City of Naples Fire-Rescue Department

MEMORANDUM NO.: 13-008 DATE: February 10, 2013 TO: A. William Moss, City Manager FROM: Stephen R. McInerny II, Fire Chief SUBJECT: ISO – Public Protection Classification (PPC) Summary Report INTRODUCTION ISO collects and evaluates information from communities in the United States on their structure fire suppression capabilities. The data is analyzed using the Fire Suppression Rating Schedule (FSRS) and then a Public Protection Classification (PPC) number is assigned to the community. The surveys are conducted whenever it appears that there is a possibility of a classification change. As such, the PPC program provides important and up-to-date information about fire protection services throughout the country. The Fire Suppression Rating Schedule (FSRS) recognizes fire protection features only as they relate to suppression of first alarm structure fires. In many communities, fire suppression may be only a small part of the fire department’s overall responsibility. ISO recognizes the dynamic and comprehensive duties of a community’s fire service, and understands the complex decisions a community must make in planning and delivering emergency services. However, in developing a community’s Public Protection Classification, only features related to reducing property losses from structural fires are evaluated. The PPC program evaluates the fire protection for small and average size buildings. Specific properties with a Needed Fire Flow in excess of 3,500 gallons per minute (GPM) are evaluated separately and assigned an individual classification. A community’s investment in fire mitigation is a proven and reliable predictor of future fire losses. Statistical data on insurance losses bears out the relationship between excellent fire protection – as measured by the PPC program – and low fire losses. So, insurance companies use PPC information for marketing, underwriting, and to help establish fair premiums for homeowners and commercial fire insurance.

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In general, the price of fire insurance in a community with a good PPC is substantially lower than in a community with a poor PPC, assuming all other factors are equal. ISO is an independent company that serves insurance companies, communities, fire departments, insurance regulators, and others by providing information about risk. ISO’s expert staff collects information about municipal fire suppression efforts in communities throughout the United States. In each of those communities, ISO analyzes the relevant data and assigns a Public Protection Classification – a number from 1 to 10. Class 1 represents an exemplary fire suppression program, and 10 indicates that the area’s fire suppression program does not meet ISO’s minimum criteria. ISO’s PPC program evaluates communities according to a uniform set of criteria, incorporating nationally recognized standards developed by the National Fire Protection Association and the American Water Works Association. A community’s PPC depends on:

• Needed Fire Flows, which are representative building locations used to determine the theoretical amount of water necessary for fire suppression purposes.

• Receiving and Handling Fire Alarms, including telephone systems, telephone lines, staffing, and dispatching systems.

• Fire Department, including equipment, staffing, training, and geographic distribution of fire companies.

• Water Supply, including condition and maintenance of hydrants, alternative water supply operations, and a careful evaluation of the amount of available water compared with the amount needed to suppress fires up to 3,500 GPM.

DATA COLLECTION & ANALYSIS ISO has evaluated and classified over 48,000 fire protection areas across the United States using its Fire Suppression Rating Schedule (FSRS). A combination of meetings between trained ISO field representatives and the dispatch center coordinator, community fire official and water superintendent is used in conjunction with a comprehensive questionnaire to collect data necessary to determine the PPC number. In order for a community to obtain a classification better than a Class 9, three elements of fire suppression features are reviewed. These three elements are Receiving and Handling Fire Alarms, Fire Department and Water Supply.

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A review of the Receiving and Handling of Fire Alarms fire alarm communication system accounts for 10% of the total classification. The review focuses on the community’s facilities and support for handling and dispatching fire alarms. This section is weighted at 10 points as follows: • Telephone Service 2 points

• Number of Needed Operators 3 points

• Dispatch Circuits 5 points

A review of the Fire Department accounts for 50% of the total classification. ISO focuses on a fire department’s first alarm response and initial attack to minimize potential loss. In this section, ISO reviews such items as engine companies, ladder or service companies, distribution of fire stations and fire companies, equipment carried on apparatus, pumping capacity, reserve apparatus, department personnel, and training. The fire department section is weighted at 50 points, as follows: • Engine Companies 10 points • Reserve Pumpers 1 point • Pumper Capacity 5 points • Ladder/Service Companies 5 points • Reserve Ladder/Service Trucks 1 point • Distribution of Companies 4 points • Company Personnel 15 points • Training 9 points

A review of the Water Supply system accounts for 40% of the total classification. ISO reviews the water supply a community uses to determine the adequacy for fire suppression purposes. Hydrant size, type, and installation are also considered, as well as the inspection frequency and condition of fire hydrants. The water supply system is weighted at 40 points as follows: • Credit for Supply System 35 points

• Hydrant Size, Type & Installation 2 points

• Inspection/Condition of Hydrants 3 points

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There is one additional factor considered in calculating the final score – Divergence. Even the best fire department will be less than fully effective if it has an inadequate water supply. Similarly, even a superior water supply will be less than fully effective if the fire department lacks the equipment or personnel to use the water. The FSRS score is subject to modification by a divergence factor, which recognizes disparity between the effectiveness of the fire department and the water supply. The Divergence factor mathematically reduces the score based upon the relative difference between the fire department and water supply scores. The factor is introduced in the final equation. ISO HISTORICAL REVIEW The City of Naples was last surveyed and/or rated by ISO in August of 1990 and received a total of 72.27 points of 100.00 available. This inspection resulted in the City being a Class 3. At the final budget hearing held on September 19, 1990, the City Council approved the following items to increase the level of fire protection and to ultimately improve the ISO class rating as follows:

1. The City will hire eleven (11) additional firefighters who will start July 1, 1991, for the purpose of staffing an additional engine company out of Fire Station No. 1.

2. The City will purchase a 75-foot Ladder/Engine combination which will be staffed as an engine company by the above mentioned personnel. It will be placed into service in June of 1991.

3. The City will also hire two (2) Battalion Captains in July of 1991 and

reallocate one position. The Battalion Captains will each be assigned to a shift and work on a 24-hour basis as the primary fire suppression supervisor for each shift.

*The Fire Department staffing was bumped from 53 personnel to 66 personnel.

The City requested that ISO re-evaluate the department based on the aforementioned enhancements and ISO issued a report on October 18, 1991 indicating that the City has climbed from 72.27 points to 76.87 points although still holding a Class 3 rating. On November 1, 1991, City Manager Dr. Richard L. Woodruff directed Fire Chief Tom Smith to do an analysis of those areas where we received less than the maximum credit and to make specific recommendations that could result in increasing the score from 76.87 to a minimum of 80.27 points, thereby qualifying for a Class 2 rating.

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Effective on May 1, 1993, ISO upgraded the City of Naples from a Class 3 to a Class 2 rating as a result of increasing the number of fire department drills and overall training hours. DISTRIBUTION OF PUBLIC PROTECTION CLASSIFICATION NUMBERS The 2011 published countrywide distribution of communities by the Public Protection Classification number is as follows:

The City of Naples Fire-Rescue Department is one of only 592 departments in the United States to hold the desirable Class 2 rating. The 2011 published statewide distribution of communities by the Public Protection Classification number is as follows:

In the State of Florida, there are a total of 734 fire-rescue departments. The City of Naples is one of only 33 departments holding a Class 2 and the only one in Southwest Florida.

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SUMMARY EVALUATION ANALYSIS The following points represent the analysis of the application for the criteria outlined in the Fire Suppression Rating Schedule (FSRS) of four topics: Receiving and Handling Fire Alarms, Fire Department, Water Supply, and the Divergence factor for Naples:

Earned Credit

FSRS Feature Credit Available

Receiving and Handling Fire Alarms414. Credit for Telephone Service 2.00 2.00422. Credit for Operators 2.01 3.00432. Credit for Dispatch Circuits 3.25 5.00

440. Credit for Receiving and Handling Fire Alarms 7.26 10.00

Fire Department513. Credit for Engine Companies 9.59 10.00523. Credit for Reserve Pumpers 0.93 1.00532. Credit for Pumper Capacity 5.00 5.00549. Credit for Ladder Service 3.33 5.00553. Credit for Reserve Ladder and Service Trucks 0.49 1.00561. Credit for Distribution 2.62 4.00571. Credit for Company Personnel 6.94 15.00580. Credit for Training 8.74 9.00

590. Credit for Fire Department 37.64 50.00

Water Supply 616. Credit for Supply System 28.91 35.00621. Credit for Hydrants 2.00 2.00631. Credit for Inspection and Condition 2.40 3.00

640. Credit for Water Supply 33.31 40.00

Divergence -1.6 n/a

Total Credit 76.61 100.00

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PUBLIC PROTECTION CLASSIFICATION NUMBER

The PPC number assigned to the community will depend on the community’s score on a 100-point scale:

PPC POINTS1 90.00 or more2 80.00 to 89.993 70.00 to 79.994 60.00 to 69.995 50.00 to 59.996 40.00 to 49.997 30.00 to 39.998 20.00 to 29.999 10.00 to 19.9910 0.00 to 9.99

CLASSFICIATION DETAILS ISO has concluded its review of the fire suppression features being provided for/by the City of Naples. The resulting community classification is Class 3. However, the new rating will not be published pending a response from the City of Naples if we intend on trying to retain our Class 2 rating. A written response is required prior to March 2, 2013. Error! Not a valid link. It should be noted that based on available information in the chart above, the City of Naples Fire-Rescue Department is the only department in Southwest Florida to regress rather than to improve upon its previous rating.

ISO DEPARMENT 2 - 3 City of Naples Fire-Rescue 3 North Naples Fire Control District 3 Bonita Springs Fire Control District 3/8 Estero Fire Control District 4 - 3/9 City of Marco Island Fire-Rescue 4 Fort Myers Beach Fire Control District 4 Isle of Capri Fire Control District 4 Fort Myers Shores Fire Control District 4/9 - 4/9 East Naples Fire Control District 4/9 Golden Gate Fire Control District 5/9 Big Corkscrew Island Fire Control District 5/9 Immokalee Fire Control District 6/9 Ochopee Fire Control District

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There is currently a deficiency of 3.39 points from attaining a Class 2 ISO rating. The following chart outlines the categories rated along with the total available points, received points, the subsequent deficiencies and highlighted areas for improvement.

Available Received DeficiencyReceiving & Handling Fire Alarms

Telephone Service 2.00 2.00 0.00Number of Needed Operators 3.00 2.01 0.99Dispatch Circuits 5.00 3.25 1.75

10.00 7.26 2.74

Fire Department

Engine Companies 10.00 9.59 0.41Reserve Pumpers 1.00 0.93 0.07Pumper Capacity 5.00 5.00 0.00Ladder/Service Companies 5.00 3.33 1.67Reserve Ladder/Service Trucks 1.00 0.49 0.51Distribution of Companies 4.00 2.62 1.38Company Personnel 15.00 6.94 8.06Training 9.00 8.74 0.26

50.00 37.64 12.36

Water Supply

Credit for Supply System 35.00 28.91 6.09Hydrant Size, Type & Installation 2.00 2.00 0.00Inspection/Condition of Hydrants 3.00 2.40 0.60

40.00 33.31 6.69

Total Points 100.00 78.21 21.79

Divergence 0.00 1.60 1.60

Total Points 100.00 76.61 23.39

PPC Class 3 - 70.00 to 79.99PPC Class 2 - 80.00 to 89.99

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FIRE-RESCUE DEPARTMENT IMPROVEMENT RECOMMENDATIONS 1. Purchase and install a Fire Station Alerting System that will provide a

secondary means of alarm notification and emergency information transmission (location of the incident, nature of the emergency, etc.) from the City of Naples Police and Fire-Rescue Department Communications Center to City firehouses and fire-rescue department units.

Funds in the amount of $100,000 have been allocated in the Capital Improvement Program (CIP) to address this alerting deficiency. Collier County EMS has also expressed an interest in ensuring that ambulances assigned to City Fire Stations also receive the alerting notification and alarm incident information. ISO will award an additional 1.75 points for this implementation.

2. The Police and Fire-Rescue Department Communications Center is now required to comply with NFPA 1221 – Standard for the Installation, Maintenance, and Use of Emergency Services Communications Systems – 2010 Edition. All Public Safety Communications Centers in the United States are being reclassified as per this standard within the first quarter of 2013, according to ISO. It is possible that we may comply with this new standard with a few operational modifications that relate to the emergency generator and the dispatching/handling of emergency incidents and required alarm processing times. The costs associated with this recommendation relate to the generator and a required timer along with installation for a total cost of approximately $2500. ISO would award an additional .99 points.

3. In reviewing the ISO Public Protection Classification Summary Report with Field Representative Michael Morash in Daytona Beach last month, it was noticed that we did not receive full credit for Fire Department Training in Item 580. We are working to resolve this discrepancy and ISO would award us an additional .26 points.

4. In reviewing and discussing the PPC Summary Report and specifically the

Hydrant Flow Data Summary on the last page of the report, there may be an opportunity to gain additional points. We need to verify that the ISO “Computer Network Model Prediction” data is correct as it relates to commercial properties and credit for having sprinkler systems. There is a possibility we could gain an additional .25 points.

Please note that if successful in implementing and/or rectifying the four (4) aforementioned recommendations, the number of additional points received would amount to 3.25 points with maximum credit or still .14 points short of a Class 2 rating not counting the divergence factor. There are two additional options that would total 1.40 points and should safely move Naples into the

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Class 2 rating category with 4.65 points, not counting the divergence factor at about 81.26 overall points.

5. Hire three (3) additional firefighter/paramedics to staff Engine Co. 1 located at

Fire Station No. 1. This unit is currently staffed with a minimum of two personnel on a daily basis. Adding three personnel (one per shift) to the Operations Division would ensure that this unit is staffed with a minimum of three personnel each day. The total costs for hiring three additional firefighter/paramedics would range between $241,281 and $270,150 depending on either single or family health insurance coverage selected. These numbers also include personal protective equipment and uniforms. ISO will award an additional .70 points for this implementation. Due to a deficiency in some areas of the City with the potable water hydrant supply, the Fire-Rescue Department must obtain water from a second source, either with reclaimed water and/or pools, ponds, lakes, etc. This is a time- consuming and labor intensive process that requires proper staffing. The NFPA recommends that all engine and ladder companies be staffed with a minimum of four (4) personnel. All engine and ladder companies in Collier County except for the City of Naples, Immokalee, and Ochopee Fire-Rescue Departments operate with three or more personnel assigned to engines and ladders each day. The NFPA Standard 1710 also requires 15-17 personnel to attack a 2000-square foot residential property fire. The average home being built in the City of Naples for the last two years is in excess of 7,000-sguare feet and the Fire-Rescue Department operates with a minimum of 13 personnel available for structural firefighting purposes.

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6. Acquire a fire-rescue boat that can pump in excess of 1200-1500 GPM. Acquisition will also address the water supply deficiencies primarily but not exclusively found south of 5th Avenue South in terms of needed fire flow for ISO selected, existing, and new construction properties. The fire-rescue boat would also help offset minimum fire flows as mandated by the Florida Fire Prevention Code (NFPA 1). The current fire-rescue boat is utilized on average about once a week for emergency response, special details, standby events, training evolutions and drills. There is approximately $300,000 in fire impact fees that could help fund a fireboat. The fireboat qualifies for use of impact fees because it will expand needed fire flow pumping capabilities. It should be noted that the City of Naples calculates impact fees based on a rate study, entitled “Impact Fees” that was prepared by TischlerBise on January 25, 2008. This report specifically addresses the incremental need of expanding fire facilities and fire apparatus, including a fire-rescue boat. The estimated cost for a fire-rescue boat is $250,000 to $350,000, depending on the desired pumping capacity and workspace configuration. ISO would award us additional .70 points for this implementation.

SUMMARY

ISO conducted a Public Protection Classification (PPC) survey for the City of Naples Fire-Rescue Department in November of 2012. ISO has indicated that we have regressed from a Class 2 rating to a Class 3. The previous ISO

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inspection/survey occurred in August of 1990 (Class 3) with subsequent upgrades/improvements in October of 1991 and May of 1993 (Class 2). There have been approximately 23 annexations from August of 1990 through the present day. These changes have combined with new development and redevelopment which replaced smaller commercial buildings and homes with much larger structures. The Fire-Rescue Department operates currently with three (3) less personnel than in the 1991/1992 budget year and yet we cover an additional 2.26 square miles of densely populated territory. ISO finds that there is a deficiency of 3.39 points between the current Class 3 rating and obtaining and/or retaining a Class 2 rating. Six (6) improvement recommendations may qualify for an additional 4.65 points and place the City in the range of 81.26 points less divergence. The recommendations are summarized as follows:

1. Purchase Fire Station Alerting System – $100,000 combined with these funds already allocated in the 2011/12 and 2012/13 Capital Improvement Program (CIP) – 1.75 Additional Points

2. Comply with NFPA Standard 1221 – $2500 – .99 Additional Points

3. Work to resolve credit discrepancy for Fire Department Training – .26 Points

4. Work to verify that sprinklered commercial properties were properly

accounted for in the “Computer Network Model Prediction” data report – .25 Points

5. Hire three (3) additional firefighters – $241,281 to $270,150 total – .70

Points

6. Purchase a fireboat w/1200 to 1500 GPM pump – $250,000 to $350,000 with approximately $300,000 available in impact fees for Fire-Rescue Department expansion capabilities – .70 Points

ATTACHMENTS The attached information, previously provided to City Council, relate to ISO fire insurance premiums, fire-rescue department staffing and the previous ISO PPC rating conducted in August of 1990 and the subsequent improvements/upgrades from the initial Class 3 to a Class 2 in April of 1993.

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From: Bill Moss Sent: Wednesday, July 18, 2012 4:55 PM To: City Council Subject: ISO and Insurance Premiums Mayor and City Council: You have received email and presentations regarding the influence of ISO ratings upon residential and commercial fire insurance premiums. The purpose of this message is to provide additional information regarding potential impacts of the Insurance Services Office survey scheduled for this November. The Insurance Services Office is one of the largest repositories of building records in the nation. Their information is available through subscription. Virtually all companies that insure property subscribe to this service (State Farm is one known exception at the present time).

As described at their web site, ISO is a leading source of information about property/casualty insurance risk. For a broad spectrum of commercial and personal lines of insurance, they provide:

• statistical, actuarial, underwriting, and claims information • policy language • information about specific locations • fraud-identification tools • technical services

ISO evaluates local government Building Departments. Their ratings influence premiums for new structures built in local government jurisdictions. They also evaluate local government fire-rescue services which, in turn, may be used by insurance underwriters to evaluate risks and determine appropriate fire insurance premiums. The web site for the State of Texas Department of Insurance ((www.tdi.texas.gov/fire/index.html) provides a good explanation of ISO ratings and the Protective Property Classification. Excerpts are attached for your review. One paragraph regarding the Property Protection Class rating and the influence on insurance premiums states:

Although homeowners' insurance rates are driven mainly by your area's claim experience, your community's PPC rating also is important. For rate regulated companies, the premium on a brick veneer house is 39 percent higher in an area rated 10 (worst) than in one rated 1 (best). (This range is even greater for frame houses.) A brick veneer home's rate difference from one class to the next ranges from 1.5 percent to 9 percent. [Emphasis added].

This information is somewhat contradicted by others with whom this writer has contacted. A summary of findings from contacts are as follows:

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Brown & Brown—Public Risk Insurance Agency

Michelle Martin, Vice President Account Executive. The firm provides brokerage services for the City’s self-insurance program and reinsurance policies. She has 20+ years experience in the Florida insurance marketplace. In addition to her current responsibilities, she has consulted with Brown & Brown for single family residential, Philadelphia Insurance Company (small business), and Florida Intracoastal Underwriters (residential condominiums).

She stated that, in general, and in Florida, she finds the most significant portion of property insurance premium is associated with Windstorm and Flood exposures. Impacts from changes in the Protection Class (from 2 to 3, 4, or 5) would be less significant or potentially insignificant. The rating of a property insurance policy for a specific location/structure would be varied based on many different factors, including the insurance company. She advises that ratings from 1-4 are good—a high level. Higher Protection Class ratings could impact premiums. For the City of Naples, she would not expect a premium change for movement from 2 to a 3 or 4. Previously, Ms. Martin previously received insurance quotations from Tower Hill Insurance for five different residential properties in Naples with varying years of construction, size, stories, and replacement values. All were CBS construction. For Tower Hill Insurance, moving from a Protective Class 2 to Class 4 resulted in an average premium increase of 2.81%, or $183.84. Moving from 2 to 5 resulted in an average premium difference of 3.78%, or $247.53. Lutgert Insurance, Naples, Florida. Betty Curry, Operations Manager. Lutgert Insurance sells policy lines from 18 commercial and six residential insurance companies. She agrees that the companies do use the ISO Protection Class ratings for commercial and residential insurance policies. She stated that there is not much of a difference between ratings of 1 to 4. There will be big differences for ratings 7-10 for residential and commercial. She stated that every property in Naples will be assigned the same protective class rating. Condominiums buildings are considered “commercial” properties. Insurance carriers will use the ISO Protection Class rating. Gulfshore Insurance, Naples, Florida. Belinda Zivich. The company represents 39 insurance carriers with assorted lines of insurance. She agrees that most insurance companies use the ISO Protection Class rating to determine insurance premiums. She stated that for residential, there will not be much of a difference between Class 1 and 6. “For the most part, there will not be a rate change”. For ratings 7-8 there is sometimes a premium change, and one will see a premium change at 9-10. She

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stated that other factors have great influence on premiums, including type of construction, fire resistance (condominium building sprinklers), year of construction, etc. [It should be noted that Tower Hill Insurance referenced above is one of the insurance carriers used by Gulfshore Insurance. The above referenced premium quotes from Tower Hill Insurance were provided by Brown & Brown, not Gulfshore Insurance]. Ackerman Insurance Services, Naples, FL Lisa Peoples. The company has access to 15 insurance companies for homeowners insurance. Ms. Peoples has been with the company for over 20 years. She does not recall the impact when Naples underwent an ISO change in 1991 but has worked with changes in the ISO Protection Class ratings in North Naples, Golden Gate, and Corkscrew fire districts. She agrees that most companies use ISO. Some set insurance premiums in class groups, such Classes 1-6, while others may have smaller groups, such as Classes 1-3 or 4-5. She volunteered to calculate the impact of Protection Class rating upon premiums from three companies, assuming a residential dwelling with masonry construction. She advised that the Protective Class rating would affect insurance premiums as follows: American Strategic Insurance Company. The premiums remain the same for Classes 1-6. St. Johns Insurance Company. The premiums remain the same for Classes 1-6. Universal Property and Casualty. For Class 2, a 4% premium discount; Class 3, a 2% premium discount; Class 4, a 1% premium discount; and for Class 5, a 0% premium discount. She added that this company insures a lot of property west of U.S. 41 and they would be impacted by any change from the current Class 2. Summary: The information received from contacts and research confirms that:

• Nearly all insurance companies utilize ISO ratings when determining insurance premiums for commercial and residential structures.

• Condominium buildings are considered commercial structures. This is important because of the large number of multi-family structures.

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• The insurance premium is determined by many variables, including type of construction; fire protection; age, size, and ISO’s Protection Class and will vary by company.

• Assuming the ISO survey will result in a change from the current Class 2 to a higher (worse) classification, the impact for properties in Naples will depend on the company insuring a particular property. For some, there will be no change in premiums for a change from a Class 2 to Class 6. For others, Classes 1-3 or 4-5 may provide the same premiums. For others, each change to a higher Class number will result in an increase in premiums.

• There is no reasonable way to provide a cost/benefit analysis based on expenditures to improve the Fire-Rescue Department or the water distribution system and the resulting impact on insurance premiums. The influence of the Protection Class rating will depend on many variables, including the insurance company providing coverage to a property.

• ISO may split ratings in a community. Some areas, for instance, may be rated 4 while other areas may be rated 8 or 9.

• ISO may not immediately publish its rating of a community following a survey. Communities may be given the opportunity to make improvements that may result in a change in the ISO rating, usually within a finite period of time. Records suggest this occurred for the ISO inspection of Naples in 1990. North Naples was recently afforded the chance to add equipment which, in turn, improved its Protection Class rating.

• During a preliminary review of the City of Naples, the ISO representative indicated that the City should expect to “take a hit” due to its level of staffing. He stated that condominium buildings are considered commercial structures. He also advised that he will identify the five highest risk buildings in the city and then determine the available fire flow. This will account for 40% of the rating (water distribution system). Incidentally, we are told that they already have records of all buildings within the city. Staff will provide fire flow data, but they will confirm fire flow through tests at selected locations.

While the above information may be useful, it merely confirms previous information provided to City Council. The level of service provided by a local government, including Fire-Rescue services, is a matter of public policy. There are many factors to be considered when determining appropriate policy. Like most Fire-Rescue agencies, fire

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suppression is but one of many functions provided to a community by a Fire-Rescue Department, but it is one of the few local government services that are evaluated by independent review and subsequently used to determine non-tax expenditures by property owners. While some apparently believe that the results of an ISO survey are inconsequential, this writer does not recommend that an elected body take such a position. There is little doubt that, absent significant changes, the City of Naples will lose its Protection Class 2 status. The actual rating will be based on formulas and analysis not available to the city. The resulting impact of a change in the Protection Class will vary from one property to another based on many factors, including the insurance company providing coverage for the property. Some improvements have or will soon be implemented that will improve the results of the ISO survey. These include: additional fire hydrants, hydrants installed on reclaimed water lines, some distribution enhancements, improved firefighter training and training records, improved communications, new apparatus and reserve apparatus; and four additional firefighter positions proposed for the FY 2012-13 annual budget. Most would agree that the City of Naples traditionally provides a higher than average level of service to its citizens, particularly for essential services related to public safety. As the policy makers, members of City Council will weigh the many factors related to the fire-rescue services and, as a collective body, make the appropriate decision for the community. Bill Moss City Manager City of Naples bmoss@naplesgov.com

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From: Bill Moss Sent: Monday, July 23, 2012 3:20 PM To: City Council Subject: Fire-Rescue Department Staffing Mayor and City Council: There have been several presentations regarding historic staffing levels in the Fire-Rescue Department. For verification and to better understand past objectives, budgets for the period 1988-89 to the proposed 2012-13 budget were reviewed. Attached is a summary of staff changes over this period, including excerpts from budget documents. Also attached is spreadsheet showing staff changes, by year. You will note that staffing increased by 20 positions from 1988-90 to 1991-92 when levels peaked at 66 positions. Today (2011-12) there are 63 positions. The increase was influenced by the annexation of Park Shore, but budget documents also indicate that staffing was increased in preparation for the ISO inspection in 1990. Following the peak in 1991-92, positions were gradually eliminated to a total of 55 in 1995-96 and began to gradually increase thereafter. I believe there were 23 annexations during this period. Also, there has been substantial new development and redevelopment that replaced smaller commercial buildings and homes with much larger structures. There were some improvements to the water distribution systems over the years. These included Broad Avenue (pump station), Port Royal lines and pump station, and 5th Avenue S. While these improved water flow, they were not sufficient to meet fire flow by today’s standards in many areas. Some believe that the limited number of fires within the City is the reason to continue at the current staffing level. Perhaps they are correct. Yet, one cannot help but wonder why Naples, Immokalee, and Ochopee are the only departments in Collier County that operate with less than a minimum of three firefighters per apparatus. When all Naples firefighters are present for duty, minimum staffing can be achieved. However, absences due to illness and injury, personal leave, Kelly Days, etc. result in a minimum staffing of one on Tower Ladder 2 and two on Engine Company 1. When meeting with ENFD Chief Kingman Schultz (who was, coincidently, a top candidate for the Naples Fire Chief position), he was asked to explain minimum staffing utilized by East Naples. He made it clear that three per apparatus is the absolute minimum, and that he would not attempt to staff at less than that. This was demonstrated on July 11th when two apparatus were not in service due to staffing shortages (Engine Co. 22 and 24).

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North Naples also has a well-experienced Chief who staffs with a minimum of three per apparatus. While we did not raise the question with Chief Stoltz during our recent meeting with him, he was called to confirm their policy of a minimum of three firefighters per apparatus. He not only affirmed the policy but expressed a preference for four per apparatus. He explained that less than three firefighters cannot effectively and safely attack a fire (and he explained why). Furthermore, he confirmed that OSHA standards require that when two people enter a building on fire, there must be two people outside). He said they would place an apparatus out of service before they would staff with less than three, but added they do not do so and elect to pay overtime to maintain minimum staffing of three per engine and ladder company. In theory, Naples can meet a minimum of three per engine and ladder by scheduling overtime. However, some frown on overtime and imply that utilization of overtime is due to poor supervisory control. Actually, overtime at 1 ½ times the hourly rate costs about the same as an additional firefighter position. The reason is that, in Naples, fringe benefits (health, pension) are not paid for overtime work, unlike some other cities. These fringe benefit costs are close to the overtime rate (1/2 times hourly rate). However, with a smaller department, it may not reasonable to expect there will be a sufficient number of people able and willing to work overtime on a regular basis. The issue of minimum staffing appears to be one of safety. It takes a minimum of three firefighters to safely and efficiently man an engine or ladder company. Staffing decisions are not made based on the number of fires. Instead, it is based on the best way to safely attack a fire when one does occur. Presumably, most homeowners purchase insurance, not because there are a large number of fires, but to minimize any risk of loss. At one time, the decision as to whether there should be additional staffing was influenced by possible changes in the current EMS model. It now appears that change is not imminent, although communications and procedural changes may occur in the next fiscal year to improve services within the City. Therefore, this writer now considers the EMS equation to be less important in the staffing decision. As directed by City Council during the discussion on budget strategies for FY 2012-13, four firefighter positions are proposed in the budget. If approved, the department will have two more positions than they had in 1990-91 to provide fire-rescue services to a very different community, both in terms of geographic area, density, and size of structures. The resolution of the impasse with the IAFF may affect the timing of the actual hiring of personnel to fill these new positions.

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Budgetary funding will, of course, be balanced against other priorities, the maintenance of existing programs and services, available revenue, and the need to balance the General Fund through the use of the Tax Stabilization Fund (reserves in excess of maximum required reserves). Bill Moss City Manager City of Naples bmoss@naplesgov.com

Golden Gate to hire firefighters Posted: Jul 10, 2012 4:34 PM Updated: Jul 10, 2012 6:23 PM EDT By Gaby Fleischman, Collier County Reporter Golden Gate Fire is adding to its team. The department will hire 15 firefighters after receiving a $1.4 million FEMA grant.

"To help us staff up to improve the overall efficiency of the unit," said Chief Bob Metzger. "That will help us get a fire under control that much faster because we have more hands to do the work."

Right now only three firefighters are assigned to each truck on a call. National standards require them to wait for a fourth firefighter to arrive on scene before anyone can enter a burning building. The additional staff will add an extra firefighter to each response call, so crews won't have to wait for backup.

"If we get four guys in the truck then as soon as we pull up on scene we're ready to go, no waiting," said firefighter Jason Sellers.

The grant covers the cost of salary and benefits for the new firefighters, but the department will have to pay to equip them with gear. The department's part-time firefighters will be considered first for the open positions.

Codes and Standards Spotlight: NFPA Journal Interviews Carl Peterson about NFPA 1710

NFPA Journal® online exclusive, May 2008

By Lisa Nadile

NFPA regularly receives media calls about NFPA 1710, Organization and Deployment of Fire Suppression Operations, Emergency Medical Operations,

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and Special Operations to the Public by Career Fire Departments, and Carl Peterson, NFPA's assistant director of the Public Fire Protection Division, is often on the phone with journalists clarifying the standard's requirements and helping them understand how the fire service works.

Celebrating his fortieth year at NFPA, Peterson has been a fire investigator, software developer, and staff liaison, to name just some of the posts he's held. But to a man whose uncle, father, and grandfather were all volunteer firefighters-which meant Peterson's been chasing fires as long as he was old enough to walk-he has kept the safety of the fire service his first priority. Currently, Peterson is serving as staff liaison to the technical committee responsible for NFPA 1710. He stresses the use of this document as a tool for promoting effective communications between fire departments and the communities they serve. This standard directly affects the wellbeing of the fire service by addressing issues of staffing and deployment of resources.

LN: What are the most frequently asked questions for this standard?

CP: The majority of questions focus on two issues. One is staffing. How many firefighters should there be on a piece of fire apparatus? That question is easy to answer: For an engine company or ladder company, a minimum of four firefighters. For special service vehicles, the standard states the apparatus must be staffed with the appropriate personnel to accomplish the tasks that the company will be expected to perform in a safe manner.

The second issue is response time. How quickly should the apparatus and firefighters get to the incident? NFPA 1710 says that the first company apparatus with appropriate staffing needs to arrive within a travel time of four minutes and that all companies assigned on the first alarm must arrive within an eight-minute travel time. The standard gives companies another minute for turnout time, which is the time to receive the alarm at the station, identify where they are going, get their protective clothing on, get on the apparatus, and start moving.

However, as I talk to reporters, I explain there is another minute in the whole equation, and that is the alarm handling or dispatch time. That time comes from NFPA 1221, Installation, Maintenance, and Use of Emergency Services Communications Systems. It says the dispatch center has to be able to process the call and notify the appropriate companies in one minute 95 percent of the time.

From the public's perspective, there is a potential of six minutes from the time they dial 911 until they have a fire truck in front of their house.

LN: Why was the number of firefighters required for the minimum staffing for engine and truck companies set at four?

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CP: That question comes up a lot when I talk to reporters. The reporter will say, "The community has only three firefighters for an apparatus." I explain that if they only have three firefighters, they aren't going to be able to do certain things safely. I discuss the two in/two out rule, which requires that firefighters work in teams of at least two persons when in a hazardous atmosphere and that there be two properly equipped firefighters outside the hazardous area who are monitoring the activities of the two in the hazardous area and who can rescue them if they get in trouble. This is a federal government requirement, as well as a requirement in NFPA 1500, Fire Department Occupational Safety and Health Program. If the first-arriving company has only three firefighters on the apparatus, it means that the company can't do interior firefighting until a fourth person arrives.

With a four-person engine company, the pump operator and one other member, typically the company officer, remain outside the hazardous area, and there is a team of two firefighters available for interior search and rescue or firefighting. As the operation escalates and additional companies arrive, the company officer should be in a position to move into the structure and provide closer supervision of his or her crew.

The same thing applies to truck company operations. With one firefighter remaining with the apparatus to operate the aerial device, it leaves three persons to raise ground ladders, perform search-and-rescue operations, perform ventilation operations, and many other tasks. With a three-person truck company, the officer has to become more of a working member of the team and can loose focus on supervising and overseeing the safety of the team.

LN: Does the standard take into account population distribution and the intangibles of travel-traffic, weather, etc.-when requiring the four-minute and eight-minute travel times? CP: Yes, the standard says the fire department needs to meet the time objectives 90 percent of the time. This recognizes that, depending on the geography of the community, as well as weather, traffic, and simultaneous alarms, there are going to be certain circumstances or areas where the fire department cannot reach the incident within the time objective. A fire department is not going to put a fire station out on a rural peninsula that has only a few houses and very little demand for service.

LN: What is the most important challenge facing those people who work with NFPA 1710? CP: Communication between the fire department and the community it serves. The committee responsible for the standard is trying to get the local government officials working with the fire department to establish response time objectives and to make sure the citizens of the community know what these objectives are. If a fire department's average response time for the first piece of apparatus is five

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minutes 80 percent of the time, the community should know that, so there is not an expectation of a two-minute or three-minute average response time. I feel strongly about this.

The community also needs to understand why the fire department is not achieving a higher percentage of compliance with the time objectives. Is it simultaneous alarms during peak times, traffic delays at certain times of the day, or an oddly shaped community that has a number of narrow peninsulas with very few structures but longer travel distances? The residents in those remote areas should consider installing residential sprinklers, because it's not economically feasible to build and staff a fire station for a small number of incidents a year.

The important point is that the fire department should be proactive in letting the community leaders and citizens know before and not after the fact, what the fire department capabilities are. The time to explain this is not when the citizens are asking why the fire department took 10 minutes to reach an incident.

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