On July 8, 2008, the County Administrator and East Contra Costa Fire Protection District's Acting Fire Chief provided the Board of Supervisors, as the Board of Directors of the East Contra Costa Fire Protection District, an update regarding the proposed change in governance that was tentatively approved on February 12, 2008 The tentative approval was to move from the Board of Supervisors, acting as the Board of Directors, to a new board consisting of directors appointed by the cities of Brentwood and Oakley and the County of Contra Costa. However, the Board was advised that a change to an appointed Board was not approved by all parties. Therefore, the Board of Supervisors would continue to be the East Contra Costa Fire Protection District's Board of Directors (see Attachment #1). Currently, governance is still being discussed with the stakeholders. However, the stakeholders are not ready to aggressively move forward with a governance change.
On July 8, the Board also acknowledged the service level improvements achieved by the November 2002 consolidation of the Oakley, Bethel Island, and East Diablo Fire Protection Districts and further directed the District III and V Supervisors to continue working with the County Administrator, staff, and Acting Fire Chief to develop a plan for increasing service levels and improving community and fire suppression personnel safety.
Since July 8, the District III and District V Supervisors, along with the County Administrator's Office and the Acting Fire Chief, have met several times with the local communities and stakeholders to discuss service levels and the effect of the economy on the District. Discussions revolved around the following points:
1. Financial status;
2. Geographic concentration of calls;
3. Analysis of fire station locations and their first-due coverage area;
4. Safety concerns of staffing apparatus with two suppression personnel;
5. Cooperation with American Medical Response and Contra Costa County Emergency Medical Services in determining
optimal placement of quick-response-vehicles (QRVs);
6. Merger with Contra Costa Fire Protection District (“CCCFPD”);
Financial Status
Although Contra Costa County is suffering from the economic downturn, it is particularly shocking in far East Contra Costa County. The East Contra Costa Fire Protection District (“District”) incurred an approximate 7% assessed value tax hit in FY 2008/09, a $1.3 million reduction in property tax. This decline is further exacerbated by an additional projected 8% decline in assessed value in FY 2009/10, which represents an additional $1.7 million decline in District revenue. It is important to note that property tax represents approximately 90% of the District’s revenue stream.
Further intensifying the District’s revenue problem is that their percentage of the ad-valorem property tax is approximately 6-7%. In other words, for every $1 received in property tax, the District receives 6-7 cents. As outlined in the attached presentation to an ad-hoc work group representing communities within the District, this is a direct result of State Proposition 13. By comparison, Contra Costa County Fire Protection District’s (“CCCFPD”) average tax rate increment is approximately 13-15% of the ad-valorem.
Attached in the Community Presentation (attachment #2) is a graphic representation of the fiscal status and projection for the District. Of particular note is that the District has been very fiscally prudent and careful to grow within its means, but is now suffering from the serious downward spiraling of the far East Contra Costa County and is facing challenges to remain fiscally responsible.
2008 Call Volumes By Station in First Due Areas
Attached is a table reflecting the 2008 Call Volumes by first due area (attachment #3).
Because the District serves approximately 250 square miles, it may be appropriate to study public needs by zones and the District is very aware and strives to maintain response integrity for the 250 square miles. If segregated by zones, there are three zones that could be analyzed. These zones are:
| Zone |
Stations |
Total # of Calls |
| Brentwood |
Stations #52 and 54 |
2,769 |
| Discovery Bay |
Stations #59, 58, and 57 |
773 |
| Oakley |
Stations 93, 94, and 95 |
2,008 |
Station Location/First Due Coverage Area
At the time of consolidation, the 8 stations and remnants of the previous Districts were in-place. Basically, station placement criteria involve: distance between stations (travel-time); call volume; population, and; types of structures in the area. Because the stations already existed, ECCFPD inherited station placement. No new stations have been built since the consolidation. In addition, the explosive growth in this area has created the need to reevaluate placement and staffing models. (See map attached to Community Presentation in Attachment #2).
As the attached map indicates, most areas are covered. However, there is an overlap in the two Discovery Bay stations. Comparing the call volumes with the station location it is important to note that certain stations are located in areas where the call volume would not, by itself, dictate station placement. For example, there are 3 stations that are located for reasons other than high call volume:
1. Bethel Island: due to its isolation and reliance on the Bethel Island Bridge, the District considers this a high-risk area;
2. Knightsen: although there are few first due calls emanating from this station, it is in an important geographic placement due to its ability to respond to the north Brentwood area; Oakley, and; Bethel Island;
3. Byron: an outlying station that is geographically isolated.
Staffing Safety Concerns
It is widely recognized that the National Fire Protection Association recommends 4 suppression personnel per engine. However, this is a recommendation, not a requirement. The Districts/Departments within Contra Costa County are currently staffed with 3 per engine. ECCFPD is currently staffed with 8 2-person basic life support engines. Unfortunately, ECCFPD is not in a financial position to staff 8 stations with 3 personnel in each of these stations. Another NFPA recommendation is to respond with 15 fire suppression personnel on scene of a working structure fire within ten minutes. CALOSHA Safety standards require a backup crew be in place prior to suppression personnel entering a burning structure, unless there is a known rescue (this is known as "2 in and 2 out standard").
Currently, the District, in concurrence with the District III and V Supervisor, has implemented a trial enhanced staffing model of three suppression personnel on an engine in the downtown Brentwood and Oakley stations because of their call volume, population density, and their geographic location to assist neighboring stations and ability to deploy more personnel to a scene. This is still only a trial and the third position is being filled on over-time. The District is monitoring the effect of this staffing pattern.
American Medical Response/Contra Costa County Emergency Medical Services
There are currently 3 Quick Response Vehicles (QRVs) within ECCFPD that provide paramedic services: Bethel Island; Brentwood (Station 52), and; Byron. The District has been in discussions with American Medical Response (AMR) and Emergency Medical Services (EMS) to ensure optimum placement of the 3 QRVs that are providing paramedic service in the District. AMR, with the concurrence of EMS, are recommending the movement of the Byron QRV to Discovery Bay due to call volume and response times. Also factoring in QRV placement is the recent opening of the Highway 4 By-Pass. Because of the By-Pass, Byron will have much faster access to the QRV stationed at Brentwood than before, thereby, liberating the need for the QRV to be stationed at Byron.
Bethel Island, due to its isolated nature, will continue to have a QRV stationed on the Island.
Merger with Contra Costa County Fire Protection District
It has long been a conversation that East Contra Costa FPD should merge with Contra Costa County FPD. While this would appear to be very logical, there are two primary issues complicating a merger, including:
• ECCFPD is a non-merit district and CCCFPD is a merit district. This creates potential personnel issues that Human Resources has been evaluating.
• There are currently 8 stations in ECCFPD staffed by two-person basic life support engines. In the event of a merger, CCCFPD may require, in accordance with the minimum staffing requirement outlined in their MOU, that staff would need to be increased in ECCFPD engine-companies to a 3-person minimum. In addition to the extra personnel, the salary differential between the Districts is substantial. In discussion with CCCFPD, additional revenue would be required to close the pay gap, add the additional personnel, and provide the additional overhead. In addition to the significant difference in the ad-valorem increment, it is even more problematic given the severe economic downturn that ECCFPD is experiencing coupled with CCCFPD is projected to experience property tax loss in FY 2009-10.
Given the economic disparity between the Districts, an alternative to merging is to evaluate the most effective disposition of current ECCFPD resources. Attached is a breakdown, by station, of first-due calls in 2008, as provided by the CCCFPD Dispatch system: (note: does not include the contracted Cal-Fire “Sunshine” Station that is located on Marsh Creek Road) (Attachment #3).
Additional Issues
In addition to the 6 items that served as the framework for our discussions, the District is also evaluating the efficacy of the Paid On Call Program that are represented by the East County Firefighters Association. Historically, when this area was rural, the individual fire districts were paid on call firefighting programs. Prior to the formation of ECCFPD, the Bethel Island and Oakley Fire Protection Districts were primarily paid on call Districts. Today, as envisioned at the time of consolidation, the District staffs all 8 stations with career firefighters. As a combination District, the paid on call program now provides supplemental service when they are available.
The role of the paid on call program has changed from its former primary function as first-line fire suppression personnel to a support services role. The support services role includes hydrant maintenance, hazard abatement, and special projects and the occasional emergency response.
The District is required to provide the same level of training, medical evaluations, and safety equipment as career personnel. According to the East County Firefighters Association MOU, members are to receive compensation for emergency responses, training hours, physicals, etc.
As anticipated at the time of consolidation, the far East County has grown from a more rural to an urban/suburban area. Because of this transition, it would have been problematic to expect to provide a 24 hour response capability solely with paid on call personnel. In addition, the profile of a paid on call firefighter has changed. The paid on call program has become more of a stepping stone to a career firefighter position in the fire industry.
Lastly, the District has also participated in the Contra Costa County Local Agency Formation Commission’s “Municipal Service Review: Fire and Emergency Medical Service Providers.”
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