Homer
Volunteer
Fire
Department
Photo by Josephine Ryan
Strategic
Plan
2004
This document developed in cooperation with the Kachemak Emergency Service Area
and Kachemak City
Acknowledgements
The
members
and staff of the Homer Volunteer Fire Department would like to thank
those that
shared their expertise, time and energy to assist with this project.
Members
past and present: Kachemak City Mayor Phil Morris,
for his historical knowledge and long-time support of HVFD;
Firefighter Volunteer Gary Thomas, who brought to the table 23+ years
with the
department and an intimate knowledge of the community; Firefighter/EMT
Volunteer Mary Griswold, a newer member of the department but with
boundless
energy and enthusiasm for the fire service; Past fire department member
and
former City Councilman Kurt Marquardt representing the public’s
interest in
fire department operations; and Gary Kulesza, representing the building
trades
and contractors.
We would also like to thank Homer City
Manager Walt
Wrede and City of Homer
Councilman/Committee Chair Dr. Doug Stark who represented the
city and
interests of Homer residents; and Leroy Krumm, Kachemak Emergency
Service Area
Director, representing the residents of KESA.
A
Heartfelt Thanks,
Bob
Painter, Chief
Executive Summary
The 2004 Fire Department Strategic Plan is the most comprehensive evaluation of current and future fire department operations to take place since the City of Homer assumed control in 1990 of the fire department from the volunteer corporation (HVFD Inc. was established in 1954 to oversee the functions of the Homer Volunteer Fire Department).
Strategic planning is derived from a review of previous years response data, brainstorming sessions, personal knowledge, and individual committee member perceptions and then developing a consensus on where the fire department should be heading in the next five to ten years. The first stage in strategic planning is the process of examining the current status of the fire department’s operations ranging from day-to-day administrative functions, to training and emergency scene operations and then using that data to predict future trends and needs.
The Fire Department Strategic Planning Committee (SPC) began meeting on February 18, 2004 and continued to meet every other week through June, completing the draft report on June 30, 2004. Members of the committee were: Chairperson-Doug Stark, Homer City Council; Mayor-Phil Morris, Kachemak City; City Manager-Walt Wrede, City of Homer; Leroy Krumm, KESA; Gary Thomas, Firefighter volunteer; Mary Griswold, EMT volunteer; Gary Kulesza, Building Trades/Contractors; Kurt Marquardt, Public-At-Large; and Bob Painter, Fire Chief.
Several referenced documents were created and became part of the overall Strategic Plan – a Strengths, Weaknesses, Opportunities and Threats (SWOT) Analysis and a document titled Standards of Coverage. These two reports outline specific items reviewed by the Strategic Planning Committee to gain a better understanding of current practices and potential fire department operations and training opportunities. These documents can be found within the Strategic Plan. Another report generated for review is a point-by-point comparison of the Homer Volunteer Fire Department’s compliance with the NFPA 1720 Standard on Volunteer Fire Department Deployment and Operations. This document, perhaps more than any other, demonstrates the strong commitment the fire department and City of Homer has for providing state of the art services to the community.
Detailed recommendations made by the Strategic Planning Committee can be found in the Policy Recommendations Section of the Standards of Coverage Report. Some of these recommendations are: maintaining the “status quo” with KESA, that is maintaining the cooperative contractual relationship between HVFD and KESA to promote emergency services throughout the area through the “Donut” Service Area Model. After much discussion the committee endorsed a proposal to mandate automatic sprinkler systems for new commercial properties built within the city limits. This recommendation will require City Council action to create but was viewed by the Committee as perhaps the one most proactive approach to fire protection that the community could take.
Due to the extremely high cost of new fire apparatus the Committee made a recommendation to research refurbishing large apparatus rather than purchasing new pumpers and tankers. A Level 2 refurbishment could potentially extend the service life of low-mileage apparatus by 15 years. It was also recommended that apparatus purchases be staggered to prevent more than one large piece of equipment needing replacement within 3 – 5 years of one another. Finally the Committee supports fully funding fire department depreciation (fleet allocation and building depreciation) to reduce the impacts of deferred maintenance and unfunded apparatus and equipment needs.
Homer Volunteer Fire Department
MISSION
STATEMENT
"The
Fire Department is committed to protecting and serving the public when
members
of our community are threatened by fire, accidents, and natural or
man-made
disasters. To accomplish this mission the Department will deliver
proactive
emergency risk management, emergency services and educational
prevention
programs."
STATEMENT OF PHILOSOPHY
The
Fire Department's philosophy is one of excellence in community service. The Fire Department is organized to serve
the people of Homer and the South Kenai Peninsula Area as the principle
provider of fire protection, pre-hospital emergency medical services
and other
related services. Our services and programs are designed to prevent or
mitigate
the loss of life, limb and property.
The
Fire Department is dedicated to excellence and professionalism in all
of its
activities and strives to be flexible and innovative in meeting the
needs of
our community and the citizens we serve and protect.
We are committed
to
prevention and risk management and will endeavor to instill in the
people of
the community a desire to become full participants in their own
protection
through community education.
We
will strive to maintain cost effective services that meet the needs of
the
community. This will be accomplished using sound proactive risk
management
practices and principles.
We
will manage our affairs consistent with the values of commitment,
trust,
loyalty, confidentiality and professionalism.
We recognize and value the individual member and their family as the foundation of this community based organization.
Department Overview
The Homer Volunteer Fire Department was established in 1952 as an offshoot of the local Civil Defense organization. The department was incorporated in 1954 as a Non-profit corporation in the State of Alaska. The first paid employees of the department were hired in the early 1980’s and included the Administrator, Administrative Assistant and later the Training Coordinator. In 1990 the volunteer corporation (HVFD, Inc.) and the City of Homer entered into an agreement to transfer all fire department operations from the volunteer corporation to the City of Homer. As part of this transition the City agreed to fund another paid position, that of EMS Assistant Chief who was hired in 1991. In 1992 the Training Coordinators position was eliminated and another Assistant Chief was hired to oversee fire fighting training and operations. In 1999 the Fire Assistant Chief and EMS Assistant Chief positions were consolidated into an Assistant Chief’s position. At that time, to assist with day-time calls and other tasks, the first Emergency Services Specialist (Firefighter/EMT-III) was hired. In 2001, two additional Emergency Service Specialist (ESS) positions were authorized and filled bringing the current paid staffing level to six full-time paid positions.
Over the last ten years the fire department has seen a decreasing number of volunteer members from a high of over 50 to the current level of 29 volunteer firefighters and EMT’s. Reasons for this attrition are both internal and external. The fire department has made a concerted effort to trim the membership roster of non-participatory members by instituting minimum participation guidelines and holding all members to them. External factors that inhibit volunteer participation are mandated training requirements that have increased the members training time to what many perceive as unreasonable. As the entry level firefighter class is now over 200 hours of classroom time and the entry level Emergency medical technician course is over 130 hours many people cannot dedicate the time needed to even gain entry into the fire service.
In 2001/2002 the Kachemak Emergency Service Area (KESA) was formed by an affirmative vote of residents outside of Homer and Kachemak City. This service area was established to improve fire and emergency medical services to those areas surrounding the City of Homer by the acquisition of apparatus (both fire and ambulances), the training of personnel, and construction of additional fire stations from which to respond. In 2002 KESA entered into a contractual relationship with the City of Homer to provide fire and medical services to the service area until such time as the service area, or the City of Homer, rescinded the contract, or another model for providing those services became reality. In addition to the KESA contract, the City of Kachemak has had a long standing contract with the Homer Volunteer Fire Department and City of Homer to provide fire and emergency medical service to that community.
Strengths, Weaknesses,
Opportunities and
Threat Analysis
Conducted as Part of the Strategic Planning Committee
March 2004
The
purpose of the SWOT Analysis is to visualize where the fire department
currently
is (strengths and weaknesses), what areas there may be potentials for
change
(opportunities and threats). The list below is simply a compilation of
the
committees thoughts with narrative provided for explanation and
clarification
of the key observations.
|
Strengths Volunteers (tenure, commitment, expertise) History of community service Relationships with K-City, KESA Quality of equipment Tax base (financially stable) Hydrant system Mutual aid Training (funding, instructors) Communications (central dispatch, E-911) Equipment/apparatus maintenance Record management Improving rural water sources Dedicated VIP funding |
Weaknesses Lack of local oversight of building/fire codes Incomplete water distribution system Road system (limited ingress/egress to some
areas) Extended mutual aid response time Centralized station/resources when calls are
KESA Communications problems within KESA area Training facilities (lack of hands-on, live
fire) Recruitment & retention Ladder company needed Preplanning of target occupancies Shallow officer pools |
|
Opportunities Computer aided dispatch Borough-wide E-911 Study Recommendations Peninsula-wide EMS funding support Fire sprinkler promotions to builders Expanded rescue team capabilities Hazardous Materials Response Team Youth (cadet) program Community involvement |
Threats Unfunded mandates (Federal, State) Increasing costs versus flat budgets Nation-wide trends in volunteerism (declining) Increased training requirement Increasing regulations Deferred maintenance Depreciation not fully funded
(apparatus/equipment) |
SWOT narrative:
Strengths of the department are numerous and diverse and mostly reflect the quality of the personnel within the department and commitment of the membership (past and present) and City of Homer to fund department operations. The department is member oriented (Volunteer Incentive Program, longevity, commitment) but also dependent on outside influences to maintain those qualities as strengths: City Council (funding) , Public Works (water systems, maintenance), Homer Police Department (support, communications). The paid members exist in order to facilitate the delivery of member services (safety, training, regulatory compliance, etc.) so that the members can, in turn, provide emergency services to the community.
Weaknesses, whether perceived or actual, are primarily external to the department and are to some extent outside the ability of the department to control or address. Many of the weaknesses are directly tied to additional funding or direction from the City of Homer, State of Alaska, or Kenai Peninsula Borough to effect changes (code enforcement, water supply, roads, training facility, and apparatus). Weaknesses can also be viewed as opportunities to improve services to the membership and community. Many of the weaknesses have already been identified and addressed to the extent possible without the support of additional funding.
Opportunities outlined by the Strategic Planning Committee reflect the desire to improve services and cooperation between the agencies involved in planning: City of Homer, Kachemak City and Kachemak Emergency Service Area. Many identified opportunities will require additional funding sources in order to be implemented. Some outside sources such as Homeland Security and direct federal appropriations may be available for Borough-wide projects such as computer aided dispatch, improved staffing of dispatch and hazardous materials readiness and response. Locally, the fire department must address the issue of developing community interest through contacts with local service organizations such as the Rotary, Lions Club, Chamber of Commerce and others and improving the member interest (if possible) in youth oriented programs such as an Explorer Post, or EMT in the High School.
Threats to the fire department mostly originate from sources beyond local control – Federal regulations resulting in increased training commitments from members, unfunded mandates and their impacts to volunteerism. One way in which the department has attempted to address the training issue is to allow members to “specialize” in one service or the other (fire or EMS). Members are encouraged to maintain a balance between personal, work and volunteer commitments to avoid burn out. While the department has deemed it necessary to require minimum levels of participation and training we believe that those levels are not excessive and alternatives are available for member to assist them in meeting our membership requirements. One of the most troubling threats to the fire department is deferred maintenance. History has demonstrated that deferring routine maintenance on the facility or apparatus results in increased costs when the inevitable failures occur. Though the department has been spared significant budget cuts over the years the budget has been relatively status quo from year to year, only showing increases in areas of personnel costs, insurance and overhead. Program expenses have been reduced to their minimum to maintain only those services currently provided with minimal training and equipment/supplies necessary to the current system. Fleet allocation and building depreciation must be fully funded to permit the ongoing and planned vehicle replacement and building/grounds maintenance. An annual fleet allocation of $17,500 ($350,000 over 20 years life expectancy) per large fire apparatus (Engine 4, Tanker 2, Rescue 1), $10,000 ($150,000 over 15 years) for each ambulance and $7,000 ($70,000 over 10 years) for each utility type vehicle plus building depreciation would not be unrealistic levels of funding (currently the fire department receives $20,000 to $30,000 each year for fleet reserves which would require almost 12-years remaining untouched to fund the replacement of one large fire truck).
Public Expectations and
Priorities
In a City-Wide survey conducted in 2002 the fire department received the largest approval rating of any other city department. Public Safety was broken down into the following categories and rated on a scale of 0-100:
- Fire Department services (68)
- Emergency medical service response time (66)
- Fire response time (64)
- Police Department services (58)
- Police response time (56)
The only other areas that scored in the 60’s range were library services (63) and services for seniors (67). It is clear that public safety retains a high level of respect from the public and is deemed to be an “essential” service. While the majority of the public’s expectations regarding fire and emergency medical service are gathered from media portrayals (often incorrectly) of the fire service, the committee believes that the public is satisfied with the current levels of service.
In general, the public’s only experience with the fire service may be from a once in a lifetime encounter during a personal emergency (perhaps from another community), or through the numerous public education activities with which the department provides in the community. The basic expectation of the public is that when they have an emergency and call “911” that someone with adequate training, experience, and equipment will arrive within a reasonable amount of time and be able to intervene in the situation.
It is the determination of the Strategic Planning Committee that a certain level of personal responsibility rests with the individual’s choice of residence, location of that residence, and whether or not to address specific fire prevention and injury prevention interventions. The responsibility of the fire department (municipal and service area) is to maintain an adequate response force, provide training that meets or exceeds accepted standards, have sufficient numbers of serviceable equipment, and be able to effectively mitigate the emergency situation to control or limit property loss, and provide a level of emergency medical treatment and transportation that meets the accepted “standard of care” for the community.
Homer Volunteer Fire Department
Standards of Coverage
City of Homer
The City of Homer is located in South-Central Alaska on the Southwestern edge of the Kenai Peninsula on the north shore of Kachemak Bay. The City is approximately 25 square miles including tidelands, uplands and the 4.5 mile long Homer Spit, remnants of a glacial moraine. The Department of Community and Economic Development certified Homer’s population at 4,721 people.
Homer is 227 road miles south of Anchorage at the terminus of the Sterling Highway. Homer is also connected to the Alaska Marine Highway via the State Ferry System and the State operates an airport facility with a 6,700 foot lighted runway, in addition to a sea plane basin at Beluga Lake. The Port of Homer is comprised of the Deep Water Dock, constructed in 1990, which can accommodate vessels up to 800 feet, displacing up to 65,000 tons, and the Pioneer Multipurpose Dock, constructed in 2001/2002, accepting vessels up to 750 feet and displacing up to 80,000 tons. The Homer Small Boat Harbor has 920 reserved boat slips (up to 85 foot boats); 6,000+ feet of transient moorage; 48.7 acre boat basin; 2 tidal grids; and a 5 lane load-and-launch ramp.
Kachemak City
Kachemak
City is incorporated as a Second Class City within the State of Alaska.
The
current population of the city is 473. Kachemak City covers 1.6 square
miles
and provides limited services to its residents. The city maintains a
Community
Center which houses the administrative offices and a 1986 E-One Pumper
Tanker.
Kachemak City contracts with the City of Homer and the Homer Volunteer
Fire
Department to provide all emergency medical and fire services. Kachemak
City
pays the equivalent of 1.0 mils for this annual contract and provides
its tanker/pumper.
The City of Homer provides all maintenance of this apparatus.
Kachemak Emergency Service Area
The Kachemak Emergency Service Area (KESA) was created as a Kenai Peninsula Borough Service Area in 2001. The service area has the authority to tax local residents (through the Kenai Peninsula Borough Property Tax) and to establish fire and emergency medical services for the area. KESA is managed by an elected Service Area Board made up of five members elected “at large” from the service area boundaries. The Service Area Board is authorized to formulate an annual budget which is then submitted to the Kenai Peninsula Borough Assembly for approval and adoption.
The service area encompasses 200 square miles and serves an estimated population of 4,134, with a reported 1,530 residential, 18 commercial, 13 institutional and 3 industrial structures. KESA currently houses a pumper, small engine and ambulance in a rented facility and has broken ground for a new station and community center at about 11.5 mile East End Road. This station, when completed in 2004, will house the pumper, engine, ambulance and brush truck and have room to conduct training programs or conduct meetings. KESA also plans to eventually construct another station north of Homer near the intersection of the Sterling Highway and Diamond Ridge Road as well as a third potential station (operated jointed with the City of Homer) on East Skyline Drive near the top of Bear Creek Canyon. KESA currently contracts with the City of Homer for fire and emergency medical services. KESA pay an equivalency of 0.925 mils each year for contract fees and provides for its own maintenance of apparatus and facilities.
The City of Homer is a First Class General Law City with a City Manager form of government. The City of Homer was incorporated March 31, 1964, shortly after the Good Friday Earthquake. A general law city can only do what the law says they can do (AS 29.35). A city has only those powers given it by the state:
1. General Governmental Powers
2. Financial
3. Administrative
4. Legal
5. Powers to provide a wide range of community services and facilities.
As a First Class City Homer:
1. must have a minimum population of 400;
2. must have a Mayor, elected by the voters, who is not a member of Council;
3. must allow the Mayor to vote only in cases of a tie or to veto action of Council;
4. may levy a property tax of not more than 30 mils, except to pay off bonds.
The fire department is authorized under City of Homer Code Chapter 1.60 Department of Public Safety and Chapter 5.20 Fire Prevention. The powers and duties of the fire department are further authorized and stipulated by Alaska State Statute in Title 18.70 Fire Protection.
The Homer Volunteer Fire Department currently provides fire, emergency medical and limited rescue services to the City of Homer as well as to Kachemak City and the Kachemak Emergency Service Area under terms of a contract.
The Homer Volunteer Fire Department operates from a central station located at 604 East Pioneer Avenue. Station 1, constructed with volunteer labor and dedicated in 1980, houses all first-out apparatus and administrative offices. The two-story, sprinklered building has four offices (Fire Chief, Assistant Chief, Watch Office and Training Office), kitchen, living area, two bunk rooms with single bunk beds and desk, separate men’s and women’s restrooms with showers, production room (Xerox, printer, project layout), small conference room, and meeting/training room with seating for 20. The building underwent an extensive remodel and seismic upgrade in 1997/98 but remains at capacity and with several issues unresolved: poor drainage in Bays 2 & 3 (engineers advised that the entire floor needed to be replaced and new drains installed), incomplete garage door replacement (rear overhead doors still need to be replaced), and an unpaved rear parking area (funds to improve drainage and paving of the rear lot are allocated $25,000 for this fiscal year).
The fire department conducts annual Recruit Training Classes (usually alternating a Firefighter I course with an Emergency Medical Technician (EMT) I course) each Spring. The department is accredited by the State of Alaska Fire Service Training Office to conduct Firefighter I and Firefighter II courses and also has sufficient certified personnel to instruct EMT-I, EMT-II, and EMT-III courses in-house as well as all courses necessary to maintain current levels of certification.
Fire services are divided into several functional areas: structural firefighting, marine firefighting, aircraft firefighting, wildlands firefighting, fire prevention (inspection and investigation), fire training, and public education/injury prevention. In 2003, the fire department responded to 89 fire related calls in Homer City limits; 6 in Kachemak City limits; and 25 in KESA. Three (3) fire responses were to Anchor Point for mutual-aid. Structure fires accounted for 21% of all fire calls. Public assist calls, those for smoke, odor, alarms, etc. made up the vast majority of fire calls with 49% of the total. Wildland fires, notwithstanding the light fire season in 2003, represents 19% of the total Homer volume of fire related calls. Most wildland fires are “human caused”, resulting from unattended open burning, escaped burn piles or unattended and/or abandoned camp fires.
Firefighting operations, though critical to the fire service mission, are reactionary in nature. Department members trained to the Firefighter I level (our minimum membership level) are considered “interior attack” capable and are the backbone of our firefighting efforts. In addition to fighting structure fires, these members may also be called upon to combat shipboard fires, aircraft fires, vehicle fires, and wildland fires. While all firefighters receive basic instruction in these often quite different firefighting techniques, they do not have to maintain “certification” in any of these levels, other than being a “red card” wildlands firefighter in order to be “hired” by the Division of Forestry for fires lasting over 2 hours. Separate certifications for marine firefighter and aircraft rescue firefighter (ARFF), though desirable, are not required of our personnel. The Alaska Department of Transportation maintains specialized aircraft firefighting apparatus and ARFF certified personnel at the airport, though in reality HVFD personnel are routinely first on scene for aircraft incidents at the airport or surrounding area.
The department currently operates a 1984 E-One Engine (1,500 GPM pump with 750 gal. tank), a 1986 E-One Tanker/Pumper (1,500 GPM pump with 2,000 gal. tank), and a 1989 E-One Tanker/Pumper (1,500 GPM pump with a 2,000 tank) as its primary first out engines. In addition KESA owns and has available a new Class A Engine and a smaller quick-attack type engine equipped with a compressed air foam system (CAFS). These additional apparatus are staged in temporary quarters at about 13 mile East End Road pending construction of their station near McNeil Canyon School.
Fire prevention, which includes inspections of buildings and fire cause determination as principal functions, is an area in which the department currently is least active. As the State Fire Marshal’s Office is the State Building Official, they are responsible for building plan review and fire inspections; the fire department has limited responsibility and authority to conduct routine inspections and no authority to conduct building plan reviews. In contrast the fire department has an excellent fire investigation team made up of both paid and volunteer members. Several members are certified Fire Investigator I’s and the Assistant Chief just completed an 80-hour training program at the National Fire Academy and has applied for certification at the Fire Investigator II level. It is the fire department’s goal to investigate all fires to determine area of origin and probable cause.
The fire department is especially active in the public education area. Headed by the Departmental Services Coordinator, public education and injury prevention is available in all the public and private schools south of the Anchor Point Fire Service Area. The fire department provides the National Fire Protection Association’s (NFPA) “Learn Not To Burn” curricula in all the elementary schools, and the NFPA’s “Risk Watch” injury prevention material in several other schools upon request. In addition the department provides station tours and visits the local schools to present Exit Drills in the Home (EDITH) material and other age appropriate fire prevention and injury prevention education. Other classes and programs supported include: fire exiting usage, safety in the home, 1st Aid/Choking/CPR, Bike Helmet Program, Chimney Brush Loaner Program, and the Kids Don’t Float Program (developed in Homer). Printed materials are available at the fire station on a variety of topics including: fire prevention, disaster preparedness, smoke detectors/alarms, home sprinklering, carbon monoxide detection and poisoning prevention.
The fire department is certified by the State of Alaska Section of Community Health and EMS as an “Out of Hospital” Advanced Life Support ambulance service. Advanced life support is defined as an EMT-II, EMT-III or Mobile Intensive Care Paramedic (MICP) level of care available 24 hours per day, 365 days a year, as needed. Advanced life support procedures are authorized under the direction of an authorized Medical Director (a physician licensed to practice in the State of Alaska) and advanced providers work under either written directives called Standing Orders, or under direct communication with a physician. Medical Directors are required to provide routine feedback to the providers in the form of run reviews or critiques that promote adherence to the Standing Orders and compliance with the recognized standards of care for each patient. The fire department Medical Director, Dr. William Bell, is the first and only two-time recipient of the George H. Longenbaugh, MD Memorial Award. This award is bestowed upon outstanding medical directors by the Governor. The fire department provides both emergency and non-emergency services meaning that non-emergency transports of patients is authorized as long as the medical condition of the patient warrants ambulance transportation. All patients are transported to South Peninsula Hospital or a residence or assisted living type facility within the response area. Patients are not transported outside of the serviced area by ground ambulance. The department does transport patients to the local airport for transportation to Anchorage or Seattle by fixed wing air ambulance providers. A helipad exists at the hospital that allows most helicopters to land directly at the hospital saving patient transport time from the airport. Coast Guard or other military helicopters must land at the airport as the helipad is not large enough to enable these larger helicopters to land there. In 2003 the fire department responded to 391 EMS calls in Homer, 20 in Kachemak City and 38 in KESA.
There are currently two, Type I (truck chassis with modular patient care compartment), 4-wheel drive ambulances available at Station 1 (Medic 1, a 1997 and Medic 2, a 2001). In addition to the two full-time ambulances, Utility 2 (a 1995 Suburban) can function as a back-road ambulance and can accommodate a patient on a spine board in the rear for remote sites not accessible by the much heavier Type I’s. Utility 2 is equipped with a folding stretcher, oxygen, AED and trauma kit. KESA has another Type I (Medic 24, a 1977) ambulance available at about 12 mile East End Road, with plans to place another ambulance in service north of Homer when a station is constructed to cover the northern boundaries of their service area.
In order to facilitate rapid EMS intervention the department has a strong and supported First Responder Program. All EMS volunteers are equipped with two-way communications (except for probationary members) and are authorized to respond direct to safe emergency scenes to initiate care for the patient while the ambulance is en route from the nearest station. Any EMS member can receive a department supplied EMS First Responder Kit (First-Aid Kit) if desired. Selected providers scattered throughout the response area are equipped with “expanded” first responder kits that include oxygen, intravenous supplies, cardiac monitor/defibrillators and first-line cardiac medications.
The primary focus of EMS Injury Prevention is participation in the local Safe Kids chapter and related activities. The department participates in the Annual Safe Kids Fair, Health Fair, and coordinates (with assistance from the Harbor Office) the Kids Don’t Float life jacket loaner sites in the Small Boat Harbor. In addition the department and South Peninsula Hospital team up to promote child passenger safety by conducting at least 2 Car Seat Check-Up events at the fire station each year.
The Homer Volunteer Fire Department provides limited rescue services to residents and visitors to the Homer area. The focus of the department’s rescue capabilities are vehicle extrication and disentanglement of entrapped patients. Members of the fire and EMS services can elect to become trained in the various rescue functions including vehicle extrication technician. Other rescue functions the department offers are: confined space rescue and cold water/surface ice rescue. Rescue 1 responds to all motor vehicle crashes unless cancelled by an officer of the department. The fire department operates most rescue functions out of Rescue 1, a 1999 Saulsbury Rescue truck (crew cab commercial chassis with 16 foot non-walk-in stainless steel body). The truck is equipped with hydraulic and air powered rescue tools, 9,000 watt telescoping light tower, 20 KW PTO generator, 6 bottle breathing air cascade system and dual agent (Class B foam and Purple K dry powder) firefighting package used to suppress vehicle fires during extrication activities.
Rescue
functions are determined by an assessment of several factors including
but not
limited to: cost of equipment and training required maintaining
proficiency in
the rescue skill(s); responder risk and technical difficulty; historic
need and
community risk factors; and availability of personnel that desire the
training.
Some rescue functions such as Ice Rescue have a low historical need but
the
community risk is great, the training costs low, equipment maintenance
costs
minimal and responder risk (in our environment) low. In contrast,
high-angle
rope rescue has a moderate historical need (with 4 instances of need in
the
previous 10 years) but equipment costs are high, responder risk is
high,
training costs are high, and interest is low. A department this size
cannot
maintain the necessary proficiency (adherence to NFPA 1006, Standard
for Rescue Technician Professional
Qualifications, 2003 edition) without significant capital
expenditures to
support equipment procurement and training.
Homer is primarily rural with a central business district (CBD) made up of small commercial occupancies primarily of standard wood frame construction. There are a handful of 20,000 sq. ft or more buildings in Homer. With only two exceptions (South Peninsula Hospital and the Islands and Ocean Visitor Center) construction is standard wood frame and limited to two stories in height. Outside of the CBD, Homer is principally residential, one and two-family structures with several small apartment complexes and a free standing assisted living center complex.
The Homer Spit is primarily made up of marine industrial, marine commercial and commercial retail occupancies. The population on the Homer Spit is the most transient with the highest population densities during the summer tourist season. Many of the businesses on the Homer Spit close during the winter and re-open in April/May as the season begins. Commercial fishing and marine services dominate the year-round activities on the Homer Spit. A large fuel tank farm is located near the end of the Spit.
According to the Kenai Peninsula Borough 2004 Tax Rolls of the 4090 parcels within the City of Homer, 1925 are vacant, 1710 are residential in nature and 360 are used for commercial purposes. In addition 90 parcels are used for accessory buildings, 84 are listed as institutional, and 17 are industrial.
Kachemak City, adjacent to the City of Homer, is predominately residential with a few small businesses. All buildings are standard construction and limited to no more than two-stories in height. The 2004 Borough Tax Rolls show a total of 365 lots with 131 being vacant, 211 listed as residential, 7 commercial, 2 institutional, 12 accessory, and 2 listed as being farm/timber lots.
Kachemak Emergency
Services
Areas –
The most rural of the HVFD response areas, with few exceptions the area is mostly residential with standard construction. Most homes are located on serviceable roads (at least some times of the year) but there are remotely located residential structures that cannot be accessed except by snowmachine in the winter or by four-wheeler (ATV) other times of the year.
The Kenai Peninsula Borough Tax Roll for 2004 lists a total of 4,184 parcels. Of the listed lots, 2,468 are vacant, 1,531 are residential, 18 are listed as commercial, 13 institutional, and 3 as being industrial. KESA also lists 67 accessory lots and 84 as being used for timber/farm uses.
Population Densities:
Density on the Southern Kenai Peninsula
(Census areas)
|
Area |
Homer |
Kachemak City |
KESA |
Diamond
Ridge |
Fritz Creek |
Fox River |
|
Population
(2003) |
4893 |
473 |
3389 |
1086 |
1740 |
563 |
|
|
|
|
|
|
|
|
|
Household
size |
2.4 |
2.52 |
|
2.6 |
2.43 |
5.05 |
|
Land area |
15.2 |
1.16 |
224.3 |
43.28 |
54.4 |
126.6 |
|
People per
sq mile |
322 |
268 |
15.1 |
25 |
29.5 |
4.9 |
|
Houses per
sq mile |
147.8 |
136 |
6.7 |
11.07 |
15.7 |
1.9 |
2003 Population data provided by the Kenai Peninsula Borough. Land area and population per square mile from KPB 2002 Situations and Prospects, and modified to reflect the results of annexation.
Compiled
for Robert Painter & the Strategic Planning Committee by Julie
Engebretsen,
City of Homer Planning & Zoning Planning Technician, April 2004.
Property
Risk Assessment: Methodology
One method of determining the risk faced by a local fire department is that of calculating the number of structures that require protection, the types of structures to be protected (construction type, sprinklered versus unsprinklered) and whether the risk of fire is elevated, normal, or remote. The Insurance Service Office (ISO) “. . . the premier source of information, products, and services related to property and liability risk” Guide for Determination of Needed Fire Flow Edition 2001 was utilized for this project. The ISO risk valuation formula for needed fire flow takes several factors into consideration: the type of construction, the type of occupancy, and exposures (other buildings in close proximity and their construction types).
Types of Construction – assigns numerical values to various types of construction
1. Class 1 (wood frame construction)
a. Buildings with exterior walls, floors, and roof of combustible construction, or buildings with exterior walls of noncombustible or slow-burning construction, with combustible floors and roof.
2. Class 2 (joisted-masonry construction)
a. Buildings with exterior walls of fire-resistive construction (not less than one hour), or of masonry, and with combustible floors and roof.
3. Class 3 (noncombustible construction)
a. Buildings with exterior walls, floors, and roof of noncombustible or slow-burning materials supported by noncombustible or slow-burning supports (including noncombustible or slow-burning roof decks on noncombustible or slow-burning supports, regardless of the type of insulation on the roof surface).
4. Class 4 (masonry noncombustible construction)
a. Buildings with exterior walls of fire-resistive construction (not less than one hour), or of masonry, not less than 4” in thickness and with noncombustible or slow-burning floors and roof (including noncombustible or slow-burning roof decks on noncombustible or slow-burning supports, regardless of the type of insulation on the roof surface).
5 Class 5 (modified fire-resistive construction)
a. Buildings with exterior walls, floors, and roof constructed of approved masonry materials, with a fire-resistance rating of less than two hours, but not less than one hour.
5. Class 6 (fire-resistive construction)
a. Buildings constructed of any combination of the following materials:
i. Exterior walls or exterior structural frame:
1. Solid masonry, including reinforced concrete, not less than 4” thick
2. Hollow masonry not less than 12” in thickness
3. Hollow masonry less than 12”, but not less than 8” in thickness, with a listed fire-resistance rating of not less than two hours
4. Assemblies with a fire-resistance rating of not less than two hours
ii. Floors and roof:
1. Monolithic floors and roof of reinforced concrete with slabs not less than 4” in thickness
2. Construction known as “joist systems” (or pan-type construction) with slabs supported by concrete joists spaced not more than 36” on centers with a slab thickness not less than 2”
iii. Structural metal supports:
1. Horizontal and vertical load-bearing protected metal supports (including prestressed concrete units) with a fire-resistance rating of not less than two hours
Combustible: wood or other materials that will ignite and burn when subjected to fire, including materials with a listed flame-spread rating greater than 25. Also included area assemblies or combinations of combustible materials with other materials, such as the following:
1. Metal walls or floors sheathed on either interior or exterior surfaces (with or without air space) with wood or other combustible materials (flame spread rating over 25).
2. Metal floors or roofs with combustible insulation or other combustible ceiling material attached to the underside of the floor or interior surface of the roof deck, or within 18” of the horizontal supports.
3. Combustible wall materials with an exterior surface of brick, stone, or other masonry materials (commonly known as “masonry veneer”).
4. Noncombustible wall or roof construction on a skeleton of wood frame (commonly known as “wood-iron clad”).
5. Combustible wall or roof construction on a noncombustible or slow-burning frame.
6. Composite assemblies of noncombustible materials with combustible materials, such as a combustible core between two noncombustible panels, or a noncombustible panel with a combustible insulation material (flame-spread rating over 25).
7. Composite assemblies of noncombustible or slow-burning materials combined with foamed plastic materials (with any flame-spread rating), unless the foamed plastic materials qualify as slow-burning.
8. Combustible assemblies which are listed as having not less than a one-hour rating.
Fire Resistive: Noncombustible materials or assemblies which have a fire-resistive rating of not less than one hour.
Masonry: Adobe, brick, cement, concrete, gypsum blocks, hollow concrete blocks, stone, tile and similar materials with a minimum thickness of 4”.
Noncombustible: Materials, no part of which will ignite and burn when subjected to fire such as aluminum, asbestos board, glass, gypsum board, plaster, slate, steel, and similar materials. Also included are:
1. Fire-resistive and protected-metal assemblies with a fire-resistance rating of less than one hour.
2. Materials or composite materials with a listed surface-flame-spread rating of 0 and of such composition that surfaces that would be exposed by cutting through the material in any way would not have a listed flame-spread rating greater than 0.
3. Masonry walls less than 4” thick, which are not part of combustible walls (masonry veneer).
Protected Metal: Metal which is protected by materials so that the resulting assembly has a fire-resistance rating of not less than one hour.
Slow-burning: Materials with a listed flame-spread rating greater than 0 but not greater than 25; except, foamed plastic materials shall be rated as slow-burning if such materials or coverings meet specifications.
Unprotected metal: Metal with no fire-resistive protection, or with a fire-resistance rating of less than one hour.
NOTE: In buildings constructed as defined in two or more classes, more than two-thrids of the building’s wall, roof, and floor area must be constructed to the higher classification to be considered rated at that classification, otherwise the lesser classification will stand.
1. C-1 (Noncombustible)
a. Merchandise or materials, including furniture, stock, or equipment, which in permissible quantities do not in themselves constitute an active fuel for the spread of fire. (examples include buildings storing asbestos, clay, glass, marble, stone, or metal products and some metalworking occupancies)
2. C-2 (Limited-combustible)
a. Merchandise or materials, including furniture, stock, or equipment, of low combustibility, with limited concentrations or combustible materials. (examples include banks, barber shops, beauty shops, clubs, habitational occupancies, hospitals, and offices.)
3. C-3 (Combustible)
a. Merchandise or materials, including furniture, stock, or equipment, of moderate combustibility. (Examples include food markets, most wholesale and retail occupancies, etc.)
4. C-4 (Free-burning)
a. Merchandise or materials, including furniture, stock, or equipment, which burn freely, constituting an active fuel. (Examples include those buildings used to store cotton bales, furniture stock, and wood products.)
5. C-5 (Rapid-burning or flash-burning)
a. Merchandise or materials, including furniture, stock, or equipment, which either:
i. Burn with great intensity
ii. Spontaneously ignite and are difficult to extinguish
iii. Give off flammable or explosive vapors at ordinary temperatures
iv. As a result of an industrial processing, produce large quantities of dust or other finely divided debris subject to flash fire or explosion.
(Examples include ammunition, excelsior, explosives, mattress manufacturing, matches, and upholsterers.)
Exposure and
Communication Factors:
Several factors are included in the determination of the Exposure Factor. The length and height of the facing wall, the type of construction of the facing wall, and the distance to the facing wall of both the subject building and the exposure building are all considerations.
ISO evaluates sprinklered buildings under the Specific Commercial Property Evaluation Schedule (SCOPES). For ISO to rate the property as a sprinklered property, it must score at least 10 points (out of the initial 100 points available) in ISO’s sprinkler grading formula.
Using the ISO criteria for determining risk based on occupancy types, the majority of occupancies in Homer fall into either the C-2 (Limited-combustible) or C-3 (Combustible) categories. Likewise the vast majority of construction types would be classified as Frame (Construction Class 1). Effective area considerations find that most buildings in Homer are less than 10,000 sq ft. with exceptions, notably those listed below.
1. South Peninsula Hospital- fire-resistive construction; fully sprinklered, with full fire/smoke detection.
2. Homer High School-modified fire-resistive construction; fully sprinklered, with full fire/smoke detection.
3. Islands and Oceans Visitor Center-modified fire-resistive construction; fully sprinklered with fire/smoke detection.
4. Kachemak Mall-Joisted-masonry construction; fully sprinklered.
5. Lakeside Mall-frame construction; fully sprinklered.
6. Spenard Builder Supply-frame construction.
7. Kachemak Gear Shed-frame construction, fully sprinklered.
8. West Homer Elementary-noncombustible construction; fully sprinklered with full fire/smoke detection.
9. Paul Banks Elementary-noncombustible construction.
10. Save-U-More-frame construction; with full smoke detection, local alarm.
11. Land’s End Resort-frame construction; fully sprinklered, local alarm system.
12. Friendship Terrace Assisted Living-frame construction, fully sprinklered, with fire/smoke detection alarm.
13. Best Western-frame construction; fully sprinklered, local alarm system.
14. Beluga Lake Lodge-frame construction, fully sprinklered with local alarm.
15. Wind Jammer Suites-frame construction.
All of the listed structures have a needed fire flow of over 3,500 GPM, have high or hazardous fuel loads, or pose an evacuation hazard of residents. These structures are at maximum risk for fire department activities. Not listed but at a significant risk would be those commercial occupancies of between 3,000 sq. ft. to 10,000 sq. ft. based on the lack of routine fire inspections conducted by the State Fire Marshal’s Office (the local building official) and preplanning for fire response. Structures in the category of routine risk would be the majority of residential structures including: one and two family homes, triplexes, and small office type or home based businesses less than 3,000 sq. ft. in area with normal combustible fire loads.
Communication factors are relatively low except for the “boardwalk” occupancies on the Homer Spit and the two malls (malls and boardwalks are, for fire planning purposes, considered a single large occupancy). For planning purposes the small frame structures located close together or immediately adjacent to one another are considered to be a single structure. Maintaining minimum setbacks and clearances from adjacent properties is the best measure to deal with minimizing the risk of fire spreading to adjacent properties. Current fire codes require fire resistive construction if minimal separations cannot be maintained.
Non-Structural Risk Assessment-
The number of EMS related responses accounts for 75-80% of all fire department calls (in 2003 EMS made up 79% of fire department activity). There has historically been a steady trend toward more responses each year that can be directly attributed to the growing population, the aging of the community in general, the lack of adequate long-term facilities adjacent to the hospital, and increasing numbers of home-based assisted living facilities located in the area. An estimated growth of calls 3%-5% annually would not be excessive. The incidence of trauma calls increases each summer with the influx of visitors and increased outdoor activities. Limitations of the highway system (narrow roads, no emergency lanes, passing lanes, lack of adequate guard rails, etc.) add to the motor crash injury rates on the lower Kenai Peninsula.
In addition to the “routine” EMS responses, the nature of tourism in Alaska places visitors at increased risk of injury when they attempt recreational pursuits they are ill equipped or trained to handle. Unpredictable weather, changing water conditions, lack of preparation or experience all contribute to trauma risk. Finally, EMS access to remote sites is often hampered by weather, access to suitable means of transportation (boat, plane, or helicopter) requiring the fire department’s reliance on outside resources to access and evacuate the ill or injured (USGC, or National Guard).
The Homer Volunteer Fire Department, like all Kenai Peninsula fire departments, has limited capability to respond to and mitigate a hazmat incident. The nearest reasonably equipped public safety hazmat response team is located in Anchorage (Anchorage Fire Department) and the potential for their response to Homer is slight. Currently the fire department limits its response to hazmat calls to identifying the hazard, evacuation of affected persons and gross decontamination of victims, and containment of the agent if possible. Upon notification of a spill or release the fire department notifies the Alaska Department of Environmental Conservation (ADEC) for direction and information. Following the initial response it is up to the property owner to mitigate the damage and to clean up the release under the supervision of ADEC.
In general, hazmat risk is relatively low with the exception of hydrocarbon spills/releases. With no rail service, all potentially hazardous materials are transported by sea or truck to Homer. Predominate hazardous materials transported or stored in Homer are: hydrocarbon fuels (diesel, gasoline, aviation fuel, jet fuel, and kerosene), ammonia used in cold storage and the production of ice, and chlorine used in water treatment.
While there are other hazardous materials stored in Homer and the surrounding areas the quantities typically stored and/or used are usually below reportable quantities. Though the risk of exposure during emergency operations remains a concern, the fire department’s respiratory protection program and policies regarding the use of self-contained breathing apparatus and the limited protection afforded by the standard personal protective apparel worn by the structural firefighter affords a level “D” (personal protective equipment for hazardous materials responses are classified as Levels A through D. Level A, the highest level of protection, is a fully encapsulating suit that is vapor proof. Level D, the lowest level of protection, is essentially the normal structural firefighting protective clothing worn to all fires) of protection from secondary exposure to chemicals and products of combustion. Responses to known hazmat incidents warrant a higher level of precaution and our capabilities are extremely limited. The department also maintains a limited inventory of Class C level suits (splash resistant coveralls with Self Contained Breathing Apparatus) for personnel/patient decontamination and absorbent pads for fuel spills.
The greatest need, and risk, for the necessity of rescue capabilities stems from ground transportation. Due to the problems previously covered, Homer has a large risk of serious vehicle crashes requiring various levels of rescue from simply gaining access to patients to complicated and time consuming heavy extrication with hydraulic tools. Other rescue threats or risks based on assessment of historic or perceived need are: Surface Water/Ice Rescue, Confined Space Rescue, High-Angle (rope) Rescue, and Trench Rescue.
As Homer is a “maritime” community, with the addition of several fresh water bodies (Bridge Creek Reservoir, Beluga Lake, Eagle Lake, Lampert Lake, etc.), the risk of having someone in the water needing rescue is moderate (though in reality most persons have historically been able to “self-rescue”). Beluga Lake is an extremely busy body of water with sea planes during the tourist season and ice skaters, skiers, etc. during freeze up conditions. Over the last few years Beluga Lake has been the scene of several aircraft accidents that had the potential for water rescue. A fully loaded air taxi that flips in the lake or Bay could result in several serious injuries/fatalities requiring personnel trained in water rescue, wearing cold water exposure suits, operating out of the DOT rescue boat (a small rigid-hulled inflatable with 35 horsepower outboard). The City of Homer does not have a Fire/Rescue Boat and must rely on AST, or other agencies to provide that service. The Port of Homer does have a “work boat” that is capable of flowing water onto a fire via a hydraulic pump, but its usefulness outside the confines of the small boat harbor would be limited.
The initial costs of equipping the Ice Rescue team have already been borne. The recurring costs are minimal as training can be conducted in-house and annual inspections of the ice rescue suits are relatively inexpensive. Replacement of damaged suits or those not passing inspection would be about $400 per suit.
Historically there have been injuries and fatalities due to trench collapse. Trench Rescue is a sub-specialty rescue utilizing a wide range of training including: rope rescue, confined space rescue, and construction of shoring from accessible materials. Only a handful of members have ever been adequately trained in trench rescue techniques and the department would be hard pressed to assemble enough experienced members at this time to perform a timely and effective rescue. As soil has an average weight of 110 lbs per cubic foot the probability of getting to anyone trapped at the bottom of a trench before suffocation/asphyxiation is remote. Trench rescue is centered around limiting the potential for additional victims by limiting access to the area, establishing the location of victim(s) and systematically digging, shoring, digging, shoring, until the victim is located, their viability determined and then removal of the victim/patient from the trench. Trench rescue has a moderate probability of occurrence but a high degree of risk for the responder and a high need for recurring training to remain proficient.
Depending on the sophistication of the equipment trench rescue team costs could range from an initial outlay of $5,000 up to $30,000 for hydraulic shores in the quantity needed to affect a rescue of a single person. Training could be conducted in-house but there would be costs to create a safe and effective training site.
Rope or high-angle rescue is the process of accessing someone who has become injured or trapped on a slope not suitable to be walked with normal assistance. Rope rescue is a technical specialty requiring a high initial outlay of capital cost to properly equip a team, costly training by rope rescue technical specialist, and frequent and recurring training. There is moderate need due to the bluffs west of Homer, canyons along the bluff, and recreational ice and rope climbing across the Bay. In the previous 10 years there have been only a few requests for this type of specialized training: one fatal fall from the bluff and two calls for persons stranded on the bluffs when they either started down and got stranded or started up and got stranded. In 1998 all of the outdated and non-compliant rope rescue equipment was taken out of service and donated to local climbers as it no longer met NFPA standards.
It is estimated that it would take a capital outlay of $20,000 to properly equip and train the number of rescuers necessary to maintain a “ready” team of 5-6 rescuers and a recurring annual cost of $5,000 to sponsor training opportunities for team members to remain proficient.
The obvious risk of wildfire on the Kenai Peninsula and Homer cannot be overstated. Though mitigation efforts have been ongoing for at least 10 years on the South Peninsula with some levels of success the potential for wildfire spreading to adjacent structures, or a structure fire spreading to adjacent wildlands remains a serious risk for the entire community. As fire brands have been documented in the Homer area of spreading fire up to ½ mile in windy conditions, few areas of Homer (except for the Spit) are not in danger from being in close proximity to a wildland source of fire (commonly termed the “interface” or I-zone).
Since Homer adopted open burning ordinances that require year-round open burning permits, and allow the Fire Chief to set open burning requirements for the community, there has not be a large wildfire within the City of Homer. The State of Alaska, Division of Forestry, has a statutory burn season of between May 1st and September 31st each year. During this burn season (which can be altered, extended, or closed by the Commissioner of the Department of Natural Resources) burn permits are required throughout the area. During high-risk fire danger periods open burning permits can be temporarily suspended by either the fire department or the Division of Forestry. This strategy has been very useful the previous three years and has, so far, practically eliminated the risk of escaped burn piles as the leading cause of wildland fires.
Currently the fire department maintains one “brush” truck (F350 Crew Cab, 4-wheel-drive pickup, with 300 gallon water tank, portable pump and forestry tools and hose) year round and KESA has two federal surplus brush trucks that are placed into service each burn season. The Division of Forestry typically has one or two small engines available on the South Peninsula operating out of a seasonal office located in Homer. These small engines, with typical crews of one or two trained wildland firefighters, patrol from Ninilchik to the Russian Villages at the end of East End Road.
Emergency Management Activities
The Fire Chief is given the role of Director of Emergency Services under the current job description of the position. This role is one of emergency planner and disaster services coordinator. There are several potential risks which fall under the auspices of “emergency management” including but not limited to: tsunami, wildfire, earthquake, flood, landslide, volcanic eruption/ash fall, severe storms, and coastal erosion. The City of Homer and the Kenai Peninsula are currently completing the All-Hazard Mitigation Plan as outlined by FEMA. Per this plan, Homer is focusing on mitigation strategies and goals for flooding, earthquake, wildfire and volcanic eruption. Homer has also been awarded Storm Ready, and Tsunami Ready Community status based on its ability to receive and disseminate warning and watch information to the public.
The Fire Chief (with the Assistant as an Alternate Member) serves on the Local Emergency Planning Committee (LEPC) representing the City of Homer on the Borough-wide body. In addition the fire department is active with a local group made up of public health, hospital, City of Homer, AST, Police, etc. that meet regularly to share information and discuss the various roles and responsibilities during disasters and other large scale emergencies.
Standards, Goals, and
Objectives
There are no state standards for operation of a fire department. Currently departments must only submit a short application outlining what services the department is willing to provide, list its membership and agree to submit regular reports to the State Fire Marshal’s Office (Alaska/National Fire Incident Reporting System). There are no minimum training requirements for “registered” fire departments, nor any response requirements listed in state regulations or statutes. On the other hand, the National Fire Protection Association (NFPA) has numerous standards with which to use for various fire department activities. These standards, though not adopted by the State of Alaska, may be used to benchmark a department’s performance and activities in the absence of State adopted standards or regulation according to the Department of Labor (OSHA). It has always been the intent of the fire department to comply with at least the intent of applicable NFPA standards, especially those regarding training, safety, health, and operations. The fire department, like all employers in the State of Alaska, is subject to OSHA regulations administered by the State Department of Labor.
Of particular importance to the fire department are: NFPA 1500-Fire Department Occupational Safety and Health Program; NFPA 1001-Fire Fighter Professional Qualifications; NFPA 1002-Fire Apparatus Driver/Operator Professional Qualifications; NFPA 1006-Rescue Technician Professional Qualifications; NFPA 1403-Live Fire Training Evolutions; NFPA 1451-Fire Service Vehicle Operations Training Program; NFPA 1670-Operations and Training for Technical Rescue Incidents; NFPA 1720-Volunteer Fire Departments, Organization and Deployment; NFPA 1851-Structural Fire Fighting Protective Ensembles; NFPA1852-Open-Circuit Self-Contained Breathing Apparatus; NFPA 1901-Automotive Fire Apparatus; NFPA 1911-Service Tests of Fire Pump Systems on Fire Apparatus; NFPA 1915-Fire Apparatus Preventive Maintenance; NFPA 1932-Care, Use, and Service Testing of Fire Hose Including Connectors and Nozzles; NFPA 1971-Protective Ensemble for Structural Fire Fighting; NFPA 1977-Protective Clothing and Equipment for Wildland Fire Fighting; NFPA 1981-Open-Circuit Self-Contained Breathing Apparatus for Fire and Emergency Services; NFPA 1999-Protective Clothing for Medical Emergency Operations; and others.
No Fire Chief ever wants to place the personnel under his charge into harm’s way. Obviously fire fighting is inherently a dangerous activity. It is the goal of the fire department to mitigate risk so that no fire fighter ever gets an injury while training or responding to a fire department activity. To achieve this goal, the fire department has a zero-tolerance policy regarding the use of seatbelts in apparatus with the exception of while actively providing patient care in the back of a moving ambulance that prevents the wearing of a seatbelt. All fire fighters are provided NFPA compliant protective ensembles and are required to wear all gear provided on fire scenes. EMS providers are likewise provided with full protective ensembles to wear during high-risk incidents and other personal protective equipment needed to prevent an exposure to bloodborne or airborne pathogens.
All members are thoroughly trained to NFPA or State Standards prior to assignment on emergency incidents and operate under the Incident Command System and the fire department’s accountability system during fire calls and other large scale incidents. Firefighters are required to pass an annual physical meeting NFPA standard and must pass a physical abilities test when they recertify biannually. Currently members are offered no-cost Hepatitis A and B vaccinations (per OSHA 1910.1030), tetanus, diphtheria and flu and pneumonia vaccinations on request. Annual testing of EMS providers for TB is coordinated by the Medical Director. Members on leave for any medical condition or injury must provide a physicians release prior to assuming their duties again.
The Homer Volunteer Fire Department was the first fire department in the State of Alaska to implement a Critical Incident Stress Management plan and train a CISD team. The department maintains a cadre of trained members (emergency service providers and mental health professionals) to provide that service when requested by our personnel or other nearby agencies.
Central Business District (Downtown)- The centrally located station is at optimal location to impact fire protection in the CBD area. Like all volunteer/combination departments the number of available responders at any given time dictates the level of fire suppression activities the department is able to provide. Traditionally we have used what is termed the “rule of thirds” for estimating available responders: 1/3 immediately available, 1/3 available within an hour, and 1/3 not available at all. With a current roster of 21 firefighters (both paid and volunteer) about 7 would be immediately responding to a fire page with an additional 7 responding within another hour giving us a total of 14 firefighters for staffing a working structure fire. Tactically, this number is extremely low and does not have sufficient depth for optimal fire suppression activities. With two members on the primary line, two members on at least one back-up line, IC, and engineer, the initial attack crew cannot maintain operations beyond the initial knockdown of the fire without additional manpower showing up on scene. Since crews have limited durability (1 or 2 air changes) before they have to “rehab” without risking their ability to function at full capacity we have to plan for additional responders arriving on scene within 30 minutes (whether from local resources or mutual aid from Anchor Point). Currently the department could not adequately respond to and mitigate two simultaneous structure fires.
Homer Spit – Most of the 4.5 mile long Homer Spit is within 5 miles of the central station. The five mile mark (measured from the fire station) is about at Freight Dock Road. Unfortunately the majority of fire risk (and EMS for that matter) lies beyond that distance. Based on travel distances alone, it will take between 8-10 minutes before an apparatus can reach certain portions of the Spit. As department guidelines require a minimum crew of three on an engine or pumper/tanker response that time could be somewhat altered depending on time of day and paid staffing level (usually 4 paid personnel on duty during the week, during business hours). Response could be immediate (with paid staff) or delayed for 5-10 minutes as volunteers travel to the fire station to man the apparatus. The major risks for this area include: harbor (vessel fires), Land’s End Resort and Condos, boardwalks, fuel tank farm, and other commercial structures. With the exception of Land’s End Resort (not condos), the vast majority of structures are not protected by automatic fire sprinklers, are built with frame construction, and have a high risk of communicated fire. All areas of the Spit are on the hydrant system and additional fire pumps and water storage on the Spit provide for adequate fire flows and distribution.
Within 5 miles of Station 1 (Hydrant System) – Similar to the Homer Spit other areas within the city limits have a similar risk and benefit from the proximity of a well designed and maintained water hydrant system. Fire hydrant spacing and flows are optimal for fire protection, though not all areas have city water supplied to them as yet. Off hydrant areas will be discussed later in this document, both inside and outside city limits. Most of the structures are frame with the previously noted exceptions and predominately unsprinklered.
Within 5 miles of Station 1 (off-hydrant system) – The lack of fire hydrants is a serious detriment to fire fighting if the fire is beyond the incipient phase (early growth) and is confined to a room and contents. Fortunately the fire department can almost simultaneously respond two, 2,000 gallon pumper tankers and establish a water shuttle operation to provide water to off-hydrant locations. While tanker shuttles do offer a way to maintain needed fire flows (for a typical single family residence) they are manpower intensive and require additional fire apparatus to establish (usually requiring a pumper flowing water on the fire, and two tanker/pumpers providing a continuous water shuttle between the fire location and water source). In addition, local commercial water haulers have offered their services in emergencies and we have obtained the required fittings so that they can pump directly into our engines when, and if, necessary. Depending on the time of day and season anywhere between two to four trucks could be available to provide water in an emergency.
Beyond 5 miles of Station 1 – The principal risk associated with fires in these areas is travel distance and water sources. KESA has installed two 10,000 gallon static water sources (one on Diamond Ridge near the Sterling Highway and another on Skyline Drive near Olson Mountain Road) and HVFD has an additional 10,000 gallons of water in an above ground storage bladder located about 11 mile East End Road that is generally available during the Wildlands season. With the exception of McNeil Canyon School there are no large structures, commercial or residential, beyond 5 miles from Station 1. As KESA constructs additional stations in the service area (one planned for 2004 near McNeil Canyon and another not yet planned for the north side of the service area), and acquires additional fire/EMS apparatus to provide services to the outlying areas it is anticipated that intervention times to those areas will decrease. The major obstacle in this theory is the recruitment and training of members that live in those respective areas that would be able to respond to and from those outlying stations.
Remote or “Frontier” areas – These areas would be those not accessible on an improved road, even if a seasonal road, capable of handling heavy fire apparatus. The fire department believes that their must be a high degree of personal responsibility for those that choose to build homes and live in areas that are either inaccessible or have limited accessibility. The fire department has no assumptions that it will or should be required to provide fire and EMS services to areas that it cannot access with available equipment. The fire department will strive to provide the best service it can with what limited resources it can assemble for remote operations. Costs of providing those services may be billed to the responsible party(s) as necessary if extraordinary means are required for access (boat, helicopter, tracked vehicle, etc.)
Initial Attack (structure fire, hydrant system) – Currently the fire department utilizes Tanker 2 as its first out apparatus for structure fires (commercial or residential) on the hydrant system. In addition, the typical structural assignment would include: Engine 4, Utility 3, and Medic 1 (for EMS standby, Rehab, airpack fill station). Additional resources would be called for by the IC as needed. A standard manpower response would be: Tanker with 3-5, Engine with 3-5, Utility 3 with 1-2, and Medic unit with 2-4 personnel putting an average of 9 personnel on scene with the initial assignment. Additional responders may arrive on scene by personal vehicle or by utility from the station. For large, protracted, or simultaneous fires, additional personnel and equipment may be requested from Anchor Point Volunteer Fire Department, about 16 miles from Homer. At best, these resources are 30 minutes away from Homer.
Initial Attack (wildlands, structures threatened) – The complexities of potential I-Zone fires calls for a two-pronged approach. Sending a brush truck(s) along with a tanker/pumper to provide additional water and structural protection is the current practice. Responders wear either wildland PPE and bring their structural PPE or visa versa. As a cooperator with the Division of Forestry, HVFD (during the fire season) has available those additional resources offered by the State including: helitack, Smoke Jumpers, Air Tankers with Retardant, and wildland firefighters. All fires lasting more than 2 hours in duration become “billable” fires in that HVFD can bill the Division of Forestry (DOF) for personnel and apparatus until those resources are released and made ready to respond again.
Initial Attack (Wildlands, no structures threatened) – Based on available dispatch information (obtained through the reporting party) small or isolated fires result in the utilization of a single resource (brush truck), with additional responders reporting to the station if needed with additional apparatus. Most often these fires are abandoned camp fires, or investigations of “unattended” burn piles that have not escaped or appear to be non-threatening of rapid spread.
Primary Response (EMS) – Most routine EMS calls are handled by the on-duty shift personnel after business hours and ESS member on duty at the station. During the daytime business hours most routine EMS calls are handled by the paid staff. One ALS medic unit responds to all calls unless dispatch information determines the need for additional transport units and/or personnel. For multiple casualty incidents (more than 2 lay-down patients) the second ambulance from the central station is allocated to the call. Additional ambulances, if needed, are available from KESA and Anchor Point Volunteer Fire Department. Remote EMS calls are accessed by charter helicopter at the patient’s expense, or via AST helicopter if the call qualifies as a “search and rescue” and is authorized by the local trooper detachment. If the patient is water bound on a vessel in Kachemak Bay they are either accessed by available boat (AST, State Parks, charter, etc.) or the patient is evacuated by the USCG via helicopter and transported to the nearest medical facility. As a last resort the Alaska Air National Guard has trained Pararescue jumpers that can access most areas of the state via helicopter or jumper and provide medical care and evacuation from remote sites.
Primary Response (Rescue) – Rescue 1 is dispatched to all rescue calls that may require use of its on-board systems including: pneumatic, hydraulic or electric rescue tools. A medic unit is also dispatched to care for the injured person and to transport the patient to the hospital following disentanglement. Rescue 1 is the primary unit for all motor vehicle crashes, calls for entrapment, confined space responses and some hazmat calls.
Surface water/ice rescue response includes a medic unit (first used as a changing room for responders to don their PPE and then to treat and transport the patient(s) to the hospital). Additional resources are requested as needed by the IC.
Mutual Aid Agreements – Mutual aid agreements exist between Homer Volunteer Fire Department and Anchor Point Volunteer Fire Department (our nearest available resource). Under terms of the operating contract with KESA a mutual aid agreement is not necessary as the department’s resources (HVFD and KESA) are considered as being one entity. Other mutual aid agreements (Homer providing its resources) exist with several other area agencies including: State Parks, Bradley Lake Hydroelectric Facility, Port Graham, Nanwalek, and Seldovia. In addition the Kenai Peninsula Fire Chiefs Association is attempting to get a Borough-wide mutual aid agreement adopted by all fire departments on the Peninsula that would expedite the delivery of mutual aid resources from across the Peninsula for complex or protracted incidents. Currently, with the exception of adjacent departmental mutual aid agreements, fire departments that are Borough Service Areas are prohibited from sending resources outside of their service area without the permission of the Borough Mayor or his designee.
Setting Levels of Service
There are multiple factors that determine the level of service a fire department provides to the community: funding source(s), historical need, mandates from governmental or quasi-governmental bodies (National, State, Borough and Local), expectations of the community, personnel availability and membership expectations.
The National Fire Protection Association (NFPA) establishes nationally accepted standards based on a consensus process compliant with ANSI Standards Process. In 2001 the Technical Committee on Fire and Emergency Service Organization and Deployment-Volunteer, adopted NFPA 1720, Standard for the Organization and Deployment of Fire Suppression Operations, Emergency Medical Operations, and Special Operations to the Public by Volunteer Fire Departments (2001 Edition). “This standard contains minimum requirements relating to the organization and deployment of fire suppression operations, emergency medical operations, and special operations to the public by substantially all volunteer fire departments” (1.1* Scope). As the Homer Volunteer Fire Department is made up of only 6 paid members, with currently 35 volunteer members, the 1720 Standard would be applicable to HVFD. With only one exception, this standard does not stipulate compliance with suggested response time criteria similar to that found in the mirror standard for career (paid) fire departments. A complete review of NFPA 1720 is included in the Appendix to this document for review.
Fire Department Response Sequence –
1. Receipt of the alarm (via 911, radio report, or non-emergency number) into dispatch.
2. Dispatch time – the time required to gather sufficient information in which to page-out the fire department personnel.
3. Turn-out time – the time required by the crews to assemble, don appropriate PPE and leave the station.
4. Response time – the time required to travel from the station to the scene of the emergency.
5. Access time – the time needed to actually access the emergency (patient intervention time).
6. Set-up time – the time taken to position apparatus, deploy crews, set-up to intervene in the situation.
Of the six items listed most fire departments can, at best, address three of the items in the response sequence. Efficient use of dispatch time and process can expedite call taking and the subsequent dispatch of resources to the scene of the emergency. Having multiple dispatchers on duty allows for the most efficient use of time as one dispatcher can act as call-taker gathering pertinent information while the second dispatcher pages crews and operates the radio. Initial dispatch information need only contain the required resource (fire page, or EMS page) to begin the process of crews responding to the station. As additional information is obtained from the caller, that information can be passed on to responding personnel. Responders nearest the scene can then respond direct, while additional members respond to the station to respond on the appropriate apparatus.
Training to nationally accepted standards provides for the efficient transition of responders from their arrival at the station in civilian attire to that of a firefighter or EMS provider ready to respond on the apparatus. Firefighters train to a standard of donning their turnout gear within 60 seconds. Departmental guidelines, due to the potential for accidents, require that complete turnout gear be donned prior to mounting the apparatus to respond. Respiratory protection is either donned enroute to the scene from seat mounted brackets, or can be quickly donned upon arrival at the scene (again the national standard is 60 seconds).
Lastly, set-up time can be shortened simply by standardizing procedures and practicing tasks routinely required on fire grounds: positive pressure ventilation, hose lays, hydrant hits, laddering, and forcible entry practices.
Other response sequence factors such as response time can only be adequately addressed by the acquisition of additional stations, additional apparatus, and additional personnel to man them. As the primary consideration of response time is travel distance and speed (speed is governed by road condition and state law) placing additional equipped stations throughout a fire department’s response area is the only method available. Most rural, small fire departments don’t have the funding needed or manpower available to place stations such that travel distance to any one location could be minimized.
Lastly, access time is totally scene dependent. Large structures, remote locations without vehicle access, and other buildings with limited access often require substantial amounts of time to reach the patient’s side, or the actual site of the emergency. Homer is benefited by the fact that it is not an area filled with large apartment complexes with isolated points of ingress, multistory buildings, or large covered malls. The rural nature of the community though does often affect response time as many homes are located in areas with limited ingress points, or require substantial hose lays or water shuttles to provide fire flows. The fire department is working with the Planning Department to encourage new developments to have at least two separate and distinct points of ingress and egress for emergency response and evacuation purposes (especially in the interface zone areas).
HVFD Response Goals:
Distribution
Fire Incidents – HVFD will respond its first out fire apparatus within eight (8) minutes from page with a minimum crew, including the engineer, 90% of the time. Upon assembling the necessary resources at the emergency scene, HVFD will be able to initiate an attack within two (2) minutes 90% of the time.
EMS Incidents – HVFD will respond an ALS level ambulance to a life threatening medical emergency call with an ALS provider within two (2) minutes from receipt of the page, 90% of the time. First Responder (volunteer) personnel (BLS and ALS) will respond to medical emergency within two (2) minutes from receipt of the page, 90% of the time. NOTE: First Responder personnel are those members that respond direct to the scene of the emergency from the current location when paged.
Special Operations – HVFD will respond appropriate resources for special operational calls within ten(10) minutes from receipt of the page, 90% of the time.
Concentration
Fire Incidents – HVFD will provide an initial effective response force for calls within 4 miles of HVFD Station 1 within 10 minutes from receipt of a fire page, 90% of the time. The initial effective response force is made up of first responders (responding direct with PPE) and those responding on apparatus from HVFD Station 1 and shall include sufficient personnel to initiate an attack on the fire flowing 300 GPM with two deployed lines.
EMS Incidents – HVFD will provide at least a BLS level medical intervention on the scene of a medical emergency within 5 minutes from receipt of the EMS page, 90% of the time for calls within city limits accessible by road. Initial intervention may be with a first responder arriving direct, or by an EMS crew responding aboard the ambulance. Adequate personnel and transport capability (minimum crew of three) will arrive at the scene of the medical emergency within 10 minutes, 90% of the time.
Reliability
of Fire Companies – 2003
Historical Call Volumes:
Total Fire Calls, all districts 127
Total EMS Calls, all districts 463
Total Calls: 590 (Actual count 578)
District #1 – Homer City Limits 505 (85.6%)
EMS 419 (90%)
Fire 89 (70%)
Total: 508
District #2 – Kachemak City 22 (3.7%)
EMS 15 (3.2%)
Fire 7 (5.5%)
Total: 22
District #3 – East End Road KESA 37 (6.3%)
EMS 18 (3.8%)
Fire 19 (14%)
Total: 37
District #4 – Skyline/Diamond Ridge KESA 18 (3.1%)
EMS 11 (2.3%)
Fire 12 (9.4%)
Total: 23
Historical Response Times: NOTE: Response time data is from the Information Management System (FireHouse 5.0) and reflect dispatch time logs from alarm time to arrival on scene averages.
Homer City Limits
Fire Type Time
Building Fires 00:11:00
Cooking Fire, confined to container 00:09:00
Chimney or flue fire, confined to flue 00:13:00
Trash or rubbish fire, contained 00:05:00
Passenger vehicle fire 00:11:00
Water vehicle fire 00:14:00
Camper or RV vehicle fire 00:07:00
Natural vegetation fire, other 00:28:00
Brush, or brush and grass mixture fire 00:13:00
Grass fire 00:12:00
Outside storage fire 00:14:00
Outside equipment fire
00:06:00
Total, average response time 00:12:00
EMS Call, excluding vehicle accident with injury 00:12:00
Vehicle accident with injuries 00:12:00
Motor vehicle/pedestrian accident 00:05:00
Rescue or EMS Standby
00:12:00
Total EMS related 00:10:00
Kachemak City
Fire Type Time
Building fire 00:8:00
Passenger vehicle fire 00:15:00
Grass fire 00:10:00
Total, average response time 00:11:00
EMS Call, excluding vehicle accident with injury 00:11:00
Vehicle accident with injury
00:08:00
Total EMS related 00:10:00
KESA-East
Fire Type Time
Building fire 00:29:00
Chimney or flue fire, confined to flue 00:17:00
Grass fire
00:15:00
Total, average response time 00:20:00
EMS Call, excluding vehicle accident with injury 00:19:00
Vehicle accident with injury
00:14:00
Total EMS related 00:17:00
KESA-North
Fire Type Time
Passenger vehicle fire 00:14:00
Grass fire
00:13:00
Total, average response time 00:14:00
Rescue, EMS call, other 00:19:00
EMS Call, excluding vehicle accident with injury 00:14:00
Vehicle accident with injury
00:12:00
Total EMS Related 00:15:00
Data Limitations- Response times include those times recorded for non-emergent calls such as outbound transports, and scheduled transports. Actual response time averages have been rounded up if the times were equal to or greater than 30 seconds of the total minute calculation.
Policy
Recommendations –
1. NFPA Standards – It is the goal of the fire department to comply with the intent of NFPA standards dealing with fire department organization and deployment, health and safety, and training to the extent possible recognizing budgetary constraints.
2. Policies and Procedures Manual – It is the philosophy of the fire department to minimize Standard Operating Guidelines except for those specifically required by NFPA Standard or which are required to comply with mandated directives from regulatory agencies. The fire department administrative staff strives to review all existing policies and procedures annually. When necessary, new policies and procedures are drafted, submitted to the membership for comment and review and then adopted into the Policy & Procedures Manual. Each member is provided a copy of the manual upon membership with the organization and regular updates of the manual are provided to the members when necessary.
3. Volunteer Recruitment – Two thirds of the nation’s firefighters are volunteer. Likewise, the Homer Volunteer Fire Department is completely reliant on volunteer membership to provide the level of service currently being offered. Present levels of volunteer EMT’s and Firefighters are extremely low compared to the actual personnel requirements on a “routine” structure fire. As additional volunteers are required to obtain maximum efficiency on scenes the fire department must continue to aggressively recruit new members to the organization and train them to nationally accepted standards. It is also determined that volunteers must be actively sought out to supplement the ability to provide “district” based crews that would be better able to respond from the satellite station(s) rather than responding on apparatus from the central station. With the current staffing level of firefighters at 21 an additional 14 firefighters (for a total of 35) are needed to maintain adequate levels of staffing for fire responses. This number would routinely provide for 11-12 firefighters immediately with another 10 responding within the hour to assist with larger fires and protracted scene operations. With current staffing levels of EMS responders at 24 (both single service and cross-trained) an additional 6 EMS providers (not cross-trained firefighter/EMT) would assist in reducing the shift load per member.
4. Volunteer Retention – The most cost effective method for meeting fire department personnel needs once the minimum membership goal is reached is to retain the members already trained and oriented to department operations. The fire department must maintain a concerted effort to retain existing members through a constant evaluation of membership needs and desires. Only by meeting those needs can the fire department make the best use of its resources. Continued efforts at the state level must emphasize the need of a Volunteer Firefighter/EMT Retirement Program or Length of Service Award Program (LOSAP) to reward volunteers for their longevity and invaluable contribution to public safety. This program must be authorized by State Statute, administered by the Public Employees Retirement System and funded by the local jurisdictions (voluntary contributions per volunteer member). Similar programs exist in approximately 35 other states with a wide range of benefits and requirements.
5. Preplanning of Target Occupancies – It is extremely important for fire officers and tacticians to have a plan of operation if large occupancies were to catch fire or require other emergency measures. Very few buildings in Homer have been thoroughly inspected and pre-planned in the event of fire. With the availability of this information being integrated into the fire department management information system, this information can become a useful tool for fire planning and operations. If the KPB proceeds with its plans to incorporate computer aided dispatching (CAD) across the Peninsula, this information would become even more readily accessible in emergencies. Preplanning must be a shared responsibility between the Planning Department, Public Works, and the Fire Department. Planning must provide up-to-date GIS information, plats, and as-built descriptions. Public Works provides the locations and capacities of existing or planned infrastructure to support fire fighting operations (water hydrants and flows) and the fire department provides site inspections, develops computerized floor plan maps, finalizes the emergency site plan, and provides for routine re-inspection of the occupancy. This activity would also benefit in the ISO protection class survey to maintain the current ISO rating of 3/8.
6. Fire Inspection/Plan Review – The fire department should become actively engaged in the process of fire inspections and assisting with building plan review for compliance with the provisions of the State of Alaska Fire and Building Codes. Currently the fire department does not have the authority as a “deferred” community to perform those activities. With the increase in building activities within the jurisdiction the fire department would like to take a more proactive approach to fire prevention. This activity will require the addition of a paid position in either the fire department (Fire Marshal) or Planning (plans reviewer/building safety official) to facilitate the rapid turnaround of materials to comply with State requirements. A report of plan review activity in Homer by the State Fire Marshal’s Officer indicates that if the City of Homer were to be granted deferral for plan review and inspections, fees generated from those activities would amount to at least $40,000 annually (based on the fee schedule established in the International Building Code for the Building Permit, Plan Review Fee, and the various inspections conducted during construction).
7. Service Model – The Planning Committee, following a review of fire service models, agrees that the current fire service model (City of Homer-HVFD providing services to Homer as well as Kachemak City and the Kachemak Emergency Service Area under contract) is the most effective model currently available. This model permits the City of Homer to retain control of its fire protection potential and EMS and permits services to the outlying areas (with cost recovery). As KESA acquires additional capacity to contribute to fire protection and EMS this issue should be addressed again. Interest was shown in the Unified Service Area Model, in which the City of Homer and Kachemak City would forfeit its fire and EMS services over to a new service area to encompass the entire area. Certain assurances would be required prior to consideration of a unified service area such as Service Area Board make-up (an equal number of seats from the City of Homer, Kachemak City and surrounding areas), transfer of HVFD assets to the service area, and continuity of existing levels of service.
8. Satellite Stations – The Strategic Planning Committee has determined that it would be mutually beneficial to cooperate with the design and placement of additional stations in the joint KESA/HVFD venture. Optimal station placement can serve both city and service area residents to the fullest extent. With the KESA Board already considering a station on Diamond Ridge to serve the northern service area boundaries, in order to best serve the population north and east of the City of Homer (Skyline Drive, Olson Mountain and others), another station off of Skyline Drive east or near Scenic Place would best serve both agencies. A site at the head of Bear Creek Canyon was tentatively identified as meeting this need, and it was proposed that this could be a joint City – KESA station. As KESA already has plans and funding to construct a station in 2004 near McNeil Canyon it may also be prudent to look towards the end of East End Road for additional fire protection locations. The village of Voznesenka recently has installed a water tank and modest hydrant system to serve that community’s needs. There is also interest in housing a small engine and first response EMS vehicle in that community.
9. Boundary Revision – Upon construction of KESA’s station on Diamond Ridge Road east of the Sterling Highway, a boundary revision between KESA and Anchor Point Fire and Emergency Medical Service Area should be undertaken. The present boundary shows an isolated section of North Fork Road in KESA’s jurisdiction. In addition, with the construction of the station the southerly area of Anchor Point’s jurisdiction will be very close to the new KESA station, and at the same time quite far from Anchor Point’s station. The Committee wrestled with the issue of optimal location in arriving at its station recommendation on East Skyline Drive, and the same criteria dictate this recommendation on the boundary adjustment. The Committee felt that it would be a waste of public resources to build more fire stations than needed, particularly if it was done for artificial reasons such as a jurisdiction boundary.
10. Apparatus Replacement Schedule – At the request of the Strategic Planning Committee a review of currently held apparatus was undertaken by the fire department administration. In the absence of a national standard outlining recommended replacement schedules the current schedule of 20 years for large fire apparatus, 15 years for ambulance vehicles and 10 years for small utility type vehicles should be maintained as funding becomes available. It is also recommended that the City of Homer fully fund apparatus and equipment depreciation at a level necessary to fund large equipment and apparatus replacement when appropriate without relying on outside sources of funding which are no longer readily available. It is also recommended that all large apparatus purchases be spaced out so that no more than one large apparatus require replacement in any 5-7 year period. To that aim, the Strategic Planning Committee recommends that the fire department develop a plan to “refurbish” rather than replace Engine 4 and Tanker 1. The current replacement schedule with cost estimations can be found in Appendix A of this document.
11. Automatic Sprinkler Fire Protection – The Strategic Planning Committee considered various methods of encouraging the use of automatic sprinkler systems in the City of Homer. Suggestions to achieve this goal included: low-cost loans or grants from the city and/or borough to subsidize the installation of sprinklers; encouraging changes in the tax rate structure to reflect a direct savings on properties that were sprinklered; and encouraging the insurance industry to recognize that the property loss due to fire in sprinklered buildings was substantially lower than that of non-sprinklered buildings and that insurance rates should reflect that cost benefit in lower premiums. It was the consensus of the group to endorse passage of a mandatory sprinkler ordinance to the City of Homer. This ordinance would require the installation of approved sprinkler systems in all new commercial buildings 5,000 sq. ft. and over; commercial buildings being defined as any building that is required to undergo a Fire Marshal’s Plan Review prior to construction (any building or residential structure greater than a three-plex). This requirement would pertain to only those buildings within city limits, connected or able to be connected to the city water mains.
12. Emergency Services – In the absence of substantial additional funding it is impossible for the fire department to add any services it is not already providing. It is the goal of the fire department to improve its existing programs with regards to educational materials and training activities geared toward the basic mission of the department. If additional services are determined to be necessary by the community, service area or elected officials, methods to pay for those services must occur before a commitment to provide them can be made.
13. Information Technology – The fire department currently is able to thoroughly track all necessary data and information electronically. Proposed Borough-wide changes and technology improvements may necessitate upgrading the current information management system or replacing the existing system entirely but those changes should be funded through the agency making those changes necessary (State, Borough) to enable computer aided dispatching, vehicle identification and tracking, etc.
Appendix A
Homer Volunteer Fire Department
“NFPA 1720 Standard for the
Organization and Deployment of Fire Suppression Operations,
Emergency Medical Operations, and Special Operations to the
Public by Volunteer Fire Departments”
Compliance Report for the Strategic Planning Committee
2004
Chapter 4
Organization, Operation, and Deployment –
4.1* Fire Suppression Organization. Fire suppression operations shall be organized to ensure the fire department’s fire suppression capability includes sufficient personnel, equipment, and other resources to efficiently, effectively, and safely deploy fire suppression resources.
HVFD has Standard Operating Guidelines in place that specify minimum levels of staffing for various apparatus. Additional guidelines need to be developed to specify the various levels of fire suppression and the required number of personnel needed to ensure personnel safety.
4.1.1* The authority having jurisdiction shall promulgate the fire department’s organizational, operational, and deployment procedures by issuing written administrative regulations, standard operating procedures, and departmental orders.
HVFD is authorized by Homer City Code and is registered by the State Fire Marshal’s Office and granted authority under State Statute to comply with 4.1.1. Fire Department Policies and Procedures are reviewed annually. Standing Orders, (advanced medical directives) are developed and approved by the Fire Department Medical Director in accordance with State of Alaska Regulations. Standing Orders are reviewed annually.
4.1.2* The fire department shall participate in a process that develops a community risk management plan with respect to the risks associated with the storage, use and transportation of hazardous materials. The specific role of the fire department and other responding agencies shall be defined by the community risk management plan for hazardous materials and other special operations.
HVFD and the City of Homer do not have a hazmat specific risk management plan in place. The fire department does participate on the Local Emergency Planning Committee (LEPC) and on the Homer Emergency Planning Task Force with key stakeholders in the community including: EMS/Fire, hospital, public health nurses, local clinics, Red Cross, Kenai Peninsula Borough Office of Emergency Management (OEM) and others. Specific hazmat operators provide Tier 2 forms annually as required which are maintained by the fire department. The Kenai Peninsula Borough develops and maintains an All-Hazards Emergency Operations Plan which was updated in 2003/2004. In addition, the fire department and City of Homer are working with the Kenai Peninsula Borough and other Borough municipalities to develop a Peninsula-wide All-Hazards Mitigation Program to comply with provisions of the Disaster Mitigation Act of 2000 (Stafford Act).
4.1.3* Fire department procedures shall clearly state the succession of command responsibility.
HVFD Policies and Procedures Manual provide job descriptions and job responsibilities for the various positions within the fire department structure. The fire department utilizes the National Incident Management System (NIMS) as required by Presidential Directive and Executive Order (Governor) on all fire responses and complicated EMS calls. Use of the National Incident Management System as the “approved” Incident Command System (ICS) has recently been mandated by the Department of Homeland Security.
4.1.4* Personnel responding to fires and other emergencies shall be organized into company units or response teams and shall have appropriate apparatus and training.
HVFD utilizes the ICS on all fire responses. The ICS specifies that individual resources be formed into groups and/or division for functional areas on the emergency scene. All HVFD response personnel are trained and certified at the Firefighter I and/or EMT-I level before given any emergency response duties. All personnel responding to emergency incidents are certified as Firefighter I’s and/or EMT-I’s before assignment. Members already trained and certified from another agency must complete a HVFD orientation prior to assignment.
4.1.5* The fire department shall identify minimum staffing requirements to ensure that a sufficient number of members are available to operate safely and effectively.
Specific guidelines, other than seating related to fire ground activities, are not provided in the Policies and Procedures Manual at this time. Guidelines will have to be developed outlining specific recommendations for interior attack, exterior attack, etc. in order to comply.
4.1.6* The fire department shall maintain a standard report containing specified information for each response. The reports shall include the location and nature of the fire or emergency and describe the operations performed. The report shall identify the members responding to the incident.
HVFD is in 100% compliance with this standard and provides quarterly ANFIRS reports to the State Fire Marshal’s Office in Anchorage. All EMS and Fire reports are handled by the Fire House© 5.0 Information Management System. HVFD provides EMS statistical information to the Section of Community Health and EMS as requested.
4.1.7* Standard
response assignments and procedures, including mutual aid response and
mutual
aid agreements predetermined by the location, and nature of the
reported
incident, shall regulate the dispatch of companies, response groups,
and
command officers to fire and other emergency incidents.
Response assignments per seating arrangements are predetermined per Standard Operating Guideline. Mutual Aid agreements are pre-existing but the only realistic reciprocal agreement is limited to the Anchor Point Volunteer Fire Department. All fires are “all-call” assignments due to limited manpower available. Each week-long volunteer shift assignment (A & B) is covered by an On-Call Chief, Volunteer Duty Office and Lead Medic.
4.1.8* The number and type of units assigned to respond to a reported incident shall be determined by either risk analysis and/or pre-fire planning.
Due to the size of the department the number and type of units assigned to various incidents is predetermined by manpower limitations.
Structure fires - Hydrant System: Tanker 2, Engine 4, Utility 3, Medic 1;
- Off Hydrant System: Tanker 1, Tanker 2, Engine 4, Utility 3, Medic 1;
Other fires - Tanker 2, Medic 1;
EMS Calls – Medic 2;
East End Road (KESA) Engine 22, Engine 21, Tanker 2, Medic 24/Medic 1;
Other apparatus or mutual aid requests are called as needed by the IC or Duty Officer.
4.2 Fire Suppression
Operations.
4.2.1* Incident Commander. One individual shall be assigned as the incident commander.
The fire department utilizes the prescribed Incident Command System. The first arriving HVFD member establishes command and becomes the Incident Commander (IC) until such time as command is transferred to another officer or the incident is terminated. When coordinating activities between multiple agencies the unified command structure is utilized.
4.2.1.1* The assumption and identification of command shall be communicated to all units responding to or involved at the incident scene.
The first arriving member establishes command and provides an initial report. Changes in command, if needed due to scene complexity, are communicated over the radio to all responders.
4.2.1.2 The incident commander shall be responsible for the overall coordination and direction of all activities for the duration of the incident.
This standard is established under the prescribed Incident Command System.
4.2.1.3 The incident
commander shall ensure that a personnel accountability system is
immediately
utilized to rapidly account for all personnel at the incident scene.
HVFD uses the “Passport” accountability system. The IC has the option of maintaining accountability for small incidents or transferring that responsibility to an established Accountability Officer. The Accountability Officer is then responsible for personnel tracking and status. A Personnel Accountability Report (PAR) may be called by the IC or Accountability Officer at any time.
4.2.1.4 The company officer/crew leader shall at all times be aware of the identity, location, and activity of each member assigned to the company.
Personnel are assigned to a team leader for specific tasks such as interior attack, ventilation, etc.. That team leader is responsible for knowing where their personnel are at all times until the task is complete and those personnel are reassigned.
4.2.1.5 Each member of the company shall be aware of the identity of the company officer/crew leader.
Crew assignments typically are made face to face or the team leader chooses members that are available in staging or leaving Rehab. Personnel are in radio communication at all times.
4.2.1.6 Orders addressed to individual members, particularly verbal orders and orders at incidents scenes, shall be transmitted through the company officer.
This is standard practice for HVFD under the NIMS.
4.2.2 Initial Attack.
4.2.2.1 Upon
assembling the necessary resources at the emergency scene, the fire
department shall
have the capability to safely initiate an initial attack within two
minutes 90%
of the time.
Once sufficient resources are on scene, HVFD can initiate an attack within the parameters established.
4.2.2.2* Initial
attack operations shall be organized to ensure that at least four
members shall
be assembled before initiating interior fire suppression operations at
a
working structural fire.
Department SOG require that at least an engineer, IC, and two, two-person interior attack crews (primary and backup) be assembled prior to initiating an interior attack.
4.2.2.2.1 In the hazardous area, two individuals shall work as a team.
Minimum teams are made up of two members. These may be supplemented and accompanied by an officer using a Thermal Imaging Camera (TIC). The “buddy system” is taught from the earliest classes and promoted throughout the organization.
4.2.2.2.2 Outside the
hazardous area, two individuals shall be present for assistance or
rescue of
the team operating in the hazardous area. One of the two individuals
assigned
outside the hazardous area shall be permitted to be engaged in other
activities.
The purpose of having a back-up team assembled prior to making entry is to permit rapid intervention using the “two in, two out” rule. These back-up crews are not assigned to other details. Rapid Intervention Team’s (RIT) of two to three members may be assigned to larger fires and may be assigned non critical functions on the fire ground while assigned to RIT. RIT members should be ready to go on breathing air and affect a rescue attempt immediately upon notification that a problem exists.
4.2.2.2.3 The assignment of any individuals shall not be permitted if abandoning their critical task(s) to perform rescue clearly jeopardizes the safety and health of any firefighter operating at the incident.
RIT members may only be assigned non-critical assignments on the fire ground that would not jeopardize operations if required to perform rescue activities.
4.2.2.3 Initial attack operations shall be organized to ensure that if, upon arrival at the emergency scene, initial attack personnel find an imminent life-threatening situation where immediate action could prevent the loss of life or serious injury, such action shall be permitted with less than four personnel when conducted in accordance with NFPA 1500, Standard on Fire Department Occupational Safety and Health Program.
Although that situation may arise when immediate action may potentially mitigate a life-threatening situation, HVFD personnel are trained to place personal safety considerations above all else. When rescue can be attempted without life-threatening risk to fire department personnel fire suppression activities are given a secondary priority over life safety and rescue, though both are best performed in unison.
4.2.2.4 The fire
department shall have the capability for sustained operations,
including fire
suppression; engagement in search and rescue, forcible entry,
ventilation, and
preservation of property; accountability for personnel; a dedicated
rapid
intervention crew (RIC); and provision of support activities for those
situations that are beyond the capability of the initial attack.
The fire department can utilize mutual aid fire personnel and/or equipment when operations are beyond the capacity of the local organization. The Kenai Peninsula Fire Chiefs Association is attempting to initiate a borough wide mutual aid memorandum of agreement that would free up additional resources from across the borough when necessary for sustained emergency operations.
4.3 Intercommunity
Organization.
4.3.1* Mutual aid,
automatic aid, and fire protection agreements shall be in writing and
shall
address such issues as liability for injuries and deaths, disability
retirements, cost of service, authorization to respond, staffing, and
equipment, including the resources to be made available and the
designation of
the incident commander.
HVFD attempts to maintain current, up-to-date mutual aid agreements on file with area agencies. Alaska statute requires that volunteer firefighters be covered under worker’s compensation insurance.
4.3.2 Procedures and
training of personnel for all fire departments in mutual aid, automatic
aid,
and fire protection agreement plans shall be comprehensive to produce
an
effective fire force and to ensure uniform operations.
HVFD and KESA operate as a unified service and training of personnel is uniform and consistent. When requesting additional resources from other departments we are very specific about what we need and require, such as firefighter I, EMT-III, etc.
4.3.3 Companies responding to mutual aid incidents shall be equipped with communications equipment that allow personnel to communicate with the incident commander and division officers, group officers, or sector officers.
The City, Borough and State have developed a Mutual-Aid Communications Plan. Those frequencies are all programmed on mobile radios and selected hand-held radios. In addition the State-wide Alaska Land Mobile Radio network is being constructed and will facilitate state-wide communications during any event.
4.4* Emergency Medical
Services.
4.4.1 Purpose.
Emergency medical service (EMS) operations shall be organized to ensure
the
fire department’s emergency medical capability includes personnel,
equipment,
and resources to deploy the initial arriving company and additional
alarm
assignments. The fire department shall be permitted to use established
automatic mutual aid or mutual aid agreements to comply with the
requirements
of Section 4.4.
Historically it is rare for there to be a need for more than the two ambulances in service at the central station. In addition, there is another ambulance available through KESA. The nearest mutual aid ambulance is located in Anchor Point.
4.4.1.1* The provisions of this chapter shall only apply to those fire departments that are involved in the delivery of emergency medical services.
HVFD delivers prehospital emergency medical care and transportation.
4.4.1.2* The fire department shall clearly document its role, responsibilities, functions, and objectives for the delivery of EMS.
EMS is delivered under State of Alaska Regulations and the supervision of a Medical Director.
4.4.2 System Components. The basic treatment levels within an EMS system, for the purposes of this standard, shall be categorized as first responder, basic life support (BLS), and advanced life support (ALS). The specific patient treatment capabilities associated with each level shall be determined by the authority having jurisdiction for the approval and licensing of EMS providers within each state and province.
HVFD is a certified “out of hospital” advanced life support ambulance service. Certification is through the Section of Community Health and EMS, Department of Health and Social Services.
4.4.3* EMS System
Functions.
4.4.3.1 The following
shall be considered in the five basic functions within an EMS system:
(1) First responder
(2) BLS responder
(3) ALS responder
(4) Patient transport in an ambulance or
alternative vehicle designed to provide for uninterrupted patient care
at the
ALS or BLS level while en route to a medical facility
(5) Assurance of response and
medical care through a quality management program
HVFD provides basic and advanced first responder care and ALS treatment and transportation via Type 1 ambulance to our receiving hospital, South Peninsula Hospital. Quality management is provided through monthly physician review of all EMS calls for the previous month. The Medical Director provides provider feedback on a regular basis.
4.4.3.2 The fire
department shall be involved in providing any or all of the functions
as
identified in 4.4.3.1 (1) through 4.4.3.1 (5).
4.5 Quality
Management.
4.5.1 The fire department shall institute a quality management program.
As required by regulation, all EMS calls are reviewed for compliance to standing order and standards of care by the fire department medical director on a monthly basis. Regular feedback is provided each responder as needed to recommend changes in practice or to commend positive performance.
4.5.2 All first responder and BLS medical care provided by the fire department shall be reviewed by the fire department medical personnel. This review process shall be documented.
Monthly reviews of all EMS calls are documented by the medical director.
4.5.3 All fire
departments with ALS services shall have a named medical director with
the responsibility
to oversee and ensure quality medical care in accordance with state or
provincial laws or regulations. The review process shall be documented.
HVFD medical direction is provided and documented per this section.
4.5.4 Fire departments providing ALS services shall provide a mechanism for immediate communications with EMS supervision and medical oversight.
Medical direction and oversight is provided by Standing Order and/or by telephone/radio as needed with the ER on-call physician or our medical director, if available.
4.6* Special
Operations Response.
4.6.1 Special operations shall be organized to ensure that the fire department’s special operations capability includes sufficient personnel, equipment, and resources to efficiently, effectively, and safely deploy the initial arriving company and additional alarm assignments providing such services. The fire department shall be permitted to use established automatic mutual aid or mutual aid agreements to comply with the requirements of Section 4.6.
HVFD special operations are limited to vehicle rescue, confined space rescue, and surface water/ice rescue.
4.6.1.1 The provisions
of this chapter shall apply to fire departments that are involved in
the
delivery of special operations response.
4.6.2 The fire
department shall adopt a special operations response plan and standard
operating procedures that specify the role and responsibilities of the
fire
department and the authorized functions of members responding to
hazardous
materials emergency incidents.
Outlined by SOG and policy.
4.6.3 All fire
department members who are expected to respond to emergency incidents
beyond
the first responder operations level for hazardous materials response
shall be
trained to the applicable requirements of NFPA 472, Standard for
Professional
Competence of Responders to Hazardous Materials Incidents.
HVFD does not provide response beyond the first responder operations level.
4.6.4 The fire
department shall have the capacity to implement a RIC during all
special
operations incidents that would subject fire fighters to immediate
danger of
injury, or in the event of equipment failure or other sudden event, as
required
by NFPA 1500, Standard on Fire Department Occupational Safety and
Health
Program.
Back up teams are always required when personnel enter confined spaces or hazardous atmospheres or situations.
4.6.5* If a higher level of emergency response is needed beyond the capability of the fire department for special operations, the fire department shall determine the availability of outside resources that deploy these capabilities and the procedures for initiating their response. The fire department shall be limited to performing only those specific special operations functions for which its personnel have been trained and are properly equipped.
HVFD provides limited special operations functions previously described. Throughout Alaska there are very limited resources to handle hazardous materials incidents. There are no public response hazmat teams on the Kenai Peninsula. Additional resources available include: Alaska State Troopers (search and rescue); Alaska Air National Guard (para-rescue, remote site access, and medical evacuation); Alaska Mountain Rescue Group (high-angle rescue).
Chapter 5
Systems
5.1* Safety and Health System. A fire fighter occupational safety and health program shall be provided in accordance with NFPA 1500, Standard on Fire Department Occupational Safety and Health Program, to form the basic structure of protecting the health and safety of fire fighters, regardless of the scale of the department or the emergency.
The fire department provides for annual physical examinations under NFPA 1582 and bi-annual passing of the Firefighter Physical Abilities Test as described in departmental SOG. The fire department, in partnership with the HVFD Membership Association and individual volunteer member, provides funding for members meeting minimum participation guidelines to join and use a local health club fitness center. Paid members are not eligible at this time for the fire department matching funds program. The fire department is reviewing the Health and Wellness Guide published in January 2004 by FEMA to determine if the program can be adopted and funded by the fire department for all emergency responders.
5.2* Incident
Management System.
5.2.1 An incident management system shall be provided in accordance with NFPA 1561, Standard on Emergency Services Incident Management System, to form the basic structure of all emergency operations of the fire department, regardless of the scale of the department or the emergency.
HVFD uses the National Incident Management System as required by State Executive Order, and now adopted under the National Incident Management System (NIMS) authorized by the Department of Homeland Security.
5.2.2* An effective
incident management system shall be designed to manage incidents of
different
types, including structure fires, wildland fires, hazardous materials
incidents, emergency medical operations, and other types of emergencies
that
could be handled by the department.
The NIMS, adopted by the Department of Homeland Security, is an “all-hazard” incident management system.
5.3 Training Systems. The fire department shall have a training program and policy that ensures that personnel are trained and competency is maintained to effectively, efficiently, and safely execute all responsibilities consistent with the department’s organization and deployment as addressed in Chapter 4.
HVFD is an accredited Firefighter I/II training facility authorized by the State Fire Marshal’s Office Training Division. All personnel are trained to at least the firefighter I and/or EMT-I level prior to joining the department as an emergency responder. In addition, all emergency personnel are trained in Infectious Disease Control and hazardous materials first responder operations levels. Annual updates are conducted as required to maintain compliance with OSHA directives.
5.4* Communications
Systems.
5.4.1 The fire department shall have a reliable communications system to facilitate prompt delivery of public fire suppression, emergency medical services, and special operations.
The City of Homer utilizes a centralized communications center operated by the Police Department. The fire department currently uses two repeater sites (HVFD 1 and HVFD 2) that provide for 98% coverage of the city limits. All members are provided with a page capable hand-held radio (except for probationary members who have pager only). The City of Homer received over $500,000 this year to upgrade its communications center and to begin upgrading of radios to Program 25 compatible subscriber units.
5.4.2 All
communications facilities, equipment, staffing, and operating
procedures shall comply
with NFPA 1221, Standard for the Installation, Maintenance, and Use of
Emergency Services Communications Systems.
The upgrade funded this year will bring our communications center into “state-of-the-art” compliance with public safety communications standards. Dispatch staffing is currently limited to one dispatcher on duty during the graveyard shift due to budget constraints but the desire is to have two dispatchers on duty 24/7 when funding permits.
5.4.3 Operating procedures for radio communications shall provide for the use of standard protocols and terminology at all types of incidents.
HVFD practices a “clear text” transmission which eliminates the confusion of learning “10-code” and standardization of the various codes and nomenclature.
5.4.3.1 Standard
terminology, in compliance with NFPA 1561, Standard on Emergency
Services
Incident Management System, shall be established to transmit
information,
including strategic modes of operation, situation reports, and
emergency
notifications of imminent hazards.
HVFD complies with this standard with regards to standardized terminology. A standardized “emergency traffic” guideline needs to be adopted to fully comply with this requirement.
5.5* Pre-Incident
Planning. The fire department shall set forth operational requirements
to
conduct pre-incident planning. Particular attention shall be provided
to target
hazards.
Due to time and budget constraints pre-incident planning has not been completed, even for the target hazards. The department desires to implement a pre-planning process that will at least plan the target hazards by the end of 2005 with at least a biannual review of the target hazards or when there are substantial changes in the occupancy.
