a significant reduction in its sales tax and hotel occupancy taxes in FY 2020 and 2021 due to the COVID-19 pandemic and its related restrictions on travel and gatherings. Sales tax did rebound over 2020 amounts in 2021, but the further reduction in hotel occupancy taxes offset those gains. The economic downturn and related federal stimulus had a significant negative impact on investment earnings.

The City was able to implement operating cost containment measures and reduced capital spending to offset the effects of the pandemic and related economic downturn.

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Organizational & Operational Analysis Napa Fire Department 14 Figure 10: City of Napa Historical General Fund Activity7 (000) Revenue/Expenses 2017
Actual
2018
Actual
2019
Actual
2020
Actual
2021
Actual
Property Taxes 29,107 32,133 34,974 36,347 41,822
Sales Tax 17,159 17,941 19,387 16,956 18,812
Transient Occupancy Tax 19,469 20,085 22,657 16,750 11,717 Other Taxes 5,984 6,406 6,435 6,318 5,953
Licenses & Permits 2,531 2,594 2,330 2,624 2,492
Intergovernmental 757 1,196 654 388 2,131
Charges for Services 5,714 6,205 5,936 8,297 4,855
Investment Earnings 370 162 2,248 1,838 70
Recurring Revenue: 81,091 86,722 94,621 89,578 87,852
TOTAL REVENUE: 81,091 86,722 94,621 89,578 87,852
City Council 307 291 311 375 293
City Clerk 983 824 112 887 929
City Manager 1,228 1,217 1,236 1,650 1,253
Finance 6,168 6,285 6,561 6,678 6,687
City Attorney 1,038 1,100 1,037 1,197 1,000
Human Resources 1,154 1,200 1,121 1,255 1,173
General Services 1,960 3,274 2,960 8,422 8,438
Total General Government: 12,838 14,191 13,338 20,464 19,773 Police 27,061 28,797 30,124 31,232 28,885
Fire 17,113 18,248 19,327 19,550 21,612
Total Public Safety: 44,174 47,045 49,451 50,782 50497
Public Works 9,443 12,411 11,209 11,918 11,337
Parks & Recreation 9,373 10,210 8,291 8,119 6,257
Community Development 7,536 25,123 23,790 5,363 4,683
TOTAL EXPENSES: 83,364 108,980 106,079 96,646 92,547
Operating Surplus (Deficit) (2,273) (22,258) (11,458) (7,068) (4,695) Transfers In 3,514 7,312 3,922 7,944 4,668
Transfers Out (included in exp.) — — — — —
Net Other Sources: 3,514 7,312 3,922 7,944 4,668
Net Increase (Decrease): 1,241 (14,946) (7,536) 876 (27)

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Organizational & Operational Analysis Napa Fire Department 15 Napa Fire Department
NFD is a multi-hazard, all-risk response agency that operates through three Divisions:

Administration, Prevention, and Operations.

The Administration Division provides support services and data analytics to the Fire Chief and other Division managers. It is staffed by the Fire Chief, a management analyst, an administrative secretary, and an office assistant. The Division has grown from 2.5 FTEs in 2017 to its current 4 FTEs in FY 2022. Expenses have increased from $521,247 in FY 2017 to $1,045,754 in FY 2021.

The Fire Prevention Division provides review and approval of development and new construction plans, inspections of all state-mandated and other occupancies, testing and acceptance of fire protection systems, review, adoption, and amendment of fire codes, weed abatement activities, public education, and other duties and responsibilities. It is staffed by the Fire Marshal, a Senior Fire Inspector, 3 Fire Prevention Inspectors Level I/II, and a secretary. Expenditures have decreased from $1,123,128 in FY 2017 to $881,149 in FY 2021.

Fire investigations are conducted by NFD’s Fire Investigations Team.

The Operations Division is responsible for emergency and non-emergency services to city residents and visitors. The types of incidents the agency responds to include medical emergencies, hazardous materials incidents, all types of fire calls, vehicle accidents, specialized rescue calls, and a plethora of other types of emergency incidents. The Division’s authorized staffing is a Deputy Chief, 4 Battalion Chiefs, 17 Fire Captains, 29 Firefighter/Paramedics, and 13 Firefighters. The budget has increased from $15,767,000 in FY 2017 to $19,851,000 in FY 2021. Of these positions, the Deputy Chief, one Battalion Chief, and two Captains typically serve in administrative or training roles and only rarely provide fill-in for off-duty personnel.

Revenues
NFD receives a large amount of its funding from the City’s General Fund revenue sources, although its divisions also charge fees for the various services provided. The Paramedic Tax, assessed as part of the property tax, has grown from $2,065,000 in FY 2017 to $2,652,000 in FY 2021. NFD receives a portion of the General Sales Tax of approximately $600,000 per year. Intergovernmental revenues consisting of state reimbursements and cost recoveries from other local agencies are dependent on the occurrence of disaster-level incidents requiring mutual aid responses. Plan check fees and inspection fees provide the majority of the revenues in the Charges for Services category. The following figure provides the historical revenues attributable to the operations of NFD.

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Organizational & Operational Analysis Napa Fire Department 16 Figure 11: Historical Revenues Attributable to the NFD Revenue FY 2017
Actual
FY 2018
Actual
FY 2019
Actual
FY 2020
Actual
FY 2021
Actual
Property Tax - Real Property 2,065,513 2,447,056 2,551,536 2,651,416 2,652,091 Property Tax - Supplemental 44,673 56,759 61,550 51,347 39,705 Property Tax - Personal Property 41,947 41,113 42,124 49,690 51,630 General Sales Tax 549,718 581,401 617,435 602,494 627,324 Business License Fees 7,424 6,689 7,496 6,126 7,742
Total taxes 2,709,275 3,133,018 3,280,141 3,361,073 3,378,492 Federal Op Direct Pass Through — — 1,634 — —
State Reimbursements 412,638 867,097 470,434 145,570 1,680,927 Other Local Agencies 149,436 128,073 162,164 179,718 73,567 Total Intergovernmental 562,074 995,170 634,232 325,288 1,754,494 Total charges for services 382,231 389,321 407,621 458,579 455,320 Recurring Revenues 3,653,580 4,517,509 4,321,994 4,144,940 5,588,306 In-kind Donations — — — — 26,100
Sale of General Capital Assets 700 — — — —
Transfers from CIP Reserve — 628,040 675,080 237,500 237,500 Non-recurring Revenues 700 628,040 675,080 237,500 263,600 TOTAL REVENUE: $3,654,280 $5,145,549 $4,997,074 $4,382,440 $5,851,906

Expenditures
Salaries and benefits consume the most significant portion of the NFD budget, averaging approximately 92% of the total annual expenditures. Salaries and wages have increased from $9,745,000 in FY 2017 to $12,251,000 in FY 2021 as FTEs increased from 69.51 to the current 74, increased pay rates, and a 70% increase in the use of overtime pay. This point will be discussed later in the study. The City of Napa participates in the CalPERS pension system. The City has incurred a very significant unfunded actuarial liability (UAL) in its pension obligation to its employees.

The result of this situation is the requirement of the City to amortize this liability over one of several choices in time periods. However, the 30-year amortization period, if selected, requires the City to increase its payments to the UAL until 2030, when the annual payment amount begins to decrease. Regardless of the amortization period selected, the UAL amortization payments are very substantial and in excess of $8,000,000 annually.

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Organizational & Operational Analysis Napa Fire Department 17 Materials and supplies have increased from $244,000 in FY 2017 to $250,000 in FY 2021. In 2021, this represents approximately 1% of total FY 2021 expenditures. Services which include professional services, software subscriptions, and communications expenditures, among others, have escalated from $145,000 in FY 2017 to $266,000 in FY 2021, but this category also is only approximately 1% of the total expenditures in FY 2021. Internal service charges have averaged just over $1,000,000 annually, or about 4% of the annual expenditures.

The next figure indicates NFD’s last five years of expenditures.

Figure 12: Napa Fire Department Historical Expenditures Expenditures FY 2017
Actual
FY 2018
Actual
FY 2019
Actual
FY 2020
Actual
FY 2021
Actual
Salaries & Wages - Full-Time 7,492,844 7,900,989 8,433,164 8,671,993 8,840,662 Overtime 1,453,049 2,198,491 1,708,521 1,456,217 2,468,743 Part-Time Wages 64,228 62,214 88,060 32,654 15,378
Other Pay 735,169 770,803 884,405 939,236 926,063
Total Salaries & Wages: 9,745,290 10,932,497 11,114,150 11,100,100 12,250,846 Health Insurance 1,091,793 1,105,411 1,193,407 1,196,624 1,182,431 Retirement – PERS 3,629,203 2,881,737 3,551,880 4,058,748 4,620,178 Workers Comp 747,004 905,668 924,794 918,795 1,025,131 Retiree Health GASB 45 220,552 235,904 254,615 263,361 270,559 Other Benefits 152,899 581,307 597,717 578,992 657,742 Total Benefits 5,841,451 5,710,027 6,522,413 7,016,520 7,756,041 Total Wage & Benefits: 15,586,741 16,642,524 17,636,563 18,116,620 20,006,887 Materials & Supplies 243,727 288,964 309,942 244,667 250,193 External Services 145,277 179,093 163,413 168,107 265,627 Internal Services 986,942 1,058,991 1,143,438 964,458 1,012,600 Total Recurring Expenses: 16,962,687 18,169,572 19,253,356 19,493,852 21,535,307 Capital Outlay 29,830 — 24,705 56,556 76,697
TOTAL EXPENDITURES: $16,992,517 $18,169,572 $19,278,061 $19,550,408 $21,612,004

Personnel Services
Increases in both compensation and benefits have been responsible for the majority of the increase in NFD’s operating costs. Total wages for all employees increased from $9,745,000 in FY 2017 to $12,251,000 in FY 2021. Overtime costs have fluctuated between a low of $ 1,453,000 (19.3% of base wages) in FY 2017 and $2,469,000 (27.9% of base wages) in FY 2021.

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Organizational & Operational Analysis Napa Fire Department 18 Interpolating those amounts to hours worked indicates a range of additional hours of between 11.1% and 18.6%. Using a base work year of 2,912 hours, of which 156 hours are scheduled overtime hours, a normal percentage of overtime would be approximately

5.6%. Regardless of the shift schedule (24/48 or 48/96), an overtime ratio in excess of 8% would be an indicator of a need to hire additional staff to cover open positions from vacation, illness, training, or backfill due to deployment. Currently, overtime costs, without regard to the cause, have increased from 8.5% (FY 2017) to 11.4% (FY 2021) of NFD’s overall expenses.

The number of authorized personnel has increased from 69.5 in FY 2017 to 74 in FY 2021. The additional personnel have only been minimally responsible for the increase in wages and benefits.

NFD has issues other than those mentioned above that affect overtime usage. The drought conditions in California have resulted in devastating wildfires throughout the state, with NFD units and personnel being deployed to those incidents. Costs associated with these deployments are typically reimbursed by the state or the federal government. However, shift firefighters spend one-third of their lives annually working at the station. Therefore, the cost factor is minor when compared to the physical effects that the extra workload adds to an employee’s normal work cycle.

Figure 13: Personnel Expenditures (FY 2017–FY 2021)

$15,586,741 $16,642,524 $17,636,563 $18,116,620
$20,006,887
$0
$5,000,000
$10,000,000
$15,000,000
$20,000,000
$25,000,000
FY 2017 FY 2018 FY 2019 FY 2020 FY 2021
Wages Overtime Benefits Total
ATTACHMENT 1

Organizational & Operational Analysis Napa Fire Department 19 Impact on General Fund
As previously indicated, NFD receives taxes and other revenues to supplement the funding from the City’s General Fund revenues. The following figure compares NFD annual expenditures to its revenues.

Figure 14: NFD Required Support from the City’s General Fund Revenue/Expenditures FY 2017
Actual
FY 2018
Actual
FY 2019
Actual
FY 2020
Actual
FY 2021
Actual
Total Expenditures 16,992,517 18,169,574 19,278,060 19,550,407 21,612,002 Total Revenues 3,654,278 5,145,550 4,997,075 4,382,439 5,851,906 Support Required from GF: 13,338,239 13,024,024 14,280,985 15,167,968 15,760,096

Cash-Flow Projections
City of Napa
The City of Napa has prepared a 2022 Long Term Financial Forecast (LTFF) to identify financial trends and forecast shortfalls, as well as opportunities and issues to allow the City to proactively explore and address them. The LTFF forms the foundation for the development of the City’s budget. The annual budget is the City’s planning tool and includes all departments’ proposed expenditures and the source of funds to finance them.

In addition, contingency funds are built into the annual budget to provide for unanticipated expenditures or emergency events. AP Triton utilized the 2022 budget and LTFF as a basis for its projections.

Revenues
Property tax revenue is the most significant source of General Fund recurring revenue for the City of Napa. The 2022 LTFF indicates the median home prices have been climbing and are forecasted to continue increasing due to several factors, including increased demand, lower interest rates (this has recently changed as a result of recent Federal Reserve Bank policy to combat inflation), and greater ability to work remotely. Property tax revenues are forecasted to increase by 4% annually. Napa’s second largest revenue source, the Transient Occupancy Tax (TOT), has recovered to almost pre-pandemic levels but is still susceptible to surges in Omicron variants. TOT tax growth is projected at 1.5% annually.

ATTACHMENT 1

Organizational & Operational Analysis Napa Fire Department 20 Sales tax revenue growth, typically an indicator of the confidence level of the consumer in economic conditions, is projected to grow at 3% annually. Business License Taxes and Charges for services are projected to be 3% and 2%, respectively. Not projected in the revenue stream, or the related expenditures, are the funds derived from state and federal disaster reimbursements. The following figure forecasts the projected General Fund revenue through FY 2027.

Figure 15: Estimated City of Napa Projected General Fund Revenues (000) Revenue FY 2022
Estimate
FY 2023
Budget
FY 2024
Project
FY 2025
Project
FY 2026
Project
FY 2027
Project
Property Tax 39,860 41,910 43,540 45,230 46,990 48,820 General Sales Tax 18,520 20,600 21,430 22,070 22,740 23,420 Transient Occupancy Tax 16,120 26,340 27,410 29,720 30,490 31,100 Other Taxes 5,860 5,980 6,110 6,250 6,380 6,530
Total Taxes: 80,360 94,830 98,490 103,270 106,600 109,870 State Reimbursements — — — — — —
Other Local Agencies — — — — — —
Total Intergovernmental: — — — — — —
Plan Check Fees 2,000 2,270 2,330 2,400 2,472 2,550
Service Charges 5,340 5,690 5,780 5,860 5,960 6,050
Total Charges for Services: 7,340 7,960 8,110 8,260 8,432 8,600 Recurring Revenues: 87,700 102,790 106,600 111,530 115,032 118,470 Miscellaneous 890 990 1,010 1,030 1,050 1,070
Transfers from CIP Reserve 3,010 3,120 3,230 3,350 3,470 3,600 Non-recurring Revenues 3,900 4,110 4,240 4,380 4,520 4,670 TOTAL REVENUE: $91,600 $106,900 $110,840 $115,910 $119,552 $123,140

Expenditures
The methodology used to develop the projected General Fund expenses uses expenditure totals by type rather than by allocating costs to an individual department. While this creates an issue in the continuity of the analysis, it does continue to allow for an analysis to be performed in total dollars that are accumulated.

ATTACHMENT 1

Organizational & Operational Analysis Napa Fire Department 21 The Long-Term Financial Forecast projects salaries to grow at an annual rate of 3.63%, combining COLA and merit increases annually.8 Health and dental insurance benefits are predicted to grow, based on a six-year historical average, at an annual rate of 3.23%. The CalPERS pension costs for current employees’ compensation are estimated to be at an average of 10.85% for non-safety employees and an average of 19.8% for safety employees.

The amortization payment for the unfunded liability (UAL) portion of the pension costs is expected to grow 4.4% annually, with a starting point in FY 2022 of $11,670,000. Salaries and benefits, including the UAL payment, are approximately 72.5% of the total FY 2022 expenditures. Services and supplies are projected to grow by 10.57% annually. Internal service costs are projected to increase by 8.6% annually. Transfers to reserve balances are identified in the City’s policy statements. The following figure identifies the annual costs by expenditure type through FY 2027.

Figure 16: Estimated City of Napa General Fund Expenditures (000) Expenditures FY 2022
Estimate
FY 2023
Budget
FY 2024
Project
FY 2025
Project
FY 2026
Project
FY 2027
Project
Salaries & Benefits 61,470 65,000 68,460 70,710 73,020 75,410 PERS UAL 11,670 13,050 13,630 13,620 14,090 14,350
Services & Supplies 7,710 8,530 9,430 10,430 11,530 12,750 Internal Services 7,250 7,940 8,590 9,310 10,130 11,040 Transfers to Reserves 3,530 3,990 3,860 4,070 4,760 4,920 Total Semi & Non-
Discretionary Expend: 91,630 98,510 103,970 108,140 113,530 118,470 Services & Supplies 8,260 8,430 8,600 8,770 8,940 9,120 Other Transfers Out 950 900 900 900 900 900
Total Discretionary
Expenditures: 9,210 9,330 9,500 9,670 9,840 10,020
Addback COVID-19
frozen positions and
operating expenses
— 5,010 5,200 5,480 5,230 5,380
Total COVID-19 Add-
Backs: — 5,010 5,200 5,480 5,230 5,380
TOTAL Expenditures: $100,840 $112,850 $118,670 $123,290 $128,600 $133,870

ATTACHMENT 1

Organizational & Operational Analysis Napa Fire Department 22 Impact on Reserve Balances
The results of the decisions implemented by the City will impact the ability to maintain reserve balances. The following figure shows the expenditure of discretionary and COVID- 19 add-backs in Figure 16. An analysis of Figure 16 indicates that, through budget decisions eliminating discretionary spending and COVID-19 add-backs, the budget may be balanced in all but the FY 2022 estimate.

Figure 17: Impact of Budget Decisions on GFD Reserves (000) Revenue/Expenditures FY 2022
Estimate
FY 2023
Budget
FY 2024
Projected
FY 2025
Projected
FY 2026
Projected
FY 2027
Projected
Total Revenues 91,600 106,900 110,840 115,910 119,552 123,140 Total Expenditures 100,840 112,850 118,670 123,290 128,600 133,870 Surplus (Deficit) (9,240) (5,950) (7,830) (7,380) (9,048) (10,730)

ATTACHMENT 1

Organizational & Operational Analysis Napa Fire Department 23 NFD Revenues & Expenditures Forecast
Revenues and expenditures will follow the growth factors previously identified in the City’s 2022 Long-Term Financial Forecast. As indicated in the following figure and using the assumptions contained in the 2022 LTFF, General Fund assistance to NFD will increase from FY 2022 to FY 2027.

Revenue
Figure 18: NFD Revenue & Expenditure Projections
Revenue/Expenditures FY 2022
Estimate
FY 2023
Budget
FY 2024
Project
FY 2025
Project
FY 2026
Project
FY 2027
Project
Property Tax 2,826,000 2,963,000 3,081,520 3,204,781 3,332,972 3,466,291 General Sales Tax 591,500 711,000 732,330 754,300 776,929 800,237 Other Taxes 7,000 8,000 8,240 8,487 8,742 9,004
Total Taxes: 3,424,500 3,682,000 3,822,090 3,967,568 4,118,643 4,275,532 Plan Check Fees 200,000 200,000 204,000 208,080 212,242 216,486 Service Charges 316,550 370,500 377,910 385,468 393,178 401,041 Intergovernmental 1,515,300 344,000 350,880 357,898 365,056 372,357 Total Service Charges: 2,031,850 914,500 932,790 951,446 970,476 989,884 Total Revenue: 5,456,350 4,596,500 4,754,880 4,919,014 5,089,119 5,265,416 Salaries 13,387,881 12,812,800 13,277,905 13,759,893 14,259,377 14,776,992 Benefits 7,925,600 8,494,550 8,828,483 9,147,403 9,478,519 9,822,310 Total Salaries &
Benefits 21,313,481 21,307,350 22,106,388 22,907,296 23,737,896 24,599,302 Materials & Supplies 462,190 296,550 327,895 362,554 400,876 443,248 Services 385,830 326,700 361,232 399,414 441,633 488,313 Internal Services 1,114,210 1,352,740 1,469,076 1,595,416 1,732,622 1,881,627 Capital Outlay 90,200 45,000 — — — —
TOTAL EXPENDITURES: 23,365,911 23,328,340 24,264,591 25,264,680 26,313,027 27,412,490 Fund (Deficit) from the
General Fund: (17,909,561) (18,731,840) (19,509,711) (20,345,666) (21,223,908) (22,147,074)

ATTACHMENT 1

Organizational & Operational Analysis Napa Fire Department 24 STAFFING & PERSONNEL
The City of Napa Fire Department (NFD) has a distinguished history dating back to early 1906. Its organizational success is based on a safe working environment, equitable treatment, the opportunity for input, and recognition of the workforce's commitment and sacrifice.

The size and structure of an organization's staffing are dependent upon the specific needs of the organization. Organizational priorities should correlate to the community. This section provides an overview of NFD's staffing configuration, particularly in delivering emergency medical services.

Several national organizations recommend standards to address staffing issues. The Occupational Health & Safety Administration (OSHA) Respiratory Protection Standard and National Fire Protection Association (NFPA) Standard 1710 are frequently cited as authoritative documents. The Center for Public Safety Excellence (CPSE) publishes benchmarks on the number of personnel recommended on the emergency scene for various risk levels.

Organizations must commit to consistency, fairness, safety, and growth opportunities. These values will be the foundation of the overall organizational culture. There are always challenges as organizations grow. Leadership and staff will face ambiguity, an environment of change, and the need for collaboration. Creating a positive culture is an opportunity to build a long-term sustainable organization.

One essential component of a healthy organization is balancing administration, support staff, and operational resources. This analysis will review the current ratio for each organization and provide recommendations for a combined staffing model. Staffing considerations could potentially result in improved service delivery. This process will evaluate various organizational charts and provide a framework for future staffing.

Administrative and Support Staffing
NFD is an integrated all-hazard organization. An analysis of its emergency response must start with an overview of the varying levels of administrative support. The following figure illustrates the various positions in uniformed/non-uniformed administrative and support functions.

ATTACHMENT 1

Organizational & Operational Analysis Napa Fire Department 25 Figure 19: Uniformed/Non-Uniformed Administrative & Support Staff Position Number
Fire Chief/Administrator/Director 1
Deputy Chief 1
Administrative Battalion Chief 1
Administrative Captain (Training) 2
Fire Inspector 4
Fire Investigators* 6
Fire Marshal 1
Total: 16
*Ops personnel, not stand-alone positions.

Figure 20: Non-Uniformed Administrative & Support Staff Position Number
Management Analyst 1
Finance Shared
Human Resource Shared
Others: Admin Secretary 1
Others: Office Assistant 1
Others: Prevention Secretary 1
Information Technology Technician Shared
Total: 4

Like many suburban fire departments, the staff serve in multiple roles. The Fire Chief provides all administrative support while serving as the head of the department. NFD receives administrative support from the City, including Human Resources (HR), Information Technology (IT), legal, finance, and the City Manager The administrative support provided by other city positions does not lessen the impact of collateral duties currently assigned to administrative and support staff.

ATTACHMENT 1

Organizational & Operational Analysis Napa Fire Department 26 Operational Staffing & Distribution
AP Triton evaluated the type and number of staff positions assigned to operations. NFD faces numerous challenges relating to the requirements for an effective response force (ERF), maintaining an adequate operational span of control, and providing service to a large geographic area. This section will give a summary of current operational staffing levels and recommendations for maintaining levels of service. The following section will focus on current emergency response staffing by position.

Figure 21: Emergency Response Career Staffing by Position* Position Number
Battalion Chiefs 3
Captains 15
Firefighter/Paramedics 29
Firefighters/AEMTs 13
Total: 60
*Excludes Training Captains (2), Admin BC (1), and Ops Chief (1).

Theoretical Calculation of Required Emergency Response Staffing AP Triton calculated the theoretical number of employees required to meet the various average leave hours used by operations employees in 2021 and compared the results to the current number of operations employees assigned to 24-hour staffed units. Information provided by NFD showed that the average use of vacation was 243 hours per firefighter.

The average use of sick time was 67 hours per firefighter and an additional 138 hours per firefighter for other leave. This totals an average of 448 hours of time off per position or approximately 15.4% of scheduled work hours. This calculation indicates a typical shift employee works 2,464 of their scheduled 2,912 annual hours. The total annual hours scheduled for the 54 required positions is 157,248. Dividing the total required hours by the average annual hours worked by each employee yields a required personnel count of

63.82 or 64 shift positions, or approximately 1.18 employees per person. AP Triton then multiplied the number of personnel needed to cover a single 24 hours per day position with the relief factor to determine the number of employees required to meet daily minimum staffing.

ATTACHMENT 1

Organizational & Operational Analysis Napa Fire Department 27 Figure 22: Theoretical Relief Factor Calculation (2021) Relief Factor NFD
Total Relief Factor 1.18

The total leave factors were multiplied by the number of personnel needed to cover one 24-hour position. The following figure compares the theoretical number of positions required to the current number of employees assigned to specific apparatus.

Figure 23: NFD Calculated Operational Staff Shortage/Overage (2021) No. Positions
Required 24/7
Total No.

Operations Staff
Theoretical No.
of Staff Required
Shortage or
Overage
24/shift - 18/total
per shift, 54 total 60 64 (4)
NFD currently has four firefighters on long-term disability. They are expected to be offline for an extended period.

Hiring & Retention
The organization will require a hiring process over the next few years based on NFD’s future staffing needs. The following section will evaluate the necessary hiring, testing, and safety components.

Based on a reputation for excellent service, an overwhelming desire to live in the Napa area, and competitive pay, NFD has benefited from a great hiring and retention program.

The next figure shows the current hiring process components.

Figure 24: NFD Hiring Process Components
Hiring Process Components Napa
Recruitment Program Yes
Qualifications check Yes
Reference check Yes
Background check Yes
Physical standards established CPAT
Knowledge testing Yes
Interview Yes
Medical exam required Yes
Psychological exam required Yes

ATTACHMENT 1

Organizational & Operational Analysis Napa Fire Department 28 The capacity of an organization to improve staffing diversity is essential to success. Napa County has limited ethnic diversity but has a 50/50 breakdown of men and women. NFD staffing appears to be consistent with the minority racial and ethnic demographics in the area, but could improve gender diversity. The following figure shows an overall population breakdown.

Figure 25: Napa County Race & Ethnicity Percentage
Race & Ethnicity % of Population
White Non-Hispanic* 53.0%
Black/African American 0.7%
Asian 2.8%
Hispanic 39.9%
Multi-Racial and Other 6.6%
*White alone, not Hispanic or Latino are individuals who responded "No, not Spanish/Hispanic/Latino" and who reported "White" as their only entry in the race question. Data were sourced directly from the U.S. Census Bureau’s QuickFacts page.

NFD currently has three women serving as line firefighters. Future hiring processes should focus on recruiting women and minorities commensurate with the community’s demographics.

Safety Compliance
The fire service functions within an inherently hazardous environment. The organization must take reasonable precautions to limit exposure and provide consistent medical monitoring.

Wellness programs include education on healthy lifestyles, mental health support, illness, injury prevention, and, most recently, an emphasis on cancer prevention.

Over the past 15 years, evidence supports that firefighters have a “14% increase in cancer- related deaths as compared to the general public.”9 National statistics for fire incidents show that 34% of industry fires produce environments with cancer-causing chemicals.

According to information from Data USA, employment in the City of Napa and the surrounding area includes:
• 3%—Transportation and Warehouse
• 5%—Building and Grounds
• 4%—Farming/Forestry
• 6%—Production occupations
• 4%—Construction
ATTACHMENT 1

Organizational & Operational Analysis Napa Fire Department 29 NFD excelled in its efforts to develop a cancer prevention program that includes:
• Issuing each career firefighter two sets of firefighter protective gear; • Gross decontamination in the station; and
• Extractor for cleaning protective gear (Station 2 does not have an extractor).

One recommendation for improvement would be to utilize cancer screening urinalysis, develop policies and procedures specific to using the above processes, and create a policy limiting cross-contamination of equipment and uniforms in the station’s living quarters.

The following figure summarizes the services provided for health and wellness.

Figure 26: Health, Safety, & Counseling Services
Services NFD
Medical Standards Yes
Medical Exam Frequency Optional for over 40 y/o
Safety Committee Yes
Critical Incident Debriefing Yes
Employee Assistance Program Yes

Firefighter Fatalities
There have been extensive studies on firefighter fatalities over the past 20 years. The leading cause of death for on-duty firefighters is cardiac arrest resulting from coronary artery disease.10 There is no direct correlation between coronary artery disease due to working in the fire service; however, coronary artery disease is exacerbated by the hazardous environmental conditions often faced in performing duties. Compared to other emergency response entities, firefighters are almost three times more at risk of a coronary event while on duty:
• 45%—duty-related firefighter deaths
• 15%—duty-related law enforcement deaths
• 11%—duty-related EMS deaths

ATTACHMENT 1

Organizational & Operational Analysis Napa Fire Department 30 STRATEGIC PARTNERS—STAKEHOLDER INTERVIEWS
Introduction to the Stakeholder Interviews
AP Triton interviewed a wide variety of Napa Fire Department (NFD) internal and external stakeholders. The purpose of these interviews was to gain a better understanding of issues, concerns, and options regarding the emergency service delivery system, opportunities for shared services, and expectations from community members.

It is important to note that the information solicited and provided during this process was in the form of “people inputs” (stakeholders individually responding to our questions), some of which are perceptions reported 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 trends. Based on the information reviewed, the team identified a series of observations and recommendations they felt were significant enough to be included in this report. Detailed stakeholder feedback will be found in Appendix A of this report.

Stakeholders were identified within the following groups: Elected Officials, Department Heads, Business Community Leaders, Citizens, Chief Officers, Labor Leaders, Volunteer/Reserve Firefighters, Rank & File, and Administrative Staff.

ATTACHMENT 1

Organizational & Operational Analysis Napa Fire Department 31 CAPITAL FACILITIES & APPARATUS
Apparatus and other vehicles, trained personnel, firefighting and emergency medical equipment, and fire stations are the essential capital resources necessary for a fire department to carry out its mission. No matter how competent or numerous the firefighters, if appropriate capital equipment is not available for operations personnel, it would be impossible for the Napa Fire Department to perform its responsibilities effectively. The essential capital assets for emergency operations are facilities, apparatus, and other emergency response vehicles. This section of the report assessed NFD’s fire stations, frontline apparatus, and other capital equipment.

Fire Station Features
Fire stations play an integral role in the delivery of emergency services for several reasons.

To a large degree, a station’s location will dictate response times to emergencies. A poorly located station can mean the difference between confining a fire to a single room and losing the structure or survival from sudden cardiac arrest. Fire stations also need to be designed to adequately house equipment and apparatus and meet the needs of the organization and its personnel.

Fire station activities should be closely examined to ensure the structure is adequate in both size and function. Examples of these functions can include the following:
• Kitchen facilities, appliances, and storage.
• Residential living space and sleeping quarters for on-duty personnel (all genders). • Bathrooms and showers (all genders).
• Training, classroom, and library areas.
• Firefighter fitness area.
• The housing and cleaning of apparatus and equipment, including decontamination and disposal of biohazards.
• Administrative and management offices, computer stations, and office facilities. • Public meeting space.

In gathering information from NFD, AP Triton asked the fire department to rate the condition of its fire stations using the criteria from the next figure. The results will be seen in the figures that follow this one.

ATTACHMENT 1

Organizational & Operational Analysis Napa Fire Department 32 Figure 27: Criteria Utilized to Determine Fire Station Condition Excellent
The building is in “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. Age is typically less than ten years.

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 apron surface or visible roof patches or leaks. Building design and construction match the building’s purposes. Age is typically less than 20 years.

Fair
The building appears to be structurally sound with a weathered appearance and minor to moderate non-structural 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. Age is typically 30 years or more.

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 the apron may exist. The roof has evidence of leaking and multiple repairs. The interior is poorly maintained or showing signs of advanced deterioration with moderate to significant non-structural defects.

Problematic age-related maintenance and major defects are evident. It may not be well-suited to its intended purpose. Age is typically greater than 40 years.

ATTACHMENT 1

Organizational & Operational Analysis Napa Fire Department 33 NFD Fire Stations & Facilities
The following figures outline the various features of the five Napa Fire Department stations and administration facility.

Figure 28: NFD Fire Station 1
Address/Physical Location: 930 Seminary St, Napa, CA 94559

General Description:

Station lacks sufficient space for personnel,
maintenance, training, and safe turnout storage.

The structure has had some seismic retrofitting done
to the apparatus bay, but the living quarters and
offices have not. Space is very limited for personal
& department vehicles, and reserve apparatus.

Modifications to address the privacy needs of a
diverse workforce are adequate at best.

Structure
Date of Original Construction 1962
Seismic Protection Apparatus bay only (retro 2010)
Auxiliary Power Yes
General Condition Poor
Number of Apparatus Bays Drive-through Bays 0 Back-in Bays 4 ADA Compliant No
Total Square Footage 9,206
Facilities Available
Sleeping Quarters 0 Bedrooms 0 Beds 18 Dorm Beds
Maximum Staffing Capability 9 single-occupancy dorm beds; 18 double Exercise/Workout Facilities Yes
Kitchen Facilities Yes
Individual Lockers Assigned Yes
Bathroom/Shower Facilities Yes
Training/Meeting Rooms One small training/conference room (10 persons) Washer/Dryer/Extractor Yes
Safety & Security
Station Sprinklered No
Smoke Detection Yes
Decon & Biological Disposal Yes
Security System No
Apparatus Exhaust System Yes
ATTACHMENT 1

Organizational & Operational Analysis Napa Fire Department 34 Figure 29: NFD Fire Station 2
Address/Physical Location: 1501 Park Ave, Napa, CA 94558

General Description:

Facility’s size is sufficient for the three personnel,
and also serves as the main training facility and
tower. Additional demand increases wear on the
entire facility. Modifications to address the privacy
needs of a diverse workforce are adequate at
best. The tower and training grounds are very old
and much of the footprint is taken up with training
materials, shipping containers, and the tower itself.

Layout is very awkward due to decades of
patchwork renovation and adaptation.

Structure
Date of Original Construction 1961 (seismic retro 2002) Seismic Protection Yes
Auxiliary Power Yes
General Condition Poor
Number of Apparatus Bays Drive-through Bays 0 Back-in Bays 3 ADA Compliant See FCA ADA audit
Total Square Footage 5,164
Facilities Available
Sleeping Quarters 0 Bedrooms 0 Beds 10 Dorm Beds
Maximum Staffing Capability 5 single-occupancy dorm beds; 10 doubles Exercise/Workout Facilities Yes
Kitchen Facilities Yes
Individual Lockers Assigned Yes
Bathroom/Shower Facilities Yes
Training/Meeting Rooms No
Washer/Dryer/Extractor Washer/Dryer, No Extractor
Safety & Security
Station Sprinklered Yes
Smoke Detection Yes
Decon & Biological Disposal Yes
Security System No
Apparatus Exhaust System Yes
ATTACHMENT 1

Organizational & Operational Analysis Napa Fire Department 35 Figure 30: NFD Fire Station 3
Address/Physical Location: 2000 Trower Ave, Napa, CA 94558

General Description:

Station is constructed with a number of ADA
features, but it lacks many features found in a
modern fire station. Turnouts stored in the
apparatus bay, and EMS decon is inadequate for
proper sanitization. Station serves as back-up 911
center. With additional equipment, reserve
apparatus and antique engines in apparatus bay,
drive through capabilities are functionally
eliminated.

Structure
Date of Original Construction 1987
Seismic Protection Unknown
Auxiliary Power Yes
General Condition Fair
Number of Apparatus Bays Drive-through Bays 0 Back-in Bays 3 ADA Compliant See FCA ADA audit
Total Square Footage 5,164
Facilities Available
Sleeping Quarters 4 Bedrooms 12 Beds 0 Dorm Beds
Maximum Staffing Capability 4 single-occupancy; 8 double; 12 triple Exercise/Workout Facilities Yes
Kitchen Facilities Yes
Individual Lockers Assigned Yes
Bathroom/Shower Facilities Yes
Training/Meeting Rooms No
Washer/Dryer/Extractor Yes
Safety & Security
Station Sprinklered Yes
Smoke Detection Yes
Decon & Biological Disposal Yes
Security System No
Apparatus Exhaust System Yes

ATTACHMENT 1

Organizational & Operational Analysis Napa Fire Department 36 Figure 31: NFD Fire Station 4
Address/Physical Location: 251 Gasser Dr, Napa, CA 94559

General Description:

Station is suitable for the crew of three. High-use
areas are showing signs of wear. It has a number of
modern features including a lobby for greeting the
public, dedicated storage space for EMS/cleaning
supplies, separate gym facility and shop area for
maintenance. Turnout storage is open to apparatus
bays and without its own air exchange system.

Structure
Date of Original Construction 2004
Seismic Protection Yes
Auxiliary Power Yes
General Condition Good/Fair
Number of Apparatus Bays Drive-through Bays 2 Back-in Bays 0 ADA Compliant See FCA ADA audit
Total Square Footage 7,315
Facilities Available
Sleeping Quarters 4 Bedrooms 12 Beds 0 Dorm Beds
Maximum Staffing Capability 4 single-occupancy; 8 double; 12 triple Exercise/Workout Facilities Yes
Kitchen Facilities Yes
Individual Lockers Assigned Yes
Bathroom/Shower Facilities Yes
Training/Meeting Rooms No
Washer/Dryer/Extractor Yes
Safety & Security
Station Sprinklered Yes
Smoke Detection Yes
Decon & Biological Disposal Yes
Security System No
Apparatus Exhaust System Yes

ATTACHMENT 1

Organizational & Operational Analysis Napa Fire Department 37 Figure 32: NFD Fire Station 5
Address/Physical Location: 3001 Browns Valley Rd, Napa, CA 94558

General Description:

Station is a single-story structure and provides
ample space for the crew. Its modern features
include a lobby for greeting the public. It has
features that aid in maintaining a healthy
environment like polished concrete floors. However,
laundry equipment is residential grade and turnout
storage is open to the apparatus bay.

Structure
Date of Original Construction 2018
Seismic Protection Yes
Auxiliary Power Yes
General Condition Good
Number of Apparatus Bays Drive-through Bays 0 Back-in Bays 4 ADA Compliant See FCA ADA audit
Total Square Footage 7,315
Facilities Available
Sleeping Quarters 4 Bedrooms 8 Beds 0 Dorm Beds
Maximum Staffing Capability 4 single-occupancy; 8 double Exercise/Workout Facilities Yes
Kitchen Facilities Yes
Individual Lockers Assigned Yes
Bathroom/Shower Facilities Yes
Training/Meeting Rooms No
Washer/Dryer/Extractor Yes
Safety & Security
Station Sprinklered Yes
Smoke Detection Yes
Decon & Biological Disposal Yes
Security System No
Apparatus Exhaust System Yes

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Organizational & Operational Analysis Napa Fire Department 38 Figure 33: Napa Fire Department Administration
Address/Physical Location: 1600 Clay St, Napa, CA 94559

General Description:

The NFD administrative offices are co-located with
the City’s Housing Authority and is an older single-
story structure. Space for the Fire Chief, Deputy
Chief and administrative support team is limited
with no additional space available. There is no
formal lobby to properly greet the public. A single
small conference room and breakroom serve as
the only spaces available for group meetings.

Structure
Date of Original Construction 1975
Seismic Protection unknown
Auxiliary Power No
General Condition Fair/Poor
Number of Apparatus Bays Drive-through Bays 0 Back-in Bays 0 ADA Compliant See FCA ADA audit
Total Square Footage 8,630 (Fire occupies 38 approx. 2,000) Facilities Available
Sleeping Quarters 0 Bedrooms 0 Beds 0 Dorm Beds
Maximum Staffing Capability 5 (offices)
Exercise/Workout Facilities N/A
Kitchen Facilities Yes
Individual Lockers Assigned N/A
Bathroom/Shower Facilities Bathrooms only
Training/Meeting Rooms Small conference room
Washer/Dryer/Extractor N/A
Safety & Security
Station Sprinklered Yes
Smoke Detection Yes
Decon & Biological Disposal N/A
Security System No
Apparatus Exhaust System N/A

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Organizational & Operational Analysis Napa Fire Department 39 Figure 34: Napa Fire Department Fire Prevention
Address/Physical Location: 1600 First St, Napa, CA 94558 General Description:

The Fire Marshal and Fire Prevention staff are
housed in the separate Community Services
building along with the Planning Department,
Public Works, and Community Development.

Limited space is available for workstations, or plans
examination, and there is no conference room.

Structure
Date of Original Construction Built in 1963, renovated in 1999 Seismic Protection Unknown
Auxiliary Power Yes
General Condition Poor/Fair
Number of Apparatus Bays Drive-through Bays 0 Back-in Bays 0 ADA Compliant Unknown
Total Square Footage 17,796
Facilities Available
Sleeping Quarters 0 Bedrooms 0 Beds 0 Dorm Beds
Maximum Staffing Capability Unknown
Exercise/Workout Facilities No
Kitchen Facilities Breakroom with fridge and microwaves Individual Lockers Assigned No
Bathroom/Shower Facilities Bathrooms no showers
Training/Meeting Rooms Yes
Washer/Dryer/Extractor No
Safety & Security
Station Sprinklered Community Services Building—Yes
Smoke Detection No
Decon & Biological Disposal Unknown
Security System Key card entry for employees; Panic switches Apparatus Exhaust System No
ATTACHMENT 1

Organizational & Operational Analysis Napa Fire Department 40 Summary of the Napa Fire Stations
The following figure is a summary list of some of the primary features of the five Napa Fire Department stations.

Figure 35: Summary of NFD Fire Station Features
Station Square
Footage
Apparatus
Bays
Maximum
Staffing
General
Condition
Station
Age
Station 1 9,206 4 9 Poor 60 years
Station 2 5,164 3 5 Poor 61 years
Station 3 5,164 3 4 Fair 35 years
Station 4 7,315 2 4 Fair/Good 18 years
Station 5 7,315 4 4 Good 4 years
Administration 2,000 0 5 Fair/Poor 47 Years
Fire Prevention 1,323 0 7 Fair/Poor 60 Years
Totals: 37,487 16 38

NFD Fire Stations Discussion
The fire stations were evaluated using the National Fire Protection Association’s Standard on Fire Department Occupational Safety, Health, and Wellness Program as a guide. A walkthrough inspection of each facility was completed on either August 8 or August 9, 2022.

Overall, the City’s fire stations are older and do not meet the requirements of today’s fire service. As the firefighting environment has changed, the technology, equipment, and safety systems have also changed to meet new demands. Older buildings do not typically have the space or engineered systems to meet that new environment. Modern living also requires much more access to electrical outlets than was expected in older buildings. The older NFD stations are no exception.

ATTACHMENT 1

Organizational & Operational Analysis Napa Fire Department 41 Older buildings do not meet the requirements due to the need to decontaminate personnel and equipment after many of the responses in the current firefighting context.

Every crew member should have access to facilities to decontaminate immediately after a fire event, and showers should allow for gender separation. In addition, there needs to be enough partitioned space to allow for gear and equipment to be thoroughly washed and designed to control contamination in the living and working space of the station. Most of the facilities in the city do not meet this need.

While all structures require routine maintenance, fire stations require even more maintenance due to the continuous occupancy by a minimum of three or more adults.

Multiple departures and returns of heavy apparatus also affect these structures. It appears the city’s maintenance program is unable to keep up with the need for repair, and there was ample evidence of ongoing maintenance deferral. This deferred maintenance has continued to accumulate and will only become more urgent.

The stations were reasonably clean, but many of the older stations are cluttered due to a lack of available storage space, or dedicated locations for equipment maintenance.

Almost every person AP Triton met expressed concerns about the condition of their facilities and the ongoing maintenance needs. All stations were supplied with an exhaust removal system that appeared to be in use and operable.

Station 1
Station 1 is second oldest of the five stations. As the downtown station, it houses the most personnel. The age of the station and the 60 years of wear and tear is evident.

Aside from some seismic retrofitting of the apparatus bay in 2010, very little of the original station has been remodeled. Minor modifications to the layout of interior spaces, dormitories, bathrooms, offices, and other workspaces have aided in making the building “functional,” but little more.

There is evidence of roof leaks in several offices, the classroom, and the gymnasium. In a number of circumstances, incompatible activities or equipment are collocated simply due to a lack of available space (ice machine/scoop, extractor, and mop storage).

Station 2
Station 2 is the oldest of the five stations. Much like Station 1, the 61 years of wear and tear is quite evident. This station also lacks many, if not all, of the necessary features for a heathy station environment.

ATTACHMENT 1

Organizational & Operational Analysis Napa Fire Department 42 The fire station is collocated with the training tower, drafting pit, drill ground, and numerous shipping containers that have been repurposed into makeshift training buildings. Lacking available space, the tower and surrounding drill ground must accommodate a wide variety of training activities and be reconfigured to meet individual training needs. Hose evolutions and confined space training take place on badly worn asphalt.

Though the training tower and associated props serve as the Department’s primary training facility, there is no dedicated classroom space on site to support indoor group/training activities. Multi-company training such as EMS training, written test taking, and lectures often involve up to 20 personnel and must be done outdoors, in the apparatus bay, or in the living quarters of the station, impacting the station personnel.

In order to meet physical fitness needs, gym facilities have been relocated out of the main fire station and into a repurposed metal storage building. Though the building is of sufficient size, and away from the diesel exhaust found in the apparatus bay, the structure is very old and lacks insulation and climate control features.

Station 3
Station 3 is a reasonably modern facility. Built in 1987, the station has private dorm rooms, gender-neutral restrooms and shower facilities, and sufficient space for three personnel.

Residential appliances and laminate counters in the kitchen are likely to need replacement, as wear and tear from daily use will greatly diminish their expected service life.

Turnout storage in the apparatus bay exposes personnel to off-gassing of diesel exhaust while working in close proximity and also exposes personal protective equipment to exhaust fumes from vehicles.

The station also serves as the City’s back up communications center. Office space has been allocated to four dedicated dispatch consoles and additional consoles are available in the mobile communications trailer stored in the apparatus bay. In the event the station is needed to serve as the communications center for an extended period of time, it would put significant strain on the facility and fire department personnel.

Station 4
Station 4 was built in 2004 and incorporates many modern fire service considerations. The station does have a dedicated turnout storage area, the area is open to the apparatus bay and lacks a door, or separate air exchange system.

ATTACHMENT 1

Organizational & Operational Analysis Napa Fire Department 43 The kitchen is sufficient size, and generally in good condition. However, the quality of the cabinets and residential-grade appliances will wear quickly given their continuous use.

The station was clean and very well kept.

Station 5
Station 5 was built in 2017 and is the newest of NFD’s stations. The station meets most modern fire service needs. Individual dorm rooms, showers, and separate office and living spaces are provided.

Commercial-grade appliances and counters in the kitchen will increase their life span and reduce repair/replacement cost over time. Polished concrete floors throughout the living spaces are easier to maintain, resist wear and tear, and contribute to a healthy station environment. Specialized grate flooring adjoining exterior doorways reduces the quantity of debris being tracked into the building and helps keep the station clean. The station was very clean and well organized.

Administrative Office
NFD administrative staff and chief officers are provided approximately 2,000 square feet of space in a building shared with the Napa Housing Authority. The space is insufficiently sized for the number of staff currently assigned, and lacks the ability to provide privacy. It precludes the administrative staff from collocating should additional members be added to the team (i.e., Emergency Services Manager).

Two members of the administrative support team share the front “Lobby” space. Given this, there is no desk or counter to greet the public and address their needs. The space has only a small dedicated conference room. Though likely sufficient for small meetings among the staff assigned to the administrative office, it is too small for meetings with more than a few external stakeholders, department personnel, or other City staff. This single small conference room and adjoining employee breakroom serve as the only two access points to the common hallway in the center of the building which contains the lavatory facilities.

The Fire Marshal and Fire Prevention staff are housed in the separate Community Services building along with the Planning Department, Public Works, and Community Development.

Limited space is available for employee workstations or plans examination, and there is no dedicated conference room.

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Organizational & Operational Analysis Napa Fire Department 44 NFD Capital Apparatus & Vehicles
Fire apparatus and other emergency response vehicles must be sufficiently reliable to transport firefighters and equipment rapidly and safely to an incident scene. In addition, such vehicles must be properly equipped and function appropriately to ensure that the delivery of emergency services is not compromised.

As a part of this study, AP Triton requested that NFD provide a complete inventory of its fleet (suppression apparatus, command and support vehicles, specialty units, etc.). For each vehicle listed, NFD was asked to rate its condition utilizing the criteria described in the next figure, which will be shown in the apparatus inventory figures.

Figure 36: Criteria Used to Determine Apparatus & Vehicle Condition Components Points Assignment Criteria
Age: One point for every year of chronological age, based on the date the unit was originally placed into service.

Miles/Hours: One point for every 10,000 miles or 1,000 hours.

Service:
1, 3, or 5 points are assigned based on service type
received (e.g., a pumper would be given a 5 since it is classified as severe duty).

Condition:

This category considers body condition, rust, interior
condition, accident history, anticipated repairs, etc. The better the condition, the lower the assignment of points.

Reliability:

Points are assigned as 1, 3, or 5, depending on the
frequency a vehicle is in for repair (e.g., a 5 would be assigned to a vehicle in the shop 2 or more times per
month on average; a 1 would be assigned if in the shop on average once every 3 months or less.

Point Ranges Condition Rating Condition Description
Under 18 points Condition I Excellent
18–22 points Condition II Good
23–27 points Condition III Fair (consider replacement)
28 points or higher Condition IV Poor (immediate replacement)

ATTACHMENT 1

Organizational & Operational Analysis Napa Fire Department 45 The following figure lists the frontline apparatus deployed from NFD’s five fire stations. As will be shown, every station houses a Type 1 engine. NFD maintains four Type 1 engines in reserve. Combined, the five frontline engines have an average mileage of 90,072 miles.

Both squads are relatively new at six years, with Squad 2 in reserve. Truck 1 is ten years old with more than 60,600 miles on it. Rescue 1, built in 2009, is held in reserve, and is considered to be in “Good” condition.

NFD also maintains two 1997 inflatable boats, a 1998 21-foot SAFE Boat, a Rescue Water Craft, and two boat trailers. In addition, it has a Jet Dock floating boat dock for its SAFE Boat.

Figure 37: NFD Frontline Apparatus Inventory (2022)
Unit Type Manufacturer Year Condition Features
Engine 2 Type 1 Pierce 2017 Good 1500 gpm/500 gallon
Engine 3 Type 1 Pierce 2017 Good 1500 gpm/500 gallon
Engine 4 Type 1 Pierce 2009 Good 1500 gpm/500 gallon
Engine 5 Type 1 Pierce 2001 Poor 1500 gpm/500 gallon
Engine 6 Type 3 Pierce 2009 Poor 1000 gpm/500 gallon
Truck 1 Ladder Pierce 2012 Fair 1000 gpm/300 gallon
Squad 1 Squad Ford 2016 Good N/A

As the preceding figure shows, three of NFD’s frontline engines were rated to be in “Good” condition, with one in “Fair” condition and two in “Poor” condition.

Other Capital Equipment
NFD utilizes 12 Physio-Control (Stryker) Lifepak® 15 Cardiac Monitor/Defibrillators ranging from one to ten years of age. In addition, the department maintains two Lifepak® CR2 Automated External Defibrillators (AED), one Laerdal HeartStart FR2 AED, and a Philips HeartStart FR2+ AED.

Another expensive but valuable piece of equipment is the Stryker© LUCAS® Chest Compression System. NFD owns three of the Lucas 2 and three of the Lucas 3 models, which automatically deliver high-performance continuous chest compressions.

ATTACHMENT 1

Organizational & Operational Analysis Napa Fire Department 46 SERVICE DELIVERY & PERFORMANCE
In analyzing NFD's service delivery and performance, the study team requested incident and unit response data for the calendar years of 2019 through 2021. The department provided data from its records management (RMS) and computer-aided dispatch (CAD) systems. While matching the records, approximately 4% of the RMS data did not have an associated CAD record. However, both data sets were utilized in this section's analysis.

General incident time and count information were collected through RMS, and unit times were collected through CAD.

Service Demand
The following figure shows the response workload by general type for the last three years.

Generally speaking, there was a 6% drop in call volume between 2019 and 2022 and a 5% increase from 2020 to 2021. The overall difference from 2019 to 2021 was a 1.4% decrease.

However, much of the volume change can be attributed to the lockdown and responses during the 2020 pandemic. It is difficult to fully understand the effect of the 2020 pandemic on call volume over three years. However, it appears that incident volume is returning to pre-pandemic levels. Emergency medical (EMS) and rescue incidents, classified as a 300 series in the National Fire Incident Reporting System (NFIRS) codes, were the most significant volume of incidents each year. In contrast, the more dangerous fire incidents, classified as a 100 series, account for a relatively small number of the overall incidents. The following figure shows the incident count for the three years grouped by EMS/rescue, fire, and all other incident types.

ATTACHMENT 1

Organizational & Operational Analysis Napa Fire Department 47 Figure 38: NFD Response Workload History

NFD responded to approximately 30,000 incidents over the three years. Incidents are grouped by NFIRS types. These types range from the 100 series incidents, grouped as fires, through the 900 series, labeled as special incident types. Rescue and EMS incidents account for over 66 % of the total incidents. The following figure shows the percentage of incidents by category for the three years of data in the study.

Figure 39: Responses by Incident Type
Incident Type Description Percent of Total*
Rescue & EMS (300 series) 66.7%
Good Intent (600 series) 13.1%
Service (500 series) 9.9%
False Alarm (700 series) 5.6%
Hazardous Condition (400 series) 2.4%
Fires (100 series) 2.2%
Special (900 series) < 0.1%
Weather Event (800 series) < 0.1%
Overpressure (200 series) < 0.1%
*Percentages rounded to the nearest integer.

187 217 256
7,138
6,408 6,583
2,995 3,078 3,332
0 1,000
2,000
3,000
4,000
5,000
6,000
7,000
8,000
2019 2020 2021
Fire Medical/Rescue Other
ATTACHMENT 1

Organizational & Operational Analysis Napa Fire Department 48 Temporal Analysis
Analyzing incident response volume within different time components can be helpful for an organization. For example, understanding the peaks and valleys of call volume can be operationalized by evaluating the additional resources needed based on time of day, day of the week, or month.

The first evaluation is incident volume annually. The next step is to view the total incident volume based on months. Evaluating monthly changes can identify seasonality in incident workload. In this case, NFD does not appear to have a well-defined seasonality in service demand. The busiest months for NFD have been August through October. The slowest months have typically been between February and April. The following figure shows the monthly response workload.

Figure 40: Monthly Response Workload

0 500
1,000
1,500
2,000
2,500
3,000
3,500

JAN FEB MAR APR MAY JUN JUL AUG SEP OCT NOV DEC
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Organizational & Operational Analysis Napa Fire Department 49 Daily workload analysis can also assist in operational deployment methodologies. NFD maintains a relatively even distribution for each day. The information shows a slight daily difference of 6% between the maximum and minimum volumes. The lowest service demand is on Sunday, while the maximum is on Wednesday. The following figure shows by the weekday.

4,133 4,301 4,361 4,383 4,363 4,333 4,320
0 500
1,000
1,500
2,000
2,500
3,000
3,500
4,000
4,500
5,000

SUN MON TUE WED THU FRI SAT
Figure 41: Daily Response Workload
ATTACHMENT 1

Organizational & Operational Analysis Napa Fire Department 50 Another tool for understanding this demand is combining daily and monthly volumes in a density chart. Again, NFD does not have an extreme swing or apparent trend. However, it is interesting to note that the October data is consistently heavier throughout each day of the month. The following figure shows the relative incident density by month and day.

Figure 42: Incidents by Day and Month

Month Mon Tue Wed Thu Fri Sat Sun Color Incidents
January 419–446
February 384–420
March 370–385
April 354–371
May 336–355
June 313–337
July 298–314
August
September
October
November
December

Fire department response workload typically shows fire department activity higher during daytime hours. NFD appears to follow this trend. High response workloads correlate with the time of day in which people are most active. In Napa City, the department's activity increases between 4:00 and 5:00 a.m. until it reaches its first peak at noon. This level remains stable and then starts a decrease after 6:00 p.m. The following figure shows the number of incidents by the hour for the 2019 through 2021 study period.

Figure 43: Hourly Workload

0 200
400
600
800
1,000
1,200
1,400
1,600
1,800
2,000
0 1 2 3 4 5 6 7 8 9 10 11 12 13 14 15 16 17 18 19 20 21 22 23 ATTACHMENT 1

Organizational & Operational Analysis Napa Fire Department 51 As with the month and year chart above, clarity of the incident volume by hour can be improved by combining the hour and day information. For NFD, the grouping is consistent with call volumes increasing during the day. However, one phenomenon is the grouping of the incidents towards the end of the week and the later call volume on Saturdays. The following figure shows the incident density by the hour and day of the week.

Figure 44: Incidents by Hour and Day of the Week

Hour Mon Tue Wed Thu Fri Sat Sun Color Incidents
0–1 262–286
1–2 229–263
2–3 212–230
3–4 189–213
4–5 153–190
5–6 111–154
6–7 91–112
7–8
8–9
9–10
10–11
11–12
12–13
13–14
14–15
15–16
16–17
17–18
18–19
19–20
20–21
21–22
22–23
23–24

ATTACHMENT 1

Organizational & Operational Analysis Napa Fire Department 52 Response Unit Workload
The response workload for each NFD apparatus is shown in the following figure. Many incidents, like structure fires and severe motor vehicle collisions, require more than one unit to respond. The following figure shows Engine 2 is the busiest unit. Since only one Squad unit is on duty at a time, these can effectively be combined for a total of 5,466 responses becoming the third most active “unit” in the fleet.

Figure 45: Response Unit Workload

1,764
6,823
6,037
5,337
3,039
1,105
3,007
2,459
3,666
0 1,000 2,000 3,000 4,000 5,000 6,000 7,000 8,000
B1
E2
E3
E4
E5
E6
S1
S2
T1
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Organizational & Operational Analysis Napa Fire Department 53 The amount of time spent on the scene can affect firefighters’ workload and the availability of resources for the next, or concurrent, incident. The following figure details the average amount of time each unit was committed to a scene.

Figure 46: Average Unit Incident Commit Time

While they have the smallest overall volume, Battalion Chiefs spend the most time on the scene. This can be explained by the complexity of scenes where a chief officer is needed for incident command. In contrast, the trucks, squads, and engines, typically commit for shorter periods and respond to more incidents.

This data only portrays the time captured in the records for a unit’s commitment to an incident. What it does not provide is the time crews are committed to additional duties. For example, crews will decontaminate and maintain vehicles and equipment, write reports, and other collateral tasks the incident response creates.

38:55
20:27
20:21
21:37
25:14
28:23
22:35
22:54
24:07
00:00 10:00 20:00 30:00 40:00 50:00
B1
E2
E3
E4
E5
E6
S1
S2
T1
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Organizational & Operational Analysis Napa Fire Department 54 Spatial Analysis
AP Triton also examined the response workload geographically. NFD's incident workload tends to remain in the city's central area. The following figure shows the density of response workload during the study period.

Figure 47: Incident Density

ATTACHMENT 1

Organizational & Operational Analysis Napa Fire Department 55 The previous incident density figure indicates a concentration of overall incidents in the city center. This includes all auto accidents and fire alarms. However, when the data is filtered to include only EMS incidents, the density logically shifts to more residential areas. The following figure shows the EMS incident demand density.

Figure 48: EMS Incident Density

ATTACHMENT 1

Organizational & Operational Analysis Napa Fire Department 56 Fire events are not as prevalent in NFD's system and do not concentrate as frequently in any given area. The following figure shows structure fire locations during the study period.

Figure 49: Structure Fires by Hour of Day

ATTACHMENT 1

Organizational & Operational Analysis Napa Fire Department 57 Structure fires can potentially be one of the more devastating incidents a fire agency faces. The time they happen throughout the day may impact the severity and life threats victims face. The following figure shows that most structure fires occurred in the afternoon and early evening.

Figure 50: Structure Fires by Hour

The following figure details the top 10 locations NFD responded to for calls of service most frequently during the study period.

Figure 51: Frequent Response Addresses
Location Location Name Facility No. of Calls
705 Trancas St. Napa Post-Acute Assisted Living 565
3255 Villa Ln. Brookdale Senior Living Assisted Living 526 3275 Villa Ln. Napa Valley Care Center Assisted Living 463 3460 Villa Ln. Springs of Napa Valley Assisted Living 447 1800 Atrium Pkwy. The Meadows of Napa Valley Senior Housing 430 2435 Sutherland Dr. Concordia Manor Assisted Living 397 2100 Redwood Rd. Aegis of Napa Assisted Living 385
2350 Redwood Ct. Redwood Retirement Residence Senior Housing 381 100 Hartle Ct. Homeless Shelter Homeless Shelter 316
2000 Atrium Pkwy. The Meadows of Napa Valley Assisted Living 275

0 2
4 6
8 10
12 14
16 0 1 2 3 4 5 6 7 8 9 1011121314151617181920212223
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Organizational & Operational Analysis Napa Fire Department 58 Population Growth & Service Demand Projections
Over the past three years, the utilization rate of the fire department per 1,000 population generally has decreased, as shown in the following figure. The rate declined during 2020 but was higher at 127.4 incidents per 1,000 population in 2021. It is projected that utilization will increase to 171 per 1,000 population through 2040.

Figure 52: Utilization Rate

A forecast for a future population can be calculated using the growth rate data based on the U.S. Census Bureau statistics. This forecast is similar to the population projections provided for Napa City by the Southern California Association of Governments (SCAG) report.11 Census-based forecast calculated a population of 80,196 in 2040, while the SCAG projected 86,715 residents.

0 20
40 60
80 100
120
140
2019 2020 2021
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Organizational & Operational Analysis Napa Fire Department 59 Figure 53: Population Projections

The following figure shows that using the locally forecasted population growth will potentially increase NFD’s workload, driven primarily by requests for EMS.

Figure 54: Workload Projections

0 10,000
20,000
30,000
40,000
50,000
60,000
70,000
80,000
90,000
100,000
2020 2025 2030 2035 2040
Census-Based SCAG
0 1,000
2,000
3,000
4,000
5,000
6,000
7,000
8,000
9,000
2025 2030 2035 2040
Fire Calls EMS Calls Other Calls
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Organizational & Operational Analysis Napa Fire Department 60 Resource Distribution
NFD operates out of five fire stations. A model of the theoretical drive times from each station was created. The drive time analysis is based on posted road speeds modified to account for turning, stops, and acceleration. The model does not consider congestion, construction, weather, darkness, or other non-controllable factors. The following figure illustrates the street sections that can be reached from each station within 4 minutes or less of travel time.

Figure 55: 4-Minute Travel Time

ATTACHMENT 1

Organizational & Operational Analysis Napa Fire Department 61 The overall coverage of fire incident demand is 91.7%, presuming engines are available and responding from their assigned stations. The coverage of EMS incidents was 95%.

The analysis indicates a need to place a bridge over Napa Creek, connecting Robinson Lane to Linda Vista Avenue. The potential to build this bridge is not a new concept but does not appear to enjoy community support. The following figure illustrates the 4-minute drive time into the area most likely to be impacted if the proposed bridge was built.

Figure 56: Current 4-Minute Drive Time Without Bridge

ATTACHMENT 1

Organizational & Operational Analysis Napa Fire Department 62 Were the bridge to be constructed, the evident gap in service may be reduced. There were approximately 100 emergency incidents during the study period that fell into the area where additional time was required because a bridge was not in place. In addition to the obvious first due improvement, there should be a slight balancing of the workload between Stations 2 and 5. Additionally, the ability for Station 5 units to respond more effectively to the north and west area will be increased for an improved effective response force time and back up coverage. The City Senior Civil Engineer and NFD reported to City Council in June 2018 on the potential benefits of building the proposed bridge. While some streets would see an increase in traffic, many more streets would likely see a decrease in traffic. In addition, approximately 2,000 homes and 5,000 residents would see an improvement of 1–2 minutes for initial responses and many others would see an overall response time improvement.12 The following figure is the 4-minute travel time for the area with the proposed bridge.

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Organizational & Operational Analysis Napa Fire Department 63 Figure 57: 4-Minute Response with Bridge Over Napa Creek

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Organizational & Operational Analysis Napa Fire Department 64 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 critical tasks. Tasks should be performed in such a manner as to effectively mitigate the incident without unnecessary loss of life or property. The ERF is specific to each type of incident and is based on the critical tasks to be performed.

NFD's response time goal for delivering the full ERF to a building fire is within 9 minutes, 20 seconds, 90% of the time. NFD has defined the current minimum full effective response force for low-rise building fires as three fire engines, one squad, one ladder truck, and one Battalion Chief for a total of 17 firefighters. The ERF is the same for high-rise and commercial building fires despite an identified need for more firefighters (25). More firefighters can be summoned by requesting mutual aid from outside agencies. While several units are dispatched when a fire is reported, once the first unit arrives and the scene is assessed, responding units may be canceled while en route.

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Organizational & Operational Analysis Napa Fire Department 65 Impact of Mutual Aid
NFD relies upon mutual aid from adjacent agencies during a structure fire and other incidents when needed. These critical relationships enable the department to ensure it has sufficient staff and apparatus to fight the fire. The following figure details the mutual aid facilities from the adjacent agencies.

Figure 58: Mutual Aid Stations

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Organizational & Operational Analysis Napa Fire Department 66 Figure 59: Mutual Aid Agency Capabilities
Department Station Station Address Engines Aerials Staff Napa County FD #25 1820 Monticello Rd. Napa 2 0 6
Napa County FD #27 1555 Airport Blvd. Napa 1 0 3
Napa County FD #12 7401 Solano Ave. Napa 2 1 4
American Canyon #11 911 Donaldson W. American Canyon 2 1 6 NFD reciprocates by providing aid to its adjacent agencies when requested. According to NFD data, 2.1% of the incidents were recorded as providing mutual aid. Many were to addresses with a Napa City postal address. However, they were identified by the fire crew as outside the city. The most mutual aid was given to an American Canyon postal address.

Often when crews respond to a possible structure fire, the incident is less complex. As a result, an engine will usually arrive and handles the fire threat, canceling the other units dispatched. This can be true even if the incident is classified as a structure fire in the incident data. NFD defines a moderate risk structure fire effective response force as 3 engines, 1 BC, 1 Truck, and 1 EMS unit. The following figure shows the number of incidents classified as a structure fire (NFIRS Code 111), the number of incidents where the required ERF arrived, and the 90th percentile total fire department arrival time in minutes.

Figure 60: Effective Firefighting Force Response Performance Description 2019 2020 2021
Structure fire incidents (NFIRS 111) 23 20 25
ERF Arrived at the scene responding emergent 16 8 12
90th Percentile first alarm ERF response (minutes) 12.4 14.4 20.8 Median first alarm ERF response (minutes) 7.2 8.5 8.1
While there appears to be an increasing time over the three years, at the 90th percentile, it is essential to note that such a small data set is sensitive to outliers. Due to the limited number of responses, an additional analysis was performed using the median or middle number in the data set. The median indicated here was not as significant an increase or a well-defined trend.

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Organizational & Operational Analysis Napa Fire Department 67 Mutual aid companies are likely to be a part of the response for a moderate risk structure.

However, as NFD utilizes either a self-dispatch or mutual aid dispatch methodology for requesting outside agencies, the effective response force model was run for NFD units.

NFPA 1710 recommends the first alarm travel time to be less than 8 minutes. The following figure represents the 8-minute travel time for the specified number of NFD apparatus to arrive.

Figure 61: 8-Minute ERF Arrival Area by Apparatus

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Organizational & Operational Analysis Napa Fire Department 68 A different way to evaluate the potential effective response force is to assess the number of people who can arrive. NFD identified a moderate risk fire personnel need at 17 people.

Again, because of the mutual aid methodology identified, only NFD personnel were evaluated. The following figure represents the area whereby the ERF meets or exceeds the minimum number of firefighters needed for critical tasking for the NFD.

Figure 62: 8-Minute ERF Arrival Area by Staffing

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Organizational & Operational Analysis Napa Fire Department 69 Resource Reliability
This section analyzes the workload at the unit rather than department level, as previously shown. However, unit-level workload analysis can reveal further insights into the stress level firefighters, and apparatus are experiencing. For instance, units are only effective if available within their station. For example, suppose they are already handling an incident when another incident is reported. In that case, a unit from further away must respond, increasing the response times.

Unit Hour Utilization (UHU) calculates the percentage of time a unit is not available for a response because it is committed to an incident during a calendar year. This is important because the higher the percentage, the more time the unit is unavailable to respond to another incident. This is especially significant for agencies like NFD that measure their performance at the 90th percentile. For example, a unit with greater than 10% utilization cannot provide on-time performance to a 90% target within its response area. This analysis only measures response incidents and does not include other unmeasured activities in the dataset, such as training time and station duties. The information was also edited to ensure activities lasting longer than 24 hours were not included, as that was likely a deployment or data error. The following chart indicates the percentage of time available to the apparatus they were committed to an incident by year.

Figure 63: Unit Hour Utilization
Unit 2019 2020 2021
B1 2.6% 2.5% 2.6%
E2 8.6% 8.7% 10.9%
E3 6.3% 8.7% 10.3%
E4 9.1% 7.3% 6.1%
E5 6.1% 3.7% 4.5%
E6 4.2% 0.9% 0.4%
S1 & S2 10.0% 6.4% 6.6%
T1 6.8% 4.7% 4.4%

It was indicated that Engine 6 is only staffed during high wildland fire danger and the squad in service is either Squad 1 or Squad 2. Engine 6 information was left separate as it appears there was a change in deployment. However, the squads were combined into one unit. In 2021, Engines 2 and 3 were above the 10% recommended utilization rate.

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Organizational & Operational Analysis Napa Fire Department 70 Concurrency
One way to look at resource workload is to assess the number of times multiple incidents occur within the same time frame. Therefore, incidents during the study period were examined to determine the frequency of concurrent incidents. This is important because concurrent incidents can stretch available resources and delay response to other emergencies. Therefore, this factor significantly impacts the jurisdiction's response times to emergencies. The following figure shows the number of times that one or more incidents occurred concurrently during the study period.

Figure 64: Concurrent Incident Percentage
Calls Concurrent Percent*
Single Incident 65%
2 Incidents 25%
3 Incidents 7%
4 Incidents 2%
5 or More Incidents 1%
*Percentages rounded to the nearest integer.

Another practical analysis is to see how often multiple NFD units respond to the same incident. Most of the responses within NFD have at least two response vehicles. However, these incident types are predominantly EMS incidents where the second vehicle is the EMS partner. Unfortunately, partner information was not available for this evaluation. Therefore, the following figure shows the percentage of incidents where multiple NFD apparatuses responded together to the same incident.

Figure 65: Unit Concurrency
Units/Incident Percent*
1 Apparatus 91.8%
2 Apparatus 6.9%
3 Apparatus 0.7%
4 Apparatus 0.3%
5 or More Apparatus 0.3%
1 Only frontline apparatus is evaluated.
2 Percentages rounded to the nearest tenth.

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Organizational & Operational Analysis Napa Fire Department 71 How a station crew responds reliably within its assigned area directly relates to response time performance within those zones. Other stations must handle incidents outside their response zones when busier units are on assignment, potentially creating a lag in response performance. This is especially true during fire events requiring multiple units from several stations. The following figure shows the number of incidents where the apparatus from the given station area responded to its own area of responsibility as part of the alarm, displayed as a percentage of total incidents.

Figure 66: Reliability by Zone Percentage
Station Area Station Unit Responded Station Coverage Needed 1 78.2% 21.8%
2 66.8% 33.2%
3 70.5% 29.5%
4 71.1% 28.9%
5 80.0% 20.0%

Response Performance
Incident data between January 1, 2018, and December 31, 2021, were evaluated in detail to determine NFD's current performance. Only priority incidents occurring within the NFD service area are included in the analysis. Non-emergency public assistance requests were excluded. Performance is reported based on the type of incident as recorded by the on- scene crews. Three categories are used to report performance:
• Fire—Responses to a report of a fire
• Emergency medical—All emergency medical incidents
• Other—Any other incident to which the department responded Each phase of the incident response sequence was evaluated to determine current performance. This allows an analysis of each phase to determine where opportunities might exist for improvement.

The total incident response time continuum consists of several steps, beginning with initiating the incident and concluding with its appropriate mitigation. However, the time required for each of the components varies. In addition, the policies and practices of the department directly influence some of the steps.

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Organizational & Operational Analysis Napa Fire Department 72 NFD’s response performance was compared to the national consensus standard for response performance found in the National Fire Protection Association’s (NFPA) 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, 2020 Edition. In addition, the dispatch center’s performance was compared to standards found in the NFPA’s Standard 1221: Standard for the Installation, Maintenance, and Use of Emergency Services Communications Systems, 2019 Edition.

The following figure summarizes the performance standards used in this section to evaluate performance compared to NFPA 1710’s standards.

Figure 67: Summary of Performance Goals
Incident Interval Performance Goal
911 call answer (time from the first ring to
answer).

Within 15 seconds, 90% of the time
Within 20 seconds, 95% 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, for
high acuity incidents.

Incidents requiring EMD or special
assistance, 90 seconds, 90% of the time.

All incidents, 120 seconds 99% of the
time.

Turnout time (time from notification of
response personnel until the initiation of
movement towards the incident).

Within 60 seconds, 90% of the time (EMS)
Within 80 Seconds, 90% of the time (Fire)
First unit travel time (time from initiation of
response until the arrival of the first unit at the
incident).

Within 4 minutes, 90% of the time
First unit response time (time from dispatch
until the arrival of the first unit at the
incident).

Within 5 minutes, 90% of the time (EMS)
Within 5 minutes, 20 seconds, 90% of the
time (Fire)
Full effective response force travel time (time
from dispatch until all units initially
dispatched arrive at the incident. Response
resources needed for a moderate risk
building fire are used for the evaluation).

Within 8 minutes, 90% of the time

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Organizational & Operational Analysis Napa Fire Department 73 In keeping with NFPA Standards 1710 and 1221 and NFD'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 shortest to longest. After being sorted, a "line" is drawn at a certain number of calls to determine the percentile. The point at which the "line" crosses the 90th percentile is that percentile time performance. Thus, 90% of the time was at or less than the result. Only 10% were longer.

The percentile differs significantly from the average. Averaging calculates response times by adding all response times and dividing the total number of minutes by the total number of responses. Measuring and reporting average response times is not recommended because it does not 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. Finally, all phases will be compared to NFD's performance goals.

Detection
Detecting a fire (or medical incident) may occur immediately if someone is present or if an automatic system is functioning. Otherwise, detection may be delayed, sometimes for a considerable period. This phase begins with the inception of the emergency and ends when it is detected. This phase is typically outside the fire department's control and not a part of the measurable event sequence.

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Organizational & Operational Analysis Napa Fire Department 74 Call Processing
There are two measurable performance metrics for the call processing phase. The first measure is typically called ring time, from when the phone starts to ring at the dispatch center until it is answered. This is appropriate since most emergency incidents are reported by telephone to the 911 center. Ring time can indicate staffing levels adequacy, as extended times may indicate call takers are too busy to get to the following emergency phone call. NFPA Standard 1221 recommends that 911 calls be answered within 15 seconds, 90% of the time (within 20 seconds, 95% of the time). However, this is not typically captured in modern computer-aided dispatch programs, and the information for this component was not provided for analysis.

The second part of the call processing phase is typically called dispatch or call processing time. This performance metric begins when the call is received at the dispatch center and ends when response units are notified of the incident. Call takers must quickly elicit accurate information about the incident's nature and location from persons apt to be excited. Lay people well-trained in reporting 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 incident, and continue to update information about the emergency while the crews respond. NFPA 1221 standards recommend that this phase occurs within 60 seconds, 90% of the time, for high-priority incidents. NFPA allows more extended times if specialized translation equipment is needed, or the incident undergoes pre-arrival instructions. According to NFPA 1221, these incidents should be handled within 90 seconds, 90 percent of the time. Finally, NFPA suggests all incidents are processed and units notified within 120 seconds, 99 percent of the time.

NFD's call processing time is slightly extended when measured against the 90-second, 90th percentile rule. The following figure illustrates the dispatch center's performance from receiving the call until it notifies response units.

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Organizational & Operational Analysis Napa Fire Department 75 Figure 68: Call Processing by Incident Type

The workload at the dispatch center can influence call processing performance. The following figure illustrates performance at different times of the day compared to NFD’s response workload. Call processing time is relatively stable throughout the day and evening.

Figure 69: Call Processing by Hour

1:47
2:08
2:00
0:00
1:00
2:00
3:00
EMS/Rescue Fire Other
0 200
400
600
800
1,000
1,200
1,400
1,600
1,800
2,000
0:00
1:00
2:00
3:00
0 1 2 3 4 5 6 7 8 9 10 11 12 13 14 15 16 17 18 19 20 21 22 23 Call Processing Incidents
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Organizational & Operational Analysis Napa Fire Department 76 Turnout Time
The turnout time response phase is controllable by NFD. This phase begins with the dispatch center's notification of an emergency in progress. It ends when personnel and apparatus start to move toward the incident location. Personnel must don appropriate equipment, assemble on the response vehicle, and begin traveling to the incident. Good training and proper fire station design can minimize the time required for this phase.

The performance goal for turnout time is within 60 seconds, 90% of the time for priority emergency medical incidents. For incidents requiring firefighters to put on equipment before responding, such as a structure fire, the NFPA recommends 80 seconds 90% of the time. Only response data identified as "emergent" in the record was included in this analysis. Turnout times for all incident types exceed standards. During the study period, turnout time for priority incidents was within 1 minute, 59 seconds, 90% of the time. The following figure lists turnout time by incident type.

Figure 70: Turnout Time by Incident Type

1:56
2:12
2:03
0:00
1:00
2:00
3:00
EMS/Rescue Fire Other Incidents
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Organizational & Operational Analysis Napa Fire Department 77 Turnout time can vary by the hour of the day, which is especially true of crews working 24 hours or more each shift. The variation can be attributed to resting people and the overall volume of incidents during this period. In NFD's case, turnout time varied by 72 seconds between the early morning and daytime hours, as shown in the following.

Figure 71: Turnout Time by Hour

Each station has a different layout, and the responders have different abilities. In addition, the time of day may significantly impact the quantity of data and the crew's reactions.

Based on the previous figure, daytime is defined as the time between 8:00 a.m. and 10:00 p.m. The following figure shows turnout time by unit at the 90th percentile performance measure for all incident responses classified as an emergency, broken out by day and night.

Figure 72: Turnout Time by Unit (Day/Night)

0 200
400
600
800
1,000
1,200
1,400
1,600
1,800
2,000
0:00
1:00
2:00
3:00
4:00
0 1 2 3 4 5 6 7 8 9 1011121314151617181920212223
Turnout Incidents
1:42
1:45
1:33
1:28
1:32
1:40
1:20
0:02:32
0:02:38
0:02:22
0:02:21
0:02:39
0:02:24
0:02:18
0:00 1:00 2:00 3:00
E6
E5
E4
E3
E2
T1
S1 & S2
Nighttime Daytime
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Organizational & Operational Analysis Napa Fire Department 78 Distribution & 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 all factors. This phase begins with the initial apparatus movement toward the incident location and ends when response personnel and apparatus arrive at the emergency’s location. According to NFPA 1710, the performance goal should be 4 minutes for the first response unit to arrive at an incident.

The following figure lists travel times for all priority incidents and incident types. NFD’s travel times exceeded its goal in all incident types. Travel time for all incident types was within 6 minutes, 0 seconds, 90% of the time. Many factors can contribute to this extra travel time experienced by NFD. These factors may include apparatus responding out of their area, traffic, and driver knowledge of local streets and conditions. However, for NFD station location plays a big role in the delay. Some areas of very high call density cannot be reached within the 4-minute response goal. For example, the area near Trancas St. and Big Ranch Rd., the areas east of Silverado Trail., the area around the bridge discussed previously, and the southern areas of the city are all outside the optimal travel model.

Figure 73: Travel Time by Incident Type

5:58 6:03 6:07
0:00
1:00
2:00
3:00
4:00
5:00
6:00
7:00
EMS/Rescue Fire Other Incidents
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Organizational & Operational Analysis Napa Fire Department 79 Travel time can vary considerably by the time of day. Heavy traffic during morning and evening rush hours can slow the department’s response. Concurrent incidents also can increase travel time since units from more distant stations would need to respond. Morning commuter traffic appears to affect travel time more than evening commuter traffic. The following figures show the travel time performance and the hourly workload.

Figure 74: Travel Time by Hour of Day

To provide an on-time response, a response unit must be available within 4 travel minutes of the incident.

0 200
400
600
800
1,000
1,200
1,400
1,600
1,800
2,000
0:00
1:00
2:00
3:00
4:00
5:00
6:00
7:00
8:00
0 1 2 3 4 5 6 7 8 9 1011121314151617181920212223
Travel Incidents
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Organizational & Operational Analysis Napa Fire Department 80 First Arriving Unit Response Times
Response time is defined as the period between the notifications 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 incident. When turnout time and travel time are combined, the NFPA 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.

Overall, NFD response time for all priority incidents was within 6 minutes, 24 seconds 90% of the time. The following figure illustrates the response time for Incidents with the first arriving unit responding emergent.

Figure 75: Response Time—Dispatch to Arrival by Incident Type

Response time is slowest during the nighttime hours and fastest during the day. Generally, NFD’s best response times occur during the day when response activity is at its highest. The following figure shows response times and the number of incidents by the hour for all first units arriving emergent to incidents.

Figure 76: Response Time—Dispatch to Arrival by Hour of Day

6:12
7:24 7:02
0:00
1:00
2:00
3:00
4:00
5:00
6:00
7:00
8:00
EMS/Rescue Fire Other Incidents

0.0%

1.0%

2.0%

3.0%

4.0%

5.0%

6.0%

7.0%
0:00
1:00
2:00
3:00
4:00
5:00
6:00
7:00
8:00
1 2 3 4 5 6 7 8 9 10 11 12 13 14 15 16 17 18 19 20 21 22 23 24 First - Dispatch to Arrival Workload
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Organizational & Operational Analysis Napa Fire Department 81 First Arriving Unit Received to Arrival Time
From the customers’ standpoint, response time begins when an emergency occurs. Their first contact with emergency services is when they call for help, usually by dialing 911. The received-to-arrival time phase combines the call processing, turnout, and travel times.

When the NFPA performance goals are combined, received-to-arrival time should be within 6 minutes, 90% of the time, for all priority incidents. Overall, NFD’s received-to-arrival time was within 6 minutes, 56 seconds, 90% of the time. The following figure shows received- to-arrival performance for incidents within the NFD service area where the first unit arrived emergent.

Figure 77: Response Time—Received to Arrival by Incident Type

From the customers’ standpoint, received-to-arrival is quickest during the day and slowest during the early morning hours. The following figure shows received-to-arrival performance by time of the day compared to incident activity by time of day.

Figure 78: Response Time—Received to Arrival by Hour

6:43
8:03 7:39
0:00
1:00
2:00
3:00
4:00
5:00
6:00
7:00
8:00
9:00
EMS/Rescue Fire Other Incidents

0.0%

1.0%

2.0%

3.0%

4.0%

5.0%

6.0%

7.0%
0:00
1:00
2:00
3:00
4:00
5:00
6:00
7:00
8:00
9:00
1 2 3 4 5 6 7 8 9 10 11 12 13 14 15 16 17 18 19 20 21 22 23 24 First - Received to Arrival Workload
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Organizational & Operational Analysis Napa Fire Department 82 Section II:

SUPPORT PROGRAMS
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Organizational & Operational Analysis Napa Fire Department 83 COMMUNICATIONS & DISPATCH
NFD is notified of an incident by Napa Central Dispatch operated by the Napa Police Department. The 911 center is the Public Safety Answering Point (PSAP) for the City of Napa, City of American Canyon, Town of Yountville, and unincorporated areas of Napa County. They provide dispatching services for NFD and other emergency services in Napa County. The center provides full-time staffing and processes 115,000 calls annually. The telecommunicators use computer-aided dispatch software to manage incidents to dispatch the appropriate agency and equipment based on the incident type.

The dispatch center is staffed 24 hours per day, 365 days a year, with Emergency Medical Dispatch (EMD) certified dispatchers. EMD is a systematic program for handling medical calls. Dispatchers use Priority Dispatch computer-based (ProQA) to determine the nature and priority of the call and give instructions to the caller to help treat the patient until the responding fire and emergency medical services units arrive.

Napa Central Dispatch is staffed with a Communications Manager who supervises four Public Safety Dispatch Supervisors who supervise, 17 Public Safety Dispatcher IIs, four Public Safety Dispatcher Is, and four Public Safety Call Takers. Night shifts have a minimum staffing of four to include a Supervisor, two Dispatchers, and a Call Taker. The day shift has a staffing of up to seven to include a Supervisor, four Dispatchers, and two Call Takers (staffing can vary daily).

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Organizational & Operational Analysis Napa Fire Department 84 THE EMERGENCY MEDICAL SERVICES SYSTEM
The Emergency Medical Services (EMS) section provides a summary of the Napa Fire Department’s (NFD) services relating to pre-hospital medical care. AP Triton used focused interviews combined with information from NFD to develop a perspective of current and future EMS needs throughout the study area. The purpose of this section is to evaluate the current level of pre-hospital care and future needs based on projected call volume and available resources. AP Triton will identify challenges relating to the EMS program and make recommendations with projected outcomes.

For more than 40 years, the NFD has provided ALS services and basic emergency medical services prior to that. Pre-hospital medical care is provided by 90% of the 31,000 fire departments in the United States. Residential and commercial structure fires have decreased by 52% in the United States since 1980. EMS service demand, on the other hand, has been steadily increasing across the country. The following figure is based on data from the report's Service Delivery section.

Figure 79: NFD Percentage of Fire & EMS Calls (2019–2021)

Data from the organization is consistent with national trends where most emergency responses are EMS-related. The overall breakdown was 67% EMS compared to 23% fire and “other” emergency types for service demand.

EMS, 67%
Fires and "Other"
Emergency Types, 23%
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Organizational & Operational Analysis Napa Fire Department 85 Background
EMS's first response in the southern portion of the county is primarily covered by the Napa Fire Department (NFD) and American Canyon Fire Protection District, with exclusive ambulance transport provided in a single Exclusive Operating Area (EOA) by American Medical Response (AMR). Interviews with NFD identify several challenges relating to the provision of EMS:
• NFD paramedics routinely attend the patient to the hospital in the private ambulance to maintain continuity of patient care;
• There are increasing delays in private ambulance response to incidents; • The system is often at level “0” due to limited private ambulances in the area; and • There are high turnover rates at AMR.

EMS Service Demand
NFD does not provide ambulance transport but has full advanced life support (ALS) first response capacity on all front-line apparatus. AMR provides transportation within the city and surrounding area.

A combined total for EMS service calls within the study area was approximately 6,602 incidents for 2021. The following figure shows a breakdown of the medical emergency incidents based on the available data.

Figure 80: NFD EMS Service Demand (2021)

The criticality shown in the preceding figure supports the necessity of ALS response. 3%
0%
13%
0%
0%
27%
0%
3%
30%
6%
10%
8%
0% 10% 20% 30% 40%
Stroke/CVA
MVA
Altered
OB/Peds
Environmental
Trauma Non-MVA
Behavioral
Poisoning/OD
Medical
Cardiac
Resp
Other
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Organizational & Operational Analysis Napa Fire Department 86 Description of the EMS System
As previously discussed, the prehospital emergency medical first response is provided by NFD. NFD provides ALS from five stations with the minimum staffing of one paramedic per engine, truck, or squad. NFD receives EMS mutual aid primarily from surrounding areas, including Napa County Fire and American Canyon Fire Protection District. The following figure shows the EMS mutual aid resources for the area.

Figure 81: Napa Fire Department EMS Mutual Aid Resources Department Name Station # Address Level Staff
Napa County Fire 25 1820 Monticello Rd., Napa BLS 6
Napa County Fire 27 1555 Airport Blvd., Napa BLS 3
Napa County Fire 12 7401 Solano Ave., Napa BLS 4
American Canyon FPD 11 911 Donaldson Way, American Canyon ALS 6

Air Medical Services
Emergency scene response and transport by helicopter are available from Reach (GMR) and CHP H30 with a Paramedic out of the Napa Airport.

Hospitals & Tertiary Care Facilities
Most patients from the Napa area are transported to Queen of the Valley Medical Center and occasionally to the Kaiser Hospital in Vallejo, Sutter Solano Hospital, and St. Helena Hospital.

Medical Community Demographics
Regional Medical Necessity Analysis
The following figure shows the leading causes of death in California compared to the national ranking. Napa County is consistent compared to state statistics. This information helps identify and compare the medical service demand in NFD’s response area.

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Organizational & Operational Analysis Napa Fire Department 87 Figure 82: Leading Causes of Death in California (2017) Condition Deaths Rate State Rank U.S. Rate

1. Heart Disease 62,797 142.9 40th 165.0

2. Cancer 59,516 136.7 45th 152.5

3. Stroke 16,355 37.6 24th 37.6

4. Alzheimer’s Disease 16,238 37.1 14th 31.0

5. Chronic Lower Respiratory Diseases 13,881 32.2 44th 40.9

6. Accidents 13,840 33.1 50th 49.4

7. Diabetes 9,595 22.1 20th (tie) 21.5

8. Influenza/Pneumonia 6,340 14.6 23rd (tie) 14.3

9. Hypertension 5,596 12.8 3rd 9.0

10. Chronic Liver Disease/Cirrhosis 5,325 12.1 18th 10.9 California's highest cause of death is heart disease, followed by cancer and stroke. Training emphasis should be placed on EMS responses to these medical events.

Regional Medical Health Insurance Analysis
The demography of a community significantly impacts the demand for emergency medical services. Income, poverty, health status, population ages, and health insurance can drive service demand. Available first responder transport revenue is also affected by demographics. Approximately 65.1% of the City of Napa has private health insurance.

Additionally, 15.6% of the population has Medicaid, 11.8% is on Medicare, and 7% is private/self-pay.

Medical Control & Oversight
Emergency medical services rarely constitute definitive care. The continuum of care starting in the pre-hospital setting and ending in the appropriate medical facility is critical to positive patient outcomes.

The paramedics operate on this protocol-based system under the direction of the County EMS Medical Director. The protocols will guide the paramedic treatment for a patient with an extreme medical emergency, such as a stroke or evolving myocardial infarction, and direct the paramedics to call the receiving hospital for additional direction not covered by those protocols.13 Traumatic calls requiring the intervention of a Level I or Level II hospital may incorporate a helicopter or fixed-wing aircraft for transportation to those trauma-level hospitals.

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Organizational & Operational Analysis Napa Fire Department 88 NFD also has excellent interaction with its internal Medical Director providing oversight based on the department's continuous quality improvement (CQI) program. Oversight is primarily complaint/adverse outcome driven. The provision of emergency medical services is a balance of fiscal responsibility and providing necessary service levels. NFD should perform a cost-benefit analysis on all staffing, equipment, and supplies not mandated by the government or industry standards.

The process should include four steps. The first is to identify the overall cost. The second is a statistical review determining the utilization. The next component is to review the perishability of a specific resource. Medications provided by a paramedic have specific expiration dates, which may result in significant costs when unused. Technical equipment such as cardiac monitors also has perishability due to improvements in technology or reliability.

The training required for initial utilization and continued competency translates to the overall cost of a resource. The level of liability should be considered relating to a specific piece of equipment, medication administered, or services provided. Finally, a statistical analysis needs to be performed to determine the overall efficacy of the evaluated resource.

Figure 83: Staffing/Equipment/Medication Cost-Benefit Analysis Process

This analysis process must involve the Medical Director, NFD leadership, and hospital emergency department staff. The results will help identify the specific service levels and the purchase and utilization of resources on particular response apparatus.

Medication,
Equipment, &
Staffing for
Evaluation
Measure Utilization
Initial Cost
Government &
Industry
Requirements
Medication &
Equipment
Perishability
Training
Requirements Liability Analysis
Efficacy Analysis
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Organizational & Operational Analysis Napa Fire Department 89 Quality Management
As previously discussed, NFD responds to a high percentage of EMS requests for service.

Considering the potential for increased pre-hospital services, NFD has an excellent foundation for a quality management program. NFD uses ESO for electronic patient care reports (ePCR), and recent upgrades now combine patient care reports for NFD and AMR.

NFD completes an ePCR when personnel provides primary assessment and care. Future improvements should include additional documentation on all patients to better capture fire-based EMS activities. AP Triton recommends that emphasis be placed on gathering specific metrics with defined criteria that initiate an internal review. Additional information regarding this subject is discussed later in this section. A challenge currently facing many EMS agencies is the lack of objective data to support high-quality care. There is a necessity for evidence-based data that can provide accurate information about the level of care provided.

Additionally, the data may support program expansion and budgetary increases. This evaluation process showed an opportunity for improvement in data collection and analysis. Currently, NFD is using ESO for patient care reporting. ESO will export data to an Excel format if adequately documented, and the data can be easily interrogated to provide various evaluations. The following figure shows a minimal data set and potential evaluation criteria that would be beneficial in making objective decisions.

ATTACHMENT 1

Organizational & Operational Analysis Napa Fire Department 90 Figure 84: Data Set & Quality Assurance Criteria

Logistical Support
A routine utilization study would help identify opportunities for improved inventory control.

NFD does a one-for-one exchange with AMR for medical supplies, but does not currently use an electronic system for logistical support. The current internal system requires manual data entry. Due to the organization's size, AP Triton recommends implementing a partially automated inventory control system. Various systems have proven cost-effective in the long run, especially in reducing expiration waste and lost supplies. The system would limit dependency on the AMR, especially during occurrences of national shortage. An efficient inventory control system can be cost-effective, channeling funding to other aspects of the program. The systems can provide current inventories to assist crews in familiarizing themselves with the location of equipment and supplies. These systems include bar code scanning, QR readers, and radio frequency ID (RFID).

Time Study Efficacy Study Utilization Study
Data Sets
• Medication usage
• Procedures performed
• Expiration (waste)
• BLS Transport
• ALS Transport
• Refusal
• Treat and release
Data Sets
• Vital signs
• Treatment success/failure
• ETCO2
• ECG
• Pulse Ox
• Advanced airway
• Outcomes
Data Sets
• Travel
• BLS On-Scene
• ALS On-Scene
• Ambulance On-Scene
• Enroute to Hospital
• Arrival Destination
• Medication and Procedure Times
• Average On-Scene Time
Evaluation (Quarterly)
• How quickly do patients receive ALS
care?
• What is the time delay between arrival
of BLS and arrival of ALS?
• Is there a delay of transport for critical
patients due to ambulance
unavailability?
• What is the average on-scene time for
BLS, ALS, cardiac arrests, trauma?
• How quickly/how often are critical
medications administered?
• What is the average transport time?
Evaluation (Quarterly)
• Were inadequate vitals managed in a
timely manner?
• What is the success/failure for all
procedures performed?
• Were respiratory emergencies managed
appropriately (ETCO2)?
• Was CPR effective (ETCO2)?
• Was current ACLS performed?
• What was the hospital disposition?
Evaluation (Quarterly)
• What medications/supplies are being
used and what volume should be
carried?
• Volume of medication and procedures
to determine necessary inventory?
• What is BLS vs. ALS transport?
• What volume/type of treat and release
(indications for community paramedic
programs)?
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Organizational & Operational Analysis Napa Fire Department 91 TRAINING & CONTINUING EDUCATION PROGRAM
Training is the foundation of all aspects of emergency services. An individual's ability to effectively utilize resources and equipment depends on the level of training provided by an organization. The following section provides an overview of the current training program's equipment, facilities, execution, and efficacy.

Training Staff & Administration
Training is a significant component of an efficient and capable department. The Training Officer/Captain primarily administers NFD training. This training position supports the goal of Firefighter/Paramedics being well trained through a single source—an in-house coordinator. NFD currently has specific standard operating guidelines and policies.

However, the department works with Lexipol to separate and develop these administrative documents.

General Training Competencies
The following figure summarizes NFD's general training topics and certification levels. The department has limited Training Standard Operating Guidelines (SOPs) with hour requirements to obtain and maintain various certification levels.

Figure 85: General Training Competencies by NFD
Training Competencies NFD
Incident Command System ICS 100–800
Accountability Procedures Yes
Training SOPs Yes
Recruit Academy Internal
Special Rescue Training Yes
HazMat Certifications Operation/Tech
Vehicle Extrication Training Yes
Driving Program EVOC
Wildland Certifications FF1, FF2, Red cards (all Ops), annual RT130 Communications & Dispatch Internal
EMS Operations Yes

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Organizational & Operational Analysis Napa Fire Department 92 NFD has demonstrated the capacity to manage critical incidents with limited resources.

The department maintains general competencies; however, additional focus is necessary.

AP Triton recommends increasing the general requirements for each firefighter relating to EMS incident response. EMS constituted approximately 67% of the demand for service but only 4.2% of the training hours in 2021.

Another topic warranting focused evaluation is the training requirements for individual firefighters. The training requirements are defined but appear to lack consistency between firefighters.

The following figures show a breakdown of the total number of training hours each firefighter received from July 2020 through June 2021.

Figure 86: Individual Training Analysis (2021)

NFD demonstrated limited consistency in training hours that individuals received in 2021.

The data supports developing a program with training topics and hours required per individual firefighter. It is understood that roles such as Company Officer require specific training, but there is a need to establish minimum annual training requirements.

0 50
100
150
200
250
300
1 6 11 16 21 26 31 36 41 46 51 56
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Organizational & Operational Analysis Napa Fire Department 93 Training Topics Discussion
The following figure summarizes the general training topics and emphasis NFD had for each discipline from July 2020 through June 2021. The analysis is based on the data provided but may not be an accurate representation due to incomplete training records.

Figure 87: NFD Training Emphasis (July 2019–June 2021)
Incident Type Training Incident
Fire 30.4% 9.2%
EMS 4.2% 82.1%
Hazmat 1.6% 2.5%
Rescue 10.4% 0.2%
Wildland 6.5% 3.8%
Other 46.9% 2.2%

The previous figure shows an opportunity to improve NFD’s annual training program. Based on this information, additional training hours are recommended for high-incident events, including EMS response. NFD has a progressive advanced life support response program.

EMS Training Program
NFD’s hiring practice is to hire personnel with those essential skills and certifications. This analysis identified an opportunity for improvement relating to clinical resources. In 2021, NFD provided 1,531 paramedic-level medications or procedures. The limited skill volume translated to an average of 56 medications and procedures per paramedic/firefighter.

Eighteen advanced airway procedures (intubations/supraglottic) were performed during the same period, correlating to 0.66 airway procedures per paramedic.

Based on interviews with senior administration, the limited capacity of AMR is resulting in prolonged wait time for ambulance transport, and the system is often going to Level 0 due to the lack of transport units. Based on the data in the EMS section, there is a high incidence of criticality requiring advanced level care. The combination of high acuity and dilution of skills requires an emphasis on EMS training. AP Triton recommends establishing a cooperative agreement with Queen of the Valley Hospital so paramedics can support critical skill competency.

The following figure shows the breakdown of medications/procedures provided in 2021 and the ratio of skills per paramedic.

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Organizational & Operational Analysis Napa Fire Department 94 Figure 88: Medication/Procedure Ratio per Paramedic (2021) Procedure/Medication Total Procedure/Medication
per Paramedic
Epinephrine 1:10 193 7.15
Fentanyl 127 4.70
Aspirin 99 3.67
Zofran 91 3.37
Narcan 54 2.00
Albuterol 48 1.78
Nitroglycerin 44 1.63
Atrovent 39 1.44
Dextrose 10% 34 1.26
Midazolam 25 0.93
Oral Glucose 21 0.78
Adenosine 11 0.41
Amiodarone 10 0.37
Benadryl 9 0.33
Epinephrine 1:1 7 0.26
Sodium Bicarb 8.4% 6 0.22
Calcium Chloride 2 0.07
Lidocaine 2% 2 0.07
Other—Medication 2 0.07
Atropine 1 0.04
Acetaminophen 1 0.04
Intraosseous 30 1.11
IV Therapy 618 22.89
King Airway 7 0.26
Orotracheal Intubation 11 0.41
Pleural Decompression 1 0.04
Cardioversion 8 0.30
Manual Defibrillation 26 0.96
Pacing 4 0.15
Based on this information, NFD would benefit from an annual EMS check-off program to identify opportunities for additional training.

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Organizational & Operational Analysis Napa Fire Department 95 Training Methodologies & Delivery
AP Triton recommends that NFD consider a balanced EMS/Fire training program that includes required re-certification, and focused, immersive, and repetitive training.

Figure 89: Balanced Training Program

Immersion Training
A common challenge for any training program is the development of training that translates to improved efficacy. Current research supports the effectiveness of immersion training that creates the illusion of an actual event. Individuals face evolutions with a high level of realism resulting in a metaphorical immunization to some of the event's stress and challenges. An example would be an active shooter exercise that involves volunteer victims wearing "cut suits," which allows a paramedic to perform advanced procedures while law enforcement stabilizes the scene.14 However, there are difficulties associated with these types of events. They tend to be labor extensive and can be cost-prohibitive due to the overtime required. A solution to the problem is to create immersion training on a smaller scale and design the training to be mobile.

Training
Program
Mobility
Re-certification
Training
Focused
Training
Immersion
Training
Repetitive
Training
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Organizational & Operational Analysis Napa Fire Department 96 Training Repetition
Another perspective relates to the success found over the past ten years in King County, Washington. Efficacy has been shown based on repetitive skills training for mastery specific skills. King County has demonstrated one of the highest advanced airway successes in the country based on redundant skills training.15 Numerous organizations have pursued and purchased high-fidelity simulators for enhanced EMS training. The simulators provide excellent real-time feedback during a training scenario.

The devices cost between $60,000–$110,000, and limitations include extensive maintenance needs and a lack of mobility. They have proven effective in a hospital or training facility where the end-users are in one location.

A more cost-effective and proficient solution is the use of mid-fidelity manikins. Multiple manikins can be purchased and deployed throughout the organization for the same amount of funding. This option can provide training without significant drive times to central training facilities and allows paramedics to have repetitive skill practice sessions.

Another benefit of mid-fidelity training manikins is the opportunity to develop proper sequencing. Identifying the order of critical interventions is critical to the success of patient outcomes.

The previous concepts also apply to fireground training and the need for repetitive evolutions. Individuals can perform multiple evolutions and develop proper sequencing for critical tasks and objectives by de-centralizing fire or special team training.

Focused Training
Focused training is another piece of a balanced training program. An organization's training schedule should consist of a percentage of training reflecting retrospective statistical data from actual incidents. NFD should look for areas of improvement relating to actual emergency responses. NFD lacks a balance between actual incident volume and training topic percentage. This gap is often attributed to maintaining regional and state certification requirements. Also, organizations must allocate a disproportionate amount of training to high-risk/low incidence to maintain fire-ground safety. AP Triton recognizes these limitations, but there should be a focus on training relating to service demand when possible.

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Organizational & Operational Analysis Napa Fire Department 97 One example is the region’s specific training relating to the current COVID-19 pandemic.

Responders were required to learn enhanced body substance isolation, triage protocols, and critical interventions specific to the pandemic. Another example is current incident data showing an increase in mental health-related responses. Data show that incident call volume relating to altered mental status emergencies is approximately 7%. The training program should look for opportunities for additional patient care or service levels.

Recertification Training
Regional and state requirements for certifications are generally not an option for non- compliance. Organizations should perform a cost/benefit analysis on the various optional certifications when an opportunity exists.

Training Delivery & Scheduling
The following figure summarizes the training methodologies utilized by NFD. As discussed earlier, there is an opportunity for improvement by focusing on better training documentation.

Figure 90: Methodologies Utilized in Training
Training Methodologies NFD
Manipulative skills & tasks Yes
Fire training hours requirements Yes
EMS training hours requirements Yes
Annual training hours tracked Yes
Use of lesson plans Yes
Night drills Annual
Multi-agency drills Monthly
Disaster drills Twice Annually
Pre-fire planning included Yes

NFD has seen limited turnover over the past year, supporting a level of experience necessary to provide service. The staffing challenges in the future will require additional focus and financial commitment to the training program.

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Organizational & Operational Analysis Napa Fire Department 98 Training Facilities & Resources
In today's fire service, multiple resources are necessary to arm the trainer with the tools to provide realistic, practical, and verifiable training. The well-known and well-respected research consultant, Gordan Graham, described the necessity to focus on "high risk/low frequency" events.16 This concept is evident in the amount of training for structure fires required compared to actual call volume. An organization must have adequate training facilities to prepare for structure fires' infrequency and inherent danger. Following is a summary of NFD's current training resources and facilities.

Figure 91: Training Facilities & Resources
Facilities & Resources NFD
Adequate training ground space Limited
Training building/tower Partial
Burn room at the training building No
Live fire props No
Driver's course/rodeo No
SCBA obstacle course Yes
Adequate classroom facility No
Computers & simulations No
EMS equipment assigned to training Yes

NFD has inadequate training facilities, and future growth will require additional capacity.

NFD has access to the County Fire Training Grounds. To promote fiscal responsibility and efficiency, AP Triton recommends regionalizing training resources. Combining training programs will not only improve the cost-effectiveness of the program but will promote interagency cooperation.

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Organizational & Operational Analysis Napa Fire Department 99 LIFE SAFETY SERVICES & PUBLIC EDUCATION PROGRAMS
Code Enforcement & Permitting
A primary component of any risk reduction program is to provide a comprehensive fire and life safety inspection and permitting process. The goal is to prevent or mitigate a fire or injury before it occurs.

Building Plan Review
The review process provides information on how the construction may affect NFD’s access to the building during an incident, the type of construction, the need for fire protection systems, or a change of use.

Plan reviews should begin when the initial concept is presented for permitting. The initial review allows the fire department to provide suggestions and enforce existing requirements before permitting. For example, the site plan should include fire apparatus access, fire department connection location if a sprinkler system is present, size and height of the building, hydrants, or other features that impact emergency responders.

Proper permit applications and processes are necessary to assist the contractor when submitting plans for review and ultimate approval. Reviewing construction plans allows fire service representatives to ensure code compliance for existing fire sprinkler and alarm systems, emergency lighting, or other processes. In addition, a permitting system allows the organization to require changes to plans if they do not meet code requirements before construction begins.

NFD participates in the Internal Design Review Process of all new developments in the city to ensure the plans meet all requirements of local ordinances, technical standards, or the California Fire Code. Plans for new developments are submitted to the Planning Division and distributed to each department before the initial review. All plan reviews for fire alarms, sprinklers, suppression systems, and other fire-related construction are submitted to the Napa Building Division for NFD to review. All improvement or civil plans are submitted to the Engineering Division and then to NFD. The City is currently using Track-It permitting software but is scheduled to transition to EnerGov.

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Organizational & Operational Analysis Napa Fire Department 100

Before any construction begins for new development, NFD is part of a pre-construction meeting to review all contractor requirements before work begins on the project. NFD provides information to the contractor to ensure procedures are followed during construction, such as underground fire mains for fire sprinkler systems. In addition, NFD has online documents for specific construction processes such as fire department access, addressing, fire apparatus turnaround, high-piled storage, underground piping, and solar panel requirements. These standards provide documentation for design professionals on requirements by NFD for new and existing construction.

Fire & Life Safety Inspections
Inspections of commercial buildings and properties allow NFD to reduce risks by educating the public and business owners about why the violation is a safety concern. Fire and life safety inspections utilize three of the Five E’s, education, engineering, and enforcement.

Each of these provides a method to reduce risks through mitigation or prevention.

NFD annually conducts all state-mandated inspections for residential (multi-family and hotels), educational, institutional, and high-rise. There is no established schedule for other occupancies. Before the COVID-19 pandemic, some company inspections were conducted, but this has not been reinstituted since most restrictions have been lifted.

Company inspections provide a method to inspect lower-risk occupancies not completed by the Fire Prevention Division. Still, a continuing education program must be established for operations personnel to clearly understand the fire code, specifically when the city adopts a new version. In addition, only the fire inspectors can issue enforcement notices; thus, the companies need to report significant violations to the Fire Prevention Division.

NFD has transitioned to ESO Fire software to track all properties, buildings, and inspections.

NFD could not import occupancy information from its previous software and is now entering it manually. This process would become cumbersome for company officers if unfamiliar with the new software and could create inaccurate data in the new records management system (RMS).

For a company inspection program to work efficiently, it should have oversight to confirm the inspections are completed and proper follow-up to ensure violations are corrected promptly. The new RMS requires teaching operations staff to correctly enter each company's inspection and violation. A quality control system for company inspections will be necessary to confirm that the inspections and violations are entered correctly, and that future inspections are scheduled. Without this procedure, verifying that the data are correct will be difficult.

ATTACHMENT 1

Organizational & Operational Analysis Napa Fire Department 101

Although the state-mandated inspections focus on higher-risk occupancies, there should be a defined inspection schedule to ensure all businesses are periodically inspected. An example of buildings not receiving a periodic inspection is the Ghost Ship fire in Oakland, California, which killed 36 people. The fire occurred in a repurposed warehouse without proper permitting, and the building had not been inspected in 30 years and was not listed in the department’s RMS.17 Without these buildings receiving a periodic inspection, life safety violations may exist without the knowledge of code enforcement officials and responding operations staff.

National Fire Protection Association (NFPA) 1730: Standard on Organization and Deployment of Fire Prevention Inspection and Code Enforcement, Plan Review, Investigation, and Public Education Operations, provides a minimum inspection frequency based on the risk. Therefore, NFD should institute an inspection schedule based on NFPA 1730’s recommendation, as shown in the following figure.

Figure 92: NFPA 1730 Inspection Frequency18
Occupancy Risk Classification Frequency
High Annually
Moderate Biennially
Low Triennially
Critical Infrastructure Per AHJ*
*Authority Having Jurisdiction

The following figure is a risk classification based on International Building Code occupancy types to use as a guide to developing a periodic inspection schedule.

ATTACHMENT 1

Organizational & Operational Analysis Napa Fire Department 102

Figure 93: Occupancy Classifications
Risk IBC Group Examples
High
A-1, A-2 Nightclubs, restaurants, theaters, airport/cruise ship terminals
A-3, A-4, A-5 Arenas, museums, religious
H-1, H-2, H-3, H-4, H-5 Hazardous materials sites (Tier II) B All government & public buildings, other office
buildings over two stories
E Schools, daycare centers
I-1, I-2, I-3, I-4 Hospitals, assisted living centers, correctional M Strip malls, closed-air shopping malls, big box stores R-1, R-3 Hotels, motels, dormitories, apartments, board & care facilities
Special Risk Railroads, interstate highways, airports
(Target hazard) Any building with life safety risk beyond the reach of preconnected hose lines > 200 feet
Moderate
B Outpatient clinics, general business, offices <3 stories F-1 Fabrication or manufacturing of combustible
materials
M Mercantile, free-standing
I-2, R-4 Foster group homes, assisted living homes
S-1 Storage of combustible materials, car repair
facilities, hangars
Low
F-2 Fabrication or manufacturing of non-combustibles
R-1, R-2 1- and 2-family dwellings, foster homes
S-2 Storage of combustible materials
U Barns, silos, and other unclassified buildings

Permitting & Fees
A permit system enables NFD to review plans or conduct inspections to ensure that code requirements are met. The fees associated with the permit or other types of inspection are designed to recover any costs for the plan reviews or inspections. For example, NFD has adopted a fee schedule for fire alarm and sprinkler systems, kitchen hoods, and alternative automatic fire extinguishing systems.

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Organizational & Operational Analysis Napa Fire Department 103

Other construction permits include underground fire service systems (fire mains and hydrants), fire pumps, cryogenic fluids, compressed gases, flammable and combustible liquids, hazardous materials, solar photovoltaic power systems, spraying and dipping operations, emergency responder radio coverage systems, and temporary membrane structures, tents, and canopies.

NFD should institute all operational permits required by the California Fire Code Section 105.5, and all additional fees collected should be used to add staff to the Fire Prevention Division. Currently, the operational permits in the fee schedule are not being charged. It is recommended that NFD conduct a fee study to review what permits should be added to the fee schedule and the appropriate amount to charge for the permit and inspection. All other occupancy Inspections should also be reviewed during the study to determine if the city could institute a fee for all commercial inspections. This fee would allow NFD to collect revenue for additional staffing in the Fire Prevention Division and not depend on company inspections.

Fees for construction permits are charged through the Napa Building Division. They assign permit numbers with an “F” to differentiate between what is issued for NFD and other City departments.

Fire Investigations
Fire causes may include intentional, unintentional, failure of equipment, an act of nature, under investigation, or undetermined. Documenting the types of ignition is required by the National Fire Incident Reporting System (NFIRS) for all fires and is necessary for fire investigations.

Determining the origin and cause of fire allows NFD to develop prevention programs that reduce future incidents. Any program designed should use data to review the cause of the fire and show trends of potential problems within the community. Data such as name, age, and gender may identify a specific person or group to target prevention programs such as a Juvenile Firesetter.

NFD currently has a team of six investigators, and they must obtain their fire investigator technician certification within one year of being assigned to the team. The team partners with the Napa Police Department and follow their procedures for scene control during an investigation.

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Organizational & Operational Analysis Napa Fire Department 104

Fire & Life Safety Education Programs
Prevention or mitigation of unintentional injuries or fires is a critical function of a fire department. Educational programs provide the best opportunity to reduce fires and injuries in the community.

A fire and life safety program to reduce risks requires a coordinated approach and should include other partner organizations in the community that may provide the same or similar services. These partnerships allow NFD to become a community partner and build relationships to reduce risks. In addition, developing fire and life safety programs requires a continual review of incident data to determine the types and frequency of responses.

NFD does not have an employee that focuses on public fire and life safety education to reduce risks in the community. Still, it relies on the operations division for station tours and truck displays. NFD hosts an annual Fire and Life Safety Day during October, demonstrating what the fire department can do and prevention and mitigation tips. In addition, NFD has posted videos on its website on fire extinguisher safety, weed abatement tips, hands-only CPR, and kitchen safety.

To enhance current fire and life safety programs, NFD should consider reinstituting the position of a public educator but changing the position title to Community Risk Reduction Coordinator. This position will allow coordination of all Community Risk Reduction programs and integration with operations.

Community Risk Reduction Program
Each of the following is part of an overall Community Risk Reduction (CRR) program that can be defined as “The identification and prioritization of risks followed by the integrated application of resources to improve public safety and reduce increasing call volumes.”19 CRR’s primary objective is to examine problems and develop prevention or mitigation strategies to reduce hazards. The goal is to incorporate emergency operations with prevention efforts at the fire station level. The station-level approach is preferred because risks vary from one station to another or even within a station’s response area.

Data collected for this master plan and continued analysis in the future create an opportunity to determine if specific hazards are increasing or decreasing based on incident response. Additionally, risks may shift as new development, or demographic change occurs in Napa and the overall service area, impacting NFD.

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Organizational & Operational Analysis Napa Fire Department 105

Although NFD provides risk reduction, it is not a comprehensive or coordinated effort.

Therefore, when developing strategies, they should use the “Five E’s.” • Education—Will education help the public: who, where, when? • Engineering—What engineering or technology is available to help? • Enforcement—Is additional or more substantial enforcement needed? • Economic Incentives—Could incentives increase compliance? • Emergency Response—Would changes in response make a difference? When developing a CRR plan, NFD must determine what strategies have already been implemented in the community to prevent duplication. In addition, outside resources may be available through partnerships with many community organizations such as law enforcement, nonprofits, health departments, EMS, religious, and local businesses. These groups may provide staff with a different perspective and offer additional funding and resources to mitigate limitations within NFD.

Preparing a CRR plan should align with the department’s mission and strategic plan.

Creating a plan at the station level allows personnel to engage the community they serve.

It empowers staff to interact, learn more about their community, and take ownership of the program. Station personnel will begin to understand the importance of collecting accurate data to support their plan, developing strategies using partnerships, gaining their input, soliciting feedback from the community, and deciding what risk to prioritize.

The next figure is one basic methodology offered by Vision 20/20 to identify and analyze risks within a community. In addition, Vision 20/20 includes a coalition of national organizations and experts that exemplify how collaboration, communication, and commitment to data-based solutions can save lives and properties.

Figure 94: The Community Risk Assessment Process

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Organizational & Operational Analysis Napa Fire Department 106

SPECIAL TEAMS
NFD provides services in a very dynamic environment, often requiring specialty response.

The County has numerous bodies of water ranging from a large bay to tributaries often susceptible to flooding. The region has multiple rail services, including Union Pacific, Amtrak, BART, Muni, VTA, Caltrain, Altamont Commuter Express, Sacramento Regional Transit, and Sonoma-Marin Area Rail Transit (SMART). The potential for hazardous materials incidents is high with extensive major roadways. Industrial production, environmental events, and an urban population contribute to the necessity for technical rescue capabilities. Wildfire response is a significant special team requirement. Portions of the region are located in Fire Hazard Severity Zones, including areas designated as “Very High.”20
Special Team Response Service Demand
Special team response is a staffing, apparatus, and equipment-intensive event. Moderate to significant events generally require a coordinated regional response. The following figure shows the breakdown of special team responses based on data provided via NFIRS reports.

Figure 95: Special Team Response (2019–2021)
Incident Type Number
Hazmat 3591
Wildland 134
Water Rescue 11
Technical Rescue 6
SWAT Medic 02
1 Hazmat responses are generally handled by a single unit and do not require a special team response.
2 Metrics for SWAT Medic were not tracked prior to 2022.

ATTACHMENT 1

Organizational & Operational Analysis Napa Fire Department 107

The next figure shows a breakdown of special team responses by category in 2019–2021.

Figure 96: Special Team Response (2019–2021)

Due to the national crisis involving active shooters/active killers, the NFD has also developed a SWAT Medic program. The team deploys to various law enforcement events providing medical support. Additionally, the team is the lead for specific training throughout the department. The team was committed to 172 hours in 2020–2021 on law enforcement events demonstrating necessity. An opportunity for improvement relates to the documentation of SWAT Medic responses. The current record management system (RMS) does not capture responses as a specific incident limiting the ability to measure time commitments and resources required.

The previous figure supports that most special team response is for hazardous materials incidents. The following figure is a temporal perspective showing the time of day when incidents requiring special teams' response occurs.

Hazmat
71%
Wildland
26%
Water
Rescue
2%
Technical
Rescue
1%
ATTACHMENT 1

Organizational & Operational Analysis Napa Fire Department 108

Figure 97: Regional Special Team Response by Time of Day (2019–2021)

Apparatus and Staffing for Special Teams
Incidents primarily occur from 9:00 a.m. to 7:00 p.m. As previously discussed, special team response generally requires a large number of personnel and resources to mitigate the specific event. The following figure shows the apparatus and staffing necessary for moderate to high-risk events (hazmat, water rescue, technical rescue, wildland).

Figure 98: Required Apparatus for Specific Special Team Response (2021) Incident Type Staffing
Required
No. of Apparatus
Required
Hazmat 27 10
Technical Rescue 14 6
Water Rescue 14 6
Wildland 40 11

This analysis identified a specific challenge related to firefighters holding multiple special team certifications. A firefighter cannot adequately serve on separate teams during a single shift. This will result in issues with balancing staffing across the shifts. There appears to be a need to increase special team certifications throughout the department, specifically with the swift water and confined space rescue staffing.

Wildfire incidents require the highest number of apparatus and staffing. In addition to needing a large number of personnel and apparatus for special team responses, the events were prolonged due to mitigation complexity. The following figure shows the average total response time needed for each special team response category. 0 5
10 15
20 25
30 35
40 0 1 2 3 4 5 6 7 8 9 10 11 12 13 14 15 16 17 18 19 20 21 22 23 ATTACHMENT 1

Organizational & Operational Analysis Napa Fire Department 109

Figure 99: Total Response Time for Special Team Response (2019–2021)

The prolonged total response time described above translates to increased concurrent incidents.

Special Team Resources
The following figure shows the location of specialty units within the Napa County system.

Figure 100: NFD Special Team Units
Station Specialty Unit
NFD Station 1 Heavy Rescue
Technical Rescue
Hazmat Response
Rescue Boat 1
NFD Station 4 Rescue Water Craft 1
Rescue Boat 2
Rescue Boat 3

Wildfire response is the most demanding event for staffing and resources. NFD has an extensive wildland response team, including specialty equipment and increased hand crews during the wildfire season. The following figure shows the number of wildfire responses, units required, and the number of firefighters deployed in 2021.

1:12:23
1:41:46
1:44:24
1:12:23
0:00:00 0:14:24 0:28:48 0:43:12 0:57:36 1:12:00 1:26:24 1:40:48 1:55:12 Hazmat
Water Rescue
Tech Rescue
Wildland
ATTACHMENT 1

Organizational & Operational Analysis Napa Fire Department 110

Figure 101: NFD Wildfire OES Deployment (2021)
Incident Start Date End Date Units No. of
Personnel
Days
Deployed
Dixie Incident 7/28/2021 8/13/2021 Battalion 2 1 16
Dixie Incident 8/14/2021 8/31/2021 Battalion 2 1 17
Mud/Debris Flow 1/26/21 1/27/21 E7 4 2
Dixie Incident 08/13/2021 08/24/2021 Engine 6 4 12
Caldor Incident 8/24/2021 08/25/2021 Engine 6 4 2
Airola Incident 8/26/2021 8/28/2021 Engine 6 4 2
Caldor Incident 8/29/2021 9/12/2021 Engine 6 4 15
KNP Complex 10/2/2021 10/12/2021 Engine 6 4 11
Alisal Incident 10/12/2021 10/15/2021 Engine 6 4 4
Caldor Incident 8/31/2021 9/12/2021 Engine 7 4 13
Bootleg Incident 7/15/2021 7/20/2021 OES 365 4 5
Dixie Incident 7/20/2021 08/01/2021 OES 365 4 11
Monument Incident 8/01/2021 08/26/2021 OES 365 4 4
Hospital Surge Deployment 1/9/21 1/23/21 U4 4 14
Caldor Incident 8/28/2021 9/12/2021 Utility 5 1 16
Totals: 51 144

As previously discussed, hazardous material incidents (HazMat)constitute the most significant number of special team responses. The organization must continue focused training and response to potentially significant HazMat incidents. Wildland fires continue to be a high-risk exposure and require substantial resources. The department must also emphasize active killer events by increasing the number of individuals with appropriate training.

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Organizational & Operational Analysis Napa Fire Department 111

Section III:

COMMUNITY RISK ASSESSMENT
ATTACHMENT 1

Organizational & Operational Analysis Napa Fire Department 112

OVERVIEW OF THE CITY OF NAPA & NAPA COUNTY
Napa City
The City of Napa was initially formed when it was surveyed in 1847 by Nathan Coombs. This location was chosen since it was the furthest upstream a steamboat could travel. By the 1850s, the city had approximately 40 wood buildings, a dirt road, and soon thereafter, a telegraph line and gas and electrical service served the city. The arrival of steamboats traveling up the Napa River increased the accessibility of the city, and growth continued to expand as stage and rail services developed in the area.

The area became an economic hub for agricultural products such as wines and prune processing. The city is now the home of fine foods and luxury hotels and is considered one of the world's Great Wine Capitals.21 The city has numerous historic buildings and is a major tourist destination for people visiting Napa Valley.

As of the 2020 census, the population is 79,246, and the city provides a full range of municipal services. The city operates using a Council-Manager form of government. The city council consists of a mayor and four council members elected to four-year terms. The vice mayor is appointed annually by the mayor and council members. All voters elect the mayor at large, and the four council members are elected by district. The district election process began in 2020 when Districts 2 and 4 were on the ballot, and in 2022, Districts 1 and 3 will be on the ballot.

Napa County
Napa County is one of the original 27 counties formed when California was granted statehood in 1850 and consists of 789 square miles. The county has a year-round temperate climate that allows the growth of world-class wine grapes and provides a significant economic impact on the community. The county has five supervisorial districts based on population, and an elected official represents each. The population in Napa County, according to the 2020 Census, is 138,019. The median household income is $92,219, and

7.5% of the population is considered living in poverty.

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Organizational & Operational Analysis Napa Fire Department 113

ALL HAZARDS COMMUNITY RISK ASSESSMENT
Population & Demographics
The population and demographics can influence the type of services provided in a community. Social conditions such as poverty, the locations of high-risk areas, and housing types can impact the service delivery provided by NFD.

Population
Population can directly affect the service delivered by NFD. The U.S. Census American Community Survey between 2011 to 2020 shows a population of 79,006 in 2010 and 79,246 for the 2020 Census.22 The following figure shows the American Community Survey 5-Year and 2020 Census population estimates.

Figure 102: Population Estimates (2010–2020)

79,006
79,560
77,121
77,698
78,511
79,113
79,567 79,722 79,516
79,074 79,246
75,000
77,000
79,000
81,000
2010 2011 2012 2013 2014 2015 2016 2017 2018 2019 2020
census
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Organizational & Operational Analysis Napa Fire Department 114

Figure 103: Population Density

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Organizational & Operational Analysis Napa Fire Department 115

Demographics
At-Risk Populations
An area's population has different residents at higher risk of fires and other unintentional injuries. When an incident occurs, it affects service delivery for the department. The NFD response area is considered urban but has other suburban areas, ranging from single- family homes, multifamily apartments, older adult communities, and college dormitories.

NFPA has identified groups with an increased risk of injury or death from a fire, as indicated:23
• Children under five years of age
• Older adults over 65 years of age
• People with disabilities
• Language barrier
• People in low-income communities
Data from 2020 U.S. Census American Community Survey five-year estimates identified several groups in these categories that are more likely to need emergency services, specifically EMS, than other populations.

Age
A person's age within a high-risk population directly correlates to an increase in unintentional injuries and death or injury from a fire. Older adults have a 2.6 times greater risk of dying in a fire than the total population. These age risks increase service demand, specifically for older adults needing additional medical care.24 Children under the age of five are at more risk due to their inability to care for themselves and their need for additional assistance during an emergency. 2018 U.S. Fire Administration Trend data indicate that this age group's relative risk of dying in a fire has dropped 30% in the last ten years, which is credited to increased fire prevention and education. The percentage of children under five in the NFD service area is 5.4%, slightly lower than in California at 6.1%. The population of those over 65 in the NFD service area is 17.3%, which is higher than the state at 14.3%. The NFD service area’s median age is 39.4 compared to the state at 36.7. The following figure shows the percentage of children under the age of five years, and those 65 years and older.

ATTACHMENT 1

Organizational & Operational Analysis Napa Fire Department 116

Figure 104: At-Risk Populations

Disabilities
The residential population with disabilities in the city is 11.8% compared to the state at

10.7%. This population group may be unable to self-evacuate a building during an emergency or need additional medical services because of disabilities. This may create additional demand for medical services, specifically as they age. The following figure depicts the percentage of households with a disability.

Figure 105: Percentage of the Population with a Disability

5.4%

17.3%

6.1%

14.3%
0%
2%
4%
6%
8%
10%
12%
14%
16%
18%
20%
< 5 years > 65 years
Napa California

11.8% 10.7%
0%
2%
4%
6%
8%
10%
12%
14%
16%
18%
Napa California
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Organizational & Operational Analysis Napa Fire Department 117

Language Barriers
Emergency responders or public educators may have difficulty communicating with people speaking a language other than English. This population may not understand smoke alarm technology designed to provide early warning during a fire, thereby increasing the risk of injuries or death in their home. During an incident, personnel must determine the best method of communication to assist the person. The population using a language other than English at home in the NFD service area is 35.2%, which is lower than the state at 43.9%, as shown in the following figure.

Figure 106: Language Other Than English Spoken at Home

Poverty and Income
Meeting a person’s basic needs can reduce the increased risk of fires or medical incidents.

Conversely, communities with lower wages or incomes may experience challenges that can lead to poverty. Those living below the poverty level are considered at the highest risk when combined with other factors such as education levels, disabilities, or being unable to work.

Low incomes impact families with children and can result in lower educational scores, mental health issues, and even higher mental health impacts in the community. A report from the World Economic Forum states that depression and anxiety are nearly three times as likely in people with low incomes.

35.2%

43.9%
25%
30%
35%
40%
45%
Napa California
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Organizational & Operational Analysis Napa Fire Department 118

In the city, 7.9% of the population lives in poverty, lower than the state at 12.6%. The higher poverty levels correspond with lower incomes, and the median household income of $85,953 in Fairfield is higher than California’s at $78,672.

Figure 107: Percentage of the Population in Poverty

7.9%

12.6%
0%
2%
4%
6%
8%
10%
12%
14%
Napa California
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Organizational & Operational Analysis Napa Fire Department 119

Additional Demographics
Persons without Health Insurance
Populations without adequate health care can burden service delivery and increase the rate of medical incidents. Lack of health insurance may affect lower-income populations at a higher rate since they cannot pay for medical visits. Approximately 7.2% of the population in the city is without health insurance, which is the same as the state. The following figure provides the percentage of people without health insurance.

Figure 108: Percentage of People without Health Insurance

Education Levels
Educational attainment is not considered one of the at-risk populations but is recognized as another risk group when developing fire and life safety education programs. In the city,

5.9% of the population does not have a diploma, compared to 7.2% of the state. 17.9% have at least a high school diploma, and 35.4% have a bachelor's degree or higher, compared to the state at 34.7%. This group may fall into other categories, such as lower incomes and no health insurance. The following shows information on education levels.

7.2% 7.2%
0%
1%
2%
3%
4%
5%
6%
7%
8%
Napa California
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Organizational & Operational Analysis Napa Fire Department 120

Figure 109: Education Levels

Race & Ethnicity
Race is considered a person's identification with a social group such as White, Black, African American, and Asian, while ethnicity identifies someone based on nationality, religion, language, or culture. The following figure provides the race and ethnicity for Napa and California.

Figure 110: Race & Ethnicity
Description Napa California
White alone 75.6% 71.9%
Black or African American alone 0.7% 6.5%
American Indian & Alaskan alone 0.6% 1.6%
Asian alone 2.8% 15.5%
Native Hawaiian & Other Pacific Islander alone 0.1% 0.5% Two or more races 6.6% 4.0%
Hispanic or Latino (of any race) 39.9% 39.4%
White alone, not Hispanic or Latino* 53.0% 36.5%
*White alone, not Hispanic or Latino are individuals who responded "No, not Spanish/Hispanic/Latino" and who reported "White" as their only entry in the race question. Data were sourced directly from the U.S. Census Bureau’s QuickFacts page.

5.9% 17.9%

35.4%

7.2%

20.4%

34.7%
0%
5%
10%
15%
20%
25%
30%
35%
40%
9th to 12th Grade, no
diploma
High School Graduate Bachelor's Degree or
Higher
Napa California
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Organizational & Operational Analysis Napa Fire Department 121

Housing Characteristics
Housing types throughout a community can provide insight into ownership, the age of the home, and the number of units in the building. In the city, there are approximately 38,208 housing units, of which 2,825 are vacant. Vacant structures can pose risks for the fire department and community if the building is not secured to prevent entry. When buildings are not maintained, the structural integrity can degrade and present problems during a fire. Vandalism may create additional issues for the fire department and law enforcement.

Data from the NFPA states that from 2015 to 2019, 75% of fire deaths occurred in homes, and 57% were male.

Housing Ownership
Homeownership is 58.6% compared to the state at 55.3%. The following figure shows the percentage of the owner and rented occupied housing in Napa and the state.

Figure 111: Housing Ownership.

Age of Housing
As buildings age, the cost of maintaining the structure increases over time. Homes built before smoke alarm installation requirements create a higher risk if no alarms are present. 75% of the homes built before 1980, prior to most building code requirements for smoke alarm installations. Working smoke alarms have reduced fire death and provided an early warning during the event of a fire. New codes now require smoke alarms for new residential properties in each bedroom, hall, and floor. The following figure provides the age of housing by decade.

58.6% 55.3%

41.4% 44.7%
0%
10%
20%
30%
40%
50%
60%
70%
Napa California
Owner Occupied Renter Occupied
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Organizational & Operational Analysis Napa Fire Department 122

Figure 112: Age of Housing by Decade

Housing Units
The number of people living in one- or two-family dwellings is 79% compared to the state at 71%. This high percentage is reflective of homeownership. The following figure shows the percentage of housing units by building in the city and the state.

Figure 113: Percentage of Housing Units per Building

3%
1%
9%
13%
15%
20%
14%
14%
6%
8%
2%
2%
11%
11%
15%
18%
13%
13%
6%
9%
0%
5%
10%
15%
20%
25%
2014 or
later
2010–
2013
2000–
2009
1990–
1999
1980–
1989
1970–
1979
1960–
1969
1950–
1959
1940–
1949
1939 or
earlier
Napa California
72%
5%
4%
3%
11%
5%
67%
5%
6%
5%
13%
4%
0%
10%
20%
30%
40%
50%
60%
70%
80%
90%
1-2 3–4 5–9 10–19 > 20 Mobile
Napa California
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Organizational & Operational Analysis Napa Fire Department 123

RISK CLASSIFICATION
Risk Assessment Methodology
Developing a risk score to determine risks in a community is necessary to provide an organization with a method for creating response protocols for an incident. The Three-Axis Heron model establishes a score by reviewing probability, consequence, and impact factors and assigning a score between 2–10 in each category.25 A description of the incident types for each risk is located in Appendix B.

Use of the Three-Axis Heron Formula includes the following equation:

The risk is graphically illustrated through a three-axis model as follows:
▪ P = Probability (Y-Axis)
▪ C = Consequences (X-Axis)
▪ I = Impact (Z-Axis)
When developing the score, it should be recognized that each of the three scoring components is based on NFD incident data. An example of a low-risk fire response scoring is based on the probability of that type of incident occurring. Most low-risk incident types are frequent (multiple times a day), but the consequence to the community and impact on NFD is low. For a low-risk incident in NFD, the probability is 8 (high), while the consequence and impact are 2 (low). These numbers are placed into the above formula to create a score of 16.2. The score increases dramatically for a maximum risk even if the probability is low (2). The other components, consequence to the community and the impact on NFD, are eight (8) and ten (10), respectively, which gives a score of 59.4.

These scores are designed to provide information to NFD to determine the level of service for the community. The probability of an incident may affect response times if multiple events occur at the same time. Even if the risk is low, it will place a company out of service for the response. The following information provides additional information on probability, consequence, and impact.

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Organizational & Operational Analysis Napa Fire Department 124

Probability
Probability is the likelihood of an incident occurring in the community over time. It can range from a rare event to one that occurs often. This axis reflects the probability of a particular type of incident occurring (contributing to the risk level). Multiple factors are considered, such as time of day, location, hazard present, the season of the year, building construction and maintenance, demographic factors, and more. The following figure defines the score, category, and probability or likelihood of occurrence during an incident.

Figure 114: Probability or Likelihood of Occurrence
Score Category Probability or Likelihood of Occurrence
2 Minor Unlikely: < 0.02% of total call volume. Expected to occur very rarely 4 Low Possible: 0.02%–0.07% of total call volume. Expected to occur rarely 6 Moderate Probable: 0.07%–0.3% of total call volume. Expected to occur monthly.
8 High Likely: 0.3%–2% of total call volume. Expected to occur multiple times per week
10 Extreme Frequent: > 2% of total call volume. Expected to occur one or more times per day

Consequence
The consequence of an incident can vary from minor casualties to severe impacts that may destroy historical or major facilities in the community and create a large loss of employment or life. The following figure defines the score, category, and consequence of an incident to the community.

Figure 115: Consequence to the Community
Score Category Consequence to the Community
2 Minor 1–2 people affected (injuries/deaths); < $10,000 loss 4 Low < 5 people affected (injuries/deaths); < $500,000 loss 6 Moderate 5–50 people affected (injuries/deaths); $500,000–$1,000,000 loss 8 High 51–100 people affected (injuries/deaths); $1,000,000–$5,000,000 loss 10 Extreme > 100 people affected (injuries/deaths); > $5,000,000 loss

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Organizational & Operational Analysis Napa Fire Department 125

Impact
The third factor in determining risk is the fire department's impact and the critical tasking needed to control or mitigate an incident. This includes the number of emergency responders and apparatus available, whether available internally or from external agencies. It measures the department's ability to respond to a given risk or incident while continuing to provide service to the remaining parts of the service area. The following figure defines the score, category, and impact on operational forces during an incident.

Figure 116: Impact on Operational Forces
Score Category Impact on Operational Forces
2 Minor ≥ 90% Remaining Apparatus/Crews
4 Low ≥ 75% Remaining Apparatus/Crews
6 Moderate ≥ 50% Remaining Apparatus/Crews
8 High ≥ 25% Remaining Apparatus/Crews
10 Extreme < 25% Remaining Apparatus/Crews

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Organizational & Operational Analysis Napa Fire Department 126

Fire Response
NFD is the primary provider of prevention or mitigation of fire-related incidents in its response area. These range from low-risk incidents such as a vehicle fire to a maximum risk for a fire involving a school. Fire risks for a vehicle fire are considered low compared to a maximum risk for a school that houses students. This scoring is applied to four different types of fire incidents in NFD to provide staffing needs to meet critical tasks on the fire ground.

The following figures provide the risk score and classifications assigned to each type of fire risk in NFD’s service area.

Figure 117: Fire Response Risk Assessment
Description Low Moderate High Maximum
Risk Score P C I P C I P C I P C I
10 2 2 10 2 6 2 6 10 2 8 10
Score Assigned 20.2 45.5 45.5 59.4

Figure 118: Fire Risk Classifications

0 2
4 6
8 10
Low
Risk
Impact Consequence
Probability
0 2
4 6
8 10
Moderate
Risk
Impact Consequence
Probability
0 2
4 6
8 10
High
Risk
Impact Consequence
Probability
0 2
4 6
8 10
Maximum
Risk
Impact Consequence
Probability
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Organizational & Operational Analysis Napa Fire Department 127

Emergency Medical Services
NFD provides advanced life support emergency medical care within the city limits, while AMR provides ALS transport services. Low-risk incidents range from a medical assist to a maximum-risk incident for an active shooter. The following figures provide the risk score and classifications assigned to each type of EMS risk in NFD’s response area.

Figure 119: EMS Response Risk Assessment
Description Low Moderate High Maximum
Risk Score P C I P C I P C I P C I
10 2 2 6 4 2 2 6 6 2 8 10
Score Assigned 20.2 19.8 28.1 59.4

Figure 120: EMS Risk Classifications

0 2
4 6
8 10
Low
Risk
Impact Consequence
Probability
0 2
4 6
8 10
Moderate
Risk
Impact Consequence
Probability
0 2
4 6
8 10
High
Risk
Impact Consequence
Probability
0 2
4 6
8 10
Maximum
Risk
Impact Consequence
Probability
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Organizational & Operational Analysis Napa Fire Department 128

Technical Rescue
Rescue services can vary from a low-risk incident such as accessing a locked vehicle with a child inside to a confined space incident (maximum) that potentially requires many personnel to mitigate the incident. The following figures provide the risk score and classifications assigned to each type of technical rescue risk in NFD’s response area.

Figure 121: Technical Rescue Response Risk Assessment
Description Low Moderate High Maximum
Risk Score P C I P C I P C I P C I
2 2 2 2 4 4 2 6 8 2 8 8
Score Assigned 4.9 13.9 36.8 38

Figure 122: Technical Rescue Risk Classification

0 2
4 6
8 10
Low
Risk
Impact Consequence
Probability
0 2
4 6
8 10
Moderate
Risk
Impact Consequence
Probability
0 2
4 6
8 10
High
Risk
Impact Consequence
Probability
0 2
4 6
8 10
Maximum
Risk
Impact Consequence
Probability
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Organizational & Operational Analysis Napa Fire Department 129

Hazardous Materials
Hazardous materials responses can vary from low-risk odor investigations to the maximum risk for a fuel tanker fire in higher populations. Most of these incidents can be managed by NFD, but higher risks may need assistance from outside resources. The following figures provide the risk score and classifications assigned to each type of hazardous materials risk in NFD’s response area.

Figure 123: Hazardous Materials Response Risk Assessment

Figure 124: Hazardous Materials Risk Assessment

0 2
4 6
8 10
Low
Risk
Impact Consequence
Probability
0 2
4 6
8 10
Moderate
Risk
Impact Consequence
Probability
0 2
4 6
8 10
High
Risk
Impact Consequence
Probability
0 2
4 6
8 10
Maximum
Risk
Impact Consequence
Probability
Description Low Moderate High Maximum
Risk Score P C I P C I P C I P C I
8 2 2 6 4 4 4 6 8 2 8 10
Score Assigned 16.3 26.5 44.2 59.4
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Organizational & Operational Analysis Napa Fire Department 130

Wildland Fires
The types of wildland fire risk vary from small grass to large forest fires requiring many internal and external resources. The following figure provides the risk score and classifications assigned to each type of wildland fire risk in NFD’s response area.

Figure 125: Wildland Fires Response Risk Assessment

Figure 126: Wildland Fires Risk Assessment

0 2
4 6
8 10
Low
Risk
Impact Consequence
Probability
0 2
4 6
8 10
Moderate
Risk
Impact Consequence
Probability
0 2
4 6
8 10
Maximum
Risk
Impact Consequence
Probability
Description Low Moderate Maximum
Risk Score P C I P C I P C I
2 2 2 2 4 6 2 8 8
Score Assigned 4.9 19.8 48
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Organizational & Operational Analysis Napa Fire Department 131

LAND USE
The concept of land use regulation provides attractive social and environmental outcomes to assist in managing development efficiently. Land use for a community is designed to classify properties within a geographical area generally under governmental control.

Zoning areas may vary from one portion of the service area with a mixture of low-, moderate-, and high-risk properties.
• Low Risk: Areas zoned for agricultural purposes, open spaces, low-density residential, and other low-intensity use.
• Moderate Risk: Areas zoned for medium-density single-family properties, small commercial and office uses, low-intensity retail sales, and similarly sized business activities.
• High Risk: Higher intensity business districts, mixed-use areas, high-density residential, industrial, storage facilities, and large mercantile centers Although much of the City of Napa is built out, there are two significant developments on the city's south end. Napa Pipe, a 154-acre development, is now under construction and will include 945 residences, a hotel, light industrial uses, parks, trails and a Vine Trail connection, wetlands, a beach club, water uses, and Costco. It could also include housing for seniors.26
The second major development is Stanly Ranch, including new residential homes, a hotel, a spa, and a winery. The most recent approval by the City of Napa in February 2020 has 132 resort hotel units in Phase 1. Phase 2 is 70 single-family homes and 40 fractional units, while Phase 3 is a 25,000-case winery. The maximum height for buildings is 35 feet.27 Because of Stanly Ranch’s location, GIS modeling shows an ERF of 3–9 personnel, which provides the smallest number of responders in the city for a structure fire.

The additional housing and population are expected to increase responses as Napa Pipe and Stanly Ranch are developed and may impact service delivery, specifically for EMS, since it is 67% of NFD’s incidents.

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Organizational & Operational Analysis Napa Fire Department 132

PHYSICAL ASSETS PROTECTED
Commercial occupancies or properties are considered target hazards in every community because of the special or unique risks to emergency responders and the occupants during an incident or event. Each of these occupancies should have up-to-date pre-incident surveys completed annually. The surveys allow responders to become familiar with the building, property, and special hazards.

During an incident, these occupancies and facilities should have a current pre-incident plan for NFD operations personnel. The pre-incident plan provides emergency responders information about potential hazards and can help them develop strategies and tactics during an incident. NFD has an existing pre-incident planning process but does not include specific hazard or hazardous material planning. There are approximately 125 pre-incident surveys completed and available for access in the field on the apparatus's mobile computer. The information is also entered in NFD’s records management system, ESO Fire, for online retrieval. As noted during its most recent Insurance Services Office (ISO) evaluation, NFD should improve the pre-incident planning process. NFD has re-established its pre-incident planning team NFD and is reviewing other software options to enhance the pre-incident planning process.

Structural Risks
The risks created by residential or commercial occupancies for those in a building and emergency responders increase based on the type.

Educational & Childcare Facilities
Public and private schools and childcare facilities increase risks in any community and require substantial assistance during a significant event, such as a mass casualty or fire response. In Napa, numerous schools and childcare facilities require inspections and pre- incident plans to ensure the property is safe and that emergency responders are familiar with the location and site-specific hazards. The following figures provide the location of educational and daycare occupancies in the NFD response area.

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Organizational & Operational Analysis Napa Fire Department 133

Figure 127: Educational Occupancies

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Organizational & Operational Analysis Napa Fire Department 134

Figure 128: Daycare Facilities

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Organizational & Operational Analysis Napa Fire Department 135

Assembly
Gathering large groups of people in a single location or building increases risks in locations such as a place of worship, entertainment venue, or eating establishment. Outdoor special events such as a street fair or other mass gatherings may require a public safety plan per the California Fire Code. This plan should include emergency vehicle access and egress, fire protection, emergency medical services, public assembly areas, directing of vehicular traffic and attendees, vendor, and food concessions, need for law enforcement, fire or EMS personnel, and weather monitoring.

Medical Facilities & Congregate Care
These types of buildings are where occupants may be unable to leave without assistance from the staff. These locations may contain medical gases that can create additional risks for emergency responders during a fire and are necessary to complete up-to-date pre- incident plans.

As people age, additional care may require them to seek a facility to meet their needs.

Depending on their mobility or cognitive conditions, they may need more assistance evacuating the building. Staff should have plans for removing the occupants or patients during an emergency. Special locking arrangements for areas where patients with dementia or Alzheimer's are living are allowed to prevent them from leaving the facility.

These locations require additional fire protection systems to protect the occupants, like a hospital.

The primary medical facility in Napa is the Queen of the Valley Medical Center, which has 208 beds. The hospital provides other services, including a 24-hours emergency and trauma department (Level III trauma center), cardiac, cancer, spine, and palliative care, sports medicine, and women's health.28

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Organizational & Operational Analysis Napa Fire Department 136

Figure 129: Medical & Congregate Care Facilities

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Organizational & Operational Analysis Napa Fire Department 137

Multifamily Occupancies
Although multifamily housing has fewer fires caused by electrical or heating malfunctions, the risk of cooking fires is twice the rate of other building fires.29 Updated building and fire codes now require these buildings to have a residential fire sprinkler system installed and interconnected smoke alarms in all bedrooms, hallways, and floors. These fire protection systems are designed to provide enough time for the occupants to evacuate the building.

Figure 130: Multi-family Occupancies

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Organizational & Operational Analysis Napa Fire Department 138

Buildings Three or More Stories in Height
Structures that are three or more stories in height require a response of an aerial apparatus with elevated master stream capabilities. The ISO reviews the coverage area for all buildings within 2.5 miles of a ladder truck. A ladder truck may be necessary to access these higher buildings' upper floors or roofs since most ground ladders cannot reach these heights. The following figure displays the location of buildings more than three stories in height.

Figure 131: Buildings Three or More Stories in Height

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Organizational & Operational Analysis Napa Fire Department 139

Large Square Footage Buildings
Large buildings, such as warehouses, strip 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. Although the number of large square footage buildings is low, the fire flow may be greater for smaller buildings because of construction type, distance to exposures, and lack of built-in fire protection systems such as fire sprinklers. The following figure is based on data from ISO and shows the locations for buildings 100,000 square feet and larger.

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Organizational & Operational Analysis Napa Fire Department 140

Figure 132: Buildings Greater than 100,000 Square Feet

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Organizational & Operational Analysis Napa Fire Department 141

Large Fire-Flow Occupancies
Other buildings may require a higher amount of water to extinguish a fire. These occupancies can present a problem if the needed water is less than what is available from the water supply from hydrants or other water sources. The following figure shows the occupancies with a needed fire flow greater than 2,000 gallons per minute.

Figure 133: Fire Flows Greater than 2,000 Gallons per Minute

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Organizational & Operational Analysis Napa Fire Department 142

CRITICAL INFRASTRUCTURE
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 vital 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 Sectors (CIS):30 • 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
All these sectors may not be in the NFD service area; each community must determine critical infrastructure locations and develop pre-incident plans for responding personnel.

Other buildings to consider as target hazards could include occupancies with a potential for a significant 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 historical significance—that, if damaged or destroyed, would have a significant negative impact.

Highways
An adequate system of roads and streets is necessary for emergency responders to quickly and safely travel to an incident. Access to homes and businesses improves when interconnectivity between streets allows more than one approach to the incident location.

When an incident occurs on a dead-end street, such as a cul-de-sac, responders may face access issues when vehicles block the road. Napa's collector streets are designed to serve neighborhoods from local streets to major thoroughfares.

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Organizational & Operational Analysis Napa Fire Department 143

These streets include Browns Valley Rd, Lincoln Ave, Redwood Rd, Silverado Trail, Trancas Street, and Imola Ave. Controlled access highways such as St. Helena Hwy (CA 29) can limit fire response if unable to arrive at the incident. The following figure shows the average daily traffic counts at specific locations in Napa.

Figure 134: 2020 Average Annual Daily Traffic Counts
Location Avg. Annual Daily
Traffic—Vehicles
Avg. Annual Daily
Traffic—Trucks
CA 29 at Imola Ave 43,000 3,579
CA 29 at First St 56,000 1,887
CA 121 at Jefferson St 23,400 N/A

Rail
The railway passing through Napa is operated by the Napa Valley Wine Train, which operates an excursion train between Napa and St. Helena. The train began operating in 1989 after it was purchased from Southern Pacific Railroad and has a capacity of 300 passengers. The train operates daily except for major holidays and during the first two weeks of January (it operates on the weekend). There are numerous rail crossings and gates, and lights control most street intersections. The following figure shows the rail line and crossings.

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Organizational & Operational Analysis Napa Fire Department 144

Figure 135: Rail Lines with Crossings

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Organizational & Operational Analysis Napa Fire Department 145

Energy
The ability to provide energy is a necessary component of a thriving community. The community depends on energy sources: electricity generation and transmission systems, fuel distribution and storage tanks, or natural gas pipelines and regulator stations. Pacific Gas and Electric (PG&E) Company provides power and natural gas for the NFD service area. The need for power includes communications to traffic signals to normal operations, which requires energy use.

Electricity
Several high-voltage electrical transmission lines pass through and terminate in the service area. The lines are 60-kilovolt and 115-kilovolt. An electrical substation steps down the voltage in the distribution system where they terminate. In Napa, there are sub-stations located on Big Ranch Rd south of Salvador Ave and Burnell St near 7th Street. Any incident involving an electrical substation requires assistance from PG&E, and NFD personnel should not enter the site until advised.

Although not common, PG&E may implement Public Safety Power Shutoffs during red flag warnings. These warnings occur when high winds (> 25 mph or gusts above 45 mph), low humidity, or when PG&E observes an issue preventing a fire from igniting because of power lines causing a spark, even in locations considered at low risk. These shutoffs usually are temporary. PG&E alerts customers before shutting off power, but the customer must sign up for text, phone messages, or email notifications.31
Natural Gas
PG&E provides natural gas in the service area through transmission and high-pressure distribution lines that supply service lines for commercial and residential use. Incidents involving natural gas are often caused by contractors who cut or damage lines when excavating during construction. The following figure shows the locations of electrical transmission lines and natural gas pipelines.

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Organizational & Operational Analysis Napa Fire Department 146

Figure 136: Energy Systems

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Organizational & Operational Analysis Napa Fire Department 147

Water
Controlling a fire becomes challenging without an adequate water supply and distribution system consisting of water storage, mains, and a fire hydrant system. A system of well- distributed hydrants and appropriately sized water mains are necessary to provide the required water for fireground use.

The water supply for the City of Napa is provided by surface water from Lake Hennessey, the Milliken Reservoir, and the State Water Project (SWP). In 2020, 37% of the drinking water came from local water sources, while the remaining came from the SWP. There is a concern that beginning in 2035, the average water supply will be reduced by 10% because of climate change. The water for distribution is sent to three water treatment plants (WTP). The capacity for these treatment facilities is listed in the following figure.

Figure 137: Water Treatment Plants Capacity32
Treatment Plant Million Gallons
per Day
Hennessey WTP 20
Milliken WTP 4
Jamieson Canyon WTP 20

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Organizational & Operational Analysis Napa Fire Department 148

The following figure shows the locations of fire hydrants throughout the city.

Figure 138: Hydrant Locations

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Organizational & Operational Analysis Napa Fire Department 149

Cellular Communications
As more and more community members transition from traditional land line phones to cellular, maintaining a robust system of cellular coverage becomes a critical component of the community’s infrastructure. the failure of these communication systems can significantly impact emergency services and the public. The following figure shows the location of cellular communications facilities in the City of Napa.

Figure 139: Cellular Communication Facilities

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Organizational & Operational Analysis Napa Fire Department 150

Governmental Facilities
Governmental buildings are typically located close to their customers to manage proper public services. Therefore, the buildings are considered a part of the critical infrastructure needed to operate local, state, or federal government services. The following figure provides the location of governmental buildings.

Figure 140: Government Buildings

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Organizational & Operational Analysis Napa Fire Department 151

SPATIAL VISUALIZATION OF DATA & INFORMATION
Environmental Hazards
All communities are continually threatened by physical hazards daily. Hazards can range from wildfires, earthquakes, flooding from heavy rains, or droughts. Mitigation plans provide public and emergency responders with information to understand the risks and prepare for an event.

Weather Conditions
The climate can affect NFD year-round and may impact emergency response. NFD must respond when requested, whether it is a thunderstorm or other weather event.

Temperature
The weather conditions in an area can impact the fire department and the entire community during the year.33 When temperatures are high, they affect firefighters during extended incident operations and require rehabilitation to prevent heat exhaustion. The average high temperatures range from a low of 58 °F during December to a high of 81 °F in September. The following figure provides each month’s average daily high temperature.

Figure 141: Average Daily High Temperature

59 62 64 69 73
79 78 79 81 76
66 58

20.0 30.0

40.0 50.0

60.0 70.0

80.0 90.0
Jan Feb Mar Apr May Jun Jul Aug Sep Oct Nov Dec
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Organizational & Operational Analysis Napa Fire Department 152

The following figure shows each month's average daily low temperatures between 2010– 2021.

Figure 142: Average Daily Low Temperatures

37 38 41 44 47 52 54 54 51
46 40 36

0.0 10.0

20.0 30.0

40.0 50.0

60.0 Jan Feb Mar Apr May Jun Jul Aug Sep Oct Nov Dec
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Organizational & Operational Analysis Napa Fire Department 153

Precipitation
Precipitation can vary monthly, with most rain falling between December and March.

However, rain is negligible from May to September. The following figure shows the average monthly rainfall between 2010 and 2021.

Figure 143: Average Monthly Precipitation 2010–2021

3.8 3.0

3.4 1.5

0.4 0.24 0.0 0.01 0.1

1.4 1.6

3.8 0.0

0.5 1.0

1.5 2.0

2.5 3.0

3.5 4.0
Jan Feb Mar Apr May Jun Jul Aug Sep Oct Nov Dec
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Organizational & Operational Analysis Napa Fire Department 154

Drought
A drought may impact the community, such as the lack of rainfall to replenish groundwater or aqua filters when wells are used for drinking water. Droughts may last for an extended period and create secondary problems during peak wildfire conditions as the vegetation becomes dry and highly combustible. As of September 29, 2022, the drought condition is severe, as shown in the following figure.

Figure 144: Drought Conditions (September 2022)

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Organizational & Operational Analysis Napa Fire Department 155

Winds
The direction and speed of local winds may directly impact how NFD responds to an incident such as a wildland fire or hazardous materials event. The prevailing winds are from the south-southwest but can vary throughout the year. The highest average winds occur during June, while the lowest is in November. The following figure indicates the average monthly wind speed.

Figure 145: Monthly Wind Speeds

7 7 8
9 10
11 11
10 8
6 6
7 2.0

3.0 4.0

5.0 6.0

7.0 8.0

9.0 10.0

11.0 12.0
Jan Feb Mar Apr May Jun Jul Aug Sep Oct Nov Dec
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Organizational & Operational Analysis Napa Fire Department 156

The prevailing winds for Napa are from the south-southwest, as shown in the next figure.

Figure 146: Prevailing Winds

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Organizational & Operational Analysis Napa Fire Department 157

Earthquakes
The West Napa Fault is a dextral strike-slip fault that is part of the San Andreas fault system, and it passes through the western side of the Napa Valley from Yountville to near Napa Junction. This fault system is a complex collection of smaller fault segments that collectively accommodate the horizontal movement between the North American Plate and the Pacific Plate.34 Other regional faults include Northern Hayward and Rodgers Creek- Healdsburg to the west, Maacama to the northwest, Hunting Creek-Berryessa to the north, and Green Valley to the southeast.35
The most recent severe earthquake occurred on August 24, 2014, along the West Napa Fault. This was the largest earthquake in more than 25 years and the first to rupture the surface since the 1906 San Francisco Earthquake. The 6.0 magnitude earthquake’s epicenter was between Napa City and American Canyon and caused $362 million to $1 billion in damages. During the event, one person died and 200 were injured.

Any large earthquake may cause damage to infrastructures, such as loss of water and sewer, communication systems, broken gas mains, transportation systems, and older homes not built to withstand earthquakes. The entire population of Napa is at risk of a very strong or severe earthquake, and the total dollar amount exposed is more than $24 billion. The following figure shows the earthquake risk and provides the locations of the West Napa Fault.

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Organizational & Operational Analysis Napa Fire Department 158

Figure 147: Earthquake Risk

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Organizational & Operational Analysis Napa Fire Department 159

Wildland Fires
Without proper planning, the wildfire risk in the community increases. Mitigation and prevention efforts can lower the chance of substantial losses during a fire and reduce the community’s wildfire threat. In today’s current climate and extreme drought conditions, property owners should understand what specific threats can affect their homes or business.

Napa adopted a weed and rubbish abatement ordinance that requires all vegetation to be removed by June 1 of each year. City code specifically requires the owner to remove the seasonal and recurrent weeds, thistles, rank grass, brush, berry vines, dead or dying trees, rubbish and trash, inoperative and/or abandoned vehicles, and other accumulations that contribute to the fuel load or hinders clearing of properties or interferes with firefighting operations (including alleys and sidewalks.36 If the removal does not occur, the city can remove the vegetative materials after notification and charges the property owner the cost to eliminate the hazards.

Napa is a Local Responsibility Area (LRA) and provides wildland fire protection within the corporate limits. LRA map from CalFire shows all of Napa City in non-very-high fire hazard safety zones. Although the threat appears to be minimal, there are areas of the city near its borders where the risk increases. Much of the land surrounding the city is agricultural.

Numerous fires have occurred in the areas to the east and west of the city, specifically in the mountains and the Atlas and Nuns fire consumed thousands of acres in 2017.

There are sporadic locations in the city where tree canopies may create a threat during optimal wildfire conditions; thus, there is a need in these locations to ensure mitigation efforts are conducted. Without proper weed abatement, small fires in the city could spread to buildings, creating hazardous conditions during extreme drought conditions. The following map provides the potential flame lengths from the Napa County Community Wildfire Protection Plan. The following map shows the wildfire risks in Napa.

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Organizational & Operational Analysis Napa Fire Department 160

Figure 148: Wildfire Risks37

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Organizational & Operational Analysis Napa Fire Department 161

Flooding
The area along the Napa River is classified as a regulated waterway by the Federal Emergency Management Agency and has the following flood zones in the city.38 • An area classified as "A" zone is exposed to a 1-percent chance of a flood event but does not have a "…detailed hydraulic analysis."
• The AE designation is considered "Areas subject to inundation by the 1-percent-annual- chance flood event determined by detailed methods." and is further defined as a 26% chance of a flood occurring in 30 years.
• Zone "X" is a "moderate risk area within the 0.2-percent annual chance floodplain.

There are levees along the river designed to mitigate flooding during heavy rain events and include flood gates. Other projects to reduce flooding have been funded by a half- cent sales tax and partnerships with the Napa County Flood Control and Water Conservation District and the U.S. Corps of Engineers. The Oxbow Bypass project is designed to reduce inundations during the winter months that flooded downtown Napa.

During recent heavy rain events, the Oxbow Bypass prevented flooding in the area previously subjected to inundation. The following figure shows the flood risk and flood zones within NFD’s response area.

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Organizational & Operational Analysis Napa Fire Department 162

Figure 149: Flood Risk

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Organizational & Operational Analysis Napa Fire Department 163

Section IV:

FINDINGS & RECOMMENDATIONS
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Organizational & Operational Analysis Napa Fire Department 164

KEY FINDINGS
This section of the report contains various findings and recommendations with the specific intent of providing the City of Napa Fire Department with a plan identifying short-, mid-, and long-term recommendations that can deliver the desired levels of service at the most efficient cost. AP Triton has taken into consideration population growth projections, along with historical and forecast activity rates.

The key findings are as follows:
• NFD protects the lives and well-being of approximately 80,000 residents, thousands of tourists, the City’s assessed valuation of $13.9 billion, the properties of employers who provide jobs to approximately 47,000 workers, sales tax revenue and generators of transient property tax, and the economic vitality of the community. • The lack of a staffed engine company at Station 1 impacts initial attack to incidents in the high-density and high-value downtown area. This also impacts the availability of the additional fire engine to support subsequent incident in the rest of the city, and leaves the vulnerable east-side Wildland Urban Interface (WUI) without an initial attack engine response, relying instead on engines coming in from other fire response zones.
• Numerous buildings within the city have been documented to require fire flows greater than 2,000 GPM.
• The absence of a bridge over Napa Creek results in an underserved response area, the inability of the department to balance deployment that reduces the impact of over-utilized resources, and the ability of the department to meet response time standards in the affected neighborhood.
• All commercial occupancies are not being inspected.
• The City of Napa has experienced steady property tax revenue growth. • Due to the methods of preparing the various financial, budget, and long-term financial forecast reports that were reviewed, it was very difficult to match and analyze the information being presented.
• The COVID-19 pandemic had a significant negative impact on both sales tax and transient occupancy tax (hotel) General Fund revenues.

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Organizational & Operational Analysis Napa Fire Department 165

• The COVID-19 pandemic resulted in the freezing of vacant positions throughout the City government and represents approximately $5 million in pandemic-related budget cuts or approximately 5% of total General Fund expenditures on an annual basis.
• The City of Napa participates in the CalPERS pension system and has incurred a significant unfunded actuarial liability (UAL) that is being amortized over a 30-year time frame and is requiring an annual payment in excess of $10,000,000. • The City has adopted fiscal policy setting Operating, Contingency, and Emergency Reserve balances at 5%, 1%, and 14%, respectively.
• Property tax and sales revenues attributable to NFD have recovered from the COVID-19 pandemic and have surpassed pre-pandemic levels. • NFD has experienced a significant use of overtime among its employees, due to disaster deployments and from fill-in overtime to maintain minimum staffing. • Company inspections are not being conducted for low-risk occupancies on a consistent basis.
• All operational permits required by the California Fire Code are not being issued in the city.
• There is no adopted Community Risk Reduction Plan for NFD. • NFD lacks a dedicated Emergency Manager.
• New developments in the south end of the city will create additional calls for service. Stanly Ranch is the furthest from existing fire stations and has the highest Emergency Response Force arrival times and the least amount of personnel. • Most of the workload for NFD is for Medical/Rescue Calls. • The overall workload has decreased slightly but is expected to increase in the future, coinciding with expected population increase.
• Monthly workload is busiest in October, and daily workloads are higher during Wednesdays.
• The workload is highest during the daytime hours, with engines having the highest workload of the fleet.
• NFD's activity begins to increase from 4:00 to 5:00 a.m. until it reaches its first peak at noon. This level remains stable and then decreases after the 6:00 p.m. hour. • Response workload is the greatest around Stations 1 and 4 and between Stations 2 and 3.

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Organizational & Operational Analysis Napa Fire Department 166

• Most of the time, NFD responds to one incident with one apparatus, but it is not uncommon for two calls simultaneously and multiple apparatus per call to occur. • Reliability to respond in the station primary area is lower for Station 1 and Station 2. • Call processing times exceed NFPA recommendations with an unusual spike at 2 a.m. While turnout times also exceed NFPA recommendations, they are not outside the norms seen in many departments.
• Stations 1 and 2 are over 60 years old and in need of significant renovation and/or repair.

Emergency Medical Services
• California's highest cause of death is heart disease, followed by cancer and stroke.

Training emphasis should be placed on EMS responses to these medical events. • NFD also has excellent interaction with its internal Medical Director providing oversight based on the department's continuous quality improvement (CQI) program.
• The level of liability should be considered relating to a specific piece of equipment, medication administered, or services provided. A statistical analysis needs to be performed to determine the overall efficacy of the evaluated resource. • NFD has an excellent foundation for a quality management program. • NFD does not currently utilize an electronic system for logistical support. The current internal system requires manual data entry.

Management Components
• The current mission, vision, and values statements have not been reviewed since the last strategic planning session in 2015. Although most of the current statements are effective, the department should review/revise them soon. • AP Triton recommends that NFD conduct a comprehensive strategic planning process to revise, adapt, and support a contemporary mission statement, vision, values, and goals for the next three-to-five years.
• NFD has baseline department policies, rules, and standard operating guidelines related to its various administrative and operational tasks and evolutions. These policies must be updated and reviewed more frequently to ensure they are contemporary and meet legal requirements.

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Organizational & Operational Analysis Napa Fire Department 167

Support Programs-Special Teams
• Napa Central Dispatch has not adopted NFPA 1221 or the updated 1225 Standard for Emergency Services Communications Performance standards • NFD staffs several specialty teams which can stress an agency that has limited staffing
• The department committed 172 hours 2020–2021 on law enforcement events demonstrating necessity. An opportunity for improvement relates to the documentation of SWAT Medic responses.
• Hazardous material incidents (HazMat) constitute the most significant number of special team responses.
• This analysis identified a specific challenge related to firefighters holding multiple special team certifications.
• NFD has an extensive wildland response team.

Staffing and Personnel
• NFD administrative staff are assigned multiple collateral duties which are exceeding available bandwidth necessary to accomplish goals and objectives Training and Continuing Medical Education
• NFD currently does not have specific standard operating guidelines or policies.

However, the department is transitioning to Lexipol to develop and manage these administrative documents.
• NFD has demonstrated the capacity to manage critical incidents with limited resources.
• Based on the data in the EMS section, there is a high incidence of criticality requiring advanced level care.
• NFD has inadequate training resources, and future growth will require additional capacity.

Performance Objectives
• NFD is currently developing performance benchmarks for service delivery. One of the improvements is the utilization of AVL to dispatch the closest available unit to a request for service.

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Organizational & Operational Analysis Napa Fire Department 168

INTRODUCTION TO RECOMMENDATIONS
Based on the analysis and considering community expectations, recommendations are offered to assist NFD with long-range planning and improve the delivery of fire and emergency services to the community. AP Triton does not expect that NFD will implement all recommendations in the short-term. Some may wait until economic conditions allow their implementation. However, all the recommendations offered chart a course to improved capability and service.

The recommendations are described as goals and should be implemented as funding allows. Each will improve NFD’s ability to provide effective services to the community.

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Organizational & Operational Analysis Napa Fire Department 169

SHORT-TERM RECOMMENDATIONS
The short-term recommendations listed in this report are a compilation of the recommendations aimed at improving the current conditions and levels of protection over the next one to three years.

Short-Term Operations Recommendations
Recommendation A-1: Consider adding three to six full-time Firefighter/Paramedic positions to reduce the use of overtime and increase firefighter safety.

Description: The fire department budgeted funding for approximately 34,000 hours of overtime, approximately 29% of budgeted base compensation based on a 2,912-hour work year, in FY 2022. From this calculation, Triton interpolates that each full-time employee would be offered an average of approximately 570 hours, or almost 24 extra 24-hour shifts each year. As this is an average, it can be assumed that some employees will work more, and some will work less than this number. Firefighting and emergency medical responses require the ability to make appropriate decisions, often in highly stressful environments.

Sleep deprivation studies of firefighters have identified the negative impact that poor and inadequate sleep may have on both the physical as well as mental health of firefighters that have experienced the phenomenon.39
Included in this 34,000-hour overtime budget is approximately 8,000 hours that result from wildland or other disaster related deployments that receive state or federal reimbursement and off shift training activities. Of the remaining number, approximately 26,800 hours are used for vacation, sick-time, long-term disability and other paid time off for the 60 current shift personnel. The current deployment model maintains two additional personnel per shift who each work approximately 2,464 hours, as discussed in the Staffing Analysis portion of this study, resulting in the capacity to absorb 14,784 hours of the overtime. The remaining 12,016 hours requires 4.87 positions working 2,464 hours each.

Outcomes: Employing six additional firefighter/paramedic positions would add approximately 14,904 hours of capacity to the deployment system, reducing the overtime usage by approximately 70% and reducing the average extra shifts from 24 to 7 per year or less than one extra shift per month. This reduction in overtime hours per position may increase firefighter safety and well-being by reducing the occurrence of potential incidents of sleep deprivation, potentially reducing injuries and other long-term negative impacts to health.

Estimated Cost: The following figure projects the net costs of hiring the additional six Firefighter/Paramedic positions.

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Organizational & Operational Analysis Napa Fire Department 170

Figure 150: Projected Net Costs of Hiring The Additional Six Firefighter/Paramedic Positions Expenditures Hours Hourly Rate Cost
Firefighter/Paramedic Regular Hours 2,756 45.55 125,536 Overtime Hours 156 68.33 10,660
Total Wages: 136,196
Holiday 7,322
Specialty Pay 4,080
Certification Pay 3,664
Uniform Allowance 800
Total Compensation: 152,062
PERS Normal Cost 28,380
EAP 70
Workers’ Compensation 17,400
Medicare 2,192
Health Insurance 22,294
Dental Insurance 1,714
Life Insurance 107
HRA 2,380
Unemployment 328
OPEB Costs 3,309
Total Benefits: 78,174
Wages & Benefits: 230,236
Turnout Gear 3,500
Training 1,500
Other Costs 5,000
Total Costs Per Position 235,236
Number of Positions 6
Total Cost to Add Six Firefighter/Medics: 1,411,416
Budgeted Overtime 2,358,604
Estimated Reduction in Overtime Costs: 70% 1,651,023
Net Increase (Decrease) in Costs to Add
Six Positions: ($239,607)

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Organizational & Operational Analysis Napa Fire Department 171

Recommendation A-2: Place in service and staff an engine at Station 1.

Description: Station 1 is currently assigned and staffs a Truck Company, Rescue Squad, and Battalion Chief. The lack of an assigned and fully staffed engine company in an area of high call volume, risk, and density has a negative impact on the department’s ability to mount an aggressive initial attack inclusive of the wildland urban interface on the east side of the response zone. In addition, the risk, muti-family structures, and number of buildings three stories or more, indicate the need for a dedicated truck and staffed engine at this station.

Outcomes: An assigned and staffed engine company at Station 1 will positively impact the department’s initial attack capabilities, Effective Response Force, and depth of deployment to multiple alarm incidents. The addition of this staffed company will have a positive impact on firefighter safety, limiting the potential for civilian injuries and loss of life.

Estimated Cost: Three Shift Captains $715,473.

Recommendation A-3: Reduce the turnout time interval.

Description: Turnout time is the period between when dispatchers notify response personnel of the incident and when response crews begin to travel towards the incident location. The recommended performance goal for turnout time is within 80 seconds, 90% of the time for fire and special operations incidents, and within 60 seconds, 90% of the time for all other incidents. NFD’s overall turnout time performance is currently within one minute 59 seconds, 90% of the time for priority incidents.

A review of fire station design should also be conducted to identify and remove impediments to a quick response. This can include station alerting systems, pathways from quarters to apparatus, and the like.

Outcomes: Performance expectations will be reinforced, and periodic monitoring conducted to determine if improvements are being made and sustained. Response personnel should avoid activities that extend turnout times. Response personnel must make serious efforts to improve their turnout time performance for the benefit of the community.

Estimated Cost: Dependent upon the cost of improvements or modifications of internal pathways for rapid egress.

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Organizational & Operational Analysis Napa Fire Department 172

Recommendation A-4: Training should emphasize EMS responses to cardiac medical events.

Description: California’s highest cause of death is heart disease, followed by cancer and stroke. Training emphasis should be placed on EMS responses to these medical events.

Outcomes: NFD has shown success in responses to cardiac events. Continued efforts can help with the increased service demand.

Estimated Cost: Staff time.

Recommendation A-5: Include additional documentation on all patient contacts to better capture fire-based EMS activities.

Description: NFD has an excellent foundation for a quality management program. NFD uses ESO for electronic patient care reports (ePCR), and recent upgrades now combine patient care reports for NFD and AMR. NFD only completes an ePCR when staff provides primary assessment and/or care.

Outcomes: Documentation of all patient contacts can support the department’s quality Assurance program.

Estimated Cost: Staff time.

Short-Term Administration Recommendations
Recommendation A-6: Consider implementing a financial reporting process that uses the same formatting to produce financial reports, prepare the budget, and create the long-term financial forecasts.

Description: Currently, the financial report showing actual expenditures versus the budget is in one format, the budget is published in another format and the long-term financial forecast is in yet another format. From an analytical standpoint, it is difficult to match corresponding activities to analyze trends.

Outcomes: Utilizing a consistent format amongst the various types of reporting will assist management in evaluating the financial activities of the City and its departments.

Estimated Cost: Staff time to determine the format, create the various templates, and implement.

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Organizational & Operational Analysis Napa Fire Department 173

Recommendation A-7: Reduce call processing time.

Description: The national standard for call processing is 1 minute, 90% of the time. The dispatch center’s current performance is 2 minutes, 8 seconds, 90% of the time for fires, and 1 minute, 47 Seconds, 90% of the time for EMS calls.

Outcomes: Streamlined processes that would reduce the time spent to dispatch units once the call from 911 is received.

Estimated Cost: Staff time for development and implementation of call processing monitoring.

Recommendation A-8: Negotiate full boundary drop closest resource first agreements utilizing AVL dispatch with surrounding agencies and consider adopting companion performance goals with each participating agency.

Description: NFD and the surrounding agencies currently have in place automatic and mutual aid agreements.

Outcomes: Adopting AVL driven closest resource boundary drop first response protocols, and performance goals will improve service to the city of Napa and well as the surrounding areas.

Estimated Cost: Staff time to negotiate agreements and program computer-aided dispatch program changes.

Recommendation A-9: Adopt NFPA 1225: Standard for Emergency Services Communications Performance standards which now contains what was previously in NFPA 1221.

Description: The Napa Central Dispatch Center does not have a current set of adopted performance standards by which to monitor the center’s performance related to dispatch services they provide fire agencies.

Outcomes: Performance expectations reinforced, and periodic monitoring conducted to determine if improvements are being made and sustained.

Estimated Cost: Dependent upon the cost of improvements or modifications and possible addition of personnel.

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Organizational & Operational Analysis Napa Fire Department 174

Recommendation A-10: Place greater emphasis upon quality assurance of time data inputs.

Description: It is critical that the documentation of events for the fire department be correct, especially when information is requested by attorneys, insurance companies, and property owners. In addition, a reliable and accurate analysis of performance cannot be conducted without quality control. It is recommended that the officers in charge review and verify that input information is complete and correct. If not, it should be returned to the author to correct. Tracking unit performance is critical to a defensible report of actions in the case of litigation. Additionally, the response time objectives need to be designated as average or industry standard percentiles.

Outcomes: The risk of litigation for poorly written records will be reduced. An accurate and defensible analysis of performance can be completed on a regular basis.

Estimated Cost: Staff time to review individual documentation for errors and omissions. Staff time to meet with the dispatch center to resolve data errors and improve call processing time.

Recommendation A-11: Consider hiring a full-time Emergency Manager position.

Description: The City’s Fire Chief in addition to his other duties, serves as the Emergency Manager (EM). The EM position is responsible for activating, staffing, and providing oversight for the emergency operations center, which is located within the Police Department. Serving as the EM, the Fire Chief is responsible for the City’s Emergency Operations Plan (EOP), Hazardous Materials Annexes, designing and delivering full-scale exercises (with other city entities), and maintaining the Continuity of Operations Plan (COOP).

With the current and forecasted growth of the city, there will be a greater emphasis placed on the department’s operations section in dealing with increased call volume, staffing considerations, resource management, and mutual-aid activities. Whereas, with the anticipated growth and potential for incidents and events that have, and can again impact the City, i.e., COVID-19 pandemic, the need for a dedicated Emergency Manager would benefit Fire, Law Enforcement, and the City as a whole.

Outcomes: A dedicated Emergency Manager would allow consistent oversight and coordination of the emergency operations center, maintain/update required/recommended plans and annexes as needed, and have the ability to provide emergency preparedness training Citywide.

Estimated Cost: Salary and benefits at $244,727.

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Organizational & Operational Analysis Napa Fire Department 175

Recommendation A-12: Address Administrative and Support staff needs.

Description: Organizational goals, regulatory environment, and workload are the actual drivers that determine the number of administrative and support personnel required to maintain a balanced workload and quality service internally and externally. Triton has observed that NFD and City administrative and support staff including IT, dispatch and GIS have numerous collateral duties that could be exceeding their capabilities and or position classification responsibilities.

Outcomes: A detailed workload analysis can identify critical tasks, duties, expectations, and gaps that exist to determine current and future needs.

Estimated Cost: Approximately $45,000.

Recommendation A-13: Develop and fund a Long-Range Master Plan for all Fire Department Facilities.

Description: Using the detailed, analysis and key findings provided by EMG Corporations Facility Condition Assessments (FCA), develop a Long-Range Master Plan for the repair, renovation and/or replacement of all Fire Department Facilities. The FCA’s provide a detailed assessment of each facility that be used to make informed decisions such that issues needing immediate attention can be prioritized over those deemed less critical or costly, requiring deferment to a later time. Incorporating this information into a comprehensive master plan clearly articulates the necessary information and serves as a vital tool for planning and preparation of capital improvement budgets.

Outcomes: A plan containing actionable items and measurable objectives aid in the timely repair, renovation, and replacement of Fire Department Facilities—A Long-Range Facilities Master Plan provides City leadership with an accurate understanding of the current status of critical public safety facilities and a detailed planning tool that can be followed to ensure the readiness of the City’s critical infrastructure is prioritized and properly maintained.

Estimated Cost: Possibly as much as $40,000–$50,000 if a consulting firm is used.

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Organizational & Operational Analysis Napa Fire Department 176

Recommendation A-14: Increase the use of a statistically-based quality management program.

Description: This study revealed that there is room for improvement in terms of data collection and analysis. Additional data sets and quality assurance criteria should be utilized.

Outcomes: Evidence-based data can offer objective information measuring the level of care provided.

Estimated Cost: Staff time.

Recommendation A-15: Implement a partially automated EMS supply inventory control system.

Description: A routine utilization study would help identify opportunities for improved inventory control. NFD does a one-for-one exchange with AMR for medical supplies. NFD does not currently utilize an electronic system for logistical support. The current internal system requires manual data entry. Due to the organization’s size, an automated program could improve efficiency.

Outcomes: Various systems have proven cost-effective in the long run, notably when eliminating waste and lost supplies due to expiration.

Estimated Cost: Cost depends on the type of system/process selected. The actual cost would be partially offset by eliminating waste and lost supplies.

Recommendation A-16: Implement an annual EMS check-off program to identify opportunities for additional training.

Description: The department provided 1,531 paramedic-level medications or procedures in 2021. The limited skill volume translated to an average of 56 medications/procedures per paramedic/firefighter. Eighteen advanced airway procedures (intubations/supraglottic) were performed during the same period, correlating to 0.66 airway procedures per paramedic.

Outcomes: An annual EMS check-off program can help identify skill deficiencies due to limited volume and help design an efficient medical training program.

Estimated Cost: Staff time.

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Organizational & Operational Analysis Napa Fire Department 177

Recommendation A-17: Review and potentially revise the department’s current mission, vision, and value statements.

Description: The current mission, vision, and values statements have not been reviewed since the last strategic planning session in 2015. Although the most recent statements are effective, the department should review/revise them soon.

Outcomes: NFD will undoubtedly face numerous future challenges, including potential funding limitations, staffing shortages, and increasing service demands. Addressing these challenges will require a focused and unified understanding, vision, and agreement on how the department moves forward.

Estimated Financial Cost: Staffing time to complete the process.

Recommendation A-18: Conduct a comprehensive strategic planning process.

Description: This effort should include the participation and input of various key community stakeholders and outside agencies to be successful. One cannot overstate the importance of current strategic planning efforts. The City Council’s support and formal endorsement of the planning work results are critical. Without this explicit consent, the major stakeholders’ efforts will probably hinder NFD’s capacity to respond quickly and effectively to shifting community needs and expectations.

Outcomes: A comprehensive strategic planning provides a framework for future emergency responses.

Estimated Cost: Approximately $17,000 if an outside facilitator is utilized.

Short-Term Prevention Recommendations
Recommendation A-19: Institute a schedule for periodic inspections of all commercial occupancies.

Description: There is not a defined schedule to inspect all commercial occupancies in NFD’s response area. Company inspections have not been reinstituted since COVID-19 pandemic restrictions have been lifted. Current staffing levels in the Fire Prevention Division are unable to periodically inspect non-required businesses.

Outcomes: Adding additional staff in the Fire Prevention Division will allow NFD to develop a schedule to inspect all commercial occupancies on a consistent basis to reduce risks. It will also allow the Division to conduct the inspections and no longer depend on company inspections. Eliminating company inspections is expected to improve data collection and more consistent enforcement of the fire code.

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Organizational & Operational Analysis Napa Fire Department 178

Estimated Cost: The estimated cost to add another fire inspector is approximately $150,000 including benefits. This cost could be offset by additional fees charges when an inspection is completed.

Recommendation A-20: Institute all Operational Permits authorized by the California Fire Code.

Description: The California Fire Code allows jurisdictions to require certain operational permits to be issued to ensure all fire code requirements are met. The City has adopted some of the permits and an associated fee, but not all have been implemented Outcomes: Fire code enforcement would improve if all required operational permits are issued, and increased revenue is anticipated.

Estimated Financial Cost: Staff time is required to review the existing permits issued by NFD.

Revenues are expected to increase, but a more thorough study by NFD is necessary to determine how many additional permits could be issued along with anticipated revenues.

Recommendation A-21: Enhance Fire and Life Safety Programs and develop a Departmental Community Risk Reduction (CRR) Plan.

Description: With the exception of the City’s weed abatement program, the current fire and life safety programs are primarily available by request.

Outcomes: An enhanced fire and life safety program is designed to use data from NFD and other sources to develop specific programs to reduce risks in the community. The development of a CRR Plan that examines all risks, not just fires, would improve safety and allow NFD to become more of a community partner. Adding a CRR Coordinator to NFD would allow the department to integrate the entire organization into the plan.

Implementing CRR should involve the NFD operations division and other City departments.

In the event a dedicated emergency manager is hired, this position could assist in a coordinated effort to reduce risk by integrating the entire city.

Estimated Cost: Staff time is required to implement a CRR Plan. There is an unknown cost to hire a CRR Coordinator since that salary does not exist within NFD.

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Organizational & Operational Analysis Napa Fire Department 179

MID-TERM RECOMMENDATIONS
The mid-term recommendations are progressive enhancements of the current conditions.

Many will likely require three to five years to accomplish.

Mid-Term Operations Recommendations
Recommendation B-1: Add an additional response unit during periods of high incident activity.

Description: Analyses indicate peak hours of service demand during the day. The fire department’s deployment and service level could benefit from staffing and deploying a quick attack type unit in support of areas with high service demand.

Outcomes: A dynamic approach to deployment provides two benefits. First, additional response resources can be made available 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.

Estimated Cost: Dependent upon scheduling.

Recommendation B-2: Provide equipment and facilities for disinfection, cleaning, and storage in accordance with NFPA 1581.

Description: In several stations, ice machines and food preparation are taking place within close proximity to laundry and other decontamination equipment. Whenever and wherever feasible, the department should provide a location and the equipment necessary to properly decontaminate equipment and PPE while preventing the risk of contamination of food, or food preparation areas.

Outcomes: Protection of personnel health and safety and minimized risk of exposure.

Estimated Cost: Varies.

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Organizational & Operational Analysis Napa Fire Department 180

Recommendation B-3: Work internally and with participating surrounding agencies to Increase the number of firefighters with special team certifications Description: This analysis identified a specific challenge for firefighters holding multiple special team certifications. A firefighter cannot adequately serve on separate teams during a single shift resulting in issues with balancing staffing across the shifts. The immediate need seems to be with the Water Rescue, SWAT Medic, and Napa Interagency Rescue Team staffing.

Outcomes: Increasing special team staffing internally and with the participating surrounding agencies can improve the department’s and the region’s capacity to respond to special team operations.

Estimated Cost: Training costs and overtime required for training certifications.

Recommendation B-4: Construct the Napa Creek Bridge.

Description: The proposed bridge connecting Robinson Ln. to Linda Vista Ave. across Napa Creek should improve system performance. In addition to potentially reducing travel time to some 2,000 homes by 1–2 minutes, the additional infrastructure may balance some workload. In 2021, both Engine 2 and Engine 3 utilizations were over 10%, while Engine 5 was below 5%. By providing direct northern access, Engine 5 will be in a better position to reduce some of that workload, creating response balance and improved reliability.

Outcomes: This bridge would create street connectivity to improve response capability and reduce response times in the neighborhood. In addition, the improved deployment will balance workload and unit hour utilization that is currently negatively impacting the availability of response resources from neighboring stations.

Estimated Cost: Unknown at this time.

Mid-Term Administration Recommendations
Recommendation B-5: Conduct a cost-benefit analysis for medications/procedures performed/administered by NFD.

Description: All staffing, equipment, and supplies not mandated by the government or industry norms should be subjected to a cost-benefit study by NFD.

Outcomes: A statistical study is required to determine the overall efficacy of the resource under consideration.

Estimated Cost: Staff time.

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Organizational & Operational Analysis Napa Fire Department 181

Recommendation B-6: Establish a cooperative agreement with regional partners, including but not limited to Queen of the Valley Hospital and Napa Valley College, so Paramedics can support skill competency.

Description: Analysis identified an opportunity for improvement relating to clinical resources. In 2021, the department provided 1,531 Paramedic-level medications or procedures. The limited skill volume translated to an average of 56 medications/procedures per Paramedic/Firefighter. Eighteen advanced airway procedures (intubations/supraglottic) were performed during the same period, correlating to 0.66 airway procedures per Paramedic.

Based on interviews with senior administration, the limited capacity of AMR is resulting in prolonged wait time for ambulance transport, and the system is often going to Level 0 due to the lack of transport units. Based on the data in the EMS section, there is a high incidence of criticality requiring advanced level care. The combination of high acuity and dilution of skills requires an emphasis on EMS critical skills competency.

Outcomes: A balance of field care skills, training manikin skills, and abilities in the clinical setting can maintain skills competency and support overall patient care.

Estimated Cost: Dependent on regionalized support and coordination with the local hospitals.

Recommendation B-7: Future hiring processes should focus on bilingual capabilities, Diversity, Equity, and Inclusion, and be commensurate with the community’s demographics.

Description: Napa County has limited ethnic diversity but has a 50/50 breakdown of men and women. NFD staffing does not appear to be consistent with the minority demographics relating to females in the area. NFD currently has three women serving as line firefighters.

Outcomes: An organization’s capacity to improve staffing diversity is essential to success.

Estimated Cost: Minimum increased cost as part of the existing recruitment process.

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Organizational & Operational Analysis Napa Fire Department 182

Recommendation B-8: Continue efforts to develop a wellness and fitness program.

Description: The fire service functions within an inherently hazardous environment. The organization must take reasonable precautions to limit exposure and provide consistent medical monitoring. Wellness programs include education on healthy lifestyles, mental health support, illness, injury prevention, and, most recently, an emphasis on cancer prevention.

Outcomes: Improved firefighter safety relating to cancer prevention.

Estimated Cost: Cost based on contracts for medical evaluation services.

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Organizational & Operational Analysis Napa Fire Department 183

LONG-TERM RECOMMENDATIONS
The short and mid-term recommendations presented will move the organization forward substantially. A longer-term, high-level view of future needs is also important to provide a “big picture” view of how the organization may continue with future initiatives. Primarily, long-term strategies are centered around community growth and related workload and how both impact the future deployment of fire stations and personnel.

Long-Term Operations Recommendations
Recommendation C-1: Improve and develop the regional training facility to support emergency response.

Description: Future growth will require additional capacity. NFD has access to the County Fire Training Grounds. To promote fiscal responsibility and efficiency, AP Triton recommends regionalizing training resources. Combining training programs will not only improve the cost-effectiveness of the program but will promote interagency cooperation.

Outcomes: An organization must have adequate training facilities to prepare for structural fires’ infrequency and intrinsic danger.

Estimated Cost: Cost dependent on regionalized support and coordination with the state.

Recommendation C-2: Evaluate the need, location, and potential for one or two southern stations to better serve new developments.

Description: Napa City’s southern area is forecast to see significant growth which will increase value protected, risk, and population density. The Napa Pipe and Stanley Ranch developments alone will most likely increase the need for emergency services. In addition, increased traffic and the likely collateral developments will also increase service demand and the risk profile. The current modeling indicates that the southern area is underserved in both first unit and full ERF responses. Adding a station is an intensely complex issue and a final recommendation for location is outside the scope of this study and report.

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Organizational & Operational Analysis Napa Fire Department 184

To illustrate the potential service improvements, two locations, one on the east side and one on the west side of the river, were selected as an example of theoretically improved service. These locations were modeled based on their access to current local road infrastructure, flood plain avoidance, and lots where buildings do not currently exist in satellite imagery. Potential travel-time models based on current road infrastructure follows; models do not account for any planned or future road networks. However, a full analysis should be performed before selecting a site. The analysis should include evaluating future road networks, future city annexations, zoning, site suitability, site availability, lot size, and other technical, financial, and predictive information.

Outcome: The southern area of the city may see improved response performance and the core of the city will benefit from reduced call volume in the south. A significant improvement in first due and ERF response times should be evident after the implementation of any strategic initiatives.

Estimated Cost: Initial financial impact will include staff and specialist costs in the evaluation, selection, design, and engineering of a potential station. Additional financial impact will include costs of building, capital equipment, and ongoing staffing and replacement costs.

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Organizational & Operational Analysis Napa Fire Department 185

Figure 151: Current 4- & 8-Minute Southern Response Performance

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Organizational & Operational Analysis Napa Fire Department 186

Figure 152: 4- & 8-Minute Example with a Southeast Station

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Organizational & Operational Analysis Napa Fire Department 187

Figure 153: 4- & 8-Minute Example of a Southwest Station

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Organizational & Operational Analysis Napa Fire Department 188

Long-Term Administration Recommendations
Recommendation C-3: Create/allocate enough permanent office space for Executive Officers, Community Risk Reduction Staff, Emergency Management, and the Administrative Support Team.

Description: NFD’s executive officers, Fire Prevention (FP) staff, and the administrative support team lack sufficient work-space. Both the fire department administration and FP staff occupy small portions of separate buildings along with other city services. The City should allocate a single space for the collocation of department staff or acquire additional office space dedicated to the fire department.

Outcomes: Office space that will meet the department’s needs for the foreseeable future.

Estimated Cost: Varies.

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Organizational & Operational Analysis Napa Fire Department 189

Section V:

APPENDICES
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Organizational & Operational Analysis Napa Fire Department 190

APPENDIX A: STAKEHOLDER INTERVIEWS
Introduction to the Stakeholder Interviews
AP Triton interviewed a wide variety of Napa Fire Department (NFD) internal and external stakeholders. The purpose of these interviews was to gain a better understanding of issues, concerns, and options regarding the emergency service delivery system, opportunities for shared services, and expectations from community members.

It is important to note that the information solicited and provided during this process was in the form of "people inputs" (stakeholders individually responding to our questions), some of which are perceptions reported 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 trends. Based on the information reviewed, the team identified a series of observations and recommendations they felt were significant enough to be included in this report.

Stakeholders were identified within the following groups: Elected Officials, Department Heads, Business Community Leaders, Citizens, Chief Officers, Labor Leaders, Volunteer/Reserve Firefighters. Rank & File, and Administrative Staff.

Elected Officials, City Management & Department Heads
Please describe your expectations of the fire department:
• Should be able to respond quickly with the appropriate equipment. • We have a partnership in that we can rely on each other, without question. • Having trust at all levels.
• Be responsive.
• Community outreach/part of the community.
• Educate and engage with kids/school programs.
• Having a positive relationship with the city and neighboring departments. • Active participation in the plans review process.
• To work with the various city departments in providing the best service possible. • To serve the community.
• Serve as role models/engender trust with the community. • Collaborate with other city departments.
• Actively participate in the community.

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Organizational & Operational Analysis Napa Fire Department 191

Are your expectations being met?
• Yes, I believe our expectations are being met.
• Yes, we have a great relationship. No improvement is needed in this area. • Yes, expectations are being met.
• My expectations are being met 100%.
• They are a shining example of Napa City employees.
• Very compassionate.
• Yes, without question.
• Yes, they are very professional and respected.

Are there services that you think the department should be providing that they are not now?
• Our plate is rather full—need to focus on the basics, especially with increasing costs. • Provide a better understanding of the role/responsibility of the Fire Marshals’ Office, the city, and the county/CALFIRE.
• Provide first aid and CPR to city departments.
• Be more proactive with community education (bicycle rodeo, trip and fall protection, Heart Safe City, smoke detectors).
• Emergency management training for other city departments.

In your opinion, what are the advantages/positives/strengths of the existing emergency service delivery system?
• They are very efficient (emergency response).
• They work very well with others (city departments).
• Well dispersed, well-equipped, well-trained employees. • Need to maintain the culture of the department.
• Availability of resources and response times.
• The attitude of the personnel (very positive).
• Very good internal succession planning process.
• Very organized and deliberate during emergency operations (especially during COVID-19).
• They are engaged in utilizing county training.

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Organizational & Operational Analysis Napa Fire Department 192

• The fire department’s willingness to work with others to provide the best service possible.
• Very visible in the community.
• They are very well respected.

What are the disadvantages/negatives/weaknesses of the existing system? • We are trying to do too much—too many “good intent calls.” • Would like to see more diversity.
• As density continues to grow, the Fire Department needs to play a more active role in development.
• Restrictions on participating in county-wide training and drills. • Need more outreach to the BIPOC is Black, Indigenous, and People of Color (BIPOC) community.
• Need to have more Diversity Equity Inclusivity (DEI) training. • Not using the closest resource (lack of boundary drops). • Natural push-n-pull of a city department, trying to fill needs with limited resources. • Facilities need to be evaluated.
• County fire having a separate dispatch center.
• County EMS seems more focused on the county and should be more inclusive of all response system participants.

Does the existing system provide the residents and community with acceptable protection?
• Yes, on emergency response—need to enhance prevention/public education. • Yes, although more resources/staffing is going to be needed as the city grows. • It does, but the fire from 2017 and 2019 changed the conversation to wildfire preparedness and who is responsible for readiness, community education/understanding, fuel reduction, and response.
• The FD needs to have the appropriate tools for dealing with calls for service among the unhoused population.

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Organizational & Operational Analysis Napa Fire Department 193

• There are parts of the city that need better coverage, but the current services provided are top-notch.
• Yes, however connectivity (infrastructure) to serve the community needs to be prioritized.

What opportunities do you believe exist that would enhance service to the region? • In a perfect world, providing shared services and consolidating services with other agencies would be good.
• Take advantage of the County’s data collection/management system. • Develop a public safety facility (police/fire) within the city. • Develop a consolidated, regional dispatch facility.
• Work more closely with neighbors and other agencies to manage/purchase assets, equipment, and facilities.
• Look into having the fire departments provide ALS transport services. • System-wide review for facility placement and resource allocation. • Full boundary drop closest staffed resource first.

Business & Community Leaders, Members, Strategic Partners, & Community Volunteers Describe your expectations of the fire department:
• We operate as partners on both sides.
• Establish a relationship in regard to mitigation and response. • Having a modernized, progressive approach.
• Continue recruiting/hiring good people.
• Continue with succession planning (have done a good job so far). • Good communication and collaboration.
• Continue the good work they do with community/outreach. • Partnering on shared interests—enhancing system improvements. • As a citizen, I expect that the Fire Department will answer the call of duty when they are informed of a situation. As the CERT PIO I did not have too many expectations.

When I reached out to Chief Curren I did have lots of hope, however. I was hoping that they would recognize our work and impart their expertise to make the CERT team even stronger. They have far exceeded any expectations we may have had and definitely my quixotic hopes! It has been overwhelmingly wonderful! We could not have asked for better!
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Organizational & Operational Analysis Napa Fire Department 194

Which of these expectations is not being met to your satisfaction? • In part, most are. The surge capacity is slightly one-sided. • Patient care is becoming truncated with fewer FD paramedics maintaining patient care throughout transport. Risk skills degradation.
• I don’t believe there are any expectations not being met. • All of the expectations are currently being met with graciousness and professionalism.

What do you think the Fire Department is doing particularly well? • The department does very good community outreach.
• Good organizational skills. From a leadership perspective, they’re looking toward the future.
• The department does an excellent job hiring and promoting the right people. • Napa has always invested in its EMS program.
• Well-trained personnel.
• I have worked with many government agencies and I am always amazed at how long it takes to accomplish anything; it’s hard to maintain passion for something that drags on. The Napa Fire Department has been the exact opposite of that. I am awestruck at how they have shown a passion for CERT and have reached out to the team. It has been a dream come true!
Are there services that you think the department should be providing that they are not providing now?
• None that I can think of.
• Increased presence at community events and more community engagement. • No, I can’t think of any.
• I don’t believe so.
• No.

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