Agenda packet — Pinole City Council, October 10, 2022 (part 1 of 3)

PINOLE CITY COUNCIL

SPECIAL MEETING AGENDA

CITY COUNCIL
Vincent Salimi, Mayor
Devin Murphy, Mayor Pro Tem
Anthony Tave, Council Member
Maureen Toms, Council Member
Norma Martínez-Rubin, Council Member
MONDAY
October 10, 2022
6:00 P.M
Please note: HYBRID MEETING FORMAT
Attend in person : PINOLE CITY COUNCIL CHAMBERS - 2131 PEAR STREET OR
Attend VIA ZOOM TELECONFERENCE – Details provided below Please note: Updated COVID-19 safety protocols will be posted outside the City Council Chambers. Please review this information before entering the Council Chambers.

How to Submit Public Comments:

In Person: Attend meeting at the Pinole City Council Chambers, fill out a yellow public comment card and submit it to the City Clerk.

Via Zoom:

Members of the public may submit a live remote public comment via Zoom video conferencing. Download the Zoom mobile app from the Apple Appstore or Google Play. If you are using a desktop computer, you can test your connection to Zoom by clicking here. Zoom also allows you to join the meeting by phone.

From a PC, Mac, iPad, iPhone or Android:
https://us02web.zoom.us/j/89335000272
Webinar ID: 893 3500 0272
By phone: +1 (669) 900-6833 or +1 (253) 215-8782 or +1 (346) 248-7799 • Speakers will be asked to provide their name and city of residence, although providing this is not required for participation.
• Each speaker will be afforded up to 3 minutes to speak (subject to modification by the Mayor)
• Speakers will be muted until their opportunity to provide public comment.

When the Mayor opens the comment period for the item you wish to speak on, please use the “raise hand” feature (or press *9 if connecting via telephone) which will alert staff that you have a comment to provide and press *6 to unmute. To comment with your video enabled, please let the City Clerk know you would like to turn your camera on once you are called to speak.

CORONAVIRUS ADVISORY
INFORMATION:

CLICK HERE for City Updates
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Written Comments: All comments received before 3:00 pm the day of the meeting will be posted on the City’s website on the agenda page (Agenda Page Link) and provided to the City Council prior to the meeting. Written comments will not be read aloud during the meeting.

Email comments to [email protected] Please indicate which item on the agenda you are commenting on in the subject line of your email.

Please note: Updated COVID-19 safety protocols will be posted outside the City Council Chambers. Please review this information before entering the Council Chambers.

OTHER WAYS TO WATCH THE MEETING
LIVE ON CHANNEL 26. They are retelecast the following Thursday at 6:00 p.m. The Community TV Channel 26 schedule is published on the city’s website at www.ci.pinole.ca.us.

VIDEO-STREAMED LIVE ON THE CITY’S WEBSITE, www.ci.pinole.ca.us. and remain archived on the site for five (5) years.

If none of these options are available to you, or you need assistance with public comment, please contact the City Clerk, Heather Bell at (510) 724-8928 or [email protected] .

Americans With Disabilities Act: In compliance with the Americans With Disabilities Act of 1990, if you need special assistance to participate in a City Meeting or you need a copy of the agenda, or the agenda packet in an appropriate alternative format, please contact the City Clerk’s Office at (510) 724-8928. Notification at least 48 hours prior to the meeting or time when services are needed will assist the City staff in assuring that reasonable arrangements can be made to provide accessibility to the meeting or service.

Note: Staff reports are available for inspection on the City Website at www.ci.pinole.ca.us. You may also contact the City Clerk via e-mail at [email protected] .

Ralph M. Brown Act. Gov. Code § 54950. In enacting this chapter, the Legislature finds and declares that the public commissions, boards and councils and the other public agencies in this State exist to aid in the conduct of the people's business. It is the intent of the law that their actions be taken openly and that their deliberations be conducted openly. The people of this State do not yield their sovereignty to the agencies, which serve them. The people, in delegating authority, do not give their public servants the right to decide what is good for the people to know and what is not good for them to know. The people insist on remaining informed so that they may retain control over the instruments they have created.
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1. CALL TO ORDER & PLEDGE OF ALLEGIANCE IN HONOR OF THE US MILITARY TROOPS

2. LAND ACKNOWLEDGMENT
Before we begin, we would like to acknowledge the Ohlone people, who are the traditional custodians of this land. We pay our respects to the Ohlone elders, past, present, and future, who call this place, Ohlone Land, the land that Pinole sits upon, their home. We are proud to continue their tradition of coming together and growing as a community. We thank the Ohlone community for their stewardship and support, and we look forward to strengthening our ties as we continue our relationship of mutual respect and understanding.

3. ROLL CALL, CITY CLERK’S REPORT & STATEMENT OF CONFLICT An official who has a conflict must, prior to consideration of the decision: (1) publicly identify in detail the financial interest that causes the conflict; (2) recuse himself /herself from discussing and voting on the matter; and (3) leave the room until after the decision has been made, Cal. Gov't Code § 87105.

4. CITIZENS TO BE HEARD (Public Comments)
Citizens may speak under any item not listed on the Agenda. The time limit is 3 minutes for City Council items and is subject to modification by the Mayor. Individuals may not share or offer time to another speaker. Pursuant to provisions of the Brown Act, no action may be taken on a matter unless it is listed on the agenda, or unless certain emergency or special circumstances exist. The City Council may direct staff to investigate and/or schedule certain matters for consideration at a future meeting.

5. CONSENT CALENDAR
A. Award A Construction Contract for Safety Improvements at Appian Way and Marlesta Road (CIP Project #RO1714) [Action: Adopt Resolution Per Staff Recommendation (Kaur)]
B. Adopt A Resolution Entitled “A Resolution of the City Council of the City of Pinole Authorizing Submittal of Applications for All Calrecycle Grants For Which the City of Pinole Is Eligible” [Action: Adopt Resolution per Staff Recommendation (Kaur)]

6. BUSINESS ITEM
A. Contract For Fire Protection Services With Contra Costa County Fire Protection District, Including The Reopening of Pinole Fire Station 74 [Action: Adopt Resolution Per Staff Recommendation (Wynkoop)]

7. ADJOURNMENT to the Regular City Council Meeting of October 18, 2022 in Remembrance of Amber Swartz.

I hereby certify under the laws of the State of California that the foregoing Agenda was posted on the bulletin board at the main entrance of Pinole City Hall, 2131 Pear Street Pinole, CA, on the City’s website, not less than 72 hours prior to the meeting date set forth on this agenda.

POSTED: October 6, 2022 at 12:00 P.M.
_________________________________
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Heather Bell, CMC
City Clerk
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CITY COUNCIL
REPORT 5A
DATE: OCTOBER 10, 2022
TO: MAYOR AND COUNCIL MEMBERS
FROM: MISHA KAUR, CAPITAL IMPROVEMENT AND ENVIRONMENTAL

PROGRAM MANAGER
SUBJECT: AWARD A CONSTRUCTION CONTRACT FOR SAFETY

IMPROVEMENTS AT APPIAN WAY AND MARLESTA ROAD (CIP
PROJECT # RO1714)

RECOMMENDATION
Staff recommends that the City Council adopt a resolution (Attachment A) to:

1. Award a construction contract (Attachment B) to the lowest responsive and responsible bidder, Gruendl Inc. DBA Ray’s Electric for the installation of a traffic signal at the Appian Way and Marlesta Road intersection (CIP Project # RO1714, the “Project”);

2. Authorize the City Manager to execute a construction contract (Attachment B) with Gruendl Inc. DBA Ray’s Electric in an amount not to exceed $715,891 (including a 10% contingency) for the Project;

3. Authorize the Finance Director to amend the adopted Project budget to allocate $87,163 from Measure S-2014 unencumbered fund balance; and

4. Authorize the City Manager or his designee to issue any necessary change orders to complete additional work within contract authority for the Project.

BACKGROUND
The Project is an approved project in the City of Pinole’s current adopted Capital Improvement Plan (CIP) and involves installation of a traffic signal at the Appian Way and Marlesta Road intersection. The Project includes installation of new high-visibility crosswalk striping on all legs of the intersection, green bicycle lane treatment on Appian Way within Project limits, and a slurry seal of the intersection.

On August 26, 2022, City staff released the Project bid on www.publicpurchase.com and also posted contract documents on www.ci.pinole.ca.us/bids. In accord with the Public 5 of 955
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Contract Code, the Notice Inviting Sealed Bids was published in the West County Times on August 29, 2022, and September 12, 2022, which specified the time and place for opening of sealed bids and described the nature of the Project. Sealed bids were opened on September 21, 2022.

REVIEW & ANALYSIS
On September 21, 2022, six (6) bids were received and publicly read at 2:00 PM at City Hall. Per project bid documents, the City will award the project to the lowest responsive and responsible bidder based on the total bid amount. The following table summarizes the bids received:

Name of Bidder Amount Bid
Gruendl Inc. DBA Ray’s Electric $650,810
Mike Brown Electric Co. $655,915
St. Francis Electric, LLC $676,000
Columbia Electric Inc. $691,721
W. Bradley Electric, Inc. $754,780
Tennyson Electric, Inc. $851,190
The engineer’s estimate for the Project construction is $500,000.00 and the lowest bidder Gruendl Inc. DBA Ray’s Electric’s bid is $650,810.00, which is $150,810.00 more than the engineer’s estimate.

Staff evaluated Gruendl Inc. DBA Ray’s Electric’s bid package, insurance, and bonding and determined Gruendl Inc. DBA Ray’s Electric’s bid to be responsive. Staff contacted various construction references listed in the bid submittal and the references indicated that Gruendl Inc. DBA Ray’s Electric’s bid has satisfactorily completed their contracts of similar size and scope. No bid protests were received. Staff believes that Gruendl Inc.

DBA Ray’s Electric has the experience and professional competency that will result in a satisfactory product for the City.

Gruendl Inc. DBA Ray’s Electric’s bid proposal documentation is complete, and staff has determined them to be the lowest responsive and responsible bidder. Staff recommends the City Council accept the bid and award the construction contract to Gruendl Inc. DBA Ray’s Electric’s for the Project. Furthermore, staff recommends that City Council authorize the City Manager to execute a contract with Gruendl Inc. DBA Ray’s Electric’s in an amount not to exceed $715,891 (including a 10% contingency) for the Project. The contingency will allow staff to address any issues that may arise during the work as approved by the City Manager or his designee. In addition, staff recommends that City Council authorize the City Manager or his designee to issue any necessary change orders to complete additional work within contract authority for the Project. 6 of 955
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FISCAL IMPACT
The current adopted capital construction budget is $628,728 for the Project. This funding is comprised of $350,000 in grant funds from the One Bay Area Grant Program (OBAG 2), $129,400 in Transportation Development Act (TDA) grant funds, and $149,328 from Measure S-2014.

The Project’s construction budget does not have adequate funds to award the contract to the lowest responsive and responsible bidder. Staff requests an additional allocation of $87,163 from Measure S-2014 to amend the Project’s construction budget and award the construction contract to Gruendl Inc. DBA Ray’s Electric.

ATTACHMENT(S)
A. Resolution
B. Construction Contract
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RESOLUTION NO. 2022 – XX

RESOLUTION OF THE CITY COUNCIL OF THE CITY OF PINOLE, COUNTY OF

CONTRA COSTA COUNTY, STATE OF CALIFORNIA, AWARDING A

CONSTRUCTION CONTRACT FOR SAFETY IMPROVEMENTS AT APPIAN WAY AND MARLESTA ROAD (CIP PROJECT # RO1714)
WHEREAS, the City of Pinole (“City”) has adopted the FY 2022/23 through FY 2026/27 Capital Improvement Plan (CIP) which includes the Safety Improvements at Appian Way and Marlesta Road (CIP Project # RO1714, the “Project”) as a funded project; and
WHEREAS, the Project involves installation of a traffic signal at the Appian Way and Marlesta Road intersection, new high visibility crosswalk striping on all legs of the intersection, green bicycle lane treatment on Appian Way within Project limits, and a slurry seal of the intersection; and
WHEREAS, on August 26, 2022, City staff released the bid on www.publicpurchase.com and also posted contract documents on www.ci.pinole.ca.us/bids; and
WHEREAS, the Notice Inviting Sealed Bids was published in the West County Times on August 29, 2022, and September 12, 2022, which specified the time and place for opening of sealed bids and described the nature of the Project; and WHEREAS, on September 21, 2022, at 2:00 p.m., the Public Works staff publicly opened and examined the sealed bids for the Project; and WHEREAS, staff has determined that Gruendl Inc. DBA Ray’s Electric is the lowest responsive and responsible bidder; and
WHEREAS, the current adopted capital construction budget for the Project does not have adequate funds to award the construction contract.

NOW THERFORE BE IT RESOLVED that the City Council of the City of Pinole as follows:

1. Gruendl Inc. DBA Ray’s Electric’s bid of $ $650,810.00 is found to be lowest responsive and responsible bid and is accepted by the City Council at the unit prices set forth in the bid for the Safety Improvements at Appian Way and Marlesta Road project (CIP Project # RO1801, the “Project”). This bid is on file with the Public Works Department and incorporated herein by this reference as though set forth in full.

2. A construction budget of $650,810.00 and project contingency funds in the amount of $65,081 (10% of bid) are authorized by the City Council at the unit prices set forth in Gruendl Inc. DBA Ray’s Electric’s bid.

3. The City Manager is authorized to execute a construction contract with

ATTACHMENT A
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Gruendl Inc. DBA Ray’s Electric’s bid in an amount not to exceed $715,891 for the Project in a form to be approved by the City Attorney.

4. The Finance Director is authorized to amend the adopted Project budget to allocate $87,163 from Measure S-2014 unencumbered fund balance.

5. The City Manager or his designee is authorized to issue any necessary change orders to complete additional work within contract authority for the Project.

PASSED AND ADOPTED at a special meeting of the Pinole City Council held on the 10th day of October 2022 by the following vote:

AYES: COUNCILMEMBERS:

NOES: COUNCILMEMBERS:

ABSENT: COUNCILMEMBERS:

ABSTAIN: COUNCILMEMBERS:

I hereby certify that the foregoing resolution was regularly introduced, passed, and adopted on the 10th day of October 2022.
____________________________
Heather Bell, CMC
City Clerk
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CITY OF PINOLE

CONTRACT FOR SAFETY IMPROVEMENTS AT APPIAN WAY AND MARLESTA ROAD THIS AGREEMENT is made and entered this 11th day of October 2022, by and between the City of Pinole, hereinafter referred to as “City” and Gruendl Inc. DBA Ray’s Electric, hereinafter referred to as “Contractor.” WITNESSETH:

WHEREAS, Contractor and Contractor’s Surety are providing the bonds attached hereto and incorporated by this reference, and
WHEREAS, City desires to contract with Contractor to perform the services detailed in this contract, including the Proposal, and
WHEREAS, Contractor has represented that it is fully qualified to assume and discharge such responsibility; NOW, THEREFORE, the parties hereto do agree as follows:

1. Contract Documents. The Contract Documents referred to herein are incorporated by reference as if set forth in full in this Agreement. The Contract Documents shall include the shall include the Notice Inviting Bids, Instructions to Bidders, Bid Forms (including the Bid, Bid Schedule(s), Information Required of Bidder, Bid Bond, and all required certificates, affidavits and other documentation), this Agreement, Performance Bond, Labor and Materials Bond, Maintenance Bond, General Conditions, any Supplementary General Conditions, Special Provisions, Specifications, Drawings, all Addenda, and Change Orders executed pursuant to the provisions of the Contract Documents. This Agreement, and the Contract Documents, includes the exhibits to this Agreement, including Exhibit A Insurance, Exhibit B Minimum Wage Rates

2. Scope of Services. City hereby employs Contractor to perform the work and provide the services and materials for the project identified as: Safety Improvements at Appian Way and Marlesta Road, as described in these Plans and Specifications, attached hereto and incorporated herein by this reference, including miscellaneous appurtenant work. Such work shall be performed in a good and workmanlike manner, under the terms as stated herein and in these Plans and Specifications. In the event of any conflict between the terms of this agreement and any of the above-referenced documents, the terms of this agreement shall be controlling.

3. Compensation. In consideration of the services rendered hereunder, Contractor shall be paid $650,810.00 in accordance with the prices as submitted on the Bid Sheet of the Proposal, attached hereto as a part of these Plans and Specifications and in accordance with the Special Provisions.

4. Independent Contractor. It is specifically understood and agreed by all parties hereto that Contractor is, for the purposes of this Agreement, an independent contractor and not an employee of the City.

Accordingly, Contractor shall not be deemed the City’s employee for any purpose whatsoever. Contractor shall not incur or have the power to incur any debt, obligation or liability whatever for or against City.

5. Assignment. This agreement may not be assigned by Contractor, in whole or in part, without the prior written consent of City.

6. Termination. This Agreement may be canceled by City at any time without penalty upon thirty (30) days’ written notice. In the event of termination without fault of Contractor, City shall pay Contractor for all services rendered prior to date of termination, and such payment shall be in full satisfaction of all services rendered hereunder.

ATTACHMENT B
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7. Worker’s Compensation Insurance. California Labor Code Sections 1860 and 3700 provide that every contractor will be required to secure the payment of compensation to its employees. In accordance with the provisions of California Labor Code Section 1861, the Contractor hereby certifies as follows:
“I am aware of the provisions of Section 3700 of the Labor Code which require every employer to be insured against liability for worker’s compensation or to under take self-insurance in accordance with the provisions of that code, and I will comply with such provisions before commencing the performance of the work of this contract.”

8. Prevailing Wages and General Rate of Per Diem Wages. Pursuant to the Labor Code of the State of California, the Director of Industrial Relations has determined the general prevailing rate of wages and employer payments for health and welfare, vacation, pension and similar purposes applicable to the work to be done. This rate and scale are on file with the CITY ENGINEER and copies will be made available to any interested party on request. The Contractor to whom the contract is awarded, and the subcontractors under him must pay not less than these rates for this area to all workers employed in the execution of this contract.

9. Dispute resolution is subject to the provision of Article 1.5 (commencing at Section 20104) of Division 2, Part 3 of the California Public Contract Code regarding the resolution of public works claims of less than $375,000. Article 1.5 mandates certain procedures for the filing of claims and supporting documentation by the contractor, for the response to such claims by the contracting public agency, for a mandatory meet and confer conference upon the request of the contractor, for mandatory non-binding mediation in the event of litigation is commenced, and for mandatory judicial arbitration upon the failure to resolve the dispute through mediation. This contract hereby incorporates the provisions of Article 1.5 as though fully set forth herein.

10. Suit; Recovery of Attorney Fees & Costs. Should either party bring any action to protect or enforce its rights hereunder, the prevailing party in such action shall be entitled to recover, in addition to all other relief, its reasonable attorney’s fees and court costs.

11. Severability. If any term or provision or portion of a term or provision of this contract is declared invalid or unenforceable by any court of lawful jurisdiction, then the remaining terms and provisions or portions of terms or provisions will not be affected thereby and will remain in full force and effect.

IN WITNESS WHEREOF, the parties hereto have executed the within Agreement the day and year first above written.

CITY OF PINOLE CONTRACTOR: Gruendl Inc. DBA Ray’s Electric By: _______________________________________________ By: _____________________________________________ Andrew Murray, City Manager
_____________________________________________
Print Name, Title
Date: _____________________________________________ Date: __________________________________________ ATTEST:
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By:

Heather Bell, City Clerk
Date: _____________________________________________
Approved as to Form
By:

Eric Casher, City Attorney
Date: _____________________________________________
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CITY OF PINOLE

INSTRUCTIONS FOR EXECUTION OF INSTRUMENTS
THIS IS INSTRUCTION ONLY – IT IS NOT TO BE SIGNED OR USED IN CONJUNCTION WITH THE AGREEMENT OR ANY OTHER FORMS THAT MUST BE TURNED INTO THE CITY OF PINOLE – IT IS SIMPLY A FORMAT TO USE WHEN FILLING OUT DOCUMENTS.

1. By an Individual. The individual must sign the instrument, and if he/she is doing business under a fictitious name, the fictitious name must be set forth. The signature must be acknowledged before a Notary Public, using the proper form of acknowledgment.

2. By a Partnership. The name of the partnership must be set forth followed by the signatures of less than all of the partners will be acceptable only if submitted with evidence of authority to act on behalf of the partnership. The signatures must be acknowledged before a Notary Public, using the proper form of acknowledgment.

3. By a Corporation. The name of the corporation must be set forth, followed by the signatures of the President or Vice President and Secretary or Assistant Secretary. The signatures must be acknowledged before a Notary Public, using in substance the following form of acknowledgment.

4. By a Surety. The name of the surety must be set forth, followed by an authorized signature. The signatures must be acknowledged before a Notary Public, using the proper form of acknowledgment.

STATE OF )
) SS.

COUNTY OF )
On , 20____, before me, the undersigned, appeared
known to me to be the President or Vice President and known to be to be the Secretary or Assistant Secretary of the corporation that executed the within instrument, and acknowledged to me that such corporation executed the within instrument pursuant to its by-laws or a resolution of its City Council.

WITNESS my signature and seal.

Notary Public
(Seal)
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INSURANCE REQUIREMENTS FOR CITY OF PINOLE
Public Works Contract
The Contractor shall at all time during the term of this Agreement carry, maintain, and keep in full force and effect, with an insurance company admitted to do business in California and approved by the City (1) a policy or policies of broad-form comprehensive general liability insurance with minimum limits of $1,000,000.00 combined single limit coverage against any injury, death, lose, or damage as a result of wrongful or negligent acts by the Contractor, its officers, employees, agents, and independent contractors in performance of services under this Agreement; (2) property damage insurance with a minimum limit of $1,000,000.00; (3) automotive liability insurance with a minimum combined single limits coverage of $1,000,000.00; and (4) worker’s compensation insurance with a minimum limit of $1,000,000.00 or the amount required by law, whichever is greater. The City, its officers, employees, attorneys, and volunteers shall be named as additional insureds on the policy(ies) as to comprehensive general liability and property damage.

1. All insurance policies shall provide that the insurance coverage shall not be non-renewed, canceled, reduced, or otherwise modified (except through addition of additional insureds to the policy) by the insurance carrier without the insurance carrier giving the City thirty (30) day’s prior written notice thereof. The Contractor agrees that it will not cancel, reduce or otherwise modify said insurance coverage.

2. The Contractor agrees that if it does not keep the aforesaid insurance in full force and effect, and such insurance is available at a reasonable cost, the City may take out the necessary insurance and pay the premium thereon, and the repayment thereof shall be deemed an obligation of the Contractor and the cost of such insurance may be deducted, at the option of the City, from payments due the Contractor.

3. The Contractor shall submit to the City (1) insurance certificates indicating compliance with the minimum worker’s compensation insurance requirements above, and (2) insurance policy endorsements above, not less than one (1) day prior to beginning of performance under this Agreement. Endorsements must be executed on the City’s appropriate standard forms entitled “Additional Insured Endorsement,” copies of which are attached hereto.
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CITY COUNCIL
REPORT 5B
DATE: OCTOBER 10, 2022
TO: MAYOR AND COUNCIL MEMBERS
FROM: MISHA KAUR, CAPITAL IMPROVEMENT AND ENVIRONMENTAL

PROGRAM MANAGER
SUBJECT: ADOPT A RESOLUTION ENTITLED “A RESOLUTION OF THE CITY

COUNCIL OF THE CITY OF PINOLE AUTHORIZING SUBMITTAL OF

APPLICATIONS FOR ALL CALRECYCLE GRANTS FOR WHICH THE
CITY OF PINOLE IS ELIGIBLE”

RECOMMENDATION
Staff recommends that the City Council adopt a Resolution entitled “A Resolution of the City Council of the City of Pinole authorizing submittal of applications for all CalRecycle grants for which the City of Pinole is eligible.”

BACKGROUND
The Department of Resources Recycling and Recovery (CalRecycle) administers various grant programs (Grants) to provide funding to public and private entities in furtherance of the State of California’s efforts to reduce, recycle, and reuse solid waste generated in the state thereby preserving landfill capacity and protecting public health, safety, and the environment.

The CalRecycle grant application procedures require, among other things, an applicant’s governing body to declare by resolution certain authorizations related to the administration of Grants. CalRecycle recommends that city councils approve a general resolution authorizing their city to apply for all Grants for which they are eligible in order to streamline and guarantee a city’s ability to apply for Grants in a timely manner. These authorizations must have a set period for which they are effective, which is no more than five (5) years from date of adoption.

REVIEW & ANALYSIS
CalRecycle offers various grant programs designed to expand recycling opportunities and reduce waste and greenhouse gas emissions. CalRecycle also requires the City to adopt an Environmentally Preferable Purchasing and Practices (EPPP) Policy to institute practices that reduce waste by increasing product efficiency and effectiveness. The EPPP 15 of 955
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is the procurement or acquisition of goods and services that have a lesser or reduced effect upon human health and the environment when compared with competing goods or services that serve the same purpose. The City Council will consider at its meeting on October 10, 2022 an item to update the City’s procurement policy by incorporating an EPPP.

The incorporation of EPPP into the City’s procurement policy and adoption of the attached resolution will allow the City to pursue Grant opportunities from CalRecycle. These opportunities have the potential to help the City meet short-term and long-term waste reduction goals. Time frames to apply for CalRecycle funding opportunities are generally very strict, further justifying the need to secure authorization approval to apply for these Grant funds as they are available.

FISCAL IMPACT
Adopting the Resolution authorizes the City to submit grant applications to CalRecycle and if successful, would provide revenue for projects.

ATTACHMENT
A. Resolution
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RESOLUTION NO. 2022-XX

RESOLUTION OF THE CITY COUNCIL OF THE CITY OF PINOLE, COUNTY OF

CONTRA COSTA, STATE OF CALIFORNIA,

AUTHORIZING SUBMITTAL OF APPLICATION(S) FOR ALL CALRECYCLE

GRANTS FOR WHICH THE CITY OF PINOLE IS ELIGIBLE
WHEREAS, Public Resources Code sections 48000 et seq. authorize the Department of Resources Recycling and Recovery (CalRecycle) to administer various grant programs (Grants) in furtherance of the State of California’s (State) efforts to reduce, recycle and reuse solid waste generated in the State thereby preserving landfill capacity and protecting public health and safety and the environment; and WHEREAS, in furtherance of this authority CalRecycle is required to establish procedures governing the application, awarding, and management of the grants; and WHEREAS, CalRecycle Grant application procedures require, among other things, an applicant’s governing body to declare by resolution certain authorizations related to the administration of CalRecycle grants.

NOW THEREFORE, BE IT RESOLVED that the Pinole City Council does hereby authorize the submittal of application(s) to CalRecycle for all Grants for which the City of Pinole is eligible; and
BE IT FURTHER RESOLVED that the City Manager or his/her designee is hereby authorized and empowered to execute in the name of the City of Pinole all Grant documents, including but not limited to, applications, agreements, amendments and requests for payment, necessary to secure grant funds and implement the approved grant project; and
BE IT FURTHER RESOLVED that these authorizations are effective for five (5) years from the date of adoption of this resolution.

PASSED AND ADOPTED at a special meeting of the Pinole City Council held on the 10th day of October 2022 by the following vote:

AYES: COUNCILMEMBERS:

NOES: COUNCILMEMBERS:

ABSENT: COUNCILMEMBERS:

ABSTAIN: COUNCILMEMBERS:

ATTACHMENT A
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Pinole City Council
Resolution No. 2022-__
Page ___
I hereby certify that the foregoing resolution was introduced, passed, and adopted on the 10th day of October 2022.

____________________________
Heather Bell, CMC
City Clerk
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CITY COUNCIL 6A
REPORT
DATE: OCTOBER 10, 2022
TO: MAYOR AND COUNCIL MEMBERS
FROM: CHRIS WYNKOOP, FIRE CHIEF
SUBJECT: CONTRACT FOR FIRE PROTECTION SERVICES WITH CONTRA

COSTA COUNTY FIRE PROTECTION DISTRICT, INCLUDING THE
REOPENING OF PINOLE FIRE STATION 74

RECOMMENDATION
City staff recommends that the City Council consider adopting a resolution 1) approving a contract for fire protection services with the Contra Costa County Fire Protection District (CCCFPD); 2) authorizing CCCFPD to submit an application to the Contra Costa Local Agency Formation Commission (LAFCo) to provide fire protection services in Pinole; and 3) authorizing the City Manager to negotiate and execute other related documents necessary to implement the contract for services.

BACKGROUND
Per City Council’s direction, since February of 2022, City staff has been discussing provisions of a potential contract for service with CCCFPD. City and CCCFPD staff presented a draft contract for service and independent fiscal analysis to the City Council at a special meeting, held in workshop format, on September 13, 2022. The draft contract for service and independent fiscal analysis are thoroughly described in the staff report for the September 13, 2022 meeting (Attachment F).

At that meeting, the City Council received public input and provided direction to City staff to attempt to negotiate a final contract for City Council’s consideration that included changes to the following topics in the draft contract:
• Funding commitment for Measure X funds
• Development submittal process
• Transition plan in the event of termination
• City’s obligation to pay for ladder truck due to future development • City financial credit for providing apparatus

DISCUSSION
City staff has worked with CCCFPD staff to create a revised contract that City staff believes meets the direction that Council provided on September 13, 2022 to the greatest extent possible. These revisions include:
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Meeting Date: October 10, 2022 2
• Funding commitment: During the September 13 Council meeting/workshop, County Supervisor Gioia spoke on behalf of the County Board of Supervisors in making a verbal commitment to fund the $2M, plus an annual escalator to be determined, from Measure X, throughout the term of the contract (5-years, through FY 2027/28). The following week, on September 20, the County Board of Supervisors took action to formalize the $2M annual commitment and define the escalator via Resolution No. 2022/332, the language of which was subsequently added into the contract draft as cited below:
“The Parties acknowledge that by Resolution No. 2022/332, attached as Exhibit 7, the Board of Supervisors has allocated from Measure X funds $2,000,000 annually, through Fiscal Year 2027/28 to increase the level of fire protection services in the City. As provided in Resolution No. 2022/332, the Measure X allocation will be adjusted annually beginning in Fiscal Year 2023/24 by the percentage change in the Consumer Price Index-All Urban Consumers for the San Francisco-Oakland-Hayward Area for the twelve-month period ending with the February index of the calendar year in which the adjustment is made, but not to exceed 4 percent per year. The Parties also acknowledge that the continued allocation of funds by the Board of Supervisors is critical to the maintenance of service levels provided for in this Agreement. The Parties will utilize each annual allocation of $2,000,000, as adjusted, as an Offsetting Revenue under this Agreement.”
• Development Submittal Process: The City and District were able to agree upon mutually acceptable language for the contract. The specifics of the process will be mutually decided upon by the parties outside of the contract, but the agreement language acknowledges that the process should be as easy as possible for applicants, that applicants will have the ability to submit documents at City Hall, and that eventually the process will become fully electronic. • Transition Plan: After discussions, additional changes were made to this section.

Relatedly, the County agreed to modify the process for appointing a mediator.

Previously, if the parties could not agree on a mediator, no mediation would occur.

Under the new process, the parties will each select a mediator, who together will select the mediator to be used. This ensures that the parties are able to use neutral non-binding mediation as part of any future termination of the agreement, as well as for other disputes that arise during the agreement.

• New Development: The District has insisted that if new development creates the need for new equipment or apparatus (such as a ladder truck), the District should not be responsible for those costs. In order to help with long term planning, the City attempted to negotiate more definitive language regarding what specific types of new development would trigger the need for new equipment or apparatus, but the District refused. The City has an existing development fire impact fee, and those fees can be used to cover a significant portion of a ladder truck if the Fire 20 of 955
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Chief determines in the future that it is needed due to new development. If the Fire Chief makes such a determination, the agreement requires the parties to meet and confer. If the City disagrees with the Fire Chief’s determination, the City can take advantage of the contract’s mediation procedures.
• Financial Credit for Apparatus: The City will be providing apparatus to the District with useful life remaining, while simultaneously paying an ongoing fee for the replacement of such apparatus as part of the annual budget. The City discussed various approaches for addressing this issue, such as having the District purchase the equipment or the District providing the City with discounted leases for new equipment upon termination. The District refused all of these approaches.

However, the District confirmed to the City that the annual fee paid for by the City and incorporated into the 5 year budget projection already factors in that the City is providing apparatus with remaining useful life to the District.

Other less significant changes to the draft contract were also negotiated between the parties. Note that a clean version of the final proposed contract is attached, and a redlined version (Attachments A and B, respectively).

The City will need to execute other documents related to the contract for services, including lease agreements for Station 73 and 74 and a side letter with Local 1230, the bargaining unit representing the firefighters impacted by the proposed contract. The proposed resolution authorizes the City Manager to negotiate and execute such documents in a form approved by City Attorney.

To summarize the manifold benefits to gained for Pinole citizens by agreeing to the service contract through which CCCFPD would operate Fire Station 73 and Station 74, many of which are detailed in the attached Plan for Service (Attachment C):
• Most importantly, response times to calls for service throughout the City would be significantly improved with the opening of Fire Station 74. The impact analysis created via CCCFPD’s predictive modeling capabilities forecasts response times on medical calls to be 1:13 faster in Station 74’s first-in district, and compliance with target response time is predicted to improve from 37% to 59%. Response times on structure fires are predicted to be 1:52 faster in Station 74’s first-in district, and compliance with target response time is predicted to improve from 12% to 47%.
• CCCFPD has specialized rescue and firefighting resources that would be more immediately available to Pinole. These include water rescue teams, heavy fire equipment resources such as fire bulldozers, as well as technical rescue apparatus, equipment, and personnel for confined space, trench, and building collapse. Whereas Pinole can currently access these resources if they are not dedicated to other CCCFPD purposes, Pinole would have higher priority in the deployment of these resources if CCCFPD provided fire protection services in Pinole.
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• Operational and large incident management would be standardized under the single organization’s leadership and emergency management goals and objectives. Standardization of responses across the expanded service area would ensure consistent response levels of equipment and personnel to structure fires, technical rescues, and vegetation or wildland fires. CCCFPD also has modern operational policies and procedures, and better training through one Training Division under a consistent, well-staffed, and properly supported system. The CCCFPD academy is a State Accredited Local Academy (ALA). • CCCFPD achieves economies of scale and scope, and therefore can provide fire protection services on a lower cost per unit in general. CCCFPD would be able to provide information technology, equipment repair and maintenance, and apparatus maintenance more cost effectively. CCCFPD can procure apparatus at considerably lower cost that the City can, due to volume discounts, and vehicle maintenance would be performed by the CCCFPD’s apparatus shop, by ASE certified fire mechanics.
• CCCFPD has full-time staff who are certified peace officers with arresting powers and the capacity to perform all functions of a fire-cause investigation, and who would coordinate with the City Police Department on all investigations. CCCFPD’s 22 Fire Inspectors and Fire Prevention Captains would conduct annual occupancy inspections of all State-mandated facilities within the City and provide new construction plan review and related inspections for all new construction projects within the City. Public education and outreach efforts would be increased through dedicated CCCFPD staff to perform this important service. • In addition to improving service to residents of Pinole, expanding fire protection service by reopening Station 74 would benefit residents of many other parts of West Contra Costa County, including residents in the unincorporated areas of Tara Hills, Montalvin Manor, and Bay View. It would also help accommodate for the scarcity of West County hospital emergency room services since the closure of Doctor’s Medical Center in Pinole, which has increased the reliance on firefighters as first-line medical assistance for many of our underserved citizens. • CCCFPD’s communication and engagement with the community is well served by a dedicated Public information Officer (PIO). Social media presence on Twitter, Instagram, and Nextdoor, as well as significant incident reports and news releases, are all easily accessible on the CCCFPD website home page.

FISCAL IMPACT
The fiscal analysis conducted by the Stone Municipal Group reflects that the City has the fiscal ability to enter into and sustain an agreement with CCCFPD to provide fire and emergency response services given the County’s commitment to providing $2 million annually of Measure X funding to subsidize CCCFPD’s service. A revised version of the 22 of 955
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fiscal analysis is attached (Attachment D) which reflects the County’s commitment and actions taken subsequent to the September 13 Council meeting/workshop.

The chart below reflects the first-year and 7-year-average costs under the most likely set of assumptions per the fiscal analysis. Note that “Year 1” for the purpose of the report is FY 2023/24 because, if approved, the new service model could not be implemented until late winter or early spring of 2023, at which time FY 2022/23 will be near completion. Also note that the City would continue to bear some expenses related to fire protection services (itemized in the chart as “City Annual Cost [Ongoing] - $753,489), to include payment of the unfunded accrued liability (UAL) for Fire Department employee pensions, payment of retiree medical benefits for Fire Department retirees, fire station building maintenance, utilities, and fire fuel mitigation costs not covered by CCCFPD. Additionally, the City anticipates a one-time cost of $52,970 for compensated leave payouts. The fiscal analysis accounts for these costs which are included in, not in addition to, the projected total cost.

Replacement costs of apparatus are factored into the annual contract amount, and it is anticipated that CCCFPD will need to replace one Type 6 engine within the next 24 months, one Type 3 engine within the next five years, and one Type 1 engine within five to seven years. The total anticipated cost of replacing this apparatus is approximately $1,650,000 based on 2022 pricing. Again, these costs are included in, not in addition to, the projected total cost.

The table below shows the year-over-year comparison of the total cost to the City of Scenario 1 (continuation of current service level) and Scenario 2 (contract with CCCFPD) 23 of 955
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under the most likely assumptions (Scenario 1b reflects cost to the city to operate both stations without collaboration with CCCFPD).

As shown in both charts, the net cost to the City to operate two fire stations under CCCFPD’s superintendence would be comparable to the City operating one fire station on its own, when accounting for the cost proposal from CCCFPD, including the fire protection-related expenses that the City would continue to bear in addition to the contract, and net the $2 million from Measure X.

CONCLUSION
City staff believes that based on the fiscal analysis, the Station 74 reopening impact analysis, and the County’s commitment in a contract for services to provide $2 million per year plus an annual escalator of Measure X funds to subsidize the arrangement, it would be beneficial for the City to agree to the final draft contract presented. Moreover, it is the Fire Chief’s belief that the proposed contract between the City and CCCFPD for fire protection services, including the reopening of Pinole Fire Station 74, provides the highest level of fire and emergency services protection for the citizens of Pinole achievable within the City’s budgetary constraints.

NEXT STEPS
Per LAFCo requirements, Pinole City Council approval of the agreement is required prior to CCCFPD seeking approval from the County Board of Supervisors to submit an application to LAFCo to provide fire services in the City of Pinole. The resolution of Council approval is attached (Attachment E). Upon Council approval of the agreement, the next steps will occur according to the following estimated timeline:
• CCCFPD will seek approval from the County Board of Supervisors to submit an application to LAFCo to provide fire services in the City of Pinole, to include the reopening of Station 74, at the October 11, 2022 Board of Supervisors meeting. • Contra Costa County LAFCo will consider the contract for service application at its regularly scheduled meeting on November 9, 2022.

Year 1 Year 2 Year 3 Year 4 Year 5 Year 6 Year 7
2023-24 2024-25 2025-26 2026-27 2027-28 2028-29 2029-30 Budget Forecast Forecast Forecast Forecast Forecast Forecast Scenario 1 - Continuation of
Current Service Level
$6,363,316 $6,746,973 $7,155,799 $7,575,803 $8,005,331 $8,442,852 $8,905,735 Scenario 1b - City Operates
Both Station 73 and Station 74
$8,655,357 $9,338,113 $9,894,535 $10,469,430 $11,061,687 $11,670,065 $12,315,302 Scenario 2 - Cooperative Fire
Service Agreement with
CCCFPD
$6,107,445 $6,493,411 $6,950,823 $7,433,677 $7,937,218 $8,470,233 $9,041,400 Cost Difference
(Scenario 2 minus Scenario 1)
($255,871) ($253,562) ($204,976) ($142,126) ($68,113) $27,381 $135,665 24 of 955
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• Upon LAFCo approval, the City will commence the physical preparation of Station 74 for full functionality as an operational fire station. • Assuming the above milestones are met, operational implementation of the contract whereby CCCFPD will provide fire and emergency services to the City of Pinole to include the reopening of Station 74 is anticipated for late winter/early spring (March/April) of 2023.

ATTACHMENTS
A. Clean copy of contract for service agreement
B. Redline copy of agreement compared to version presented at 9/13/22 meeting C. CCCFPD/Pinole Plan for Service
D. Revised Fiscal Analysis reflecting the County’s commitment to providing $2 million annually of Measure X funding to subsidize CCCFPD’s service to Pinole E. Council Resolution 1) approving a contract for fire protection services with the CCCFPD; 2) authorizing CCCFPD to submit an application to the Contra Costa County LAFCo to provide fire protection services in Pinole; and 3) authorizing the City Manager to negotiate and execute other related documents necessary to implement the contract for services
F. Staff report and attachments from 9/13/22 meeting
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1 AGREEMENT
between the

CONTRA COSTA COUNTY FIRE PROTECTION DISTRICT
and the

CITY OF PINOLE
for Fire Protection Services
THIS FIRE PROTECTION AGREEMENT (“Agreement”) is dated January 1, 2023 (the “Effective Date”) and is between the CONTRA COSTA COUNTY FIRE PROTECTION DISTRICT, a fire protection district formed under the Fire Protection District Law of 1987 (Health and Safety Code Sections 13801 et seq.) and governed by the Board of Supervisors of the County of Contra Costa as its Board of Directors (“District”), and the CITY OF PINOLE (“City”), a municipal corporation, referred to herein collectively as the “Parties.”

RECITALS
A. The City desires to expand and supplement the current fire protection services provided within the City. Currently only one of the City’s two fire stations (Fire Station 73) is operational. Fire Station 74 has been closed since 2011.

B. The District is willing and able to provide a level of fire protection services within the City that would exceed current service levels. The Parties intend that the District will be paid for all direct and indirect costs incurred in the performance of services under this Agreement.

D. Because the City is not within the District service boundary, the Parties propose to enter into this fire protection agreement pursuant to Government Code section 56134. The Parties acknowledge that the services provided for in this Agreement may not commence unless and until the Contra Costa County Local Agency Formation Commission authorizes the District to provide the services contemplated herein.

E. Simultaneous with the execution of this Agreement, the City and the District are entering into two leases, one for Fire Station 73 and one for Fire Station 74 (each a “Lease” and together, the “Leases”) that set forth the terms under which the District will occupy the two stations during the term of this Agreement. The Leases and any amendments thereto are incorporated into this Agreement by reference.

AGREEMENT
In consideration of the mutual promises contained herein, the Parties agree as follows:

Section 1. Recitals.

The foregoing recitals are true and correct.

ATTACHMENT A
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2 Section 2. Definitions.

As used in this Agreement:
a. “Board of Directors” means the Contra Costa County Board of Supervisors acting as the Board of Directors of the Contra Costa County Fire Protection District and governing body of the District. b. “Board of Supervisors” means the Contra Costa County Board of Supervisors acting as the governing body of the County of Contra Costa.
c. “District” means the Contra Costa County Fire Protection District or any successor organization or successor governmental entity.
d. “City” means the City of Pinole.
e. “City Council” means the City Council of the City of Pinole. f. “City Manager” means the City Manager of the City of Pinole. g. “County” means the County of Contra Costa.
h. “Fire Chief” means the fire chief of the District.
i. “Fiscal Year” means the annual period commencing on July 1 and ending June 30. j. Fire specific terminology used in this agreement (e.g. Shift, Company, Quint, Engine, etc.) shall be used in a manner consistent with the definitions published by the National Fire Protection Agency (NFPA) on its website at https://www.nfpa.org/Codes-and-Standards/Resources/Glossary-ofTerms, as revised from time to time.

Section 3. Scope of Services.

Within the boundaries of the City, the District will provide and be fully responsible for the following services.
a. Incident Response.

1. General Service Criteria.

A. Response Area.

The District will provide the services identified below to the areas within the incorporated limits of the City, as shown on Exhibit 1.

B. Station Location/Staffing.

There are two fire stations located in the City. The stations will be staffed at a minimum as described below.
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3 Response Configuration
Fire Station 73
880 Tennent Avenue
Pinole, CA 94564
1 Engine Company 3 Personnel
Fire Station 74
3700 Pinole Valley Road
Pinole, CA 94564
1 Engine Company 3 Personnel
Within the City boundaries, the District will maintain a minimum staffing level of six (6) personnel, consisting of two threeperson companies per shift. Each company will consist of one Captain, one Engineer, and one Firefighter. Each company will be staffed at a minimum with one paramedic and two EMT-I trained personnel. In the absence of ranked positions, personnel working “out-of-class” (acting) will be used. A Type 1 Fire Engine shall be located at each of the two fire stations within the City’s boundaries throughout the year. In addition, from June through October, a Type VI Wildland Unit shall be located at each of the two fire stations within the City’s boundaries, except that a Type III Wildland Unit may be located at one of the fire stations in lieu of a Type VI Wildland Unit. The Fire Chief may substitute the required apparatus for other apparatus on a limited, temporary basis when necessary for maintenance or other operational needs.

If engine companies stationed in the City leave the City for automatic aid within the District’s Battalion 7 area (Pinole, El Sobrante, San Pablo, Hercules, and Rodeo), the District will arrange for appropriate back-up coverage to ensure that the City has adequate response capability. When companies stationed in the City leave the City for any planned (e.g., administrative or training) needs, the District will arrange for appropriate back-up coverage to ensure that the City has adequate response capability, with a minimum of one (1) Advanced Life Support (“ALS”) company.

The response configuration above will only be changed upon mutual agreement between the Fire Chief and City Manager.

C. Response Levels.

The District will respond to incidents consistent with the District standard alarm assignments with the same level of response it provides to other areas served by the District and in a manner consistent with approved Contra Costa Operational Area policies.

D. Response Time.

On a single fire unit Priority 1 or Priority 2 emergency medical response, the District will endeavor to arrive at the scene within eight minutes and 30 seconds or less from the time that the company is first dispatched for 90% of all incidents. In multiple unit fire incidents, the District will endeavor to have the first due company arrive at the scene of an emergency incident within eight minutes and 30 seconds or less from the time that the company is first dispatched for 90% of all such incidents. The District will endeavor to have the remaining District first alarm units arrive at the scene of the incident within 18 minutes or less from the time that the first due company is dispatched for 90% of all such incidents.

In the event that the District is unable to meet the above response times, the Fire Chief and the City Manager will confer regarding the District’s ability to meet the above response times. The Fire Chief and 28 of 955
4 the City Manager will discuss strategies to ensure such response times are met in the future.

Data on response times will be provided to the City Manager within 30 days of the end of the calendar quarter in which the responses occur. Data on response times will be reviewed on a quarterly basis as part of the scheduled meetings between the Parties.

E. Chief Officer Coverage.

The District will provide a Battalion Chief response for all first alarm fire and multiple apparatus incidents. For incidents of three alarms or greater, the District will also provide an Assistant Fire Chief (or greater rank) response and sufficient management staff to ensure appropriate management of the emergency.

F. Mutual Aid.

The District will continue to meet the District’s pre-existing obligations with respect to mutual aid in accordance with but not limited to the Contra Costa County Fire Mutual Aid Plan, and all appropriate State of California interagency service agreements. The parties anticipate that the resulting mutual aid provided within the City will be equivalent to, or greater than, mutual aid provided to the City immediately prior to the Commencement Date. The District will work to develop expanded mutual aid, automatic aid, and mutual response areas with other fire departments adjacent to the City. The Parties acknowledge that the District has no obligation to independently meet the City’s mutual aid obligations, if any, while performing services under this Agreement. The City shall notify its mutual aid partners that the City will not directly provide mutual aid during the term of this Agreement.

2. Fire Suppression.

Fire Suppression services will be provided in accordance with Section 3(a)(l) above, as applicable.

3. Emergency Medical Response.

Emergency Medical Response Service will be provided in accordance with Section 3(a)(l) above, as applicable and except as otherwise provided in this Section 3(a)(3).

However, if the Contra Costa County EMS Agency pays any such revenues directly to the District due to the District’s fulfillment of the City’s obligations, those revenues paid directly to the District will be credited to the City as if payment had been made by the City to the District for the performance of services under this Agreement.

4. Hazardous Materials Response.

Response to Hazardous Material incidents will be in accordance with the provisions of Section 3(a)(l) above, as applicable and except as otherwise provided in this Section 3(a)(4). 29 of 955
5 The District will provide a Type II (as defined by FIRESCOPE) Hazardous Materials Team level of service to the City.

The District will provide trained personnel to perform hazardous materials operations when required in the City. These positions are staffed and equipped each day. Response time to the City will be the time necessary for notification and travel of the closest available District resource that meets the needs of the emergency incident.

5. Rescue Services.

The District will provide the City with rescue services in accordance with the provisions of Section 3(a)(l) above, as applicable and except as otherwise provided in this Section 3(a)(5).

The District will provide Type II (as defined by FIRESCOPE) rescue services to the City. This service is available as needed.

The District will provide trained Urban Search and Rescue Team (USAR) personnel to perform confined space and trench rescue operation when required in the City. These positions are staffed and equipped each day. Response time to the City will be the time necessary for notification and travel of the closest available District resource that meets the needs of the emergency incident.

6. Response to Mass Casualty Incidents.

The District will respond to mass casualty incidents in the City with the same level of response it provides to other areas served by the District.

7. Other Calls for Service.

The District will respond to all other calls for services, including, but not limited to fire alarms, hazardous conditions, flooding conditions, smoke investigations, and public service calls, in accordance with the provisions of Section 3(a)(l) above, as applicable.

8. Homeland Security.

The District will represent the City, and proactively participate on its behalf, in the planning, coordination, and development of programs to address homeland security threats. The District will maintain a state of awareness and readiness to respond to incidents related to homeland security within the City.

9. Major Disaster Response.

In the event of a major disaster, the District will supplement the fire personnel assigned to the City by providing additional resources for direct response to an incident or move-up coverage from District stations outside of the City provided that supplemental resources are available.

Upon activation of the City’s Emergency Operations Center (“EOC”), the District will provide sufficient staff to operate assigned functions in the EOC. Release of personnel and resources may occur after evaluation of local conditions and upon mutual agreement by the City Manager and the Fire Chief.

The District will work cooperatively with the City to participate in the development and 30 of 955
6 implementation of the Emergency Operations Plan (“EOP”) by ensuring that it is reviewed, revised and updated as necessary, and exercised regularly. The District will recommend to the City plan updates to the EOP pertaining to fire, rescue, and emergency medical services issues.

The District will continue to participate in local or regional organizations necessary to ensure the City is represented in disaster preparedness and response.

10. Evacuation Coordination.

The District will coordinate with the Pinole Police Department for all evacuations in a manner consistent with standardized and unified incident command principles and procedures. b. Dispatch Service.

The District manages the Contra Costa Regional Fire Communication Center which supplies fire and ambulance dispatch services to various areas in the County, including to the City, on a cost reimbursement basis. The City will continue to pay its proportionate share of annual dispatch-related fees and charges (“Communication Center Allocation”), which is billed annually and will be included as part of the annual fiscal year budget proposal pursuant to Section 5(a)(1). The City’s obligation to pay its proportionate share of annual dispatch-related fees and charges is not co-terminus with this Agreement and survives termination of this Agreement.
c. Community Education.

1. Fire Safety Programs.

To help preserve life and property, the District will coordinate the planning, development, and implementation of fire prevention and safety education training programs, which will be tailored to educate City residents and other members of the Pinole community, such as schools, businesses, community associations, and childcare providers. Fire prevention and safety training programs to be provided by the District will include the following programs, with such changes and adjustments as mutually agreed to by the Fire Chief and the City Manager.

Carbon Monoxide Alarm installations
CERT Fire training
CPR courses, BP checks
Eldercare and safety
Elementary School Fire Safety Programs
Exit Drills in the Home (EDITH)
Fire extinguisher use
Fire safety
Firewise Communities
Injury and fall prevention
Juvenile fire-starter program
Smoke alarm installations
Wildland fire and evacuation preparedness

2. CPR Training.

The District will provide opportunities for CPR training to members of the Pinole community at no 31 of 955
7 charge to the participant. This training will be provided within the boundaries of the City.

3. Community Emergency Response Team (CERT) Training.

The District will work with City departments to offer fire-based Community Emergency Response Team training to members of the Pinole community. The District and the City will work together to ensure the training complements the City’s current disaster preparedness programs.

4. Miscellaneous.

The District will respond to specific requests from the Pinole community including but not limited to fire station tours and ride-alongs.
d. Fire Prevention.

1. General.

The District, through its Fire Prevention Bureau, will provide fire prevention services consistent with the level of prevention services provided to other areas served by the District.

2. Fire Prevention Staffing.

The District will provide Fire Prevention Bureau staff to conduct annual state-mandated occupancy inspections and Fire Code enforcement. The City and District will coordinate the District’s Fire Code enforcement activities with the City’s code enforcement activities, subject to any procedures mutually agreed upon by the City and District. Additional staff may be provided as necessary as determined by the District to review plans for new construction and inspect new construction.

3. Pre-development/Preliminary Planning.

The Fire Prevention Bureau will provide pre-development planning services. Pre-development planning will include but not be limited to the following activities:

A. Adherence to the pre-development/preliminary planning project review process established by the City’s Community Development Department and as may be modified at the City’s discretion.

B. Preparation of written comments based upon development/construction submittals made to the City.

C. Attendance (in person or virtually) at scheduled meetings with applicants as reasonably requested by the City.

D. Participation (in person or virtually) in requested modifications to the City’s predevelopment/preliminary planning process as reasonably requested by the City.

E. Attendance (in person or virtually) at development review meetings as reasonably requested by the City.
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8 4. Plan Submittal Review.

The District will review and provide comments on proposed construction plans and fire protection system plans to ensure compliance with the City’s adopted codes and applicable standards. Applications and plans shall be submitted by the applicant directly to the Fire District’s Fire Prevention Bureau at 4005 Port Chicago Highway, Suite 250, Concord. Written comments, in a format consistent with District policies and procedures, will be attached to approved plans to inform applicants of District requirements.

District review of submitted plans will be completed within the timelines established by the City and the District, provided the review can be performed with the staffing levels provided by this Agreement.

The City and District will establish mutually agreed upon procedures for accepting and reviewing plan submittals. In establishing such procedures, the Parties will determine timelines for review and strive to make the process as easy as possible for applicants, including by providing an option for applicants to submit applications and plans at City Hall (in which case the City and District will determine how to transfer such application and plans to the District for review). The Parties agree that, initially, the City will require applicants to submit one full set of plans in hard-copy for the District’s review. The Parties agree to cooperate on fully accepting the electronic submission of plans as well as the use of electronic review and commenting platforms, but acknowledge that a transition period will be necessary before this will be feasible. The City and District share the common goal of full integration of District and City plan review and permitting processes.

The City’s current practice is to meet with applicant when plan check process extends beyond three reviews. As reasonably requested by the City, the District will attend (virtually or in person) meetings with applicants to discuss plan check comments when the plan check process extends beyond three revisions.

5. Fire Inspections.

The District will provide inspection and permit issuance services in accordance with the City’s adopted Fire Code. All inspections will be conducted by qualified personnel. The City and District will agree upon policies and procedures for the conduct and tracking of inspections and permits, with the goal of eventually transitioning to the use of an electronic permitting and tracking system, consistent with the parties’ goals of making the process as streamlined as possible for applicants.

A. General Inspections. In accordance with the City’s adopted Fire Code, the District personnel will perform fire inspections relating to each of the following:
i. The hazard of fire and explosion arising from the storage, handling, or use of structures, materials, or devices.
ii. Conditions hazardous to life, property, or public welfare in the occupancy of structures or premises.
iii. Fire hazards in the structure or on the premises from occupancy or operation.
iv. Matters related to the construction, extension, repair, alteration, or removal of fire suppression or alarm systems.

B. Fire Protection System Inspections. As part of the City’s permitting process, 33 of 955
9 District personnel will inspect fire protection system installations approved for permit by the District to verify compliance with the approved plans and applicable codes and standards.

C. Mandated Inspections. District personnel will conduct inspections of those occupancies mandated by the California Office of the State Fire Marshal.

D. Construction Permit Inspections. District personnel will perform fire inspections for any required construction permit issued in accordance with the City’s adopted Fire Code.

E. Operational Permit Inspections. District personnel will perform fire inspections for any required operational permit prior to initial issuance in accordance with the City’s adopted Fire Code. Operational permit inspections will be completed based on the current District inspection schedule for non-State mandated occupancies.

F. Business License Fire Inspection Program. Following a request by the City, the District will conduct business inspections for fire code compliance.

6. Pre-fire Plan Inspections for Target Hazard Occupancies.

The District will perform pre-fire plan inspections for relevant target hazard occupancies. Results of the inspections will be shared with other City departments as requested.

7. Fire Code Administration.

A. The District will administer and enforce City’s adopted Fire Code, and applicable ordinances, and applicable state and federal codes and regulations.

B. The District will monitor changes to fire codes and provide the City with recommendations regarding proposed changes. The District’s Fire Marshal will work with City Staff to complete the code adoption process.

8. Weed Abatement and Wildfire Management.

A. Weed Abatement Enforcement. The City will continue to provide weed abatement through its Code Enforcement Division. The District will assist in administering fire prevention related aspects of the City’s weed abatement program including inspection of those parcels potentially needing abatement, but the District is not responsible for conducting abatement of hazard parcels. The District will provide the City with information and supporting documentation, as requested and necessary, relating to any parcels that require additional enforcement and abatement. All work and abatement orders will be initiated and completed by the City for weed abatement issues.

B. Wildfire Mitigation Project. The City and the District will coordinate regarding wildfire mitigation projects that are not directly related to weed abatement issues, but the District is not responsible for conducting abatement of hazard parcels.

Additionally, when applicable, the City and the District will coordinate in the preparation and submittal of grant funding applications relating to wildfire 34 of 955
10 mitigation and in developing processes to prioritize and initiate wildfire mitigation projects.

9. Fire Investigation Service.

District fire investigators will be assigned to determine the cause of every major fire (2nd or 3rd Alarm), or where an injury or fire fatality occurs as a result of a fire incident within the City, and will conduct an investigation of every incident in which there is knowledge or suspicion that the crime of arson may have been committed. The District will attempt to determine the cause of all fires within the City as required by the Fire Code. District fire investigators will work with the Pinole Police Department and any other appropriate law enforcement agencies in the investigation process, as needed. e. Administration.

1. Contract Administration.

The District designates the Fire Chief, or the Fire Chief’s designated representative, to represent the District in all matters pertaining to the administration of this Agreement.

The City designates the City Manager, or the City Manager’s designated representative, to represent the City in all matters pertaining to the administration of this Agreement.

The Parties desire to work cooperatively to ensure that the City receives cost effective services.

Accordingly, the Parties desire to set forth a process for reaching agreement on mutually acceptable alterations to service delivery standards and material changes to the budget.

The District will formally notify the City prior to a service delivery change. The notification will provide adequate time for the City to provide comment, express concerns, and to allow for agreement on the aforementioned changes and modifications. Except for temporary changes lasting fewer than ten (10) days, the District will obtain written approval from the City prior to making a service delivery change. Any changes to the staffing levels per company or fire stations identified in Section 3(a)(l)(B) are modifications to the Agreement subject to Section 9(j).

2. Fire Chief Designation.

The Fire Chief is hereby designated by the City as the City of Pinole Fire Chief and will have and possess such authority as the City Municipal Code and general laws provide for the City’s Fire Chief.

3. Liaison to City.

A. The District designates the Fire Chief or designee (at no time below the rank of Assistant Fire Chief) as the direct liaison to the City Manager. Liaison responsibilities will include but are not limited to:
i. Attendance by the Fire Chief or designee at City Council meetings when requested by the City Manager upon reasonable advance notice; and ii. Meetings with the City Manager as requested by either the Fire Chief or City Manager to discuss budget, operational, or other issues which may arise.
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11 B. The District will promptly notify the City Manager when any of the following significant incidents occur within the City.
i. Incidents involving deaths or serious injuries to citizens or first responders.
ii. Mass casualty incidents involving more than six patients. iii. Second-alarm, and better, structure fires.
iv. Structure fires resulting in displacement of multiple residents. v. Third-alarm wildland fires, or any wildland fires utilizing air support resources.
vi. Hazardous materials incidents requiring entry.
vii. Incidents with significant impacts on residents based on size, scope, or duration.
viii. Any incident that has attracted, or is expected to attract, significant media attention.

4. Community Events.

As reasonably requested by the City Manager, the District will participate in the planning and implementation of community activities, such as local fireworks celebration, tree lighting ceremonies, Chamber of Commerce functions, and similar events, to address fire safety issues.

5. Reports and Records.

A. The District will maintain sufficient records to enable the City to meet its reporting obligations and needs as they relate to the provision of services as provided for in this Agreement, including but not limited to the District’s obligation to provide quarterly reports on response times. The records maintained by the District will also include: (i) the total number of calls for service responded to by each of Fire Station 73 and 74; (ii) the number of calls for service responded to by each of Fire Station 73 and 74 for incidents occurring outside of the City; and (iii) the number of calls for service responded to by the District from locations other than Fire Stations 73 or 74 for incidents occurring within the City.

B. The District will maintain financial records related to the performance of services under this contract.

C. The District will provide the City Manager with financial reports reasonably requested by the City Manager.

D. Upon request by the City Manager, the District will make available its records related to services performed under this Agreement for audit and inspection by the 36 of 955
12 City Manager, or the City Manager’s designated representative.

E. Upon request, the District shall provide the City with copies of any records related to this Agreement that are subject to disclosure pursuant to the California Public Records Act.

F. The District will conduct or have conducted a yearly independent audit of the District’s overall financial performance. The District will provide the audit reports to the City Manager within 30 days of publication. The District will provide any financial information required by the Governmental Accounting Standards Board for the City’s financial reporting that is in the District’s possession or control.

6. Fire Complaints and Requests for Service.

A. The District will inform the City Manager of any and all complaints received by the District regarding the services provided to the City by the District.

B. The District will strive to provide a high level of customer service to the City in accordance with the District and the City’s customer service philosophies.

7. Fire System Planning.

A. The Fire Chief will assist the City in planning the extension of fire services and facilities as the City grows.

B. If, as a result of annexation of territory, the City requires additional contract services to provide fire and emergency services to areas not currently served by the City through its contract with the District, the Fire Chief and the City Manager may negotiate a mutually acceptable amendment to this Agreement to provide such services. Any amendment to this Agreement will become effective upon its approval by the governing bodies of the District and the City.

C. This paragraph does not apply to those services provided under mutual aid, automatic, and/or other interagency response agreements.

8. Fees.

A. The District will assist the City in the development of an appropriate fee schedule for fire services rendered in the City by the District. The District will provide the documentation necessary to support the imposition of fees by the City.

B. All fees attributable to the services provided by the District under this Agreement shall accrue to and are the property of the District. Nothing herein shall limit the City’s ability to charge fees attributable to services provided by the City.

C. Any fees collected by the City for services performed by the District will be accounted for by the City and remitted to the District.

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13 9. Miscellaneous Revenue Collection.

A. The District will endeavor to implement a program consistent with District policy for seeking reimbursement for the cost of the District’s response to accidents or other events. Any cost reimbursements received by the District for incidents occurring within the City will be credited to the City as if payment had been made by the City to the District for the performance of services under this Agreement.

B. The District will use reasonable efforts to obtain grants for one-time and ongoing capital and operational expenditures.

Section 4. Facilities, Apparatus, and Equipment.
a. Buildings and Real Property.

1. Use of Pinole Fire Station Nos. 73 and 74.

The City will provide the District use of the City-owned fire stations described as Fire Station 73, 880 Tennent Avenue, Pinole, CA 94564, and Fire Station 74, 3700 Pinole Valley Road, Pinole, CA 94564, for performance of services under this Agreement. The City will provide the District use of these facilities at no cost to the District. Responsibility for maintenance of the buildings and grounds are as set forth in the Leases.

To the extent there is a conflict between this Agreement and the Leases concerning the use and maintenance of Fire Stations Nos. 73 and 74, the terms of the Leases shall control. In all other respects, the terms of this Agreement shall control

2. Office Space.

Fire Station 73 includes office space for use by District fire inspectors. In accordance with the Lease for Fire Station 73, the City will provide the District use of these facilities at no cost to the District.

3. Return Upon Termination.

Upon termination of this Agreement, the District will vacate Fire Station Nos. 73 and 74, and will remove any and all materials, equipment, and improvements that are not to remain on the premises as set forth in the Leases.
b. Apparatus/Equipment.

1. Transfer of Apparatus and Equipment.

The City will transfer to the District ownership of the apparatus and equipment identified in Exhibit 2 (City Fire Apparatus/Equipment Inventory) in consideration of the District’s performance of services under the terms of this Agreement. The District will be responsible for maintaining registration and licensing of all transferred apparatus and equipment.

2. Maintenance.

The District will be responsible for maintenance and repair of all apparatus and equipment. The 38 of 955
14 City will pay the District a fee, fixed annually and specified in the budget approved pursuant to Section 5 (Cost of Services), for the costs of maintenance and repair of apparatus and equipment utilized in the performance of services under this Agreement.

3. Reserve Apparatus.

The District will provide a reserve apparatus that will be placed in service as soon as possible if a frontline apparatus is to be out of service for an extended period of time.

4. Apparatus and Equipment Replacement.

The timing of apparatus and equipment replacement shall be determined by the District, consistent with the District’s standard equipment and apparatus replacement practices and schedules. The District will submit a proposed apparatus replacement schedule to the City indicating the anticipated dates for replacement of major pieces of apparatus. The District will provide the City with advanced notice regarding the need to replace apparatus and equipment.

The City will pay the District a fee, fixed annually and specified in the budget approved pursuant to Section 5 (Cost of Services), for the costs to replace apparatus and equipment utilized in the performance of services under this Agreement. The District will use reasonable, good faith efforts to submit applications on behalf of the City for grants to defray the replacement cost for apparatus and major equipment utilized in the performance of services under this Agreement.

5. Return Upon Termination.

Upon termination of this Agreement, the District will return to the City the apparatus and equipment identified in Exhibit 2 (City Fire Apparatus/Equipment Inventory) that was transferred to the District pursuant to Section 4(b)(1) if the apparatus and equipment are fit for service. The Parties acknowledge their mutual intent that the District return to the City, if necessary, the same equipment and apparatus that was transferred to the District pursuant to Section 4(b)(1), and that some or all of the equipment or apparatus may no longer be fit for service at the time of return. If some or all of the equipment or apparatus are no longer fit or service or are otherwise not able to be returned to the City, the District will endeavor to lease to the City such apparatus and equipment necessary for the City to conduct fire protection activities within the City, for a reasonable period of time and upon terms agreeable to both parties, until the City has procured replacement apparatus and equipment. The Parties will identify the specific apparatus and equipment to be returned or leased to the City in the transition plan to be developed pursuant to Section 9(b).

6. New Equipment.

The District may purchase new equipment as necessary in order to maintain adequate service levels and to ensure safe working conditions. The City will pay the District a fee, fixed annually and specified in the budget adopted pursuant to Section 5 (Cost of Services), for the costs to purchase new equipment related to the performance of services under this Agreement
///
///
///
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15 Section 5. Cost of Services.
a. Fire Budget.

1. Operating Budget.

For purposes of budgeting and billing for both the direct and indirect cost of services to be provided under this Agreement, the Fire Chief will annually prepare and submit a proposed budget for the succeeding fiscal year, as well as an updated 5-year cost projection, to the City Manager by January 15th. Prior to preparation of the proposed budget, the Fire Chief and City Manager, or their designees, shall meet to discuss factors potentially affecting the budget necessary to cover costs for the upcoming fiscal year.

Budgeted costs include but are not limited to those costs listed in Exhibit 3. Excluding labor-related costs (for example, employee salaries and benefits), if a proposed budget exceeds the approved budget from the immediately preceding fiscal year by more than 5%, the Fire Chief and City Manager will meet and confer in an attempt to identify potential cost savings and/or increases in revenue. The Fire Chief and City Manager will use their best efforts to, by March 1 of the same year, agree on a recommended budget that will be recommended for approval by their respective governing bodies.

If the City Manager and Fire Chief are unable to reach agreement concerning a recommended budget or the recommended budget is reduced to provide specified cost savings or the City does not approve the budget jointly recommended by the Fire Chief and the City Manager, the Parties acknowledge that services provided under this Agreement may be reduced accordingly.

For the term of this Agreement, the District has provided a 5-year cost projection as shown in Exhibit 4 (5-Year Cost Projection Provided by the District). The City acknowledges that Exhibit 4 contains projected costs, and that while the District will make good faith efforts to provide annual budgets in accordance with these projections, the amounts set forth in the annual budgets will differ from the 5-year cost projection.

The annual fire budget for Fiscal Year 2022/23, the first fiscal year during which services are provided under this Agreement, is attached as Exhibit 5. The Parties approve the attached Fiscal Year 2022/23 budget upon approval of this Agreement. Payments by the City pursuant to the Fiscal Year 2022/23 budget, and any Offsetting Revenues (as defined below) for Fiscal Year 2022/23, will be appropriately prorated based on the Commencement Date.

2. Offsetting Revenues.

A. The budget will reflect known revenues, other than those due and payable by City, that will be paid directly to the District and credited to the City as if payment had been made by the City to the District for the performance of services under this Agreement (each an “Offsetting Revenue” and together, “Offsetting Revenues”).

Offsetting Revenues may include but are not limited to grant funds obtained by the District on behalf of the City, revenues paid by the EMS Agency directly to the District due to the District’s fulfillment of the City’s obligations under the First Responder Agreements, and Measure X funds allocated by the Board of Supervisors.

B. The Parties acknowledge that by Resolution No. 2022/332, attached as Exhibit 7, the Board of Supervisors has allocated from Measure X funds $2,000,000 annually 40 of 955
16 through Fiscal Year 2027/28 to increase the level of fire protection services in the City. As provided in Resolution No. 2022/332, the Measure X allocation will be adjusted annually beginning in Fiscal Year 2023/24 by the percentage change in the Consumer Price Index-All Urban Consumers for the San Francisco-OaklandHayward Area for the twelve-month period ending with the February index of the calendar year in which the adjustment is made, but not to exceed 4 percent per year. The Parties also acknowledge that the continued allocation of funds by the Board of Supervisors is critical to the maintenance of service levels provided for in this Agreement. The Parties will utilize each annual allocation of $2,000,000, as adjusted, as an Offsetting Revenue under this Agreement.

3. Capital Requirements.

These recommendations will be submitted along with the annual fire budget and will be reflected in the recommended budget, as necessary.

4. Management of Budget.

A. If during the fiscal year, the Fire Chief believes in good faith that due to unanticipated circumstances the approved fire budget is insufficient in any respect to ensure the provision of service at the service levels required by this Agreement, the Fire Chief will immediately notify the City Manager in writing specifying the budgetary deficiency, along with a request for a budget modification that identifies all reasons for the proposed modification. “Unanticipated circumstances” means circumstances that the Fire Chief was not aware of prior to the District’s approval of the fire budget; it does not include cost overruns that could reasonably have been anticipated or planned for.

B. The District will obtain written approval from the City, which will require authorization from the City Council, prior to making a modification to the budget approved by the City. If the budget modification is not approved by City, then the Parties acknowledge that there may be a decrease in service levels commensurate with the deficiency identified in the budget modification request.

C. Notwithstanding Sections 5(a)(4)(A) and (B) above, where new labor agreements are approved by the District Board of Directors that result in an increase to laborrelated costs under this Agreement, the budget shall be deemed modified to account for such cost increases upon 5 days’ written notice from the District to the City of such new labor agreements and associated budget modification, and without further approval by the City.

D. The Fire Chief shall notify the City Manager of matters pertaining to labor relations between the District and its recognized employee organizations, when the matters and the resolution of them will affect the service levels to the City or the City’s costs pursuant to this Agreement.
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17 b. Payment for Services.

1. City Payment.

A. The City will pay to the District the approved budget amount in consideration for the District providing any and all services to the City under this Agreement. Budget modifications are subject to Section 5(a)(4).

2. Method of Billing and Payment.

A. The City will pay the District monthly in advance within 30 calendar days of receipt of the monthly invoice. The monthly invoice amount will be equal to the difference of the annual fire budget and the sum of Offsetting Revenues and the Communication Center Allocation, divided by 12, plus any Budget Modification Prorations. A “Budget Modification Proration” is calculated by dividing a budget modification made pursuant to Section 5(a)(4) by the number of months remaining in a fiscal year at the time the budget modification is made. Budget modifications that occur mid-fiscal year will result in post-modification monthly invoice amounts that differ from pre-modification monthly invoice amounts.

The Parties acknowledge that development within the City may necessitate new or additional apparatus and equipment to enable the District to provide the fire protection services under this Agreement.

The Parties also acknowledge that the City and developers, but not the District, should bear the costs of new or additional apparatus and equipment required due to development within the City. In the event that the Fire Chief determines that development within the City is likely to require new or additional apparatus or equipment, including, for example, a ladder truck, the Fire Chief shall notify the City Manager. The Parties will meet and confer as provided for in Sections 3(e)(l) and 5(a)(3) to discuss planned and prospective development within the City, the associated impacts to the services provided under this Agreement, and the options for funding of any changes to services or the need for new or additional equipment or apparatus. The City currently collects Fire Development Impact Fees on new development in the City, and will make such fees available to address capital improvement and apparatus needs as development within the City occurs. Regardless of the availability of Fire Development Impact Fees, the City will remain responsible for paying the above-described costs associated with development within the City.

Section 6. Personnel.
a. The Parties anticipate that as a result of this Agreement and the District’s provision of fire protection services to the City, some or all of the persons identified in Exhibit 6 (City of Pinole List of Fire Department Employees) may elect to leave City employment to become District employees. b. Except through payments made pursuant to Section 5 (Cost of Services), the City is not responsible for paying salaries, wages, or other compensation to District personnel performing services under this 42 of 955
18 Agreement for the City, nor is the City liable for any District retirement obligation or other postemployment benefit to any District employee arising out of their employment with the District. The City is not liable for compensation or indemnity to any District employee for injury or sickness arising out of their employment with the District, except as part of the City’s payment of indirect expenditures and Risk Management costs to the District and as otherwise provided in this Agreement. This Section does not negate any of the City’s obligations pursuant to Section 5 (Cost of Services) above. c. The District is not liable for compensation or indemnity to any District employee for injury or sickness arising out of their employment with the City. The District is not liable for any City retirement obligation or other post-employment benefit to any District employee arising out of their employment with the City.

Section 7. Indemnification.
a. Indemnification by the City.

The City shall defend, indemnify, and hold harmless the District, its governing body, officers, employees, representative, and agents from any and all demands, losses, claims, costs, suits, liabilities, and expenses for any damage, death, or injury to persons or property from any cause whatsoever arising directly or indirectly from or connected with any act or omission of or purported act or omission of the City, its governing body, officers, employees, representative, or agents in connection with or arising out of the performance by the City, its governing body, officers, employees, representative, or agents of this Agreement, and with regard to any alleged illegality or unconstitutionality of a City ordinance. The City shall reimburse the District for any expenditures, including reasonable attorney’s fees and costs, the District may make by reason of such matters and, if requested by the District, shall defend any such suit at the sole cost and expense of the City. The City’s obligations under this subsection shall exist regardless of concurrent negligence or willful misconduct on the part of the District or any other person; provided, however, that the City shall not be required to indemnify the District for the proportion of liability a court determines is attributable to the negligence or willful misconduct of the District, its governing body, officers, employees, representative, or agents.

The District agrees to give the City prompt written notice of any claims or other matter as to which the District believes this indemnification provision is applicable. The City will, at its sole cost and expense, provide counsel reasonably acceptable to the District, to contest or defend any such claim. Neither party, nor their successors or assigns, shall admit any liability to any matter for which indemnification is sought, or settle, compromise, pay, or discharge the same without the prior written consent of the other party, which shall not be unreasonably withheld or delayed, and the District shall reasonably cooperate with the City in the contest and defense thereof.
b. Indemnification by the District.

The District shall defend, indemnify, and hold harmless the City, its governing body, officers, employees, representative, and agents from any and all demands, losses, claims, costs, suits, liabilities, and expenses for any damage, death, or injury to persons or property from any cause whatsoever arising directly or indirectly from or connected with any act or omission of or purported act or omission of the District, its governing body, officers, employees, representative, or agents in connection with or arising out of the performance by the District, its governing body, officers, employees, representative, or agents of this Agreement. The District shall reimburse the City for any expenditures, including reasonable attorney’s fees and costs, the City may make by reason of such matters and, if requested by the City, shall defend any such suit at the sole cost and expense of the District. the District’s obligations under this subsection shall 43 of 955
19 exist regardless of concurrent negligence or willful misconduct on the part of the City or any other person; provided, however, that the District shall not be required to indemnify the City for the proportion of liability a court determines is attributable to the negligence or willful misconduct of the City, its governing body, officers, employees, representative, or agents.

The City agrees to give the District prompt written notice of any claims or other matter as to which the City believes this indemnification provision is applicable. The District will, at its sole cost and expense, provide counsel reasonably acceptable to the City, to contest or defend any such claim. Neither party, nor their successors or assigns, shall admit any liability to any matter for which indemnification is sought, or settle, compromise, pay, or discharge the same without the prior written consent of the other party, which shall not be unreasonably withheld or delayed, and the City shall reasonably cooperate with the District in the contest and defense thereof.
c. Indemnification Obligations Survive Termination.

The obligations created by this Section 7 shall survive the expiration or termination of this Agreement as to activities occurring or being carried out during the term of this Agreement in the performance of this Agreement.

Section 8. Insurance.
a. General and Auto Liability.

The District will maintain general and auto liability insurance, including bodily injury and property damage, with a single combined liability limit of not less than $10 million insuring all liability of the District and its authorized representatives arising out of and in connection with the provision of service by the District under this Agreement, including the use and/or occupancy of City-owned real property and premises.

The City will be named as an additional insured and the policy must contain cross liability endorsements. An endorsement must be provided which states that the District’s insurance coverage shall be primary. The District may self-insure to these limits of coverage. The District will furnish the City with original certificates and amendatory endorsements effecting coverage required by this clause. The District will provide complete certified copies of all required insurance policies, including endorsements effecting the coverage required by these specifications, to the City upon request. b. Property Insurance.

The District will not maintain any insurance for City-owned real property and buildings, including but not limited to City-owned fire stations, or the contents of the City-owned buildings, except as otherwise specified in this Agreement or in the Leases. The District will maintain a standard All Risk policy to ensure its own personal property.
c. Workers’ Compensation Insurance.

The District will maintain Workers’ Compensation Insurance as required by the State of California in Employers Liability Insurance. Employers Liability Insurance shall have limits of no less than $1 million per accident for bodily injury or disease. The District may self-insure to the limits of coverage. The District will provide the City with a waiver of subrogation against the City, its officers, officials, employees, and volunteers for all claims on or after the Commencement Date arising during the term of this Agreement. 44 of 955
20 d. Workers’ Compensation Claims for Employees in Exhibit 6.

1. The City is fully responsible for all Workers’ Compensation claims with date of injury prior to the Commencement Date, with respect to the persons identified in Exhibit 6 (City of Pinole List of Fire Department Employees). The City will administer the claims and is solely liable for all administration and settlement costs. The City is also responsible for claims that are incurred prior to the Commencement Date AND that are:

A. Reopened;
B. Incurred but not reported;
C. Submitted for new and further disability; or
D. Incurred subsequently and consequently to the original claim

2. The District is responsible for Workers Compensation claims of District employees that are not the responsibility of the City pursuant to paragraph 1 above or another entity. The District will administer the claims and is solely liable for all administration and settlement costs.

3. The District will administer cumulative trauma claims that span the City and the District; however, the District will, immediately upon receipt of a cumulative trauma claim, send a copy of said claim to the City. The Parties will meet and confer prior to the District taking any action on the claim, unless the District is required to take immediate action or circumstances do not allow adequate time to meet and confer, in which case the District will notify the City as soon as possible. The cost of administration and settlement shall be pro-rated between the District and the City based on the length of services for each employer. Should the claim involve prior employers, the City will be responsible for the service time. The City and the District agree to cooperate with each other in the administration of the claims that involve both Parties, including any decisions or determinations regarding industrial disability retirement. This includes, but is not limited to, the sharing of notes, reports, and other documents. The City will have the right to review and contest any determination of a recurrence of a prior injury. In the event that an agreement cannot be reached, the City and the District will accept the Worker’s Compensation Appeals Board decision as the final decision and without further appeal rights on this limited issue.
e. Industrial Disability Retirement.

The City will be solely responsible for making the determination of industrial disability retirement for CalPERS retirement application for the employees listed in Exhibit 6.

Section 9. Miscellaneous.
a. Term and Extension by Mutual Agreement; Commencement of Services.

This Agreement will commence at 12:01 a.m. on the Effective Date, and will continue until 11:59 p.m. on June 30, 2028, unless extended as mutually agreed upon in writing by both Parties in accordance with the provisions herein. The District will commence services provided for under this Agreement on a date (“Commencement Date”) mutually agreed upon and authorized in writing by the Parties, which authorization may be given by the Fire Chief for the District and the City Manager for the City. In order to provide notice to the affected employee organization, the Parties will endeavor to mutually agree upon 45 of 955
21 and authorize a Commencement Date at least 30 days prior to the Commencement Date. Prior to the Commencement Date, the District and City will jointly participate in a mutually agreed upon communications effort to educate the public about the transition of fire services.

The term of this Agreement and the term of the Leases may be extended for one 5-year term by mutual written agreement of the Parties executed by the Fire Chief and by the City Manager for City. Unless otherwise agreed by the Parties, the extension agreement must be fully executed at least 12 months prior to the then-effective termination date.

The City and the District agree to jointly prepare a review and analysis of services provided to the City by March 31, 2027. The District will prepare an updated 5-year cost projection, for the purpose of inclusion in an extension agreement, if any such extension agreement is agreed to and executed by the Parties.
b. Termination.

Notwithstanding Section 9(a) above, this Agreement may be unilaterally terminated by either party by giving 12 months’ written notice of termination to the other party. The contract termination date specified in the notice of termination may be extended by mutual agreement. The Parties acknowledge that the termination of this Agreement would require extensive operational adjustments for both Parties. The Parties further acknowledge that any fire service interruption would result in risks to public welfare. Within 60 days of a notice of termination by either party, the Parties will coordinate to develop a transition plan.

The transition plan will include specific implementation deadlines, including any modification to the contract termination date, and will address matters including but not limited to service levels during the transition period and the return or lease of apparatus and equipment by the District to the City.

The Parties will meet and confer in good faith regarding any dispute between the Parties over the implementation of any provisions in this Section 9(b). Any dispute that is not resolved by meeting and conferring will be submitted to non-binding mediation conducted by a JAMS mediator. The Parties agree to meet and confer as soon as practically possible regarding the selection of the mediator and, if possible, agree to mediate the dispute within 45 calendar days. However, nothing in this provision shall be construed so as to delay any of the time periods above, including the development of a transition plan and implementation thereof.
c. Notices.

All notices required or permitted hereunder will be deemed sufficiently given if delivered by hand or mailed, by United States mail, postage prepaid, certified or registered mail, addressed to the Parties at the addresses set forth below or to such other address as may from time to time be designated in writing.

To DISTRICT:

Contra Costa County Fire Protection District
Attn: Fire Chief
4005 Port Chicago Highway, Suite 250,
Concord, CA 94520
With a copy to:

Contra Costa County
Public Works Department
Attn: Principal Real Property Agent
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22 40 Muir Road
Martinez, CA 94553
To CITY:

City of Pinole
Attn: City Manager
2131 Pear Street
Pinole, CA 94564
d. Further Obligations.

The Parties recognize that this Agreement cannot represent a complete expression of all issues that may arise during the performance of the Agreement. Accordingly, the District and City agree to meet and confer in good faith over any issue not expressly described herein. e. No Assignment.

Neither party may assign, delegate, sell, mortgage, hypothecate, or otherwise transfer their respective interests or obligations in this Agreement without the express prior written consent of the nontransferring party. f. Exhibits.

All exhibits referred to herein are attached hereto and are, by this reference, incorporated herein.

Exhibits to this Agreement include:

Exhibit 1: Service Area Map
Exhibit 2: City Fire Apparatus/Equipment Inventory
Exhibit 3: List of Budgeted Costs
Exhibit 4: 5-Year Cost Projection Provided by the District Exhibit 5: Fiscal Year 2022/23 Fire Budget
Exhibit 6: City of Pinole List of Fire Department Employees Exhibit 7: Contra Costa County Board of Supervisors Resolution No. 2022/332 g. Severability.

If any provision of this Agreement (including without limitation any phrase, provision, covenant, or condition) is found to be invalid or unenforceable by a court of competent jurisdiction, the remainder of this Agreement shall continue in full force and effect. h. Governing Law, Jurisdiction, and Venue.

The interpretation, validity, and enforcement of this Agreement is governed by and interpreted in accordance with the laws of the State of California. Any suit, claim, or legal proceeding of any kind related to this Agreement is to be filed and heard in a court of competent jurisdiction in the County of Contra Costa. i. Alternative Dispute Resolution.

Except as otherwise provided for in this Agreement, all claims, disputes, and controversies arising out of or in relation to the performance, interpretation, application, or enforcement of this Agreement, including, but not limited to, breach thereof, shall be referred to non-binding mediation before, and as a 47 of 955
23 condition precedent to, the initiation of any legal proceeding. The Parties will jointly select a qualified professional with expertise in the subject matter of the dispute. In order to commence the mediation process, a party must notify the other party in writing of its intent to commence mediation. Each party will propose one or more mediators within 14 days of the date notice is sent. The proposed mediators must be available to conduct the mediation within the following 60 days. The Parties will make a good faith effort to agree to a mediator within 30 days of the date the notice is sent. If the Parties cannot agree to a mediator, then each party shall select one mediator, and the two mediators selected by the Parties shall meet to jointly select the mediator to conduct the mediation. The cost of mediation shall be divided equally between the Parties. j. Amendment of Agreement.

This Agreement may be amended or modified only by the mutual agreement of the Parties. No amendment or modification of this Agreement shall be binding unless it is in writing and signed by authorized representatives of both Parties.
k. Authority.

Each party, or the representative(s) signing this Agreement on behalf of a party, represents and warrants that it has full power and authority to enter into this Agreement and to perform the obligations set forth herein.
[SIGNATURES ON FOLLOWING PAGE]
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24 CONTRA COSTA COUNTY FIRE

PROTECTION DISTRICT
________________________________
Lewis T. Broschard III, Fire Chief
Attest:

Clerk of the Board
By: _____________________________
Deputy Clerk
Approved by County Administrator:

MONICA NINO
By: _____________________________
County Administrator/Designee
Approved as to form:

MARY ANN McNETT MASON,
County Counsel
By: _____________________________
County Counsel/Designee

CITY OF PINOLE
_____________________________
Andrew Murray, City Manager
Attest:
_____________________________
Heather Bell, City Clerk
Approved as to form:
_____________________________
Eric Casher, City Attorney
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Exhibit 1
Service Area Map
50 of 955
'
'
'
'
'

VALL EY
V IEW
R D
PINOLE
VALLEY
RD

SYC A M ORE AVE

MANORRD

APPI A N WAY

SH A MROC K DR

R EDWOOD
RD

BLUME DR

SAN PABLO A V E

FITZGERALD DR

TARA HILLS DR

RICHMOND
PKY
WILLOW
AVE

BAYBERRY AV E

HI LLTOP DR

SHA W N
DR

ALHAMBRA

VALLEY RD
4 80
80 E x t
Pinole Creek
S a n
P a b l o C r e ek
Ref ug i o
C ree k
R o d e o
C r e e k
P i n
o l e C r e e k
San Pablo Bay
Maloney
Reservoir
69 73
74 76
Contra Costa County
Fire Protection District
CCCFPD

PINOLE CITY LIMITS
'Fire Station
CCC Fire Protection District
0 3,200
Feet
Source: CCCFPD 2022;
EXHIBIT 1 51 of 955
Exhibit 2
City Fire Apparatus/Equipment Inventory
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qty Description Manufacturer Model VIN Year of Manufacture 1 Type I Fire Engine Seagrave Capitol 1F9EN28TOLCST2024 2020 1 Type I Fire Engine Spartan Metro Star 4S7CT2D96EC078960 2014 1 Type VI Fire Engine Ford F-550 1FDAF57F51ED01440 2001 1 Type III Fire Engine International/Rosenbauer 7400 1HTWEAZR58J674916 2008 1 Chief Officer Car Ford Interceptor 1FM5K8ATXFGA70298 2015 1 Chief Officer Car Ford Expedition 1FMJU1GT0KEA29207 2019 1 Chief Officer Car Ford Expedition 1FMFU16578LA84072 2008 1 Utility Pickup Ford F-250 1FTSW21P86EB84873 2006
1 UTV Polaris Ranger Crew 1000 4XAT6E991L8877944 2020
qty Description Manufacturer Model City Asset Number (if any) Year of Purchase 1 Monitor/Defibrillator Physio Control LP15 N/A 2019
1 Monitor/Defibrillator Physio Control LP15 N/A 2012
1 Monitor/Defibrillator Physio Control LP15 N/A 2012
17 Motorola Portable Radio Motorola APX 7000 XE N/A 2011 7 Motorola Mobile Radio Motorola APX 7500 N/A 2011
1 Motorola Mobile Radio Motorola APX 7500 N/A 2015
2 Motorola Mobile Radio Motorola APX 7500 N/A 2020
2 Motorola Base Radio Motorola APX 7500 N/A 2011
1 Motorola Base Radio Motorola APX 7500 N/A 2020
1 Extrication Equipment Spr Hurst e-draulic N/A 2015
1 Extrication Equipment Cut Hurst e-draulic N/A 2015
1 Extrication Equipment Ram Hurst e-draulic N/A 2015
1 Extrication Equipment Spr Amkus Ion N/A 2020
1 Extrication Equipment Cut Amkus Ion N/A 2020
1 Extrication Equipment Ram Amkus Ion N/A 2020
City of Pinole Apparatus and Capital Equipment Inventory

APPARATUS
EQUIPMENT (Replacement Cost exceeding $5,000 per item)
EXHIBIT 2
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Exhibit 3
List of Budgeted Costs
Permanent Salaries – 18 positions
Holiday Pay
Scheduled FLSA Overtime
Uniform Allowance
Retirement
Health Insurance
Workers’ Compensation Insurance
FICA
Fuel
Apparatus Replacement
Firefighting and EMS Supplies and Equipment
Apparatus Maintenance and Repair
Overtime and Backfill Compensation
Training and Classes
Misc. Household Expenses
Personal Protective Equipment
Battalion Chief Allocation
Shift Training Captain Allocation
Administration Allocation
Communication Center Allocation
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Exhibit 4
5-Year Cost Projection Provided by the District
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2022-23 2023-24 2024-25 2025-26 2026-27 2027-28
Budget Forecast Forecast Forecast Forecast Forecast
Personnel Costs $2,540,000 $2,616,200 $2,694,686 $2,775,527 $2,858,792 $2,944,556 Employee Benefits $3,461,572 $3,738,498 $4,037,578 $4,360,584 $4,709,430 $5,086,185 Materials and Supplies $173,872 $187,782 $202,804 $219,029 $236,551 $255,475 Equipment Replacement $305,000 $320,250 $336,263 $353,076 $370,729 $389,266 Communication Center Allocatio $172,498 $179,398 $186,574 $194,037 $201,798 $209,870 Administration Allocation $648,044 $686,927 $728,142 $771,831 $818,141 $867,229 Total Operating Costs $7,300,986 $7,729,054 $8,186,046 $8,674,082 $9,195,442 $9,752,581 Measure X Allocation* -$2,000,000 -$2,080,000 -$2,163,200 -$2,249,728 -$2,339,717 -$2,433,306 Net Costs of CCCFPD Contract $5,300,986 $5,649,054 $6,022,846 $6,424,354 $6,855,725 $7,319,275 *Includes maximum 4% escalator for Measure X contributions EXHIBIT 4 56 of 955
Exhibit 5
Fiscal Year 2022/23 Fire Budget
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Amount Description
$635,000 Permanent Salaries - 9 positions
$51,054 Holiday Pay
$16,574 Scheduled FLSA Overtime
$2,943 Uniform Allowance
$439,365 Retirement
$109,544 Health Insurance
$28,575 Worker's Compensation Insurance
$9,208 FICA
$11,000 Fire Station Utilities
$15,525 Fuel
$62,500 Apparatus Replacement
$13,750 Firefighting & EMS Supplies and Equipment
$12,500 Apparatus Maintenance and Repair
$114,300 Overtime & Backfill Compensation
$5,000 Training & Classes
$2,500 Misc. Household Expenses
$5,000 Personal Protective Equipment
$77,000 Battalion Chief Allocation
$19,775 Shift Training Captain Allocation
$163,111 Administration Allocation
$1,794,222 Total Single Fire Station Operating Costs
$3,588,444 Two Fire Stations - staffing and total costs $172,498 Communication Center Allocation*
($1,000,000) Prorated Measure X Contribution
$2,760,942 Total Contract Costs
*Communication Center Allocation is not prorated - this is an annual set cost Fiscal Year 2022/23 Fire Budget (Prorated 1/1/23-6/30/23) EXHIBIT 5 58 of 955
Exhibit 6
City of Pinole List of Fire Department Employees
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EXHIBIT 6
Name Pinole FD Classification Hire Date
Dale Blume Fire Engineer 10/23/2017
Seaborn Chiles Firefighter/Paramedic 02/07/2022
Andrew Corwin Firefighter/Paramedic 05/17/2021
Michael Crooks Fire Captain 10/05/1998
Steven Dorsey Fire Captain (Admin) 04/10/2001
Cory Higgins Fire Engineer 10/18/2019
Eric Holt Fire Engineer 10/23/2017
Daniel Houts Firefighter/Paramedic 05/17/2021
Javier Lopez Fire Captain 01/13/2014
Matthew Ludwig Fire Captain 07/01/2013
Kyle Metzler Firefighter/Paramedic 05/17/2021
Gregory Sekera Fire Captain (Admin) 06/01/2004
Charles Trester Firefighter/Paramedic 02/07/2022
Clint Ballard Firefighter/Paramedic 06/01/2022
James Brooks Fire Battalion Chief 01/02/1999
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Exhibit 7
Contra Costa County Board of Supervisors Resolution No. 2022/332

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EXHIBIT 7 62 of 955
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1 AGREEMENT
between the

CONTRA COSTA COUNTY FIRE PROTECTION DISTRICT
and the

CITY OF PINOLE
for Fire Protection Services
THIS FIRE PROTECTION AGREEMENT (“Agreement”) is dated January 1, 2023 (the “Effective Date”) and is between the CONTRA COSTA COUNTY FIRE PROTECTION DISTRICT, a fire protection district formed under the Fire Protection District Law of 1987 (Health and Safety Code Sections 13801 et seq.) and governed by the Board of Supervisors of the County of Contra Costa as its Board of Directors ( “(“District”), and the CITY OF PINOLE (“City”), a municipal corporation, referred to herein collectively as the “Parties.”

C. The Parties intend to leverage those Measure X funds that are available for increasing the level of fire protection services in the City to facilitate this partnership for services between the District and the City. The Parties acknowledge that pursuant to Resolution No. 2022/332, the Contra Costa County Board of Supervisors has allocated from Measure X funds $2,000,000 annually, adjusted annually as provided in the resolution, through fiscal year 2023/24Fiscal Year 2027/28 for this purpose. The Parties also acknowledge that the Contra Costa County Board of Supervisors may take additional actions to further allocate or commit Measure X funds that may be utilized by the Parties to offset costs incurred in the provision of fire protection services under this Agreement.

D. Because the City is not within the District service boundary, the Parties propose to enter into this fire protection agreement pursuant to Government Code section 56134. The Parties acknowledge that the services provided for in this Agreement may not commence unless and until this Agreement is approved by the Contra Costa County Local Agency Formation Commission authorizes the District to provide the services contemplated herein.

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2 AGREEMENT
In consideration of the mutual promises contained herein, the Parties agree as follows:

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3 Section 1.

Section 1. Recitals.

The foregoing recitals are true and correct.

Section 2. Section 2. Definitions.

Section 3. Section 3. Scope of Services.

Within the boundaries of the City, the District will provide and be fully responsible for the following services.
a. Incident Response.

1. General Service Criteria.

A. Response Area.

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4 The District will provide the services identified below to the areas within the incorporated limits of the City, as shown on Exhibit 1.

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5 B. Station Location/Staffing.

There are two fire stations located in the City. The stations will be staffed at a minimum as described below.

Response Configuration
Fire Station 73
880 Tennent Avenue
Pinole, CA 94564
1 Engine Company 3 Personnel
Fire Station 74
3700 Pinole Valley Road
Pinole, CA 94564
1 Engine Company 3 Personnel
Within the City boundaries, the District will maintain a minimum staffing level of six (6) personnel, consisting of two three-person companies per shift. Each company will consist of one Captain, one Engineer, and one Firefighter. Each company will be staffed at a minimum with one paramedic and two EMT-I trained personnel. In the absence of ranked positions, personnel working “out-of-class” (acting) will be used. FromA Type 1 Fire Engine shall be located at each of the two fire stations within the City’s boundaries throughout the year. In addition, from June through October, a Type I Fire Engine and a Type VI Wildland Unit shall be located at each of the two fire stations within the City’s boundaries, except that a Type III Wildland Unit may be located at one of the fire stations. in lieu of a Type VI Wildland Unit. The Fire Chief may substitute the required apparatus for other apparatus on a limited, temporary basis when necessary for maintenance or other operational needs.

If engine companies stationed in the City leave the City for automatic aid within the District’s Battalion 7 area (Pinole, El Sobrante, San Pablo, Hercules, and Rodeo), the District will arrange for appropriate backup coverage to ensure that the City has adequate response capability. When companies stationed in the City leave the City for any planned (e.g., administrative or training) needs, the District will arrange for appropriate back-up coverage to ensure that the City has adequate response capability, with a minimum of one (1) Advanced Life Support (“ALS”) company.

The response configuration above will only be changed upon mutual agreement between the Fire Chief and City Manager.

C. Response Levels.

D. Response Time.

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6 the time that the company is first dispatched for 90% of all such incidents. The District will endeavor to have the remaining District first alarm units arrive at the scene of the incident within 18 minutes or less from the time that the first due company is dispatched for 90% of all such incidents.

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7 In the event that the District is unable to meet the above response times, the Fire Chief and the City Manager will confer regarding the District’s ability to meet the above response times. The Fire Chief and the City Manager will discuss strategies to ensure such response times are met in the future.

E. Chief Officer Coverage.

F. Mutual Aid.

The District will continue to meet the District’s pre-existing obligations with respect to mutual aid in accordance with but not limited to the Contra Costa County Fire Mutual Aid Plan, and all appropriate S tate of California interagency service agreements. The parties anticipate that the resulting mutual aid provided within the City will be equivalent to, or greater than, mutual aid provided to the City immediately prior to the Commencement Date. The District will work to develop expanded mutual aid, automatic aid, and mutual response areas with other fire departments adjacent to the City. The Parties acknowledge that the District has no obligation to independently meet the City’s mutual aid obligations, if any, while performing services under this Agreement. The City shall notify its mutual aid partners that the City will not directly provide mutual aid during the term of this Agreement.

2. Fire Suppression.

Fire Suppression services will be provided in accordance with Section 3(a)(l) above, as applicable and except as otherwise provided in this Section 3(a)(2)..

3. Emergency Medical Response.

Emergency Medical Response Service will be provided in accordance with Section 3(a)(l) above, as applicable and except as otherwise provided in this Section 3(a)(3).

The District will fulfill and does hereby assume the City’s obligations under the City’s First Responder Agreements with the Contra Costa County Emergency Medical Services (“EMS”) Agency, with the exception of response times which the District will make every reasonable effort to fulfill, which are hereby assigned to the District. The District’s duty to fulfill the City’s obligations under the First Responder Agreements with the EMS Agency will not affect any rights the City may have to receive revenues from the EMS Agency due to the City under the above agreements, as they may be amended from time to time, which revenues may be used by the City to pay the District for services performed under this Agreement. However, if the Contra Costa County EMS Agency pays any such revenues directly to the District due to the District’s fulfillment of the City’s obligations, those revenues paid directly to the District will be credited to the City as if payment had been made by the City to the District for the performance of services under this Agreement.

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8 4. Hazardous Materials Response.

Response to Hazardous Material incidents will be in accordance with the provisions of Section 3(a)(l) above, as applicable and except as otherwise provided in this Section 3(a)(4).

The District will provide a Type II (as defined by FIRESCOPE) Hazardous Materials Team level of service to the City.

5. Rescue Services.

The District will provide the City with rescue services in accordance with the provisions of Section 3(a)(l) above, as applicable and except as otherwise provided in this Section 3(a)(5).

The District will provide Type II (as defined by FIRESCOPE) rescue services to the City. This service is available as needed.

6. Response to Mass Casualty Incidents.

The District will respond to mass casualty incidents in the City with the same level of response it provides to other areas served by the District.

7. Other Calls for Service.

The District will respond to all other calls for services, , including, but not limited to fire alarms, hazardous conditions, flooding conditions, smoke investigations, and public service calls, in accordance with the provisions of Section 3(a)(l) above, as applicable and except as otherwise provided in this Section 3(a)(7)..

8. Homeland Security.

9. Major Disaster Response.

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9 Upon activation of the City’s Emergency Operations Center (“EOC”), the District will provide sufficient staff to operate assigned functions in the EOC. Release of personnel and resources may occur after evaluation of local conditions and upon mutual agreement by the City Manager and the Fire Chief.

The District will work cooperatively with the City to participate in the development and implementation of the Emergency Operations Plan (“EOP”) by ensuring that it is reviewed, revised and updated as necessary, and exercised regularly. The District will recommend to the City plan updates to the EOP pertaining to fire, rescue, and emergency medical services issues.

The District will continue to participate in local or regional organizations necessary to ensure the City is represented in disaster preparedness and response.

10. 10. Evacuation Coordination.

The District manages the Contra Costa Regional Fire Communication Center which supplies fire and ambulance dispatch services to various areas in the County, including to the City, on a cost reimbursement basis. . The City will continue to pay its proportionate share of annual dispatch-related fees and charges, (“Communication Center Allocation”), which is billed annually and will be in addition to any payments madeincluded as part of the annual fiscal year budget proposal pursuant to this Agreement.Section 5(a)(1).

The City’s obligation to pay its proportionate share of annual dispatch-related fees and charges is not coterminus with this Agreement and survives termination of this Agreement. c. Community Education.

1. Fire Safety Programs.

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10 Smoke alarm installations
Wildland fire and evacuation preparedness

2. CPR Training.

The District will provide opportunities for CPR training to members of the Pinole community at no charge to the participant. This training will be provided within the boundaries of the City.

3. Community Emergency Response Team (CERT).) Training.

4. Miscellaneous.

The District will respond to specific requests from the Pinole community including but not limited to fire station tours and ride-alongs.
d. Fire Prevention.

1. General.

The District, through its Fire Prevention Bureau, will provide fire prevention services consistent with the level of prevention services provided to other areas served by the District.

2. Fire Prevention Staffing.

The District will provide Fire Prevention Bureau staff to conduct annual state-mandated occupancy inspections and Fire Code enforcement.Fire Code enforcement. The City and District will coordinate the District’s Fire Code enforcement activities with the City’s code enforcement activities, subject to any procedures mutually agreed upon by the City and District. Additional staff may be provided as necessary as determined by the District to review plans for new construction and inspect new construction.

3. Pre-development/Preliminary Planning.

The Fire Prevention Bureau will provide pre-development planning services. Pre-development planning will include but not be limited to the following activities:

A. Adherence to the pre-development/preliminary planning project review process established by the City’s Community Development Department and as may be modified at the City’s discretion.

B. Preparation of written comments based upon development/construction submittals made to the City.

C. Attendance (in person or virtually) at scheduled meetings with applicants as reasonably requested by the City.

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11 development/preliminary planning process as reasonably requested by the City. Formatted: Font color: Gray-85% 73 of 955
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12 E. Attendance (in person or virtually) at development review meetings as reasonably requested by the City.

4. Plan Submittal Review.

The District will review and provide comments on proposed construction plans and fire protection system plans to ensure compliance with the City’s adopted codes and applicable standards. Applications and plans shall be submitted by the applicant directly to the Fire District’s Fire Prevention Bureau at 4005 Port Chicago Highway, Suite 250, Concord . Written comments, in a format consistent with District policies and procedures, will be attached to approved plans to inform applicants of District requirements. District review of submitted plans will be completed within the timelines established by the City and the District, provided the review can be performed with the staffing levels provided by this Agreement.

The City and District will coordinate withestablish mutually agreed upon procedures for accepting and reviewing plan submittals. In establishing such procedures, the City Parties will determine timelines for review and strive to propose and evaluatemake the feasibility of process modifications, such as easy as possible for applicants, including by providing an option for applicants to submit applications and plans at City Hall (in which case the City and District accepting will determine how to transfer such application and plans to the District for review). The Parties agree that, initially, the City will require applicants to submit one full set of plans in hard-copy for the District’s review. The Parties agree to cooperate on fully accepting the electronic submission of plans, protocols for information exchange, and the as well as the use of electronic review and commenting platforms, but acknowledge that a transition period will be necessary before this will be feasible.

The City and District share the common goal of full integration of District and City plan review and permitting processes.

5. Fire Inspections.

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13 iv. Matters related to the construction, extension, repair, alteration, or removal of fire suppression or alarm systems.

B. Fire Protection System Inspections. As part of the City’s permitting process, District personnel will inspect fire protection system installations approved for permit by the District to verify compliance with the approved plans and applicable codes and standards.

C. Mandated Inspections. District personnel will conduct inspections of those occupancies mandated by the California Office of the State Fire Marshal.

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14 D. Construction Permit Inspections. District personnel will perform fire inspections for any required construction permit issued in accordance with the City’s adopted Fire Code.

F. Business License Fire Inspection Program. Following a request by the City, the District will conduct business inspections for fire code compliance.

6. Pre-fire Plan Inspections for Target Hazard Occupancies.

The District will perform pre-fire plan inspections for relevant target hazard occupancies. Results of the inspections will be shared with other City departments as requested.

7. Fire Code Administration.

A. The District will administer and enforce City’s adopted F ire CodeCode, and applicable ordinances, and applicable state and federal codes and regulations.

8. Weed Abatement and Wildfire Management.

A. Weed Abatement Enforcement. The City will continue to provide weed abatement through its Code Enforcement Division. The District will assist in administering fire prevention related aspects of the City’s weed abatement program including inspection of those parcels potentially needing abatement., but the District is not responsible for conducting abatement of hazard parcels. The District will provide the City with information and supporting documentation, as requested and necessary, relating to any parcels that require additional enforcement and abatement. All work and abatement orders will be initiated and completed by the City for weed abatement issues.

Additionally, when applicable, the City and the District will coordinate in the preparation and submittal of grant funding applications relating to wildfire mitigation and in developing processes to prioritize and initiate wildfire mitigation projects.

9. Fire Investigation Service.

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15 3rd
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16 Alarm), or where an injury or fire fatality occurs as a result of a fire incident within the City, and will conduct an investigation of every incident in which there is knowledge or suspicion that the crime of arson may have been committed. The District will attempt to determine the cause of all fires within the City as required by the Fire Code. District fire investigators will work with the Pinole Police Department and any other appropriate law enforcement agencies in the investigation process, as needed. e. Administration.

1. Contract Administration.

The District designates the Fire Chief, or the Fire Chief’s designated representative, to represent the District in all matters pertaining to the administration of this Agreement.

The City designates the City Manager, or the City Manager’s designated representative, to represent the City in all matters pertaining to the administration of this Agreement.

The Parties desire to work cooperatively to ensure that the City receives cost effective services.

Accordingly, the Parties desire to set forth a process for reaching agreement on mutually acceptable alterations to service delivery standards and material changes to the budget.

The City and the District will formally notify one anotherthe City prior to a service delivery change.

The notification will provide adequate time for the other partyCity to provide comment, express concerns, and to allow for agreement on the aforementioned changes and modifications. Except for temporary changes lasting fewer than ten (10) days, the District will obtain written approval from the City prior to making a service delivery change . . Any changes to the staffing levels per company or fire stations identified in Section 3(a)(l)(B) are modifications to the Agreement subject to Section 9(j).

2. Fire Chief Designation.

3. Liaison to City.

B. The District will promptly notify the City Manager when any of the following significant incidents occur within the City.

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17 i. Incidents involving deaths or serious injuries to citizens or first responders. ii. Mass casualty incidents involving more than six patients. iii. Second-alarm, and better, structure fires.
iv. Structure fires resulting in displacement of multiple residents. v. Third-alarm wildland fires, or any wildland fires utilizing air support resources.
vi. Hazardous materials incidents requiring entry.
vii. Incidents with significant impacts on residents based on size, scope, or duration.
viii. Any incident that has attracted, or is expected to attract, significant media attention.

4. Community Events.

5. Reports and Records.

A. The District will maintain sufficient records to enable the City to meet its reporting obligations and needs as they relate to the provision of services as provided for in this Agreement, including but not limited to the District’s obligation to provide quarterly reports on response times. The records maintained by the District will also include:
(i) the total number of calls for service responded to by each of Fire Station 73 and 74; (ii) the number of calls for service responded to by each of Fire Station 73 and 74 for incidents occurring outside of the City; and (iii) the number of calls for service responded to by the District from locations other than Fire Stations 73 or 74 for incidents occurring within the City.

B. The District will maintain financial records related to the performance of services under this contract.

C. The District will provide the City Manager with financial reports reasonably requested by the City Manager.

D. Upon request by the City Manager, the District will make available its records related to services performed under this Agreement for audit and inspection by the City Manager, or the City Manager’s designated representative.

E. Upon request, the District shall provide the City with copies of any records related to this Agreement that are subject to disclosure pursuant to the California Public Formatted: Normal, Justified, Indent: Left: 1.75",
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18 Records Act. Formatted: Font color: Gray-85%
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19 this Agreement that are subject to disclosure pursuant to the California Public Records Act.

6. Fire Complaints and Requests for Service.

A. The District will inform the City Manager of any and all complaints received by the District regarding the services provided to the City by the District.

B. The District will strive to provide a high level of customer service to the City in accordance with the District and the City’s customer service philosophies.

7. Fire System Planning.

A. The Fire Chief will assist the City in planning the extension of fire services and facilities as the City grows.

C. This paragraph does not apply to those services provided under mutual aid, automatic, and/or other interagency response agreements.

8. Fees.

C. Any fees collected by the City for services performed by the District will be accounted for by the City and remitted to the District.

9. 9. Miscellaneous Revenue Collection.

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20 policy for seeking reimbursement for the cost of the District’s response to accidents or other events. Any cost reimbursements received by the District for incidents Formatted: Font color: Gray-85%
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21 occurring within the City will be credited to the City as if payment had been made by the City to the District for the performance of services under this Agreement.

B. B. The District will use reasonable efforts to obtain grants for one-time and ongoing capital and operational expenditures.

Section 4. Section 4. Facilities, Apparatus, and Equipment. a. Buildings and Real Property.

1. Use of Pinole Fire Station Nos. 73 and 74.

2. Office Space.

3. Return Upon Termination.

1. Transfer of Apparatus and Equipment.

2. Maintenance.

The District will be responsible for maintenance and repair of all apparatus and equipment. The City will pay the District a fee, fixed annually and specified in the budget approved pursuant to Section 5 (Cost of Services), for the costs of maintenance and repair of apparatus and equipment utilized in the performance of services under this Agreement.

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22 3. Reserve Apparatus.

The District will provide a reserve apparatus that will be placed in service as soon as possible if a frontline apparatus is to be out of service for an extended period of time.

4. Apparatus and Equipment Replacement.

The timing of apparatus and equipment replacement shall be determined by the District, consistent with the District’s standard equipment and apparatus replacement practices and schedules. . The District will submit a proposed apparatus replacement schedule to the City indicating the anticipated dates for replacement of major pieces of apparatus. The District will provide the City with advanced notice regarding the need to replace apparatus and equipment.

5. Return Upon Termination.

6. New Equipment.

Section 5. Cost of Services.
a. Fire Budget.

1. Operating Budget.

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23 provided under this Agreement, the Fire Chief will annually prepare and submit a proposed budget for the succeeding fiscal year, as well as an updated 5-year cost projection, to the City Manager by January 15th. Prior to preparation of the proposed budget, the Fire Chief Formatted ...
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24 and City Manager, or their designees, shall meet to discuss factors potentially affecting the budget necessary to cover costs for the upcoming fiscal year.

2. Offsetting Revenues.

B. The Parties acknowledge that by Resolution No. 2022/332, attached as Exhibit 7, the Board of Supervisors has allocated from Measure X funds $2,000,000 annually through Fiscal Year 2027/28 to increase the level of fire protection services in the City. As provided in Resolution No. 2022/332, the Measure X allocation will be adjusted annually beginning in Fiscal Year 2023/24 by the percentage change in the Consumer Price Index-All Urban Consumers for the San Francisco-OaklandHayward Area for the twelve-month period ending with the February index of the calendar year in which the adjustment is made, but not to exceed 4 percent per year.

The Parties also acknowledge that the continued allocation of funds by the Board of Supervisors is critical to the maintenance of service levels provided for in this Agreement. The Parties will utilize each annual allocation of $2,000,000, as adjusted, as an Offsetting Revenue under this Agreement.

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25 2.3.Capital Requirements.

The Fire Chief will recommend any capital needs for Fire Station 73 or 74, as well as modifications to services that the City provides to directly support the provision of the District’s contractual services. These recommendations will be submitted along with the annual fire budget and will be reflected in the recommended budget, as necessary.

3.4. Management of Budget.

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26 with the deficiency identified in the budget modification request.

C. Notwithstanding Sections 5(a)(34)(A) and (B) above, where new labor agreements are approved by the District Board of Directors that result in an increase to laborrelated costs under this Agreement, the budget shall be deemed modified to account for such cost increases upon 5 days’ written notice from the District to the City of such new labor agreements and associated budget modification, and without further approval by the City.

1. City Payment.

2. Method of Billing and Payment.

A. City will pay the District monthly in arrears within 30 calendar days of receipt of the monthly invoice. The City will pay the District monthly in advance within 30 calendar days of receipt of the monthly invoice. The monthly invoice amount will be equal to the difference of the annual fire budget and the sum of Offsetting Revenues and the Communication Center Allocation, divided by 12, plus any Budget Modification Prorations. A “Budget Modification Proration” is calculated by dividing a budget modification made pursuant to Section 5(a)(4) by the number of months remaining in a fiscal year at the time the budget modification is made. Budget modifications that occur mid-fiscal year will result in post-modification monthly invoice amounts that differ from pre-modification monthly invoice amounts.

B. In the event than an invoice is not paid (partially or in full) by the due date, a late fee of 1% simple interest of the unpaid balance will be assessed for each month or portion thereof that the invoice remains unpaid. The late fee will be assessed on the 1st day of each month following the due date. The monthly invoice amount will be equal to the annual fire budget divided by twelve (12), plus any Budget Modification Prorations. A “Budget Modification Proration” is calculated by dividing a budget modification made pursuant to Section 5(a)(3) by the sum of one and the number of months remaining in a fiscal year. Budget modifications that occur mid-fiscal year will result in post-modification monthly invoice amounts that differ from premodification monthly invoice amounts. c. Costs Associated with New Development within the City.

The Parties acknowledge that development within the City may necessitate new or additional apparatus and equipment to enable the District to provide the fire protection services under this Agreement.

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27 The Parties also acknowledge that the City and developers, but not the District, should bear the costs of new or additional apparatus and equipment required due to development within the City. In the event that the Fire Chief determines newthat development inwithin the City is likely to requirerequired new facilities,or additional apparatus, or equipment, including, for example, a ladder truck, the Fire Chief shall notify the City Manager. The Parties acknowledge that the City, and not the District, should bear the costs of increased fire services necessary due to new development. The Parties will meet and confer as provided for in Sections 3(e)(l) and 5(a)(3) to discuss planned and prospective new development within the City, the associated impacts to the services provided under this Agreement, and the options for funding of any changes to services or the need for new equipment or apparatusor additional equipment or apparatus. The City currently collects Fire Development Impact Fees on new development in the City, and will make such fees available to address capital improvement and apparatus needs as development within the City occurs. Regardless of the availability of Fire Development Impact Fees, the City will remain responsible for paying the above-described costs associated with development within the City.

Section 6. Section 6. Personnel.
a. The Parties anticipate that as a result of this Agreement and the District’s provision of fire protection services to the City, some or all of the persons identified in Exhibit 6 (City of Pinole List of Fire Department Employees) may elect to leave City employment to become District employees.

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28 The
b. Except through payments made pursuant to Section 5 (Cost of Services), the City is not responsible for directly paying salaries, wages, or other compensation to District personnel performing services under this Agreement for the City., nor is the City liable for any District retirement obligation or other post-employment benefit to any District employee arising out of their employment with the District. The City is not directly liable for compensation or indemnity to any District employee for injury or sickness arising out of their employment with the District, except as part of the City’s payment of indirect expenditures and Risk Management costs to the District and as otherwise provided in this Agreement. This Section does not negate any of the City’s obligations pursuant to Section 5 (Cost of Services) above. c. The District is not liable for compensation or indemnity to any District employee for injury or sickness arising out of their employment with the City. The District is not liable for any City retirement obligation or other post-employment benefit to any District employee arising out of their employment with the City.

Section 7. Section 7. Indemnification.
a. Indemnification by the City.

The City shall defend, indemnify, and hold harmless the District, its governing body, officers, employees, representative, and agents from any and all demands, losses, claims, costs, suits, liabilities, and expenses for any damage, death, or injury to persons or property from any cause whatsoever arising directly or indirectly from or connected with any act or omission of or purported act or omission of the City, its governing body, officers, employees, representative, or agents in connection with or arising out of the performance by the City, its governing body, officers, employees, representative, or agents of this Agreement, and with regard to any alleged illegality or unconstitutionality of a City ordinance. The City shall reimburse the District for any expenditures, including reasonable attorney’s fees and costs, the DistirctDistrict may make by reason of such matters and, if requested by the District, shall defend any such suit at the sole cost and expense of the City. The City’s obligations under this subsection shall exist regardless of concurrent negligence or willful misconduct on the part of the District or any other person; provided, however, that the City shall not be required to indemnify the District for the proportion of liability a court determines is attributable to the negligence or willful misconduct of the District, its governing body, officers, employees, representative, or agents.

The District agrees to give the City prompt written notice of any claims or other matter as to which the District believes this indemnification provision is applicable. The City will, at its sole cost and expense, provide counsel reasonably acceptable to the District, to contest or defend any such claim. Neither party, nor their successors or assigns,shall admit any liability to any matter for which indemnification is sought, or settle, compromise, pay, or discharge the same without the prior written consent of the other party, which shall not be unreasonably withheld or delayed, and the District shall reasonably cooperate with the City in the contest and defense thereof.
b. Indemnification by the District.

The District shall defend, indemnify, and hold harmless the City, its governing body, officers, employees, representative, and agents from any and all demands, losses, claims, costs, suits, liabilities, and expensesfor any damage, death, or injury to persons or property from any cause whatsoever arising directly or indirectly from or connected with any act or omission of or purported act or omission of the District, its governing body, officers, employees, representative, or agents in connection with or arising out of the performance by the District, its governing body, officers, employees, representative, or Formatted: Normal, Indent: Left: 0", First line: 0.25", Right: 0", Line spacing: Multiple 1.04 li, Outline
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29 agents of this Agreement. The District shall reimburse the City for any expenditures, including reasonable attorney’s fees and costs, the City may make by reason of such matters and, if requested by the City, shall defend any
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30 such suit at the sole cost and expense of the District. the District’s obligations under this subsection shall exist regardless of concurrent negligence or willful misconduct on the part of the City or any other person; provided, however, that the District shall not be required to indemnify the City for the proportion of liability a court determines is attributable to the negligence or willful misconduct of the City, its governing body, officers, employees, representative, or agents.

Section 8. Section 8. Insurance.
a. General and Auto Liability.

The City will be named as an additional insured and the policy must contain cross liability endorsements. An endorsement must be provided which states that the DistrictDistrict’s insurance coverage is theshall be primary insurance. The District may self-insure to these limits of coverage. The District will furnish the City with original certificates and amendatory endorsements effecting coverage required by this clause. The District will provide complete certified copies of all required insurance policies, including endorsements effecting the coverage required by these specifications, to the City upon request. b. Property Insurance.

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31 will provide the City with a waiver of subrogation against the City, its officers, officials, employees, and volunteers for all claims on or after the Commencement Date arising during the term of this Agreement. d. Workers’ Compensation Claims for Employees in Exhibit 6.

A. Reopened;
B. Incurred but not reported;
C. Submitted for new and further disability; or
D. Incurred subsequently and consequently to the original claim

Should the claim involve prior employers, the City will be responsible for the service time.

The City and the District agree to cooperate with each other in the administration of the claims that involve both Parties, including any decisions or determinations regarding industrial disability retirement. This includes, but is not limited to, the sharing of notes, reports, and other documents. The City will have the right to review and contest any determination of a recurrence of a prior injury. In the event that an agreement cannot be reached, the City and the District will accept the Worker’s Compensation Appeals Board decision as the final decision and without further appeal rights on this limited issue. e. Industrial Disability Retirement.

The City will be solely responsible for making the determination of industrial disability retirement for CalPERS retirement application for the employees listed in Exhibit 6.

Section 9. Section 9. Miscellaneous.
a. Term and Extension by Mutual Agreement; Commencement of Services.

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32 date (“Commencement Date”) mutually agreed upon and authorized in writing by the Parties, which authorization may be given by the Fire Chief for the District and the City Manager for the City. In order to provide notice to the affected employee organization, the Parties will endeavor to mutually agree upon and authorize a Commencement Date at least 30 days prior to the Commencement Date. Prior to the Commencement Date, the District and City will jointly participate in a mutually agreed upon communications effort to educate the public about the transition of fire services.

Notwithstanding Section 9(a) above, this Agreement may be unilaterally terminated by either party by giving 12 months’months’ written notice of termination to the other party. The contract termination date specified in the notice of termination may be extended by mutual agreement. The Parties acknowledge that the termination of this Agreement would require extensive operational adjustments for both Parties. The Parties further acknowledge that any fire service interruption would result in risks to public welfare. Within 60 days of a notice of termination by either party, the Parties will coordinate to develop a transition plan. The transition plan will include specific implementation deadlines, including any modification to the contract termination date, and will address matters including but not limited to service levels during the transition period and the return or lease of apparatus and equipment by the District to the City.

To DISTRICT:

Contra Costa County Fire Protection District Attn: Fire Chief Attn: Fire Chief
4005 Port Chicago Highway, Suite 250,
Concord, CA 94520
With a copy to:

Contra Costa County
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33 Public Works Department
Attn: Principal Real Property Agent
40 Muir Road
Martinez, CA 94553
To CITY:

City of Pinole
Attn: City Manager
2131 Pear Street
Pinole, CA 94564
d. Further Obligations.

The Parties recognize that this Agreement cannot represent a complete expression of all issues, that may arise during the performance of the Agreement. Accordingly, the District and City agree to meet and confer in good faith over any issue not expressly described herein. e. No Assignment.

All exhibits referred to herein are attached hereto and are, by this reference, incorporated herein.

Exhibits to this Agreement include:

Exhibit 1: Service Area Map
Exhibit 2: City Fire Apparatus/Equipment Inventory Exhibit 3: List of Budgeted Costs
Exhibit 3: List of Budgeted Costs
Exhibit 4: 5-Year Cost Projection Provided by the District Exhibit 5: Fiscal Year 2022/23 Fire Budget
Exhibit 6: City of Pinole List of Fire Department Employees Exhibit 7: Contra Costa County Board of Supervisors Resolution No. 2022/332 g. Severability.

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34 i. Alternative Dispute Resolution.

Except as otherwise provided for in this Agreement, all claims, disputes, and controversies arising
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DRAFT
35 out of or in relation to the performance, interpretation, application, or enforcement of this Agreement, including, but not limited to, breach thereof, shall be referred to non-binding mediation before, and as a condition precedent to, the initiation of any legal proceeding. The Parties will jointly select a qualified professional with expertise in the subject matter of the dispute. In order to commence the mediation process, a party must notify the other party in writing of its intent to commence mediation. Each party will propose one or more mediators within 14 days of the date notice is sent. The proposed mediators must be available to conduct the mediation within the following 60 days. The Parties will make a good faith effort to agree to a mediator within 30 days of the date the notice is sent. If the Parties cannot agree to a mediator or the mediation cannot be conducted within these timeframes, then each party’s obligation to referparty shall select one mediator, and the two mediators selected by the matterParties shall meet to jointly select the mediator to conduct the mediation will be deemed discharged. The cost of mediation shall be divided equally between the Parties.
j. Amendment of Agreement.

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DRAFT
36 CONTRA COSTA COUNTY FIRE

PROTECTION DISTRICT

CITY OF PINOLE
Chair, Board of Directors
Attest:

Clerk of the Board
By:

Deputy Clerk
Approved by County Administrator:

MONICA NINO
By:

County Administrator/Designee
Approved as to form:

MARY ANN McNETT MASON,
County Counsel
By:

County Counsel/Designee
Mayor
Attest:

City Clerk
Approved by City Manager:

City Manager
Approved asto form:

City Attorney
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CONTRA COSTA COUNTY FIRE

PROTECTION DISTRICT
Chair, Board of Directors
Attest:

Clerk of the Board
By: _____________________________
Deputy Clerk
Approved by County Administrator:

MONICA NINO
By: _____________________________
County Administrator/Designee
Approved as to form:

MARY ANN McNETT MASON,
County Counsel
By: _____________________________
County Counsel/Designee

CITY OF PINOLE
Andrew Murray, City Manager
Attest:
_____________________________
Heather Bell, City Clerk

Approved as to form:

Eric Casher, City Attorney
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Exhibit
1 Exhibit 1
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Exhibit 2
Exhibit 2
City Fire Apparatus/Equipment Inventory
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Exhibit 3
Exhibit 3
List of Budgeted Costs
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Exhibit 4
Permanent Salaries – 18 positions
Holiday Pay
Scheduled FLSA Overtime
Uniform Allowance
Retirement
Health Insurance
Workers’ Compensation Insurance
FICA
Fuel
Apparatus Replacement
Firefighting and EMS Supplies and Equipment
Apparatus Maintenance and Repair
Overtime and Backfill Compensation
Training and Classes
Misc. Household Expenses
Personal Protective Equipment
Battalion Chief Allocation
Shift Training Captain Allocation
Administration Allocation
Communication Center Allocation
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Exhibit 5
Exhibit 4
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Exhibit 6
Exhibit 5
Fiscal Year 2022/23 Fire Budget
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Exhibit 7
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Exhibit 6
City of Pinole List of Fire Department Employees
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Exhibit 8
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Exhibit 7
Contra Costa County Board of Supervisors Resolution No. 2022/332 108 of 955
Exhibit 9
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Contra Costa County Fire Protection District
Contracted Fire Services to City of Pinole
Plan for Services
September 2022

ATTACHMENT C
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3 Table of Contents
Executive Summary …………………………………………………………………………………………………… 4 Background and Setting …………………………………………………………………………………………….. 5 Legal Context ……………………………………………………………………………………………….. 5
History of the Affected Agencies …………………………………………………………………… 6 Proposed Contract Territory Description ……………………………………………………… 9 Justification ………………………………………………………………………………………………………………. 10 Augmented Service Levels …………………………………………………………………………….. 10 Enhanced Standardization …………………………………………………………………………….. 10 Service Efficiency ………………………………………………………………………………………….. 11 Plan and Description of Services ………………………………………………………………………………… 13 Services to be Extended ……………………………………………………………………………….. 13 Current Service Delivery Levels ……………………………………………………………………. 13 Level of Demand ………………………………………………………………………………………….. 14 Public Education Programs …………………………………………………………………………… 17 Support Services ………………………………………………………………………………………….. 17 Proposed Service Delivery Plan ……………………………………………………………………. 18 Level and Range of Proposed Services ………………………………………………………….. 20 Infrastructure Needs/Planned Improvements ……………………………………………….. 21 Transition Plan …………………………………………………………………………………………….. 21 Information Required for Gov’t Code Section 56134(e) ……………………………………………… 22 112 of 955
4 Executive Summary
In November 2021, the Contra Costa County Board of Supervisors approved certain expenditures of Measure X funds. Included in this decision was an intent to provide $2 Million in funding from Measure X to assist in providing full funding, when combined with City of Pinole (“PFD”) funds, to reopen Fire Station 74 in Pinole Valley as part of a contract for fire services to be provided by Contra Costa County Fire Protection District (“CCCFPD”) for the full operation of fire, rescue, emergency medical, fire prevention, training, and administration to the City of Pinole.

In May 2022, a consultant was contracted to conduct a fiscal analysis and review of the service plan in accordance with LAFCO requirements for a fire protection contract (CA Government Code 53164). This analysis was completed in July 2022.

Background information related to the contract for service:
▪ PFD has previously experienced a significant reduction in staffing as a result of the great recession. Fire Station 74 in Pinole Valley was closed in 2011. ▪ PFD and CCCFPD represent two of the three agencies in the Battalion 7 automatic aid response area. The Rodeo-Hercules Fire Protection District is the other agency included in the current Battalion 7 agreement.
▪ The contract will provide for the reopening and staffing of Fire Station 74 in Pinole Valley.

The proposal for an out-of-area fire protection contract, with services to be provided by CCCFPD, will reopen a closed fire station and provide staffing, as described in this service plan, to improve fire, rescue, and emergency medical services in the areas served by the contract. Additionally, fire prevention, public education programs, and administrative support functions will be improved and delivered in a consistent manner throughout the proposed service area. 113 of 955
5 Background and Setting
Legal Context
Applicable Law
This application is being submitted pursuant to the Cortese-Knox-Hertzberg Act, Government Code section 56000 et seq. This application is submitted by the Contra Costa County Board of Supervisors, as the governing board of the Contra Costa County Fire Protection District (CCCFPD), under Government Code section 56134. CCCFPD is enabled under the Fire Protection District Law of 1987 (Health & Safety Code 13800, et seq.).

Environmental Documentation
The proposed contract is Categorically Exempt from CEQA pursuant to 14 CCR 15320. Class 20 consists of changes in the organization or reorganization of local governmental agencies where the changes do not change the geographical area in which previously existing powers are exercised.

Summary of Proposed Contract
As agreed by the two agencies and indicated in the Resolution of Application, the Contra Costa County Fire Protection District proposes to provide fire protection services to the City of Pinole, to include all areas of the City of Pinole, through a contract for services, following which, the City of Pinole Fire Department would be dissolved.

Proposed Contract Conditions

1. Provider Agency. Upon and after the Commencement Date of the contract and LAFCO’s approval, Contra Costa County Fire Protection District will be the provider of all fire, rescue, emergency medical responses, as well as all fire prevention and fire administration for the City of Pinole.

2. Employees. From and after the Commencement Date of the contract, all employees of the dissolved Pinole Fire Department at the Battalion Chief, Fire Captain, Fire Engineer, and Firefighter rank shall become employees CCCFPD.

3. Duties. CCCFPD, under contract with the City of Pinole, shall function under and carry out all authorized duties and responsibilities assigned to a Fire Protection District as outlined in Division 12, Part 2.7, Chapter 1, Health & Safety Code, Fire Protection District Law of 1987 (commencing with Section 13800) and other applicable laws within the City of Pinole.

4. Service Demand. CCCFPD will continue to staff Fire Station 73 (downtown Pinole) and will reopen and staff Fire Station 74 (Pinole Valley).
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6 History of the Affected Agencies
Contra Costa County Fire Protection District
The Contra Costa County Fire Protection District (CCCFPD) was originally formed in 1964 as a result of the Central Fire Protection District and Mt. Diablo Fire Protection District consolidation.

Since then, ten other fire protection districts in the region have merged with CCCFPD.

On July 1, 2022, CCCFPD completed the annexation of the East Contra Costa Fire Protection District.

As of July 1, 2022, CCCFPD’s primary service area comprises approximately 555 square miles.

More than 150 additional square miles comprise the response area for ambulance service and transport. Data from the U.S. Census Bureau indicates a 2020 resident population of 750,000.

About half CCCFPD’s jurisdiction is considered “urban,” 25% “suburban,” and the remaining 25% “rural” or “remote.”
Governance
The five-member elected Contra Costa County Board of Supervisors serves as CCCFPD’s Board of Directors. The Board oversees the Fire Chief, sets general policies, and approves the budget. The Fire Chief is responsible for the administrative functions and daily operations of CCCFPD.

District Services
CCCFPD is an all-hazards fire district providing traditional fire protection, wildland firefighting, emergency medical services, Advanced Life Support (ALS), ambulance transport, various special operations (e.g., water rescue, hazardous materials response, marine firefighting, technical rescue, etc.), and a comprehensive life-safety and prevention program that includes inspections, a dedicated fire investigation unit, code enforcement, plan reviews, and public education. In 2005, CCCFPD was given an Insurance Services Office (ISO) Public Protection Classification (PPC®) score of 3/3Y. The ISO PPC is a standardized fire department classification and ranking system established by the ISO and used by many insurance companies for determining capability of the fire department serving the insured property. CCCFPD is accredited through the Commission on Accreditation of Ambulance Services (CAAS).

Effective with the annexation of the East Contra Costa Fire Protection District in July 2022, and the reopening of Fire Station 4 in July 2022, CCCFPD deploys 34 staffed apparatus from 31 staffed fire stations located throughout the District. An additional three-person company is anticipated to be placed in service in Antioch and another in Brentwood in March 2023. An additional station is utilized for CCCFPD’s reserve firefighters and staffed on a rotational basis. CCCFPD operates a wide variety of fire apparatus and ambulances (more detail provided under “Capital Facilities & Apparatus”).

CCCFPD follows the National Fire Protection Association (NFPA) Standard 1710 for providing an effective firefighting force of at least 17 personnel on the initial response to a single family 115 of 955
7 residential structure fire. Across CCCFPD’s jurisdiction, the travel time for the full first alarm contingent of 17 personnel is achieved at the NFPA 1710 standard of 12 minutes, 90% of the time, for suburban areas.

Ambulance Transport
In 2016, CCCFPD developed a unique arrangement with American Medical Response, Inc. (AMR) that they refer to as the “Alliance.” The program utilizes AMR EMS personnel to staff CCCFPD’s ALS ambulances, assisted by district firefighters certified as EMTs or Paramedics and functioning in a first-responder capacity.

Regional Fire Communications
CCCFPD operates the Contra Costa Regional Fire Communications Center (CCRFCC), which serves as a secondary Public Safety Answering Point (PSAP) for most fire and EMS 911 calls in the County. CCRFCC provides dispatch to its own district, RHFPD, and four other fire agencies.

The Center dispatches more than 140,000 emergency and non-emergency fire and EMS incidents annually. CCRFCC’s 911 Call-Takers are all certified in Emergency Medical Dispatch through the International Academies of Emergency Dispatch (IAED) and provide pre-arrival instructions to callers reporting medical emergencies. In mid-2022 the center will be accredited by the IAED.

CCCFPD Organizational Structure
CCCFPD currently maintains approximately almost 500 funded positions, including staff in the dispatch center. Sixteen of these positions are financed via the District’s EMS Transport Fund.

The figure below shows the 2022 organizational structure of CCCFPD. As shown, the Fire Chief and Deputy Fire Chiefs supervise seven divisions, each of six managed by an Assistant Fire Chief and one by the Chief of Administrative Services.
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8 Pinole Fire Department
The Pinole Fire Department (PFD) is an all-hazards municipal fire department providing traditional structural fire suppression, wildland firefighting, Advanced Life Support (ALS) level emergency medical services (EMS), rescue, and hazardous materials response. PFD deploys its apparatus and personnel out of Station 73 located in downtown Pinole. It is a partner agency, with the Contra Costa County Fire Protection District (CCCFPD) and the Rodeo-Hercules Fire Protection District (RHFPD), in the Battalion 7 agreement, which enables automatic aid among the three agencies. The department normally operates one fire engine, staffed by a captain, engineer, and firefighter, at least one of which is a certified paramedic. The FY 2022/23 budget for the department is anticipated to be $5.5 Million.

PFD’s Fire Prevention Bureau provides inspections, code enforcement, plan reviews, fire investigations, and various public education programs. In addition, the Bureau conducts inspections of public and private properties for compliance with its weed abatement ordinance.

In 2003, Pinole opened a second fire station, Station 74, which was shuttered in 2011 due to unsustainable municipal funding sources.

PFD’s Organizational Structure
The Pinole Fire Department employs 17 uniformed and non-uniformed personnel, which includes six Firefighters, three Engineers, five Captains, and one Battalion Chief. The Fire Chief supervises the Battalion Chief, an Administrative Captain, a Prevention Captain, and a Management Analyst.

The Battalion Chief is responsible for the B shift operationally, and all three shifts (A, B, and C) administratively (A Shift and C shift operations are overseen by RHFPD and CCCFPD Battalion Chiefs, respectively, under the Battalion 7 agreement). The Prevention Captain supervises a contracted fire inspector.

The following figure illustrates the current 2022 organizational structure of the Pinole Fire Department.
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9 Proposed Contract Territory Description
Boundaries
The image below shows the proposed contract area which consists of the boundaries of the City of Pinole. Upon the effective date of the contract for services, CCCFPD’s coverage area will increase by approximately five square miles.

Contract Area
Topography
The contract area contains waterfront, suburban, urban, and rural service areas. The topography spectrum includes flat urban environments as well as wildland-urban interface (WUI) areas in the Pinole Valley hills. The topography is typical of that found throughout the County.

Population
The population of Pinole is approximately 20,000 residents. 118 of 955
10 Justification
Augmented Service Levels
Within the areas currently served by the Pinole Fire Department there will be increases in total operational resources available by opening and staffing Fire Station 74. This will increase the total available fire companies from one to two within the first months of the contract effective date.

For the Pinole service area, additional enhancements will include access to specialized rescue and firefighting resources not currently provided directly by that city. These include water rescue teams, heavy fire equipment resources such as fire bulldozers, as well as technical rescue apparatus, equipment, and personnel for confined space, trench, and building collapse. Fire and arson investigation services will be enhanced through use of Contra Costa County Fire Protection District’s dedicated Fire Investigation Unit.

Fire prevention service will be standardized and, in some cases, augmented beyond the current level of service being provided by the city. Comprehensive community risk reduction, code enforcement, plan review and new construction inspections, and development planning will be provided by full-time personnel. Public education and outreach efforts will be augmented through dedicated CCCFPD staff to perform this important service.

Enhanced Standardization
The combined organization will standardize training delivery of recruit firefighters through the Contra Costa County Fire Protection District’s academy. Continued training of firefighters will occur through one Training Division under a consistent, well-staffed, and properly supported system. Operational policies and procedures will become consistent and standardized under one organization. Fire prevention and code enforcement services will be based on one fire code and supporting ordinances throughout the new service area. Procurement of apparatus and equipment will be contained under one standard within the organization, reducing training issues and increasing flexibility in deployment and fleet sustainability. Operational and large incident management will be standardized under the single organization’s leadership and emergency management goals and objectives. Responses to incidents, currently at varying levels based on each agency’s own service policies, as described above, will become standardized to meet a single standard for deployment.

Standardization of responses across the expanded service area will ensure consistent response levels of equipment and personnel to structure fires, technical rescues, and vegetation or wildland fires matching with the current response matrix for CCCFPD. 119 of 955
11 Service Efficiency
This contract will increase both the effectiveness and efficiency of the service delivery system and the efficiency of the administrative functions. A challenge often faced by smaller fire service agencies is the necessity of individuals to serve in multiple capacities. An advantage to this contract will be increased administrative and support services available to the contract area (e.g., information technology, human resources, finance, contracts management, fleet maintenance, logistics and supply, etc.).

Operationally, the City and CCCFPD work together with an existing automatic aid agreement.

Emergency operations will be further enhanced and efficiencies gained beyond the current automatic aid agreement as one fully functional organization. 120 of 955
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13 Plan and Description of Services
Services to be Extended
Fire, rescue, and emergency medical services are currently provided by both the City of Pinole and CCCFPD. Fire prevention, community risk reduction, and fire investigation services are provided at different levels in either full-time or contractual arrangements. Administrative and support services are also provided in different formats amongst the agencies. All services would be provided consistent with the current configuration and delivery models within Contra Costa County Fire Protection District. The method to finance the services provided would be through the combined revenue streams of the City of Pinole supplemented by a contribution of Measure X funds through the Board of Supervisors.

The contract would only affect the provision of fire, rescue and emergency medical services within the current boundaries of areas proposed for annexation. The reorganization will not alter or affect other municipal services provided by the City of Pinole.

Current Service Delivery Levels
Service and Staffing Overview
An overview of services provided and description of staffing levels for each of the subject districts was previously discussed in the History of the Reorganizing Districts section.

Dispatch/Communications
CCCFPD operates the Contra Costa Regional Fire Communications Center (CCRFCC), which serves as a secondary Public Safety Answering Point (PSAP) for most fire and EMS 911 calls in the County.

CCRFCC provides dispatch to its district, plus PFD, and four other fire agencies (Moraga-Orinda FPD, El Cerrito FD, Crockett-Carquinez FPD, and the Rodeo-Hercules FPD). The Center dispatches more than 140,000 emergency and non-emergency fire and EMS incidents annually.

In 2018, the Center made substantial improvements to the system by adding more staff and upgrading radio, telephone, and information technology services.

CCRFCC’s 911 Dispatchers and Senior Dispatchers are all certified in Emergency Medical Dispatch through the International Academies of Emergency Dispatch (IAED) and provide pre-arrival instructions to callers reporting medical emergencies. In mid-2022 the center will be accredited by the IAED.

Along with CCCFPD staff, CCRFCC houses 13 System Status Management Dispatchers employed by American Medical Response.
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14 Level of Demand
Total 911 Call Volume – City of Pinole
The PFD responded to 1,112 incidents within the City limits in 2021, and had a total of 1,479 responses in 2021. Responses outside the city limits for automatic or mutual aid accounts for the difference in totals.

PINOLE FD RESPONSES
Year
Pinole FD
Responses
within City
limits
Total Pinole FD
Responses
2018 1360 1815
2019 1510 1991
2020 1260 1579
2021 1112 1479
The City of Pinole received automatic or mutual aid to 382 incidents in 2021, where there was no PFD response, either due to Engine 73 being already committed to a call or otherwise unavailable for response.

Aid Provided to Pinole with no
PFD response
Year Total
2018 247
2019 293
2020 199
2021 382
The data provided above excludes ambulance-only responses where there was no PFD response. 123 of 955
15 Response Times
The PFD had an average response time, as calculated from the time of notification at the fire station to arrival at scene, of 7 minutes, 33 seconds in 2021 for all calls within the city limits.

Pinole FD Response Times
Year Average 90%
2018 7:09 9:57
2019 7:26 10:54
2020 7:29 10:52
2021 7:33 10:50
Response times will be reduced within the city by reopening Fire Station 74 and providing a closer fire unit to the Pinole Valley area of the city. Further, in those instances where a second incident occurs and Engine 73 is already committed, the response time from Fire Station 74 will be less than the current response time of automatic aid resources from other jurisdictions.

The total time for an effective firefighting force to arrive at a structure fire will be reduced with the addition of Fire Station 74, reducing the dependence on a response from an automatic aid engine from farther away.

Pinole FD Facilities
The PFD currently owns two fire stations, of which one is staffed with personnel and apparatus and the other is used to house the Battalion Chief, but has been closed since 2011. Both facilities are in good condition and serviceable and fully capable of supporting their intended use.

Fire Station 73, located in the downtown area, is attached to the City Public Safety Building while Fire Station 74, located in the Pinole Valley area, is a separate detached fire station. It is anticipated there are no significant infrastructure needs for either station. Fire Station 74 is anticipated to need new carpet, flooring, and interior paint with some minor maintenance and repair work.

Fire Department Apparatus
Contra Costa County Fire Protection District
The CCCFPD has a large fleet of frontline engines, aerial apparatus, and support vehicles.

Additionally, CCCFPD has a fleet of reserve, or spare, apparatus and additional engines assigned to the Training Division.

Along with its substantial fleet of engines, ambulances, aerials, and other apparatus, CCCFPD maintains a range of special operations vehicles (e.g., hazmat unit, UTVs, command units, fire 124 of 955
16 boat, rescue boat, etc.) and other equipment utilized for wildland and other operations (e.g., bulldozer, backhoe, dump truck, etc.).

CCCFPD owns multiple pickup trucks, SUVs, and other vehicles but has access to nearly 75 other pickup trucks, staff cars, cargo vans, and assorted miscellaneous vehicles from the “Enterprise Fleet.”
CCCFPD maintains an adequate inventory of reserve engines, aerial apparatus, rescue squads, and other vehicles. The Training Division has been assigned five Type 1 engines along with two aerial apparatus (one being a Quint and the other a tiller), and several other apparatus.

Pinole Fire Department
The following figure lists the current inventory of PFD’s frontline fleet. The City’s apparatus fleet comprises Type 1 (structural) and Type 2 or Type 6 (wildland) engines. The City formerly provided a ladder truck from Fire Station 73, but it was not replaced when taken out of service several years ago.

Pinole FD Frontline Apparatus Inventory (2022)
Unit Type Manufacturer Year Condition Features
Engines (Type 1)
Engine 73 Type 1 Seagrave 2020 Excellent 1500 gpm, 500 gal.

Engine 73A Type 1 Spartan 2014 Good 1500 gpm, 500 gal.

Engines (Type 3 or Type 6)
Engine 273 Type 2 Rosenbauer 2008 Good 750 gpm, 500 gal.

Engine 673 Type 6 Ford 2001 Fair 120 gpm, 500 gal.

Collective Apparatus Inventories
The following figure lists the frontline fleet inventories of the two agencies combined.

Collective Inventory of the Fire Districts’ Frontline Fleets (2022) Fire District EnginesA Aerials Ambulances Tenders WildlandB Others CCCFPD 49 11 50 3 23 24
C
Pinole 2 — — - 2 —
Totals: 51 11 50 3 25 24
A
Includes Type 1 only. BIncludes Type 2, 3 & Type 6. CApproximate. 125 of 955
17 In the preceding figure, the “Wildland” category represents Type 2, 3, and 6 apparatus. The “Others” category represents a broad range of vehicles from bulldozers to water craft.

Automatic and Mutual Aid
All agencies participate in local automatic aid agreements. Current automatic aid agreements with the Battalion 7 agencies and Richmond Fire Department will continue, and service will be provided by CCCFPD to those partner agencies. Additionally, local and statewide mutual aid is provided under local agreement or under the California Master Mutual Aid Agreement and will continue to be provided by CCCFPD under this contract.

Public Education Programs
CCCFPD provides a staffed Public Education Unit within the Fire Prevention Bureau. The unit provides the following programs which would be extended to the City of Pinole.  Carbon Monoxide Alarm installations  Injury and fall prevention  CPR courses  Juvenile fire-starter program
 Elementary School Fire Safety Programs  Smoke alarm installations  Exit Drills in the Home (EDITH)  CERT Fire training
 Eldercare and safety  Firewise Communities
 Fire extinguisher use  Wildland fire and evacuation preparedness  Fire safety programs
Support Services
Apparatus & Vehicle Maintenance
Contra Costa County Fire Protection District
The majority of Contra Costa County FPD’s fleet maintenance is performed internally by the District’s Apparatus Shop. The Fire Apparatus Manager supervises a Fire Service Coordinator, Driver/Clerk, and six Fire Equipment Mechanics (FEM). The FEMs are certified by the National Institute for Automotive Service Excellence (ASE) in vehicle repair and the California Fire Mechanics Academy (CFMA) to maintain fire apparatus.

Fire Prevention
CCCFPD has a fully staffed prevention bureau (“FPB”). The FPB provides annual inspections in compliance with state mandated inspection programs, high hazard occupancy inspections, fire code operational permit inspections, new construction plan review and inspections, fire sprinkler and fire alarm plan review and inspections, and specialized code enforcement inspections.
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18 New construction plan submittals and plan review services will be provided at the District’s main administrative offices in Concord. As with all other cities, FPB staff will coordinate with City Building Department staff for plan reviews, issuance of fire district permits, and field inspections related to new construction.

Annual occupancy inspections for compliance with state mandated programs will be performed by FPB Fire Inspectors. Non-mandated occupancy inspections will be performed in accordance with current FPB practices on a multi-year cycle. Additional inspections, such as those that may be required for issuance of city business license permits, will be coordinated with the city as needed.

Exterior hazard and weed abatement processes will remain with the City. FPB Inspectors will assist with inspections and recommendations for hazard reduction, hazard abatement, and wildfire mitigation. Abatement processes and implementation will remain with the City. The District will coordinate with the City on potential wildland fire mitigation grants that may be available to areas of the City.

Fire-Cause Determination & Investigation
CCCFPD has full-time staff who are certified peace officers with arresting powers and the capacity to perform all functions of a fire-cause investigation. The fire investigation team for CCCFPD conducted almost 900 investigations in 2020. Significant fires, those that include 2nd alarm or greater, fires that involve an injury or fatality, or those that are intentionally set will be investigated by the District’s Fire Investigation Unit. The Fire Investigation Unit will coordinate with the City Police Department on all investigations.

Proposed Service Delivery Plan
Service Overview
The District will provide fire, rescue, and first responder emergency medical services, including special operations capabilities, to the City of Pinole in a manner consistent with services provided in the existing Contra Costa County Fire Protection District. Full-time and full-service fire prevention and fire investigation services, along with internal apparatus and fleet maintenance programs, administrative and support services will be provided. An increase in service level due to the reopening of Fire Station 74 is anticipated within the first 90 days of the effective date of the contract.

Staffing
Additional firefighters and fire, rescue, and emergency medical services response capacity will be deployed as a result of this contract from Fire Station 74. This will double the 24-hour staffing of firefighters within the City. Existing fire prevention and administrative capacity in the District will be used to carry out related activities within the City under the scope of services outlined in the contract.
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19 Dispatch/Communications
There would be no changes to dispatch and emergency communications. There would be increased support provided by Contra Costa County Fire Protection District staff for radio and communication servicing, repairs, and radio programming under the contract.

Level of Demand
It is anticipated that immediately following the effective date of the contract demand for services, as defined by calls for service, would total the sum of the existing demand in the two service areas (City and District). In subsequent years, demand would likely increase within the city in conjunction with anticipated population increases, new development and infrastructure, and other factors influencing need for fire protection, rescue, and EMS services.

Response Times
Current response times would be significantly improved in the areas served by the PFD with the opening of Fire Station 74. As a result of this, the reliance on units from Rodeo-Hercules should be reduced, increasing response reliability and availability of those units. Response times within the surrounding areas of CCCFPD would also be improved by the reopening of Fire Station 74. Instances where CCCFPD or Rodeo-Hercules FPD stations are uncovered due to responses into Pinole will be reduced proportionally.

Automatic and Mutual Aid
CCCFPD will continue to support automatic and mutual aid commitments at the local level. The ability to respond to regional and statewide mutual aid would be enhanced by additional capacity and personnel.

Public Outreach/Education
Public education and public information services would be provided with dedicated staff of the already existing Contra Costa County Fire Protection District.

Fire Prevention
Fire prevention will be provided through the District’s Fire Prevention Bureau with its 22 Fire Inspectors and Fire Prevention Captains. Fire investigations will be provided through the fulltime dedicated staff of the District’s Fire Investigation Unit consisting of four uniformed Fire Investigators and one Captain. CCCFPD will conduct annual occupancy inspections of all statemandated facilities within the city and provide new construction plan review and related inspections for all new construction projects within the city.

Fire Code Adoption
The City already adopts a fire code with amendments that are identical to CCCFPD. CCCFPD will work with city staff to effect the adoption of the fire code for the triennial period with an effective date of January, 2023.
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20 Administration
CCCFPD would provide a 13% administrative/support staffing to line staffing based on current staffing levels. This is consistent with similarly sized organizations.

Maintenance
Vehicle maintenance would be performed by the Contra Costa County Fire Protection District apparatus shop. This will increase consistency and uniformity in quality by ASE certified fire mechanics.

Training
Training of recruit firefighters will be conducted through the Contra Costa County Fire Protection District academy. This state Accredited Local Academy will increase consistency in the training provided and the quality and capability of the recruits who will become firefighters serving the various communities of the combined organization upon graduation.

Continuing training will be delivered using the systems developed under the Contra Costa County Fire Protection District’s Training Division.

In 2021 the Training Division increased staffing by adding one 40-hour Training Captain and one training specialist. In mid-2022, the Training Division will increase the deployment of Shift Training Captains, who also provide incident based safety officer response, from one to two per 24-hour shift.

Personnel/Recruitment
Recruitment processes will be standardized under the current practices of the Contra Costa County Fire Protection District based on existing district practices and policies Level and Range of Proposed Services
Capacity Availability
Current capacity will be increased in the areas served by the contract. The previously closed fire station will be reopened serving the City of Pinole and adjoining communities under automatic aid agreement. Capacity within the fire prevention bureau will be evaluated on an ongoing basis, as is the current practice, to match staffing with service demand, particularly given potential development and new construction trends.

Willingness to Serve
Contra Costa County Fire Protection District is prepared to serve the areas under the proposed contract. The ability to serve the new areas is complemented by additional personnel and the reopening of Fire Station 74 through dedicated Measure X funding. 129 of 955
21 Service Adequacy
The level of service provided in the City of Pinole will be consistent with current CCCFPD practices, policies, and standards for fire, rescue, and emergency medical services, as well as fire prevention, fire investigation, and training.

Infrastructure Needs/Planned Improvements
There are no significant infrastructure needs.

Facilities
The City will retain ownership of all facilities (Fire Station 73 & Fire Station 74) with the District leasing those facilities for $1 per year. The City will be responsible for utilities, maintenance, and repair costs of the facilities. The Fire District Facilities Manager will work closely with city staff regarding necessary repairs, ongoing maintenance, and other facility related issues. There are no significant upgrades anticipated for either facility.

Apparatus
The District will provide one Type 1 engine and one wildland engine (Type 3 or Type 6) at each fire station. An appropriate vehicle for the Battalion Chief will be provided. Reserve apparatus will be provided, as necessary, due to maintenance or out-of-service issues through the existing District fleet.

The City will transfer ownership of the apparatus and vehicles to the District. The District will be responsible for all maintenance, repair, and scheduled replacement of the apparatus in a manner consistent with District standards. Replacement costs of apparatus are factored into the annual contract amount and it is anticipated the District will need to replace one Type 6 engine within the next 24 months, one Type 3 engine within the next five years, and one Type 1 engine within five to seven years. The total anticipated cost of replacing this apparatus is approximately $1,650,000.

Equipment
The City will transfer ownership of all fire, rescue, and emergency medical equipment to the District. The District will be responsible for all maintenance, repair, and scheduled replacement of the equipment in a manner consistent with District standards.

Transition Plan
Apparatus and Equipment Transfer
All PFD equipment and apparatus existing as of the contract commencement date which are owned by the City of Pinole shall be transferred to the Contra Costa County Fire Protection District under the conditions outlined in the contract for service. 130 of 955
22 Fire Station 74 Staffing
It is anticipated Fire Station 74 will be reopened on March 1, 2023 to coincide with the addition of personnel through the CCCFPD Academy 58 which graduates in mid-February, 2023.

Personnel and Employment Agreements
All personnel from PFD at the Battalion Chief, Captain, Engineer, and Firefighter rank are planned to be absorbed into CCCFPD as of the effective date of the contract. Personnel will be transitioned into positions matched with their current job descriptions. CCCFPD will work with impacted labor groups and County HR representatives to determine appropriate salary steps, actions, and processes to perform a smooth transition of all impacted personnel.

Information Required Pursuant to Government Code Section 56134(e)
1) The total estimated cost to provide the new or extended fire protection services in the affected territory.

The total costs are estimated at $7.5 million annually based on FY 2022-23 budget. 2022-23 2023-24 2024-25 2025-26 2026-27 2027-28
Budget Forecast Forecast Forecast Forecast Forecast
Personnel Costs $2,540,000 $2,616,200 $2,694,686 $2,775,527 $2,858,792 $2,944,556 Employee Benefits $3,461,572 $3,738,498 $4,037,578 $4,360,584 $4,709,430 $5,086,185 Materials and Supplies $173,872 $187,782 $202,804 $219,029 $236,551 $255,475 Equipment Replacement $305,000 $320,250 $336,263 $353,076 $370,729 $389,266 Communication Center
Allocation $172,498 $179,398 $186,574 $194,037 $201,798 $209,870 Administration Allocation $648,044 $686,927 $728,142 $771,831 $818,141 $867,229 Total Operating Costs $7,300,986 $7,729,054 $8,186,046 $8,674,082 $9,195,442 $9,752,581 Measure X Allocation*
-
$2,000,000
-
$2,080,000
-
$2,163,200
-
$2,249,728
-
$2,339,717
-
$2,433,306
Net Costs of CCCFPD
Contract $5,300,986 $5,649,054 $6,022,846 $6,424,354 $6,855,725 $7,319,275 *Includes maximum 4%
escalator for Measure X
contributions
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23 2) The estimated cost of the new or extended fire protection services to customers in the affected territory.

It is estimated that extending fire protection services would increase current costs by $0 - $250,000. The current Pinole fire budget of approximately $5.5M annually, augmented by the annual $2M County Measure X allocation, would fund $7.5M annually for extended services under the proposed contract. Approximately $250,000 of costs related to building maintenance, utilities, and fire fuel (vegetation) management will remain with the City; however, these costs are balanced by terms in the contract that benefit the City (such as vehicle replacement), which are not currently included in the City’s annual fire budget forecasts. There are no new costs anticipated to be borne by the residents of the City of Pinole under the conditions contained in the contract. Existing revenue sources of the City combined with an annual Measure X contribution are estimated to cover the costs of services. 3) An identification of existing service providers, if any, of the new or extended services proposed to be provided and the potential fiscal impact to the customers of those existing providers.

The City of Pinole, through its fire department, provide existing fire protection services except that Fire Station 74 has been closed since 2011. There are no new costs anticipated to be borne by the residents of the City of Pinole under the conditions contained in the contract. Existing revenue sources of the City combined with an annual Measure X contribution are estimated to cover the costs of services.
4) A plan for financing the exercise of the new or extended fire protection services in the affected territory.

The extended fire services under the proposed contract will be funded by the City’s payment of the anticipated direct and indirect costs incurred by the District for providing fire protection services in the City (which is anticipated to be similar to the approximate $5.5M spent annually by the City on fire protection services), augmented by a $2M allocation of Measure X funds from the County, adjusted annually to offset cost increases. 5) Alternatives for the exercises of the new or extended fire protection services in the affected territory.

None – extended services and Measure X funding to support the same are contingent upon the contract agreement.
6) An enumeration and description of the new or extended fire protection services proposed to be extended to the affected territory.

Under the proposed contract for out-of-area fire protection services provided by the District, the District would provide fire, rescue, and emergency medical services (EMS) response services, fire prevention and fire investigation services, training, and typical fire department administrative services within the City limits. The District would continue operating the currently operational City Fire Station 73 and would reopen the currently closed City Fire Station 74. The District would staff each station as described in the service plan to improve fire, rescue, and emergency medical services in the areas served by the contract. 132 of 955
24 7) The level and range of new or extended fire protection services.

Under the proposed contract, the District would provide the extended services (i.e., fire, rescue, and emergency medical services (EMS) response services, fire prevention and fire investigation services, training, and typical fire department administrative services within the City limits) at the same levels of service as provided by the District within its own service area. The District would continue operations at the one fire station that is currently open within the City, Fire Station 73, and reopen and staff the currently closed second fire station, Fire Station 74, in the City. This level of service would represent an increase in fire, rescue, and emergency medical services in the City (and the immediately surrounding unincorporated areas) due to the reopening of station 74 and increased staffing. 8) An indication of when the new or extended fire protection services can feasibly be extended to the affected territory.

Projected implementation of extended services to the affected territory is March 1, 2023 (the “operational date”).
9) An indication of any improvements or upgrades to structures, roads, sewer or water facilities, or other conditions the public agency would impose or require within the affected territory if the fire protection contract is approved.

None.
10) Determination supported by documentation that the proposed fire protection contract meets either of the 25% thresholds.

It is anticipated that the current City employees with the Fire Department, with the exception of the Fire Chief (who will retire) and one administrative support position (who will remain with the City), will become District employees upon the operational date of the proposed contract and the reopening of Pinole Station 74, thus exceeding the 25% threshold for affected employees. Additionally, under the proposed contract, responsibility for providing fire protection services will be transferred from the City to the District in 100% of the area within City boundaries, which exceeds the 25% threshold for providing fire protection services within the jurisdictional boundaries of the City. 133 of 955

ATTACHMENT D
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October 5, 2022
This Independent Comprehensive Fiscal Analysis (“analysis”) was prepared for the City of Pinole, California (“City”) as its officials navigate the decision of whether to enter a cooperative shared services fire protection agreement with Contra Costa County Fire Protection District (“CCCFPD”). Per the Contra Costa County Local Agency Formation Commission (“LAFCO”), the initiation process includes a variety of required steps and due diligence items the City of Pinole must complete prior to applying for collaborative fire protection. Specifically, the State of California Government Code Section 56134 requires a submission of an independent fiscal analysis to ascertain whether the financial terms of the service contract are feasible and sustainable. The specific scope of this independent fiscal analysis must review and document all the following:

1. A thorough review of the plan for services submitted by the public agency.

2. Analysis of how the costs of the existing service provider compare to the costs of services provided in service areas with similar populations and of similar geographic size that provide a similar level and range of services and make a reasonable determination of the costs expected to be borne by the public agency providing new or extended fire protection services; and

3. Any other information and analysis needed to support the proposal.

4. Evaluation that the proposed affected territory is expected to receive revenues sufficient to provide public services and facilities and a reasonable reserve during the three fiscal years following the effective date of the contract or agreement between the public agencies to provide the new or extended fire protection services.

Our analysis was completed using budgetary, census, and departmental statistics that were publicly available on the individual units’ websites or data portals. We completed a thorough review of the plan for service and supporting documents during the month of June 2022 and communicated with city, county, and fire leadership officials on clarifying questions at that time over multiple worksessions. A list of the comparative agencies was selected with the assistance of city officials on June 15th . Assumptions were used in the estimation of certain direct and indirect costs and are noted within the contents of the report.

It is our goal to be conservative in forward looking estimates while also illustrating what the potential fiscal impact may likely be from the proposed cooperative fire service plan. I can be reached at [email protected] or at (317) 476-2826 for questions or additional information as needed.

Sincerely,
Adam D. Stone
Adam D. Stone, CPA
Stone Municipal Group | Municipal Advisor | Principal-in-charge STONE MUNICIPAL GROUP 1
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Table of Contents
Executive Summary 3
Purpose of Report 3
How to Use Navigate & Use Report 3
Plans and Document Review 4
Analysis of Existing Service Provider Cost 5
Comparison of Existing Service Provided to Similar Entities 6 Entity Selection 6
Entity Comparison 6
Budget Comparison 7
Scenarios Overview 8
Scenario 1 - Continuation of Current Service Level 8
Expected Costs of Current Service Level (“Most Likely”) 8 Current Service Level Sensitivity Analysis 9
Scenario 2 – Cooperative Fire Service Agreement with CCCFPD 10 Expected Costs of Cooperative Fire Agreement (“Most Likely”) 11 Cooperative Fire Agreement Sensitivity Analysis 12
Additional Information & Analysis 13
Cost Comparison of Scenarios 13
Contra Costa County Fire Protection District Administrative Cost 14 Contra Costa County Fire Protection District Revenue Sufficiency 14 City of Pinole Financial Feasibility & Sustainability 15 CalPERS Fire Department Unfunded Accrued Liability 17
Budget Impacts - Remaining Items 18
Budget Impacts - Transitioning Items 19
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Executive Summary
In November, 2021 the County Board of Supervisors approved certain expenditures of Measure X funds.

Included in this decision was an intent to provide $2 Million in funding from Measure X to assist in providing full funding, when combined with City of Pinole (“PFD”) funds, to reopen Fire Station 74 in Pinole Valley as part of a contract for fire services to be provided by Contra Costa County Fire Protection District (“CCCFPD”) for the full operation of fire, rescue, emergency medical, fire prevention, training, and administration to the City of Pinole.

Background information related to the contract for service:
● Fire Station 74 in Pinole Valley was closed in 2012.
● The proposed service plan will provide for the reopening and staffing of Fire Station 74.

Purpose of Report
This report was prepared to assist the City of Pinole with the Contra Costa County Local Agency Formation Commission (“LAFCO”) process related to contracting with another unit or agency of local government to provide fire contractual services. An independent fiscal report is required and outlined by the State of California Government Code Section 56134 to ascertain whether the financial terms of the service contract are feasible and sustainable. To comply with the requirements, our firm completed a detailed and thorough review of the proposed service plan, comparable costs, and other documentation that outlines the proposed plan to contract with CCCFPD to provide fire service to City of Pinole residents.

How to Use Navigate & Use Report
This report is prepared for external technical financial review purposes and is not intended to argue one method over another. This report does not make a recommendation or advice regarding negotiation terms, plan for service proposals, or details into day-to-day fire operations. This report is intended to project the most likely budget and financial outcomes of the options available to the City of Pinole and provide stakeholders with information to make an informed decision. As such, readers of this report are encouraged to review the table of contents to select areas of interest. The report is organized into broad sections to comply with California Government Code Section 56134.

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Plans and Document Review
This report was prepared using estimates, calculations, and management plans that were made available during June and July 2022. Specifically, we completed a detailed review of the CCCFPD proposed station budgets, proposed Pinole Fire Plan for Services, proposed staffing standards, staffing growth plans, position cost schedules, and operating statistics.

In addition to the plans for service and management reports, we reviewed the City of Pinole’s line-item budgetary and financial documents for fiscal years 2018-2022. We also reviewed the most recent CalPERS Annual Valuation Report for Pinole City safety. (i.e. Safety & PEPRA Fire Safety) The FY21 report was not yet published at the time of this report. Therefore, all CalPERS related estimates are dated as of June 30, 2020.

Comparative entity data was sourced through publicly available data on comparable entities which included annual adopted budgets, annual reports, and Census data. For the comparison entities, major assumptions include Fire runs (incidents), staffing levels, and budgetary estimates.

Certain assumptions were made to project future cost of operations under different scenarios. To assist in this forecast, we enlisted the help of the report review team to help create growth plans into our forecast.

The core report review team consisted of the following individuals:
● City of Pinole
○ Chief Chris Wynkoop
○ Ms. Markisha Guillory
● Contra Costa County Fire Protection District
○ Chief Lewis Broschard
● Contra Costa County
○ Mr. Adam Nguyen
○ Mr. Paul Reyes
With the help of this group, we were able to prepare a seven-year capital improvement plan for the City of Pinole Fire Department that incorporates apparatus replacement, facility improvements, and necessary equipment needs. While an estimate, this plan will allow us to better compare the scenarios as they more accurately reflect the complete cost of operating the Fire Department long term. Note, the CCCFPD budget scenario assumes an annual programmatic apparatus replacement of $250,000 per year. The City of Pinole Capital Improvement Plan (“CIP”) assumes a non-programmatic “pay-as-you-go” apparatus replacement project which results in large swings in the annual capital budget. Comparing the CCCFPD to the average annual capital outlay amount creates a better comparison. The average across all categories is $417,286 per year including building improvements. (i.e. FY 24 - FY 30) STONE MUNICIPAL GROUP 4
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Analysis of Existing Service Provider Cost
The City of Pinole Fire Department Budget is sourced by multiple governmental funds. The funds reviewed are General Fund, 2006 Measure S Fund, 2014 Measure S Fund, Equipment Reserve, and the Growth Impact Fund. We reviewed combined actual and budgeted results for fiscal years 2018, 2019, 2020, 2021, 2022, and 2023. Below is a categorical summary which shows combining current and historic results for the Fire Department.

Source: City of Pinole financial reports and budget documents provided July 14, 2022. (unaudited) STONE MUNICIPAL GROUP 5
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Comparison of Existing Service Provided to Similar Entities Entity Selection
Part of the LAFCO process is to conduct comparative cost analysis. For this report, we selected comparison entities that were similar in population and geographic size. (i.e., land area) Additionally, we looked at entities that provide a similar range and level of service. We selected fire runs, number of stations, and staffing level as indicators for range and level of service. Lastly, we selected comparable entities of differing government structure and fire service. As each entity is different, the data for each was normalized to produce as close to an “apples-to-apples” comparison as possible. Therefore, the data was normalized on per capita, per full-time firefighter, and per run incident metrics to help in the comparability. It should be noted that comparing public safety departments on an apples-to-apples basis is extremely challenging as run data can be grossly under or over inflated due to different entities counting runs differently. (e.g. EMS, apparatus dispatched, etc.) For the purposes of this report, we are taking the publicly available data at face value and make no opinion on the type of runs reported.

Entity Comparison
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Comparison of Existing Service Provided to Similar Entities (Cont.) Budget Comparison
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Scenarios Overview
For the comparison of current service level (“Scenario One”) and CCCFPD cooperative agreement (“Scenario Two”) we made several significant assumptions. First we calculated the most likely cost projections under the two primary options being considered; 1.) Continuation of “in-house” Pinole Fire Department service to operate one station, and 2.) Contractual Service for Fire Service with CCCFPD to operate two stations. Within each scenario we also calculated the worst case and best case scenarios to illustrate the sensitivity based on different assumptions. (e.g. inflation, Measure X allocations, economic conditions)
Scenario 1 - Continuation of Current Service Level
In this scenario we assumed no transition to CCCFPD and no change in existing level of service. (i.e. stations or staffing) This scenario forecasts operating and capital expenditures for the budget periods FY 2022/23 – 2029/30.
● Budget estimates based on FY 2022-23 Fire Department combined budget of $5,514,428. (General, Measure S 2006, and Measure S 2014 funds.)
● Assumes no growth in existing staffing or funded staffing levels. (17 current FTEs) ● Assumes six percent (6%) annual increase in salary and wages. (e.g., 3% cost of living increase and 3% market equity increase)
● Assumes employee benefits remain constant as a percentage of gross salaries and wages. ● Assumes a stair-stepped inflation of eight percent to five percent (8% - 5%) annual increase in materials, supplies, and services due to rising prices. ● Assumes an initial $146,250 capital outlay expenditures. (e.g., equipment replacement, vehicle replacement, and station improvements)
● Assumes a seven-year capital improvement plan of $2,925,000, average of $417,286 per year including facility and computer equipment. The average vehicle and apparatus replacement need is estimated at $292,875 per year. To help with apples-to-apples comparison we have assumed a level sinking fund replacement to smooth out large budget differences in future years. ● Assumes five percent (5%) annual increase in capital expenditures due to rising prices. ● Includes communication and weed abatement.

Expected Costs of Current Service Level (“Most Likely”) If the City of Pinole chooses to not enter into a cooperative fire agreement with CCCFPD, 100% of current employee salary and employee benefit costs will remain in the City’s budget. The current level of service does not include any of the recommendations outlined in the capital improvement plan.

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Current Service Level Sensitivity Analysis
For scenario one we projected future expected costs using the most likely, worst case, and best case assumptions. Across the different potential outcomes, we assumed different sets of future inflation and economic assumptions.

We calculated the future expected budget outcome and annual budget variance between the CCCFPD scenario two and City provided service scenario one cost forecasts. These are intended to provide the City of Pinole a reasonable range of likely future cost of service as well as the favorable (unfavorable) results of each.

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Scenario 2 – Cooperative Fire Service Agreement with CCCFPD In this scenario we assumed a complete staffing transition to CCCFPD and that the City would effectively outsource 100% of its going forward costs for fire protection staffing to CCCFPD. This scenario forecasts operating and capital expenditure for the budget periods 2022-23 through 2029-30. ● Budget estimates based on FY 2022-23 Fire Department combined budget of $5,514,428. (General, Measure S 2006, and Measure S 2014 funds.)
● Assumes Pinole Fire would transfer all positions, equipment, and apparatus to CCCFPD at no cost.
● Assumes existing (1) active and (1) inactive Fire Stations would remain as a fixed capital asset of the City of Pinole. Facility repairs and replacement to be the responsibility of City of Pinole ● Assumes (1) inactive station would be activated and staffed by CCCFPD to restore the level of service achieved in the past.
● Assumes Pinole Fire would continue to be responsible for following existing budgetary items moving forward: Fire allocated CalPERS Unfunded Accrued Liability (“UAL”), abatement services, station utilities, station repairs and maintenance, legal charges, and property liability.

Total remaining budgetary cost estimated at $753,489 or 13.66% of current budget. ● Assumes CCCFPD staffing of (3) Captains, (3) Engineers, and (3) Firefighters per station.

Pass-through and/or of other CCCFPD related expenditures. (e.g. employee benefits, operating expenses, apparatus replacement)
o Assumes direct station staffing related costs of $3,000,786 per station. o Operating cost of $114,436, and equipment replacement of $125,000 per station. o Assumes $172,498 in allocated communication center dispatch cost. Assumes the communication center allocated cost grows at 4% per year. o Assumes a shared services administrative cost of 10% billed to the City of Pinole. The administrative cost will be charged on all budgeted costs minus the communication center charges. The basis for the 10% administrative cost is the annual adopted budget, of which the City of Pinole will be made known of increases or decreases year to year. A list of indirect costs are included in the additional information section of this report. ● Assumes initial gross annual contract amount of $7,300,987 or $441,749 per month beginning January 1, 2023 net Measure X. Cost to be billed out monthly based on the annual budget less the two million in Measure X allocation. Future budgets are subject to change and appropriation by the fiscal body.
● Assumes $2M in Measure X allocated with an annual escalator of 2.30%. While the allocation is not expressly stated in the contract beyond the initial 5-year contract term, we carried forward the assumption throughout the 7-year projection.
● One-time budgetary impact to the City of Pinole File Department in the amount of $52,969.63 to cover the payout of accrued vacation.
● Assumes fiscal impact under full budget year scenario. Contract likely to become effective mid-fiscal year (January 1, 2023) and therefore the initial cost will be based on the remaining six fiscal months of budget year 2023.
● Assumes that from the date CCCFPD hires such staff, CCCFPD will be responsible for all salaries, employee benefits, including contributions for retiree-related benefits, and future accruals of unfunded liability for retiree-related benefits. ● Assumes the City of Pinole will be responsible for 100% of retiree-related and other post-employment benefits, including accrued CalPERS unfunded liability for retiree-related benefits, for such staff for the period during which they were employed by the City of Pinole.

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● Assumes personnel costs at the top step for each class of employee. ● Assumes a stair-stepped inflation of eight percent to three percent (8% - 3%) annual increase in materials, supplies, services, and personnel services.

Expected Costs of Cooperative Fire Agreement (“Most Likely”) If the City of Pinole enters into a cooperative fire agreement with CCCFPD, 100% of current employee salary and employee benefit costs will be converted into a contractual service expenditure. The initial contract value is based on the budgeted cost of the positions and it is expected to increase over the contract period as cost-of-living adjustments are approved. To recover indirect administrative costs, CCCFPD is expected to charge an administrative cost of 10%. This administrative cost is included within the initial proposed two-station budget of $7,300,987. Adjusted for the Measure X allocation, the initial budget to be billed to the City of Pinole is anticipated to be $5,300,987, or $441,749 per month. In addition to the personnel costs, the City of Pinole will continue certain services and supplies costs associated with the department.

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Cooperative Fire Agreement Sensitivity Analysis
For scenario two we continued with projecting costs using the most likely, worst case, and best case assumptions. In addition to inflation and economic assumptions, we added a worst case scenario where the Measure X income tax allocation increases at a slower rate. (i.e. 2% vs. 2.3%) This change materially affected the future net budget impact to the City of Pinole and is one of the single largest future cost variables. Under the best case scenario, we assumed Measure X would continue for every year services are contracted and would increase annually at a reasonable growth rate.

We calculated the future expected budget outcome and annual budget variance between the CCCFPD scenario two and City provided scenario one cost forecasts. These are intended to provide the City of Pinole a reasonable range of likely future cost of service as well as the favorable (unfavorable) results of each.

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Additional Information & Analysis
Cost Comparison of Scenarios
Based on the most likely assumptions and the annual sinking fund for capital outlays, the CCCFPD (“scenario two”) option provides the lowest net budget impact to the City of Pinole in FY 2023-24 (“Yr 1”) . Over time, the CCCFPD contract is expected to cost less than the current operations by $108,800 per year on average. This amount assumes the Measure X allocation grows at 2.3% for all years a contract for service is in place. Note the City’s current staffing of fifteen full time equivalents (15 firefighters) supplies one station currently, whereas CCCFPD staffs two stations.

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Contra Costa County Fire Protection District Administrative Cost Below is a list of indirect costs that together represent the rationale behind the 10% proposed administrative cost.
● Administration - Fire Chief, Deputy Fire Chief, Fire Marshal ● Public Information Officer
● General and automobile liability
● Information Technology Support and Infrastructure
● Payroll, Accounting, Fire District Human Resources
● Fire Investigation Services
● Training Administration, Vector Solutions
● EMS Training and Quality Improvement
● County General (legal, County Administration, Auditor) Charges Contra Costa County Fire Protection District Revenue Sufficiency For this report, we assume year one (“Yr 1”) for scenario two is FY 2023-24. Based on the assumptions, the anticipated monthly CCCFPD cost of service incurred and billed to Pinole Fire Department during the first three years would be as follows:

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City of Pinole Financial Feasibility & Sustainability
The City of Pinole maintains five separate funds which have supported the Fire Department over the past few fiscal years. Two of those funds relate to the City of Pinole’s Measure S funds. (i.e. 2006 & 2014) For the 2023 fiscal year budget, the total Measure S funds are estimated at $4,902,000. Historically, the Fire Department has received approximately 25%, or $1,039,873, of the total Measure S funding. The City of Pinole’s Measure S funds do not currently have a predetermined sunset or expiration date. As of the FY 2023 budget, there were $4.9M of Measure S funds appropriated, which represented 13% budget growth year over year.

Source: City of Pinole Budget (FY 2021-22, FY 2022-23, & ACFR 06/30/2020 & 06/30/2021) Looking beyond the Measure S funds, the Fire Department has averaged $187,748 in department specific revenues that are expected to remain as a local funding source.

Additionally each year the City Finance Department prepares a detailed budget and annual report that has certain financial policies to drive decisions. One such policy is a general reserve policy of 50%. That reserve level is currently met and the last audited financial statement reflects a General Fund Unassigned balance of $12,488,526. This amount is up 15% year over year and creates an unrestricted funding source to help stabilize operations in a period of budget contraction.

Based on the anticipated lower cost of scenario two, Measure S revenues, Measure X allocation, and the annual appropriation process, it appears that the City of Pinole has the financial means to enter into an agreement if their fiscal body finds that appropriate.

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City of Pinole Financial Feasibility & Sustainability
The City of Pinole Fire Department’s actual expenditures have increased an average of 10% per year between FY 2018 and FY 2022. Based on the current assumptions, the annual cost escalation under scenario one is 7.09%. Comparatively, scenario two is expected to grow by

7.32% per year based on the current assumptions. Below is a comparison of actuals versus projected future cost under both scenarios. To be conservative with forward estimates, the forecast for both scenarios include a plus or minus 10% margin of safety.

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CalPERS Fire Department Unfunded Accrued Liability
Using the most recent June 30, 2020 valuation report the cumulative unfunded accrued liability (UAL) is $22,253,952 across the PERS-PEPRA Safety Fire and PERS-Safety plan. In order to allocate the amount retained by the City of Pinole, the percentage of full-time Fire Department employees vs total safety related positions could be used. At the time of this report, the pro rata portion of total CalPERS unfunded liability and amortization payments was allocated to the Fire Department was 23%. Therefore, for the 2022-23 budget cycle the remaining UAL budget impact that would remain with the City of Pinole is estimated to be $406,927.

PERS-PEPRA Safety Fire:

PERS-Safety:

UAL Cost Projection:

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Budget Impacts - Remaining Items
Below is the current budget for the Pinole Fire Department itemized by expenditure account. Were the City to enter a contract for service with CCCFPD, certain expenditure amounts would remain the responsibility of the City of Pinole and be incurred above and beyond the contractual services agreement cost. The current 2022-23 budget includes $1,105,953 for 41004 - Employee Benefits PERS Retirement.

This amount includes the CalPERS Unfunded Accrued Liability (“UAL”) related to the Fire Department.

Under scenario two, a portion of that budget expense would become the responsibility of Contra Costa County. However, the UAL portion would remain the financial responsibility of the City of Pinole.

Therefore, we have estimated the allocation and incorporated the remaining UAL component within the retained budgetary expenditures.

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Budget Impacts - Transitioning Items
Below is the current budget itemized by the expenditure account. The expenditure accounts are anticipated to be included within the cost of contractual services agreement cost.

END OF REPORT
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ATTACHMENT E
1 CITY OF PINOLE

RESOLUTION OF THE CITY COUNCIL OF THE CITY OF PINOLE APPROVING

AN AGREEMENT FOR FIRE PROTECTION SERVICES WITH THE CONTRA

COSTA COUNTY FIRE PROTECTION DISTRICT (CCCFPD), AUTHORIZING THE

CCCFPD TO SUBMIT AN APPLICATION TO THE CONTRA COSTA COUNTY

LOCAL AGENCY FORMATION COMMISSION TO PROVIDE FIRE PROTECTION

SERVICES IN PINOLE, AND AUTHORIZING THE CITY MANAGER TO

NEGOTIATE AND EXECUTE OTHER RELATED DOCUMENTS NECESSARY TO

IMPLEMENT THE CONTRACT FOR SERVICES
WHEREAS, the City Council previously directed staff to engage in dialogue with the Contra Costa County Fire Protection District (“CCCFPD”) regarding closer cooperation and partnership; and
WHEREAS, the City has two fire stations, Station 74 and Station 73, but Station 74 has been closed since 2011 due to lack of funding; and
WHEREAS, CCCFPD is an all-hazards fire district providing traditional fire protection, wildland firefighting, emergency medical services, Advanced Life Support (ALS), ambulance transport, various special operations, and a comprehensive life-safety and prevention program; and
WHEREAS, CCCFPD currently maintains approximately 500 funded positions, and deploys 34 staffed apparatuses from 31 staffed fire stations located throughout its service area; and
WHEREAS, voters in Contra Costa County passed Measure X in November 2020, which adopted a 20 year sales tax increase, the proceeds of which could be used to fund expanded fire protection, health, and other services; and WHEREAS, the County Measure X Advisory Board recommended $2 million dollars be allocated toward reopening Pinole Station 74 through an integrative agreement with CCCFPD; and
WHEREAS, the City and CCCFPD have undertaken a multi-month long process to identify an arrangement through which CCCFPD could provide fire protection services in Pinole, and determined that CCCFPD operating both Station 73 and 74 was the best and most feasible approach; and
WHEREAS, the City and CCCFPD have negotiated an Agreement for Fire Protection Services (the “Proposed Agreement”) whereby CCCFPD will operate both Station 73 and 74, and all current uniform Pinole Fire Fighters, except for the Fire Chief, will become employees of CCCFPD; and
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2 WHEREAS, the cost for CCCFPD to operate both stations, plus related City expenses, will be roughly equal to the amount of City funds normally allocated to the Fire Department plus the $2 million from Measure X; and
WHEREAS, the Contra Costa County Board of Supervisors has adopted Resolution No. 2022/332, whereby it allocated $2 million of Measure X funding for the reopening of Station 74 for each fiscal year through FY 2027/28, with the Measure X allocation to be adjusted annually beginning in Fiscal Year 2023/24 by the percentage change in the Consumer Price Index-All Urban Consumers for the San Francisco-Oakland-Hayward Area for the twelve-month period ending with the February index of the calendar year in which the adjustment is made, but not to exceed 4 percent per year; and
WHEREAS, in order for CCCFPD to provide fire protection services within the City of Pinole, State law requires that the Contra Costa County Local Agency Formation Commission (“LAFCo”) approve the proposal; and
WHEREAS, in order for an application to be approved by LAFCo, the City must first authorize CCCFPD to submit the application; and
WHEREAS, the application also requires the City and CCCFPD to both execute a side letter with Local 1230, the bargaining unit representing the firefighters impacted by the Proposed Agreement; and
WHEREAS, the Stone Municipal Group has undertaken an independent fiscal analysis to analyze the impacts of the proposed contract, and that analysis has concluded that the City has the fiscal ability to enter into and sustain an agreement with CCCFPD to provide fire and emergency response services; and
WHEREAS, the financial analysis showed that the City will pay only modestly more, when accounting for the allocation of Measure X funding, for CCCFPD to operate both Stations 73 and 74 compared to the City’s current cost to operate only one station because CCCFPD achieves economies of scale and scope, while reducing administrative overhead; and WHEREAS, the Proposed Agreement is for an initial term of five years, which may be extended for an additional five year term by mutual written agreement of the City Manager and the CCCFPD Fire Chief, with each party retaining the authority to terminate the agreement with 1 year’s notice; and
WHEREAS, the City will retain ownership of Station 73 and 74, but the stations will be leased to CCCFPD for a nominal amount and the City responsible for ongoing maintenance, with such lease agreements to be negotiated by the City Manager; and WHEREAS, under the Proposed Agreement, the City will transfer ownership of its existing apparatus and equipment to CCCFPD, and CCCFPD will be responsible for all maintenance, repair, and scheduled replacement of the apparatus in a manner consistent with CCCFPD standards; and
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3 WHEREAS, the Proposed Agreement would provide increased service to Pinole residents, by improving response times, and significantly increasing the percentage of calls which meet the City’s target response time; and
WHEREAS, the Proposed Agreement will provide the City access to CCCFPD’s greater operational resources, including specialized rescue and firefighting personnel and equipment; and
WHEREAS, greater fire protection services in Pinole would also help accommodate for the scarcity of West County hospital emergency room services since the closure of Doctor’s Medical Center in Pinole, which has increased the reliance on firefighters as first-line medical assistance; and
WHEREAS, the City Council considered a draft proposed agreement at a special City Council meeting held in workshop format on September 13, 2022; and WHEREAS, the City Council has determined that entering into the proposed Agreement with CCCFPD will improve the public health, safety, and welfare of the residents of Pinole and surrounding areas; and
WHEREAS, the City Council desires to approve the Proposed Agreement and authorize the City Manager to take other related actions.

NOW, THEREFORE, BE IT RESOLVED that the Council of the City of Pinole hereby declares as follows:

1. The above recitals are true and correct, and incorporated into this Resolution.

2. The Agreement for Fire Protection Services with the Contra Costa County Fire Protection District is approved. The City Manager is authorized to execute the Agreement with such minor changes as approved by the City Attorney.

3. The Contra Costa County Fire Protection District is authorized to submit an application to Contra Costa Local Agency Formation Commission to provide fire protection services in Pinole.

4. The City Manager is authorized to negotiate and execute such other agreements and documents necessary to implement the contract for services, in a form approved by the City Attorney, including but not limited to lease agreements for Stations 73 and 74 as well as a Side Letter with Local 1230.

PASSED AND ADOPTED at a special meeting of the Pinole City Council held on the 10th day of October, 2022, by the following vote:

AYES: COUNCILMEMBERS:
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4 NOES: COUNCILMEMBERS:

ABSENT: COUNCILMEMBERS:

ABSTAIN: COUNCILMEMBERS:

I hereby certify that the foregoing Resolution was introduced, passed, and adopted on the 10th day of October, 2022.
____________________________
Heather Bell, CMC
City Clerk
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CITY COUNCIL
REPORT
DATE: SEPTEMBER 13, 2022
TO: MAYOR AND COUNCIL MEMBERS
FROM: CHRIS WYNKOOP, FIRE CHIEF
SUBJECT: POTENTIAL CONTRACT FOR FIRE PROTECTION SERVICES WITH

CONTRA COSTA COUNTY FIRE PROTECTION DISTRICT (CCCFPD),
INCLUDING THE REOPENING OF PINOLE FIRE STATION 74

RECOMMENDATION
City staff recommends that the City Council receive information on a draft potential contract for fire protection services (fire prevention, suppression, and emergency medical response) with the Contra Costa County Fire Protection District (CCCFPD, “Con Fire”), including the reopening of Pinole Fire Station 74, receive public input, and provide direction to City staff on changes to contract provisions that the City Council would like, if any.

BACKGROUND
For most of its history, the City of Pinole has operated just one fire station (Station 73).

The City briefly operated a second fire station (Station 74), from 2003 until 2011. The second station was closed due to lack of funding. Since the closure of Station 74, the City has explored different options for reopening the station or otherwise expanding fire protection services. The City has commissioned multiple studies of its fire service model and funding options, including surveying the public. The most recent study was conducted in November 2019 by Emergency Services Consulting International (ESCI).

Based on the ESCI study and other research, City staff recommended in March 2021 that the City increase staffing in the Pinole Fire Department to provide more robust services and engage in deeper dialog with CCCFPD regarding opportunities to more closely collaborate in order to expand and improve fire protection services in Pinole, including possibly reopening Station 74 (Attachment A). The City Council approved these recommendations.

CCCFPD is an all-hazards fire district providing traditional fire protection, wildland firefighting, emergency medical services, Advanced Life Support (ALS), ambulance transport, various special operations (e.g., water rescue, hazardous materials response, marine firefighting, technical rescue, etc.), and a comprehensive life-safety and prevention program that includes inspections, a dedicated fire investigation unit, code enforcement, plan reviews, and public education. Although CCCFPD is a separate legal 5A
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entity from the County, the County Board of Supervisors serves as CCCFPD’s Board of Directors.

CCCFPD currently maintains approximately 500 funded positions, including staff in the dispatch center. The Fire Chief and Deputy Fire Chiefs supervise seven divisions, six managed by Assistant Fire Chiefs and one by the Chief of Administrative Services.

Independent of City dialog with CCCFPD regarding collaboration, the County placed a local sales tax measure (Measure X) on the November 2020 ballot, the proceeds of which could be used to fund expanded fire protection, health, and other services. The measure passed, and the Contra Costa County Executive Fire Chiefs subsequently presented a request to the County Measure X Advisory Board for funding to reopen five closed fire stations and add 45 firefighters countywide. Among the five fire stations proposed for reopening was Pinole Station 74. In November 2021, the County Board of Supervisors approved funding to support the County Chiefs’ request, allocating more than $20 million annually through FY 2023/24 to different fire protection services, including $2 million per year toward reopening Pinole Station 74 through an integrative agreement with CCCFPD.

Since February 2022, City staff from the Fire Department, City Manager department, Finance Department, City Attorney department, and Community Development Department have met with counterparts at CCCFPD and the County to identify an arrangement through which CCCFPD could provide fire protection services in Pinole.

Broadly speaking, the two possible types of arrangements available are either the annexation of Pinole into CCCFPD or CCCFPD providing services in Pinole under a contract for service.

City staff provided an update to City Council in April 2022 regarding discussions with CCCFPD (Attachment B). By that time, with Council’s approval, the City had initiated discussions with CCCFPD regarding a contract for service through which the City would contribute the amount budgeted for the Pinole Fire Department, CCCFPD would contribute $2 million of Measure X funds, and CCCFPD would operate both Station 73 and Station 74. (It was determined early in the discussions that annexation was not the preferred initial arrangement.) The City and CCCFPD estimated that the City funds normally allocated to the Fire Department plus the $2 million from Measure X might be sufficient for CCCFPD to operate Station 73 and reopen Station 74.

State law establishes processes through which separate public agencies can collaborate to provide services and requires that a county Local Agency Formation Commission (“LAFCo”) approve any proposal by a public agency to provide services outside of its boundaries. LAFCos are local agencies established by the State to encourage the orderly formation of local governmental agencies and service provision. The Contra Costa LAFCo 159 5 of 801 of 955
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board members (Commissioners) are elected officials representing cities, special districts, and the county, as well as appointed members of the public.

Since 2016, State law has required a special process when one public agency is proposing to provide fire protection services in another public agency’s jurisdiction. The process requires that the agency intending to expand its service, in this case CCCFPD, submit an application to the LAFCo, which must be accompanied by the contract agreed upon by the two parties, a plan for services, an independent fiscal analysis, and agreements from labor groups representing affected employees.

The City and CCCFPD have efficiently and productively collaborated to draft each of these documents. The legally binding aspects of the arrangement are contained and described in the draft potential contract (Attachment C). The independent fiscal analysis (Attachment D) assesses the financial feasibility and sustainability of the potential arrangement. The plan for services provides additional detail on the service levels of the current provider and the potential new arrangement. The application briefly summarizes the other documents.

DRAFT POTENTIAL CONTRACT
As noted, the City and CCCFPD have been discussing provisions of a potential contract, a draft of which is attached. Staff of the two parties have reached agreement in principle on most aspects of the contract. It is important to note that the attached document is a draft, and will change as the parties continue to try to reach agreement on all points, and before a final version is presented to the City’s and CCCFPD’s governing boards for potential approval. The main provisions of the current draft are described below.

Term. The initial term of the contract is five years. The term may be extended for one fiveyear period by mutual written agreement of the parties executed by the Fire Chief for CCCFPD and by the City Manager for the City. The agreement may be unilaterally terminated by either party at any time by giving twelve months’ written notice of termination to the other party.

Services. CCCFPD would be the provider of all fire, rescue, emergency medical response, fire prevention, and fire administration for the City of Pinole. CCCFPD would continue to staff Fire Station 73 (downtown Pinole) and would reopen and staff Fire Station 74 (Pinole Valley). Note that CCCFPD does not operate Community Emergency Response Team (CERT) programs. So, if the City wanted to have a CERT program after entering a contract for service with CCCFPD, a City department would need to operate the CERT program.

Employees. All employees of the Pinole Fire Department at the Battalion Chief, Fire Captain, Fire Engineer, and Firefighter ranks would become employees of CCCFPD. The Pinole Fire Chief position would be eliminated.

Facilities. The City would retain ownership of Fire Station 73 and Fire Station 74 with CCCFPD leasing those facilities for a nominal amount. The City would be responsible for 160 6 of 801 of 955
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utilities, general maintenance, and repair costs of the facilities. The City would also be responsible for replacing the facilities when they reached the end of their useful lives.

CCCFPD would be responsible for routine maintenance and cleaning The CCCFPD Facilities Manager would work with City staff regarding necessary repairs, ongoing maintenance, and other facility-related issues. There are no significant upgrades anticipated for either facility.

Apparatus (Vehicles). CCCFPD would provide one regular fire engine (Type 1) and one wildland engine (Type 3 or Type 6) at each fire station. CCCFPD would also provide an appropriate vehicle for the Battalion Chief and reserve engines as necessary. The City would transfer ownership of its current vehicles to CCCFPD. CCCFPD would be responsible for all maintenance, repair, and scheduled replacement of the apparatus in a manner consistent with CCCFPD standards.

Fire Prevention/Development Review. CCCFPD personnel would review plans for Fire Code Compliance and conduct necessary inspection of development in accordance with the City’s adopted codes and current practices. A representative of CCCFPD would attend meetings regarding proposed development, and provide comments on proposals, when requested. The City and CCCFPD are still discussing the specific process for application submittal and routing in an effort to make the process as streamlined as possible for applicants.

Cost Proposal. The CCCFPD Fire Chief would annually submit a proposed cost proposal to the City Manager for review. If the cost proposal is more than 5% greater than the previous year, excluding labor cost, then the City Manager and Fire Chief would meet to discuss options for achieving cost savings. Once the Fire Chief and City Manager agree on a cost proposal, the City Manager would include that cost as part of the proposed annual City budget. CCCFPD would bill the City 1/12 of the annual cost proposal monthly.

In the event that the actual cost of CCCFPD providing service exceeds the cost proposal, the City Manager and Fire Chief would consider possible modification to the cost proposal. Any increase in cost would require City Council approval. However, if a necessary budget modification is not approved, it is possible services would be reduced to ensure costs do not exceed the budget. The City would be billed based on the cost proposal, not actual expenses. Note that the current draft of the potential agreement simply notes as a recital that the County has budgeted $2 million of Measure X funds in FY 2022/23 and FY 2023/24 to subsidize CCCFPD’s cost to provide services to Pinole.

The current draft of the potential contract does not include a commitment that CCCFPD or the County will provide $2 million annually for the five-year term of the contract.

Separation. The proposed contract acknowledges that termination of the agreement would require extensive operational adjustments for both parties. In the event the agreement is terminated, the Parties agree to meet and develop a transition plan to prevent any disruption in service for Pinole. The City and CCCFPD are still discussing the specific process and requirement for developing that transition plan.

CCCFPD has not previously entered into a contract for fire services with another public agency. However, the arrangement is relatively common throughout the State. For 161 7 of 801 of 955
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example, the Alameda County Fire Department (“ACFD”) has separate contracts for service with the cities of Dublin, Newark, San Leandro, Emeryville, and Union City. Some of those contractual relationships have been ongoing for decades. The draft contract between the City and CCCFPD is based on the template used by ACFD. The majority of the proposed CCCFPD agreement is the same as the agreements used by ACFD.

However, there are some differences. For example, the cities contracting with ACFD continue to own, and solely pay for, their apparatus. Additionally, the cities contracting with ACFD are billed monthly based on the actual cost of service for that month. The other notable difference is that the City’s agreement with CCCFPD will result in opening a new fire station, which was not the case for any of the ACFD agreements.

INDEPENDENT FISCAL ANALYSIS
As noted above, CCCFPD’s application to LAFCo to provide fire protection services in Pinole would need to be accompanied by an independent fiscal analysis, the minimum content of which is described in State law. The City has engaged the Stone Municipal Group, which has substantial experience in this matter, to prepare the independent fiscal analysis, a draft of which is attached (Attachment D). The fiscal analysis forecasts the likely cost of maintaining the status quo service model (Pinole Fire Department operates Station 73), the likely cost of the alternative (CCCFPD operates Station 73 and Station 74), and the difference in cost between the two options.

The fiscal analysis reflects that the City has the fiscal ability to enter into and sustain an agreement with CCCFPD to provide fire and emergency response services if CCCFPD or the County commits to providing $2 million annually of Measure X or other funding to subsidize CCCFPD’s service.

The contract specifies the amount that CCCFPD will charge the City for the first year of the arrangement (cost proposal). Because, if approved, the new service model could not be implemented until late winter or early spring of 2023, at which time FY 2022/23 will be near completion, “Year 1” for fiscal analysis purposes is FY 2023/24.

The cost proposal for Year 1 is $8,107,445. Once the $2,000,000 of Measure X funds are credited against this total, the cost to the City for the first year would be $6,107,445. The contract provides a five-year projection of the amount that CCCFPD will charge to the City.

Although not required by State law or LAFCo, the City requested that the Stone Municipal Group conduct a sensitivity analysis of key assumptions on which the fiscal analysis is based. The Stone Municipal Group assessed the financial sustainability of the proposed contract using best case, most likely, and worst case assumptions. The goal of incorporating sensitivity analysis is to illustrate the fiscal sustainability under different sets of assumptions. The scenarios are discussed below.
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Scenario 1 – Continuation of Current Service Level
Scenario 1 is the status quo service model (the City operates Station 73). The fiscal analysis forecasts operating and capital expenditures for the fiscal years 2022/23 through 2029/30. Under the most likely set of assumptions, the City’s cost to continue to operate Station 73 at the status quo service level would be $6,363,316 in Year 1 (FY 2023/24).

Under the best case assumptions, which includes a 3% year-over-year wage growth and a 3% inflation growth, is estimated to be $6,124,787 in the first year of the contract, with a seven-year average of $6,780,217 annually. Under the worst case assumptions, which include a 6% year-over-year wage growth and a 8% inflation growth, the cost to the City is estimated to be $6,314,987 in the first year of the contract, with a seven-year average of $7,721,716, as shown in the chart below.

Scenario 2 – Cooperative Fire Service Agreement with CCCFPD Scenario 2 is the service model in which CCCFPD operates Station 73 and Station 74.

Note that the City would continue to bear some expenses related to fire protection services in addition to the cost proposal, something that the fiscal analysis addresses.

Expenses that the City would still bear in addition to contract costs include payment of the unfunded accrued liability (UAL) for Fire Department employee pensions, payment of retiree medical benefits for Fire Department retirees, fire station building maintenance, utilities, and fire fuel mitigation costs not covered by CCCFPD.

Replacement costs of apparatus are factored into the annual contract amount, and it is anticipated that CCCFPD will need to replace one Type 6 engine within the next 24 months, one Type 3 engine within the next five years, and one Type 1 engine within five 163 9 of 801 of 955
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to seven years. The total anticipated cost of replacing this apparatus is approximately $1,650,000 based on 2022 pricing.

Under the most likely set of assumptions, including a 3% year-over-year wage growth, the cost to the City is estimated to be $6,107,445 in Year 1. Under best case assumptions, which include 3% year-over-year wage growth and a 3% inflation growth, the cost to the City is estimated to be $6,107,445 in the first year of the contract with a seven-year average of $6,847,346. Under the worst case assumptions, the cost to the City is estimated to also be $6,107,445 in the first year of the contract (which includes the Measure X allocation) with a seven-year average of $9,705,373 annually. The cost would increase substantially without the Measure X allocation after the second year. The graph below shows a comparison of costs for Scenario 2 between the most likely case, worst case, and best case assumptions.

Comparing the total cost of Scenario 1 at $6,363,316 to Scenario 2 at $6,107,445, the difference is estimated to be $255,871 in Year 1 of the contract. As noted above, the City will continue to bear certain costs in addition to the contract costs, which are estimated to be $753,489. Additionally, the City anticipates a one-time cost of $52,970 for compensated leave payouts. The table below shows a breakdown of the estimated total cost for both scenarios.
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As an additional point of comparison, the City requested that the Stone Municipal Group also estimate the cost for the City to operate both Station 73 and Station 74 with its own resources, not in collaboration with CCCFPD. The estimated Year 1 cost is $8,655,357, which is $2,292,041 greater than the first year cost of the City operating just Station 73 ($6,363,316) and $2,547,912 greater that the estimated first year cost of $6,107,445 of having CCCFPD provide service, in part using Measure X funds. (It is worth noting that the City could not actually reopen Station 74 on its own on the same timeline as CCCFPD could reopen it because the City would need to procure new apparatuses for Station 74, and there is currently a two-year lead time to get new apparatuses.) The table below shows the comparison of the total cost to the City of Scenario 1, Scenario 1b, and Scenario 2 under the most likely assumptions. As shown, the net cost to the City, when accounting for the cost proposal from CCCFPD, fire protection-related expenses that the City would continue to bear in addition to the contract, and net the $2 million from Measure X, would be $6,107,445 in Year 1 and $9,333,765 in Year 7, which is comparable to the cost of Scenario 1.
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DISCUSSION
The potential contract for service through which CCCFPD would operate Fire Station 73 and Station 74 would provide increased service to Pinole residents, as described below.

Most importantly, response times to calls for service throughout the City would be significantly improved with the opening of Fire Station 74. Although the City does participate in the Battalion 7 agreement, which includes automatic aid between CCCFPD, the City, and Rodeo Hercules Fire Protection District, there are simply not enough fire protection resources based in the area to provide rapid response.

CCCFPD has allowed the City to utilize its predictive modeling capabilities to forecast response times on incidents within City limits were Station 74 reopened. CCCFPD has established target response times of 5 minutes 20 seconds (5:20) for first paramedic unit on scene for medical calls and 5 minutes (5:00) for first engine on scene for structure fires. Currently, staff from Station 73’s average response time for medical calls in what would be Station 74’s first-in district (south of I-80) is 6:21, or 1:01 over target, and they meet the target response time 37% of the time. Currently, staff from Station 73’s average response time for structure fires in Station 74’s first-in district is 7:16, or 2:16 over target, and they meet the target response time 12% of the time.

With the reopening of Station 74, response times on medical calls are predicted to be 1:13 faster in Station 74’s first-in district, and compliance with target response time is predicted to improve from 37% to 59%. Response times on structure fires are predicted to be 1:52 faster in Station 74’s first-in district, and compliance with target response time is predicted to improve from 12% to 47%.

In addition to improved response times for the first-in unit, the reopening of Station 74 and relationship with CCCFPD would increase the total operational resources available in Pinole. Not only will there be two rather than one company based in Pinole, CCCFPD has specialized rescue and firefighting resources that would be more immediately available to Pinole. These include water rescue teams, heavy fire equipment resources such as fire bulldozers, as well as technical rescue apparatus, equipment, and personnel for confined space, trench, and building collapse. Whereas Pinole can currently access Year 1 Year 2 Year 3 Year 4 Year 5 Year 6 Year 7
2023-24 2024-25 2025-26 2026-27 2027-28 2028-29 2029-30 Budget Forecast Forecast Forecast Forecast Forecast Forecast Scenario 1 - Continuation of
Current Service Level
$6,363,316 $6,746,973 $7,155,799 $7,575,803 $8,005,331 $8,442,852 $8,905,735 Scenario 1b - City Operates
Both Station 73 and Station 74
$8,655,357 $9,338,113 $9,894,535 $10,469,430 $11,061,687 $11,670,065 $12,315,302 Scenario 2 - Cooperative Fire
Service Agreement with
CCCFPD
$6,107,445 $6,539,411 $7,043,881 $7,574,875 $8,127,644 $8,711,060 $9,333,765 Cost Difference
(Scenario 2 minus Scenario 1)
($255,871) ($207,562) ($111,918) ($928) $122,313 $268,208 $428,030 166 12 of 801 of 955
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these resources if they are not dedicated to other CCCFPD purposes, Pinole would have higher priority in the deployment of these resources if CCCFPD provided fire protection services in Pinole.

CCCFPD provides more training to its personnel, through one Training Division under a consistent, well-staffed, and properly supported system. The CCCFPD academy is a State Accredited Local Academy (ALA). CCCFPD also has modern operational policies and procedures.

Operational and large incident management would be standardized under the single organization’s leadership and emergency management goals and objectives. Responses to incidents, currently at varying levels based on each agency’s own service policies, would become standardized to meet a single standard for deployment. Standardization of responses across the expanded service area would ensure consistent response levels of equipment and personnel to structure fires, technical rescues, and vegetation or wildland fires matching with the current response matrix for CCCFPD.

CCCFPD achieves economies of scale and scope, and therefore can provide fire protection services on a lower cost per unit in general. A challenge often faced by smaller fire service agencies is the necessity of individuals serving in multiple capacities. In a larger organization, staff can specialize and perform functions more efficiently and effectively. CCCFPD would be able to provide information technology, equipment repair and maintenance, and apparatus maintenance more cost effectively. CCCFPD can procure apparatus at considerably lower cost that the City can, due to volume discounts, and vehicle maintenance would be performed by the CCCFPD’s apparatus shop, by ASE certified fire mechanics.

CCCFPD has full-time staff who are certified peace officers with arresting powers and the capacity to perform all functions of a fire-cause investigation. The fire investigation team for CCCFPD conducted almost 900 investigations in 2020. Significant fires, those that include 2nd alarm or greater, fires that involve an injury or fatality, or those that are intentionally set, would be investigated by CCCFPD’s Fire Investigation Unit. The Fire Investigation Unit would coordinate with the City Police Department on all investigations.

Fire prevention would be provided by CCCFPD’s Fire Prevention Bureau. CCCFPD’s 22 Fire Inspectors and Fire Prevention Captains would conduct annual occupancy inspections of all State-mandated facilities within the City and provide new construction plan review and related inspections for all new construction projects within the City. Public education and outreach efforts would be increased through dedicated CCCFPD staff to perform this important service.

In addition to improving service to residents of Pinole, expanding fire protection service by reopening Station 74 would benefit residents of many other parts of West Contra Costa County, including residents in the unincorporated areas of Tara Hills, Montalvin Manor, and Bay View. CCCFPD has a modern report management system that would enable the City and CCCFPD to determine how many calls for service Station 73 and Station 74 167 13 of 801 of 955
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respond to outside of Pinole and how many calls for service within Pinole are responded to by non-Pinole stations.

Greater fire protection services in Pinole would also help accommodate for the scarcity of West County hospital emergency room services since the closure of Doctor’s Medical Center in Pinole, which has increased the reliance on firefighters as first-line medical assistance for many of our underserved citizens.

Although the potential contract for service through which CCCFPD would operate Fire Station 73 and Station 74 would significantly increase fire protection services in Pinole, it would create some additional financial uncertainty for the City. Under the current model, in which the City operates its own Fire Department, the City has significant latitude to increase or decrease the Fire Department budget to adjust to changing priorities or financial capacity. Although the current version of the draft potential contract for service does allow either the City or CCCFPD to terminate the agreement at any time by providing twelve months’ notice to the other party, the City would not be able to make its own decisions about procedures or budget when it was under contract with CCCFPD. The draft proposed contract does provide that if CCCFPD’s cost proposal increased by more than 5% year over year, the City and CCCFPD would confer to determine options to reduce the cost proposal. However, if the parties could not agree on mutually acceptable options to reduce costs, CCCFPD could unilaterally make service reductions. The fiscal analysis does forecast that over the initial five-year term of the agreement, if CCCFPD commits to providing $2 million or more in funding annually, that the agreement would be fiscally sustainable for the City and CCCFPD under best case and most likely assumptions. CCCFPD and the County are aware of the City’s desire to have a commitment of at least $2 million annually of Measure X or other funds included in the contract for the initial five-year term. CCCFPD and County staff are exploring options through which such a commitment might be included in the contract.

City staff believes that based on the fiscal analysis and the Station 74 reopening impact analysis, if CCCFPD can commit in a contract for services to provide $2 million per year of Measure X or other funds to subsidize the arrangement, it would be beneficial for the City to agree to a contract similar in material terms to the draft potential contract presented.

FISCAL IMPACT
There is no direct fiscal impact to the City created by the City Council receiving information on a draft potential contract for fire protection services with CCCFPD, receiving public input, and providing direction to City staff on changes to contract provisions that the City Council would like, if any. Were the City to enter a contract with CCCFPD with financial terms equivalent to those in the draft potential contract presented, the forecasted fiscal impact to the City is described in detail in the section above on Independent Fiscal Analysis.

NEXT STEPS
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At the September 13, 2022 City Council meeting, City staff is seeking direction from the City Council on changes to potential contract provisions that the City Council would like, if any. Fire Chief Lewis Broschard of CCCFPD will attend the September 13, 2022 City Council meeting to answer questions, with City staff, on the draft potential contract for service. Adam Stone of the Stone Municipal Group will attend the September 13, 2022 City Council meeting to answer questions, with City staff, on the independent fiscal analysis.

As noted previously, to establish a contract to provide fire protection services in Pinole, CCCFPD and the City would need to achieve the following:
• Gain the approval of the Pinole City Council and the CCCFPD Board to submit an application to LAFCo;
• Gain the approval of the Pinole City Council and the CCCFPD Board to execute a contract for services;
• Potentially gain the approval of the Contra Costa County Board of Supervisors to appropriate $2 million or more annually from Measure X or other County funds to CCCFPD to subsidize the cost of CCCFPD providing services in Pinole; • Gain the approval of the CCCFPD Board to submit the LAFCo application and accompanying independent fiscal analysis, plan for services, and agreements from labor groups representing affected employees;
• Gain the approval of LAFCo to implement the service model; and • Execute the contract for services.

Based on the direction provided to City staff by the City Council at the September 13, 2022 Council meeting, City staff expects to continue to negotiate with CCCFPD to achieve a final potential contract that staff believes is consistent with Council direction and the City’s needs. If and when that is achieved, City staff anticipate returning to City Council at a future Council meeting with agenda items authorizing CCCFPD to submit an application to LAFCo and authorizing City staff to execute the contract for services.

Members of the public would have the opportunity to provide their input, through public comment, to the City Council at that future Council meeting. Members of the public would also have the opportunity to provide their input to the CCCFPD Board and LAFCo, and the Board of Supervisors if its action is required, at their meetings at which they consider taking the actions listed above. Note that the City has tentatively scheduled a special City Council meeting on September 27, 2022 for the City Council to consider authorizing CCCFPD to submit an application to LAFCo and authorizing City staff to execute the contract for services. If City and CCCFPD staff have not reached agreement on a contract that they believe meets both parties’ needs in time for consideration at a September 27, 2022 City Council meeting, the City may decide to defer that meeting. 169 15 of 801 of 955
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ATTACHMENTS
Attachment A - City Council Staff Report of March 16, 2021 Regarding City Staff’s Assessment of the Fire Study and Recommendations Regarding Steps to Fortify the City’s Fire Service
Attachment B - City Council Staff Report of April 19, 2022 Regarding Fire Department Update
Attachment C - Draft Potential Agreement Between the Contra Costa County Fire Protection District and the City of Pinole for Fire Protection Services Attachment D - Draft Comprehensive Fiscal Analysis
Attachment E - Pinole Fire Station 74 Reopening Impact Analysis 170 16 of 801 of 955

CITY COUNCIL
REPORT 9A
DATE: MARCH 16, 2021
TO: MAYOR AND COUNCIL MEMBERS
FROM: CHRIS WYNKOOP, FIRE CHIEF

ANDREW MURRAY, CITY MANAGER
SUBJECT: CITY STAFF’S ASSESSMENT OF THE FIRE STUDY AND
RECOMMENDATIONS REGARDING STEPS TO FORTIFY THE CITY’S

FIRE SERVICE

RECOMMENDATION
City staff recommends that the City Council receive staff’s assessment of the Fire Service Delivery Study (“Fire Study”) prepared by Emergency Services Consulting International (ESCI) and approve staff’s recommendations on steps to fortify the City’s fire service.

INTRODUCTION
The City retained ESCI in April 2019 to conduct the Fire Study. The Fire Study scope of work tasked ESCI with reviewing the City’s fire and emergency medical response service levels and making recommendations for increasing fire and emergency medical response capabilities, including assessing several specific options. ESCI provided a report to City Council in October 2019 and completed a final version of the Fire Study, including an addendum, in March 2020.

The City Council began meeting virtually, due to the COVID-19 pandemic, soon after the completion of the Fire Study. The City initially decided to delay ESCI’s presentation of the final Fire Study to City Council until it was possible to have an in-person Council meeting.

However, the City subsequently decided to schedule ESCI’s presentation of the Fire Study at a virtual City Council meeting on March 2, 2021, because it appeared that the Council might not hold an in-person meeting for many additional months.

The Fire Study contains findings and recommendations regarding many different aspects of fire and emergency medical service delivery within Pinole. City staff believes that many of the Fire Study’s findings are valid and recommendations worth implementing. However, City staff does not believe that the Fire Study is conclusive regarding the optimal level of fire and emergency medical service, nor the optimal service model. This is primarily due to the fact that ESCI needed to use incomplete data in its analysis and did not use a traditional public policy analysis methodology.

ATTACHMENT A
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City staff has summarized and assessed the main findings and recommendations of the Fire Study, agreeing with many findings and recommendations while disagreeing with others. City staff has provided its recommendations for steps that the City should take to immediately bolster its fire service. City staff believes that additional data collection and analysis are required to better understand service demands and the precise costs and benefits of potential service modifications prior to drawing any conclusions regarding or pursuing any significant, long-term changes.

BACKGROUND
History
The City of Pinole has a complex history of fire service delivery, including many different models that were deployed to provide service over the years. The City does not have thorough documentation explaining the changes to the model over time. City staff has obtained some information from various documents and stakeholders regarding this history, which is summarized below.

The City created the Pinole Fire Department (PFD) circa 1903 as a volunteer organization to serve its residents and businesses in conjunction with the City’s incorporation. The City purchased its first fire engine in 1921, and Fire Chief Pepper Martin became the PFD’s first paid employee in 1959. PFD grew over the years as the City grew and annexed newly developed unincorporated areas that had previously been served by other fire districts. A separate special district, the Pinole County Fire Protection District, served some of the unincorporated areas adjacent to the City of Pinole. This district, for which the County Board of Supervisors served as the governing body, diminished in size over time as the City annexed new developments. The district was annexed into the Contra Costa County Fire Protection District (CCCFPD, “Confire”) in 1994. PFD provided fire service through a contract to the Pinole County Fire Protection District beginning around 1966 through the district’s annexation by Confire in 1994. PFD continued to provide fire service, with other regional agencies, to the former Pinole County Fire Protection District service area, and receive payment for such, from Confire, through June 2014.

West Contra Costa County has been served by an evolving array of different fire agencies over the years. Confire was originally formed in 1964 by the merger of two districts, the Central Fire Protection District and the Mt. Diablo Fire Protection District. Confire now serves much of the unincorporated area as well as one city (San Pablo) in West County, which were previously served by several other districts that have been annexed, including the San Pablo Fire District, El Sobrante Fire District, and West County Fire District.

In the 1960s and 1970s, residential development in Pinole expanded into the upper Pinole Valley Road area, including the Silver Canyon Valley Development. Some stakeholders in that development believed that the City committed at that time to build new City facilities to complement the project, including a swim center (which was constructed and is still in use on Simas Avenue) and a second fire station. As the Silver Canyon Valley Development reached completion, its residents believed that it comprised a substantial 172 18 of 801 of 955
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contribution to the City’s property tax revenue, and some residents voiced their concern that the City had yet to construct and open a second fire station to serve the area.

At that time, Pinole’s only fire station, Station 73, located downtown, was staffed by five personnel on each of three shifts. Three staff were on a fire engine and two were on a “squad” vehicle (a modified off-road support vehicle). Proponents of a second fire station argued that opening a second station, and having three staff on one engine at Station 73 and three staff on another engine at a new station, a net increase of one person on each of three shifts (three new full-time employees), was a minor increase in expenditures that would not create an undue burden on the City’s financial capacity. Furthermore, proponents argued that the proposed location for the second station, on Pinole Valley Road, was ideal, given that it could serve the south side of I-80 in the event that a natural disaster precluded Engine 73 (situated north of I-80) from accessing residents on the south side of the freeway.

Another important aspect of the fire station issue was the automatic aid agreement among Confire, Rodeo-Hercules Fire Protection District (RHFPD), and PFD, known as the Battalion 7 Agreement, which was proposed in the 1990s, put into practice functionally in 2000, and formalized in 2020. Reportedly, the original Battalion 7 understanding from the 1990s was that each participating agency would provide two engine companies, and that Pinole’s second engine would be provided at a new station in Pinole Valley, which would then make Pinole an equal partner in the Battalion 7 Agreement. The final executed Battalion 7 Agreement does not include any minimum staff or apparatus requirements of the participating agencies.

In September 2000, the City Council approved the expenditure of $900,000 to construct Station 74 at 3700 Pinole Valley Road. The station opened in 2003, then closed in 2011, in the aftermath of the Great Recession. When Station 74 closed, frontline departmental staff (firefighters, engineers, and captains) were reduced from 18 (6 on each of three shifts) to 12 (4 on each of three shifts), which was lower than the pre-Station 74 staffing level of 15 (5 on each of three shifts). The City continues to operate with 12 frontline staff (plus a fire chief, battalion chief, and management analyst) today.

In 2011, the City hired a consultant, Citygate Associates, to identify opportunities to collaborate on fire services with Confire and RHFPD to reduce the City’s fire service costs.

The analysis (attached) did not identify any significant cost-saving or performanceimproving opportunities, although PFD and RHFPD did subsequently share a fire chief for a short period of time for cost-saving reasons.

In April 2019, the City executed the aforementioned agreement with ESCI (attached) to conduct a fire service delivery study. The scope of work tasked ESCI with reviewing the City’s fire and emergency medical response service levels and making recommendations for increasing fire and emergency medical response capabilities, including assessing several specific alternatives. ESCI provided a report to the City in October 2019 (attached) and provided a presentation of such to the City Council (attached). The City subsequently directed ESCI to conduct additional analysis, and ESCI provided an 173 19 of 801 of 955
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updated, final report (“addendum”) in March 2020 (attached), and provided a presentation of such to the City Council in March 2021 (attached).

Functions of a Full-Service Municipal Fire Department
The major functions of a full-service municipal fire department are fire suppression, emergency medical response, rescue, and fire prevention (risk reduction through public education and enforcement of the State Fire Code). Fire departments also often play the lead role in a municipality’s emergency preparedness and operations. Below is a brief outline of PFD’s primary functions and support activities. • Respond to emergency calls for service
o Emergency medical service (EMS)
o Vehicle accidents
o Rescue operations
o Structure fires
o Brush/wildland fires
• Fire prevention activities
o Inspections
 State mandated inspections (schools, daycare, residential care facilities, assembly occupancies, apartment buildings, medical facilities)
 Inspection of other occupancy classes requiring operational fire permits (fuel stations, repair shops, LPG propane exchange, auto parts, cleaners, gun powder/explosives, industrial kitchens/ovens, private schools)
o Coordinate with City code enforcement for fire ordinance compliance o Plan check
 Fire alarm systems
 Fire sprinkler systems
 Hood and duct fire suppression systems
 Tenant improvements
o Public education
• Defensible space functions
o Engagement with property owners, maintenance of City land o Ordinance compliance (w/ code enforcement)
• Emergency preparedness planning
o Manage the City Emergency Operations Plan (EOP) and Emergency Operations Center (EOC)
• Administrative duties
o Update policies and procedures
o Conduct assessment and long-term planning for department o Incident reports
o Purchasing and accounts payable
o Departmental payroll
o Fee collection (inspections/operational permits)
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o Record keeping (inspections, training, narcotics inventories, certifications, etc.)
• Vehicle and equipment maintenance
o Daily/weekly/monthly fire apparatus preventive maintenance checks and services
o Power tool and rescue tool service and maintenance
• Training
o Skills performance and development exercises (hose drills, pumping drills, ladder drills, etc.)
o Fire simulation exercises, both stand-alone and in coordination with surrounding fire agencies (multi-agency drills)
o Continuing education (CE) related to EMS certification (Paramedic/EMT), and job classification (firefighter/engineer/captain) professional development
ESCI’S KEY FINDINGS AND RECOMMENDATIONS
Findings
From the perspective of City staff, the key findings of the Fire Study, some of which are simply descriptive and others of which are evaluative, are the following:
• PFD does not have sufficient command and administrative staff to address compliance with performance goals, industry standards, and workload. • Data and records management are inconsistent and incomplete. • PFD does not have sufficient staff to perform all fire prevention related functions. • PFD does not have sufficient staff to oversee training, including needs assessments, program design, implementation, and recordkeeping. • PFD does not have adequate training props.
• PFD’s minimum staffing (three firefighters per unit) is not sufficient to enable a single company to enter a structure in compliance with OSHA’s two-in/two-out framework.
• Because PFD only staffs one unit per shift, PFD is fully dependent on aid from another agency for any call requiring more than one unit. • In 2018, none of the reported fire incidents achieved the NFPA Standard 1710 performance objective of 21 firefighters on-scene, nor did the travel time for all apparatus to arrive on-scene meet the NFPA 1710 performance standard of 8 minutes.
• PFD apparatus specifications have not been standardized with the Battalion 7 apparatus.
• At 110 calls per 1,000 population, PFD has a higher number of calls per 1,000 population than the region, but slightly lower than the urban high range. • Much of the developed residential area in the eastern (southern) part of the City is beyond 1.5 miles of Station 73.
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• A portion of the developed residential area in the southeast part of the city is beyond the 4-minute travel time footprint from Station 73. • The contract proposal from Confire would result in increased services and depth of support; however, the proposed contract costs exceed the costs of providing those services if the City were to remain a standalone department, open Station 74, and add staff.

In summary, ESCI found that PFD does not have adequate staff to address certain fundamental managerial and administrative functions of a full-service fire department, such as planning, policymaking, training, records management, and evaluation. Further, ESCI found that the department handles a normal level of calls for service for an urban department. Due to the department’s size, it needs to rely on aid from other fire departments to handle many incidents. ESCI also found that the joint response of PFD and partner departments often does not achieve certain industry benchmarks regarding firefighters on-scene or timeliness of response. Finally, ESCI found that the preferred long-term alternative would be for the City itself to reopen Station 74.

Recommendations
The Fire Study contains the following short-term and mid- to long-term recommendations.

Short-Term Recommendations
• Recommendation A: Adopt Response Performance Goals that are achievable. • Recommendation B: The City should consider moving forward with the necessary steps to improve service via reopening Station 74, and staffing and administrative support, as funding becomes available.
• Recommendation C: Consider initiating the process of securing additional funding. • Recommendation D: Standardize apparatus specifications. • Recommendation E: Review all current fire department alarm assignments. • Recommendation F: Improve the collection and analysis of incident data.

Mid- to Long-Term Recommendations
• Recommendation G: Initiate recruitment of additional staff. • Recommendation H: Remodel Station 73.
• Recommendation I: Capital Equipment and Facilities Fund.

In summary, ESCI recommended that PFD update certain policies and practices, add staff and financial resources to address baseline functions and fire prevention, and consider options to expand firefighting force (and associated funding) over time. 176 22 of 801 of 955
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CITY STAFF’S REVIEW AND ANALYSIS OF ESCI’S KEY FINDINGS AND

RECOMMENDATIONS
Staff’s Analysis of ESCI’s Findings
Staffing to Address Certain Fundamental Managerial and Administrative Functions and Fire Prevention
As noted above, ESCI found that PFD does not have adequate staffing to address certain baseline managerial and administrative functions, such as planning, policymaking, training, and evaluation, nor fire prevention. ESCI reached this conclusion by comparing what it learned from its own observation of PFD and information obtained from interviews with key PFD personnel and other stakeholders, with standard fire department functions and organizational design. City staff agrees with these findings.

Department Call Volume and Inter-Reliance Among West County Departments ESCI found that the department handled a normal call volume for an urban department serving a city of Pinole’s size. However, because PFD’s firefighting force is relatively small, the department needs to rely on aid from other fire departments to handle many incidents. City staff agrees with these findings.

However, the Fire Study seems to suggest that this structure of inter-reliance among the fire departments serving West Contra Costa County is inherently a less desirable arrangement than having each individual department be fully self-sufficient. City staff does not believe that the current arrangement is inherently worse than having each department be fully self-sufficient, particularly when considering cost and other factors such as access to specialized expertise and equipment.

Response Size and Timeliness
ESCI also found that the response to emergency incidents in Pinole, which regularly involves participation by other departments, often does not meet certain benchmarks regarding firefighters on-scene or timeliness of response. The Fire Study noted the following specific shortcomings relative to external benchmarks:
• While turnout time (the response phase between crew notification and when crew/apparatus start toward the incident) meets the NFPA Standard 1710 performance objective of under 90 seconds with 90 percent efficiency, travel and arrival times do not meet the NFPA 1710 standard. Turnout time is controllable by way of motivated PFD crews and efficient station layout; travel and arrival times are influenced by external factors such as the 1.5-mile radius and 4-minute travel time footprint in geographic relationship to station 73 as mentioned above. • The minimum staffing level for PFD does not provide for the two-in/two-out structure firefighting per OSHA mandates.
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City staff agrees with the finding that incident response by PFD often does not meet certain external benchmarks. However, City staff does not believe that the external benchmarks that are referenced in the Fire Study provide a complete assessment of the adequacy of fire service levels. For example, regarding the OSHA two-in/two-out mandate, many fire departments staff apparatus with three personnel. All such departments would need to wait for a second apparatus to arrive before having four staff total and being able to perform two-in/two-out. Even if Pinole reopened Station 74, a second apparatus would still need to arrive before the two-in/two-out standard would be met, and in many situations that second apparatus would continue to come from a partner agency. Similarly, achievement of the 8-minute standard (for 21 firefighters on-scene of a structure fire per NFPA 1710) is dependent upon factors such as topography and local traffic. Many departments do not achieve the 8-minute standard when responding to most fire incidents.

Two other measures of fire service capability provide a different perspective than the NFPA-related measures cited in the Fire Study. The most recent Municipal Service Review completed by the Contra Costa County Local Agency Formation Commission (LAFCO) for EMS/fire services (attached) found that PFD’s Code 3 response time was comparable to that of the City of Richmond’s and the Moraga-Orinda Fire District’s and faster than that of RHFPD and Confire (Table 8). The Municipal Service Review included information on the Fire Suppression Rating Schedule ratings assigned by the Insurance Services Office (ISO) to fire agencies throughout the County. The ratings are an indicator of levels of fire protection and fire risk based on factors such as water distribution, fire department equipment, manpower, and fire alarm facilities. ISO classifies communities from 1 (the best) to 10 (the worst). PFD received a rating of 3.

Different jurisdictions provide significantly different levels of fire and emergency medical response services. Although national benchmarks are useful to some extent, each community must determine the level of service that best suits its needs. More fire protection, in and of itself, would be a benefit to the community. However, investing in one service area might necessitate reducing or foregoing investments in other areas.

ESCI’s Preferred Alternative
ESCI determined that the most appropriate and cost-effective model would be for the City to itself reopen Station 74. Staff disagrees with this conclusion, which is based on incomplete data and an incomplete analysis. The Fire Study did not clearly “define the problem” (conclusively determine whether a gap exists between PFD’s current service levels and the optimal levels, based on the City’s specific needs). A gap may exist, but the Fire Study did not clearly define and validate a gap. The Fire Study also did not thoroughly “evaluate the alternatives” (precisely define the benefits and costs of different service models in order to identify a preferred alternative). The Fire Study did assess the benefits and costs of different options, but not very precisely, and did not evaluate the different options relative to specific criteria. For example, the Fire Study did not precisely quantify what additional fire and emergency medical service/performance each alternative would provide. Without knowing precisely how each alternative would improve service/performance or knowing precisely what each alternative would cost, City staff 178 24 of 801 of 955
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does not believe that it is possible to conclude that the City itself reopening Station 74 is the preferred alternative. Given the above, City staff believes that additional analysis is required to define the gap, if any, then to assess various alternatives to address the gap.

City staff generally believes, based on its own observations of the situation in Pinole and best practices in organizational design, that it is likely more efficient and effective for fire service to be provided in Pinole as part of a larger organization. Although the current practice of PFD acting as a small standalone department fortified by the resources of the Battalion 7 partners has sufficed, City staff believes that there would be efficiencies related to economies of scale and benefits from having a deeper pool of resources and expertise upon which to draw were fire service in Pinole to be integrated into a larger regional body. This matter is discussed further below.

Staff’s Analysis of ESCI’s Recommendations
As noted above, ESCI recommended that PFD update certain policies and practices (Recommendations A, D, E, and F); add staff and financial resources to address fundamental managerial, administrative, and fire prevention functions (Recommendations B, G, and I); and consider options to expand the firefighting force and associated funding over time (Recommendations B, C, and G). (Recommendation H specifically addresses renovating Station 73, which has already been completed.) Update Certain Policies and Practices
The Fire Study recommends that PFD revisit and possibly update its performance measures; standardize apparatus specifications; improve data collection and analysis; and add staffing for certain critical functions. City staff agrees with these recommendations.

Add Staff and Financial Resources to Address Baseline Functions The Fire Study recommends that PFD add staff and financial resources to address fundamental managerial, administrative, and fire prevention functions. The study also recommends that PFD establish new budgeting practices to fund equipment and facilities.

City staff agrees with these recommendations.

Consider Options to Expand Firefighting Force (and Associated Funding) The Fire Study recommends that PFD consider options to expand its firefighting force.

City staff agrees with the recommendation to consider these options. However, because staff does not believe that the Fire Study conclusively identifies a preferred alternative, the cost of some of the alternatives is substantial, and new options/alternatives might emerge from evolving circumstances of other regional fire agencies, City staff does not recommend proceeding with any significant change in service level or model at this time.

As noted above, different jurisdictions provide significantly different levels of fire and emergency medical response services, and each community must determine the level of 179 25 of 801 of 955
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service that best suits its needs. The City has operated with one fire station for most of its history and, through the Battalion 7 arrangement, has managed to provide a reasonable level of fire suppression service, in part because the need for structure fire suppression has generally decreased over time due to evolving building standards that require greater fire safety. However, increasing demand for emergency medical services (EMS) has more than offset the decreasing demand for structure fire response.

Additionally, the growing number of fires in California’s wildland urban interface (WUI), as nearby as Vacaville in recent months, reminds us of the threat in Pinole’s own WUI areas. (Note that the Fire Study refers to two geographic areas adjacent to the Pinole jurisdictional boundary as being “informally contracted areas.” These are the aforementioned regions within Confire’s service area that were previously part of the Pinole County Fire Protection District and that PFD served on a contract for service basis.

PFD might respond to these regions under the Battalion 7 Agreement, but has no obligation to respond to calls for service in these areas beyond its obligation to respond to all areas within Battalion 7.)
The City completed a poll in November 2019 of likely voters to identify top concerns and prevailing opinions. A copy of the presentation of results provided to the City Council is attached. Participants provided the following responses to the question “What do you think is the most important issue facing the City of Pinole today?”: traffic/transportation (14%), public services funding/spending (13%), crime/policing (9%), City budget/policies (8%), housing/overpopulation (7%), infrastructure/roads/power issues (6%), jobs/economy/development (6%), schools/education (5%), community improvements (4%), wildfires/fire safety (4%), homelessness (2%), taxes (2%), none/nothing (7%), other (3%), and don’t know (11%). In response to the statement “I am satisfied with the current level of service provided by the Pinole Fire Department,” 37% strongly agreed, 37% somewhat agreed, 9% didn’t know/refused to answer, 11% somewhat disagreed, and 6% strongly disagreed. Approximately half of the respondents did indicate that they would vote to approve a $498 annual parcel tax to fund the City’s reopening of Station 74.

CITY STAFF’S RECOMMENDATIONS REGARDING STEPS TO FORTIFY THE CITY’S

FIRE SERVICE
City staff has created its own recommendations, considering ESCI’s findings and recommendations, for steps that the City should take to immediately bolster its fire service and continue to assess various options for long-term changes to the fire service model.

Address Baseline Functions by Adding Staff and Budgeting Resources for Capital The Fire Study did reveal that there are some opportunities to improve the impact and effectiveness of the current service model with marginal increased cost. City staff agrees with the Fire Study finding that PFD should add staff to address certain fundamental managerial and administrative functions, such as planning, policymaking, training, records management, and evaluation. PFD currently has a deficiency in some administrative and managerial functions that creates liability and keeps the operation from achieving maximum efficiency. It does not currently observe all industry best practices. 180 26 of 801 of 955
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City staff believes that PFD can achieve best practices and continuous improvement by adding an administrative captain position. The Administrative Fire Captain would oversee report management system (RMS) administration, electronic daily staffing software administration, policy/procedure implementation, emergency medical services (EMS) administration, fire training, vehicle maintenance, cost recovery, and departmental projects. A more detailed description of the Administrative Fire Captain position and an associated justification document for the position are attached.

Staff recommends that a new Administrative Fire Captain position, starting in Q1 of fiscal year (FY) 2021/22, be included in the proposed FY 2021/22 budget.

City staff also agrees with the Fire Study finding that PFD should perform a broader set of fire prevention activities. Although fire prevention functions are currently well performed through a contract with a private company, City staff believes that it will be more cost effective and productive in the long run to in-house that function by eliminating this contract for service and creating a Fire Prevention Captain position. In addition to saving cost, this position could backfill or augment frontline fire engine personnel if needed.

Furthermore, the Fire Prevention Captain would be tasked with restoring the Community Emergency Response Team (CERT) program (Strategic Plan Goal #1, Strategy #3).

Staff recommends that a new Fire Prevention Captain position, starting in Q3 of FY 2021/22 (subsequent to the completion of the current contractor’s work creating and updating electronic data collection, finance, and tracking systems), be included in the proposed FY 2021/22 budget.

City staff agrees with the Fire Study finding that the City should invest more in facilities and equipment.

Staff recommends that $65,400 be included in the proposed FY 2021/22 budget for additional investment in training, facilities, equipment, props, and other needed baseline items.

Staff believes that creating the new administrative captain position, in-housing fire prevention, and allocating additional resources to facilities and equipment will enable PFD to accomplish all baseline functions of a full-service fire department.

Increasing Firefighting Capability and Changing the Service Model City staff does not believe that the Fire Study is conclusive regarding the optimal level of fire and emergency medical response capability in Pinole. Although having a second fire station in the City would increase firefighting and emergency medical capability, having one station, particularly if well-resourced and integrated into a regional organization for expanded capability, might also be an acceptable long-term solution given the City’s limited financial resources and competing needs.

One issue that limited the analysis and findings of the Fire Study was the lack of complete data regarding calls for service, workload of agencies in the automatic aid partnership, 181 27 of 801 of 955
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and outcomes of calls for service. The addition of an administrative captain, coupled with some planned improvements to the department’s reporting and analytical systems, will provide the City, within a couple of years, with much more complete information on service demand, workload, and performance. The City will have better information on all calls for service within Pinole (whether they are handled by PFD, peer fire agencies, or ambulance services); all calls for service to which PFD responds; and changes to the types and volumes of calls.

City staff believes that two service expansion options particularly warrant deeper analysis over the coming couple of years. One is returning to 15 frontline staff (firefighters, engineers, and captains), staffing an engine and a squad vehicle, which had been the standard level prior to Station 74’s opening and the Great Recession. That staffing level achieves the two-in/two-out benchmark. The 2-person squad vehicle would also provide more rapid wildfire response because the vehicle can access areas that a fire engine cannot access, thereby stopping potential wildfires in their incipient phase before rapid spread ensues. It would also provide an entire additional unit for emergency medical service. ESCI identified this option as a preferred interim option during its presentation to the City Council on March 2, 2021.

City staff recommends that it conduct further analysis of this option and provide additional information regarding this to the City Council in Q3 FY 2021/22.

The second option that particularly warrants additional analysis is deeper collaboration with Confire, including possibly having Confire provide fire service to Pinole through a contract for service or having Pinole annexed into Confire’s service area. A contract for service approach might be scalable, such as possibly an arrangement under which the City would pay for the operation of one station (Station 73) and a portion of the operation of a second station (Station 74) (Confire might be interested in paying for the other portion of Station 74, to allow it to increase service to its area proximate to Station 74). The Fire Study identified several potential benefits of having fire service in Pinole provided by Confire. The major drawback of that arrangement noted in the Fire Study was that it might be more expensive for Confire to operate a station, given higher salaries, than for the City to operate a station. City staff can conduct deeper analysis than that performed by ESCI of the full cost to the City of operating a fire department and work with Confire staff to obtain a more accurate estimate/proposal of what it would cost Confire to operate Station

73. City staff expects those costs to be comparable, particularly in the long run if salaries and pension benefits across the two agencies converge based on similar operational needs and financial constraints. Note that Confire has begun an analysis of possibly annexing East County Fire Protection District and RHFPD. The City will encourage Confire to take a more global perspective in conducting that analysis to include consideration of how Confire and PFD can most effectively collaborate.

City staff recommends that it engage in deeper dialog with Confire regarding opportunities to more closely collaborate and provide additional information regarding this to the City Council in Q3 FY 2021/22.
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CONCLUSION
As a result of the Fire Study, the City is aware of some ways in which the City’s current fire and emergency medical service levels are below certain benchmarks, and has additional information on some possible options for modifying service. City staff has created its own recommendations, considering the Fire Study, for steps that the City should take to immediately bolster its fire service. Staff specifically recommends that the City add an Administrative Fire Captain position in Q1 FY 2021-22 and transition from a contract Fire Inspector to a sworn Fire Prevention Captain in Q3 FY 2021-22. Further, staff recommends that it conduct further analysis of returning to 15 frontline staff and engage in deeper dialog with Confire regarding opportunities to more closely collaborate, and return to Council in Q3 FY 2021-22 with additional information on each.

FISCAL IMPACT
Staff estimates the following fiscal impact of its recommendations:
• Net cost of $135,000 annually for the Administrative Captain position. The approximately $185,000 annual fully burdened cost (wages and benefits) of the position is expected to be partially offset by approximately $50,000 of new revenue generated by cost recovery activities assigned to the Administrative Captain. • No net cost of in-housing fire prevention. The approximately $185,000 annual fully burdened cost (wages and benefits) of the Fire Captain position is expected to be fully offset by an equal reduction in expenditures by terminating the current professional services contract for fire prevention services. • Net cost of $65,400 in the first year and $10,000 annually thereafter for additional investment in training, facilities, equipment, props, and other needed baseline items.
• Total net cost of $200,540 in the first year and $145,000 annually thereafter (escalating over time consistent with inflation) for all recommendations.

ATTACHMENTS
Attachment A - Fire Services Merger Analysis, January 2011 Attachment B - Consulting Services Agreement Between the City of Pinole and Emergency Services Consulting International, April 2019 Attachment C - Regional Fire Service Delivery Study, October 2019 Attachment D - Presentation of Regional Fire Service Delivery Study to City Council, October 2019
Attachment E - Regional Fire Service Delivery Study Addendum, March 2020 Attachment F - Presentation of Regional Fire Service Delivery Study Addendum to City Council, March 2021
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Attachment G - Contra Costa County Local Agency Formation Commission (LAFCO) Municipal Service Review for EMS/Fire Services, 2016
Attachment H - Presentation of EMC Research Likely Voter Survey City of Pinole November 2019 to City Council
Attachment I - Administrative Fire Captain Duties and Responsibilities Attachment J - How Having an Administrative Fire Captain Will Fortify the Fire Department
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Fire Services Merger Analysis
Project Briefing
January 25, 2011
City of Pinole,
Rodeo-Hercules FPD, &
Contra Costa County FPD
1 ATTACHMENT A
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Citygate Associates – Fire Services Analysis
2 Policy Choices Framework
• No mandatory federal or state minimum
service levels
• If fire services are provided, they have to
be delivered safely, following standards
• Communities have the level of fire
services that they need and can afford
• The challenge is matching need with fiscal
capacity
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Citygate Associates – Fire Services Analysis
3 Battalion 7 Profile
Pinole
Hercules Rodeo
FPD
West Contra
Costa County
FPD
Incidents/year 1,621 2,099 UnknownStations
2 2
2 FF on Duty each Day
6 6
6 Chief Officers .75
2 1
Fire Prevention
0 2 part-time Headquarters
Clerical Assistance Shared Police
1 Headquarters
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Citygate Associates – Fire Services Analysis
4 Battalion 7 Command
Cooperation
• Pinole and ConFire only each have one
Chief Officer, while RHFD has 2
• Shared Emergency Incident Command
already exists
• This is the minimum necessary incident
command staff and any form of merger will not allow saving in these HQ costs 188 34 of 801 of 955
Citygate Associates – Fire Services Analysis
5 HQ Staff Responsibilities
• Emergency Response incident command• Fire Prevention - permits and inspections (500)• Ensuring Federal and State safety regulations are met for firefighting• Line supervision and application of City rules and regulations• Planning and liaison with other fire departments• Fire Investigation and Public Education• Disaster Preparedness and CERT• Budgeting and City Fire Department Strategic Planning• Records, invoices, payroll• Mandated reports (NFIRS, PCR)• Response and liaison to City Manager direction• Coordination with other City departments• Record keeping• “Front Desk ” resident inquiries 189 35 of 801 of 955
Citygate Associates – Fire Services Analysis
6 Battalion 7 Operational
Cooperation
• Deployment is about the speed and weight of the
attack
• The basic fire station locations themselves are
good, but fire stations do not handle medical emergencies -- firefighters do • The current common dispatch Automatic Aid
arrangement is essential for all three agencies
• All three agencies are operationally co-dependent
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Citygate Associates – Fire Services Analysis
7 Mutual Aid Count
“Out” of Pinole (891 total incidents):

ConFire Contract 516ConFire 152ConFire Total 668Rodeo-Hercules 124Richmond 16Crockett 6 Mutual Aid (no location given)
5 Moraga/ Orinda
2 “Into” Pinole (194 total Incidents):

ConFire
Responding
RodeoHercules
Responding
Richmond
Responding
Medical 100
6 2
Fire 20 15
1 Other 37 13
0 191 37 of 801 of 955
Citygate Associates – Fire Services Analysis
8 Map Showing Station Locations
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Area of Interest: Tara Hills
EMS / Fire calls for service: 516
Time period: Calendar 2009
I 80 E I 80 W
San Pablo Ave
Richmond Pkwy
Tara Hills Dr
Bay Trl
Shawn Dr
Atlas Rd
Bayfront Park Loop Trl
Walkway
Marlesta Rd
Shamrock Dr
Cypress Ave
Fitzgeral d Dr
Sky
P
ark Ridg
e
Dr
Kay Rd
Blume Dr
Lettia Rd
Kenney Dr
K e l v i n R d
Dolan Way
Kevin
Rd
Flannery Rd
Madeline Rd
Limerick Rd
Nob Hill Ave
Montalvin
Dr
Lakeside
Dr
Oh
arte
Rd
Killarney Dr
Del Monte Dr
Mahan Way
Sun
nyview
Dr
Nob Hl
Mitchell Way
Sheryl Dr
Brian Rd
Bonnie Dr
Rim Rd
Cornelius Dr
Deni seD r
Christine Dr
Kildare Way
R a c h e l R d
Draper St
Galway Rd
Mann Dr
Highlands Rd
Linda
Dr
Wildflower
Auto Plz
Heather Dr
Michel e Dr F ra n c e s R d
Kavanagh Rd
Giant Rd
Rosedale Dr
K ilk e n n y W a y
4th
Av
e
Salida Way
Parking Lot
Dublin Dr
Selmi Grv
Murphy Dr
Meadow Ave
Appian
Way
Odonnell Dr
Me
adowlark
St
Ohatch Dr
Hilltop Dr
Karen Rd
Jovita Ln
Hilltop Mall Rd
Oconnor Dr
Pinole Shores Rd
Amend St
Rock
Rose
Way
Bay St
Ardmore Dr
Fisher St
Greenwich Rd
McDonald Dr
Waverly Dr
Sargent Ave
Lindell Dr 5th
Ave
Manor Rd
Vista Dr
Kittery Way
Jennifer Dr
Patrick Dr
Wood Glen Dr
Stallion R
d
Te le g ra p h H l
Belfair Dr
Nancy Dr
I 80 W to RICHMOND PKWY
Alberdan Cir
Dursey Dr
Research Dr
Bay View Farm Rd
Bantry Rd
Unnamed
Street
Jasmine Way
Southwood Dr
Berkeley
Shannon Ave
Banion Ct
Raton Ct
Otoole Way
Klose
Way
Spencer Pl
Blackwood Dr
Meadow View Dr
Sierra Rdg
Nor thr idge
Dr
Crestview Dr
Sullivan St
Walter Ave
Belmont Way
Barkley Ct
Club Dr
Live Oak Ln
Do
hrm
a
n
n
Ln
Adams Ct
Driveway
Wildrose Cir
Pag e Ct
Hawk Ridge
Dr
Crestwood Dr
Kilcrease Cir
Monarch Ct
Coleen Ct
Woodland Pl
Neal Ct
Woy Cir
Park Central Ct
T e c h n o lo g y C t
Richmond Pkwy
Fitzgerald Dr
Unnamed Street
Driveway
H illtop D r
Richmond Pkwy
P
arking Lot
U n n a m e d S tre e t
Unnamed Street
Atlas Rd
Blume Dr
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Citygate Associates – Fire Services Analysis 10
Battalion 7 Serious Emergency
Cooperation
• Multiple units (weight) are needed to deliver enough
firefighters in a reasonable time to serious emergencies to simultaneously and effectively perform the tasks needed for the outcome • 15 firefighters minimum are needed within an 11-minute total response time for suburban outcomes
• This is known as the concentration of companies• Pinole has a weight of attack problem • There are not enough career firefighters in any one Batt. 7 agency to provide the “weight” of response to serious and/or multiple emergencies 194 40 of 801 of 955
Citygate Associates – Fire Services Analysis 11
Daily Operational Staffing
Pinole Firefighters on Duty
Shift 1 Shift 2 Shift 3
Station 73 (Main)
3 3
4 Station 74
3 3
0 Total FF on Duty
6 6
4 Pinole / RHFD / ConFire Firefighters on Duty
Shift 1 Shift 2 Shift 3
Pinole
6 6
4 RHFD
6 6
6 ConFire
6 6
6 Total FF on Duty 18 18 16
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Citygate Associates – Fire Services Analysis 12
ConFire Fiscal Condition
09/10 Actual FY 10/11 FY 11/12 FY 12/13 FY 13/14
Employee Costs $69,692,716 $72,861,994 $75,235,057 $80,698,599 $82,042,462 Services, Supplies and Other Expenses
$21,465,532 $22,381,852 $23,114,000 $23,175,000 $23,638,500 Total Expenditure $91,158,248 $95,243,846 $98,349,057 $103,873,599 $105,680,962 Adopted:
$94,479,673
Revenue $88,829,896 $86,518,770 $86,821,984 $87,971,134 $89,501,104 Adopted:
$85,667,020
SHORTFALL $2,328,352 $8,725,076 $11,527,073 $15,902,465 $16,179,858 Fund Balance Available to Meet Shortfall
$17,610,425 $15,282,073 $6,556,997 ($4,970,076) ($20,872,541) YEAR END FUND BALANCE $15,282,073 $6,556,997 ($4,970,076) ($20,872,541) ($37,052,399) 196 42 of 801 of 955
Citygate Associates – Fire Services Analysis 13
Rodeo-Hercules Fiscal Condition
FY 2009-10 FY 2010-11
Revenue $4,586,162 $4,472,123
Expenses $5,278,680 $5,136,501
Deficit ($692,518) ($664,378)
Ending Unrestricted
Fund Balance $2,178,455 $1,541,958
Unfunded Retiree
Medical $2,861,251
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Citygate Associates – Fire Services Analysis 14
Salary and Benefit Comparison
Pinole Rodeo-Hercules
Firefighter $110,512
Firefighter PM $138,072 $184,757
Fire Engineer $143,313 $184,966
Fire Engineer PM $155,804 $206,699
Captain $156,642 $214,580
The difference is higher base pay and higher retirement costs for Rodeo-Hercules 198 44 of 801 of 955
Citygate Associates – Fire Services Analysis 15
Station Cost Comparison
Pinole
RodeoHercules FPD Contra Costa County FPD
Staff Number Cost
Captain
3 $480,581 $619,167 $602,025
Engineer
3 $438,844 $554,898 $538,491
Firefighter/ Paramedic
3 $374,009 $554,271 $537,504
Overtime $206,949 $276,534 $348,927
Material/
Supplies/
Services
$168,146 $224,684 $321,642
Total Station
Cost $1,668,530 $2,229,553 $2,348,589
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Citygate Associates – Fire Services Analysis 16
Possible Shared Fire Chief Cost
with Rodeo-Hercules FPD
Annual Total Compensation
Pinole Interim Fire Chief $127,088
Contracted Half RHFD Fire Chief $136,606
Full RHFD Fire Chief $273,212 Full Pinole Fire Chief $221,194 200 46 of 801 of 955
Citygate Associates – Fire Services Analysis 17
Current Pinole Operating Model
• Currently budgeted for 16 “Line” Personnel• Overtime budgeted for 2010-11 = $309,000• Currently operate the Main Station 73 with 3-0 staffing daily and Station 74 with 3-0 staffing on two of three shifts 201 47 of 801 of 955
Citygate Associates – Fire Services Analysis 18
Citygate Observations
• All three agencies are in financial distress• Pinole cannot financially sustain two fire stations• New revenue is needed by all three fire departments just to maintain the present level of service
• Pinole, with its lower Employee Compensation, cannot
afford to merge with anyone right now because it will raise costs with no improvement in service • All three agencies are already sharing HQ staff• All three agencies already are operating with Automatic Aid and Dispatch as one responding fire department
• The City is receiving revenue from the County; the
County is in no fiscal position to pay more
• What is needed are short-term and long-term plans
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Citygate Associates – Fire Services Analysis 19
Possible 12-24 Month Pinole
Operating Model
• Contract with Rodeo-Hercules for Chief services (50% cost)• The City is accepting the USFA Grant for 1 Battalion Chief• If the City needs to save another $200,000 per year, one option is to reduce the OT budget to $100,000 by:
– Do not use overtime to cover any sick leave, vacation or WC absence
– Impacts: when staffing falls below 3-0 on a shift, Station 74 is browned out and remaining staff are reassign to Station 73 – Savings occur from engine closures to lower overtime and/or attrition, not layoffs
– Meet and confer obligations
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Citygate Associates – Fire Services Analysis 20
Other Possible Areas of
Cooperation in the Short Term
• Pinole could provide Human Resources
Administration services to the District
• Both agencies could share fire prevention staff
costs based on workload measures, such as # of inspections and plan checks 204 50 of 801 of 955
Citygate Associates – Fire Services Analysis 21
Long-Term Perspective
• As the City and the Fire Districts navigate the current fiscal crisis with short-term solutions to maintain as much fire service as possible, they should:
– Jointly develop a Fire Master Plan that can:
• Engage the community in discussing the level of
fire service that is desired over the long term
• Detail the level of service (stations, staffing,
equipment and support services) that is fiscally sustainable and desirable • Recommend revenue alternatives that will support
the desired services to protect the communities
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Citygate Associates – Fire Services Analysis 22
Next Steps

1. Complete discussions with Rodeo-Hercules for a
shared Fire Chief Agreement with Pinole

2. Request Rodeo-Hercules and ConFire to share
funding a Fire Master Plan to develop a longterm operating and sustainable fiscal model

3. Meet and Confer with employees to implement a
1-2 year solution

4. All three agencies, but particularly Pinole, have a
conversation with the communities regarding sustainable funding for the long-term operating model 206 52 of 801 of 955
Citygate Associates – Fire Services Analysis 23
Thank you
Questions?
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ATTACHMENT B
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REGIONAL FIRE SERVICE

DELIVERY STUDY
November 2019
Pinole Fire Department
Pinole, California

ATTACHMENT C
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Regional Fire Service Delivery Study City of Pinole Fire Department PAGE i

TABLE OF CONTENTS
Acknowledgments....................................................................................................................... iii Executive Summary..................................................................................................................... iv SECTION I: EVALUATION OF CURRENT CONDITIONS ....................................................................1 Current Conditions........................................................................................................................2 Organizational Overview............................................................................................................................ 2 Service Area & Infrastructure...................................................................................................................... 5 Staffing Analysis......................................................................................................................................... 6 Emergency Management........................................................................................................................... 7 Fire Prevention........................................................................................................................................... 8 Training.....................................................................................................................................................13 Emergency Response Staffing.................................................................................................................. 18 Current Financial Analysis............................................................................................................ 21 Economic Conditions................................................................................................................................ 21 Historical Revenue & Expense .................................................................................................................. 22 City of Pinole Fire Department................................................................................................................. 28 Capital Assets & Improvements.................................................................................................................35 Apparatus/Vehicles .................................................................................................................................. 39 Critical Tasking......................................................................................................................................... 42 Service Demand & Incident Staffing Performance.......................................................................... 55 Service-Demand Study............................................................................................................................. 55 Distribution Study .....................................................................................................................................70 PFD Goals Distribution ..............................................................................................................................77 Concentration & Effective Response Force Capability Analysis ................................................................ 79 Concurrency ............................................................................................................................................. 81 Performance Summary ............................................................................................................................ 83 Future System Demand Projections ............................................................................................. 93 Incident Workload Projection ................................................................................................................... 93 Community Risk Factors........................................................................................................................... 94 Overall Geospatial Characteristics............................................................................................................ 95 Geographic & Weather-Related Risks....................................................................................................... 97 Wildfire Risk ............................................................................................................................................105 Transportation Risks................................................................................................................................110 Demographics .........................................................................................................................................119 SECTION II: PUBLIC WORKSHOP & STAKEHOLDER INPUT ..........................................................122 Public Input...............................................................................................................................123 115 of 801 269 of 955
Regional Fire Service Delivery Study City of Pinole Fire Department PAGE ii
SECTION III: OPTIONS FOR SHARED SERVICES.......................................................................... 138 Shared Services Options............................................................................................................ 139 SECTION IV: OPTIONS FOR DELIVERY OF FIRE-BASED SERVICES............................................... 142 Options.................................................................................................................................... 143 Option A: Rodeo-Hercules Fire Protection District ..................................................................................143 Option B: Contra Costa County Fire Protection District.......................................................................... 144 Option C: Expansion of the Pinole Fire Department System................................................................... 148 Option D: Staffing of Station 74 Service Area Utilizing Two-Person Unit.................................................152 SECTION V: CONCLUSIONS & RECOMMENDATIONS ..................................................................155 Key Findings............................................................................................................................. 156 Short-Term Recommendations ...............................................................................................................157 Mid- to Long-Term Recommendations ...................................................................................................161 Implementation Plan ................................................................................................................ 162 SECTION VI: APPENDICES ........................................................................................................ 163 Appendix A: Proposal from Contra Costa FPD ............................................................................. 164 Appendix B: Table of Figures ..................................................................................................... 167 116 of 801 270 of 955
Regional Fire Service Delivery Study City of Pinole Fire Department PAGE iii

ACKNOWLEDGMENTS
Emergency Services Consulting International (ESCI) would like to acknowledge that without the assistance and support of the City of Pinole Fire Department executive and administrative staff, Labor leadership, City Manager, City officials, and others, we could not have completed this project.

Roy Swearingen
Mayor
Norma Martinez-Rubin
Mayor Pro Tem
Pete Murray
Council Member
Vincent Salimi
Council Member
Anthony l. Tave
Council Member
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Regional Fire Service Delivery Study City of Pinole Fire Department PAGE iv

EXECUTIVE SUMMARY
In April 2019, Emergency Services Consulting International (ESCI) was retained by the City of Pinole to evaluate the following opportunities; 1) Regional cooperation, to include consideration of consolidation or contract for Fire and Rescue Services; 2) Cost estimate to re-open and operate Station 74; and 3) applicable cost to residents through a parcel tax. During a presentation of the initial draft of the study to Pinole City Council on October 8, 2019, the City Council requested an addendum with additional research. The analysis within this document reflects work completed consistent with the original contract. The furtherresearch City Council requested will be included within the document titled Pinole Regional Fire Study Addendum to be presented at a later date.

The analysis completed during the original study revealed a number of important findings. These include:
• Due to the lack of sufficient command and administrative staff, the department struggles to maintain compliance with performance goals, industry standards, and workload. • Data collection and records management analysis was challenging due to inconsistencies. • The department needs additional staffing to fulfill all fire prevention related functions satisfactorily. • PFD does not have a designated individual committed to the training function for the department.

The responsibility for conducting all needs assessments relative to training, as well as program design, coordination, and records keeping.
• The department does not have adequate training props, although funding has been included in the FY 19/20 budget to purchase some.
• The minimum staffing level for PFD does not provide for the two-in/two-out structure firefighting per OSHA mandates.
• PFD is fully dependent on automatic and mutual aid for any call requiring more than one unit. • In the event of concurrent incidents requiring more than the one staffed Pinole Engine, service to the residents of Pinole for the additional incidents must be provided by other agencies. • In 2018, none of the reported fire incidents achieved the stated performance objective of 21 firefighters on-scene, nor did the travel time for all apparatus on-scene approach 8 minutes. • Projected General Fund revenues are not sufficient to provide for Fire Department General Fund expenditures on an annual basis and will require a continued drawdown of General Fund reserve balances.
• Station 73’s crew quarters need remodeling and updating, which may include ADA accommodation. • PFD apparatus specifications have not been standardized with the Battalion 7 apparatus. • Absent automatic and mutual aid from surrounding agencies, standalone PFD is not capable of handling an incident, such as a trash fire, car fire, or medical incident requiring more than one apparatus, much less a more complex incident.
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• At 110 calls per 1,000 population, PFD has a higher median number of calls per 1,000 population than the region but slightly lower than the urban high range. • Much of the developed residential area in the eastern part of the city is beyond 1.5 miles of Station

73. • Due to Station 74 being closed, a portion of the developed residential area in the southeast part of the city is beyond the 4-minute travel time footprint.
• Funding does not appear to be available to cash purchase the required Type I apparatus for Station 74, should that station be reopened.

The analysis conducted during the evaluation phase of this process identified several opportunities to improve service (improvement goals). ESCI offers the following improvement goals for consideration. These goals and specific recommendations for each are described in more detail at the end of this report in the Conclusions section.

Short-Term Recommendations
Recommendation A: Adopt response performance goals that are achievable.

A community’s desired level of service is a uniquely individual decision.No two communities are exactly alike.

Performance goals must be tailored to match community expectations, community conditions, and the ability to pay for the resources necessary to attain the desired level of service.

Recommendation B: The City should consider moving forward with the necessary steps to improve service via reopening Station 74, and staffing and administrative support, as funding becomes available.

Recommendation C: Consider initiating the process of securing additional funding.

ESCI recommends that the City consider moving forward with the process of pursuing an additional funding source such as a parcel tax.

Recommendation D: Standardize apparatus specifications.

Consideration should be given to the standardization of apparatus specifications throughout Battalion 7.

Standardization of specifications will enhance operational efficiency and could result in cost savings via group purchasing.

Recommendation E: Review all current fire department alarm assignments.

Consideration should be given to reviewing the department’s alarm assignments and determine the number of resources required for an effective response force based on risk.

Recommendation F: Improve the collection and analysis of incident data.

Much can be revealed by collecting and evaluating incident data accurately and regularly. Challenges to quick response can be identified and solutions proposed.
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Mid- to Long-Term Recommendations
Recommendation G: Initiate recruitment of additional staff.

As soon as funding is available, ESCI recommends that the City recruit the positions identified in Option C:
“Expansion of Pinole Fire Department System.”
Recommendation H: Remodel Station 73
Fire Station 73’s crew quarters require remodeling to accommodate the relocation of the shared shift Battalion Chief and additional administrative staff.

Recommendation I: Capital Equipment and Facilities Fund Establish a Capital Equipment and Facilities Replacement Fund. A portion of the proposed parcel tax could be used to fund this recommendation.
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Section I:

EVALUATION OF CURRENT CONDITIONS
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CURRENT CONDITIONS
Organizational Overview
ESCI combined data provided by the participating fire agencies with information collected in the course of our fieldwork and used to develop an overview of the organizations. The purpose of the following organizational overview is two-fold. First, it verifies the accuracy of the baseline information and ESCI’s understanding of each agency’s composition—the foundation from which the study is developed. Second, the overview serves as a reference for the reader, who may not be familiar with the details of each agency’s operations.

City of Pinole Fire Department
Governance & Lines of Authority
The City of Pinole was incorporated in 1903 and commenced providing fire protection the same year. Policy direction for the Pinole Fire Department (PFD) is provided by five elected City Council members (Council).

The Council is provided the necessary power and authority to govern the provision of fire protection and emergency services. The Council appoints a City Manager who is responsible for implementing Council policy and overseeing the operation of the Organization. The City Manager appoints the Fire Chief to oversee the Fire Department operations.

The Pinole Fire Department (PFD) service area is comprised of the City of Pinole and two informally contracted areas of Contra Costa County, as depicted in the following figure. The Rodeo-Hercules service area is to the north and the southern boundary alternates between the City of Richmond and unincorporated Contra Costa County.
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Figure 1: Study Service Area
Design
The organizational design of PFD mimics a paramilitary organization, which is a common design among first responders and emergency services agencies. PFD is an all career agency, meaning all staff are full-time regular employees of the City of Pinole.

Organizational Structure
To operate effectively, a fire department needs an organizational chart that clearly defines its structure. The chart institutionalizes the agency’s hierarchy, identifies roles, and, most importantly, clarifies reporting authority. It also helps to ensure that communication flows appropriately and limits opportunities to circumvent the reporting structure.

PFD has a well-defined organizational chart that achieves this purpose and operates under a traditional topdown approach. Lines of authority are clear and depicted; however,the department is minimally staffed. The following figure illustrates the organizational chart for PFD. 123 of 801 277 of 955
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Governance & Decision-Making
From a governance and decision-making standpoint, the organization appears to have a clear direction and ability to operate. Lines of authority and the ability to carry out decisions appear to flow appropriately. The administrative staff understands the process to accomplish its mission. The chain of command is identified and clear on responsibilities. The span of control is adequate related to operations; however, as noted later in this report, the organization is lacking key positions necessary for an all-risk fire department.

Figure 2: Pinole Fire Department Organizational Chart (2019) 124 of 801 278 of 955
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Service Area & Infrastructure
The size and composition of a fire department’s service area affect the type and number of personnel, fire stations, and vehicles that are needed to provide services efficiently. Sometimes complex decisions need to be made regarding deployment strategies to properly position resources based on land area, geography, risk, and similar factors. The following offers a summary of PFD’s service area and service infrastructure resources:

Figure 3: Service Area & Apparatus Resources
Agency Description PFD Observations
Agency type (district, municipality, etc.) City
Land Area in square miles 5.2/2.4 contract areas1
Headquarters location (physical address) 880 Tennent Ave Number of fire stations 2 (one currently closed)
Engine 1
Engine, reserve 1
Wildland Engine Type 3 1
Wildland Engine Type 6 1
Ladder truck 0
Ladder, reserve 0
Duty BC Command Response Vehicle 1
From 2005 to 2011, PFD was able to deploy personnel and apparatus from two strategically located facilities.

During the economic downturn, the second PFD station (74) was browned out and eventually closed. This closure has resulted in an increase in response times to the area in the eastern portion of the City.

Decisions on deployment define the Department’s response capability. These decisions need to weigh multiple considerations, including risk exposure, response times, access challenges, deployment, community expectations, personnel safety, and fire department capacity. Furthermore, these decisions not only need to balance the financial considerations but also need to be strategic and in the purview of the elected officials and City Manager, in consultation with the Fire Chief. Ultimately, these individuals are responsible to the public to provide the level of service that the citizens desire and for which they are willing to pay. 1 The City of Pinole encompasses approximately 11.6 square miles. Of that, 5.2 square miles are land, with the remaining 6.4 sq. miles comprised of the bay.
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Staffing Analysis
An organization’s greatest asset lies in its people, yet its people also typically comprise its greatest financial cost. Thus, organizations must pay special attention to managing human resources in a way that achieves maximum productivity while ensuring a high level of employee job satisfaction. Consistent management practices combined with a safe working environment, equitable treatment, the opportunity for input, and awards and recognition all comprise key components impacting job satisfaction.

The size and structure of an organization’s staffing remain dependent upon the organization’s specific needs.

These needs must directly correlate with the needs of the community and the available revenue stream. A structure that works for one entity may not necessarily work for another agency. This section provides an overview of the PFD’s staffing configuration and management practices.

One can divide Department staffing into two distinctly different groups:the first is what the citizens typically recognize and is commonly known as the operations unit, generally classified as the emergency response personnel; the second group, commonly known as the administrative section, typically works behind the scenes to provide the support that the operation’s personnel need to deliver effective emergency response.

In addition to providing fire suppression services, PFD is tasked with providing emergency medical response, fire investigation, fire prevention, life safety education, community risk reduction, disaster/emergency operations planning, and hazardous materials response.

Personnel Responsibilities & Activity Levels
The leadership of PFD has established work responsibilities beyond the emergency response requirements.

For example, these additional duties include fleet management, respiratory protection compliance, and training. Due to the lack of sufficient management staff, the department struggles to maintain compliance with performance goals, industry standards, and workload.

Administrative & Support Staffing
One of the primary responsibilities of a response team’s administration is to ensure that the operations segment of the organization has the ability and means to respond to and mitigate emergencies safely and efficiently. An effective administration and support services system proves critical to the success of a response agency.

Typical responsibilities of the administration and support staff include planning, organizing, directing, coordinating, and evaluating the various programs within the Department. This list of functions is not exhaustive, and other functions may be added. It is also important to understand that these functions do not occur linearly and can more often coincide. This requires the Fire Chief and the one shift Battalion Chief to focus on many different areas at the same time.

The following figure reviews the administration and the organizational support structure of PFD:
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Figure 4: PFD Administrative and Support Staffing
Position Number
Fire Chief 1
Management Analyst 1
Battalion Chief (Shift) 1
TOTAL 3
Like any other part of a municipal fire department, administration and support need appropriate resources to function properly. By analyzing the administrative and support positions within an organization, we can create a common understanding of the relative resources committed to this function compared to industry best practices and similar organizations. The appropriate balance of administration and support compared to operational resources and service levels is a crucial factor in ensuring the department can accomplish its mission.

Administration
The positions of the Fire Chief, one shift Battalion Chief, and one Management Analyst currently establish the administrative function of the department. Some of the typical responsibilities of the Fire Chief include planning, organizing, directing, and budgeting for all aspects of the department’s operations. The current number of positions assigned to this activity is insufficient to meet supervisory expectations; in addition, the daily operational needs can detract from the ability to focus on administrative requirements.

PFD currently operates with a limited number of administrative support staff. The position assigned to administration is one Management Analyst. This one Management Analyst provides critical support to all of the department’s administrative functions. In addition, during extreme emergencies, administrative staff are typically called upon to staff numerous duties in support of operations and logistics. One cannot overstate the value of administrative support as these staff members free up fire management staff to concentrate on other areas of operation. The level of administrative support appears to be inadequate for PFD.

Emergency Management
The responsibility for the City’s emergency management planning and preparedness is assigned to the Fire Chief and the Police Chief. This shared responsibility is expected to provide for overall management and delivery of emergency management activities for the City of Pinole.Given the current duties of the Fire Chief, there is little time available to devote to this responsibility. 127 of 801 281 of 955
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Fire Prevention
Typical fire prevention functions include building plan reviews, building inspections, weed abatement, community outreach, and vegetation management. The department currently outsources some of these functions through contracts; additional staffing would be required to satisfactorily fulfill these functions internally. Currently, the Fire Inspector duties are carried out via a contracted position. This includes the review and approval of building plans and providing building and construction inspections.

Fire Prevention Programs
An aggressive risk management program, through proactive fire and life safety services, is a fire department’s best opportunity to minimize the losses and human trauma associated with fires and other community risks.

The National Fire Protection Association recommends a multifaceted, coordinated risk reduction process at the community level to address local risks. This requires engaging all segments of the community, identifying the highest priority risks, and then developing and implementing strategies designed to mitigate the risks.2 A fire department needs to review and understand the importance of fire prevention and public education, appreciating its role in the planning process of a community with diversified zoning, including residential, commercial, and industrial properties. The fundamental components of an effective fire prevention program are listed in the following figure, accompanied by the elements needed to address each component.

Figure 5: Fire Prevention Program Components
Program Components Elements Needed
Fire Code Enforcement
• Proposed construction and plans review
• New construction inspections
• Existing structure/occupancy inspections
• Internal protection systems design review
• Storage and handling of hazardous materials
Public Fire & Life Safety Education
• Public education
• Specialized education
• Juvenile fire setter intervention
• Prevention information dissemination
Fire Cause Investigation
• Fire cause and origin determination
• Fire death investigation
• Arson investigation and prosecution
2 NFPA Standard 1730: Organizing and Deployment of Fire Prevention Inspection and Code Enforcement, Plan Review, Investigation, and Public Education Operations, 2019 Edition.
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Fire & Life-Safety Code Enforcement
The most effective way to combat fires is to prevent them. A strong fire prevention program, based on locally identified risks and relevant codes and ordinances, reduces the loss of property, life, and the often-crippling impact on a community’s economy. The following figure summarizes the new construction and fire protection system plan review programs, and ancillary programs typically found in fire prevention programs.

Figure 6: New Construction Inspections & Involvement
Program Elements Pinole Fire Department
FD consulted on proposed new construction? Yes, by utilizing contractors FD consulted on proposed occupancy
changes/tenant improvements? Yes, via contractor
Perform fire & life-safety plan reviews? Yes, by utilizing contractors Charges for inspections or reviews? Yes
Special risk inspections? Yes, via contractor
Storage tank inspections? No, this is a function of the Contra Costa CUPA Key-box entry program in place? Yes
Hydrant flow records maintained? No3
The following sections provide detail on the qualifications and resources dedicated to fire and life safety code enforcement provided by the Pinole Fire Department.

Pinole Fire Prevention
The Fire Chief has the primary responsibility of ensuring fire prevention activities are conducted to state and local regulations. This is supported by one contract Inspector and the on-duty engine company personnel when they are available. Current services offered include:
• Inspect new or repaired fire protection systems requiring a fire construction permit; • Inspect existing occupancies required to have an operational permit and those required by the California Health and Safety Code to be inspected on an annual basis; • Respond to complaints regarding fire and life safety code violations; and • Investigate major fires and work with law enforcement to make arrests of persons responsible for unlawful actions related to fire.
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Community Risk Reduction Program
Lately, U.S. fire departments have begun to recognize the value of Community Risk Reduction (CRR) programs that go beyond traditional fire prevention activities. Some have gone so far as to re-name their “fire prevention” divisions to “Community Risk Reduction Divisions.” Regardless of the name, fire departments should be able to accurately identify the various potential community risks before developing prevention programs. This is not meant to imply diminishing the focus and importance of addressing the fire problem in a community, rather it affords an opportunity to identify and mitigate additional community risks through
targeted prevention activities.

The first step in developing an effective CRR plan is
identifying risks unique to a specific community by
conducting a community risk assessment. A key
component of the assessment process is the collection
and analysis of incident data. However, firefighters,
officers, and inspectors can also provide substantial
anecdotal information on the various risks found within their respective response-areas.

Fire & Life-Safety Public Education Program
Providing fire and life safety education to the public to minimize the number of emergencies while training the community to take appropriate actions when an emergency occurs is essential to a fire and life safety program. Life and fire safety education provides the best chance for minimizing the effects of fire, injury, and illness to the community.

Public education and outreach are conducted in various ways in each department. The following is a summary of the programs commonly offered by area fire departments.

Figure 7: Six Steps of CRR Planning
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Figure 8: Life Safety & Public Education Services
Life Safety &
Public Education Description Pinole Fire Department
PIO/Public Educator This position often works with the community to identify and eliminate fire and life safety risks.

Not a filled position, delegated
as needed if available.
911 Education Program
This program works to reduce the amount of
unnecessary 911 calls and provide education to the
public on available services.

Website
Exit Drills In The Home
(EDITH)
This program is typically offered to elementary
school-age children through annual school visits. Engine company upon request Smoke Alarm
Installation
Often, residents are encouraged to notify their fire
departments when they need assistance replacing
alarm or alarm batteries.

Engine company upon request.

Carbon Monoxide Alarm
Installation Carbon monoxide alarm installation assistance. Not available Bike Helmet Program Provides information on bicycle helmet use to school-aged children.

Not available
Elder Safety/Fall
prevention
Provides information and inspections to seniors to
reduce accidents and falls.

Not available
Home Safety
Inspections
A home safety program that aims to reduce fire and
safety hazards in the household.

Upon request; crews not
formally trained.

CPR/First Aid Classes Classes that offer training in CPR and first aid to citizen groups, city employees, and individuals. Not available BP Checks Often offered at the fire station for any resident on a walk-in basis. Not available
Car Seat Safety
Inspections
Classes, inspection, or training to ensure citizens are properly installing car seats into vehicles.

Not available
Fire Extinguisher Classes
Hands-on training to business employees and
citizens on the proper selection and use of fire
extinguishers.

Not available
K, 12 Fire Prevention
curriculum delivery in
schools
Fire Prevention classes designed for school-aged
children to reduce burns and fires in the home.

Not available; demos upon
request.

Wildfire Defensible
Space Education
Education offered to neighborhood associations or
individuals on the proper wildfire mitigation efforts
around residential and commercial structures.

Website
Water Safety Program Pool safety, swimming classes, and information on how to safely rescue an individual in the water.

Not available
Safety Fairs
Fairs offered to large groups of individuals with the
intention of offering numerous public safety classes
at one location.

Not available
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Fire Prevention Discussion
In today’s fire service, public fire and injury prevention education is much more important than in the past.

This is likely the result of evolving community expectations, coupled with the realization by fire departments that community engagement and safety education outreach can build tremendous community support.

Consideration should be given to conducting a formal Community Risk Assessment. The U.S. Fire Administration identified a five-step assessment process for improving public safety education:4

1. Conduct a Community Analysis.

2. Develop Community Partnerships.

3. Create an Implementation Strategy.

4. Implement the Strategy.

5. Evaluate the Results.

Fire Cause & Origin Investigation
Accurately determining the cause of a fire is an essential element of a fire prevention program. When fires are intentionally set, identification and/or prosecution of the responsible offender is critical in preventing additional fires, injuries and fatalities, and catastrophic economic impact. Further, identifying the cause and potential trends enables the department to provide specific public information and fire prevention education to prevent reoccurrence.

Pinole receives fire investigation services through mutual aid from Contra Costa County Fire Protection District.

The results of professional and thorough fire investigations can be extremely powerful in:
• Prosecuting arsonists.
• Identifying product safety issues.
• Educating the public about the outcomes of unsafe behaviors and conditions. • Assisting insurance companies and property owners with insurance claims. • Providing solid evidence in criminal and civil court proceedings. • Identifying necessary life safety code changes.
4 https://www.usfa.fema.gov/downloads/pdf/publications/fa-219.pdf 132 of 801 286 of 955
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Training
PFD does not have a designated individual committed to the training function for the department. The responsibility for conducting all needs assessments relative to training, as well as program design, coordination, and evaluation falls to the Fire Chief. The result of this arrangement is that the training of all personnel is delivered inconsistently due to the other duties assigned to the Fire Chief.

While the design and staffing of a fire department are dependent upon the specific needs of the community, the reality is that most of the needed training is common among California fire departments. In addition to maximizing resources through sharing training resources and opportunities, fire departments that train together tend to work better together during mutual aid incidents. This also lends itself to making the firefighters more well-rounded, as they are exposed to other lines of thinking. Finally, a coordinated regionalized, collaborative approach to training delivery, in addition to the benefits noted, can substantially reduce costs, and increase the efficiency of educational efforts. To capitalize on local and regional training opportunities, the department needs an individual whose primary duties include this important function.

Training officers are often assigned to act as the department Safety Officer, reviewing standard operating procedures, adherence to proper personal protective equipment, inspecting facilities for safety hazards, and examining work practices to ensure they meet OSHA and Cal OSHA requirements. Safety Officers review accidents and design training classes to reduce accidents in the workplace.

Training Overview
Providing safe and effective fire protection, EMS, and other emergency services requires a well-trained workforce. Initial, ongoing, and high-quality training and education are critical for fire department effectiveness and the safety of its personnel. A comprehensive training program is necessary to achieve this goal; this is true in all-career or combination fire departments that provide a broad range of services throughout the community. Pinole Fire Department allocated $25,000 in the fiscal year 2019/2020 budget to provide for this training.

To ensure maximum effectiveness and safety in complex environments, firefighters and officers must acquire and maintain initial training, ongoing training, and EMS Continuing Education (CE). Failure to provide necessary training endangers firefighters and citizens and exposes fire departments to liability. In addition, a well-trained workforce substantially contributes to better emergency incident outcomes and community services.

Newly hired firefighters must participate in a structured recruit training and testing process. The California State Fire Training utilizes NFPA 1001: Standard for Fire Fighter Professional Qualifications (2013), NFPA 1051:

Standard for Wildland Fire Fighter Professional Qualifications (2016), and NFPA 472: Standard for Competence of Responders to Hazardous Materials/Weapons of Mass Destruction Incidents to provide the qualifications for State Fire Training’s Fire Fighter I certification. These standards identify the minimum training requirements that serve as the basis for entry-level firefighters. The NFPA recommends other standards that address initial and ongoing training for firefighters and officers in a variety of specific topics. In addition, new recruits must complete or have previously completed basic emergency medical training. 133 of 801 287 of 955
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Following initial training, firefighters (i.e., all emergency services personnel) must actively participate in ongoing training that includes testing as well as ensuring practical skills and knowledge are maintained. In its Fire & Emergency Service Self-Assessment Manual (9th edition), the Commission on Fire Accreditation International (CFAI) addresses “Training and Competency,” and lists numerous performance indicators under the headings of training and education program requirements, performance, and resources.

To accomplish this, fire departments must have access to qualified instructors and training resources—either within the organization, externally with regional partners, or both.

Training programs must go beyond simply fulfilling mandatory hours. Emergency services training administrators and instructors must ensure that firefighters, EMS personnel, and officers are not only competent but also self-confident in the variety of skills necessary to perform effectively in high-stress situations. Industry standards outline specific areas that are considered integral to effective training programs. The program should include the following:
• Training administration
• Recordkeeping (records management systems)
• Training facilities and resources
• General training competencies
• Training methodologies
Training Administration
Typically, even smaller fire departments have a dedicated individual assigned to the training division who oversees the training program, sets program goals and objectives, develops training manuals, produces annual reports, and ensures state and local mandatory training is completed. Pinole Fire does not have a dedicated Training Officer.

Contra Costa County Training Officers Association
Under the auspices of the Contra Costa Fire Chiefs Association, training officers from the fire departments meet regularly to develop and share resources, as well as promote fire training locally. Pinole participates regularly in the Training Officers’ Association.
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Training Facilities & Resources
Pinole does not possess a fire training facility and has limited access to shared resources due to daily staffing arrangements and the need to be available to respond to incidents. The following figure contains common considerations for fire service training and indicates if these training services are available within the PFD service area.

Figure 9: Training Facilities & Resources Findings
Description Pinole Fire Department
Adequate training ground space/equipment No
Live fire props No
Fire & driving grounds No
Training facility maintenance adequate Not applicable
Classroom facilities adequate Shared classroom facilities are available Video & computer simulations available No
Instructional materials available Yes
Training Facilities in Contra Costa County
The Rodeo Hercules Fire Protection District training center is equipped with a wide variety of equipment, props, and other facilities. This facility is available for use by PFD; however, utilizing it requires moving the on-duty fire crew out of the City of Pinole and placing them out-of-service or causing a delay in response.

General Training Records
Fire departments must maintain records to demonstrate competencies and completion of annual mandated (local, state, and federal) training. These records are important to internal processes such as promotions and qualifications for special operations. Externally, training records are often used in defense of litigation, for investigations, and to prove competencies in the Master Mutual Aid System. 135 of 801 289 of 955
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Figure 10: Training Records Maintenance
Description Pinole Fire Department
Individual training files maintained No5
Records & files computerized Limited
Daily training records kept Yes, via hard copy journal
Annual training hours tracked No
Company training records kept No
Responsibility for records Fire Chief
Training equipment inventoried Props are limited & in need of refurbishment6 General Training Competencies
For training to be fully effective, it should be based on established standards. The next figure lists the general training competencies regularly delivered to the members of the Pinole Fire Department.

Figure 11: General Training Competencies
Description Pinole Fire Department
Incident command system No, “Blue Card” is being implemented.

Accountability procedures in place No, Lexipol policy & procedure system has been purchased and will soon be implemented.

Policy & procedures for training No, Lexipol policy & procedures purchased and soon to be implemented.

Safety procedures in place No, Lexipol policy & procedures purchased and soon to be implemented.

Recruit academy Two recruits will start at the Berkeley Fire Dept Academy in October 2019. Two went through in October 2017.

Special rescue No
Hazmat certification No
Wildland firefighter Yes
Vehicle extrication Yes
Defensive driving Yes
Use, safety, & care of small tools Yes
Use & care of power equipment Yes
Radio communications & dispatch Yes
EMS skills & protocols Yes
5 PFD is in the process of configuring Target Solutions to maintain training records and reports. 6 In fiscal year 2019/2020, $2,500 has been allocated for this purpose. This amount is generally enough to maintain one training prop, but as PFD expands its training capabilities, additional funding should be added to the budget for prop maintenance. 136 of 801 290 of 955
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EMS Training & Continuing Medical Education
Pinole Fire Department relies on in-house (PFD developed) and other regional sources for training for basic and advanced life support continuing medical education. Pinole personnel are preparing to use Target Solutions to deliver ongoing continuing education for paramedics and emergency medical technicians at a fixed annual cost. The use of online training reduces the need to hire instructors and pay employees overtime as they attend mandated training as well as ensuring annual training mandate records are well kept.

Training Methodologies
Certain resources are necessary to arm the instructor with the tools necessary to deliver adequate educational content to provide effective training to fire and EMS personnel. In addition to such tools, effective methodologies must be employed if training delivery is to be enough to meet the needs.

The following figure lists the various training methodologies and training operations utilized by PFD.

Figure 12: Training Methodologies & Operations
Description Pinole Fire Department
Manipulative skills Manipulative training drills for individual and company are conducted weekly.

Task performances/frequency Manipulative training drills for individual and company are conducted weekly.

Annual training hour requirements 24 hours of EMS “Continuous Education” is accomplished annually.

Use of lesson plans
Each firefighter employee has a task book
containing lesson plans. Fire Engineer and
Captain task books are being developed.

Produced in-house or commercially Training plans are produced by PFD members.

Night drills Annual structure fire drills are held at night.

Multi-agency drills Annual multi-agency structure fire, wildland, & EMS are held.

Disaster drills conducted No
Pre-fire planning included in training Yes
Safety incorporated in training On large drills, a safety plan is developed as part of a training Incident Action Plan.

Post-incident analysis conducted On large drills and incidents, an incident or training analysis is completed.

Training Discussion
Ongoing training reduces injuries and other risks associated with firefighting. Mandatory training is required by OSHA, Cal OSHA, and the State of California that must be undertaken and completed on an annual basis by firefighters. In addition, the Insurance Services Office (ISO) reviews training hours to ensure the adequate training of fire service responders.
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Emergency Response Staffing
It takes an adequate and properly trained staff of emergency responders to put the appropriate emergency apparatus and equipment to its best use in mitigating incidents. Insufficient staffing at an operational scene decreases the effectiveness of the response and increases the risk of injury to all individuals involved.

One can break down critical tasks performed at a fire into two key components—life safety and fire flow. Life safety tasks are based on the number of building occupants and their location, status, and ability to take selfpreservation action. Life safety-related tasks involve search, rescue, and evacuation of victims. The fire-flow component involves delivering enough water to extinguish the fire and to create an environment within the building that allows firefighters’ entry.

The number and types of tasks needing simultaneous action will dictate the minimum number of firefighters required to combat different types of fires. In the absence of adequate personnel to perform concurrent action, the Command Officer must prioritize the tasks and complete some in chronological order, rather than concurrently. These tasks include:
• Command
• Scene safety
• Search and rescue
• Fire attack
• Water supply
• Pump operation
• Ventilation
• Back-up/rapid intervention
The first 10 minutes are the most crucial period in the suppression of a fire. The timing of these 10 minutes does not start when the firefighters arrive at the scene but begin when the fire initially starts. How effectively and efficiently firefighters perform during this period has a significant impact on the overall outcome of the event. This general concept is applicable to fire, rescue, and medical situations. Critical tasks must be conducted promptly to control a fire or to treat a patient. PFD is responsible for ensuring those responding companies can perform all the described tasks in a prompt, efficient, and safe manner.

Setting the staffing levels is a determination made at the community level based on risk, capability, and citizen expectations and is guided by national recommendations such as those found in the National Fire Protection Association Standard 1710.

When a fire escalates beyond what the initial assignment can handle, or if the fire has unusual characteristics such as a wind-driven fire or has been accelerated with a highly flammable compound, additional personnel are needed. Other types of scenarios may not include fires but rather mass casualty incidents, explosions, etc., that may need additional staffing. It proves difficult or impossible to staff for these worst-case incidents; they require a robust mutual aid or automatic aid plan for assistance. 138 of 801 292 of 955
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The staffing level that PFD is expected to provide is a decision based on a risk assessment and community expectations. A funding level must be established that matches the fire department’s deployment capability to mitigate the risk to a level that meets the community’s expectations. This funding level is developed through the political process of citizens meeting with local legislators and expressing approval of the level of service being received or indicating improvements that need to be made and the level of additional financial support they are willing to bear to obtain satisfaction with the services. This additional financial support is usually in the form of assessing property or other taxes to generate the necessary revenue. No mandated requirement fits all possible situations, although NFPA 1710 guides the number of personnel and apparatus required for typical scenarios. Incidents may escalate beyond the capability of the initial assignment of units and staff, resulting in additional apparatus and personnel required. It may prove difficult or financially impossible to staff for those worst-case incidents. In those instances, a robust mutual or automatic aid system is required.

On a typical day in Pinole, as in most jurisdictions, the full staffing required by response needs are not available due to budget constraints.
7 Currently, Pinole has determined that the minimum acceptable department staffing is three operations personnel and a shared Battalion Chief on each shift. This staffing level is generally only adequate for basic calls for service such as low acuity medical aids, small incipient fires, or motor-vehicle accidents with minor injuries. This staffing arrangement results in reliance on other jurisdictions assistance through automatic and mutual aid agreements for calls requiring two or more units, as identified in critical tasking Figure 32.

Battalion 7 designates the geographical area in western Contra Costa County comprised of the Contra Costa County Fire Protection District (CCFPD), City of Pinole Fire Department (PFD), and the Rodeo-Hercules Fire Protection District (RHFPD). Per an agreement with CCFPD, RHFPD, and PFD, each agency provides and shares shift Battalion Chiefs. These chief officers are assigned to Duty Chief coverage for each shift for the area described as “Battalion 7.”
While this agreement provides for operational duties at the shift Battalion Chief level, it does not enhance critical administrative support needs for PFD.

The following figure depicts PFD’s emergency staffing—with all authorized positions filled for the combined three shifts that PFD employs.
7As an example, a residential structure fire generally requires multiple fire engine crews to accomplish the tasks required to extinguish the fire, located victims, and provide any necessary medical interventions. Another example occurs when two or more calls for service occur within a short time frame. In Pinole, only one fire engine is staffed per day. The capability to respond to complex calls requiring additional personnel or to respond to multiple incidents occurring simultaneously is fully dependent on automatic and mutual aid. See Figure 32 for additional details.
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Figure 13: PFD Emergency Response Staffing
Position Total Authorized
Positions
Daily
Staffing
Battalion Chief (shared) 1 0 to 18
Fire Captain 3 1
Engineer 3 1
Firefighter 6 1
Totals: 13 3 or 4
PFD is authorized at 14 emergency response personnel for EMS, rescue, and fire suppression activities, including the Battalion Chief and Fire Chief. At the end of FY 2018, three of the authorized 12 firefighters in the Fire Operations Division were vacant. This means 25 percent of the response force positions, primarily in the firefighter rank, are vacant.

The resident population of the PFD service area inclusive of contact areas is estimated to be approximately 24,624 (this includes the City of Pinole population of 19,498 and two nearby unincorporated areas located within the service area). PFD provides its community with .69 career firefighters per 1,000 population. This compares to a national average of .99 firefighters per 1,000 population for cities of comparable size in Western states or almost a third less than the average. 9 The suppression personnel are assigned to one of three shifts, each working 48-hours on/96-hours off and working a total of 2,912 hours each year.

PFD operates from one station, staffed with full-time personnel. The following figure shows the staffing configuration at full utilization of authorized personnel. ESCI notes that the minimum staffing level for PFD absent automatic aid does provide for the two-in/two-out structure firefighting per OSHA mandates. 10 Figure 14: Station Units & Staffing Levels
Station Apparatus Minimum
On-Duty Staffing
Station 73
Engine 73 3
Reserve Engine 73A 0
Type III Engine E273 Cross Staffed
Wildland Type VI E473 Cross Staffed
Utility Vehicle U73 As needed
Station 74 Battalion Chief (B shift) 1
Totals: 4
8 Chief Officer coverage is not provided for all three shifts by PFD. 9 NFPA Research—Career Firefighters per 1,000 population for All Career Fire Departments, 2013–2015. Retrieved from:
https://www.nfpa.org/-/media/Files/News-and-Research/Fire-statistics-and-reports/Emergencyresponders/osCareerFF1000Population.ashx?la=en 10 Two-in/two-out refers to section (g)(4) of OSHA's Respiratory Protection Standard, 29 CFR 1910.134. 140 of 801 294 of 955
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CURRENT FINANCIAL ANALYSIS
Economic Conditions
The state and local economies have followed the trend of modest growth that the national economy has experienced since the economic downturn of 2008/2009. Though current national and international policies have created concerns that have harmed certain sections of the stock market and the economy, the consensus is that the current growth trends are expected to continue at least through the end of 2019.

California’s economy has outpaced that of the United States since the third quarter of 2012. Retail sales in the state have increased by 20 percent between 2013 and 2017. While the California unemployment rate continues to be higher than that of the U.S. in general, the gap has been reduced to .4 percent.

California's personal income grew 4.7 percent in 2018 versus a 4.5 percent U.S. personal income growth for the same period. A similar gap was experienced in 2017 with personal income growth at 4.6 percent and 4.4 percent for California and the U.S., respectively.

Contra Costa County is one of the original 27 counties established in California in 1850 and is home to more than a million residents. The county is located in the northern portion of the East Bay region of the San Francisco Bay Area. The county is included in the San Francisco-Oakland-Hayward Metropolitan Statistical Area. The county has a total area of 804 square miles with 716 square miles of land and 88 square miles of water area. There are 19 cities, including Pinole, and numerous established communities in the county.

Due to Contra Costa County’s extensive waterfront along the bays in the San Francisco area, significant heavy industry development has occurred, including oil refineries and chemical plants. Agriculture contributes to employment opportunities in the county.

Information from the 2018 Census Bureau indicates that Pinole boasts the second-highest median earnings per worker of $57,784 of all places in the area. The “area” against which the comparisons were made includes the communities of Montalvin Manor, Bayview-Contra Costa County, West Contra Costa, El Sobrante-Contra Costa County, Tara Hills, San Jose-San Francisco-Oakland, and Hercules.11 This compares with the median earnings of $46,022 throughout the U.S. Household median income of $84,255, also places it as the secondhighest in the area, and compares favorably against the U.S median household income of $57,652. Pinole’s unemployment rate was 3.7 percent. A significant number of Pinole’s residents work outside the city, elsewhere in the Bay Area. This would indicate Pinole serves more like a “bedroom community” than a commerce center.

The area continues to grow but at a very modest rate, gaining 40 new residents in 2018. Significant growth is not expected as Pinole is primarily built-out and bordered by other municipalities, creating little to no opportunity for expansion.
11 TownCharts, http://www.townchardts.com/California/Economy/Pinole-city-CA-Economy Data. 141 of 801 295 of 955
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Historical Revenue & Expense
The City of Pinole is primarily a residential community located in West Contra Costa County, approximately 30 miles northeast of San Francisco and 20 miles north of Oakland. The city covers a land area of roughly five square miles and is home to approximately 19,200 residents.

The City operates under a Council/Manager form of government. The Council is comprised of a Mayor and four Council members serving four-year terms. The Council is elected in staggered two-year periods with three members standing for election in one cycle and the remaining two positions following in the next cycle two years subsequent. The Mayor is selected by the Council on a rotating annual basis. The Council appoints the City Manager, City Attorney, and City Clerk. As is the case with most municipal governments, the Council is responsible for policymaking decisions and legislative responsibilities, which include, among other items, adopting ordinances, appointing committees, and adopting the budget. The City Manager is responsible for implementing the policies, overseeing the day-to-day operations of the City, and appointing department directors.

Pinole provides all public services including fire, police, road and street maintenance, community development, recreation programs, parks, wastewater, and fiscal services through a staff of 100 full-time and 39 part-time positions.

The local economy has continued to improve following the economic downturn. Sales tax revenues continue to increase, property values have improved, and the local unemployment rate decreased from 4.9 percent in 2017 to 3.1 percent in 2018. A new shopping center has been developed with a portion opening in 2018 and the balance to open in the second half of 2019. Three significant retailers closed their doors during FY 2018.

A 15,000 square foot CVS Pharmacy was completed in early 2019.

The City of Pinole employs an accounting and budgeting system that is like most municipal forms of government. This system utilizes multiple “funds,” more easily described as separate operating companies, to track expenditures made by and revenues attributable to the operation of each fund. The General Fund typically reflects the operations of the performance of the core services provided by the City, such as law enforcement, fire protection, human resources, legal, debt service, finance, and the administrative side of the City’s operations. Within the General Fund, separate budgets for each of the departments are prepared.

The City operates on a fiscal year beginning July 1 and ending on June 30.

Additional funds may be created to manage specific projects, programs, special or specific income streams, or to account for allocation of revenue from an assessment of taxes. Pinole employs the use of multiple funds to manage specialized activities such as Housing Programs, Community Development, Wastewater, road maintenance, debt service, and capital projects. Additional funds track police and fire department pension activities. These multiple funds require a detailed review to determine the total activity of any department that has activity in more than one fund to gain a complete picture of the revenues and costs pertaining to the department.
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A significant amount of financial information and supporting data was provided to ESCI by the staff of the City of Pinole. ESCI has analyzed the historical actual revenues and expenses from FY 13/14 through FY 17/18 for the City to develop relevant financial trends, strengths, and weaknesses which, in conjunction with the annual budget information for FY 18/19, will assist in the completion of the financial forecasts presented later in this report.

Revenue
A critical component of the success and operation of any business, private or public, is a consistent and reliable funding stream. In the instance of public agencies, this funding is usually provided by the assessment and collection of various forms of taxation such as ad valorem (real estate) taxes, sales taxes, special assessments, and fees for services. Recognizing the limits of public funding, public safety agencies are limited in the level of service they may provide to their communities by the types and levels of revenues that the authority having jurisdiction is willing, or limited by the legislative process, to assess. California’s legislative process created Proposition 13 in 1978, restricting the growth of tax revenues to municipal and other government agencies. Public agencies also may charge fees for services under contractual arrangements or interagency agreements to other agencies or areas outside of their political boundaries.

General Fund revenues are classified as recurring or non-recurring. Recurring revenues are those expected to continue annually, such as property taxes, sales taxes, and contracts for service. Non-recurring revenues are those sources that are expected to not continue, such as sales of assets, grant revenues, loan proceeds, and insurance proceeds. Loan proceeds may be received in one fiscal year but not be utilized until a future fiscal year, which may significantly distort the cash flows in both years. The City has sold surplus properties during four of the past five years, supplementing its cash flow for those years, but this source should not be expected on an annual basis.

The City of Pinole is allowed by statute to assess and collect a variety of taxes. The City assesses a property tax as well as a general sales tax. Revenues included in the General Fund to provide for various operations, including fire and police activities, are provided through two Measure “S” sales tax initiatives. The 2006 Measure created a 0.5 percent sales tax, which has been allocated by budget appropriations to fund fire and police department operations. The Measure S 2014 added a .5 percent sales tax to fund City operations, a portion of which has also been allocated to public safety activities. Neither of the Measure S initiatives has an expiration date.

Additionally, a utility use tax (UUT) initiative was originally enacted in 1998 and went into effect on December 1 of that year. The UUT assesses an 8 percent tax on telephone, electric, and gas services. Voters in Pinole have approved extensions of the UUT in 2004 and 2012. In 2018,the tax was extended without a sunset date, so it will now remain in effect until repealed by voters. The tax presently raises approximately $2,000,000 for the General Fund, equivalent to approximately 14 percent of the General Fund Budget. 143 of 801 297 of 955
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Recurring Revenues
Property tax revenue is based on the assessed value of the property within the boundaries of the jurisdiction applied against the tax rate. The following figure shows the growth of the property valuation and the related property tax revenue.

Figure 15: Property Tax Value & Property Tax Revenues for City of Pinole (FY 13/14–FY 17/18 Actual) Description FY 13/14 FY 14/15 FY 15/16 FY 16/17 FY 17/18 Value Subject To City Tax 868,918,982 990,967,092 1,048,130,045 1,105,435,408 1,170,940,384 Effective Tax Rate 0.19% 0.19% 0.19% 0.19% 0.19%
City Property Tax Collected 1,622,419 1,856,378 1,967,011 2,059,786 2,185,033 The following figure provides a graphical presentation of the relationship between the property valuations and the tax assessed against those values.

Figure 16: Taxable Value & Property Tax Revenue (FY 13/14–FY 17/18) The City of Pinole serves as the Successor Agency to the Pinole Redevelopment Agency. This agency was dissolved on February 1, 2012, pursuant to State Law ABx1-26. Under the State Law, the City receives Redevelopment Property Tax Trust Fund payments equal to a 19 percent share of the 1 percent property tax from the sale of properties formerly owned by the Redevelopment Agency. Large spikes in these collections result from sales of properties with higher values. The following figure provides a historical perspective of taxes collected on redevelopment property sales. The property tax collections related to the Redevelopment Properties are not included in the previous graphical presentation of City property taxes assessed. $868,918,982
$990,967,092
$1,048,130,045
$1,105,435,408
$1,170,940,384
$1,622,419
$1,856,378
$1,967,011
$2,059,786
$2,185,033
$0
$500,000
$1,000,000
$1,500,000
$2,000,000
$2,500,000
$0
$200,000,000
$400,000,000
$600,000,000
$800,000,000
$1,000,000,000
$1,200,000,000
$1,400,000,000
FY 13/14 FY 14/15 FY 15/16 FY 16/17 FY 17/18
Value Subject to City Tax City Property Tax Collected
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Figure 17: Pinole Historical Collections of Property Taxes Related to Redevelopment Properties (FY 13/14–FY 17/18 Actual)
Description FY 13/14 FY 14/15 FY 15/16 FY 16/17 FY 17/18 Tax collected on redevelopment 105,121 105,121 105,121 104,251 104,295 Redevelopment property sales 973,697 3,138,877 1,309,520 1,289,035 2,325,870 Total Redevelopment Properties: $1,078,818 $3,243,998 $1,414,641 $1,393,286 $2,430,165 Sales tax revenue is the most significant source of tax revenue for the City of Pinole. This amount has steadily increased except for an anomaly in FY 16/17. Sales tax has risen an average of 14.5 percent annually from FY 13/14 to FY 17/18. Franchise tax, typically assessments collected for the use of a city’s right-of-way, has experienced annual growth of 3 percent over the five-year history period. Utility and occupancy taxes have increased as real estate development activities have increased. Intergovernmental receipts grew between FY 13/14 and FY 15/16 before most of those revenues were classified as charges for services in FY 16/17 and FY 17/18.
$5,164,841
$6,120,156
$7,859,195
$7,411,905
$8,162,816
$0
$1,000,000
$2,000,000
$3,000,000
$4,000,000
$5,000,000
$6,000,000
$7,000,000
$8,000,000
$9,000,000
FY 13/14 FY 14/15 FY 15/16 FY 16/17 FY 17/18
Sales Tax Measure S 2006 Measure S 2014 Total Sales Tax Figure 18: Sales Tax Collections Including Measure S (2006 & 2014 Initiatives) FY 13/14–FY 17/18
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Non-Recurring Revenues
Non-recurring revenues consist of proceeds from a capital lease and the sale of surplus properties.

Additionally, Net Transfers In (Out) are included in non-recurring revenues.

The following figure shows the recurring and non-recurring revenues for the City of Pinole from FY 13/14 through FY 17/18.

Figure 19: Recurring & Non-Recurring Revenues for Pinole (FY 13/14–FY 17/18 Actual) Revenue FY 13/14 FY 14/15 FY 15/16 FY 16/17 FY 17/18
Property Taxes $1,622,419 $1,856,378 $1,967,011 $2,059,786 $2,185,033 Redevelopment PTTF 105,121 105,121 105,121 104,251 104,295 Sales Tax 5,164,841 6,120,156 7,859,195 7,411,905 8,162,816 Franchise Tax 667,030 656,564 687,737 717,013 747,625
Utility Tax 1,880,224 1,843,618 1,876,318 2,066,623 1,926,796 Other Tax Receipts 574,582 708,456 763,252 812,417 880,271 Intergovernmental 1,462,286 1,799,252 1,925,491 1,647,297 1,732,370 Investment Earnings 811 773 8,251 3,568 62,567
Charges For Service 407,651 373,161 395,363 84,107 1,085,883 Permits 36,572 47,115 94,698 61,096 98,312
Grants — — — 83,902 79,426
Rents & Ground Leases 91,228 93,550 159,275 81,510 97,027 Reimbursements — 510 — 4,171 113,071
Abatement Fees — — — 4,242 720
Fines, Forfeitures, Penalties 54,273 55,734 38,161 38,876 41,279 Recurring Revenues: $12,067,038 $13,660,388 $15,879,873 $15,180,764 $17,317,491 Capital Lease 458,000 — — — —
Other Receipts 33,184 75,836 165,694 17,355 148,062
Redevelopment Property sale 973,697 3,138,877 1,309,520 1,289,035 2,325,870 Sale of Property — — — 16,099 10,017,210
Net Transfers In (Out) 116,757 235,698 (396,602) (30,000) (34,095) Non-Recurring: $1,581,638 $3,450,411 $1,078,612 $1,292,489 $12,457,047 Total Revenues: $13,648,676 $17,110,799 $16,958,485 $16,473,253 $29,774,538 General Fund expenditures are classified as recurring and non-recurring with similar definitions to those of revenues. The General Fund includes funds for public safety, general administration, public services, recreation, and community development. In most instances, debt service is classified with non-recurring expenditures; however, the City of Pinole has long-term liabilities that extend for several years and will be included with the recurring expenditures.
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Included in the General Fund debt service amounts is the annual payment necessary for the retirement of the $6,214,630 of bonds that were issued in 2006 to finance the City’s unfunded accrued actuarial liability with CalPERS. These bonds require an annual payment plus interest for thirty years until the debt is extinguished in 2036.

Public Safety expenditures comprise between 65 percent and 70 percent of recurring expenditures and have grown annually. The significant portion of this growth is a result of increased costs associated with the Public Employees Retirement System (CalPERS). Due primarily to a change in the expected investment returns by the plan, the City has incurred additional unfunded accrued actuarial liability with CalPERS that require amortization. These amounts are expected to increase over the next several years before the annual payment amounts decrease. This issue will be discussed further in the projections section of this report.

Capital expenditures paid from the Measure S (2014) are intermingled within the individual department expenditures.

Figure 20: Pinole Actual General Fund & Measure S Recurring & Non-Recurring Expenditures (FY 13/14–FY 17/18)
Expenditures
Actual June 30,
FY 13/14 FY 14/15 FY 15/16 FY 16/17 FY 17/18
General Administration 2,218,379 2,179,503 2,764,265 3,452,526 3,708,784 Public Safety 8,899,703 8,515,958 8,896,628 9,718,068 10,300,507 Public Services 609,150 677,310 1,274,402 789,966 947,950 Recreation 47 — 2,964 12,783 8,458
Community Development (2,964) — 4,785 7,959 8,206
Cable Access TV — — 30,616 — —
Debt Service 590,884 543,605 554,467 581,443 572,923
Recurring Expenditures $12,315,199 $11,916,376 $13,528,127 $14,562,745 $15,546,828 Capital Outlay — — — — —
Non-Recurring Expenditures — — — — —
Total Expenditures: $12,315,199 $11,916,376 $13,528,127 $14,562,745 $15,546,828 The City established a General Fund reserve in FY 14/15 with a beginning balance of $3 million. The Council’s goal is to provide a reserve balance equal to six months of General Fund operating expenses or approximately $5.5 million.

The fund balance of the General Fund has improved significantly over the past five years, and the City has achieved its target reserve balance.
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Figure 21: Analysis of Fund Balance of the General Fund (FY 13/14–FY 17/18) Description
Actual June 30,
FY 13/14 FY 14/15 FY 15/16 FY 16/17 FY 17/18
Total Revenues 13,648,676 17,110,799 16,958,485 16,473,253 29,774,538 Total Expenditures 12,315,199 11,916,376 13,528,127 14,562,745 15,546,828 Increase (Decrease) in Fund Balance 1,333,477 5,194,423 3,430,358 1,910,508 14,227,710 Beginning Fund Balance (1,358,853) (25,376) 5,169,047 8,599,405 11,135,715 Prior Year Adjustment — — — 625,802 —
Ending Fund Balance: $(25,376) $5,169,047 $8,599,405 $11,135,715 $25,363,425 The large increase in the Fund Balance in FY 17/18 results from the repayment of a loan due to the City in an amount slightly greater than $10 million. All of these funds were transferred from the General Fund to an IRS Section 115 Pension Trust in FY 18/19. An adjustment has been made to the prior year Fund Balance in FY 16/17 to compensate for differences in balances between the annual reports.

City of Pinole Fire Department
The department is presently staffed by 14 career employees and a Management Analyst. PFD serves a community approximately 12 square miles in area with a population within the city limits of approximately 19,364 residents. Services, including fire protection, emergency medical services, fire investigation, fire prevention, life safety education, community risk reduction, disaster/emergency operations planning, and hazardous materials response are presently provided from a single fire station utilizing a single engine staffed with a minimum of three personnel. A Battalion Chief responds on incidents requiring a senior level command presence.

The PFD is a department of the City of Pinole and has no funding source other than that supplied by the City through the revenues generated by its General Fund and other measures enacted to generate revenue at the City level. Two general sales tax measures have been enacted since 2006, which have been allocated by budget appropriation, in whole or in part, to the Public Safety departments of the City.

The Pinole Fire Department participates in an Automatic Aid Agreement with the Contra Costa County Fire Protection District and the Rodeo-Hercules Fire Protection District. This agreement provides the framework under which the three agencies will jointly provide fire and emergency medical services through the integration of operations.

In some of the years prior to those evaluated for this project, the PFD operated from two stations. The economic downturn in 2008/2009 reduced the City’s revenue to the level that the second station (Station 74) was initially closed during certain operational periods through a brownout program, but as finances continued to worsen, it was ultimately closed. This closure has resulted in an increase in response times to a portion of the City.
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The budget and accounting practices employed by the City of Pinole do not allocate General Fund overhead expenses to the various departments. This makes comparisons with other agencies, such as fire districts difficult. While it may be possible to estimate the executive management costs of the City that would be attributable to the fire department, a portion of those costs may not be applicable to a fire district.

The budget of the Pinole Fire Department has expanded and contracted during the previous five years.

However, the overall budget has remained within $250,000 between FY 13/14 and FY 17/18 except for an anomaly in Services in FY 16/17 for an allocation of administrative costs.

Figure 22: PFD Recurring & Non-Recurring Expenditures (FY 13/14–FY 17/18) Description
Actuals for the Year Ending June 30,
FY 13/14 FY 14/15 FY 15/16 FY 16/17 FY 17/18
Salaries (includes overtime) $1,650,376 $1,645,448 $1,686,694 $1,575,190 $1,832,417 Benefits 605,918 660,257 817,636 597,058 604,578
Total Salaries and Benefits 2,256,294 2,305,705 2,504,330 2,172,248 2,436,995 Services 541,751 517,087 451,514 1,531,829 681,611
Supplies 142,128 144,244 138,641 152,413 153,338
Total Recurring Costs 2,940,173 2,967,036 3,094,485 3,856,490 3,271,944 Debt Service 70,433 70,433 70,497 70,433 70,433
Capital Acquisitions 465,919 51,514 9,208 7,197 —
Total Non-Recurring Expenditures 536,352 121,947 79,705 77,630 70,433 Total Expenditures: $3,476,525 $3,088,983 $3,174,190 $3,934,120 $3,342,377 Of these total expenditures, a portion has been funded through the Measure S (2006) and the Measure S (2014) initiatives.

Figure 23: Other Sources of Funding for the Pinole Fire Department (FY 13/14–FY 17/18) Source
Actuals for the Year Ending June 30,
FY 13/14 FY 14/15 FY 15/16 FY 16/17 FY 17/18
Total Expenditures $3,476,525 $3,088,983 $3,174,190 $3,934,120 $3,342,377 Measure S (2006) 1,150,524 777,004 555,295 655,666 714,030 Measure S (2014) — — 18,683 11,589 199,863
Total Other Sources 1,150,524 777,004 573,978 667,255 913,893 Balance to fund from General Fund $2,326,001 $2,311,979 $2,600,212 $3,266,865 $2,428,484 149 of 801 303 of 955
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Financial Projections
The Amended City of Pinole General Fund Budget for FY 18/19 projects a negative cash flow of approximately $950,000 before considering Transfers In and Transfers Out activity. This is due to a $1 million allocation from the General Fund balance for the purchase of a new fire engine. Approximately $16,000,000 of the amounts included in the Transfer Out category was utilized to create an Irrevocable Pension Trust to assist the City with funding the CalPERS future retirement expenses of the City’s employees. Property tax revenues in FY 18/19 are projected to be approximately $825,000 less than the amounts received in FY 17/18, decreasing from $4,615,000 to $3,787,000.
12 Sales tax revenues from the General Fund, Measure S (2006), and Measure S (2014) are also projected to be approximately $12,000 less than the previous year. Charges for services are projected to be approximately $153,000 more in FY 18/19 than the amounts received in FY 17/18.

Revenues are identified as recurring or non-recurring with recurring revenues consisting of those receipts that can be expected to continue annually and that have a reasonably expected amount. Non-recurring receipts are items that may occur sporadically or are difficult to project an amount.

The following figure uses the projected FY 19/20 as a base year on which to create the five-year projections.

Property values, as well as property and sales tax revenues, are projected to increase at a 2 percent annual rate. The Utility Users Tax and Franchise Tax increases are forecast to increase at a 1 percent annual rate.

Other tax revenues and other revenue sources are both forecast to increase at an annual rate of 2 percent.

Beginning in FY 20/21, a significant portion of the annual pension cost increases will be offset by the withdrawals from the Pension Trust with those funds included in the Transfer In category in Recurring Revenues. Non-recurring revenues include miscellaneous proceeds and proceeds from the sale of surplus assets. The following figure uses the information provided by City staff on or before October 8, 2019.

Anticipated modifications to these amounts will be contained in the addendum to this report. 12 FY 2019/20 Proposed Budget for the City of Pinole, Pg. B-1. 150 of 801 304 of 955
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Figure 24: Pinole Recurring vs. Non-recurring General Fund and Measure S Initiatives Revenues (Amended Budget FY 18/19–FY 24/25)
Revenue
Amended
Budget
Adopted
Budget Projected
FY 18/19 FY 19/20 FY 20/21 FY 21/22 FY 22/23 FY 23/24 FY 24/25 Property Taxes 3,787,392 4,033,892 4,114,570 4,196,861 4,280,798 4,366,414 4,453,743 Sales Tax 7,842,100 7,550,886 7,701,904 7,855,943 8,013,062 8,173,323 8,336,789 Franchise Tax 744,128 744,000 751,440 758,954 766,544 774,209 781,951 Utility Tax 1,930,000 1,898,000 1,916,980 1,936,150 1,955,511 1,975,066 1,994,817 Other Tax Receipts 884,200 858,900 876,078 893,600 911,472 929,701 948,295 Intergovernmental 1,736,706 1,819,484 1,855,874 1,892,991 1,930,851 1,969,468 2,008,857 Investment Earnings 207,000 250,000 255,000 260,100 265,302 270,608 276,020 Charges for Service 1,224,239 1,276,723 1,301,257 1,326,283 1,351,808 1,377,844 1,404,401 Permits 76,700 73,700 75,174 76,677 78,211 79,775 81,371 Grants 163,437 92,026 93,867 95,744 97,659 99,612 101,604 Rents/Ground Leases 81,450 81,450 83,079 84,741 86,435 88,164 89,927 Reimbursements 97,115 9,500 9,690 9,884 10,081 10,283 10,489 Abatement Fees 9,000 3,300 3,366 3,433 3,502 3,572 3,571 Fines, Forfeitures &
Penalties 59,050 41,550 42,381 43,229 44,093 44,975 45,875 Transfers In 6,290,688 900,938 3,233,882 4,139,372 5,191,081 6,412,292 6,412,292 Recurring Revenue: 25,133,205 19,634,349 22,314,542 23,573,962 24,986,410 26,575,306 26,950,002 Capital Lease — — — — — — —
Other Receipts 14,000 9,000 9,180 9,364 9,551 9,742 9,937 Property Sales 11,000 11,000 11,220 11,444 11,673 11,907 — Non-Recurring: 25,000 20,000 20,400 20,808 21,224 21,649 9,937 Total Revenues: 25,158,205 19,654,349 22,334,942 23,594,770 25,007,634 26,596,955 26,959,939 Expenses are classified in a manner much like revenues, recurring or non-recurring. Salaries, benefits, and typical operating expenses are identified as recurring in nature. In the instance of Pinole, annual debt service payments are expected for a significant number of years in the future and are also included as recurring expenditures. Capital outlays are projected annually from the Measure S (2014) initiative and are classified as non-recurring expenditures. Transfers to other funds are also classified as non-recurring expenditures.

The projection methodology incorporates expenditure type rather than function type in order to use generalized growth factors. Salary expense across the City is projected to increase at a 3 percent annual rate through the FY 23/24 fiscal year. Benefit increases primarily result from the increase in pension costs to compensate for the reduced returns experienced by CalPERS, the state pension system. Other operating expenses are projected to increase at a 2.8 percent annual rate beginning with the FY 20/21 period. Debt service is projected based on repayment terms for each liability. 151 of 801 305 of 955
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Non-recurring expenditures include scheduled transfers from the General Fund and other funds included in the General Fund to other funds such as internal service funds or equipment reserves.

The following figure uses projected amounts provided by City staff as of October 8, 2019. Anticipated modifications to these amounts will be included in the addendum to this report.

Figure 25: City of Pinole Projected Recurring vs. Non-Recurring General Fund and Measure S Initiatives Expenditures (Amended Budget FY 18/19–FY 24/25) Expenses
Amended
Budget
Projected
Budget Projected
FY 18/19 FY 19/20 FY 20/21 FY 21/22 FY 22/23 FY 23/24 FY 24/25 Salaries 8,585,194 9,138,860 9,413,026 9,695,417 9,986,280 10,285,867 10,594,443 Benefits & Insurance 4,738,955 5,787,430 9,175,976 11,189,850 13,405,359 15,848,563 18,701,304 Other Operating
Expenses 4,324,315 3,797,889 2,876,229 2,956,764 3,039,553 3,124,660 3,212,150 Debt Service 590,433 605,433 555,000 575,000 595,000 610,000 610,000 Recurring Expenditures 18,238,897 19,329,612 22,020,231 24,417,031 27,026,192 29,869,090 33,117,897 Capital Outlay 929,814 882,618 907,331 932,737 958,853 985,701 1,013,301 Transfers Out 22,094,954 1,328,948 1,150,000 1,150,000 1,150,000 1,150,000 1,150,000 Non-Recurring
Expenditures 23,024,768 2,211,566 2,057,331 2,082,737 2,108,853 2,135,701 2,163,301 Total Expenditures: 41,263,665 21,541,178 24,077,562 26,499,768 29,135,045 32,004,791 35,281,198 Maintaining an adequate reserve or fund balance is good business practice for private businesses but is especially critical for municipalities as new revenue streams are typically enacted through a legislative process. Comparing the projected revenues and expenditures of the City of Pinole provides insight into the future financial health of the City. The significant anomaly occurring in FY 18/19 is a result of the one-time $16 million transfer to the IRS 115 Pension Trust. City Council had initiated a plan to accumulate a $5.5 million emergency reserve and had been able to accomplish this goal in FY 18/19. The goal has been projected to be achieved in each of the following two fiscal years through FY 21/22. However, continued fiscal pressure in the form of increased CalPERS pension funding does not allow for this financial goal to remain sustainable beyond FY 21/22.

The Pinole Fire Department’s FY 18/19 Budget is $5,188,930, including $1,280,560 for capital acquisitions.

This is an increase of $1,846,533 over actual expenditures in FY 17/18. Benefit costs increased approximately $290,000 over FY 17/18 actual costs and are primarily related to the increase in required pension costs. The budget is divided between General Fund expenditures and Measure S (2006) and Measure S (2014) funded expenditures.

The City of Pinole staff developed the adopted fire department FY 19/20 budget with the goal of providing quality services within the City’s available resources. This budget forms the basis for the remaining projections.

Like the City’s growth factors for expenses, salaries are anticipated to increase 3 percent annually. The increase in employee benefits is driven by the significant increases in the required CalPERS plus a 5 percent increase in other benefits. Service and supplies costs are projected to increase at 2.8 percent annually.

Measure S (2006) and Measure S (2014) initiatives are projected to grow at an annual rate of 1 percent during the next five years and will continue to provide funding for a portion of fire department salaries, benefits, operating expenses, and capital acquisitions. The following figure demonstrates what is considered as a status quo option, which shows the projected costs if the City took no action other than to leave the service delivery system as is.

The following figure uses projected amounts provided by City staff as of October 8, 2019. Anticipated modifications to these amounts will be included in the addendum to this report. 153 of 801 307 of 955
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Figure 27: PFD Projected Status Quo Expenditures & Funding Sources (Amended Budget FY 18/19–FY 24/25)
Description
Amended Adopted Projected
FY 18/19 FY 19/20 FY 20/21 FY 21/22 FY 22/23 FY 23/24 FY 24/25 Salaries 1,900,133 2,104,678 2,167,818 2,232,853 2,299,838 2,368,834 2,439,899 Benefits 894,321 1,284,608 2,113,226 2,577,021 3,087,252 3,649,922 4,306,908 Total Salaries & Benefits 2,794,454 3,389,286 4,281,044 4,809,873 5,387,090 6,018,755 6,746,807 Services 917,898 808,274 830,906 854,171 878,088 902,674 927,949 Supplies 125,585 156,300 160,676 165,175 169,800 174,555 179,442 Total Recurring Costs 3,837,937 4,353,860 5,272,626 5,829,219 6,434,978 7,095,984 7,854,198 Debt Service 70,433 70,433 - - - - -
Capital Acquisitions 280,560 1,064,000 - - - - -
Total Non-Recurring
Expenditures 350,993 1,134,433 - - - - -
Total Expenditures 4,188,930 5,488,293 5,272,626 5,829,219 6,434,978 7,095,984 7,854,198 Sources of Funding
Measure S (2006) 951,046 786,830 794,698 802,645 810,672 818,778 826,966 Measure S (2014) 314,663 306,128 309,189 312,281 315,404 318,558 321,744 Total Other Sources 1,265,709 1,092,958 1,103,888 1,114,926 1,126,076 1,137,336 1,148,710 Balance To Fund From
General Fund 2,923,221 4,395,335 4,168,739 4,714,293 5,308,903 5,958,648 6,705,488 154 of 801 308 of 955
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Capital Assets & Improvements
Three basic resources are required to successfully carry out the mission of a fire department―trained personnel, firefighting equipment, and fire stations. No matter how competent or numerous the firefighters, if appropriate capital equipment is not available for use by responders, it is impossible for a fire department to deliver services effectively. The capital assets that are most essential to the provision of emergency response are facilities and apparatus (response vehicles).

Fixed Facilities
Fire stations play an integral role in the delivery of emergency services for several reasons.A station’s location will dictate, to a large degree, response times to emergencies. A poorly located station can mean the difference between confining a fire to a single room and losing the structure. Fire stations also need to be designed to adequately house equipment and apparatus, as well as meet the needs of the organization and its firefighters.

Consideration should be given to a fire station’s ability to support the jurisdiction’s mission as it exists today and into the future. The activities that take place within the fire station should be carefully examined to ensure the structure is adequate in both size and function.

ESCI Associates conducted walk-through inspections of the two Pinole Fire Stations. ESCI utilized a standard check-off list for each facility inspection.

Special attention was made to the building’s location, future use viability in terms of serving the community, and the capability of accommodating an increase in staffing levels and emergency response apparatuses in the future.
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Figure 28: Fire Station Condition Definitions

EXCELLENT
Like new condition. No visible structural defects. The facility is clean and well maintained. Interior layout is conducive to function with no unnecessary impediments to the apparatus bays or offices. No significant defect history. Building design and construction match the building’s purposes.

GOOD
The exterior has a good appearance with minor or no defects. Clean lines, good workflow design, and only minor wear of the building interior. Roof and apparatus apron are in good working order, absent any significant full-thickness cracks or crumbling of apron surface or visible roof patches or leaks. Building design and construction match the building’s purposes.

FAIR
The building appears to be structurally sound with weathered appearance and minor to moderate 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.

POOR
The building appears to be cosmetically weathered and worn with potentially structural defects, although not imminently dangerous or unsafe. Large, multiple full-thickness cracks and crumbling of concrete on apron may exist. The roof has evidence of leaking and/or multiple repairs. The interior is poorly maintained or showing signs of advanced deterioration with moderate to significant non-structural defects. Problematic agerelated maintenance and/or major defects are evident. May not be well suited to its intended purpose.

The following figures depict the results of ESCI’s inspections of the City of Pinole’s fire stations. 156 of 801 310 of 955
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Figure 29: Pinole Fire Department Station 73 & Administrative Headquarters Station Name/Number: 73
Address/Physical Location: 880 Tennent Ave., Pinole, CA 94564 General Description:

This two-story station houses the on-duty crew, Fire Chief, and Management Analyst.

Structure
Construction Type Type 3 Ordinary
Date of Construction 1985
Seismic Protection Unknown
Auxiliary Power Diesel Generator with 1,000 Gallons
General Condition Fair
Number of Apparatus Bays 3 Drive-through bays 3 Back-in bays Considerations (ADA, etc.) No
Square Footage Two-story, approximately 3,500 square feet Facilities Available
Separate Rooms/Dormitory 2 Bedrooms 3 Beds 12 Beds in dormitory Maximum Station Staffing Capability 6 (the Captains’ room has 3 murphy beds) Exercise/Workout Facilities Yes
Kitchen Facilities Yes
Individual Lockers/Storage Assigned Yes
Shower Facilities Yes
Training/Meeting Rooms Yes
Washer/Dryer Yes
Safety & Security
Sprinklers Yes
Smoke Detection Yes
Decontamination/Biohazard Disposal Yes
Security Yes
Apparatus Exhaust System Yes
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Figure 30: Pinole Fire Department Station 74
Station Name/Number: 74 (open only to a BC)
Address 3700 Pinole Valley Rd., Pinole, CA 94564
General Description:

This single-story station has been closed since 2011.

Structure
Construction Type Type 3 Ordinary
Date of Construction 2003
Seismic Protection None
Auxiliary Power Yes
General Condition Good
Number of Apparatus Bays 2 Drive-through bays 0 Back-in bays Special Considerations (ADA, etc.) Yes
Square Footage 2,500
Facilities Available
Separate Rooms/Dormitory/Other 3 Bedrooms 3 Beds each Beds in dormitory Station Staffing Capability 3
Exercise/Workout Facilities No
Kitchen Facilities Yes
Individual Lockers/Storage Assigned Yes
Shower Facilities Yes
Training/Meeting Rooms No, front office only
Washer/Dryer Yes
Safety & Security
Sprinklers Yes
Smoke Detection Yes
Decontamination/Biohazard Disposal No
Security Yes
Apparatus Exhaust System Yes
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Facilities Summary
The two facilities range in age from 16 to 34 years old.

Fire Station 73
The exterior is in good shape. Office space is upstairs adjacent to the central living area/kitchen. The upstairs living/dorm space is non-partitioned and cramped with furniture/gym equipment. Very little workstation or training space is available for personnel. Interior modifications would be useful. An SCBA filling station/storage and bunker room are adjacent to the apparatus bay, separated by a single door, which, if open, exposes both rooms to diesel exhaust. Station 73’s office was recently remodeled; however, the crew quarters need remodeling and updating, which may include ADA accommodation. Remodeling should take into account the obligation to provide additional office, workspace, gender segregation of crews, and a shift Battalion Chief.

Fire Station 74
The exterior and grounds are well kept. The interior is in good shape with some carpet wear and tear. The FY 19/20 budget includes $20,000 for these repairs. Individual dorm rooms and bathrooms allow for gender separation. There is some workstation/training space but little room for expansion. The apparatus bays are in good working order with a bunker room directly adjacent. While small, the station is adequate to house a three-person Engine Company and crossed-staffed Type III wildland engine.

Apparatus/Vehicles
Other than firefighters assigned to stations, response vehicles are undoubtedly the next most important resource of the emergency response system. The delivery of emergency services will be compromised if emergency personnel cannot arrive quickly due to unreliable transportation or if the equipment does not function properly.

Fire apparatus are unique and expensive pieces of equipment, customized to operate efficiently for a narrowly defined mission.An engine may be built in such a way that the compartments fit specific equipment and tools. Virtually every space on a fire vehicle is designed for function. This same vehicle, with its specialized design, does not lend itself well to operate in a completely different capacity, such as a hazardous materials unit or a rescue squad. For this reason, fire apparatus offers little flexibility in use or reassigned purpose. As a result, communities across the country have sought to achieve the longest life span possible for these vehicles. Unfortunately, no piece of mechanical equipment can be expected to last forever. As vehicles age, repairs tend to become more frequent and more complex. 159 of 801 313 of 955
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Parts may become more difficult to obtain, and downtime for repairs increases.Given the emergency mission that is so critical to the community, downtime is one of the most frequently identified reasons for apparatus replacement. Because of the expense of fire apparatus, most communities develop replacement plans. To enable such planning, communities often turn to the accepted practice of establishing a life cycle for apparatus that results in an anticipated replacement date for each vehicle. The reality is that it may be best to establish a life cycle for planning purposes, such as the development of replacement funding for various types of apparatus; yet, apply a different method (such as a maintenance and performance review) for determining the actual replacement date, thereby achieving greater cost-effectiveness when possible.

Fire administrators should be concerned about the aging of the fleet and have a funded replacement schedule. As frontline apparatus age, fleet costs will naturally be higher, and more downtime will be associated with necessary repairs and routine maintenance.

It is beyond the scope of work and the expertise of ESCI to provide a mechanical assessment of the apparatus.

For a mechanical evaluation of the apparatus, ESCI recommends seeking the services of a certified Emergency Vehicle Technician.

The following figure displays the City of Pinole’s Apparatus/Vehicle Inventory as submitted by PFD staff.

Figure 31: PFD Station 73 Apparatus & Vehicle Inventory Apparatus Type Year Make/Model Condition Seating
Capacity
Pump
Capacity
Tank
Capacity
Battalion 7, 7301 SUV 2008 Ford/Expedition Fair 5 N/A N/A Engine E73 Type 1 2015 Spartan Good 5 1500 500
Reserve E73A Type 1 2005 HME/Rosenbauer Fair/Poor 5 1500 1200 Wildland E273 Type 3 2008 Rosenbauer Good/fair 4 1000 500 Wildland E673 Type 6 2001 Ford F550 Fair/Poor 2 160 200 Fire Chief 7300 SUV 2015 Ford/Intercept Good 5 N/A N/A
Utility 73 Pickup 2007 Ford F250 Fair 4 N/A N/A
New Battalion 7 SUV 2019 Ford Expedition New 5 N/A N/A
Apparatus Summary
Generally, fire agencies utilize a guideline as follows to establish capital equipment replacement programs:
• Engines: 10 years frontline and 5 years in reserve.
• Wildland Engines: 15 years frontline 5 years in reserve. • Truck Companies: 15 years frontline and 5 to 10 years in reserve. • Ambulance: 5 years frontline and 5 years in reserve.
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The level of activity, topography, and other factors may influence these guidelines. • PFD apparatus specifications have not been standardized with the Battalion 7 apparatus. • The age of PFD’s frontline engine is 4 years. It is scheduled to become the reserve engine when the engine currently on order arrives in FY 19/20.
• Reserve Engine 73A is 14 years old and will be replaced by current E73 when the engine on order arrives.
• Wildland Engine 273 is 11 years old, and 673 is 18 years old and should be scheduled for replacement.

Capital Replacement Planning
Long-range capital replacement planning is always a challenge for any municipality. Pinole has done a commendable job of purchasing and maintaining its fleet of fire apparatus using General Fund Reserves. This practice—while not uncommon—has resulted in a significant number of replacements being deferred. Fire vehicles have a readily predictable service life and an easily forecast future replacement cost, which should be preplanned. If future needs are identified and funding is set aside to accommodate the need, the agency will not be dependent on reserves in the future to meet its long-term financial demands. ESCI recommends to clients that, as soon as a new piece of fire apparatus is purchased, funding should start to be set aside for its replacement.
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Critical Tasking
Critical tasks are those activities that must be conducted promptly by firefighters at emergency incidents to control the situation, stop loss, and to perform necessary tasks required for a medical emergency. The Pinole Fire Department is responsible for assuring that responding PFD personnel are capable of performing all of the described tasks in a prompt, efficient, and safe manner.

Fires: Critical tasking for fire operations is the minimum number of personnel to perform the tasks required to control a fire in the listed risk category effectively. Major fires (beyond first alarm) will require additional personnel and apparatus.

Emergency Medical: Critical tasking for emergency medical incidents is the minimum number of personnel to perform the tasks required and support the identified strategy based on the department’s adopted medical protocol.

The following figure details PFD’s available response staffing by type of incident Figure 32: Critical Tasking
Low Rise Structure Fire
Task Number of
Personnel
Command/Safety 1 (B-Shift)
Pump Operations 1
Attack Line 2
Search and Rescue 0
Ventilation 0
RIC 0
Other (Hydrant, backup line) 0
Total 4
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High Rise Structure Fire (75+ feet in height)
Task Number of
Personnel
Command/Safety 1 (B-Shift)
Pump Operations 1
Attack Line 2
Search and Rescue 0
Ventilation 0
RIC 0
Other (Hydrant, backup line) 0
Total 4
Moderate Risk Commercial Structure Fire
Task Number of
Personnel
Command/Safety 1 (B-Shift)
Pump Operations 1
Attack Line 2
Search and Rescue 0
Ventilation 0
RIC 0
Other (Hydrant, backup line) 0
Total 4
High Risk Commercial Structure Fire
Task Number of
Personnel
Command/Safety 1 (B-Shift)
Pump Operations 1
Attack Line 2
Search and Rescue 0
Ventilation 0
RIC 0
Other (Hydrant, backup line 0
Total 4
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Wildland Fire—Low Risk
Task Number of
Personnel
Command/Safety 1 (B-Shift)
Attack Line
Pump Operations
2 1
Total 4
Wildland Fire—High Risk
Task Number of
Personnel
Command/Safety 1 (B-Shift)
Pump Operations/Lookout 1
Attack Line 2
Structure Protection 0
Water Supply 0
Total 4
Aircraft Emergency
Task Number of
Personnel
Command/Safety 1 (B-Shift)
Aircraft Fire Suppression 0
Pump Operations 1
Attack Line 2
Back-up Line 0
Rescue 0
Emergency Medical Care 0
Water Supply 0
Total 4
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Hazardous Materials—Low Risk
Task Number of
Personnel
Command 1 (B-Shift)
Liaison 0
Decontamination 0
Research/Support 3
Entry team, and Backup Team 0
Total 4
Hazardous Materials—High Risk
Task Number of
Personnel
Command 1 (B-Shift)
Liaison 0
Decontamination 0
Research Support 3
Team Leader, Safety, Entry Team, and Backup Team 0
Total 4
Emergency Medical Aid (Life-threatening)
Task Number of
Personnel
Patient Management 1
Patient Care 1
Documentation 1
Total 3
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Major Medical Response (10+ Patients)
Task Number of
Personnel
Incident Command/Safety 1 (B-Shift)
Triage 1
Treatment Manager 0
Patient Care 2
Transportation Manager 0
Total 4
Motor Vehicle Accident (Non-Trapped)
Task Number of
Personnel
Scene Management/Documentation 1
Patient Care/Extrication 2
Total 3
Motor Vehicle Accident (Trapped)
Task Number of
Personnel
Command/Safety 1 (B-Shift)
Scene Management 0
Patient Care 1
Extrication 2
Pump Operator/Suppression Line 0
Extrication/Vehicle Stabilization 0
Total 4
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Technical Rescue—Water
Task Number of
Personnel
Command/Safety 1 (B-Shift)
Rescue Team 0
Backup Team 0
Patient Care 3
Rope Tender 0
Upstream Spotter 0
Downstream Safety 0
Total 4
Technical Rescue—Rope
Task Number of
Personnel
Command/Safety 1 (B-Shift)
Rescue Team 2
Backup/Support Team 0
Patient Care 0
Rigger 1
Attendant 0
Ground Support 0
Edge Person 0
Total 4
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Technical Rescue—Confined Space
Task Number of
Personnel
Command/Safety 1 (B-Shift)
Rescue Team 0
Backup/Support Team 0
Patient Care 2
Attendant 0
Rigger 1
Ground Support 0
Total 4
Technical Rescue—Trench
Task Number of
Personnel
Command/Safety 1 (B-Shift)
Rescue Team 0
Backup/Support Team 2
Patient Care 1
Shoring 0
Total 4
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Alarm Assignments
To ensure adequate personnel and apparatus are dispatched to an emergency event,the following first alarm response assignments have been established. “Total PFD Staffing available” is the number identified in the Critical Tasking analysis above. The number of personnel and apparatus required to mitigate an active and complex working incident will require additional resources above and beyond the numbers listed as available.

The “Alarm Assignments” are what has been identified as the number of resources and personnel necessary to address the challenges of each identified event.

Figure 33: Alarm Assignments
Low Rise Structure Fire
Unit Type Number of Units Total Personnel
Engine 4 12
Truck 1 4
Air Supply 1 3
Battalion Chief 2 2
Total Staffing Provided 4
Total Staffing Needed 21
High Rise Structure Fire (75+ feet)
Unit Type Number of Units Total Personnel
Engine 8 24
Truck 3 12
Air Supply 1 3
Battalion Chief 3 3
Total Staffing Provided 4
Total Staffing Needed 42
Moderate Risk Commercial Structure Fire
Unit Type Number of Units Total Personnel
Engine 6 18
Truck 2 8
Air Supply 1 3
Battalion Chief 3 3
Total Staffing Provided 4
Total Staffing Needed 32
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High Risk Commercial Structure Fire
Unit Type Number of Units Total Personnel
Engine 8 24
Truck 3 12
Air Supply 1 3
Battalion Chief 3 3
Total Staffing Provided 4
Total Staffing Needed 42
Wildland Fire—Low Risk
Unit Type Number of Units Total Personnel
Engine
Brush Engine
1 1
3 3
Battalion Chief 1 1
Total Staffing Provided 4
Total Staffing Needed 7
Wildland Fire—High Risk
Unit Type Number of Units Total Personnel
Engine 1 3
Brush Engine 3 9
Battalion Chief 2 2
Total Staffing Provided 4
Total Staffing Needed 14
Aircraft Emergency
Unit Type Number of Units Total Personnel
Engine 3 9
Truck 1 4
ARRF 1 4
Rescue 2 6
Paramedic Ambulance 2 4
Battalion Chief 2 2
Total Staffing Provided 4
Total Staffing Needed 29
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Hazardous Materials—High Risk
Unit Type Number of Units Total Personnel
Engine 3 9
Truck 1 4
Rescue 1 3
Battalion Chief 2 2
Hazardous Materials Unit 2 6
Total Staffing Provided 4
Total Staffing Needed 24
Hazardous Materials—Low Risk
Unit Type Number of Units Total Personnel
Engine 2 6
Truck 1 4
Battalion Chief 1 1
Hazardous Materials Unit 1 1
Total Staffing Provided 4
Total Staffing Needed 12
Emergency Medical Service (Life-threatening)
Unit Type Number of Units Total Personnel
Engine 1 3
Paramedic Ambulance13 1 2
Total Staffing Provided 3
Total Staffing Needed 5
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Major Medical Response (10+ Patients)
Unit Type Number of Units Total Personnel
Engine 2 6
Truck
Rescue
1 1
4 3
Paramedic Ambulance
Battalion Chief
5 2
10 2
Total Staffing Provided 4
Total Staffing Needed 25
Motor Vehicle Accident (Non-Trapped)
Unit Type Number of Units Total Personnel
Engine or Truck 2 6
Total Staffing Provided 3
Total Staffing Needed 6
Motor Vehicle Accident (Trapped)
Unit Type Number of Units Total Personnel
Engine 1 3
Truck 1 4
Paramedic Ambulance 1 2
Rescue 1 3
Battalion Chief 1 1
Total Staffing Provided 4
Total Staffing Needed 13
Technical Rescue—Water
Unit Type Number of Units Total Personnel
Engine 2 6
Water Rescue Unit 1 4
Tech Rescue Unit 1 3
Rescue 1 3
Battalion Chief 2 2
Total Staffing Provided 4
Total Staffing Needed 18
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Technical Rescue—Rope
Unit Type Number of Units Total Personnel
Engine 1 3
Truck 1 4
Rescue 1 3
Tech Rescue Unit 1 3
Battalion Chief 1 1
Total Staffing Provided 4
Total Staffing Needed 14
Technical Rescue—Confined Space
Unit Type Number of Units Total Personnel
Engine 1 3
Truck 1 4
Rescue 1 3
Tech Rescue Unit 1 3
Battalion Chief 1 1
Total Staffing Provided 4
Total Staffing Needed 14
Technical Rescue—Trench
Unit Type Number of Units Total Personnel
Engine 1 3
Truck 1 4
Rescue 1 3
Tech Rescue Unit 1 3
Battalion Chief 1 1
Total Staffing Provided 4
Total Staffing Needed 14
Absent automatic and mutual aid from surrounding agencies, standalone, PFD is not capable of filling the alarm assignments noted above. In the event PFD Station 74 is reopened, the department will be able to initiate an initial attack and comply with the OSHA two-in/two-out rule. 173 of 801 327 of 955
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Staff Scheduling Methodology
PFD utilizes a traditional three platoon system operating on a 48-hour shift rotation to achieve this minimum staffing of three FTEs per day as required. The total number of positions required per jurisdiction becomes a policy decision based on the jurisdiction’s needs. The jurisdiction also then establishes the number of employees needed above the minimum to allow for vacancies due to vacation, sick, and other types of leave, yielding an overall number of full-time employees required to ensure that necessary staffing, according to policy, is available daily. This staffing methodology is prevalent across the Western United States for firefighters to work a 24- or 48-hour shift cycle. Studies have been undertaken and remain ongoing in an attempt to better understand the impact of this work cycle on the physiological process.14 The science indicates that sleep is important and that going without sleep for too long or interrupting the sleep rhythm leads to physical and cognitive problems. That said, no easy answer to the problem exists. Intuitively, the problems would be exacerbated in a busy station and lessened in a less busy station.

All personnel are trained as firefighters, with most trained at a minimum of Emergency Medical Technician (EMT) level. Six have been trained to the Paramedic level. The department provides Advanced Life Support (ALS) services utilizing its one Engine Company. Ambulance response and patient transport are currently assigned to CCFPD.
14 Is the firefighter 48/96 shift a health hazard? Sara Jahnke, FireRescue1, https://www.firerescue1/fire-rehab/articles/223601018-Isthe-firefighter-48-96-shift-a-health-hazard/. 174 of 801 328 of 955
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SERVICE DEMAND & INCIDENT STAFFING PERFORMANCE
Service delivery is the foundation of any service-oriented organization. Without an understanding of how services are organized, deployed, and managed, one cannot quantify efficiency and effectiveness. This section of the report will analyze multiple facets of the current delivery of fire services for the City of Pinole, including the identification of incidents by type and frequency, deployment analysis, system reliability, and a summary of performance. By understanding current performance and how the system functions, goals and objectives for future performance improvements can be established and implemented.

Service-Demand Study
Incidents by Type & Frequency
When and how demands for services occur can follow predictable patterns over time. To identify those patterns occurring in Pinole, ESCI conducted an analysis and geographic display of current service demand by incident type and temporal variation using dispatch data obtained from the Contra Costa Fire Protection District. Incident types were selected based on the classification system established by the National Fire Incident Reporting System (NFIRS); temporal variation, or the way service demand changes over time, was analyzed by the month, by the day, and by the hour.

The following figure provides a historical view of service types and frequency of incidents over the past nine years (2009–2017) only within the City of Pinole and Contract 2/Upper Pinole Valley Road, as the Contract/Tara Hills Area incident data were not provided. This figure shows the incidents in which Station 73 and BC7 responded. Incidents that did not indicate that they were a fire or an EMS incident, such as HazMat or Good Intent, were placed in the “Other” category.

Figure 34: PFD Service Demand by Year & Type, 2009–2017, City of Pinole & Contract 2 175 of 801 329 of 955
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Over the nine years, the total number of incidents increased from 976 in 2009 to 1,805 in 2017, an average increase of 8 percent per year, with noticeable increases in 2010 and 2013 (22% and 17%, respectively).

Without those outliers, the average increase per year is 4%.

Additional incident data for the calendar year 2018 was received from CCRFCC that did include incident data for the Contract/Tara Hills area, resulting in a separate detailed analysis. The calendar year 2018 data showed 2,020 incidents, including 399 in Contract/Tara Hills. The incidents by type for the calendar year 2018 are shown in the following figure.

Figure 35: Service Demand by Type, City of Pinole & Both Contract Areas, 2018 As illustrated in Figure 35, EMS represents the greatest impact on service demand at 78.42 percent, followed by accident calls, which accounted for 6.58 percent of incidents. Accident data includes motorcycle, vehicle, bicycle, and pedestrian incidents.

The following figure displays a comparison of the total number of incidents (2,020) in 2018 within the City of Pinole and the two contract areas, as compared to other similar-sized urban fire departments around the country.
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Figure 36: Incidents per 1,000 Population, 2018, City of Pinole & Both Contract Areas Dept. Size Number of
Incidents/1,000
Rural Low Range 56
Regional Median 93
Pinole FD 104
Urban Low Range 111
Rural High Range 117
Urban High Range 179
At 104 calls per 1,000 population, PFD has a higher than the regional median number of calls per 1,000 population but slightly lower than the urban high range. 177 of 801 331 of 955
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The following figure displays a comparison of the total number of fire incidents in Pinole as compared to other similar-sized urban fire departments around the country. This figure uses incidents within the City of Pinole and the two contract areas (65 fires in 2018).

Figure 37: Fire Incidents per 1,000 Population, 2018, City of Pinole & Both Contract Areas Dept. Size Fires/1,000
Pinole FD 3.5
Regional Median 2.5
Rural High Range 17.2
Rural Low Range 4
Urban High Range 4.7
Urban Low Range 2.9
PFD’s 3.4 fires per 1,000 population are just above the regional median of 2.5 fires per 1,000 population. It is comparable to most other Urban Low Range and Rural Low Range fire departments.

The next figure is fire loss per capita compared with other national and regional departments. In 2018, at $22.90 per capita, PFD’s fire loss was much lower compared to the national average and very comparable to the regional average.
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Figure 38: Fire Loss per Capita, 2018
Figure 39: Comparison Chart, Fire Loss per Capita
Depts.

Fire Loss per Capita
(in dollars)
Regional Average $24.70
National Average $36.10
Pinole $22.90
Temporal Analysis
In addition to understanding the types and frequency of service demand, an understanding of when these events occur is critical to the understanding of when system demand will most likely reach its peak. Knowing the high demand periods will assist administrators in determining whether staffing levels are adequate for the demand and also in scheduling additional duties such as training, fire safety inspections, and vehicle maintenance.

The following figure shows the temporal variation of PFD’s service area demand by month during 2018. There is only minor variation in workload by month. The winter months of January and December are the busiest months with August following closely.
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Figure 40: Service Demand by Month, 2018, City of Pinole & Both Contract Areas The next figure illustrates service demand by day of the week. Again, only minor variations in workload exist by day of the week, although Monday is the busiest.

Figure 41: Service Demand by Weekday, 2018, City of Pinole & Both Contract Areas Finally, the following figure shows service demand by the hour. Workload increases significantly during daytime hours as compared to nighttime hours.
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Figure 42: Service Demand by Hour, 2018, City of Pinole & Both Contract Areas Peak workload is between 9:00 a.m. and 7:00 p.m., and it is most heavily concentrated during the commute hours.

Spatial Analysis
In addition to the temporal analysis, it is useful to examine the geographic distribution of service demand.

The following figures indicate the distribution of emergency incidents in PFD during 2018. The incident data received from Contra Costa County Dispatch uses a “road address range” system rather than a “site address” system. This always places a data point on a roadway rather than on the adjacent structure or actual site of the incident
The first figure displays the number of incidents per square mile within various parts of the city. The area of greatest service demand is the northwest and central portions of the city. 181 of 801 335 of 955
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Figure 43: Service-Demand Density, City of Pinole & Both Contract Areas The two densest concentrations of incidents are at Appian Way/Michael Drive, which is adjacent to a large commercial/retail development; the second densest concentration of incidents is Estates Ave/Paloma— which is adjacent to a senior retirement center. The third densest concentration is at the Tara Hills Mobile Home Park, a “55 years and over” community. Again, the use of street address ranges to place a data point might lead to an interpretation of “dangerous intersections,” where the reality is the incident is related to proximal activities or populations.

While the service demand density reflects all calls served within the PFD service area, service demand can vary based on incident type. The following figure displays the location of all fire types occurring within the PFD’s service area during 2018.
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Figure 44: All Fire Types, 2018, City of Pinole & Both Contract Areas The fire incidents are distributed widely but predominantly in the PFD’s northwestern half. Again, it appears as though all the fires are in roadways, but only 21 percent (14 of the 65 fires) involved a vehicle. The remaining 79 percent were structural, electrical, or vegetation fires in areas adjacent to roadways. 183 of 801 337 of 955
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The following figure depicts the locations of the 20 commercial and residential structure fires in 2018.

Figure 45: Structure Fires, Commercial & Residential, 2018, City of Pinole & Both Contract Areas These structure fires were distributed equally throughout the PFD’s service area.

The following figure compares structure fires over the last decade by the hour of the day. Other than no structure fires reported at the 5 a.m. hour within the entire decade, structure fires do occur throughout the day and night, with greater incident reporting in the latter part of the day and into the evening.

Figure 46: Structure Fires by Hour of Day, 2009–2018
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Again, the 2009–2017 incident data did not include any incidents for the Tara Hills contract area, whereas the 2018 incident data did include incident data for that contract area. In 2018,there were three structure fires in the Tara Hills contract area; one reported at noon, one at 8 p.m., and one at 9 p.m.

Similarly, emergency medical incidents also occur in greater concentration in areas of higher population density. The next figure depicts the EMS incidents in the PFD service area in 2018.

Figure 47: Emergency Medical Incidents, 2018, City of Pinole & Both Contract Areas The incidents are widely scattered but primarily located in the northwestern portion of the PFD service area.

As shown previously, EMS calls are the primary incident type. The following figure displays emergency medical incidents per square mile during 2018.
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Figure 48: Emergency Medical Incidents per Square Mile, 2018, City of Pinole & Both Contract Areas The previously identified areas of incident density re-appear, the commercial/retail area, the senior retirement home, and the senior mobile home park.

EMS response workload also varies by the hour of the day, as shown in the following figure. As it is the predominant type of incident, it closely follows the total workload by the hour of the day.

Figure 49: EMS Responses by Hour of Day, 2018, City of Pinole & Both Contract Areas 186 of 801 340 of 955
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Unit Workload Analysis
A review of workload by response unit can reveal much about response time performance. Although fire stations and response units may be distributed in a manner to provide quick response, that level of performance can only be obtained when the response unit is available in its primary service area. If a response unit is already on an incident and a concurrent request for service is received, a more distant response unit will need to be dispatched. This will increase response times.

Response Unit Workload
The workload of individual response units during the study period is shown in the following figure. The individual response unit workload can be greater than the workload in its home station area. Many incidents, such as structure fires, require more than one response unit. The next figure depicts the total number of calls (2,272) received by PFD in 2018, regardless of jurisdiction.

As the only fully staffed apparatus, Engine 73 is naturally the busiest in the PFD. Not shown in the figure are Reserve Engines E73A and E473, which had limited use, with one and two calls, respectively.

PFD 2018 Response Unit Workload
Apparatus ID
BC7 E73 E273 Number of Calls 2,200
2,000
1,800
1,600
1,400
1,200
1,000
800
600
400
200
0 355
2,059
210
Figure 50: PFD Response Unit Workload, 2018
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The following figure shows the extent of these calls, reaching from the Carquinez Bridge to San Pablo. In 2018, there were 2,020 incidents within the city and 401 calls outside of the City of Pinole.

Figure 51: PFD Incident Locations by Apparatus, 2018
The amount of time a given unit is committed to an incident is also an important workload factor. The following figure illustrates the average time each unit was committed to an incident, from initial dispatch until it was available for another incident. Multiple units responded to the same incident, such as the Battalion Chief and the Engine Crew. The more complex an incident, the greater the number of resources are required.

Figure 52: Average Time Committed to an Incident by Unit, 2018 Unit Responses Average per
Response
Battalion 7 355 0:29:59 minutes
Engine 73 2,060 0:20:49 minutes
Engine 273 210 0:21:55 minutes
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Unit Hour Utilization
Unit hour utilization (UHU) is an important workload indicator. It is calculated by dividing the total time a unit is committed to all incidents during a year divided by the total time in a year. UHU describes the amount of time expressed as a percentage that a unit is not available for a response since it is already committed to an incident. The larger the percentage, the greater a unit’s utilization, and the less available it is for assignment to an incident. Unit hour utilization is an important statistic to monitor for those fire agencies using percentile-based performance standards, as does PFD. In PFD’s case, where performance is measured at the 90th percentile, unit hour utilization greater than 10 percent means that the response unit will not be able to provide on-time responses to its 90 percent target, even if response is its only activity. While Pinole Engine 73 is not at 10 percent UHU at this time, absent the addition of a second engine in Pinole, it will most likely be at and exceed the threshold in a few years.

Figure 53: Unit Hour Utilization
Based on the historical incident data from 2009 to 2017, call volume is projected to increase by 3 percent per year, which, as mentioned above, did not include the Contract/Tara Hills incidents. Approximately 20 percent of the PFD incidents came from this area in 2018 incident data. 189 of 801 343 of 955
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Distribution Study
Next, an overview of the current deployment strategy, which includes facility and apparatus locations, was analyzed using Geographic Information Systems (GIS) software to identify potential service gaps and redundancies of resources. The following figure is an overview of the PFD service area. PFD stations and nearby adjacent agency stations are displayed.

Figure 54: PFD Service Area
The City of Pinole encompasses approximately 11.6 square miles. Of that, 5.2 square miles are land, with the

6.4 sq. miles remainder comprised of the bay. The PFD provides service to the city as well as to the two contract areas depicted. PFD staffs one fire station located within the city.

An important consideration for fire departments and other service delivery organizations is to understand the location of population concentrations. If the majority of people live in a concentrated area, it is intuitive to anticipate that that area will also request the highest levels of service demand as calls for service are generally initiated by people.

The definitions per the Center for Public Safety Excellence Standards of Cover 6th edition:
• Urban: population of over 30,000 and or a population density of 2,000 per sq. mile • Suburban: population of 10,000 to 29,000 and or a density of 1,000 to 2,000 per sq. mile • Rural: population of less than 10,000 or 1,000 per sq. mile 190 of 801 344 of 955
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The following figure presents Pinole’s population by census block, based on the 2010 census. Census data divides a census defined place, such as a city or county, into small areas known as census blocks. The boundaries follow natural or manmade features such as rivers, ridgelines, or roads. The area of a census block can be calculated in fractions of a square mile. The total counted population for each census block is divided by the area, resulting in an estimate of relative population density. The densest population area of the City of Pinole is in the northwest.

Figure 55: Population per Square Mile, 2012
The total population used in this study was 19,364, which is classified as Suburban. However, the density of various areas of Pinole shifts it into an Urban classification. The majority of Pinole has 2,000 to 5,000 people per square mile. However, much of the northwest area of the City of Pinole and the western contract area have population densities of greater than 5,000 people per square mile, which is classified as Urban. Pinole has a small but densely concentrated population.

Next, the distribution of PFD resources will be examined and compared to the Insurance Services Office (ISO) and the National Fire Protection Association (NFPA) criteria. These standards provide baseline criteria for comparison of PFD’s deployment strategy. These are important standards for comparison because, while ISO criteria focus on fire suppression capabilities for insurance purposes, NFPA standards establish a foundation for overall system benchmarking for fire suppression, rescue, and other activities fire departments may be required to perform.
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ISO Distribution
The ISO Public Protection Classification (PPC®) score was developed for communities to provide recommendations for key areas of improvement. The PPC system is a national system used by the New Jersey-based advisory organization ISO to provide insurance providers with a classification rating of a local community’s fire protection. The PPC score classifies communities based upon a rating scale of 1 (best protection) to 10 (no protection) and assesses all areas related to fire protection broken into four major categories, which include: emergency dispatch and communications (10 points), water system supply and distribution capabilities (40 points), the fire department (50 points), and Community Risk Reduction (5.5 points).
15 The PPC score is developed using the Fire Suppression Rating Schedule (FSRS), which outlines subcategories and the detailed requirements for each area of the evaluation.

The first component of ISO distribution is the ability of a fire department to arrive on-scene equipped with personnel, equipment, and sufficient water to effectively mitigate a fire. To determine whether a structure is eligible to receive a PPC rating better than 10, indicating that the fire department does not meet minimum ISO criteria for the structure to receive a rating, a service area of five road miles from the fire station is generally used. The only area of Pinole beyond five miles of a fire station is in the roadless southeast portion, as depicted in the following figure.
15 ISO uses a 100-point grading scale, yet 105.5 total points area available to each agency. The Fire Service Rating Scale lists a large number of items (facilities and practices) that a community should have to fight fires effectively. The schedule is performance based and assigns credit points for each item. Using the credit points and various formulas, ISO then calculates a total score on a scale of 0 to 100 with 5.5 points being available as extra-credit. 192 of 801 346 of 955
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Figure 56: Pinole Fire Station73, 5-Mile ISO Coverage
The next figure illustrates 1.5-mile coverage from PFD Station 73. ISO is concerned with the provision of fire suppression services to the built-upon areas, meaning that ISO is less concerned with the protection of unpopulated regions of a service area that lack permanent structures. 193 of 801 347 of 955
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Figure 57: Fire Station 73, 1.5-Mile ISO Coverage
Much of the developed residential area in the eastern part of the city is beyond 1.5 miles of Station 73.

Like the maximum service area of engine companies shown in Figure 57, there is a maximum service area for ladder companies. The next figure illustrates the 2.5-mile maximum service area for the closest ladder company, Rodeo-Hercules FPD Station 76 for 1st Alarm and El Cerrito Station 71 for Mutual Aid. 194 of 801 348 of 955
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Figure 58: Fire Station Distribution, 2.5-Mile Ladder Company ISO Criteria Neither ladder company can fully cover the PFD. RHFPD Ladder 76 extends approximately 0.5-mile into PFD, while the El Cerrito ladder would still be 4 to 5 miles away. 195 of 801 349 of 955
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The following figure shows the 2.5-mile ISO coverage of three- and four-story buildings within the City of Pinole.

Figure 59: Detail of Station 76, 2.5 mi. ISO coverage for Pinole Three- & Four-Story Buildings None of these taller structures are within this 2.5-mile coverage, although the Pinole Vista Apartments are a mere 300 feet further.
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PFD Goals Distribution
While ISO criteria are focused on fire suppression activities exclusively, PFD’s goals define expected performance for all response services. PFD advised ESCI to utilize NFPA standards. These standards establish a four-minute travel time objective for the arrival of the first capable response unit. This, and PFD’s other response performance goals are measured using that same standard.

The following figure models four-minute travel time coverage using posted street speeds from PFD Station 73. The model travel time does not account for traffic congestion.

Figure 60: Station 73 Four-Minute Model Travel Time (Entire Response District) A portion of the developed residential area in the southeast portion of the city is beyond the four-minute travel time footprint. The next figure shows the four-minute travel time footprint allocated to the closest station, should Station 74 be re-opened.
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Figure 61: Station 73 & 74 Four-Minute Model Travel Time 198 of 801 352 of 955
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Concentration & 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 to perform the critical tasks in a manner 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 that must be performed. Per NFPA 1710, a moderate risk building fire is modeled for this analysis.

The NFPA response time goal for the delivery of the full ERF to a moderate risk building fire is within 8 minutes, 90 percent of the time. PFD has defined the minimum full effective response force for moderate risk building fires as four fire engines, one ladder truck, and two Battalion Chiefs for a total of 21 firefighters.

Eight minutes of travel time is allowed to assemble the defined, fully effective response force on the scene.

The next figure shows the ERF for the 20 structure fires that occurred in 2018, showing the 90th percentile travel time for the on-scene resources. The travel time is not cumulative, as the various resources could be traveling simultaneously. This figure includes the resources of five adjacent automatic aid stations.

Of the 20 structure fires, E73 was the first on-scene at 12 incidents (60%). E169 and E170 were the first onscene at three incidents (15%); BC7 was the first on-scene at three incidents (15%), while E273 was first onscene twice (10%).

Figure 62: Effective Response Force, Structure Fires, 90th Percentile, in the City of Pinole & Both Contract Areas
Engine 73 or BC7 was second on-scene at nine incidents (45%). None of the structure fire incidents achieved the 8-minute travel time standard for all apparatus arriving on-scene. 199 of 801 353 of 955
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In 2018, PFD responded to 20 fires—10 commercial and 10 residential. The following figure shows the incident type and the total number of apparatus that were assigned for the year. Much of the incident data did not have timestamps for all the units assigned, possibly due to being canceled en route.

Figure 63: Structure Fire Aid to PFD, 2018
Using the data with complete arrival timestamps, there were two incidents, both residential fires, where a maximum number of firefighters on-scene were 14 or 15 firefighters, depending on how many firefighters were on the adjacent station’s ladder trucks. None of the incidents achieved 21 firefighters on-scene. 200 of 801 354 of 955
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Concurrency
One way to look at resource workload is to examine the number of times multiple incidents happen within the same timeframe in each station area. ESCI examined incidents during the study period to determine the frequency of concurrent events. This is important because concurrent incidents can stretch available resources and extend response times.

The following figure shows the number of times during the study period that one or more incidents occurred concurrently. This shows that in most cases (1,767), only one incident was in progress at a time. However, 568 times, there were two incidents in progress at the same time; 86 times, there were three or more incidents in progress at the same time, and once there were six incidents in progress at the same time.

Figure 64: Incident Concurrency, 2018 (By Time of Day)
Station
Incidents
9:00 a.m.–8:59
p.m.

Incidents
9:00 p.m.–8:59
a.m.

Incidents per hour
9:00 a.m.–8:59
p.m.

Incidents per hour
9:00 p.m.–8:59
a.m.
73 1,697 930 141 77
Figure 65: Incident Concurrency, 2018 (By Number of Concurrent Incidents) City of Pinole & Both Contract Areas
Concurrent
Incidents Count
1 1,767
2 568
3 77
4 7
5 1
6 1
It is important to note that Pinole only staffs one response unit. As a result, anytime there is more than one incident, the City is dependent on outside aid.
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Peak workload periods occur every day of the week. The following figure illustrates the Station 73 workload by the time of day during the study period.

Figure 66: PFD Overall Incidents by Hour, 2018, Calls in the City of Pinole & Both Contract Areas 202 of 801 356 of 955
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Performance Summary
Incident data for the period between January 1 and December 31, 2018, was evaluated in detail to determine PFD’s current performance. Data was obtained from PFD incident reports and the dispatch center’s computer-aided dispatch system.

Only incidents occurring within the PFD service area that were dispatched as a “priority” are included in the analysis. Priority incidents involve emergencies to which the fire department initiated a “code 3” (using warning lights and sirens) response (1,706 incidents during 2018). Incidents initially dispatched as nonemergency responses were excluded. Performance is reported based on the final determination of the incident type, which may be different than how it was initially dispatched. For example, a person may report smoke coming from a building that turns out to only be steam. It may have been dispatched as a structure fire, but its final type would be reported as “good intent.” Each phase of the incident response sequence was evaluated to determine the 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 the initiation of the incident and concluding with the appropriate mitigation of the incident. The time required for each of the components varies. The policies and practices of the Department directly influence some of the steps.

ESCI compared PFD’s response performance to the national consensus standard for response performance found in the NFPA 1710: Standard for the Organization and Deployment of Fire Suppression Operations, Emergency Medical Operations, and Special Operations to the Public by Career Fire Departments, 2010 Edition.

ESCI compared the various primary answer points and CCRFCC performance to the PFD’s goals as well as standards found in NFPA 1221: Standard for the Installation, Maintenance, and Use of Emergency Services Communications Systems, 2013 Edition.

The following figure summarizes the performance standards found in the National Fire Protection Association (NFPA) documents.
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Figure 67: Summary of NFPA Performance Standards
Incident Interval Performance Goal
911 call answer time (time from the first ring to answer) Within 15 seconds, 95% of the time Within 40 seconds, 99% of the time
Call transfer time (time from the answer to acceptance at the secondary dispatch center)
Within 30 seconds, 95% of the time
Call process time (time from acceptance at the dispatch center until notification of response units)
Within 70 seconds, 90% 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
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
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
In keeping with NFPA 1710 and 1221, all response time elements are reported at a given percentile. Percentile reporting is a methodology by which response times are sorted from least to greatest, and a “line” is drawn at a certain percentage of the calls to determine the percentile. The point at which the “line” crosses the 90th percentile, for example, is the percentile time performance. Thus, 90 percent of times were at or less than the result. Only 10 percent were longer.

Percentiles differ greatly from averages. Averaging calculates response times by adding all response times together and then dividing the total number of minutes by the total number of responses (mean average).

Measuring and reporting average response times is not recommended. Using averages does not give a clear picture of response performance because it does not clearly identify the number and extent of events with times beyond the stated performance goal.

What follows is a detailed description and review of each phase of the response time continuum. All phases will be compared to the NFPA performance goals.

Call Processing
Most emergency incidents are reported by telephone to the 911 center. Call takers must quickly elicit accurate information about the nature and location of the incident from persons who are apt to be excited.

A citizen well-trained in how to report emergencies can reduce the time required for this phase. The dispatcher must identify the correct units based on incident type and location, dispatch them to the emergency, and continue to update information about the emergency while the units respond. This phase begins when the 911 call is answered at the primary Public Safety Answer Point (PSAP) and ends when response personnel are notified of the emergency. This phase, which has two parts, is labeled “call processing time.”
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NFPA 1221 recommends that 911 calls be answered within 15 seconds, 95 percent of the time (within 40 seconds, 99 percent of the time) and then be transferred to the dispatch center within 30 seconds, 95 percent of the time (within 40 seconds, 99 percent of the time). None of the primary PSAPs provided information necessary to quantify current performance at this time.

The second part of call processing time, dispatch time, begins when the call is received at the dispatch center (CCRFCC) and ends when response units are notified of the incident. PFD’s goal prescribes that this phase should occur within 70 seconds, 90 percent of the time.

The following figure illustrates performance by CCRFCC from the time it receives the call until it notifies response units. Overall performance was 2 minutes, 15 seconds, 90 percent of the time.

Figure 68: CCRFCC Dispatch Time Performance,
Calls in the City of Pinole & Both Contract Areas
Incident Type Processing Time
EMS 0:02:25
Fire 0:01:57
Other 0:01:47
All Types 0:02:15
Turnout Time
Turnout time is a response phase controllable by the fire department. This phase begins at the notification of an emergency in progress by the dispatch center and ends when personnel and apparatus begin to move towards the incident location. Personnel must don appropriate equipment, assemble on the response vehicle, and begin travel to the incident. Good training and proper fire station design can minimize the time required for this step.

The NFPA performance goal for turnout time is within 90 seconds, 90 percent of the time. The following figure lists turnout time for all incidents as well as specific incident types.

Figure 69: PFD Turnout Time Performance,
Calls in the City of Pinole & Both Contract Areas
Incident Type Turnout Time
EMS 0:00:53
Fire 0:02:15
Other 0:01:36
All Types 0:01:28
Turnout time for all incidents is within 1 minute, 28 seconds, 90 percent of the time, meeting their performance goal. The turnout time for fire incidents is above the performance goal. 205 of 801 359 of 955
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Distribution and Initial Arriving Unit Travel Time
Travel time is potentially the longest of the response phases. The distance between the fire station and the location of the emergency influences response time the most. The quality and connectivity of streets, traffic, driver training, geography, and environmental conditions are also factors. This phase begins with the initial apparatus movement towards the incident location and ends when response personnel and apparatus arrive at the emergency’s location. Within the NFPA goal, 4 minutes is allowed for the first response unit to arrive at an incident.

PFD and automatic aid units are selected for the response to an incident based on a calculation by the dispatch computer system to determine the unit that will have the shortest travel time. This method ensures the shortest possible travel times.

The following figure lists travel time for all priority incidents, as well as specific incident types, for all units responding to the City of Pinole and the two contract areas.

Figure 70: Travel Time Performance, First Arriving Unit, Incidents in the City of Pinole & Both Contract Areas
Incident Type 90% Percentile Travel Time
EMS 0:07:45
Fire 0:08:01
Other 0:07:55
All Types 0:07:45
Overall, travel time for all incidents within the city for all responding units is within 7 minutes, 45 seconds, 90 percent of the time. This does not meet the performance objectives. It is unknown what causes the lengthy travel time, whether it is congested traffic, traffic signal timing, or steep terrain issues.

Travel Time Performance by Region
Travel time performance by region is variable and influenced by a number of factors, including individual station area workload and the number of times a station must cover another station’s area. Additional factors include the size of the station area and the street system serving it. More highly connected, grid-patterned street systems contribute to faster response times than do areas with meandering streets with numerous dead-ends.

The following figure evaluates travel time performance by sub-area using Inverse Distance Weighting analysis (IDW). This process uses travel time for known points (actual incidents) to predict travel time for the area surrounding the actual incident. Better performance is generally noted near fire stations, with progressively longer response times for those incidents more distant from the stations. 206 of 801 360 of 955
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Figure 71: Actual Travel Time Performance by Region, Calls in the City of Pinole & Both Contract Areas The four-minute travel time objective is generally met near the fire station, with progressively longer travel times at further distances. The pockets of 10 to 12-minute travel times near the station do correspond to hilly locations with many turns to reach the interior of a neighborhood.

First Arriving Unit Response Time
Response time is defined as that period between the notification of response personnel by the dispatch center that an emergency is in progress until the arrival of the first fire department response unit at the emergency. When turnout time and travel time are combined, the NFPA performance goal for response time is within 5 minutes, 90 percent of the time.

The following figure illustrates the response time for all priority incidents as well as specific incident types during 2018.
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Figure 72: Response Time Performance, First Arriving Unit, Calls in the City of Pinole & Both Contract Areas
Incident Type Time
EMS 00:08:11
Fire 00:09:32
Other 00:08:37
All Types 00:08:17
Overall, response time for all priority incidents was within 8 minutes, 17 seconds, 90 percent of the time.

The following figure represents the number of calls in 2018, where the travel time was greater than 4 minutes.

There are notable spikes at the commute hours, 7 to 9 a.m. and again from 5 to 8 p.m.

Figure 73: PFD Number of Calls Over a Four-Minute Travel Time by the Incident Hour, Calls in the City of Pinole & Both Contract Areas
First Arriving Unit Received to Arrival Time
From the customer’s standpoint, response time begins when the emergency occurs. Their first contact with emergency services is when they call for help, usually by dialing 911. Received to arrival time combines answer/transfer, call processing, turnout, and travel time. As described in the “Call Processing” discussion in this section, data for call answer and transfer time is not available. The time the call was “received” will either be the actual answer time for calls created by PSAPs other than CCRFCC or the time CCRFCC received the call transferred by another agency. When the PFD performance goals are combined, received to arrival time should be within 6 minutes, 90 percent of the time.

The next figure shows received to arrival performance during 2018 at the 90th percentile for priority incidents within the PFD service area. Overall, received time to arrival time is within 9 minutes, 55 seconds, 90 percent of the time.
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Figure 74: Received to Arrival Time, First Arriving Unit Calls in the City of Pinole & Both Contract Areas
Incident Type Time
EMS 00:10:00
Fire 00:10:30
Other 00:09:33
All Types 00:09:55
Second Unit Arrival Time
The PFD fire engine is staffed with three personnel. Safety regulations require that at least four firefighters be on scene before firefighters can enter a burning building. The only exception is if it is known that a person is inside the building and needs to be rescued. Current staffing levels at PFD require the arrival of a second response unit before non-rescue interior firefighting activities can be initiated.

Incident data for building fires during the study period were analyzed to determine the time the second response unit arrived on the scene. The data indicated thatthe second unit arrived on the scene of a structure fire within 6 minutes, 45 seconds, 90 percent of the time.

The dispatch data uses a priority coding system for incidents, as shown in the following figure.

Figure 75: CCRFCC Priority Codes
Priority Description
1 P1 Emergency
2 P2 Emergency
3 P3 Urgent
4 P4 Routine
5 P5 Non-Emergency
6 P6 Non-Emergency
7 P7 Triage status that should be updated to another priority during call taking. 8 P8 No Response
9 P9 Test
Priority 1–4 are Code 3,“lights/sirens.” All other priorities are Code 2, no lights/sirens.

The following figure shows the 2018 incidents within the City of Pinole and the two contract areas where adjacent fire agencies were dispatched. There were 3,860 dispatch requests for aid from adjacent fire agencies. This number reflects the dispatch of multiple units not the total number of calls. 209 of 801 363 of 955
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Figure 76: Dispatched Aid for PFD, Calls in the City of Pinole & Both Contract Areas Of those 3,860 requests, 940 incidents did not have a timestamp for “Arrived on Scene”—perhaps these units were canceled en route. The adjacent fire agency units that responded to the remaining 2,920 incidents are shown in the following figure.
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Figure 77: Adjacent Fire Agency Assistance, PFD available Unit # of Requests Unit # of Requests Unit Name # of Requests E169 124 E163 2 E1676 1
Q176 82 E168 2 E369 1
E175 52 E178 2 E372 1
E176 20 E375 2 E376 1
E170 12 E378 2 E379 1
R369 8 1122 1 HM21 1
SQ70 7 BC4 1 HM4 1
BC71 5 E107 1 T114 1
BC64 2 E142 1 USCG 1
In 2018, 27 different fire agency units responded to PFD, while PFD was available. CCFPD Station 69’s engine was the most frequent responding engine at 124 requests.

On occasion, the engine from Station 73 was not available to respond to an incident as it had not been cleared from a previous incident. Available engines from the adjacent agencies were dispatched to the City of Pinole and the two contract areas in their stead. The following figure shows the frequency of adjacent agencies’ assistance.

Figure 78: Adjacent Fire Agency Engine Assistance, PFD not available Again, the engine from CCFPD Station 69 was the most frequent responder when E73 was not available, followed by the engine from Rodeo-Hercules Station 75.
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The adjacent agencies’ engines were dispatched to a variety of incident types, as the next figure shows.

Figure 79: Incident Types; PFD not available
Incident Type Number of Incidents
5150 PD Request 2
EMS—Alpha (Fall) 1
EMS—Alpha *Code 2 4
EMS—B Ltd 2
EMS—Bravo 12
EMS—Charlie 31
EMS—Delta 39
EMS—Echo 1
EMS—Richmond 2
EMS—Alpha Code 2 With Engine 2
EMS—Medical Emergency 1
Fire—Veh Large 3
Fire Alarm—Commercial 6
Fire Alarm—Residential 7
Fire Exterior 2
On View 4
Single Engine C2 2
Single Engine C3 5
Veh Accident Motorcycle 4
The most frequent type of incident of the adjacent fire agencies’ response was a variety of EMS incidents.

The following information relates to codes utilized for EMS calls shown in Figure 79.

Figure 80: List of Common Emergency Medical Dispatch (EMD) Codes Used by Most Dispatch Agencies in the United States
Code Type BLS/ALS Emergency Status
Alpha Non-Life-Threatening Basic Life Support Non-Emergency Bravo Possibly Life-Threatening Basic Life Support Emergency Charlie Life-Threatening Advanced Life Support Emergency Delta Serious Life Threat Advanced Life Support Emergency Echo Life Status Questionable Closest Available
(Multiple Resources Sent) Emergency
Omega “Ω” Public Assist Only Basic Life Support Non-Emergency 212 of 801 366 of 955
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FUTURE SYSTEM DEMAND PROJECTIONS
The City provided a population forecast. Future population growth for Pinole is forecast to average 0.79 percent per year through 2050. Using this estimate, the city’s population could reach 22,228 by 2050. This projection is based on historical growth. Future growth projections have not been available from other sources. It is unlikely that actual projections will differ much unless city zoning density increases occur.

Incident Workload Projection
The most significant predictor of future incident workload is population and historical call volume; 100 percent of requests for emergency medical service is people driven. The National Fire Protection Association reports that approximately 70 percent of all fires are the result of people either doing something they should not have (i.e., misuse of an ignition source) or not doing something they should have (i.e., failure to maintain equipment). It is reasonable to use forecast population growth to predict future fire department response workload.

The current department services utilization rate is 110 incidents per 1,000 population; the PFD has a higher than the regional median number of calls per 1,000 population but slightly lower than the urban high range.

The utilization of fire department services is expected to grow modestly overtime at a rate of about 3 percent per year based on the nine years of historical incident data. This, plus expected population growth, will increase the PFD’s workload, as shown in the following figure. Response workload could reach approximately 4,300 responses per year by 2038, driven primarily by requests for emergency medical care. Figure 81 utilizes three data sets to provide response forecasts. PFD data is based on the fire department's fire records management system. “Calls in the City” used call history within the city limits, and “Calls in the Service Area,” used data from within the city limits and the contract areas.

Figure 81: Response Forecast, 2018–2038
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Community Risk Factors
This section analyzes risks that are present within the study area that potentially threaten people and property. These risks are identified to assist the study area agency in planning where to locate response resources in the types and numbers necessary to effectively respond to likely emergencies. While not all hazards of individual occupancies can be considered—that is beyond the scope of the study—there are risks that seem to be relevant to the area. ESCI recommends that the department be aware of and rate the hazard and risks in terms of frequency and severity within the jurisdiction.

The City of Pinole fire service area has many risks, including the shoreline, a significant wildland interface, underground pipelines, a freeway, and a railroad. The arrangement of the service area is constrained by topography such that few areas have grid coverage from the Pinole Fire Station and neighboring automatic aid from other fire departments. Due to this configuration, the response is funneled through gateways at the foot of each valley. Significant challenges and risks exist in the City of Pinole.

The following figure represents a method of identifying and analyzing risks within Pinole. This figure should be reviewed annually by department leadership with the goal of improvement through the continuous reevaluation of the risks facing the city.

Figure 82: Risk Identification and Analysis Process¹
Step Action
Hazard Identification Identify hazards.

What is the probability this hazard will occur?
Is this hazard a significant threat to your jurisdiction? Approximately how often does this hazard occur in your jurisdiction? Vulnerability Assessment For each hazard identified in the hazard identification process, consider each of the five factors.

Factor 1: Danger/Destruction/Personal harm
Factor 2: Economic Impacts
Factor 3: Environmental Impacts
Factor 4: Social Impacts
Factor 5: Political Considerations
Score the vulnerability of this hazard.

Reconsider the priority of each hazard based on vulnerability.

Risk Rating Score Risk Rating = Probability2 X Vulnerability2 1 Adapted from the Community Risk Reduction Model, United States Fire Administration, National Fire Academy 2 Probability and Vulnerability are rated as 3 = High, 2 = Moderate, 1 = Low The fire service assesses the relative risk of properties based on several factors: the service area population and population density, the demographics of the population, local land use and development, and the geography and natural risks present within the community. These factors affect the number and type of resources (both personnel and apparatus) necessary to mitigate an emergency. Properties with high fire and life risk often require greater numbers of personnel and apparatus. Therefore, staffing and deployment decisions should be made with consideration to the level of risk within the geographic sub-areas of a community.
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Overall Geospatial Characteristics
The following community risk assessment has been developed based on intended land uses as described in the zoning designations of the study area. The following figure translates zoning to categories of relative fire and life risk.

Figure 83: Translation of Zoning to Relative Risk Categories Relative Risk Category Zoning
Low Risk Areas zoned and used for agricultural purposes, open space, and very-low-density residential use.

Moderate Risk
Areas zoned for medium-density single-family properties, small commercial and office uses, low-intensity retail
sales, and equivalently sized business activities.

High Risk
Areas zoned for Higher-intensity business districts, mixeduse areas, high-density residential, industrial, warehousing, and large mercantile centers.

The following shows the relative percentages of zoning in the City of Pinole.

Figure 84: Pinole Zoning Percentages
The following figure illustrates the distribution of the current zoning classifications in the City of Pinole.

By acreage, nearly half of the City of Pinole is residential, and 1/3 is zoned commercial. The current zoning data was undergoing review as some of the parcels were without a zoning code, i.e.,the white areas within the city. Some of these are likely “Commercial” due to their proximity to existing commercial zoning. 215 of 801 369 of 955
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Figure 85: Pinole & Contract Area’s Current Zoning
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Geographic & Weather-Related Risks
The number and frequency of federal disaster declarations affecting Pinole paint a picture of the risks that natural hazards pose to the region. The next figure is a summary of federal disaster declarations that have occurred in Contra Costa County:
16 • Between 1969 and 2017, Contra Costa County has received 14 presidential disaster declarations and two emergency declarations.
• These events are important to consider in establishing recurrence intervals for hazards of concern.

Figure 86: Summary of Federal Disaster Declarations in Pinole by Type, 1965–2017 Type of Event Declaration
Date
FEMA
Disaster #
Severe Winter Storms, Flooding, Mudslides 4/1/2017 DR-4308 Severe Winter Storms, Flooding, and Mudslides 3/16/2017 DR-4305 Severe Storms, Flooding, and Mudslides 2/14/2017 DR-4301 Severe Storms, Flooding, Mudslides, and Landslides 2/3/2006 DR-1628 Severe Winter Storms and Flooding 2/9/1998 DR-1203
Severe Storms, Flooding, Mud and Landslides 1/4/1997 DR-1155 Severe Winter Storms, Flooding Landslides, Mud Flow 3/12/1995 DR-1046 Severe Winter Storms, Flooding, Landslides, Mud Flows 1/10/1995 DR-1044 Severe Winter Storm, Mud and Land Slides, and Flooding 2/3/1993 DR-979 Loma Prieta Earthquake 10/18/1989 DR-845
Severe Storms and Flooding 2/21/1983 DR-758
Coastal Storms, Floods, Slides, and Tornadoes 2/9/1983 DR-677 Severe Storms, Flood, Mudslides, and High Tide 1/7/1982 DR-651 Torrential Rain, High Tide, and Winds 2/1/1980 EM-3078
Drought 1/20/1977 EM-3023
Severe Storms and Flooding 1/26/1969 DR-253
EM = Emergency Declaration; DR = Disaster Declaration
From a planning perspective, there are several weather-related risks of concern to the study area, as noted in the previous figure. Severe storms can include lightning strikes and significant wind events. 16 Retrieved from http://www.co.contra-costa.ca.us/DocumentCenter/View/48893/Contra-Costa-County-Draft-Local-HazardMitigation-Plan-Volume-1-January-31-2018?bidId=. 217 of 801 371 of 955
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Weather Risks
The climate for Pinole is moderate. Pinole receives 27 inches of rain, on average, per year, the U.S. average is 38 inches of rain per year. The average annual temperatures range from a high of 80°F in July to a low of 40°F in January—with the average temperature being 71°F. Pinole receives 255 sunny days on average, this is 50 more days than the national average.
17 Flood Risk
There are various risks associated with flooding. It is essential, therefore, that the community in the area of flood zones and areas prone should be informed of the risks, before the flood and as part of the planning process. Further, this should be a part of the public education process to ensure that residents are aware of the risks associated with flooding and the actions they should take to ensure readiness.

During a flooding event, the fire department will be called upon to assist in evacuations and rescues. These evacuations may include facilities with large numbers of people requiring EMS resources. Rescue and emergency evacuations may involve moving water requiring the specialty-trained technical rescue team to intervene.

After a flood as the residents begin recovery, EMS-related incidents will increase as injuries and medical conditions occur. Public education can help the community prepare for the recovery process.

The Contra Costa Hazards Mitigation Plan addresses two principal sources of floods. These two sources are summarized and defined in the next figure.

Figure 87: Sources of Flooding in Contra Costa County18 Source of Flood Description
Riverine (river and stream)
Riverine floods described in terms of their extent (including the horizontal area affected and the vertical depth of
floodwater) and the related probability of occurrence
(expressed as the percentage chance that a flood of a specific extent will occur in any given year).

Flash Flooding
Flash floods occur suddenly after a brief but intense
downpour. They move rapidly, end suddenly, and can occur in areas not generally associated with flooding (such as
subdivisions not adjacent to a water body and areas serviced by underground drainage systems). Although the duration of these events is usually brief, the damage they cause can be severe. Flash floods cannot be predicted accurately and happen whenever there are heavy storms.
17 Retrieved from https://www.bestplaces.net/climate/city/california/pinole. 18 Retrieved from http://www.co.contra-costa.ca.us/DocumentCenter/View/48893/Contra-Costa-County-Draft-Local-HazardMitigation-Plan-Volume-1-January-31-2018?bidId=. 218 of 801 372 of 955
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Garrity Creek Watershed
This 1,790-acre area in western Contra Costa County includes the watershed of Garrity Creek (3.67 miles).

This watershed includes sections of the City of Pinole.

Pinole Creek Watershed
Pinole Creek is a perennial creek that runs through the center of the city.

The next figure illustrates the Special Flood Hazard Areas (SFHA) as designated by FEMA. There are areas with the risk of flooding throughout the city. For the most part, the areas that are flood-prone have a onepercent increase in annual flooding. There are small portions of the study area that include a 0.2 percent annual chance of flooding. Station 73 and 74 are located very close to Pinole Creek drainage and potential flood areas, as seen in the following figures.

Figure 88: Watersheds in the Study Area
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Figure 89: Flood Zones in the Study Area
Flood hazard areas identified on the Flood Insurance Rate Map are identified as an SFHA. SFHA are defined as the area that will be inundated by the flood event having a 1-percent chance of being equaled or exceeded in any given year. The 1-percent annual chance of flood is also referred to as the base flood or 100-year flood.

Moderate flood hazard areas are the areas between the limits of the base flood and the 0.2-percent-annualchance (or 500-year) flood. The Coastal High Hazard area is that part of the coastal floodplain where the wave heights during the base flood will be three feet or more.

There are 145 parcels that intersect various FEMA flood zones. Ten of these parcels are zoned “agricultural/open space,” and 25 additional parcels are zoned “commercial,”including one corner of a school parcel. The remaining 110 parcels are zoned “residential,” including 109 single family parcels and one multifamily parcel with 12 units. Using the 2010 census data, the Pinole average household size is 2.7 persons; this gives an estimated total population of flood risk of 327 persons. The following figure shows the population within the various flood zones.
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Figure 90: Flood Hazard Areas
Population Within the 10%, 1%, and 0.2% Annual Chance Flood Hazard Areas 10% Annual Chance
Flood Hazard Area
1% Annual Chance
Flood Hazard Area

0.2% Annual Chance
Flood Hazard Area
Population
Exposed
% of Total
Population
Population
Exposed
% of Total
Population
Population
Exposed
% of Total
Population
0 0 0 0 327 1.7%
The commercial and agricultural/open space parcels were located in the 10 percent and 1 percent SFHAs.

Tornadoes
Tornadoes can have winds of over 300 mph, which—at the higher ranges—will cause a significant threat to life and damage to property. The intensity of tornadoes is measured on the Enhanced Fujita Tornado Damage Scale. This scale has an intensity range for tornadoes from EF-0 to EF-5, including wind estimates.

The next figure is a summary of the damage associated at the various levels. Pinole has not experienced a tornado within written history.

Figure 91: Tornado Intensity, Enhanced Fujita Scale
Designation Wind Speed, mph Typical Damage
EF-0 65–85
Minor or no damage. Peels surface off some roofs; some damage to gutters or siding; branches broken off trees; shallow-rooted trees pushed over. Confirmed tornadoes with no reported damage are always rated EF-0.

EF-1 86–110
Moderate damage. Roofs severely stripped; mobile homes overturned or badly damaged; loss of exterior doors; windows and other glass broken.

EF-2 111–135
Considerable damage. Roofs torn off well-constructed houses; foundations of frame homes shifted; mobile homes completely destroyed; large trees snapped or uprooted; light-object missiles generated; cars lifted off ground.

EF-3 136–165
Severe damage. Entire stories of well-constructed houses destroyed; severe damage to large buildings such as shopping malls; trains overturned; trees debarked; heavy cars lifted off the ground and thrown; structures with weak foundations are badly damaged.

EF-4 166–200
Devastating damage. Well-constructed and whole frame houses completely leveled; cars and other large objects thrown, and small missiles generated.

EF-5 > 200
Extreme damage. Strong-framed, well-built houses leveled off foundations are swept away; steel-reinforced concrete structures are critically damaged; tall buildings collapse or have severe structural deformations; some cars, trucks, and train cars can be thrown approximately 1 mile (1.6 km).

While ranges of winds are listed on the scale, the wind estimate is not exact—nor have they been verified in science or engineering. Different wind speeds may cause similar-looking damage from place to place—even from building to building.
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While preventing tornadoes is not possible, the preparation for the potential of a tornado should be considered as a high priority. Tornadoes can occur with little or no warning and can result in devastating damage; departments must consider that as part of their planning for disaster readiness, the likelihood of a tornado occurring is minimal in Pinole.

Tsunamis
A tsunami is a series of high-energy waves radiating outward from an area where a generating event occurs.

Earthquakes may produce displacements of the seafloor that can set the overlying column of water in motion, initiating a tsunami, depending on the magnitude of the earthquake and the type of faulting.

The San Pablo Bay area is a likely site of tsunami impacts in Contra Costa County that would rise with floodwaters from a San Francisco Bay tsunami caused by a local earthquake. According to the Contra Costa Hazard Mitigation Plan, Pinole only has a small threat of tsunamis immediately along its coastline vicinity. 19 Additional Weather-Related Hazards
Severe weather hazards also pose a threat to Pinole. Aside from the weather-related hazards described in the preceding section, several other weather-related events have been analyzed as part of the hazard mitigation plan. The next figure—while applicable to the whole County—is a summary of these events, including the definitions, severities, and impacts.
19 https://www.contracosta.ca.gov/DocumentCenter/View/48893/Contra-Costa-County-Draft-Local-Hazard-Mitigation-PlanVolume-1-January-31-2018?bidId=. 222 of 801 376 of 955
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Figure 92: Other Weather-Related Hazards in Contra Costa County20 High Winds Heavy Rain and Thunderstorms
Definition
The National Weather Service defines
high winds as, “sustained wind speeds of
40 mph or greater lasting for one hour or
longer, or winds of 58 mph or greater for
any duration.”
Heavy rainfall is any amount of rain
produced in a relatively short time period
that exceeds the capacity of natural systems’
or stormwater infrastructures’ ability to
effectively and safely convey the flow of
stormwater.

Severity
The entire county is directly or indirectly
susceptible to the effects of high-speed
winds. Trees are susceptible to blowing
over and causing damage to surrounding
property. All communities can suffer
extended power outages.

The entire county is directly or indirectly
susceptible to the effects of heavy rains or
thunderstorms. All communities can suffer
the impacts of heavy rains or thunderstorms.

Impacts
Widespread power outages.

Mass of downed debris on the
transportation network impedes the
response of emergency personnel and
utility crews.

Electrical blackouts force the closure of
government offices, businesses, and
schools.

Power outages can disrupt transportation,
generating traffic snarls resulting in
thousands of motorists seeking few
available alternate routes on local
arterials and collectors, complicated by
blocked roads.

Heavy rain can have significant impacts,
including rising rivers, flash flooding,
mudslides, and landslides. Stormwater
runoff from heavy rains can also impair
water quality by washing pollutants into
water bodies.

When power outages coincide with heavy
stormwater flows, public works crews may
struggle to provide auxiliary power to sewer
lift stations to prevent backups or flooding in
suburban and urbanized areas.

Thunderstorms carry the same risks as heavy
rain events, and depending on the type of
storm, they can also include tornadoes,
lightning, and heavy winds, increasing risk of
injury and property damage.
20 Retrieved from https://www.trpc.org/DocumentCenter/View/4172/HazMit_Ch4-2_Storm?bidId=. 223 of 801 377 of 955
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Earthquakes
The Contra Costa Hazard Mitigation Plan rates the hazard profile of earthquakes as a high probability.

Earthquakes can cause widespread damage and disrupt many services across the area.

Figure 93: Earthquake Fault Lines In and Around Pinole
The Pinole Fault and the Moraga Fault, both undifferentiated quaternary faults, pass through the study area.

The historic Hayward Fault, with a slip rate of 5 mm/year, moves to the southwest of the study area. 224 of 801 378 of 955
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The effects of earthquakes are described in the following figure.

Figure 94: Effects of Earthquakes
Effect Description
Ground Motion
When a fault ruptures, seismic waves radiate, causing the ground to vibrate. This wave movement causes the ground to shake during an earthquake.

Ground Failures
Earthquakes can cause surface faulting, landslides,
subsidence, and uplifting. Surface faulting is the differential movement of two sides of a fracture.

Liquefaction
Liquefaction is the phenomenon that occurs when ground
shaking causes loose soils to lose strength and act as a viscous fluid. Liquefaction causes two types of ground
failure: lateral spread and loss of bearing strength.

Tsunamis
Tsunamis are large ocean waves generated by sudden
changes in the seafloor elevation, which displace a
significant volume of water.

Wildfire Risk
Like many areas of California, there is a wildfire risk in the Pinole area. The level of risk associated with wildfires in any given area of a community is dependent upon several factors, including climate, vegetation, and topography. Another factor is the number of homes that are built within the Wildland Urban Interface.

Pinole has 30 buildings within the Very High Fire Hazard Severity Zone (FHSZ).

According to the Contra Costa Hazards Mitigation Plan, the summary assessment on wildfire reads:

The geography, weather patterns, and vegetation in the East Bay area provide ideal conditions for recurring wildfires. Especially vulnerable are the East Bay Hills in Lamorinda, which includes Lafayette, Moraga, and Orinda. Parts of Walnut Creek, including the area surrounding Rossmoor, are vulnerable to wildfires, as are Clayton, the Danville/San Ramon area, and the San Pablo-El Cerrito, El Sobrante area. Because the natural vegetation and dry-farmed grain areas of the county are extremely flammable during late summer and fall, wildfire is a serious hazard in undeveloped areas and on large lot home sites with extensive areas of un-irrigated vegetation. 21 The next figure illustrates a summary of the historical wildfire occurrences and impacts. The Castro and the Carson Fires of 2011 were the most significant incidents, with numerous small incidents in the succeeding years.
21 Retrieved from https://www.trpc.org/DocumentCenter/View/4172/HazMit_Ch4-2_Storm?bidId= County-Draft-Local-Hazard-Mitigation-Plan-Volume-1-January-31-2018?bidId=. 225 of 801 379 of 955
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Figure 95: Study Area Historical Wildfire Occurrences and Impacts, 2009–201822 Fire Name Year Acres Month
Carson 2011 20 September
Turquoise 2011 1 July
Franklin 2011 1 August
Savage Av Pinole 2011 1 July
Castro 2011 83 September
Refugio Valley Rd 2011 4 June
Unnamed 2011 0.01 August
Unnamed 2011 0.01 June
Unnamed 2011 0.01 June
Brick Yard 2011 17 September
Franklin 2012 1 October
Unnamed 2012 0.01 July
Unnamed 2012 0.1 August
Unnamed 2012 0.4 August
Unnamed 2012 0.01 September
Unnamed 2012 0.5 September
Unnamed 2013 2 May
Unnamed 2013 0.1 November
Unnamed 2013 0.5 November
Unnamed 2014 0.25 June
Toll 2017 43 June
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The next figure shows the historical wildfires listed in the previous figure in and near Pinole. There have been many small wildfires (< 10 acres) in the more remote portions of the county.

Figure 96: Historical Wildfires in and Near Pinole through 2018 227 of 801 381 of 955
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The next figure shows the wildfire threat in and near Pinole.

Figure 97: Degree of Wildfire Threat
The fire threat is a combination of two factors: 1) fire frequency, or the likelihood of a given area burning, and 2) potential fire behavior (hazard). These two factors are combined to create fourthreat classes ranging from moderate to extreme (California Department of Forestry and Fire Protection's Fire and Resource Assessment Program [FRAP]).

The next figure shows the estimated land area, population, and dwellings that are in the Wildland Urban Interface areas.
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Figure 98: Study Area Current Estimates as Related to the Urban Interface, 2015 Fire Department/District
Population Residential Dwellings
Total Percent in the
Hazard Area Total Value in the Hazard Area
Pinole Fire Department 94 .5%23 30 $16,007,875
Of concern is the Galbreath Road neighborhood to the southwest of Station 74. This area is characterized by a single road in, as well as being surrounded by dense vegetation. This is a large concern for the ingress of fire equipment during an emergency (such as a wildfire event) and egress of residents who may be evacuating the Galbreath Road area. Future development should evaluate hazards to the development area and ensure adequate traffic routes are designed and implemented.

Figure 99: Galbreath Road Neighborhood
23 Retrieved from: http://www.co.contra-costa.ca.us/DocumentCenter/View/48893/Contra-Costa-County-Draft-Local-HazardMitigation-Plan-Volume-1-January-31-2018?bidId=. 229 of 801 383 of 955
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Transportation Risks
Highways
There are several transportation corridors and various modes of transportation that fall within the study area for which the department is responsible. Beginning with major roadways, Interstate 80 goes through the middle of Pinole.Additionally, there are several major local roads within the City, including San Pablo, Appian Way, and Pinole Valley Road. Regardless of the size of the roadway or the speed limit, any roadway has the potential for motor vehicle crashes, vehicle fires, medical emergencies, brush fires, or hazardous material spills/leaks. Each of these is not only a risk to the community, but the responders are also at risk of being struck by vehicles while operating near moving traffic.

Last year, the town of Paradise faced a devastating fire. Evacuations from the town on narrow two-lane roads became problematic to those leaving the fire area. In 2019, Streetlight Data, Inc. listed Pinole as three times the national average in difficulty in evacuating the city in case of emergency due to limited evacuation routes and narrow streets.
24 Due to the general geography of Pinole, this road arrangement is nearly unavoidable.

The Pinole Police Department has a plan to use all lanes to travel in one direction to evacuate residents from the fire area in an expedient manner.
24 It should be noted that Streetlight Data only studied cities of under 40k in population. The study also made the assumption that people would choose familiar and preferred routes even though other exists exist. 230 of 801 384 of 955
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Figure 100: Major Transportation Infrastructure in the Study Area Airports
The City of Pinole does not have an airport. Two international airports are located nearby, the Oakland International Airport (27 miles) and the San Francisco International Airport (34 miles). There is a heliport in San Pablo.

Railroads
Figure 100 shows the rail line through Pinole. Amtrak provides regular service through the city with over 16 rail stations within a 30-mile radius. In addition, Union Pacific’s Martinez Subdivision and BNSF Stockton Subdivision transport freight through the area. Although a comparatively safe mode of transport, railway operations do come with hazards, including accidents involving pedestrians, other vehicles, derailments, and accidental hazardous material releases. The next figure discusses some of these incidents. 231 of 801 385 of 955
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Figure 101: Hazard Descriptions Faced by the Pinole Fire Department Type of Incident Description/Hazard
Train Collisions Collisions can be between two or more trains or between trains and infrastructure.

Derailments Derailments occur when one or more cars of a train leave the tracks; generally, it involves just one train.

Grade Crossings Crashes There are various scenarios in which accidents occur at railroad crossings.

Railroad Staff Injuries Railroad staff may get injured while working on or near the tracks. In some cases, accessibility will be a problem.

Dangerous Goods Release As the railroads carry hazardous goods, there is always the potential for product release.

The effects of these incidents can require large numbers of fire and EMS resources. In review of the previous figure, several of these incidents could require the response of a Haz-Mat team, Technical Rescue, and EMS.

Many times, the complexity of the incidents will require multiple operational periods. Risk analysis and planning for these types of incidents must consider the need for higher than usual personnel, equipment, and Automatic or Mutual Aid resources. When incidents occur at a grade crossing, fire and EMS personnel will have to operate near the tracks. Training in proper precautions is essential.

Buildings
Many buildings in the city are used for purposes that create more significant risks than others during an emergency. High occupancy buildings, facilities providing care to vulnerable populations, and others may require greater numbers of emergency response and resources during an emergency.

Numerous buildings lie within the study area in which large numbers of people gather for entertainment, worship, and other similar events. A variety of small businesses and entertainment venues also exist.

Colleges and Schools
The next figure shows the locations of the educational facilities within the study area. These facilities present additional risk, primarily for mass casualty incidents. Fire, criminal mischief, and potentially terrorism could cause a major medical emergency requiring significant emergency service resources. 232 of 801 386 of 955
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Figure 102: Colleges and Schools in the Study Area
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Medical and Congregate Care Facilities
Medical and congregate-care facilities, particularly hospitals and nursing homes. Although these facilities have regular fire safety inspections and are generally built of fire-resistive construction with built-in fire suppression, emergencies still can occur that require the quick movement of patients away from the hazard.

Incidents at these facilities will require high resource levels.

Pinole does not have a hospital, but has 11 assisted living facilities, as the next figure depicts.

Figure 103: Assisted Living Facilities
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Other Critical Infrastructure
One concern to fire departments is the water and fire hydrant system. Providing enough storage, distribution, and access to this valuable firefighting resource is very important. The next figure illustrates the hydrant system in the study area. As expected, in the more populated urbanized areas,fire hydrants coverage is very good. Some rural areas of the city depend on water delivered by tenders, but generally good hydrant coverage exists throughout the service area. From a risk assessment standpoint, planning consideration must be given to situations when the water system could fail.

Pinole City CouncilOctober 10, 2022

Pinole City Council
October 10, 2022