West Metro Fire District, Wheat Ridge Fire District Colorado

Cooperative Services Feasibility Study

2015

TABLE OF CONTENTS

Table of Contents ...... i Acknowledgments ...... iii Executive Summary ...... 1 Evaluation of Current Conditions ...... 5 Environmental Scan ...... 5 Organization Overview ...... 7 Management Components ...... 18 Staffing & Personnel Management ...... 25 Community Planning ...... 37 Service Delivery & Performance ...... 39 Emergency Medical Services ...... 78 Capital Assets & Infrastructure ...... 111 Support Services ...... 139 Fiscal Analysis ...... 185 Current Conditions Review ...... 185 Financial Trends ...... 194 Financial Forecast ...... 200 Future Opportunities for Cooperative Efforts ...... 207 Strategy A: Status Quo...... 212 Strategy B: Contract for Services ...... 214 Strategy C: Fire Authority ...... 224 Strategy D: Merger ...... 227 Findings ...... 237 Recommendations ...... 239 Implementation ...... 241 Establish Implementation Working Groups ...... 243 Meet, Identify, Challenge, Refine, and Overcome ...... 245 Appendices ...... 247 List of Figures...... 247 List of Tables ...... 249

West Metro–Wheat Ridge Fire Protection Districts Cooperative Services Feasibility Study

ACKNOWLEDGMENTS

Emergency Services Consulting International (ESCI) would like to acknowledge the substantial time, effort, and cooperation of the fire chiefs and staff members of the Wheat Ridge Fire Protection District (WRFPD) and West Metro Fire Protection District (WMFPD). Each chief was available to the project team throughout the process, along with multiple individuals from the two organizations. It was evident from the start that both organizations were committed to the project, and that the men and women of the two fire districts represent a tremendous level of knowledge and professionalism.

Wheat Ridge Fire Protection District Bob Olme, Fire Chief Kelly Brooks, Assistant Chief, Fire Prevention Brian Eberle, Battalion Chief, Training

West Metro Fire Protection District Don Lombardi, Fire Chief Mark Krapf, Deputy Chief, Administration Scott Rogers, Deputy Chief, Operations Bruce Dikken, Division Chief, EMS Kevin Schmidt, Captain, EMS Dan Pfannenstiel, Division Chief, Training Bruce Kral, Division Chief, Life Safety Mike Murphy, Division Chief, Communications Karyn Kretzel, Assistant Communications Manager

The men and women of the Wheat Ridge and West Metro Fire Protection Districts who daily serve their communities with honor and distinction.

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West Metro–Wheat Ridge Fire Protection Districts Cooperative Services Feasibility Study

EXECUTIVE SUMMARY

Emergency Services Consulting International (ESCI) was engaged by West Metro Fire Protection District (WMFPD) and Wheat Ridge Fire Protection District (WRFPD) to conduct a feasibility study regarding opportunities for collaboration between the fire service agencies. This report is the culmination of that evaluation.

ESCI thanks the participating members, staff, and policy-makers of both agencies for their outstanding cooperation in the preparation of this report. All involved were candid in their comments and provided valuable information, perspective, and data to the ESCI team. The results of these interviews were used to identify the critical issues facing each agency and to develop context for the study.

Purpose and Approach

The purpose of the study was to:

A. Assess the current fiscal, service level, and infrastructure conditions of each agency; recommend improvements to their existing processes independently where appropriate; and forecast each agency’s fiscal future for the next five years.

B. Identify partnership opportunities available to the agencies to increase efficiency or eliminate duplication, up to and including integration.

C. Analyze the most feasible options, recommending those with the greatest opportunity for success financially and operationally.

This study determines the feasibility of the agencies increasing their collaboration up to and including full integration. It is not an implementation plan. The decisions required to implement many of these options take active discussion and deliberation (and in some cases, negotiation) by the policy-makers, administrators, and labor groups. This document determines what partnership options make sense and quantifies the advantages and disadvantages of each option being considered.

This report contains the following major sections: Current Conditions (organizational, administrative, support and operational elements of the agencies); Processes for Collaboration (including four alternative strategies, ranging from complete autonomy to complete integration of the two agencies); Findings; Recommendations; and Implementation Guidance.

The approach taken by the ESCI project team in developing this study was to first evaluate each agency as it operates today autonomously (referred to as Current Conditions in the report) and identify areas where process improvement can be recommended. This information was gathered through data analysis and interviews with the subject matter experts for each agency. The combined information was evaluated by the subject matter experts on the ESCI team who offered each agency recommendations for improvement as appropriate. These individual recommendations are listed in gray recommendation boxes throughout the Current Conditions section.

West Metro–Wheat Ridge Fire Protection Districts Cooperative Services Feasibility Study

The project team then compared the two agencies to each other to find duplication and opportunities for greater efficiency. The agencies already share many functions via an intergovernmental agreement (dispatch services, training, and apparatus maintenance), so efficiencies are already being captured through these cooperative services. From the evaluation of current conditions and the cooperative services the agencies currently share, the project team identified the legal integration options available to the agencies pursuant to Colorado statute. These are generically discussed to provide the reader with the range of options available to the agencies. From those options, the ESCI team developed four alternative strategies (with sub-elements) for the agencies to consider moving forward:

 Strategy A: Status Quo

 Strategy B: Contract for Services − Administrative − Functional − Operational (full service)

 Strategy C: Fire Authority

 Strategy D: Merger − Consolidation − Exclusion/Inclusion

Strategy A assumes no change from the current circumstances and agreements. Strategy B reflects an expansion of cooperation through an intergovernmental agreement (IGA) for administrative, functional and operational (or full) services, laying out several variables that should be considered when contemplating a pricing structure. Strategy C discusses the formation of a fire authority, whereby an intergovernmental agreement and the actual operation of the combined agency is managed by a separate entity formed by the two boards of the existing agencies. Strategy D is the highest form of integration. The two sub-elements of merger (consolidation and Exclusion/Inclusion) are discussed, with the two methods compared and contrasted.

Key Findings

Both fire agencies have already demonstrated their commitment to efficiency as evidenced by the current intergovernmental agreements already in place. A combined and concerted effort to respond to the challenges the agencies face is in their collective best interests which, we presume, led to the initiation of this study. Both agencies are committed to the service they provide to their customers and citizens. In brief, ESCI finds:

Finding #1: The fire districts depend upon each other and other neighbors for mutual aid and automatic aid assistance during emergency incidents. WRFPD has a high demand for its services on a per capita basis. WMFPD has a high demand in its urban areas and, predictably, lower demand but significant wildland risk in its rural area. With its depth of resources, WMFPD can manage much of its own demand internally. WRFPD faces resource depletion much more quickly in larger incidents, relying on WMFPD and other neighbors to either assist or backfill during these events.

West Metro–Wheat Ridge Fire Protection Districts Cooperative Services Feasibility Study

Finding #2: WMFPD provides fleet maintenance, training, and communications services to WRFPD. The agencies provide mutual assistance to each other during emergency incidents; as a result of training and responding together, incidents flow smoothly and the personnel work well together. The familiarity reduces much of the angst that comes with consolidation at the line and administrative levels because each party is a “known commodity.”

Finding #3: WMFPD provides advanced life support (ALS) first response and emergency medical transport services. WRFPD provides basic life support (BLS) first response service, relying upon the local private ambulance company to provide emergency medical transport services. If the two agencies consolidate, WMFPD can extend its ALS services to the WRFPD service area, providing its citizens with high quality, seamlessly integrated emergency medical services. Revenue from this service is also expected to offset the expense of providing the service. The expanded service enhances both agencies’ service capabilities to their constituents.

Finding #4: The districts each have a fire station about a mile apart from each other (WRFPD Station 73 and WMFPD Station 1), which represents inefficient overlap of service. Station 73 is in poor condition and is to be returned to the City of Edgewater in the near term by agreement. Station 1 is an aging facility that could benefit from relocation and modification. An optimum location for response for both Station 73 and Station 1 is in the area of 20th Avenue and Reed Drive, coincidentally a point of convergence for WMFPD, WRFPD, and the City of Edgewater. WMFPD Station 1 could serve Station 73’s area from its current site but would be improved by relocating as identified in this report.

Finding #5: Although the need and the scale vary, important gaps were identified in each organization. In WMFPD, many stations have been recently remodeled but not all are seismically retrofitted to current standards. In WRFPD, two of the three fire stations are not well laid out to provide for prompt turnout times and one station is not well suited for its intended purpose but is slated to return to the City of Edgewater.

Finding #6: Organizational culture is one of the most important factors impacting the success or failure of a cooperative effort. It is also, without question, the most difficult aspect to evaluate; it is challenging to predict the effect that differing internal cultures will have on the collaborative strategies. However, the existing collaboration between the agencies minimizes those differences significantly. This increases the likelihood that the agencies will experience only minor cultural differences.

Finding #7: Most consolidations are motivated by an effort to capture efficiencies, expand service, and/or avoid cost. Sometimes those cost avoidance measures include personnel reductions. In this case, however, depending on how implementation occurs and the model is developed; there is room for all personnel to be retained in some capacity within the combined agency. This does not commonly occur, but the circumstances in this instance create this potential. A process of consolidation that does not create “victims” through job loss and maintains efficiency with expanded services is the best possible outcome.

Finding #8: All four major strategies contained in this report are feasible. Implementation of Strategy A– Status Quo passes on the opportunity to gain efficiencies, reduce the size of government, and increase services in some areas. Implementation of Strategy B–Contract for Services simply expands on what is

West Metro–Wheat Ridge Fire Protection Districts Cooperative Services Feasibility Study

already being done between the agencies but on a potentially larger scale. Implementation of Strategy C–Fire Authority expands upon a contract for service by creating a new entity to administer the operations of the authority while the existing boards continue to approve budgets, certify mill levies, and select the representing board members on the Authority Board. Implementation of Strategy D– Merger actually combines the two agencies into one agency. This strategy is at the pinnacle of the partnership scale.

Recommendations

ESCI recommends that Wheat Ridge and West Metro implement Strategy D—Merger and that the method for the merger be Exclusion/Inclusion. This recommendation is based on the fact that the study has identified advantages of doing so and, conversely, has not revealed any major pitfalls to consolidation. Many of the advantages described in this report occur because of the economies of scale associated with planning and implementing a response system over a large area. The report predicts additional depth of resources will be available to respond quickly to serious emergencies for both agencies and that dispatching fire-based medic transport units directly with fire apparatus that are in close proximity will likely improve the provision of advanced life support services to WRFPD citizens. Additionally, there is cost avoidance that can be realized by combining the relocation of WRFPD Station 73 and the replacement of WMFPD Station 1.

Implementing an Exclusion/Inclusion merger simplifies governance and administration to one board and one management team. It requires only one budget rather than three and only one audit rather than three (or one audit that reflects three separate organizations) such as would be required in a fire authority model. There is a need for only one set of standard operating guidelines, one set of policies, one response system, one bargaining agreement, one infrastructure for technology, support services, and the numerous systems and processes that are necessarily duplicated in two separate agencies, regardless of the level of collaboration.

This mechanism of merging the districts is less complicated and less costly in that it requires only votes of the boards of directors, assuming that the merger occurs at the lower of the two mill levies. The other strategies require more complicated formulas for maintaining financial equity which must be constantly reviewed and renegotiated over perceived changes in conditions. Moreover, there is no need for the board of county commissioners to participate in the decisions as would be required for a legal consolidation of districts.

The Exclusion/Inclusion model will reduce the tax rate for the taxpayers of Wheat Ridge FPD that, although small, is a benefit to those taxpayers. Next year, 2016, is an opportune time to make this change recognizing that the mill levy reduction for Wheat Ridge will result in slightly lower revenues. The financial analysis shows that the upturn of property values will result in greater assessed valuation and revenues that would offset the loss.

West Metro–Wheat Ridge Fire Protection Districts Cooperative Services Feasibility Study

EVALUATION OF CURRENT CONDITIONS

Environmental Scan ESCI interviewed various internal stakeholders of West Metro Fire Protection District (WMFPD or West Metro) and the Wheat Ridge Fire Protection District (WRFPD or Wheat Ridge) to determine the strengths and weaknesses of a consolidation, as well as opportunities which could be leveraged and threats or challenges it faces. The results are condensed in the following table.

Table 1: Stakeholder SWOC STRENGTHS WMFPD Personnel WRFPD Personnel Strength in numbers allows handling of multiple alarms Better service for the community Already doing training, dispatch, & fleet services together Ambulance operated by fire Already working closely Special team available to Wheat Ridge Taking on good people Resources are much greater Mill levies are similar Personnel depth for responses is greater Positive attitudes generally Skill levels similar Bigger department and more stable WRFPD Blue Card certifications Interaction on the street is good Relationship is good between departments Saves cost for citizens Training together is good Compatible cultures Seamless operations in the field Fitness of WRFPD firefighters Qualifications are about equal Background checks not a problem–done regularly WEAKNESSES WMFPD Personnel WRFPD Personnel Recent demotion of new personnel Specifics will need to be given to the public Challenges over differences in procedures (i.e. EMS) ISO Rating differences Training is a little higher in WMFPD Promoted personnel not keeping rank Performance levels required of those coming in Perception that this is a takeover Unwilling to have a financial drain on WMFPD Recognition of WRFPD personnel seniority

West Metro–Wheat Ridge Fire Protection Districts Cooperative Services Feasibility Study

OPPORTUNITIES WMFPD Personnel WRFPD Personnel Financially may have advantages for both departments Opportunities for future promotions Administrative savings Station 73 and Station 1 combining Better services over larger area Analyzing risk over whole area is advantageous Additional resources near WMFPD busiest stations Better distribution of resources is possible Avoidance savings in combining stations Look at special teams needs Potential of training at Lutheran Hospital Increased fire prevention revenues District will have more personnel Better EMS than privates can supply Revenue from transports Shift commander role reestablished Younger population moving into Wheat Ridge in the future Benefit the demoted personnel in WMFPD CHALLENGES WMFPD Personnel WRFPD Personnel Perception that money is flowing from one agency to Older homes and elderly population to serve another Rig locations, i.e. towers Community’s perception of loss Cultural attitudes between departments Not having testing opportunity for WRPFD officers Education of WMFPD on certifications required at Fair treatment for all concerned WRFPD WRFPD has long history of service IGA with Edgewater may be a problem Allowing associate degree option in lieu of paramedic Unable to cancel ambulance contract school Not locating ambulances in WRFPD Knowing what the requirements will be Positions may be sticking point Fire prevention must be considered How WRFPD is treated will set precedence for future Pension issues may be a problem consolidations Requiring polygraph and psychological testing for long- Seniority issues may be an obstacle term employees WRFPD having to become paramedics

West Metro–Wheat Ridge Fire Protection Districts Cooperative Services Feasibility Study

Organization Overview Data provided by the participating fire districts was combined with information collected in the course of ESCI’s fieldwork and used to develop an overview of the organizations. The purpose of the following organizational overview is two-fold. First, it verifies the accuracy of the baseline information and ESCI’s understanding of each agency’s composition—the foundation from which the feasibility analysis is developed. Second, the overview serves as a reference for readers that may not be familiar with the details of each district’s operations.

Table 2: Responsibilities & Authority Survey Component West Metro FPD Wheat Ridge FPD Governing body Board of Directors Board of Directors Head of governing body Pam Feely, President Jerry Cassel, President Key employee of governing body Don Lombardi, Fire Chief Bob Olme, Fire Chief Meetings 3rd Tuesday of month at 7 pm 3rd Wednesday of month at 6 pm Colorado Statute Title 32, District Colorado Statute Title 32, District Elected official authority defined policies and bylaws policies and bylaws Fire chief position Don Lombardi Bob Olme Hired by contract Yes Yes Term of contract Expires in 2017 Year to year (Jan. 15 expiration) Periodic performance evaluation Yes, annual Yes, annual Colorado Statute Title 32 and as District policy (bylaws) and the fire Fire chief/authority defined part of the job description chief's contract Policy and administrative roles defined Internal policy District bylaws

Discussion: Both fire districts are special districts as defined by Title 32 of the Colorado Revised Statutes. Special districts in Colorado are quasi-municipal corporations; more specifically, they are political subdivisions of the state. Local governments include counties, municipalities (cities and towns), school districts, and other types of government entities such as "authorities" and "special districts”. Colorado law limits the types of services that county governments can provide to residents. Districts are created to fill the gaps that may exist in the services counties provide and the services the residents desire. The majority of districts draw their boundaries in unincorporated county land, but residents of a municipality may be included in one or more districts.1

1 Colorado Department of Local Affairs; Retrieved May 22, 2015.

West Metro–Wheat Ridge Fire Protection Districts Cooperative Services Feasibility Study

West Metro is itself an amalgam of two fire districts. The Lakewood Fire District and Bancroft Fire District merged in 1995, forming what is now the West Metro Fire District. West Metro is governed by a seven- member elected board of directors. The district is led by a fire chief who is under contract with the district. The contract expires in 2017 if not renewed or renegotiated. The district board and its fire chief are each guided by statute and internal policies, which establish the district board as the policy-makers for the district and the approvers of the district’s budget. The fire chief is the chief executive officer, administering the approved budget, implementing policies established by the board, and managing the day-to-day activities of the district.

Wheat Ridge Fire Protection District was responsible for the formation of the City of Wheat Ridge in 1969. The district later merged with Prospect Valley Fire Department and recently added Edgewater to its district in 2013. Wheat Ridge is governed by a five-member elected board of directors. The district is led by a fire chief who is under contract with the district. The contract term is annual, beginning each January 15. The district board and its fire chief are each guided by statute and internal policies (bylaws), which establish the district board as the policy-makers for the district and the approvers of the district’s budget. The fire chief is the chief executive officer, administering the approved budget, implementing policies established by the board, and managing the day-to-day activities of the district.

Table 3: Success Attributes Survey Component West Metro FPD Wheat Ridge FPD Yes, current and reviewed annually. Yes, revised and evaluated on an All employees sign off annually that Rules and regulations maintained annual, biannual, or triannual basis they have read and understand them Yes, revisions follow the admin Yes, taken to supervisor, goes to Process for revision provided procedures, which is where the labor-relations committee, reviewed Rules & Regulations reside by all personnel, then implemented Legal counsel maintained Yes, Lyons, Gaddis Linda Glesne Consultation available Yes Yes Labor counsel Yes, same as legal above Yes, same attorney Separation of responsibilities, Pinnacle Consulting for all financial finance director, admin chief, fire activities–company is used to Financial controls maintained chief; board member approves maintaining separation of transfers beyond a set limit – P responsibilities; Above $25,000 cards, no petty cash needs board approval Yes, posted on website and Yes, posted on website and Governing body minutes maintained searchable archives searchable archives

West Metro–Wheat Ridge Fire Protection Districts Cooperative Services Feasibility Study

Discussion: The two fire districts are very different in size and complexity, but both appear to be well structured. West Metro is an accredited fire agency through the Commission for Public Safety Excellence (CPSE) and is one of 207 accredited fire agencies in North America. As such, it has every major element a fire department is required to have documented and cross-referenced. An accreditation team has spent two weeks on site and audited every aspect of these documents to ensure proper administrative infrastructure is in place. As one would expect with such a thorough process, West Metro has appropriate regulatory documents in place and a process for revision. Legal counsel is maintained and accessible to the fire chief for advice and consultation. West Metro maintains an appropriate separation of duties within the finance and purchasing functions, ensuring proper financial controls.

While not accredited, Wheat Ridge is also well structured and has similar elements in place. Regulatory documents are regularly reviewed and revised as needed, with employees signing an agreement that they have read and understood the documents. Revisions are done collaboratively with the employees. Legal counsel is maintained and accessible to the fire chief for advice and consultation. Wheat Ridge maintains an appropriate separation of duties within the finance and purchasing functions, ensuring proper financial controls.

Both districts maintain transparent governing processes, posting minutes of their public meetings on their websites, and providing access to searchable archived records.

West Metro–Wheat Ridge Fire Protection Districts Cooperative Services Feasibility Study

Table 4: Organizational Structure Survey Component West Metro FPD Wheat Ridge FPD Organizational Structure Typical fire service hierarchy–admin Structure type Typical fire service hierarchy support functions handled by battalion chiefs (BCs) Reviewed when opening occurs– Yes, annually since they are used for Descriptions of all jobs maintained incumbent can request job employee evaluations descriptions be reviewed Job descriptions updated Yes, as above Yes, annually Assistant chiefs now under a contract, Employment agreements firefighters have a CBA. Chief is under No, other than CBA and fire chief contract, and civilians are at will Chain of Command Unity of command Yes, see org chart Yes, see org chart 3 deputy chiefs, finance director, Span of control 1:6–Fire Marshal, BC (3), admin asst. emergency mgmt. director (1:5) Hiring/Firing authority Yes, with board concurrence Yes, with board concurrence Formation 1995 (merger of Lakewood FPD & Organization formed 1926 Bancroft FPD) On website–seeking input from History maintained On website community to add to history Individual or group responsible Yes, group working on a yearbook Assigned as needed

Discussion: The structure of the two districts is similar in that they have traditional rank structures; however, the administrative approach is significantly varied due to the level of complexity and size differences. Some staff at West Metro feel that while it may appear from a numeric standpoint that West Metro has a vast administrative and support staff, the organization would benefit from additional resources in some key areas. While West Metro operates at a high level of efficiency, some efficiency is lost due to multi-tasking by certain positions and multiple responsibilities (formal and informal) that are given to individuals. A robust administrative staff can delve into each of the individual segments of the fire service more fully, such as developing a state-of-the-art regional training center or regional fleet maintenance facility; sponsoring the Colorado-based Federal Emergency Management Agency Urban Search & Rescue Task Force; and attaining accreditation from the Commission on Fire Accreditation International (CFAI), an arm of the Center for Public Safety Excellence (CPSE).

Wheat Ridge, by virtue of its size, is necessarily constrained with a very small and lean administration. Many of the traditional support functions of a fire department which are typically managed by day staff chief officers are instead handled by shift battalion chiefs. Nonetheless, the district provides an excellent value to its citizens for its size and scope.

Both organizations maintain current position descriptions for all incumbent positions and update them regularly. The two fire districts have collective bargaining agreements (CBA) with the labor groups

West Metro–Wheat Ridge Fire Protection Districts Cooperative Services Feasibility Study

representing the line firefighters, both International Association of Firefighters locals. West Metro also has a collective bargaining agreement with its assistant chiefs.

As reflected in the following two figures, both districts have a clearly articulated rank structure which reflects unity of command (one person, one boss) and an appropriate span of control of less than the maximum 1:7 ratio. The exceptions are the two district chiefs for each shift in WMFPD who are responsible for eight officers and ten officers, respectively.

West Metro–Wheat Ridge Fire Protection Districts Cooperative Services Feasibility Study

Figure 1: West Metro FPD Organization Chart

Citizens

Board of Directors

Civil Service Board Attorney Committee

Fire Chief

Colorado Task Deputy Chief of Deputy Chief of Life Deputy Chief of Emergency Finance Division Force One USAR Operations Safety Division Administration Manager Program Manager

Construction Plan EMS Division HR Review

Building Inspection Training Division IT Program

Accreditation Wellness/Workers Fire Investigations Manager Comp.

Field Operations Community Support Services Chief Education

Facilities District 1 Chiefs (3) District 2 Chiefs (3) Fleet Maintenance Communications Maintenance

West Metro–Wheat Ridge Fire Protection Districts Cooperative Services Feasibility Study

Figure 2: Wheat Ridge FPD Organization Chart

West Metro–Wheat Ridge Fire Protection Districts Cooperative Services Feasibility Study

Both fire chiefs have hiring and firing authority but exercise those powers in close collaboration with their boards.

West Metro was formed in 1995 as a result of a merger between the Lakewood Fire District and Bancroft Fire District. Prior to that, the two districts had consolidated into the Lakewood-Bancroft Fire Authority. Wheat Ridge started as a non-profit, all volunteer fire department in 1926. In 1942, the Wheat Ridge Fire Protection District was formed as a result of a statutory change, allowing the district to collect funds from property taxes to pay for fire protection. In 1971, the district merged with Prospect Valley Fire Department, and in 2013, the City of Edgewater merged into Wheat Ridge. The district also recently transformed into a substantially career staffed fire department to keep up with the emergency services demands of the growing community.

Both agencies maintain and proudly display their histories on their websites. West Metro has a small work group developing a yearbook of the district’s history. Wheat Ridge ensures its history is maintained but in a less formal manner, assigning the responsibility as noteworthy events occur.

Table 5: Agency Description & Service Demand Survey Component West Metro FPD Wheat Ridge FPD Agency Description Agency type Special District Special District Area, square miles 110 10.9 433 S. Allison Parkway 3880 Upham St Headquarters Lakewood, CO Wheat Ridge, CO Number of fire stations 15 3 5 (admin/communications, fleet, training, CO-TF1, an SCBA repair Other facilities shop, a storage facility next to None Station 10, and a storage building next to Station 8) Emergency vehicles 56 7 Engine 14 2 Engine, reserve 3 1 Ladder truck 3 1 Ladder, reserve 1 0 Medic 9 0 Medic, reserve 7 0 Boat 1 0 Tender/Brush 5 2 Specialized Vehicle 13 1 (snow plow) WSRB rating 3/9 2 Date of most recent rating February 2012 January 2015

West Metro–Wheat Ridge Fire Protection Districts Cooperative Services Feasibility Study

Survey Component West Metro FPD Wheat Ridge FPD Total FD staff, uniformed & civilian 30 uniform, 49 civilian support 4 (fire marshal, fire chief, admin Admin. & support personnel, full-time (79) asst., and inspector) Admin. & support personnel, 3 (fire investigator, fire inspector, 0 volunteer and fire educator) Admin. & support personnel, part- 5 0 time Operational uniform personnel, full- 30 (8 lieutenants, 9 engineers, 11 305 (275 shift, 30 day staff) time firefighters, 2 battalion chiefs) Operational personnel, part-time 0 0 9 volunteers, (3 eligible to work as Operational personnel, volunteer 0 battalion chiefs, 5 eligible to work as lieutenants) Demographics Population 247,648 31,000 Alarms Fire, 2014 396 64 Property value exposed to fire, 2014 Data unavailable Do not track fire exposure Property value lost to fire, 2014 Data unavailable FMO tracks loss Rupture or explosion 43 1 EMS/rescue 19,223 2,986 Hazardous condition 487 137 Service call 2,435 222 Good intent call 1,370 34 False call 3,439 299 Severe weather 14 3 Other 12 2 Total 27,419 3,748 Mutual Aid Given 436 27 Received 265 72

Discussion: The agencies are both special purpose districts as defined by Colorado statute, Title 32. Wheat Ridge is one-tenth the size of West Metro geographically. Coincidentally, the infrastructure comparison between the districts scales roughly proportionally as well. West Metro owns and operates 20 facilities, 15 of which are active fire stations. The remaining facilities consist of the administration/communication building, the training center/Colorado Task Force 1, the Fleet Maintenance/SCBA Repair center, and the two former fire stations which have been converted to storage buildings. The SCBA repair facility and the two converted fire stations were not physically assessed by ESCI. Wheat Ridge operates three fire stations and maintains no other additional facilities.

West Metro–Wheat Ridge Fire Protection Districts Cooperative Services Feasibility Study

West Metro operates 56 emergency vehicles of various configurations; all appropriate for the risks posed within its jurisdiction. Wheat Ridge operates six emergency vehicles, all appropriate to the risks posed by its jurisdiction. One notable difference between the two agencies’ emergency vehicles is that West Metro provides ambulance transport services and therefore operates numerous medic units. Wheat Ridge provides first response services for EMS but turns patient transportation over to a private ambulance company, which contracts with the City of Wheat Ridge for transport services. If combined, medical transportation would become part of the menu of services provided to the citizens by their fire department in the Wheat Ridge service area. This would be an added value to the citizens of Wheat Ridge’s service area. This is addressed more specifically in the EMS section of this report.

The Insurance Services Office (ISO) is a third party agency that evaluates a community’s fire risk, advising insurance companies of the level of fire risk their rate-payers face within their community. For public agencies, the ISO evaluates the following areas:

• Emergency communications systems, including facilities for the public to report fires, staffing, training, certification of telecommunicators, and facilities for dispatching fire departments. • The fire department, including equipment, staffing, training, and geographic deployment of fire companies. • The water supply system, including the inspection and flow testing of hydrants and a careful evaluation of the amount of available water compared with the amount needed to suppress fires. • Community efforts to reduce the risk of fire, including fire prevention codes and enforcement, public fire safety education, and fire investigation programs.

As these areas are evaluated, a numerical value is placed on them. At the conclusion of the evaluation, the values are tallied and an overall value is assigned to the community. The numerical value falls on a scale from one to ten, with each point value referred to as a Public Protection Classification (PPC), or class. Class 10 indicates that the area’s fire suppression program does not meet ISO’s minimum criteria. Class 1 generally represents superior property fire protection. Some communities are given a split rating, as is the case with West Metro. In a split rating, the first number is the classification given to properties within five road miles of a fire station and within 1,000 feet of a creditable water supply. The second number applies to properties within five road miles of a fire station but beyond 1,000 feet of a creditable water supply. ISO generally assigns Class 10 to properties beyond five road miles of a fire station.

West Metro has a rating of a Class 3/9. ISO recently amended its split classification ratings. Effective in 2013, a community with a Class 3/9, such as West Metro, will be designated a 3/3X. This has the potential to reduce residents’ property insurance premiums. Wheat Ridge has a rating of Class 2 (no split). According to ISO, there are no Class 1 communities in Colorado. In short, Wheat Ridge and West Metro both enjoy exceptional ratings, with low insurance premiums for individual properties a likely result.

West Metro–Wheat Ridge Fire Protection Districts Cooperative Services Feasibility Study

West Metro has 384 full-time employees and 5 part-time employees. Of that, 305 are operationally assigned, meaning that these employees provide direct emergency response services to the community. The remaining employees provide support services to the direct service providers. Wheat Ridge has 34 full-time employees who are supplemented by 12 volunteers. Of the volunteers, three provide administrative and support help, primarily in fire prevention. The remaining nine provide direct emergency services, supplementing the career personnel on shift. The emergency response career and volunteer personnel are combined and assigned to the emergency equipment housed in each of the three fire stations. This is a unique deployment, and Wheat Ridge is to be applauded for this creative staffing arrangement.

West Metro handled 27,419 emergencies in 2014, with an approximate emergency service demand of 0.11 responses per capita and an average emergency demand of 1,838 responses per fire station. Wheat Ridge handled 3,748 emergencies in 2014, with an approximate emergency service demand of 0.14 responses per capita and an average emergency demand of 1,275 responses per fire station. Emergency incident data is briefly described here but is more fully analyzed in the Service Delivery and Performance section of this report.

Mutual aid numbers reflect the size difference between the agencies, with West Metro recording 265 mutual aid responses received and 436 given, while Wheat Ridge reports 72 mutual aid responses received and 27 mutual aid responses given (according to internal incident report data bases).

West Metro–Wheat Ridge Fire Protection Districts Cooperative Services Feasibility Study

Management Components Today’s fire department must address management complexities that include an effective organizational structure, adequacy of response, maintenance of competencies, a qualified work force, and financial sustainability for the future.

To be effective, the management of a fire department needs to be based on a number of components. In the following report section, ESCI examines the client agencies’ current efforts to manage their organizations and identify measures and best practices recommended for the future, beginning with strategic planning.

Table 6: Strategic Planning Survey Component West Metro FPD Wheat Ridge FPD Mission statement adopted Yes Yes Posted on the website–contained Posted on the website–contained Displayed within strategic plan within strategic plan Vision established and communicated Vision contained in strategic plan Does not exist Values of staff established Values contained in strategic plan Yes, on letterhead and website Strategic or master plan Strategic Plan 2011-2016 Strategic Plan 2010-2014 Adopted by elected officials Yes Yes Published and available Yes Yes Periodic review Annually by strategic plan team Yes, by the fire chief Agency goals & objectives established Contained within strategic plan Contained within strategic plan Date developed 2011 2010 Periodic review annually annually–no longer valid plan Code of ethics established Within administrative procedures Yes, in employee manual

Discussion: Both fire districts have strategic plans in place. Strategic plans typically contain the organization’s mission, vision, and values or guiding principles; initiatives and/or goals; objectives; critical tasks; intended outcomes or performance metrics; and timelines. The life span of a strategic plan is usually three to five years. West Metro’s strategic plan contains all of the essential elements of an effective strategic plan and is valid from 2011-2016.

Wheat Ridge’s strategic plan is mostly a skeletal framework for a strategic plan but does not provide a vision statement, does not list the organization’s values or guiding principles (although the latter exists on the district’s website and stationery), and lists the tasks to be accomplished without metrics or a timeline. The fire chief of Wheat Ridge, who inherited the strategic plan from his predecessor, indicates that the plan has been abandoned as it is no longer relevant to the district.

A code of conduct policy exists in both agencies, addressing ethical conduct and behavior standards. In West Metro, Policy #1001 addresses employee conduct and behaviors. In Wheat Ridge, Chapter 7, section 7.20 addresses conduct and behavioral requirements.

West Metro–Wheat Ridge Fire Protection Districts Cooperative Services Feasibility Study

RECOMMENDATION: • WRFPD should establish a new strategic plan.

The next section evaluates the regulatory documents, as well as the internal and external communication systems and processes which should be in place at both agencies.

Table 7: Regulatory Documents & Communication Survey Component West Metro FPD Wheat Ridge FPD Regulatory Documents On public drive; hard copied at Copies of rules provided Accessible on district’s intranet each station Completely overhauled and Last date reviewed Reviewed annually approved in November 2014 Yes, SOPs contained in employee Copies of SOPs or guidelines available Yes, accessible on district’s intranet manual–stand-alone guidelines Regular update Annual Annual SOGs used in training evolutions Yes Yes Policy manual available Yes Yes Reviewed for consistency Yes Yes Yes, not reviewed yet–they are Yes, in consultation with legal Reviewed for legal mandates new–(Legal reviews them prior to counsel adoption) Training on policies provided Yes Yes Top three critical issues identified Yes Yes Communication Internal Communications Yes–weekly command staff, board Yes, labor relations is monthly, prep meetings twice a month, Regularly scheduled staff meetings command staff is monthly, meeting finance meeting weekly, Labor- (fire department) with on duty battalion chief once a Management quarterly, division day chiefs monthly One-note minutes kept & sent to Written staff meeting minutes Labor relations minutes are kept attendees Special advisory (logged, Memos Yes, but mostly e-mail numbered, & archived) No–discontinued due to poor Member newsletter readership–use all-postings as a No wide distribution of e-mails Use of strategic planning teams– No, chief goes to each shift in Member forums also occasionally use two-way those circumstances video teleconferencing Open door policy Allows staff to bounce ideas Yes Vertical path clearly identified Yes–published & reinforced Yes, follows chain of command (chain of command)

West Metro–Wheat Ridge Fire Protection Districts Cooperative Services Feasibility Study

Survey Component West Metro FPD Wheat Ridge FPD External Communications No newsletter, but an annual No newsletter, but an annual Community newsletter report to the community report to the community Website is interactive and kept Website current–home page solicits Website is kept current community feedback Blue ribbon for financials, facilities Advisory committee(s) Yes, as the need arises & apparatus ongoing Complaint process Citizen complaints on line Direct to chief via email or phone Community survey Yes Not yet, but likely to use in future

Discussion: The regulatory documents which should be in place for an agency to guide personnel and avoid chaos includes rules and regulations as well as policies and procedures. Accompanying these documents should include a definition of the distinctions between the various document types, potential consequences for failure to abide by these documents, a process for updating them, and a process for employee feedback. All of these elements are in place for both West Metro and Wheat Ridge. In addition, both agencies’ fire chiefs have identified the top three critical issues facing their agencies, which are as follows:

Table 8: Critical Issues Critical West Metro FPD Wheat Ridge FPD Issues Long-term sustainability (same high level of Financial, very low mill levy until 2013 1 service into the future) (5 mill levy in 2013) 2 Embed ourselves into the health care system Lack of ALS capability Maintaining a response capability to the high 3 risks in our community (community risk reduction Diversity of the communities served that goes beyond fire & EMS response)

Internal communication within any agency is critical to work plan alignment between line personnel and staff. The time and energy required of management to communicate in all directions internally can be daunting, yet both districts’ fire chiefs have committed the necessary time and energy to maintain a high degree of communication.

The West Metro fire chief conducts a weekly command staff meeting and a separate weekly finance meeting, with the chief managing notes from the meetings and sending a summary to the attendees for accountability. In addition, board preparation meetings are conducted twice a month with the same accountability process in place. In addition to these meetings, internal communication occurs in the form of e-mail memoranda, member forums, and occasional two-way video teleconferencing. The fire chief ascribes to an open door policy, while reinforcing operational matters following the chain of command.

West Metro–Wheat Ridge Fire Protection Districts Cooperative Services Feasibility Study

The Wheat Ridge fire chief conducts daily meetings with the on duty battalion chief, monthly meetings with command staff, and monthly labor relations meetings (including volunteer representation). Minutes are kept of the labor relations meetings. In addition to these meetings, internal communication occurs in the form of special advisories (which are logged, numbered, and archived), and physical visits by the fire chief to each crew on each shift. The fire chief believes in an open door policy while reinforcing operational matters following the chain of command.

For external communication, West Metro uses an electronically published annual report to inform the community of its activities and issues. The district’s website is robust and provides the visitor with opportunities to provide feedback and file complaints or questions. The district occasionally uses community surveys to solicit additional, focused feedback.

Wheat Ridge uses an electronically published annual report to inform the community of its activities and issues. The district also manages and regularly updates a thorough website that shares information with the community about its activities and issues. The district does use citizen advisory committees in the form of blue ribbon committees for financial issues, facilities, and apparatus. These committees are ongoing. There is no clear process for citizens to file complaints and the district has not used community surveys in the past but anticipates using them in the future.

RECOMMENDATIONS: • WMFPD should establish citizen forums on topics of broad community interest to engage and reinforce ownership by the public. • WRFPD should establish a clear process for citizens to file complaints.

West Metro–Wheat Ridge Fire Protection Districts Cooperative Services Feasibility Study

Table 9: Documents, Records, & Security Survey Component West Metro FPD Wheat Ridge FPD Document Control Process for public records access Yes Yes, brand new policy Locked in file cabinet & office, Hard copy files protected Yes archived records locked in quartermaster’s area Off-site back-up and server Computer files backed up back-up–moving toward cloud- Yes, backed up on site based Reporting & Records Records kept by computer Yes Yes Operating system Windows 7, migrating to 8 Windows 7 Periodic Reports to Elected Officials Financial report Yes Yes Management report Yes Yes Operational report Yes Yes Annual report produced Annual report produced Annual report produced Distributed to others Yes Yes Analysis of data provided Yes Yes Required Records Maintained Incident reports Yes Yes Patient care reports Yes Yes, part of incident report Exposure records Yes Yes Yes, Scott Health & Safety SCBA testing Yes, contracted with Bob Fuss maintains Hose testing Yes Yes Yes, Diversified Testing Ladder testing Yes conducts Pump testing Yes West Metro Fleet Breathing air testing Yes, Scott Health & Safety tests Will be testing Vehicle maintenance records Yes, SAFER Software West Metro Fleet Gas monitors calibrated Yes Yes Security Yes, magnetic card readers at all Key locks and combination Building security facilities punch codes at all stations Yes, magnetic card readers or Office security Keys key sets at all offices Password protected, but not Password protected and Computer security required to change them changed every six months periodically Vehicle security Staff vehicles locked Staff vehicles locked Capital inventory maintained Yes Yes

West Metro–Wheat Ridge Fire Protection Districts Cooperative Services Feasibility Study

Survey Component West Metro FPD Wheat Ridge FPD Yes, annually (anything over Yes, mostly based on apparatus Asset security system used $5,000) inventories Not performed separate from Inventory interval Annual daily rig checks Monetary Controls Used Cash access controls No cash on hand No cash on hand Credit card controls Senior staff have credit cards Senior staff have credit cards Credit cards are limited to Purchasing controls Established by policy $2,000, except fire chief which is $9,000

Discussion: The important documents the districts manage are secured and protected, with public access to those records provided for in the policies of both agencies. The hard files are secured under lock and key, and electronic records are protected by back-up systems.

Most records are electronic for both agencies. Both districts use a PC platform and Windows 7 operating system, although West Metro is in the process of migrating to Windows 8. Both fire chiefs issue reports to their elected officials consisting of financial reports, management reports, operational reports, and an annual report which includes analysis of the data contained in the report.

The two districts maintain incident, patient care, and exposure records; hose test records; and gas monitor calibration records. Both districts contract out the self-contained breathing apparatus (SCBA) testing and maintenance, as well as the breathing air testing. West Metro conducts its own ladder testing and also conducts pump testing and vehicle maintenance records for itself and for Wheat Ridge. Wheat Ridge contracts out ladder testing to a third party.

Both agencies maintain appropriate building security, with West Metro utilizing magnetic card readers at all facilities and offices. Wheat Ridge uses keyed locks and combination punch codes at all stations and keyed locks for all offices. Computers are secured at both agencies with password protection. West Metro changes the passwords every six months. Wheat Ridge does not require the passwords to be changed. Both agencies secure their staff vehicles while at the fire stations and all other emergency response units are secured within their fire stations. Capital inventory is maintained for both agencies and an asset security system is used. West Metro has established a capital inventory threshold of anything over $5,000, while Wheat Ridge bases its capital inventory on the equipment carried on the apparatus. West Metro conducts annual inventories, whereas Wheat Ridge relies upon daily apparatus inventory checks, since their capital inventory is carried on their apparatus.

West Metro and Wheat Ridge have similar financial controls in place, with no cash on hand, credit cards issued only to senior staff (no shared cards), and spending authorization limits based on the card holder’s position within the organization.

West Metro–Wheat Ridge Fire Protection Districts Cooperative Services Feasibility Study

RECOMMENDATIONS: • WRFPD electronic records should be backed up off site or otherwise protected against computer or facility compromise. • WRFPD should establish a regular interval for requiring a password change on logins.

West Metro–Wheat Ridge Fire Protection Districts Cooperative Services Feasibility Study

Staffing & Personnel Management A staffing and personnel review looks at those systems and resources devoted to supporting the personnel within the departments. Personnel management specifically looks at the processes, salaries, and benefits in place to support the personnel. It includes a review of personnel management and considers policies and handbooks, reports and record-keeping, compensation systems, disciplinary processes, counseling services, new hire recruitment and processing, testing and promotion processes, and member retention efforts and programs (this last being most applicable to volunteer programs). Staffing reviews the personnel assignments and shift configurations to determine appropriate resource levels in order to ensure sufficient resources are in place and available to fulfill the mission of the agency. Such an assessment also includes a review of staff allocation, scheduling, and career and volunteer firefighter/EMS distribution.

Table 10: Personnel Policies, Systems, & Processes Survey Component West Metro FPD Wheat Ridge FPD Policies, Rules, Regulations, & Operational Guidelines Human resource manager Shannon Rush Bob Olme Personnel policy manual maintained Yes Yes, updated Dec. 2014 Manual provided at initial hiring Yes Yes Company officers do training Training provided Yes per month Periodic review & update Yes Yes Retention program established NA No Reports & Records Four separate files on each Personnel records maintained employee: medical, personnel, Yes benefits, background checks Application retained; Test is Application retained Yes, with test retained for 3 years & deleted Historical records archived Yes, per state retention law Yes Performance evaluations retained Yes Yes Injury & accident records retained Yes Yes Health & exposure records maintained Yes Yes

Discussion: The information shows that both departments have employee manual(s) and have a process to update them on an on-going basis. Both departments train on the information found within the manuals as necessary. Both departments retain the types of records required by law.

It appears that both agencies maintain records appropriately. WMFPD maintains a sophisticated records system with separation of employee records according to the areas governed by specific laws and restrictions. This is a good process that keeps confidentiality of medical records and other sensitive documents protected at a higher level.

West Metro–Wheat Ridge Fire Protection Districts Cooperative Services Feasibility Study

Table 11: Disciplinary Process Survey Component West Metro FPD Wheat Ridge FPD Progressive discipline; PIP action plans Disciplinary policy established Yes Discipline database maintained Policy is posted on the intranet Disciplinary process communicated Yes Yes All discipline not related to compensation is with the fire Appeal process provided Yes chief; compensation impacted discipline is through arbitration Recent litigation EEOC settled by favorable ruling None Pending litigation None None

Discussion: Both departments have disciplinary processes that are clearly defined and available to all employees. There is a defined process ending with an appeals process. The appeals process for WRFPD allows the fire chief to make the final ruling on all actions except where the discipline affects the compensation of the employee. If it does, the appeal is heard through an arbitration process. There is no pending litigation against either department. The WMFPD appeals process goes through the fire chief, Board of Directors, and Civil Service Committee.

The recruitment process for both agencies is essentially the same. WRFPD does not conduct recruitment activities as there have been a sufficient number of individuals of suitable quality vying for positions. As a larger organization, WMFPD reaches out in many different ways to encourage the hiring pool of qualified individuals to be as large as possible. Both departments do their due diligence in finding the best suited individuals to fill the vacant positions. This includes minimum qualifications, references, and background checks. Both have established physical standards and medical reviews prior to hire which includes a drug screening. Both have psychological testing to determine the suitability for hiring. WMFPD takes this one step further with a polygraph test. All candidates take competency tests and are interviewed to determine their qualification levels.

West Metro–Wheat Ridge Fire Protection Districts Cooperative Services Feasibility Study

Table 12: Applications & Testing Survey Component West Metro FPD Wheat Ridge FPD Application & Recruitment Process Career fairs, Social media, Recruitment program Not needed Craigslist, Firehouse magazine Application on line Written test Application with resume Physical agility test Assessment FF2 Application process Oral boards Oral board Establishes a two or three year Chief interview list Qualification check Yes Yes Fire investigators do the criminal background and Reference check Yes neighborhood canvassing about individual Background check Yes Yes Physical standards established Yes Yes Knowledge testing Written, 100-question Yes Interview Yes Yes Medical exam required Yes, with drug screen Yes, with drug screen Psychological exam required Yes, with polygraph as well Yes Testing, Measuring & Promotion Process Completion of JPRs based on Annual skills review through scenarios by training over 3 Periodic competence testing training years Promotional assessment Assessment for promotion NFPA 1582 and arduous level Annually, Physical Ability Test Periodic physical competence testing pack test; going to same testing (PAT) and Treadmill Test (MET) process as WMFPD Uniform & civilian annually; Civilian pay for performance Annual evaluation have written Periodic performance review tied to completing goals up to a goals and improvement plans 1/3 of high end of range pay increase Promotional testing Yes Yes

West Metro–Wheat Ridge Fire Protection Districts Cooperative Services Feasibility Study

Discussion: The steps in place for both agencies are sufficient for a valid hiring process that will select the best, most qualified candidates. Ongoing evaluations, testing, and promotional processes are important for maintaining the quality of the personnel for their career with the department. WMFPD does perform competency testing on skills annually through the company training evaluations. It also does an evaluation of officer competency if the situation requires it. WMFPD employs an annual Performance Appraisal which acts as “…an overall barometer of the member’s level of engagement and effectiveness.” By policy this is not, however, meant to identify specific performance or behavioral issues. WRFPD has a process to assess the necessary job performance requirements (JPRs) over a three- year period for all firefighters and officers.

Physical fitness is a high priority for a firefighter not only to accomplish the job, but also for longevity and good health after their career is over. Both departments conduct a physical evaluation, although they differ in measurement and approach. Both departments require medical evaluations and a physical fitness evaluation. WMFPD specifies a 10–12 METs (Metabolic Equivalent of Task) generally for firefighters as a mandatory fitness for duty. Members on the hazardous material team must maintain a 12 METs minimum. WMFPD also requires a completion of the Physical Ability Test (PAT) under a combined maximum time of 8:30. WRFPD has used the arduous pack test that is routinely used in the wildland firefighting environment to measure the minimum level of fitness. The fire chief reports that the district is converting to the same testing process that WMFPD uses as a better defined and a more defensible evaluation of fitness level.

The salaries of uniformed and civilian employees are shown in the following survey table. WRFPD has only one civilian employee as other administrative support functions are outsourced or performed by on-duty firefighters. For all comparable positions, the salary for that position is higher in WMFPD than in WRFPD. Besides the salary compensation, there are some additional pay and benefits offered for a variety of reasons. Most departments offer additional pay for individuals to obtain and maintain certifications of some form. WMFPD offers a differential for paramedic certification, and technician pay for personnel that take on the additional responsibility of participating on special teams. WRFPD offers differentials for specific training in addition to what is required of all members or for performing duties over and above their normal scope. Each department gives longevity pay based on time on the job. WRFPD provides 2 percent increase each year only for the first six years. WMFPD offers a 2 percent increase after every five years of employment through the 29th year.

West Metro–Wheat Ridge Fire Protection Districts Cooperative Services Feasibility Study

Table 13: Compensation Survey Component West Metro FPD Wheat Ridge FPD Compensation, Point System, & Benefits Uniformed Employee Compensation, FT Annual Fire Chief $149,000 $111,000 Deputy Chief $133,803 $94,934 (FM) Division Chief $130,803 N/A Assistant Chief/Battalion Chief $125,703 $85,200 Captain $89,400 N/A Lieutenant $82,523 $57,596 Engineer $75,646 $52,569 Firefighter/Paramedic $74,768 N/A Firefighter Top Grade $68,769 $41,558 Firefighter I Entry Level $44,700 $40,538 Deputy Fire Chief/Fire Marshal $133,803 $92,756 Captain/Deputy Fire Marshal $89,400 $56,430 Asst. FM/Lieutenant $82,523 N/A Asst. FM/Inspector $80,185 $54,074 Additional Compensation EMT premium pay No No Paramedic pay $225/mo; $100 officer No Clothing allowance No; wear and replace No; wear and replace  2% increase every 5 years to 24 years capped at $9K for civilian employees Longevity pay  2% increase every 5 years to 29 2% per year for 6 years years no cap below chief's rank however there is a $15,000 cap for chief officers  75% Tuition & books; capped at $4K/member/year & $24K Incentive pay (base salary) lifetime cap Associate’s degree $500/year  50% Tuition and books for Other specialty pay Bachelor’s degree $1,000/year civilian employees capped at Master’s degree $1,500/year $5,500/member/year Doctorate degree $2,000/year  Chiefs – $7,500 cap per year and $36,000 lifetime cap

West Metro–Wheat Ridge Fire Protection Districts Cooperative Services Feasibility Study

Discussion: The salaries for each department seem to be in line with salaries relative to their comparable size of departments. For additional information on salaries and benefits in Colorado departments, it is recommended that the Fire Department Compensation report, published each year by the Mountain States Employers Council in cooperation with the Colorado State Fire Chiefs, be consulted.

Most fire agencies have other benefits such as uniform provision or educational assistance/incentives that serve to produce a desired result within the department. With uniforms, the intent is to provide members with uniforms that are both fit for safety and provide a professional appearance to the public. This can be accomplished by requiring personnel to purchase their own, providing a uniform allowance for the employee to purchase when necessary, or providing replacements whenever the particular piece of uniform needs replacement. Both departments have chosen to provide uniforms as they wear out. This process provides the employer the most control, ensuring a professional image and safe work force.

The pursuit of education is being recognized by progressive departments as important in the development of their personnel, producing better officers for future leadership. Both departments support education, but in different ways. WMFPD provides assistance with tuition and books while WRFPD provides incentive pay after the degree is obtained. It is important to encourage continued education to improve leadership in the future; both methods are effective.

The area of pension benefits is important to provide for individuals and families of employees and volunteers. WRFPD pays for Social Security for their civilian staff members and provides for a defined benefit plan through the Fire and Police Protection Association (FPPA) for its firefighting employees. WMFPD provides Social Security for its part-time civilian employees while providing their full-time civilian employees with a defined benefit pension through FPPA. The uniformed personnel also have a defined benefit program with FPPA. WRFPD and WMFPD firefighting staff contribute 8.5 percent into this pension with an additional 8 percent contributed by the employer. WMFPD also provides three different 457 plans into which personnel can make additional voluntary contributions. WMFPD provides for a retirement health saving plan by contributing $50 per month for each employee into this plan. The plan is available after retirement for health-related expenditures to be withdrawn tax-free.

While only WRFPD has volunteers currently serving, both departments have had volunteers in the past; both have a volunteer pension plan that continues to be funded to meet those retiree pension obligations. For the volunteer pensions, both departments will have some on-going financial responsibility to keep them actuarially sound.

For WRFPD volunteers that are not under the state plan for volunteer pension, the district has a Length of Service Award Program (LOSAP), which is funded by the district for each year of service. These plans belong to the individual and will be taken with them if they leave their volunteer service.

West Metro–Wheat Ridge Fire Protection Districts Cooperative Services Feasibility Study

Table 14: Employee Benefits Survey Component West Metro FPD Wheat Ridge FPD Social Security Only paid on PTEs Civilian staff SS paid Workers’ compensation SDA Pool SDA Pool FPPA Defined Benefit plan FPPA Defined Benefit plan Pension 8.5% Employee / 8% District 8.5% Employee / 8% District (Both Civilian and Uniform) (Uniformed) Three 457 plans ICMA, Nationwide Deferred compensation No and Fidelity 80/20 programs PPO2, PPO3, Kaiser PPO 2 Cigna Employee –145.60/mo. Employee $0, Employee+1 –257.28/mo; Employee +1 $7.35/mo. Medical insurance Employee+ Children- 219.76; Employee + Family $96.06/mo. Family –380.02, 80/20 split Employee + Children $39.77/mo. Retiree 20YOS 50/50 premium; ends 12/31/2017 Dental insurance Yes Yes LT disability civilian or FF Both short-term disability and Short- & long-term disability insurance FF – FPPA plan or ING over 55yrs long-term disability when disabled 90 days standard ins. Volunteers – $10K Life insurance 1 x salary up to $100K Paid Staff – $50K Vision insurance Yes None Survivor income benefit FPPA pension benefit FPPA pension benefit $20K on every employee Additional life insurance No w/medical insurance plan Volunteer compensation No No Uniformed personnel: Years 1-3 48 hrs/yr; Years 4-6 144 After year 1: hrs/yr; Years 7-9 240 hrs/yr; Years Years 1-5 – 144hrs/yr 10-21 288 hrs/yr; Years 22+ 336 Years 6-9 – 192hrs/yr Vacation hrs/yr Years 10-19 – 288 hrs/yr Civilian after first year: Years 19+ – 336 hrs/yr Years 1-4 80 hrs/yr;Years 5-9 120 Can sell back but no carryover or hrs/yr; Years 10-14 160 hrs/yr; retirement buyout Years 15+ 200 hrs/yr Line: 144 hrs/year Civilian: 116 hrs/yr personal time off; Rollover cap 864 for line After first year: Rollover cap 480 for civilian 144 hrs/year Sick Buyout 100% of unused over cap No carryover each year at 1 for 1; uniform 100% No payout if max less than max 50%; civilian retirement 25+ years 100% buy out

West Metro–Wheat Ridge Fire Protection Districts Cooperative Services Feasibility Study

Discussion: As shown in the preceding table, the departments demonstrate commitment to providing benefits for their members.

Both departments provide medical health insurance. WMFPD provides three plans whereas WRFPD provides one. It is typical for larger departments to have sufficient numbers of personnel to provide multiple plans. This is an advantage of being in a larger organization. Both agencies provide dental insurance but only WMFPD provides vision insurance.

Both departments offer paid holidays. WMFPD has ten designated days while WRFPD has eight. Other benefits such as disability insurance, life insurance, vacation, and sick leave are provided by both departments with variations on the amount of benefit provided.

Both departments have set limits to monitor their unfunded liability relative to what they can afford. In almost all areas, the salary and benefits for WMFPD exceed those provided by WRFPD. An advantage of consolidation will be that the salaries and benefits will be better for the WRFPD employees as they will enjoy the “buying power” of a larger pool of people and the comparison of wages for a larger organization.

Table 15: Employee Health Survey Component West Metro FPD Wheat Ridge FPD Counseling Services Peer support team CISM trained Resources available no formal Critical incident stress debriefing Department psychologist EAP EAP and Medical covered Employee assistance program Yes Not formally Substance abuse in-patient Intervention program treatment options outlined Yes, but not formally in policy Administrative Procedure #1509 Health & Safety Medical standards established Yes, NFPA 1582 Yes, NFPA 1582 Periodic medical exam Yes, graduated based on age Yes, annually Yes, safety captain in training is No official safety committee but Safety committee established responsible now accomplished through labor Membership Yes No Meetings Yes No Meeting minutes Yes No

West Metro–Wheat Ridge Fire Protection Districts Cooperative Services Feasibility Study

RECOMMENDATIONS: • WRFPD should set up a formal counseling program through an employee assistance program (EAP), a chaplaincy program, or both. • WRFPD should establish a formal safety committee with equal representation of labor and management to address workplace risks and exposures, as well as accidents and injuries.

Table 16: Personnel Assignments Survey Component West Metro FPD Wheat Ridge FPD Administration & Other Support Staff Fire Chief 1 1 Deputy Fire Chief, Administration 1 Deputy Fire Chief, Operations 1 Deputy Fire Chief, Life Safety 1 1 Division Chief, Emergency Mgmt. 1 Division Chief, Training 1 Division Chief, Field Operations 1 Division Chief, EMS 1 Division Chief, Support Services 1 EMS Captain 1 Training Captains 3 Training Lieutenants 3 Training Center Support Admin 1 Staffing/Accreditation Captain 1 Dep. Fire Marshal Captains 2 Asst. Fire Marshal PR Lieutenants 3 Asst. Fire Marshal Construction 2 Inspectors Asst. FM Code Compliance 1 Lieutenant Inspector Asst. FM Code Enforcement 2 1 Inspectors Fire Investigation Team, Lieutenant 1 Investigator 3 (on line assignment) 1 volunteer COTF1 Program Manager 1 COTF1 Training Manager 1 Finance Director 1 Accountant 1 Payroll Technician 1

West Metro–Wheat Ridge Fire Protection Districts Cooperative Services Feasibility Study

Survey Component West Metro FPD Wheat Ridge FPD AP/AR Accounting Technician 1 Human Resource Specialist 1 HR Recruitment/Personnel 1 HR Benefits 1 Executive Assistant 1 Media Specialist/PIO 1 Courier/Warehouse Technician 1 EMS Health Specialist 1 Information Technology Director 1 Network Administrator 2 PC Technician 1 Wellness/Workers’ Compensation 1 Manager Communications Manager 1 Dispatch Supervisor 4 Lead Dispatchers 4 Dispatchers 8 Fleet Services Manager 1 Fleet Administrative Assistant 1 Shop Foreman 1 Mechanics 5 Emergency Vehicle Technician Facilities Maintenance Manager 1 Facilities Maintenance Technician 1 USAR Cache Manager 1 USAR Assistant Cache Manager 1 PT (1 FT) Life Safety Education Specialist 1 1 volunteer Administrative Assistant 1 Life Safety Administrative Asst. 1 Receptionist 1 Total Administrative & Support Staff 79 (30 uniformed days & 49 civilian) 4/2 volunteers Percent Administrative & Support to 20.6% (14.2% excluding additional 13.0% total services–see narrative) Emergency Service Staff Battalion/District Chief 6 2/3 volunteers Captain 24 Safety and Medical Lieutenants 3 0/3 volunteers

West Metro–Wheat Ridge Fire Protection Districts Cooperative Services Feasibility Study

Survey Component West Metro FPD Wheat Ridge FPD Lieutenant 47 8/2 volunteers Engineer 55 9 Firefighter, paramedic 137 Firefighters 27 12/3 volunteers Investigators (certified peace 3 officers) Total operational staff 305 31/11 volunteers Fire department total 384 34/12 volunteers % of operational officers to 39.3% 12.8% firefighters Use of Career & Volunteer Personnel Career Schedule Length of normal duty period 48 hours 48 hours 192 hrs in 24 days; 10 hours OT; 240 hrs in 28 days; 28 hours OT; FLSA period non-worked hours are sick, non worked hours are sick, bereavement, or emergency leave bereavement, or paid time off leave Duty hours per week 56 56 Normal shift begins 0700 (D-shift) 0700 Call-back requirements Yes mandatory No Residency requirements Colorado & CO license None Standby duty requirements Volunteer per contract None Operational Career Services Fire suppression Yes Yes EMS/rescue, first response Yes Yes EMS, advanced life support Yes No Specialized rescue Yes Yes, ice Fire prevention inspections Yes Yes Emergency management Yes No Public education Yes Yes Hazardous materials response Operational Operational+ (level) Volunteer Services Chaplain Yes No Friday afternoon club for education Civilian administrative volunteers No group Responsibilities & Activity Levels of Personnel Assignment of Routine Duties By position Yes Yes By areas of personal interest Yes Yes

West Metro–Wheat Ridge Fire Protection Districts Cooperative Services Feasibility Study

Survey Component West Metro FPD Wheat Ridge FPD Special Duties AssignIs the ed by: Bid Yes, seniority No Duty assignment Transfer if qualified No Areas of personal interest Yes Yes All ranks are subject to divisional assignments. Divisional Day list No assignments are normally a minimum of 2 years. Committees & Work Groups Quarterly reviews with physician EMS quality management SAM officer review adviser Active peer support & chaplain Chaplain/Peer Support No program Training No committee; day assignment Yes Safety & Health SPT strategic Yes No planning team Fleet SPT Yes No Accreditation SPT Yes No

Discussion: The ratio of administrative and support personnel-to-total employees in fire districts is typically between 15-18 percent. However, most fire districts do not provide their own dispatch services, fleet maintenance division, or FEMA Urban Search & Rescue function representing the State of Colorado. Such is the case with West Metro, who has a ratio of 21 percent with these additional services, but a ratio of 14.2 percent without them. Wheat Ridge is at 13 percent. This is advantageous for a blending of the two departments. There are not a great deal of support personnel at WRFPD that would increase the ratio and yet they would benefit from the additional support personnel at WMFPD.

WMFPD utilizes a D-shift to fill vacancies caused by vacation leave and other scheduled leave. This reduces the number of times that personnel that are off-duty are called to work an overtime shift. The use of the D-shift can be very effective in reducing overtime and is again an advantage of a larger department.

Another advantage for WRFPD is the availability of a Peace Officer Standards and Training (POST) board- certified fire investigator on every shift that, if consolidated, would be available for response in the cities currently served by the WRFPD.

West Metro–Wheat Ridge Fire Protection Districts Cooperative Services Feasibility Study

Community Planning The Wheat Ridge Fire Protection District includes nearly all of the City of Wheat Ridge as well as all of Edgewater, Mountain View, and portions of Lakeside and Lakewood. The City of Wheat Ridge is the primary jurisdiction and is representative of the community within the fire district.

In 2013, the City of Wheat Ridge had a population of 30,950 which is projected to grow to 37,554 by 2035. Nearly one-third of the households in the city are one person, and more married couples in Wheat Ridge have no children than have children. In 2008, 20 percent of the population was over 65 years of age. The size of Wheat Ridge is 9.5 square miles. According to 2009 statistics on land use, 43 percent of the city is single family residential, 17 percent is commercial, and 7 percent is multifamily residential. Only 12 percent, or 588 acres, are vacant or agricultural. Approximately 77 percent of the commercial structures in Wheat Ridge were built before 1980.2

The city is likely to grow by development but not by expanding its boundaries. The largest area of open land available for development is west of Youngsfield and south of CR 58. A portion of this property is outside of the WRFPD. Aggregation and redevelopment in the future of commercial properties is likely to be the main source of economic growth.

There is an interest for a renaissance within the city by developing areas of commercial growth and increasing renovation of older homes.3 Areas of the city might well see renovation similar to that in Denver, particularly in the Highlands area. The potential of future growth is high with strong leadership. Currently there are two high profile projects that are moving forward. One is a development at 38th and Kipling which will include a Sprouts grocery in a shopping center with a five-story memory care facility. Another is at 38th and Wadsworth which will have a Wal-Mart and a neighborhood market. There is interest to create a Town Center. There are many parcels currently within designated Urban Renewal Areas (URAs) designed to help spark the redevelopment.

The WRFPD has agreements with the city manager’s office which exempt the district from tax increment financing within the URAs. This is important to protect the tax base for operating the fire district. Without these agreements, the tax value of the property will remain the same even though the new properties have a much higher value. This is important as the redeveloped properties may raise service demand without the tax revenue to support the service.

It is anticipated that the growth and redevelopment will not spark the need for additional stations although there may be need for additional engine or ambulance companies. The WRFPD station that is located in Edgewater is being used by agreement through 2017 for $1 then the annual lease will be $50,000 per year. This provides an opportunity to serve the Edgewater community from other station(s).

Like WRFPD, West Metro Fire Protection District also will experience some development and redevelopment within the district boundaries. Possible growth within the WMFPD will likely be in the Roxborough Park area and the Highway 470 corridor. Both of these areas can be handled with existing stations. More redevelopment is likely to occur toward the north end of the district. An area of

2 Envision Wheat Ridge, Appendix A. 3 Reflected on the WheatRidge2020.org website: Retrieved 15 October 2015.

West Metro–Wheat Ridge Fire Protection Districts Cooperative Services Feasibility Study

redevelopment may also be near the West Line Light Rail corridor. Redevelopment is anticipated to cause stress on existing stations as the emphasis is on increased density and senior housing. The impact will be felt if the service demand grows for existing companies within the stations. Another area of redevelopment is in the area of Jewel and Wadsworth with Green Gables redeveloping residential and light commercial properties.

While Lakewood also uses URAs to spark development, WMFPD and the City of Lakewood have an intergovernmental agreement to negotiate for the increment funds since the fire district overlays the TIF (Tax Increment Fund) boundaries.

There are no planning issues found that would prevent the effective combination of the two fire districts. The most immediate impact may be increased medical responses due to the elderly demographics within Wheat Ridge as well as the approaching bubble of baby boomers within the populace as a whole. The growth in senior housing will likely increase call volumes. Development in general will increase the demand on fire protection. Consolidation, should it occur, along with increased revenues from community growth, will help the districts meet the elevated fire risks.

West Metro–Wheat Ridge Fire Protection Districts Cooperative Services Feasibility Study

Service Delivery & Performance In this section ESCI reviews service delivery and performance within the study area. Observations are made concerning service delivery for the study area as a whole; and for the individual agencies where appropriate and depending on the available data.

The data used in this section of the study is derived from incident and response records provided by both WMFPD and WRFPD. WMFPD also provided ESCI with the latest update (2015 update—includes 2014 data) to its Standard of Cover (SOC) document. ESCI refers to this document throughout the Service Delivery and Performance analysis for additional information concerning response performance and goals.

ESCI reviewed the WMFPD Standard of Cover document and found the SOC to be a comprehensive and accurate deployment analysis of the WMFPD service area and resources. Fire department leaders appropriately incorporate the findings of the SOC into operational and planning decisions that affect service delivery and performance within the WMFPD service area. Note that ESCI’s service delivery analysis is meant to provide a general overview of service delivery and performance for both WMFPD and WRFPD. ESCI acknowledges that the WMFPD SOC is written to a level of detail beyond the scope of this study. Demand Analysis In the demand analysis, ESCI reviews historical and current service demand by incident type and temporal variation within the study area as well as WMFPD and WRFPD individually. The following figure displays service demand in the study area from 2012 through 2014.

Figure 3: Study Area Historical Service Demand (2012–2014) 35,000

30,000

25,000

20,000

15,000

10,000

5,000

0 2012 2013 2014 Study Area 27,560 29,298 31,388 WMFPD 24,810 25,499 27,564 WRFPD 2,750 3,799 3,824

West Metro–Wheat Ridge Fire Protection Districts Cooperative Services Feasibility Study

During the time period displayed, demand for fire department services increased for both WMFPD and WRFPD and the overall study area. WRFPD service demand grew by approximately 39 percent, while service demand increased by over 11 percent in the WMFPD service area. Overall, service demand within the study area increased by approximately 13.9 percent between 2012 and 2014.

In the following figures, ESCI examines service demand by incident category. In this analysis, incidents are summarized into three broad categories. The National Fire Incident Reporting System (NFIRS) categorizes incidents into nine classifications. ESCI summarizes these nine incident classifications into three categories of Fires, EMS/Rescue, and Other. The first figure displays the classifications in each category and the following table summarizes service demand by year and category.

Table 17: NFIRS Classification & Incident Category

NFIRS Incident Description Classification Category 1 Fire Fire 2 Rupture or Explosion Other 3 EMS/Rescue EMS 4 Hazardous Condition Other 5 Service Call Other 6 Good Intent Call Other 7 False Call Other 8 Severe Weather Other 9 Other Other

West Metro–Wheat Ridge Fire Protection Districts Cooperative Services Feasibility Study

Figure 4: Study Area Service Demand by Incident Category (2012–2014) 100%

80%

60%

40%

20%

0% WMFPD WMFPD WMFPD WRFPD WRFPD WRFPD 2012 2013 2014 2012 2013 2014 Fire 1.7% 1.6% 1.5% 2.8% 1.9% 1.7% Other 30.3% 29.5% 28.5% 21.9% 21.2% 18.8% EMS 68.0% 69.0% 70.1% 75.3% 76.9% 79.4%

Both WMFPD and WRFPD provide EMS first responder service within their jurisdictions. West Metro provides advanced life support (ALS) first responder and ALS transport in its service area. Wheat Ridge provides basic life support (BLS) first responder service. As expected, EMS responses comprise the majority of historical service demand throughout the study area. As displayed in the preceding figure, EMS incidents represented approximately 70.1 percent of 2014 WMFPD service demand. Over 79 percent of 2014 incidents in WRFPD were EMS incidents. The next figure summarizes service demand by incident category for 2012 through 2014 within the overall study area.

Table 18: Study Area Service Demand by Incident Category (2012–2014) Percent of Service Incident Category Demand EMS 70.0% Other 28.3% Fire 1.6%

In the study area, approximately 70 percent of service demand is EMS in nature. While actual fire incidents make up only a small part of overall workload; incidents classified as ‘other’ (false alarms, service calls, hazardous conditions, etc.) make up over 28 percent of the service demand. These percentages are similar to that of other fire jurisdictions in the region and nationally.

West Metro–Wheat Ridge Fire Protection Districts Cooperative Services Feasibility Study

Temporal Variation Service demand is not static, and workload within the study area varies by time of the year, day of the week, and time of day. The following figures illustrate how service demand varied by month, day of week, and hour of day during 2014. This analysis begins by evaluating service demand by month.

Figure 5: Study Area Service Demand by Month (2014) 10% 10%

8% 8%

6% 6%

4% 4%

2% 2%

0% 0%

WMFPD WRFPD Study Area

In 2014, service demand varied month to month for both agencies but not widely. Overall service demand varies from a low of 7.7 percent in February (contributed to by fewer days in the month) to a

Figure 6: Study Area Service Demand by Day of the Week (2014)

18% 18% 16% 16% 14% 14% 12% 12% 10% 10% 8% 8% 6% 6% 4% 4% 2% 2% 0% 0%

WMFPD WRFPD Study Area

high of 9.0 percent in July. The next figure looks at service demand by day of the week.

West Metro–Wheat Ridge Fire Protection Districts Cooperative Services Feasibility Study

Again, service demand by day of the week varies for each jurisdiction. Sundays demonstrate the lowest number of incidents for both WMFPD and WRFPD. In general, the highest service demand occurred during the workweek. As with monthly service demand, the range is narrow; and does not represent a significant increase in workload. The last analysis of temporal variation looks at service demand by hour of the day.

Based on the hour of day analysis, both jurisdictions begin to see increases in service demand between the hours of 5:00 AM and 7:00 AM. Service demand peaks during the afternoon; and gradually declines during the evening. Over 65 percent of the total service demand in the study area occurred between 9:00 AM and 9:00 PM in 2014. The increase in service demand during the day is significant and predictable. There is an opportunity to anticipate increased workload and improve response performance by deploying additional apparatus or personnel during the busiest times of the day.

Figure 7: Study Area Service Demand by Hour of the Day (2014)

8% 8%

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1 2 3 4 5 6 7 8 9

10 11 13 14 15 16 17 18 19 20 21 22 23

Noon Midnight

WMFPD WRFPD Study Area

Geographic Service Demand In addition to the temporal analysis, it is useful to examine the geographic distribution of service demand. In the following figure, ESCI plots incident locations and calculates the mathematical density of 2014 service demand in the overall study area.

West Metro–Wheat Ridge Fire Protection Districts Cooperative Services Feasibility Study

Figure 8: Study Area Incident Density (2014)

West Metro–Wheat Ridge Fire Protection Districts Cooperative Services Feasibility Study

In the WMFPD service area the highest incident density occurs in the City of Lakewood, north of Highway 285. The greatest incident density in the WRFPD service area occurs in the Station 71 and 73 response areas. Other areas of higher service demand are scattered throughout the study area. In both districts, EMS incidents represent the majority of service demand. The following figure displays the distribution of incidents categorized as a fire in the incident data provided. This includes structure fires, vehicle fires, wildland fires, or any incident coded as an actual fire.

West Metro–Wheat Ridge Fire Protection Districts Cooperative Services Feasibility Study

Figure 9: Study Area Fire Incidents (2014)

West Metro–Wheat Ridge Fire Protection Districts Cooperative Services Feasibility Study

Fire incidents are the least frequent incident type in the data set. However, the previous figure demonstrates that actual fires are distributed throughout the study area in a pattern similar to the overall incident density. The two preceding figures illustrate that fire stations in the study area are generally well placed to provide a timely response to the majority of service demand incidents. Distribution Analysis In the distribution analysis, ESCI presents an overview of the current distribution of fire district resources within the WMFPD and WRFPD service area. The following figure displays the study area and the boundaries of the two jurisdictions. It encompasses approximately 109.4 square miles, comprising 101 square miles in the WMFPD service area and approximately 8.4 square miles in the WRFPD service area.4

4 The WMFPD SOC document states that the service area is approximately 109 square miles. ESCI believes that areas served outside of the district boundary shown in the map above account for the discrepancy. ESCI’s estimate of 101 square miles for the WMFPD service area only includes the area labeled as WMFPD in that figure.

West Metro–Wheat Ridge Fire Protection Districts Cooperative Services Feasibility Study

Figure 10: WMFPD and WRFPD Study Area

West Metro–Wheat Ridge Fire Protection Districts Cooperative Services Feasibility Study

In the following figure, ESCI uses 2010 census data to illustrate population density throughout the study area. Population density is classified as Urban, Suburban, and Rural using the recommendations of the CFAI Standard of Cover document.

Figure 11: Study Area Population Density (2010 US Census Bureau Data)

West Metro–Wheat Ridge Fire Protection Districts Cooperative Services Feasibility Study

The previous figure demonstrates that the study area is largely urban, with suburban areas scattered through the region. Areas with rural population densities are primarily undeveloped land or areas designated as parks or open land. The WMFPD service population is primarily concentrated east of Highway 470 in the City of Lakewood and unincorporated portions of Jefferson County within the district. The WRFPD service area is primarily urban in nature, with areas of suburban population density scattered through the service area. The WMFPD SOC estimates the population of the district as 247,585. ESCI uses 2010 census block data to estimate the population of the WRFPD service area, which includes approximately 88 percent of the City of Wheat Ridge, the town of Edgewater, and a small portion of Lakewood, as approximately 28,000. The total estimated population of the study area exceeds 275,000.

As part of the risk analysis component of the Standard of Cover process, WMFPD has incorporated Census Bureau data into the planning areas identified in the SOC. The following figure is an excerpt from the WMFPD SOC.

West Metro–Wheat Ridge Fire Protection Districts Cooperative Services Feasibility Study

Figure 12: Population Density and Planning Areas – WMFPD SOC

West Metro–Wheat Ridge Fire Protection Districts Cooperative Services Feasibility Study

The preceding figure includes the estimated population in each of the population density classifications. Population density is part of the community risk analysis for the respective planning areas within the District. The following figure displays the planning areas established in the study area.

Figure 13: Study Area Station Response Zones

West Metro–Wheat Ridge Fire Protection Districts Cooperative Services Feasibility Study

WMFPD utilizes the planning areas or station response zones displayed in the previous figure to identify risk and measure response performance within its service area. This provides jurisdictions such as WMFPD, which serves a large and diverse area, to accurately measure performance throughout the service area. WRFPD has not established planning areas or fire management zones. Response performance is measured for the service area as a whole; there are no formal performance standards in place. WRFPD should take steps to develop planning zones and response standards.

The Insurance Services Organization (ISO) is a national insurance industry organization that evaluates fire protection for communities across the country. A jurisdiction’s ISO rating is an important factor when considering fire station and apparatus distribution; since it can affect the cost of fire insurance for individuals and businesses. For ISO purposes, response areas are measured at 1.5 miles of travel distance on the existing road network for each engine company and 2.5 miles for a ladder company (aerial apparatus) on existing roadways. For a structure to be in a protected rating for insurance purposes, it must be within five miles of a fire station. The next figure examines current station and apparatus distribution in the study area based on ISO criteria.

West Metro–Wheat Ridge Fire Protection Districts Cooperative Services Feasibility Study

Figure 14: Study Area Engine Company Distribution (ISO Criteria)

West Metro–Wheat Ridge Fire Protection Districts Cooperative Services Feasibility Study

Virtually all of the built upon portions of the study area are within five miles travel of a WMFPD or WRFPD fire station. Approximately 50 percent of the road network in developed portions of WMFPD and 88 percent of the WRFPD road network is within 1.5 miles of a study area fire station. Similar to the engine company criteria, ISO recommends that truck companies (aerial apparatus) be placed at 2.5-mile intervals in areas with a certain number of buildings over three stories. The following figure demonstrates the distribution of ladder companies throughout the study area.

West Metro–Wheat Ridge Fire Protection Districts Cooperative Services Feasibility Study

Figure 15: Study Area Ladder Company Distribution (ISO Criteria)

West Metro–Wheat Ridge Fire Protection Districts Cooperative Services Feasibility Study

WMFPD staffs ladder companies at Station 3, Station 10, and Station 14. WRFPD staffs a ladder company at Station 72. WMFPD has an ISO protection rating of 3 for properties within 1,000 feet of an adequate water supply and a rating of 9 for properties for areas with a limited water supply. Areas with limited water supply are identified in the WMFPD SOC. The ISO protection rating in the WRFPD service area is 2 throughout the entire district. The ISO Public Protection Classification ranges from 1 to 10, with 1 being the best rating possible. In general, based on the ISO criteria, fire stations and apparatus are well placed to provide coverage in the study area.

The ISO Public Protection Classification program only addresses fire suppression activities and is primarily concerned with the protection of property. Of equal importance to all hazard jurisdictions such as WMFPD and WRFPD, is the travel time required to respond from a fire station to any emergency call for service. The following figure demonstrates travel time over the existing road network. Travel time is calculated using the posted speed limit and adjusted for negotiating one-way streets, turns, and intersections.

West Metro–Wheat Ridge Fire Protection Districts Cooperative Services Feasibility Study

Figure 16: Study Area Travel Time Model, Four and Eight Minutes Travel Time

West Metro–Wheat Ridge Fire Protection Districts Cooperative Services Feasibility Study

The preceding figure illustrates that the majority of the urban areas within the study area are within four minutes (or less) travel of a WMFPD or WRFPD fire station. At eight minutes (or less) travel time study area apparatus can potentially reach nearly the entire road network in the study area. More importantly, the following figure demonstrates the percentage of emergency service demand (2014) that is within four minutes travel of a WMFPD or WRFPD fire station.

West Metro–Wheat Ridge Fire Protection Districts Cooperative Services Feasibility Study

Figure 17: Study Area Emergency Service Demand & Travel Time (2014)

West Metro–Wheat Ridge Fire Protection Districts Cooperative Services Feasibility Study

National consensus standards, such as NFPA 1710, specify that career staffed, urban fire departments should deploy resources such that 90 percent of emergency service demand can be reached in four minutes travel or less.5 The preceding figure illustrates that based on the four-minute travel model; WRFPD apparatus can potentially reach over 94 percent of current emergency service demand in four minutes travel or less. With a much larger service area consisting of urban, suburban, and rural population densities, the travel time model reveals that over 84 percent of 2014 WMFPD emergency incidents occurred within four minutes travel of a West Metro fire station. Overall, 86 percent of 2014 emergency service demand was within four minutes travel or less of a study area fire station.

Note that the travel time network presented above only represents potential travel time from a fire station and does not model actual travel time or total response time performance. Response performance is discussed in the Response Performance analysis. ESCI notes that WMFPD identifies reducing travel time as a goal in the 2015 update to the district’s SOC. Concentration Analysis The concentration analysis examines the ability of WMFPD and WRFPD to assemble multiple resources (both apparatus and personnel) such that sufficient resources are available to safely and effectively mitigate an emergency incident. Standard fire service procedures call for the entire initial assignment to arrive in a reasonable amount of time after the first apparatus arrives on the scene of an emergency. This is to ensure that sufficient apparatus and personnel arrive soon enough to mitigate the incident before substantial damage occurs or the incident becomes uncontrollable.

The WMFPD first alarm assignment for a structure fire response to a residential structure is three engines (one as Rapid Intervention Team [RIT]), two trucks, two medic units, one district chief, one SaM (Safety and Medical), and one investigator.. WRFPD calls for three engine companies (includes an automatic aid engine), a tower (aerial apparatus), a medic, and a battalion chief. The following figure displays the portions of the study area within eight minutes travel of a first alarm assignment for a moderate risk (single-family residence) structure fire.

5 NFPA 1710, Standard for the Organization and Deployment of Fire Suppression Operations, Emergency Medical Operations, and Special Operations to the Public by Career Fire Departments (National Fire Protection Association 2010).

West Metro–Wheat Ridge Fire Protection Districts Cooperative Services Feasibility Study

Figure 18: Study Area – Full First Alarm, Eight Minutes Travel Time

West Metro–Wheat Ridge Fire Protection Districts Cooperative Services Feasibility Study

The limiting factor in assembling a first-alarm assignment in eight minutes for both agencies is the distribution and travel time for specific resources called for in the first-alarm assignment. In the previous map, the lack of a command officer at Station 14 negatively affects WMFPD’s ability to assemble a full first-alarm assignment in the southern portions of the district. In 2014, WMFPD eliminated this position due to budget constraints. Examination of the GIS data reveals that the majority of the urban portions of both jurisdictions are within eight minutes travel of a first-alarm assignment when the command officer is not included in the first alarm calculation. ESCI notes that shift command officers are assigned to a specific station. However, these command officers spend much of their time in service moving throughout the service area and are routinely available in a reasonable amount of time throughout the service area.

It takes more than apparatus to develop an effective response force (ERF). Sufficient personnel are required to carry out emergency operations. Using the minimum staffing per apparatus, ESCI uses GIS to demonstrate the number of operational personnel arriving within eight minutes travel in the study area.

West Metro–Wheat Ridge Fire Protection Districts Cooperative Services Feasibility Study

Figure 19: Study Area – Effective Response Force, Eight Minutes Travel Time

West Metro–Wheat Ridge Fire Protection Districts Cooperative Services Feasibility Study

The first alarm assignment for a moderate risk structure fire for both WMFPD and WRFPD brings 13 to 15 personnel to the scene of an emergency incident. Figure 19 demonstrates that distribution of personnel throughout the study area provides an effective response force to urban portions of the study area. The more rural areas west of Highway 470 and the Station 15 planning area are not within eight minutes travel of the effective response force for a moderate risk structural fire incident. WMFPD has established a travel time goal for suburban/rural portions of its service area; which addresses the travel time limitations in the service area. Reliability Analysis The workload of emergency response units can be a factor in response time performance. The busier a given unit, the less available it is for the next emergency. If a response unit is unavailable, then a unit from a more distant station must respond, increasing overall response time. Although fire stations and response units may be distributed to provide quick response, that level of performance can only be obtained when the response unit is available in its primary service area.

Unit hour utilization (UHU) describes the amount of time that a unit is not available for response because it is already committed to another incident. The larger the number, the greater its utilization and the less available it is for assignment to subsequent calls for service. The following tables display the total time WMFPD or WRFPD first out apparatus were committed to an incident in 2014 and expresses this as a percentage of the total hours in the year.

Table 19: WMFPD Unit Hour Utilization (2014) Apparatus Average Time Committed UHU D1 25:51 3.92% D2 32:43 3.97% D3 28:00 1.74% E1 17:13 15.32% E2 16:24 9.98% E3 17:01 10.31% E4 21:31 8.17% E5 19:28 3.85% E6 22:47 5.17% E7 18:56 11.98% E8 18:32 8.30% E9 25:31 3.62% E10 19:41 9.72% E11 24:01 2.12% E12 20:56 8.88% E13 20:59 4.13% E14 20:00 4.89% E15 24:17 1.68% M1 34:08 26.57% M2 34:44 25.02%

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Apparatus Average Time Committed UHU M6 51:22 16.34% M7 36:32 23.40% M8 40:11 25.01% M9 40:33 11.65% M12 42:52 18.78% M13 44:23 14.08% M15 51:45 2.90% R4 24:34 3.15% SAM1 26:54 4.54% T3 18:58 5.03% T10 16:41 3.39% T14 25:23 2.28%

Table 20: WRFPD Unit Hour Utilization (2014) Apparatus Average Time Committed UHU BC 71 20:33 2.17% E 71 16:05 5.93% T 72 17:01 2.63% B 72 18:37 1.01% E 73 20:57 4.49%

Unit hour utilization varies by apparatus and agency throughout the study area. Not surprisingly, the WMFPD medic units demonstrate the highest UHU rates in the study area. Fire service publications such as the CFAI Standards of Cover, 5th Edition, suggest that UHU rates in the range of 25 to 30 percent can negatively affect response performance and lead to personnel burnout issues. UHU rates for medic units are discussed in greater detail in the EMS analysis. The unit hour utilization rate for WMFPD apparatus is consistent with that of similar fire departments with similar service demand.

Unit hour utilization for WRFPD apparatus does not appear excessive for any single apparatus; and is not approaching a level that would cause concern. Note that as the unit hour utilization rate for an apparatus increases; the amount of time for other duties such as training, inspections, public education, and station/apparatus maintenance decreases.

West Metro–Wheat Ridge Fire Protection Districts Cooperative Services Feasibility Study

Simultaneous or concurrent incidents can affect a fire department’s ability to muster sufficient resources to respond to additional emergencies. The following tables demonstrate the percentage of the time that study area resources were committed to more than one incident at the same time in 2014.

Table 21: Study Area Concurrent Incidents (2014) Concurrent Incidents Percentage Single Incident 12.38% 2 22.22% 3 23.07% 4 18.21% 5 12.13% 6 6.65% 7 3.08% 8 or More 2.25%

Table 22: WMFPD Concurrent Incidents (2014) Concurrent Incidents Percentage Single Incident 14.1% 2 23.7% 3 23.7% 4 17.8% 5 11.0% 6 5.6% 7 2.6% 8 or More 1.6%

Table 23: WRFPD Concurrent Incidents (2014) Concurrent Incidents Percentage Single Incident 87.4% 2 11.7% 3 or more 0.9%

Just over 12 percent of 2014 service demand in the study area occurred as a single event. Over 87 percent of the time, two or more incidents were in progress in either the WMFPD or WRFPD service area. The majority of service demand in the study area occurs in the WMFPD service area and the percentage of concurrent incidents in WMFPD mirrors the percentage seen in the overall study area. In the WRFPD service area, over 87 percent of incidents occur individually.

West Metro–Wheat Ridge Fire Protection Districts Cooperative Services Feasibility Study

Although apparatus workload and the percentage of simultaneous incidents within the study area is high; the distribution and number of resources in the study area appear adequate to handle multiple different requests for fire department resources. Operational guidelines for moving apparatus, mutual and automatic aid agreements, and technology such as automatic vehicle location (AVL) and closest unit dispatch protocols ensure that the closest available unit is dispatched to emergency incidents; which reduces the impact of workload factors on response performance. Response Performance In the performance analysis, ESCI examines emergency response performance during 2014 in the WMFPD and WRFPD study area. The data used for this analysis is 2014 emergency responses extracted from records management software (RMS) of both jurisdictions. Non-emergent incidents, mutual/automatic aid incidents outside the study area, incidents cancelled prior to arrival, data outliers, and invalid data points are removed from the WMFPD and WRFPD data sets.

Following the recommendations of the Commission on Fire Accreditation International (CFAI), WMFPD captures and reports all components of total response time including:

• Call Processing Time—Amount of time between when a dispatcher answers the 911 call and resources are dispatched. • Turnout Time—Time interval between when units are notified of the incident and when the apparatus are en route. • Travel Time—Amount of time the responding unit actually spends travelling to the incident. • Total Response Time—Total Response Time equals the combination of “Call Processing Time,” “Turnout Time,” and “Travel Time.”

Unfortunately, WRFPD does not capture the Call Processing Time data point. Response time is measured from the time units are dispatched to when the first unit arrives on scene. This is a common practice for fire departments, especially jurisdictions dispatched by regional dispatch centers; where the fire jurisdiction has no direct control over dispatch procedures. Since WRFPD is dispatched by the West Metro Communications Center (the dispatch center for WMFPD) there is an opportunity for increased effectiveness by working with the West Metro Communications Center to gather call processing performance data.

The first two figures in this analysis illustrate overall emergency response time frequency for WMFPD and WRFPD. Response performance is calculated using “percentile” measurement. The use of percentile calculations for response performance follows industry best practices and is considered a more accurate measure of performance than “average” calculations.

West Metro–Wheat Ridge Fire Protection Districts Cooperative Services Feasibility Study

Figure 20: WMFPD Emergency Response Frequency (2014)

6000 100%

90% 5000 80%

70% 4000 60% 90th Percentile 3000 Response Time: 07:36 50%

40%

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0 0%

08:00 16:00 24:00 00:00 01:00 02:00 03:00 04:00 05:00 06:00 07:00 09:00 10:00 11:00 12:00 13:00 14:00 15:00 17:00 18:00 19:00 20:00 21:00 22:00 23:00 25:00 26:00 27:00 28:00 29:00 30:00 Minutes

In this figure, total response time is calculated from when the call is received at the dispatch center to when the first apparatus arrives on scene. The first WMFPD apparatus arrived at over 66 percent of emergency incidents in six minutes or less. At the 90th percentile (90 percent of the time) the first WMFPD apparatus arrived in 7 minutes 36 seconds or less. The size and diversity of the WMFPD service area affects overall response performance. As discussed later in this section, WMFPD has adopted response performance goals for urban, suburban, and rural population densities. WMFPD tracks and reports response performance based on the differing population densities in the SOC document.

In the following figure, WRFPD emergency response time is calculated from when the fire department is notified of an incident to when the first unit arrives on scene. Approximately 57 percent of the time the first WRFPD apparatus was on scene in four minutes or less. The first WRFPD apparatus arrived at 90 percent of 2014 emergencies in 5 minutes 30 seconds or less.

West Metro–Wheat Ridge Fire Protection Districts Cooperative Services Feasibility Study

Figure 21: WRFPD Emergency Response Frequency (2014) 1200 100%

90% 1000 80%

70% 800 60%

600 50% 90th Percentile Response Time: 05:30 40% 400

CountofIncidents 30%

20% 200 10%

0 0%

04:00 09:00 00:00 01:00 02:00 03:00 05:00 06:00 07:00 08:00 10:00 11:00 12:00 13:00 14:00 15:00 16:00 17:00 18:00 19:00 20:00 Minutes

As discussed throughout the service delivery analysis, WMFPD has adopted response performance goals based on the findings of its Standard of Cover document. WRFPD has not adopted formal response performance goals; however, the department informally strives for a goal of six minutes response time- measured from the time units are dispatched to the arrival of the first WRFPD apparatus. WMFPD states in the SOC that the NPFA 1710 standard will be used as a goal, along with local information.6 Both WMFPD and WRFPD provide service to urban service areas and the NFPA 1710 standard is appropriate. The following figure displays the data points and recommendations of the NFPA 1710 standard.

Table 24: NFPA 1710 Standard Response Element NFPA Recommendation Call Processing7 60 seconds or less at 90th percentile 60 seconds or less at 90th percentile—EMS Turnout Time 80 seconds or less at 90th percentile—Fire Travel Time 240 seconds (fire & EMS)

The NFPA 1710 standard provides performance goals for each of the components of total response time and provides a point of reference against which performance can be measured. The standard is not a

6 NFPA 1710, Standard for the Organization and Deployment of Fire Suppression Operations, Emergency Medical Operations, and Special Operations to the Public by Career Fire Departments (National Fire Protection Association 2010). 7 NFPA 1221: Standard for the Installation, Maintenance, and Use of Emergency Services Communications Systems.

West Metro–Wheat Ridge Fire Protection Districts Cooperative Services Feasibility Study

mandate. However, it represents industry best practices and should be viewed as a desirable goal. The following table is taken from the 2015 update to the WMFPD SOC and demonstrates the current WMFPD benchmark performance goals.

Table 25: Current WMFPD Performance Goals (2015 SOC) Structure Wildland Hazardous Technical Benchmark Performance Objectives EMS Fires Fires Materials Rescue Urban 01:00 01:00 01:00 01:00 Alarm Pick up Suburban 01:00 01:00 Handling to Dispatch 01:00 01:00 01:00 Rural 01:00 Urban 01:20 01:00 01:20 01:20 Turnout Turnout Time Suburban 01:00 01:20 Time 1st Unit 01:20 01:20 01:20 Rural 01:00 Travel Time Urban 04:30 04:30 04:30 04:30 1st Unit Suburban 06:00 04:30 06:00 07:00 07:30 Travel Distribution Rural 08:00 Time Travel Time Urban 08:00 05:30 11:00 07:00 ERF Suburban 05:30 26:00 16:00 14:00 16:00 Concentration Rural 07:30 Total Urban 06:50 06:30 06:50 06:30 Response Time Suburban 08:00 06:50 1st On-Scene 08:20 09:20 09:50 Total Rural 10:00 Response Distribution Time Total Urban 10:20 06:30 13:20 09:20 Response Time ERF Suburban 07:30 28:20 18:20 16:20 18:20 Concentration Rural 09:30

The WMFPD benchmark performance goals are designed to address actual conditions present in the WMFPD service area. While the NFPA 1710 standard is utilized in some cases (alarm handling time, turnout time) travel time and total response time goals vary based on population density and historical response time data. The following table demonstrates 2014 performance for the various components of total response time within the study area.

Table 26: WMFPD and WRFPD Components of Total Response Time (2014) Agency Call Processing Turnout Time Travel Time Response Time WMFPD 01:30 01:44 05:22 07:36 WRFPD Not Recorded 02:04 04:42 05:31

West Metro–Wheat Ridge Fire Protection Districts Cooperative Services Feasibility Study

Call Processing Time As discussed, WRFPD does not record call processing time. WMFPD call processing time performance falls short of the both the NFPA standard and the SOC benchmark standard. Continued monitoring and reducing call processing time (alarm handling) is identified in the WMFPD as a goal. The SOC also documents improvements in this parameter since 2011. ESCI notes that even though WRFPD does not report call processing time, it is reasonable to assume that WRFPD call processing times are similar to WMFPD values; since both agencies are dispatched by the same dispatch center.

Turnout Time Neither WMFPD nor WRFPD meet the turnout time performance goals in the NFPA 1710 standard (or the SOC benchmarks). WMFPD documents a plan to address turnout time performance in the SOC. Turnout time is one component of total response time that fire department personnel have some ability to control, given training, information, and proper facilities that allow for the rapid and efficient movement of responders.

Travel Time Travel time is typically the longest component of total response time. The distance between the fire stations and the location of the emergency influences total response time the most. The size of the WMFPD service area is reflected in its travel time performance. WMFPD has developed travel time performance goals that address the extent and varying population density throughout the service area. With a relatively small service area (8.4 square miles) and three stations WRFPD demonstrates the best travel time performance in the study area.

Total Response Time Total response time is the sum of call processing time plus turnout time plus travel time. Each has an effect on total response performance. Neither WMFPD nor WRFPD meet the NFPA 1710 performance goals. WMFPD has a methodology for improvement in the SOC document. ESCI recommends that WRFPD work to develop response performance goals and a system to collect the data necessary to monitor response performance. The next set of tables demonstrate WMFPD and WRFPD response performance, summarized by planning areas in the case of WMFPD and stations areas in the WRFPD service area.

West Metro–Wheat Ridge Fire Protection Districts Cooperative Services Feasibility Study

Table 27: WMFPD Response Performance by Planning Area Station Call Processing Turnout Time Travel Time Response Time Station 1 01:36 01:33 04:54 07:04 Station 2 01:28 01:39 04:45 06:53 Station 3 01:29 01:33 04:46 06:57 Station 4 01:33 01:44 05:21 07:35 Station 5 01:27 01:40 06:04 08:24 Station 6 01:38 02:01 05:21 07:47 Station 7 01:27 01:44 04:36 06:47 Station 8 01:21 01:54 04:57 07:08 Station 9 01:35 01:44 07:41 10:21 Station 10 01:29 01:48 05:45 08:09 Station 11 01:28 01:49 07:32 09:52 Station 12 01:29 01:49 05:31 07:48 Station 13 01:24 01:38 06:00 08:14 Station 14 01:24 01:44 05:32 07:45 Station 15 01:31 01:51 07:33 10:04

Performance by the 90th percentile is displayed for all the components of total response time and summarized by the WMFPD planning areas in the table above. Stations 9, 11, and 15 demonstrate the longest total response time interval. These three planning areas are composed of primarily rural or suburban portions of the service area; and demonstrate the longest travel times of the 15 WMFPD planning zones. The best total response time performance occurs in the Station 2, 3, and 7 planning areas; which also display the shortest travel time intervals.

Table 28: WRFPD Response Performance by Station Area (2014) Station Call Processing Turnout Time Travel Time Response Time Station 71 Not Reported 02:13 03:49 05:12 Station 72 Not Reported 02:08 04:23 05:50 Station 73 Not Reported 02:13 04:32 05:35

WRFPD Station 71 has the best travel time performance within the district, and predictably also demonstrates the best overall response time performance. The following two tables summarize response performance by incident category for each agency.

West Metro–Wheat Ridge Fire Protection Districts Cooperative Services Feasibility Study

Table 29: WMFPD Response Performance by Incident Category (2014) Category Call Processing Turnout Time Travel Time Response Time EMS 01:29 01:42 05:18 07:30 Fire 01:59 01:52 05:26 07:59 Other 01:30 01:49 05:41 08:03

Table 30: WRFPD Response Performance by Incident Category (2014) Category Call Processing Turnout Time Travel Time Response Time EMS Not Reported 02:03 04:33 05:26 Fire Not Reported 02:18 05:43 06:07 Other Not Reported 02:13 05:15 05:51

In these tables, incidents are summarized as EMS, Fire, or Other, using the criteria displayed in Table 17. Response performance for both jurisdictions varies within a range of approximately 30 to 35 seconds, depending on the incident category. Factors such as increased turnout time due to donning personal protective equipment (turnouts and SCBAs) prior to responding to fires and slightly shorter travel times for smaller medic units are common causes for differences in response performance by incident category. Incident Control & Management Both WMFPD and WRFPD employ the Incident Command System (ICS) for tactical incident management and the National Incident Management System (NIMS) as their standard management protocol. These methodologies for managing emergency incidents are widely accepted industry standards and are incorporated appropriately into the operations of both of the study area jurisdictions.

For a unified incident management approach to be effective, two components are necessary. The first is a process of cross training personnel from each agency collaboratively with their neighboring responders. Second, incident management techniques need to be employed as a matter of routine, even during small emergencies, to establish the system as a matter of course.

Both agencies use ICS for emergency scene management when operating singly or with other fire or EMS agencies during joint operations. ICS training is included in the annual training programs of each agency. WMFPD and WRFPD frequently participate in multi-company, multi-jurisdiction training. The study area jurisdictions all have standard operating guidelines or procedures (SOGs or SOPs) addressing the use of the incident command system and scene safety procedures during emergency operations. WMFPD and WRFPD effectively utilize ICS and NIMS for emergency and non-emergency scene management.

West Metro–Wheat Ridge Fire Protection Districts Cooperative Services Feasibility Study

Mutual Aid There are numerous mutual aid agreements, both formal and informal, in place between fire, police, and emergency medical agencies in the WMFPD and WRFPD study area. Both jurisdictions participate in the regional mutual aid plan. Mutual aid agreements are in place between the study area fire jurisdictions and the surrounding fire jurisdictions. Mutual aid is typically employed on an “as needed” basis where units are called for and specified one by one through an Incident Commander.

Automatic aid agreements differ from mutual aid agreements in that under certain mutually agreed upon criteria, resources from the assisting agency are automatically dispatched as part of the initial response. These agreements facilitate closest unit dispatch to emergencies in boundary areas and allow for the dispatch of additional apparatus and personnel to specific predefined emergencies. The following figure demonstrates the mutual aid resources within eight minutes travel of the WMFPD and WRFPD study area.

West Metro–Wheat Ridge Fire Protection Districts Cooperative Services Feasibility Study

Figure 22: Study Area Mutual Aid Resources, Eight Minutes Travel

West Metro–Wheat Ridge Fire Protection Districts Cooperative Services Feasibility Study

The preceding figure demonstrates that large portions of the study area are within eight minutes travel of mutual aid resources. The next table displays the number of mutual or automatic aid responses for WMFPD and WRFPD during 2014.

Table 31: Study Area Mutual & Automatic Aid (2014) Aid Type WMFPD WRFPD Aid Given 436 27 Aid Received 265 33

Mutual or automatic aid responses (either given or received) represent approximately 2.2 percent of WMFPD responses during 2014. Approximately 1.6 percent of WMFPD responses involved mutual or automatic aid. While these types of responses are a small percentage of total service demand in the study area, mutual and automatic aid are utilized appropriately by both WMFPD and WRFPD.

West Metro–Wheat Ridge Fire Protection Districts Cooperative Services Feasibility Study

Emergency Medical Services Fire departments are uniquely positioned to respond rapidly to time-critical events. Having medically trained fire personnel responding from fire stations shortens the time between a life-threatening medical event and fire department intervention. This has been proven to save lives.

From a fiscal perspective, having a fire-based EMS system with cross-trained/dual-role firefighters allows the department to provide a broader range of services to its residents. Since firefighters are already at the scene of an emergency and providing care, it is logical that they provide ambulance transport to an appropriate healthcare facility. For area taxpayers, it is more fiscally advantageous to have a single publicly owned provider versus paying for two service-providers—one of which is privately owned and profit-based.

The goal of high-performance EMS systems is to deliver high quality, patient-centered care that produces the best outcomes for its patients. In order to accomplish this most effectively, EMS must include a number of inter-dependent components that comprise an emergency medical services delivery system. Each element of a comprehensive and effective EMS system contributes to the outcome of ill and injured patients. In addition, for optimal EMS delivery, the system should also be integrated within a community’s overall healthcare system. Having a single provider overseeing the management of these services creates a more nimble and flexible system to implement data-driven changes for improvements.

The leadership of both fire districts, as well as members of the community, have stressed the importance of their local fire-based EMS delivery model. The fire chiefs of both Wheat Ridge and West Metro emphasized the importance of emergency medical services in a potential fire district consolidation and, in particular, the medical transportation component. In a 2002 survey of the WMFPD’s residents, 82 percent of the respondents listed EMS as their first priority for essential fire department services.8

To determine the feasibility of merging EMS operations, ESCI evaluated various components of each district’s EMS delivery system. Based on this analysis, ESCI has concluded that it would be advantageous for the fire districts to combine EMS operations. It would allow the residents of the WRFPD to receive advanced life support and ambulance transportation from their local fire department and be more cost- effective than the current delivery model. For the WMFPD, it would result in a greater economy of scale, and enable the district to provide additional services that may not be currently available.

8 West Metro Fire Rescue—Standard of Cover (2014).

West Metro–Wheat Ridge Fire Protection Districts Cooperative Services Feasibility Study

General Description of the EMS System The Wheat Ridge Fire Protection District and West Metro Fire Protection District each provide different levels of emergency medical services (EMS) to their residents. The WRFPD provides first-response basic life support (BLS) using firefighters certified as emergency medical-IV technicians (EMT-IVs), while the WMFPD provides first-response advanced life support (ALS) with cross-trained/dual-role firefighter/paramedics.

In Wheat Ridge, ambulance transport and ALS is provided by a private, for-profit company with single- function paramedics. The WMFPD provides 911 emergent transport services for its residents, with private ambulance services providing interfacility and scheduled transports.

Wheat Ridge Emergency Medical Services Operating out of three fire stations, the WRFPD provides first-response BLS utilizing firefighters trained and certified as EMTs (with some capable of performing intravenous therapy). The majority of ALS ambulance transport service is provided by Rural/Metro Pridemark Paramedic Services.

Pridemark is a party to an intergovernmental agreement (IGA #RFP-11-31) with both the City of Wheat Ridge and the Wheat Ridge Fire Protection District to provide exclusive emergency ambulance service. The agreement specifically defines the ambulance response area and includes various performance criteria,including a response-time compliance requirement of six minutes or less, 90 percent of the time. In this system, the private service is not incurring any of the costs of the infrastructure to provide first- response services but does receive all of the transport revenue.

West Metro Emergency Medical Services The WMFPD operates out of 15 fire stations using a combination of engine, tower, and medic companies as first-response units staffed with firefighters certified as EMT-Basics or EMT-Paramedics. Each first- response apparatus is staffed with a minimum of one paramedic and equipped with a full complement of ALS equipment. The district also provides advanced life support ambulance transport with medic units deployed from nine fire stations (this will be discussed in more detail later in this report). These units are staffed with a minimum of one EMT and one paramedic.

Depending on the nature of the incident, a typical EMS response would include dispatching the closest first-response apparatus (engine, tower, or medic unit) to arrive and conduct a size-up, ensure scene safety, and initiate patient-care until arrival of the nearest medic unit. Emergency Medical Services Demand In order to determine the feasibility of consolidation, it was necessary to analyze EMS demand within each of the fire districts. A merger would have a substantial increase in call volumes and incident types and would likely have an impact on staffing, apparatus deployment, and other factors. It is important to note that the following data does not represent the quantity of patients seen by the fire districts but rather the volume of individual EMS incidents in which fire apparatus were dispatched.

West Metro–Wheat Ridge Fire Protection Districts Cooperative Services Feasibility Study

Table 32: Emergency Medical Services Demand

Survey Component West Metro FPD Wheat Ridge FPD Total EMS incidents dispatched 36,392 (2013–2014) 5,893 (2013–2014) Number cancelled en route and/or no patient 6,377 (2013-2014)* 1,102 (2013–2014) Percent of all incidents EMS for 2013–2014 only 70% 79% Percent of calls traumatic injury 32% 9% EMS represents what percent of total calls 68% 78.5% (2014) Percent of patients requiring ALS intervention 26% Not available Program in place to address frequent EMS users? Unknown Yes *Note: WMFPD combined total of “Canceled en route (EMS calls)” and “Checked for injuries and found none”

Wheat Ridge EMS Demand During the 60-month period from 2010 through 2014, the WRFPD was dispatched and responded to 11,892 EMS incidents; averaging 2,378 calls annually. During that period, Wheat Ridge saw a more than 40 percent increase in calls for emergency medical services. EMS accounted for approximately 76 percent of Wheat Ridge’s service demand between 2010 and 2014—of which approximately 91 percent were for non-traumatic medical problems.

In accordance with policy, the WRFPD is not dispatched to every EMS incident occurring within its service area. Therefore, the data does not necessarily reflect the total number of EMS calls or the potential number of medical transports. Since ambulance transport is provided by a private company, information on the number of annual transports, billing and collection rates, and percentage of patients requiring ALS was not accessible.

EMS incident data from 2013–2014 showed that 52 percent of Wheat Ridge’s calls were to residential locations (one or two-family dwellings, multifamily dwellings, residential board and care, other residential locations). Approximately 16 percent of incidents occurred in various healthcare-related facilities (i.e., nursing homes; clinics/doctor’s offices; and assorted hospitals and institutions), and another 11 percent on streets, roads, or highways.

West Metro EMS Demand West Metro has seen a steady annual increase in EMS calls over the previous five years. Since 2010, the number of EMS incidents has grown by nearly 21 percent. The number of EMS calls in 2014 rose nearly 10 percent over the previous year. Since the majority of first-response EMS is provided by the engine companies deployed from each of its 15 stations, most of the following data results will only include these apparatus unless otherwise specified.

West Metro–Wheat Ridge Fire Protection Districts Cooperative Services Feasibility Study

Figure 23: WRFPD & WMFPD—Annual EMS Incidents Dispatched

West Metro FPD Wheat Ridge FPD 20,500

18,500 19,051 16,500 15,671 17,341 16,573 14,500 16,399

12,500

10,500

8,500

6,500

4,500 2,906 2,987 2,131 1,807 2,061 2,500

500 2010 2011 2012 2013 2014

As noted previously, both fire districts have seen an annual increase in the demand for emergency medical services. One exception occurred in 2011, in which EMS calls in Wheat Ridge declined by 15 percent from the previous year. Between 2010 and 2014, the West Metro averaged a 5 percent annual increase in EMS demand while the Wheat Ridge averaged an 11 percent annual increase. Increased service demand could eventually decrease due to the recent (early 2015) implementation of priority dispatching by the WMFPD Communications Center. ESCI supports implementation of priority dispatch as a means to more efficiently deploy resources.

EMS Demand by Fire Station Using historical EMS incident call-volumes from 2013 and 2014, service demand by individual fire station is illustrated in the following figure. The percentage of the total combined incidents from both districts shows the top ten busiest stations. This represents the potential EMS call-volume distribution by station in the event the districts proceed with consolidation.

West Metro Stations 1 and 7 have significantly higher proportions of EMS calls when compared to the other stations—representing 18 percent and 11 percent of the total, respectively. The most frequent EMS incidents in Wheat Ridge occur in Station 71’s area, and account for 6 percent of the combined call volume. However, West Metro Stations 4 and 8 are nearly equivalent to Station 71’s frequency of calls.

West Metro–Wheat Ridge Fire Protection Districts Cooperative Services Feasibility Study

Figure 24: EMS Demand by Fire Station (calls dispatched for 2013–2014)

8,000

7,000 7,692

6,000

5,000

4,000 4,649

3,000

3,559

3,420

2,995

2,811

2,759 2,731

2,000 2,713

1,000

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1,449

1,416

992

1,097

1,041

1,013 469 0 422 1 2 3 4 5 6 7 8 9 10 11 12 13 14 15 71 72 73

EMS Incident Temporal Analysis An analysis of daily service demand indicated near equivalency between the two districts by hour-of- the-day (see the following figure). Both districts began to see an increase in EMS demand during the period between 0700–0800 hours (7:00 am–8:00 am). EMS call-volumes tended to peak during the time from 1100–1700 hours (11:00 am–5:00 pm) and started to decline into the late evening and early morning hours. The least frequent service-demand occurred between 0100–0600 hours (1:00 am–6:00 am). EMS demand in the two fire districts during these periods is consistent with most systems providing emergency medical response.

There were no statistically significant differences in either fire district concerning service-demand by weekday. Compared to the other weekdays, Wheat Ridge tended to have slightly fewer EMS calls on Saturdays and Sundays, while West Metro had slightly more on Fridays and Mondays. Neither were there noteworthy differences in service demand by months of the year.

West Metro–Wheat Ridge Fire Protection Districts Cooperative Services Feasibility Study

Figure 25: EMS Demand by Hour-of-the-Day (2010–2014)

5,500

5,000

4,500

4,000

3,500

3,000

2,500

2,000

1,500

1,000

500

Wheat Ridge West Metro

EMS Response Time Performance Response time is considered a key benchmark. It is a metric intended to reflect one aspect of an EMS system’s performance. Most sophisticated fire departments measure response times on a fractile basis with a 90 percent reliability. The components that comprise the total response time standard are described in detail under Service Delivery & Performance. This section of the report addresses response- time performance for all incident types.

Response Time Discussion It is beyond the scope of this study to conduct a more detailed analysis of EMS response times. Based on the incident data provided, ESCI believes that both West Metro’s first-response apparatus and medic units are underperforming in terms of the district’s defined target benchmarks, particularly in crew turnout-times. West Metro has developed a written plan to address turnout-time performance.

Although total response time is typically measured from time of call receipt until arrival on-scene, this does not always mean arrival at the patient’s side. Particularly in large urban communities, barriers such as multi-story buildings, basements or other impediments can prevent immediate access to patients. A number of EMS systems measure this in order to gain a better perspective of the time necessary to access patients. This is often referred to as the “vertical response time,” and one method to acquire this

West Metro–Wheat Ridge Fire Protection Districts Cooperative Services Feasibility Study

information is to have first-due apparatus notify their communications center via radio when they have arrived at the patient’s side.

In its performance goals, the WMFPD uses the same EMS response time standard for both first-due apparatus and medic units—which are different, depending on population density. This is inconsistent with NFPA 1710, and the district may be placing an unnecessary standard on its medic units. Except in rare cases, the need for shorter response times of an ALS transport unit does not improve patient outcomes. There is a growing body of evidence and research to support this contention.9

The following figure is a geographic information system (GIS) analysis that illustrates the extent to which each medic unit can arrive within an eight-minute travel time. Assuming a 60-second call processing time, a 60-second turnout time, and an 8-minute travel time, the map demonstrates that a medic unit can access nearly 100 percent of both districts within a total response time of 10 minutes or less when deployed from fixed locations.

9 See: Sword RA, Cone DC. Emergency medical services advanced life support response times: Lots of heat, little light. 2002; Acad Emerg Med. 9(4): 288–29; DeMaio VJ, Stiell IG, Well GA, et al. Optimal defibrillation response intervals for maximum out- of-hospital cardiac arrest survival rates. Ann Emerg Med. 2003; 42(2): 242–250; Pons PT, Haukoos JS, Bludworth W, Cribley T, Pons KA, and Markovchick V. Paramedic response time: Does it affect patient survival? Acad Emerg Med. 2005; (12):594–60.

West Metro–Wheat Ridge Fire Protection Districts Cooperative Services Feasibility Study

Figure 26: Medic Unit Eight-Minute Travel Times from Stations

West Metro–Wheat Ridge Fire Protection Districts Cooperative Services Feasibility Study

RECOMMENDATIONS: • The WMFPD should consider adopting a method of documenting (within the dispatch record) the time of arrival at the patient’s side (e.g., first-arriving unit notifies dispatch via portable radio when arriving at the patient’s side). . This data should be analyzed on occasion to enable better insight into the time necessary to access patients. • Consider publishing a monthly report for distribution among all employees of the district. This should include a list of each individual first-response apparatus and medic unit by shift and their respective turnout times and response times (excluding call-processing/CAD assignment times). . The report should be structured in a form that is non-threatening and non- judgmental but simply presents the previous month’s performance results.

EMS Training & Continuing Medical Education The importance and necessity of high-quality initial training and continuing medical education for EMS providers is indisputable. The Wheat Ridge Fire Protection District utilizes a shift battalion chief to manage training, along with the use of outside instructors from various sources, including the medical director. The West Metro EMS Division maintains responsibility for EMS training and continuing medical education (CME).

Certified EMS personnel in each district have consistently met state and local CME requirements. Paramedics complete the American Heart Association (AHA) Advanced Cardiac Life Support (ACLS) course every two years. Completion of Pre-Hospital Trauma Life Support® (PHTLS) or Basic Trauma Life Support (BTLS) is not mandatory. Neither is attendance to an AHA Pediatric Advanced Life Support (PALS) course or equivalent required. The WRFPD EMTs attend CPR refresher training annually while the WMFPD EMTs and paramedics attend every two years.

Table 33: Training & Continuing Medical Education

Survey Component West Metro FPD Wheat Ridge FPD State & local CME requirements met regularly? Yes Yes Attend ACLS during recertification period? Every 2 years Not applicable Attend PHTLS/BTLS during recertification period? Not required Not applicable Attend PALS or equivalent? Not required Not applicable Attend CPR training/refresher? Every 2 years Annually Basic clinical skills assessment/attestation? SAH1 Paramedic School Done during recertification Advanced/intermediate skills assessment? SAH1 Paramedic School Not applicable In-service EMS training/CME by medical director Yes Yes

West Metro–Wheat Ridge Fire Protection Districts Cooperative Services Feasibility Study

Survey Component West Metro FPD Wheat Ridge FPD Provided quarterly by the EMS officer/other conducts in-services SaM officer and/or EMS No; outside instructors used educator SAH1 provides EMS educator Other CME methods None (paramedic) 20 hours/week Field Training & Evaluation Program (FTEP) Yes No Designated Field Training Officers (FTO) Yes No Recertification dates tracked? Yes Yes

1 St. Anthony Hospital

West Metro reported to ESCI that basic, intermediate, and advanced skills assessments of paramedics are completed during the initial training at the St. Anthony Hospital (SAH) or Swedish HealthOne paramedic schools. Ongoing skills assessments are completed once every two years for those maintaining National Registry or every three years for those completing Colorado recertification. Basic skills assessments are completed by Wheat Ridge EMTs during their recertification process.

Each fire district’s medical director personally conducts in-service training and CME on an annual basis. The West Metro EMS Division staff directly conducts CME classes on occasion, while Wheat Ridge consistently uses outside EMS instructors. The WMFPD presents 1–2 hours of CME each month, and does case reviews the first Monday of each month. SAH provides an EMS educator (paramedic) 20 hours per week. CME is provided primarily by outside instructors and is occasionally supplemented by the EMS educator for the WMFPD. The EMS Division’s administrative staff person coordinates and schedules all of the CME.

For new paramedics, the WMFPD provides a comprehensive Field Training & Evaluation Program (FTEP) utilizing qualified personnel within the organization, and serving in the role of Field Training Officer (FTO). The WRFPD does not currently have FTOs or an FTEP in place for new EMTs.

Training & CME Discussion The coordination and scheduling of EMS training and CME does not currently appear to be a substantial burden on the EMS Division—due primarily to the EMS educator provided by St. Anthony Hospital. Coordination and scheduling of EMS training, as well as entering attendance records to support CME requirements, is one of the primary duties of the administrative assistant in the EMS division. While the EMS educator provides some of the content and assists with identifying additional instructors, it falls to the EMS division staff to schedule and coordinate all training.

ESCI evaluated the advanced clinical skills (airway management; vascular access, etc.) performance of the WMFPD’s paramedics over a two-year period. The results suggested that there is a considerable need to provide much more training and continuing education on advanced clinical skills. This should also include skills practice on both manikins and on live subjects in the hospital environment (if the local hospitals are willing to cooperate). If the district were to adopt annual mandatory clinical skills practice

West Metro–Wheat Ridge Fire Protection Districts Cooperative Services Feasibility Study

and CME, beyond the current minimum requirements, this would increase the demand on whichever division is responsible for EMS training and CME.

RECOMMENDATIONS: • In consultation with the physician advisor, consider adopting annual mandatory advanced skills performance practice and evaluation to ensure competency. • The WMFPD should consider evaluating the feasibility of transferring the responsibility of all EMS training and CME to the district’s Training Division. . If this occurs, the EMS Division should work with the Training Division to develop a prospective three-year CME and clinical skills assessment plan and schedule. . Topics should be based on mandatory state and local requirements (including National Registry), but also on results acquired from the EMS CQI process and local research.

Medical Direction The following section is a brief review of EMS medical direction provided to both fire districts. Strong medical direction, comprehensive patient-care protocols, and an effective medical director are important components of a high-performance EMS system. In Colorado, the terms “medical director” and “physician advisor” are occasionally used interchangeably. The medical director is responsible for establishing prehospital care protocols and ensuring the competency of EMS providers.

Table 34: Medical Direction

Survey Component West Metro FPD Wheat Ridge FPD Written patient-care protocols adopted Yes, Denver MPP1 Yes, Denver MPP1 Medical director board-certified in EM Yes. W. Peter Vellman, MD Yes. Jeffrey S. Beckman, MD Participated in NAEMSP fellowship? Unknown Unknown Other physicians assist with Other physicians assist with Assistant medical directors appointed? continuing education continuing education Frequency of medical director crew interaction Monthly QA meetings Annually 2–3 times (CME) Field response or ride-along by medical director No No

1Denver Metropolitan Prehospital Protocols

The EMTs and paramedics of the WRFPD and WMFPD operate under the Denver Metropolitan Prehospital Protocols, which have been developed by the Denver Metro EMS Medical Directors (DMEMSMD) group. This is a voluntary organization of regional EMS medical directors that work to develop consensus protocols and educational guidelines for EMS agencies in the area. Protocols are updated regularly; the current version is dated 2015.

West Metro–Wheat Ridge Fire Protection Districts Cooperative Services Feasibility Study

The EMS medical director (EMSMD) for the WRFPD is Dr. Jeffrey Beckman, who is a board-certified emergency medicine specialist affiliated with the Emergency Department at Lutheran Medical Center in Wheat Ridge. Dr. Beckman conducts CME for the WRFPD two to three times annually.

Dr. Peter Vellman serves as the EMSMD for the West Metro Fire Protection District. He is a board- certified emergency physician affiliated with St. Anthony Hospital as well as several other hospitals in the region. Dr. Vellman’s interaction with the district is primarily participation in monthly quality assurance meetings.

Medical Direction Discussion Consolidation of the two fire districts would produce an escalation in demand for EMS and a larger workforce of EMS providers. This could possibly increase the necessity for more comprehensive medical direction and additional interactions of the EMSMD with district personnel. There is value in having the EMSMD participate in regular ride-alongs with the medic units to observe field operations in addition to participating in more frequent case reviews, CME classes, and research. Dr. Vellman has appointed associate medical directors from within his group that also provide oversight and education, which results in greater capacity and less reliance upon him directly.

RECOMMENDATIONS: • The WMFPD should consider employing a part paid EMS medical director with expanded responsibilities (either as a part time employee or through a contractual arrangement). If he is willing and able, Dr. Vellman could fulfill this role. . Reimbursement should be consistent with industry standards. . This should include regular meetings and interaction with firefighters, and ride-alongs on the medic units.

Hospital Facilities & Online Medical Control Local hospital facilities are more than adequate for both districts. The WRFPD firefighters typically do not access online medical control, but the WMFPD paramedics notify on duty emergency physicians at any of the receiving hospitals. Online medical control is provided by physicians at St. Anthony’s hospital, regardless of the transport destination.

A GIS analysis of hospital locations in the region showed that one or more hospitals were accessible to the majority of the two fire districts within 10 minutes or less drive time; even during periods of high traffic. With the exception of the southwestern portion of the WMFPD, a trauma, cardiac and/or stroke center, was accessible within 10 minutes or less to most areas of the two districts. Continuous Quality Improvement Continuous quality improvement (CQI), total quality management (TQM), and quality assurance (QA) are terms often used interchangeably in emergency medical services. Regardless of what term is used, it is a process intended to ensure patient care standards are being met. For this report, the term CQI will be applied.

West Metro–Wheat Ridge Fire Protection Districts Cooperative Services Feasibility Study

A comprehensive clinical CQI program should include three components: A retrospective review of patient care reports after the fact, a concurrent real-time evaluation of patient care, and a prospective evaluation of any activity that occurs prior to being assigned to an incident. CQI can also include EMS operational performance evaluations. A good clinical CQI program tends to be non-threatening and non- punitive in instances of genuine clinical errors, with the primary goal of achieving the best care possible.

Wheat Ridge CQI The WRFPD has an internal EMS QA/QI committee, with regular meetings and case reviews conducted monthly with Dr. Beckman. Lessons learned are shared within the organization through regular reports, and feedback is provided to individuals when indicated. Patient refusals are typically documented in detail by Pridemark Ambulance and reviewed through an internal process. Cardiac arrest outcomes are not monitored, and no system is in place to determine patient outcomes. Key performance indicators specific to EMS have not been defined.

West Metro CQI The WMFPD maintains an internal EMS QA/QI committee as well, with participation from the medical director or physician designee. The Safety and Medical (SaM) officers and committee conduct case reviews, and the WMFPD publishes a performance report for the meetings. The SaM officers conduct a 100 percent review of all emergent cases and those requiring invasive procedures, along with a review of more than 95 percent of patient refusals. The EMS Division is currently developing a new scoring system to assist in evaluating EMS clinical performance.

West Metro has identified systemic key performance indicators for EMS in its strategic plan but does not have any that are specific to clinical performance. The EMS Division monitors the return of spontaneous circulation (ROSC) in cardiac arrest cases, but does not track final patient outcomes (i.e., discharged alive).

West Metro–Wheat Ridge Fire Protection Districts Cooperative Services Feasibility Study

Table 35: EMS Continuous Quality Improvement

Survey Component West Metro FPD Wheat Ridge FPD Internal committee Yes. QI/QA Committee Monthly with Dr. Beckman Lessons learned are shared? Yes Yes 100% review of emergent & Attempt to complete Case reviews conducted regularly invasive procedures monthly Case reviews conducted by? SaM Officer & QA Committee Dr. Beckman & QA group Medical director participates? Yes, or designee Yes Methods vary; hospitals provide Feedback given to individual providers Yes follow-up on significant cases PCRs spot-evaluated for accuracy? Yes No Annual or regular reports on QA/QI results Developing scoring system Yes Key performance indicators identified? Yes. System; strategic plan No Targeted case studies performed? Yes (assorted types) No Yes. Done by SaM officers; Patient refusals reviewed & what percentage? Pridemark refusal reviewed usually in excess of 95% Cardiac arrest outcomes monitored? Field ROSC only No Method(s) of determining outcomes No method utilized No method utilized

CQI Discussion As with the other components of EMS, adding more personnel and higher call volumes will result in a greater demand on EMS CQI. It is evident that the WMFPD has done an admirable job of developing a comprehensive EMS CQI program—despite constraints in administrative staff and funding. Although the EMS Division monitors ROSC in cardiac arrest patients, it may be more important to monitor patient survival rates. ROSC is a positive result but irrelevant if the patient is not discharged alive from the hospital. In addition, cardiac arrest cases are a small percentage of EMS incidents.

West Metro–Wheat Ridge Fire Protection Districts Cooperative Services Feasibility Study

RECOMMENDATIONS: • If additional administrative staff and funding can be acquired, the EMS Division should consider further development of its CQI program to ensure retrospective, concurrent, and prospective clinical evaluations (see the next section: EMS Administration). • The EMS Division should work with the local hospitals (particularly the medical records department) to develop a system for determining patient outcomes in cardiac arrest, severe trauma, and other critical conditions. • CQI should be targeted towards both ALS and BLS providers. • The CODE-STAT™ Data Review Software from Physio-Control should be acquired and used to give performance feedback to individuals who have performed CPR. • Good clinical performance should be recognized and noted among all staff.

EMS Administration Managing an emergency medical services system the size and complexity of the West Metro Fire Protection District requires considerable administrative staff and support. As previously discussed, there are numerous aspects comprising EMS which must be administered effectively to ensure suitable emergency medical care and transportation to the community.

Table 36: EMS Administration

Survey Component West Metro FPD Wheat Ridge FPD EMS administrator (full time; part time, none) Yes, full time No EMS Division Chief & EMS Rank and/or title captain, civilian EMS Not applicable administrator Other staff assigned to EMS administration SaM officers (mostly EMS) No Non-medical EMS SOPs written & maintained Yes No

The provision of EMS by the WRFPD is less complex than in the WMFPD, since it provides BLS only and is a non-transporting agency. Wheat Ridge does not provide full-time staff to administer EMS. The fire chief and other officers manage the administrative requirements for emergency medical services.

The WMFPD employs a full-time EMS division chief, one EMS captain, and one administrative assistant to manage the EMS Division. The SaM officers provide additional support on a part time basis, but have other non-EMS responsibilities as well. West Metro maintains written non-medical standard operating procedures related to emergency medical services.

EMS Administration Discussion ESCI was impressed with the substantial knowledge, experience, and high degree of commitment displayed by the EMS Division staff. Their desire to provide the community with the highest quality of

West Metro–Wheat Ridge Fire Protection Districts Cooperative Services Feasibility Study

emergency medical care and service was apparent. Any deficits identified by ESCI did not appear to be due to a lack of willingness, but more a matter of limited staff and resources.

Typical of most fire departments, EMS represents the majority of service demand in the WMFPD. Sufficient administrative capabilities are necessary to manage a system of this size, complexity, and myriad of EMS related demands. ESCI believes that the EMS Division is presently understaffed and that additional staff positions should be considered. The district already has a large EMS workforce with a substantial number of paramedics; a consolidation of the two fire districts would no doubt result in further demands on the EMS Division.

ESCI found no indication that the EMS Division is regularly tracking patient outcomes. The district cannot accurately determine its impact on patients without determining outcome results in cases such as cardiopulmonary arrest, multisystem trauma, STEMIs, and strokes to name a few. Without this knowledge, the WMFPD cannot reliably determine if the EMS system is working effectively.

ESCI also believes that more time and resources should be devoted to CQI. This should not only be directed at the ALS level, but also among the BLS providers who hold an extremely important role in the EMS delivery system. A part of the CQI process should include consistent monitoring and evaluation of both clinical skills and EMS operational performance. The aforementioned represent but a few of the important activities that should be incorporated within the administrative functions of the EMS Division.

RECOMMENDATIONS: • Develop a system for tracking patient outcomes as part of the EMS CQI process. • Consider the addition of one FTE within the EMS Division with an emphasis on CQI, ALS clinical skills performance, analysis of EMS system performance, evaluation of patient outcomes, and clinical research and development.

Medical Equipment & Supplies This section is an evaluation of medical supplies and equipment used by the fire districts and the logistics utilized to distribute and replenish supplies as necessary.

The WRFPD maintains the Physio-Control Lifepak® 500 automated external defibrillators (AED) on each of its apparatus. The WMFPD’s first-response apparatus and medic units carry the Physio-Control Lifepak® 15 Cardiac Monitor/Defibrillator. Designed for use in the prehospital setting, this is an advanced-level device with substantial clinical capabilities.

West Metro–Wheat Ridge Fire Protection Districts Cooperative Services Feasibility Study

Table 37: Medical Equipment & Supplies

Survey Component West Metro FPD Wheat Ridge FPD Brand(s) of monitor/defibrillators used Physio-Control Lifepak® 15 Not applicable 12-lead capability Yes Not applicable

ETCO2 monitoring capability Yes Not applicable

SpO2 monitoring capability Yes Not applicable Yes, all PL15s have a Metronome and/or live CPR prompts/feedback Not applicable metronome feature Event recording/post-event review ability Yes, not being reviewed Not applicable Automated external defibrillators (AED) used AEDs with Lakewood PD Physio-Control Lifepak® 500 Inventory controls in place Yes Yes Controlled medications security Knox Med Vault Not applicable 9 medic stations have Provided by Pridemark Restocking system in place supplies Ambulance Temperature-controlled environment for liquids Refrigerators on medic units Not applicable Daily equipment/supplies check on all units Checked every 48 hours Yes

Both districts have EMS supplies inventory controls in place, and the WMFPD utilizes a national supplier who has an excellent reputation for quality service and products. The WMFPD has established a secure system for maintaining controlled medications, and refrigeration units have been installed in each medic unit to store temperature-sensitive medications.

Each district conducts EMS equipment/supplies checks on their apparatus and medic units on each shift. Wheat Ridge restocks some of their disposable supplies from Pridemark Ambulance. The WMFPD maintains an inventory of EMS supplies for restocking at each of the nine fire stations where medic units are located.

Both the WRFPD and WMFPD have sufficient processes in place for maintenance, distribution, and restocking of EMS equipment and supplies. ESCI has not identified any barriers in this regard, and integration would be relatively simple. In the event of a merger, an additional EMS supplies cache will need to be established at Station 71 (or other practical location in the Wheat Ridge area). Emergency Medical Transport Ambulance Transport in Wheat Ridge As mentioned previously, the Wheat Ridge Fire Protection District relies primarily on Rural/Metro Pridemark Paramedic Services for ALS ambulance service. According to its website, Pridemark has exclusive contracts for medical transportation with the cities of Wheat Ridge, Edgewater, and Fairmount. The Wheat Ridge (city and fire district) ambulance IGA became effective January 2012 and is managed by the Wheat Ridge Police Department. The IGA allows for annual renewal every five years and is due to expire January 24, 2017.

West Metro–Wheat Ridge Fire Protection Districts Cooperative Services Feasibility Study

In accordance with policy, the WRFPD is not dispatched on every EMS incident. The Wheat Ridge Police Department serves as the primary PSAP, and EMS calls are first transferred to Pridemark’s dispatch center. Pridemark subsequently determines which calls require a response from the WRFPD, dispatches an appropriate ambulance, then forwards the call to the West Metro Communications Center, who, in turn, notifies the closest WRFPD first-response apparatus (see Support Services: Communications System).

In other words, the initial call is received by a publicly owned PSAP, is transferred to a private contractor, who conducts a caller interview, dispatches an ambulance and transfers the call to a secondary publicly owned PSAP (WMFPD) which then dispatches the closest Wheat Ridge apparatus. This likely causes an unnecessary delay and requires multiple hand-offs of critical information. It may expose both the PSAP and contractor to potential liability if delays occur that could have been avoided by establishing different dispatch criteria.

West Metro Emergency Transport The West Metro Fire Protection District operates nine medic units (ambulances) deployed from fixed locations at Stations 1, 2, 3, 7, 8, 9, 12, 13, and 15. During the first quarter of 2015, Medic 6 was moved to Station 3 and reassigned as Medic 3 (data provided to ESCI included Medic 6 information for those years prior to 2015 but did not include Medic 3 response data).

Prior to 2013, no medic units were deployed from Stations 8 and 9. Due to revenue shortfalls, two medic units (Medic 4 and Medic 10) were taken out of service during the first quarter of 2013. Medic 4 was moved to Station 8 (and assigned as Medic 8), and Medic 10 moved to Station 9 (and assigned as Medic 9). Infrequently, when there are extra personnel on duty, Medic 4 is placed in service as an additional ambulance.

West Metro–Wheat Ridge Fire Protection Districts Cooperative Services Feasibility Study

Table 38: Emergency Medical Transport

Survey Component West Metro FPD Wheat Ridge FPD Provide all 911 transports in district Yes No Mutual aid transport received by? Rarely occurs Not applicable Denver, Wheat Ridge, Mutual aid transport provided to? Not applicable Littleton, & South Metro Provide scheduled & interfacility transport No; private providers Not applicable Provide scheduled “long-distance” transport No; private providers Not applicable Number of annual transports (2014 13,811 Not applicable Number/percent of non-transport calls Not available Not applicable Percent of all calls that are patient refusals Not available Not applicable Number of staffed transport units per day 9 medic units Not applicable 2 medics; minimum 1 Crew configuration (EMT/medic; medic/medic) Not applicable medic/1 EMT Hours staffed per day for each unit 24 hours Not applicable Hours worked/shift (12, 24, 48, etc.) 48 hours Not applicable Peak-load staffing utilized? No Not applicable System Status Management (SSM) deployment No; some move-ups occur Not applicable Not distinct from all other Ambulance response-time standard Not applicable units Total daily ambulance (medic) unit hours 216 unit hours Not applicable Total annual ambulance (medic) unit hours 78,840 unit hours Not applicable Less than 30 minutes; Average time at hospital to return to service dispatch notifies, using Not applicable timer

West Metro–Wheat Ridge Fire Protection Districts Cooperative Services Feasibility Study

Figure 27: West Metro Medic Unit Planning Zones (Service Areas)

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EMS Demand on Medic Units The following table lists the EMS call volumes for each medic unit from 2010 through 2014 (including all emergent and non-emergent incidents but excluding non-EMS calls). These data do not represent the number of patients transported, which will be addressed later in this section.

Table 39: Medic Units EMS Call-Volumes by Year Medic Unit 2010 2011 2012 2013 2014 Medic 1 3,177 3,188 3,372 3,484 3,779 Medic 2 2,513 2,548 2,644 3,163 3,388 Medic 4 1,708 2,029 2,053 319 0 Medic 61 1,320 1,188 1,109 1,348 1,497 Medic 7 2,723 2,909 3,007 2,888 3,036 Medic 8 0 0 0 2,194 2,948 Medic 9 0 0 0 1,025 1,337 Medic 10 1,932 2,111 2,079 340 0 Medic 12 1,569 1,604 1,570 1,747 2,096 Medic 13 1,160 1,207 1,179 1,281 1,495 Medic 15 224 231 257 260 270 1Medic 6 moved to Station 3 in 2015 and reassigned as Medic 3.

Other Service Demands on Medic Units In the previous section, ESCI evaluated EMS calls dispatched from 2010 through 2014. The data did not include the frequency of non-emergent (no lights and siren) calls or incidents not directly related to EMS in which medic units were dispatched. ESCI analyzed the WMFPD response data to determine the frequency in which the medic units are assigned to incidents other than emergency medical calls. This was done in order to gain a better perspective of what percentage of the medic units’ workload has been devoted to responses to incidents not requiring an emergency response and those unrelated to EMS.

The following table lists the percentage of incidents dispatched, by medic unit, not requiring an emergent response during 2013–2014. This ranged from a low of 5 percent (Medic 15) to a high of 19 percent (Medic 1). Overall, an emergent response was not indicated in 13 percent of the calls.

West Metro–Wheat Ridge Fire Protection Districts Cooperative Services Feasibility Study

Table 40: Medic Units Non-EMS/Non-Emergent Dispatches (2013–2014) % Non-Emergent Medic Unit % Non-EMS Dispatched1 Percent Cumulative Total1 Dispatched1 Medic 1 19% 8% 27% Medic 2 12% 10% 22% Medic 62 14% 10% 24% Medic 7 10% 10% 20% Medic 8 13% 10% 23% Medic 9 18% 12% 30% Medic 12 11% 10% 21% Medic 13 11% 11% 22% Medic 15 5% 11% 17% Totals: 13% 10% 23% 1Rounded to the nearest whole number 2Medic 6 moved to Station 3 in 2015 and reassigned as Medic 3

The table also lists the percentage of incidents that would not be typically described as requiring emergency medical intervention. Collectively, these represented 10 percent of medic unit calls, ranging from a low of 8 percent (Medic 1) to a high of 12 percent (Medic 9).

The analysis was based on the NFIRS incident-type codes entered into the RMS by emergency operations personnel. The most frequent NFIRS incident-type was 554-Assist Invalid (32 percent of all non-EMS calls). Typically such cases do not require medical intervention but often involve assisting individuals back to bed, into a wheelchair, or off the floor in a ground-level fall without injury. The next figure illustrates the most frequent non-EMS call-types to which medic units were assigned and the percentage of total non-EMS incidents.

West Metro–Wheat Ridge Fire Protection Districts Cooperative Services Feasibility Study

Figure 28: Medic Units—Most Common Non-EMS Calls Dispatched (2013–2014) 1,250

32% Due to similar types, NFIRS codes 551 & 1,000 552 were combined into "Police Matter" and 500 & 553 into "Public Service"

750

500

12% 12% 250 6% 5% 4% 2% 2% 2% 2%

Alarm

CookingFire

BuildingFire

Smoke Scare

AssistInvalid

PoliceMatter

PublicService

Unintentional

GoodIntent Call

Smokefrom BBQ Steam/Vapor/Fog

Discussion of Other Service Demands During the study period, 23 percent of the calls in which the medic units were dispatched involved incidents not requiring an emergency response or were not EMS-related. This ranged from a low of 17 percent for Medic 15, to a high of 30 percent for Medic 9.

Assigning medic units to certain non-EMS incidents is not necessarily inappropriate or inefficient. Certainly, having a medic unit on standby at building and other fires in the event of a firefighter or civilian injury is good policy. In stations with a single engine and medic unit, the medic crew is used to meet the “two-in, two-out” requirement. Typically, the closest unit is dispatched to lift assists. This may be an engine, truck, or medic unit. If an engine is co-located with a medic unit, the engine is dispatched rather than the medic unit.

Patient Transports & Dispositions (2013–2014) During the study period, West Metro medic units were dispatched to 37,236 EMS incidents, and transported 27,737 (74 percent) patients (see the following table). Among the medic units, Medic 1 had the highest proportion of transports to calls-dispatched (77 percent) while Medic 13 had the least (67 percent).

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Overall, the WMFPD averaged 38 transports per day, ranging from an average of 1–8 per day among the medic units. Medic units 1, 2, 7, and 8 had the most frequent daily transports respectively, with a tendency to have a higher ratio of EMS calls-dispatched to patients transported. Of all patients, approximately 8 percent were transported emergently (lights and siren).

Table 41: Medic Unit Transports (2013–2014) EMS Calls Patients Average Daily Percent Medic Unit Dispatched Transported Transports1 Transported1 Medic 1 7,263 5,576 8 77% Medic 2 6,551 4,865 7 74% Medic 62 2,845 2,059 3 72% Medic 7 5,924 4,456 6 75% Medic 8 5,142 3,933 5 76% Medic 9 2,362 1,716 2 73% Medic 12 3,843 2,887 4 75% Medic 13 2,776 1,847 3 67% Medic 15 530 398 1 75% Totals: 37,236 27,737 38 74% 1Rounded to the nearest whole number 2Medic 6 moved to Station 3 in 2015 and reassigned as Medic 3

Transport Destinations (2013–2014) The data provided by the Wheat Ridge Fire Protection District did not include specific patient transportation destinations. According to the WRFPD, the majority of their patients were transported to Lutheran Medical Center (LMC). West Metro transported 51 percent of their patients to St. Anthony Hospital. Combined, SAH and LMC received 69 percent of West Metro’s transported patients.

Patient Dispositions & Refusals (2013–2014) The data was limited, but in the WRFPD of those “patient” contacts during the study period, approximately 3 percent refused treatment against medical advice (AMA); 2 percent did not require transports; and less than 1 percent were deceased on arrival. Patients were transported by other means (privately owned vehicle, law enforcement, other ambulance service, etc.) in only 15 cases.

In the WMFPD, approximately 14 percent refused treatment AMA, and nearly 2 percent were treated and released in accordance with protocol. In approximately 0.4 percent of the cases, resuscitation was attempted but discontinued (field pronouncement of death). The patient was found deceased and no resuscitation was attempted in just over 1 percent of the cases. Patients were transported by other means in 1.5 percent of the cases. The WMFPD uses a patient refusal form generated by the district’s RMS, which is written in both English and Spanish.

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Unit Hour Utilization (2013–2014) Unit hour utilization (UHU) is discussed in detail in Service Delivery & Performance, Reliability Analysis. In the following section, ESCI analyzed UHU rates of each of the medic units for a 24-month period beginning January 1, 2013, through December 31, 2014 for EMS incidents only. The following table lists the results.

Table 42: West Metro Medic Unit UHU Rates EMS UHU EMS UHU % All Calls UHU % Medic Unit (2013–2014)* (2013–2014)* (2014)* Medic 1 0.25 25% 27% Medic 2 0.22 22% 25% Medic 6 0.10 10% 16% Medic 7 0.22 22% 23% Medic 8 0.21 21% 25% Medic 9 0.10 10% 12% Medic 12 0.17 17% 19% Medic 13 0.12 12% 14% Medic 15 0.03 3% 3% *Rounded to the nearest whole number

UHU Discussion UHU is just one measure of productivity. The formula does not take into account the time devoted to training, maintenance, population density, and other factors that can influence utilization. In addition, some fire departments consider higher utilization rates as having a negative impact on personnel, and contributing to personnel “burnout.” A high UHU also means lower availability for calls, which can have a negative impact on response times.

Many fire-based medical transport services choose a target of 0.15–0.25 (15–25 percent) in order to maintain effective response times. Medic units 1, 2, 7, and 8 are functioning at the high end and may be overextended at times. In contrast, Medic units 6, 9, and 13 may be underutilized and not operating as efficiently as possible. In the case of Medic 15, there may be no other options due to its unique location and low call volumes. Further evaluation is warranted to determine alternatives for improving efficiency for all of the medic units.

Medical Transport Revenue Since the WRFPD does not respond to all EMS incidents within its service area, it is not possible to predict potential revenue from patient transports. Since Pridemark is a privately owned company, information on ambulance transport revenue and collection rates within the WRFPD could not be obtained.

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Expansion of Emergency Transportation Services to Wheat Ridge One of the significant issues identified in a potential consolidation was the provision of medical transportation to the Wheat Ridge Fire Protection District utilizing West Metro medic units. Currently, Pridemark Ambulance is the exclusive provider of 911 calls within most areas of the fire district.

The availability of West Metro medic units as shown in the UHU table combined with the ability to reposition currently staffed ambulances to achieve rapid response times, along with other additional resources, indicate the benefit of combining the districts.

The Wheat Ridge Fire Protection District has expressed to ESCI concerns and assorted problems with the quality of service being provided by Pridemark Ambulance. Whether these performance issues rise to the level of termination of the current IGA is outside the scope of this feasibility study. It has been reported that Pridemark Ambulance has recently had difficulty in attending to an increase in non- emergency calls within the WMFPD (and other areas) and has frequently been required to request West Metro medic unit responses (42 EMS calls in 2015, 50 in 2014).

ESCI found in a review of the Wheat Ridge ambulance IGA that most of the performance requirements were within acceptable industry standards and best practices. However, ESCI believes that the current six-minute response-time criterion is unreasonable, and that there is no valid research to support this requirement. In essence, these mandates will not contribute to better patient outcomes in the majority of incidents.

The impact on the other nearby communities (Edgewater, Fairmount, Arvada, etc.) must be taken into consideration prior to implementation of any changes in the Wheat Ridge ambulance contract. If the WMFPD becomes the exclusive provider of 911 emergency medical transport for the entire service area of the WRFPD, those communities that have contractual agreements with Pridemark must be willing to modify their contracts accordingly.

RECOMMENDATIONS: • Consider entering into discussions with Pridemark Ambulance, representatives of those cities with whom they have exclusive contracts, and other key stakeholders. . The intent would be to pursue a cooperative agreement where Pridemark Ambulance would continue to provide interfacility and scheduled transports. . If possible, attempts should be made to avoid a contentious environment and to develop a constructive agreement that would be most advantageous for the residents of the combined fire districts.

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Medic Unit Deployment Options in Wheat Ridge If WMFPD is given the option to provide medical transportation services, the districts will need to determine where the medic units will be assigned and how they will be deployed. Medic units 1 and 2 are geographically closest to most of the areas encompassed by the Wheat Ridge Fire Protection District. Historical response-data shows they are the two busiest medic units (followed closely by Medic units 7 and 8) in the district—averaging 7–8 transports per day, with relatively high UHU rates.

During 2014, Wheat Ridge was dispatched to approximately eight EMS incidents daily. However, the WRFPD is not dispatched to all EMS incidents occurring within its service area, as some calls are triaged out by the private ambulance provider. Data on total incidents to which Pridemark was dispatched, as well as the number of ambulance transports, was not accessible to ESCI. This did not allow the prediction of potential ambulance transport revenue, which would be useful in determining the associated costs of expansion.

Despite limitations in the information described above, the volume of EMS incidents in the WRFPD indicates that reliance on West Metro Medic 1 and Medic 2 alone to provide service to the Wheat Ridge area would likely have a negative impact on their workload. UHU rates and quantity of transports would increase significantly for each medic unit. Both would be unavailable for responses more often, resulting in a “domino effect” on the other medic units, who would be required to cover transports in the service areas of Stations 1 and 2. Moving either of these units into the WRFPD would certainly result in the same negative impact.

In early 2015, Medic 6 was moved to West Metro Station 3 and assigned as Medic 3. Since this was a relatively new change, there is not sufficient data on its performance. However, this appears to be a prudent deployment change. Previously, Medic 6 had a relatively low UHU in comparison to some of the other medic units.

Considerations in Medic Unit Deployment Changes In order to expand into the provision of emergency medical transport in the Wheat Ridge service area, a number of issues must be considered. The following table lists various assumptions and their potential impact on the district.

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Table 43: Potential Impacts on EMS with Expansion into the WRFPD Service Area

Description Impact on the District  About 1,015 calls (790 EMS) to be absorbed by other apparatus  Increased demand on West Metro Station 1 (Medic 1/Engine 1)  Increased service demand on Wheat Ridge Station 71 Close Wheat Ridge Fire Station 73  Likely increased demand on Wheat Ridge Station 72  Potential increased demand on West Metro Station 2 (Medic 2/Engine 2)  May need additional paramedics to staff Wheat Ridge Station 72 apparatus Provide first-response ALS to the WRFPD  Additional salary costs due to paramedic pay  Additional costs for capital EMS equipment and supplies  May need additional paramedics to staff medic units  Place additional medic units in the WRFPD Additional salary costs due to paramedic pay  Additional costs for vehicles, capital EMS equipment, supplies, etc.

It may be necessary to consider a number of options or configurations in order to ensure adequate service to the Wheat Ridge Fire Protection District service area. In some cases, this may require a departure from West Metro’s current deployment model.

The following are three potential deployment models for establishing medic units for service to the Wheat Ridge response area. ESCI recommends the Districts consider one of these options or a combination thereof, based on available funds, personnel, and other issues. The Districts may be able to identify other more feasible deployment alternatives aside from those presented here.

In each of the options, it is assumed that a full-time medic unit would be assigned to Wheat Ridge Station 71, which has the highest historical demand for EMS among the three WRFPD stations. There appears to be sufficient physical space at Station 71 for placing a medic unit and crew—although some minor interior remodeling may be required to accommodate the additional personnel. ESCI assumes closure of Station 73.

Regardless of which option is selected, it would be necessary for both additional and existing medic units to share in the added call volumes (2014: 1,015 calls for Station 73, of which 790 were EMS). Adding a single medic unit to the system would likely be inadequate.

Option A: • Wheat Ridge Fire Station 71—Assign a 24-hour medic unit • West Metro Fire Station 1—Assign a 12-hour medic unit (0900–2100 hours) in addition to Medic 1

This option would result in a net gain of 1.5 medic units to the system.

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Option B: • Wheat Ridge Fire Station 71— Assign a 24-hour medic unit • West Metro Fire Station 1— Assign a second 24-hour medic unit in addition to Medic 1

This option would result in a net gain of two medic units to the system.

Option C: • Wheat Ridge Fire Station 71— Assign a 24-hour medic unit • Wheat Ridge Fire Station 72— Assign a 12-hour medic unit (0900–2100 hours) • West Metro Fire Station 1— Assign a 12-hour medic unit (0900–2100 hours) in addition to Medic 1

This option would result in a net gain of two medic units to the system but place a medic unit at Wheat Ridge Station 72 and decrease medic unit response times to that area.

The following map illustrates the distance that medic units could travel in 4.5 minutes from West Metro Stations 1 (Medic 1 and a second medic unit there: “Medic 17”) and 2, and Wheat Ridge Station 71 (“Medic 16”). This assumes a 6.5-minute response-time standard (60-second call processing time and 60-second turnout time).

Assigning a second medic unit at Station 1 would minimize the impact of an increase in EMS service demand on Medic 1 that would result from the closure of Wheat Ridge Station 73. However, this would not necessarily address the likely increase in service demand on WMFPD Engine 1.

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Figure 29: Travel Distances of Additional Medic Units in the WRFPD (4.5 and Eight Minutes)

Peak-Activity Units The use of peak-activity units (PAUs) or peak-load units is not a new concept. PAU deployment models are increasingly used in fire departments throughout the U.S. with both suppression apparatus and EMS units (e.g., Orange County Fire Authority, CA; Seminole County Fire Department, FL). In both West Metro and Wheat Ridge, EMS demand for service tends to decline in the late evening and early morning hours. In 2014, 65 percent of service demand in Wheat Ridge occurred between 0900 and 2100 hours. In West Metro, 69 percent occurred during the same time.

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Initially, implementation of peak-activity units would not need to be a permanent configuration. Either of these options could begin with a pilot program to determine viability. Should this model prove insufficient, the district could institute other options:

1. Convert the PAU(s) to a 24-hour schedule. Obviously, this would come with an increase in costs but would also increase the capacity of that medic unit.

2. Convert Medic 9 to a PAU and upgrade one of the other PAUs to a 24-hour unit. In 2014, Medic 9 had a UHU of 12 percent, a total station call volume of 708 incidents with 31 percent of calls occurring after 2100 hours and prior to 0900 hours. The primary benefit of this would be no cost increase.

Staffing Considerations If Station 73 is closed, additional Wheat Ridge personnel would be available for re-assignment to other apparatus—all of whom are certified EMT-Basics. Although this would allow for partial staffing of any new ALS medic units, it would not add to the number of firefighter/paramedics that would be required for additional medic units. West Metro will need to evaluate whether it has sufficient capacity among its existing paramedics to staff additional ALS-level medic units. This may require the district to incur the costs of training current West Metro and/or Wheat Ridge firefighter/EMTs to the paramedic level.

If the district elects to employ the use of PAUs, it may be necessary to create a new shift schedule. Several options could be considered for staff scheduling. For example, there are various configurations for a 12-hour D shift. If structured properly, a 12-hour shift schedule can increase off-duty time without reducing employee compensation. Of course, any scheduling changes would require discussion and negotiation with the district’s bargaining unit.

If the addition of a fourth shift proved to be unacceptable, there may be another alternative. Following the end of their 12-hour shift, personnel assigned to a PAU could be reassigned to a first-response company for the second half of the day. Undoubtedly, this option could present logistical issues and other challenges.

Prior to any final decisions concerning the deployment of additional medic units, the most current incident data from both fire districts should be carefully analyzed for substantive changes in service demand, subsequent to the analysis contained in this report. Most likely, the WMFPD will need to be somewhat flexible in its approach when considering the most viable options.

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RECOMMENDATIONS: • Consider the options for the deployment of medic units that would be most optimal for the provision of service to the WRFPD. • If a 12-hour peak-activity unit is selected from one of the options, consider implementing a pilot program to determine its actual impact. . The “pilot program” should be monitored regularly for both effectiveness and to identify any potential negative impacts on patients, emergency operations, and personnel.

Future EMS System Enhancements Fire departments around the United States are beginning to evaluate and implement innovative deployment and service alternatives to dispatching engine, truck, medic units and other companies to every EMS incident. These programs have proven to minimize unnecessary responses and lower costs.

One example has been implemented by Tualatin Valley Fire & Rescue (Oregon). The fire department maintains several “Response Cars” staffed with a single paramedic and outfitted with ALS equipment. These vehicles are deployed to calls that do not warrant a traditional fire department response. They are typically dispatched to non-emergent, low-acuity incidents.

RECOMMENDATIONS: • The WMFPD should consider evaluating other successful alternative service-delivery models that could improve efficiency, lower costs, and reduce unnecessary first-response apparatus and medic-unit call volumes. • The addition of a second SaM officer, with modifications in their current roles, may be one alternative to consider. • A detailed analysis of the locations of low-acuity calls, frequent system users, and other applicable data should be conducted to determine what alternative models would be most effective.

EMS Summary & Discussion The purpose of this portion of the evaluation was to determine the feasibility of merging the EMS functions of the Wheat Ridge and West Metro Fire Protection Districts. ESCI has observed that the leadership and personnel of both districts have strived to deliver high-quality emergency medical services within their respective communities and recognize the value that fire-based EMS brings to their citizens.

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It is ESCI’s conclusion from the analysis that a merger of the two fire districts would substantively enhance emergency medical services in the existing communities within the WRFPD—particularly with the addition of fire-based ALS medical transport. The West Metro Fire Protection District would bring a wide range of additional resources not currently accessible to the WRFPD.

A consolidation would result in a more efficient use of existing resources, avoid duplication of services, and expand the ability to bring the highest level of EMS to the residents of both fire districts. By employing some or all of the recommendations presented here, ESCI believes the consolidated fire districts would be able to achieve greater efficiencies and reduce some of the costs associated with implementation and EMS operations. It would also have a significant potential to move the organization to the forefront of ever-changing EMS delivery systems through research, community outreach programs, prevention, and other programs.

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Capital Assets & Infrastructure Three basic resources are required to successfully carry out the emergency mission of a fire department—trained personnel, firefighting equipment (both tools and vehicles), and fire stations. Because firefighting is an extremely physical task, the training and capacity of personnel resources is of vital concern. However, no matter how competent or numerous the firefighters, the department will fail to execute its mission if it lacks sufficient fire equipment that has been strategically deployed in an efficient and effective manner.

Table 44: Capital Assets Survey Component West Metro FPD Wheat Ridge FPD Fire Stations/Structures No plan in place–if need arises, Plan maintained Yes–outlined in Board Policy B-8016 comes from general fund Period of plan (from–to) Rolling 15-year cycle Not applicable Identified when moved to Capital If need arises, funding comes from Funding mechanism Projects Fund–if not funded, not general fund moved Apparatus Aggressively managed (see schedule No plan in place–if need arises, Plan maintained below) comes from general fund Period of plan (from–to) 2012 through 2022 Not applicable Reserve funds (no contributions in If need arises, funding comes from Funding mechanism 2014-17) general fund Support Equipment Included in CIP–assets > $50,000 No plan in place–if need arises, Plan maintained (excludes apparatus & fleet) comes from general fund Period of plan (from–to) Rolling 15-year cycle Not applicable Identified when moved to Capital If need arises, comes from general Funding mechanism Projects Fund–if not funded, not fund moved

Table 45: West Metro FPD Replacement Schedule Engine Aerial • 17 to 20 years–Front Line (formerly 15–now 20) • 15 years–Front Line • 24 to 27 years–Total (formerly 24–now 27) • 22 years–Total Medic Brush • 9 to 10 years–Front Line (formerly 9–now 10) • 15 years–Front Line • 12 to 15 years–Total (formerly 13–now 15) • Brush Trucks just added to current replacement • Newer models cost more, but they are expected to schedule and deployment income had not previously last longer been added to replacement fund Rescue Staff Vehicles • 11 years–Front Line • 15 years replacement cycle • 21 years–Total

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Discussion: West Metro has a capital facilities plan established by board policy. The plan has a 15-year cycle and is adjusted every year, keeping the plan current. When a component of the plan is being implemented, that facility project is moved to the Capital Projects Fund. If there is an insufficient fund balance to address the cost, the project is not moved or additional funds are obtained.

West Metro’s apparatus replacement plan is aggressively managed and was recently overhauled. The previous plan anticipated catastrophic replacement, which duplicated insurance coverage. The revised plan extends the life of existing units over the previous plan and leverages bonds and grants for replacement, factoring in 3 percent annual cost increases. Replacement is determined based on a combination of experience, number of calls, road miles, quality of preventive maintenance, and the judgment of fleet personnel.

West Metro’s support equipment plan addresses equipment exceeding $50,000 in value and is also on a 15-year cycle and adjusted every year, keeping the plan current. The funding for the equipment contained in this plan is identified prior to moving the project to the Capital Projects Fund. If the funding is not available, the project is not moved to the Capital Projects Fund.

Wheat Ridge does not have a capital replacement plan for facilities, apparatus, or support equipment. If a need is identified, funding is acquired from the general fund.

RECOMMENDATION: • WRFPD should establish a capital improvement plan and identify funding mechanisms to implement the plan.

Fire Stations & Support Facilities Fire stations play an integral role in the delivery of emergency services for a number of reasons. A station’s location will dictate, to a large degree, response times to emergencies. A poorly located station can mean the difference between confining a fire to a single room and losing the structure. The location of a station can even make the difference between saving and losing a life.

Fire stations also need to be designed properly. Stations must adequately house equipment and apparatus, as well as meet the needs of the organization and its members. It is essential to research need based upon call volume, response time, risk, and projected growth prior to making a station placement commitment. Locating fire stations is also a matter of the greater community need.

Consideration should be given to a fire station’s ability to support the districts’ mission as it exists today and into the future. The activities that take place within the fire station should be closely examined to ensure the structure is adequate in both size and function. Examples of these functions may include:

• The housing and cleaning of apparatus and equipment • Living space for on-duty crew members (male and female)

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• Administrative or management offices • Training, classroom, and library areas • Firefighter fitness area • Public meeting space

While this list may seem elementary, the lack of dedicated space compromises the ability of the facility to support all of these functions and can detract from its primary purpose.

Fire Department Facilities West Metro Facilities WMFPD has a Facilities Maintenance Group consisting of 2 FTEs dedicated to maintaining their building assets at a professional level while reducing dependency on outside contractors. The group consists of a facilities manager and a facilities technician under the supervision of the division chief of support services. In 2015 the division had a budget of about $100,000 for discretionary spending. The following tables evaluate each facility owned and operated by the West Metro Fire Protection District.

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Table 46: West Metro Administration/Communication Address: 433 South Allison Parkway, Lakewood

This is the district’s headquarters station and communications center. The first floor houses the reception area and public meeting rooms, along with fire prevention and other support activities. The administrative offices are located on the second floor, and the communications center and other support activities are located on the third floor. The basement is an employee exercise facility, showers and storage.

Survey Component West Metro FPD Structure Construction type 3-story, ordinary Date 2000 Built to code at time of construction–no known Seismic protection seismic retrofit Auxiliary power Natural gas generator Condition Excellent Special considerations ADA accessible, separate gender facilities, ample (ADA, mixed gender appropriate, storage, etc.) storage Square footage 44,000 Facilities Available Basement has a large workout room with ample Exercise/workout equipment Kitchen/dormitory Break room kitchenettes, no dormitories Lockers/showers Yes Multiple conference rooms and video Training/meetings teleconferencing rooms Washer/dryer No laundry services required at this facility Safety Systems & Assignments Sprinkler system Yes Smoke detection Yes, locally monitored Magnetic key card access to external doors, Security elevators, floors, & offices where appropriate Apparatus exhaust system N/A

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Table 47: West Metro Station 1 Address: 6401 W. 14th Avenue, Lakewood

This station houses Engine 1, which is staffed with three personnel; a reserve engine which is unstaffed until needed; Medic 1, which is staffed with two personnel; a reserve medic unit which is unstaffed until needed; and the District 1 Chief.

Survey Component West Metro FPD Structure Construction type 2-story (split) ordinary construction, back-in bays Date 1975 Built to code at time of construction–no known Seismic protection seismic retrofit Auxiliary power Natural gas generator Condition Fair Station is not set up for mixed gender Special considerations accommodations Square footage 9,543 Facilities Available Fitness room with contemporary exercise Exercise/workout equipment Standard fire station kitchen with separate Kitchen/dormitory dormitories Lockers/showers Yes Training room with video teleconferencing Training/meetings equipment Washer/dryer Yes Safety Systems & Assignments Sprinkler system No sprinkler system Smoke detection Yes, monitored locally Security Combination key pad locks Apparatus exhaust system Plymovent system

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Table 48: West Metro Station 2 Address: 1545 Robb Street, Lakewood

This station is home to Engine 2, which is staffed with three personnel, Medic 2, which is staffed with two personnel, and houses an unstaffed EMS unit, which stores an EMS cache of equipment for triage and mass casualty incidents.

Survey Component West Metro FPD Structure Construction type 1 story, ordinary construction, back-in bays Date 1992 Built to code at time of construction–no known Seismic protection seismic retrofit Auxiliary power Natural gas generator Condition Good/Fair Special considerations ADA compliant and mixed gender appropriate Square footage 6,452 Facilities Available Fitness room with contemporary exercise Exercise/workout equipment Standard fire station kitchen with separate Kitchen/dormitory dormitories Lockers/showers Yes Training room with video teleconferencing Training/meetings equipment Washer/dryer Yes Safety Systems & Assignments Sprinkler system Yes Smoke detection Yes, monitored locally Security Combination key pad locks Apparatus exhaust system Plymovent system

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Table 49: West Metro Station 3 Address: 95 Garrison Street, Lakewood

This station is home to Engine 3, which is staffed with three personnel; Tower 3, which is staffed by four personnel; and Medic 3, which is staffed with two personnel. The hazardous materials technicians are located here.

Survey Component West Metro FPD Structure Construction type 1 story, ordinary construction, back-in bays Date 1992 Built to code at time of construction–no known Seismic protection seismic retrofit Auxiliary power Natural gas generator Condition Good/Fair Special considerations ADA compliant and mixed gender appropriate Square footage 6,443 Facilities Available Fitness room with contemporary exercise Exercise/workout equipment Standard fire station kitchen with separate Kitchen/dormitory dormitories Lockers/showers Yes Training room with video teleconferencing Training/meetings equipment Washer/dryer Yes Safety Systems & Assignments Sprinkler system Yes Smoke detection Yes, monitored locally Security Combination key pad locks Apparatus exhaust system Plymovent system

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Table 50: West Metro Station 4 Address: 13155 W. Alameda Parkway, Lakewood

This station is home to Engine 4, which is staffed with three personnel; Medic 4, which is staffed with two personnel; Collapse 4, which is cross- staffed as needed; Rescue 4, which is cross- staffed as needed; and Tech Rescue, which is cross-staffed as needed.

Survey Component West Metro FPD Structure Construction type 2 story, ordinary construction, back-in bays Date 2009 Built to code at construction–no known seismic Seismic protection retrofit Auxiliary power Natural gas generator Condition Excellent Special considerations ADA compliant and mixed gender appropriate Square footage 9,578 Facilities Available Fitness room with contemporary exercise Exercise/workout equipment Standard fire station kitchen with separate Kitchen/dormitory dormitories Lockers/showers Yes Training room with video teleconferencing Training/meetings equipment Washer/dryer Yes Safety Systems & Assignments Sprinkler system Yes Smoke detection Yes, monitored locally Security Combination key pad locks Apparatus exhaust system Plymovent system

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Table 51: West Metro Station 5 Address: 14055 W. 20th Avenue, Golden

This station houses Engine 5, which is staffed with four personnel; Haz-Mat 5, which is cross-staffed as needed; Haz-Mat 1 (owned by Adams-Jefferson Counties), which is cross- staffed as needed; Haz-Mat R-07, which is cross-staffed as needed; and Haz-Mat R-03, which is cross-staffed as needed. These units join Station 3 crews on hazmat incidents.

Survey Component West Metro FPD Structure Construction type 1 story, ordinary construction, back-in bays Date 2011 Built to code at time of construction–no Seismic protection known seismic retrofit Auxiliary power Natural gas generator Condition Excellent ADA compliant and mixed gender Special considerations appropriate Square footage 11,183 Facilities Available Fitness room with contemporary exercise Exercise/workout equipment Standard fire station kitchen with separate Kitchen/dormitory dormitories Lockers/showers Yes Training room with video teleconferencing Training/meetings equipment Washer/dryer Yes Safety Systems & Assignments Sprinkler system Yes Smoke detection Yes, monitored locally Security Combination key pad locks Apparatus exhaust system Plymovent system

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Table 52: West Metro Station 6 Address: 15100 W. 6th Avenue, Golden

This station houses Engine 6, which is staffed with four personnel, and Brush 6, which is cross- staffed as needed. This station is unusually cramped, with fitness equipment extending from the workout room into the truck bay.

Survey Component West Metro FPD Structure Construction type 1 story, ordinary construction, back-in bays Date 1985 Built to code at time of construction–no known Seismic protection seismic retrofit Auxiliary power Natural gas generator Condition Fair/Poor Not well laid out for mixed gender Special considerations accommodations Square footage 4,500 Facilities Available Fitness room too small–has contemporary Exercise/workout exercise equipment spilling into truck bay Standard fire station kitchen with separate Kitchen/dormitory dormitories Lockers/showers Yes Training room with video teleconferencing Training/meetings equipment Washer/dryer Yes Safety Systems & Assignments Sprinkler system No sprinkler system Smoke detection Yes, monitored locally Security Combination key pad locks Apparatus exhaust system Plymovent system

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Table 53: West Metro Station 7 Address: 6315 Mississippi Avenue, Lakewood

This station is home to Engine 7, which is staffed with three personnel; a Reserve Tower, which is unstaffed until needed; Medic 7, which is staffed with two personnel; and Investigation C-96, which is the fire investigation unit.

Survey Component West Metro FPD Structure Construction type 2 story, ordinary construction, back-in bays Date 2008 Built to code at construction–no known seismic Seismic protection retrofit Auxiliary power Natural gas generator Condition Excellent Special considerations ADA compliant and mixed gender appropriate Square footage 15,508 Facilities Available Fitness room with contemporary exercise Exercise/workout equipment Standard fire station kitchen with separate Kitchen/dormitory dormitories Lockers/showers Yes Training room with video teleconferencing Training/meetings equipment Washer/dryer Yes Safety Systems & Assignments Sprinkler system Yes Smoke detection Yes, monitored locally Security Combination key pad locks Apparatus exhaust system Plymovent system

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Table 54: West Metro Station 8 Address: 9001 W. Jewell Avenue, Lakewood

This station is home to Engine 8, which is staffed with three personnel; a reserve engine, which is unstaffed until needed; and Medic 8, which is staffed with two personnel.

Survey Component West Metro FPD Structure Construction type 2 story, ordinary construction, back-in bays Date 2010 Built to code at time of construction–no known Seismic protection seismic retrofit Auxiliary power Natural gas generator Condition Excellent Special considerations ADA compliant and mixed gender appropriate Square footage 10,600 Facilities Available Fitness room with contemporary exercise Exercise/workout equipment Standard fire station kitchen with separate Kitchen/dormitory dormitories Lockers/showers Yes Training room with video teleconferencing Training/meetings equipment Washer/dryer Yes Safety Systems & Assignments Sprinkler system Yes Smoke detection Yes, monitored locally Security Combination key pad locks Apparatus exhaust system Plymovent system

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Table 55: West Metro Station 9 Address: 101 Red Rocks Business Drive, Morrison

This station is home to Engine 9, which is staffed with three personnel; Brush 9, which is cross- staffed; Medic 9, which is staffed with two personnel; and Deployment C-47, which is cross- staffed when needed and is a trailered quad. This is the wildland station, and the engine has pump- and-roll capability to facilitate wildland firefighting.

Survey Component West Metro FPD Structure Construction type 1 story, ordinary construction, back-in bays Date 1992 (dorm remodeled in 2013) Built to code at time of construction–no known Seismic protection seismic retrofit Auxiliary power Natural gas generator Condition Good/Fair Special considerations ADA compliant and mixed gender appropriate Square footage 5,523 Facilities Available Fitness room with contemporary exercise Exercise/workout equipment Standard fire station kitchen with separate Kitchen/dormitory dormitories Lockers/showers Yes Training room with video teleconferencing Training/meetings equipment Washer/dryer Yes Safety Systems & Assignments Sprinkler system Yes Smoke detection Yes, monitored locally Security Combination key pad locks Apparatus exhaust system Plymovent system

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Table 56: West Metro Station 10 Address: 3535 S. Kipling Street, Lakewood

This station is home to Engine 10, which is staffed with three personnel; Tower 10, which is staffed with four personnel; a Special Events Medic Unit, which is staffed only when needed; a Dive Rescue Unit, which is cross-staffed as needed; and the District 2 Chief. This is the water rescue station, which also has a trailered 14’ Rigid Hull Inflatable Water Craft with tow vehicle.

Survey Component West Metro FPD Structure Construction type 2 story, ordinary construction, back-in bays Date 2010 Built to code at time of construction–no known Seismic protection seismic retrofit Auxiliary power Natural gas generator Condition Excellent Special considerations ADA compliant and mixed gender appropriate Square footage 20,000 Facilities Available Fitness room with contemporary exercise Exercise/workout equipment Standard fire station kitchen with separate Kitchen/dormitory dormitories Lockers/showers Yes Training room with video teleconferencing Training/meetings equipment Washer/dryer Yes Safety Systems & Assignments Sprinkler system Yes Smoke detection Yes, monitored locally Security Combination key pad locks Apparatus exhaust system Plymovent system

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Table 57: West Metro Station 11 Address: 15629 W. Belleview Avenue, Morrison

This station houses Engine 11, which is staffed with four personnel, and Brush 11, which is cross- staffed as needed.

Survey Component West Metro FPD Structure Construction type 1 story, ordinary construction, back-in bays 1976 (Major remodel in 2013. Remodel included Date kitchen, dayroom, office areas and an addition added to the building for fitness room.) Built to code at time of construction–no known Seismic protection seismic retrofit Auxiliary power Natural gas generator Condition Fair Special considerations Mixed gender appropriate Square footage 4,566 Facilities Available Fitness room with contemporary exercise Exercise/workout equipment Standard fire station kitchen with separate Kitchen/dormitory dormitories Lockers/showers Yes Training room with video teleconferencing Training/meetings equipment Washer/dryer Yes Safety Systems & Assignments Sprinkler system No sprinkler system Smoke detection Yes, monitored locally Security Combination key pad locks Apparatus exhaust system Plymovent system

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Table 58: West Metro Station 12 Address: 9990 W. Alamo Place, Littleton

This station houses Engine 12, which is staffed with three personnel, and Medic 12, which is staffed with two personnel.

Survey Component West Metro FPD Structure Construction type 1 story, ordinary construction, back-in bays 1984 (remodel of kitchen, dayroom, and captain’s Date dorm/office completed in 2013) Built to code at time of construction–no known seismic retrofit. However, this station had Seismic protection foundation repairs necessitated by expansive soils. Auxiliary power Natural gas generator Condition Good Special considerations Not ADA compliant Square footage 6,350 Facilities Available Fitness room with contemporary exercise Exercise/workout equipment Standard fire station kitchen with separate Kitchen/dormitory dormitories Lockers/showers Yes Training room with video teleconferencing Training/meetings equipment Washer/dryer Yes Safety Systems & Assignments Sprinkler system Yes Smoke detection Yes, monitored locally Security Combination key pad locks Apparatus exhaust system Plymovent system

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Table 59: West Metro Station 13 Address: 12613 W. Indore Place, Littleton

This station is home to Engine 13, which is staffed with three personnel; Medic 13, which is staffed with two personnel; Brush 13, which is cross- staffed as needed; and a reserve engine, which is unstaffed.

Survey Component West Metro FPD Structure Construction type 1 story, ordinary construction, back-in bays 1997 (remodel of kitchen and main office Date completed in 2013) Built to code at time of construction–no known Seismic protection seismic retrofit Auxiliary power Natural gas generator Condition Good/Fair Special considerations ADA compliant and mixed gender appropriate Square footage 6,500 Facilities Available Fitness room with contemporary exercise Exercise/workout equipment Standard fire station kitchen with separate Kitchen/dormitory dormitories Lockers/showers Yes Training room with video teleconferencing Training/meetings equipment Washer/dryer Yes Safety Systems & Assignments Sprinkler system Yes Smoke detection Yes, monitored locally Security Combination key pad locks Apparatus exhaust system Plymovent system

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Table 60: West Metro Station 14 Address: 10305 W. Chatfield Avenue, Littleton

This station is home to Tower 14, which is staffed with four personnel. It also houses a reserve engine, which is unstaffed until needed; an Air/Light Unit; and a reserve rescue, which is unstaffed until needed.

Survey Component West Metro FPD Structure 2 story, tilt-up concrete construction with twin Ts, Construction type back-in bays 1975 (Major interior remodel took place in 2010. Date This included the kitchen, dorms, bathrooms, dayroom, and fitness facility) Built to code at time of construction–no known Seismic protection seismic retrofit Auxiliary power Natural gas generator Condition Fair/Good Special considerations Mixed gender appropriate Square footage 10,229 Facilities Available Fitness room with contemporary exercise Exercise/workout equipment in loft Standard fire station kitchen with separate Kitchen/dormitory dormitories Lockers/showers Yes Training room with video teleconferencing Training/meetings equipment Washer/dryer Yes Safety Systems & Assignments Sprinkler system No sprinkler system Smoke detection Yes, monitored locally Security Combination key pad locks Apparatus exhaust system Plymovent system

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Table 61: West Metro Station 15 Address: 6220 N. Roxborough Park Road, Littleton

This station houses Engine 15, which is staffed with three personnel, Brush 15, which is cross- staffed, and Medic 15, which is staffed with two personnel.

Survey Component West Metro FPD Structure 1 story with basement, wood frame construction, Construction type double deep drive through bays–split occupancy with Engineering 1988 (In 2002, addition built onto existing structure. Included primary living quarters for Date personnel, including kitchen, dayroom, dorms, offices, bathrooms, and fitness room.) Seismic protection Built to code originally–no seismic retrofit Auxiliary power Natural gas generator Condition Fair Special considerations Mixed gender appropriate Square footage 9,800 Facilities Available Fitness room with contemporary exercise Exercise/workout equipment in basement Standard fire station kitchen with separate Kitchen/dormitory dormitories Lockers/showers Yes Training room with video teleconferencing Training/meetings equipment Washer/dryer Yes Safety Systems & Assignments No sprinkler system in living space, just in Sprinkler system basement Smoke detection Yes, monitored locally Security Combination key pad locks Apparatus exhaust system Plymovent system

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Table 62: West Metro Fleet Maintenance Facility Address: 4525 S. Kipling Parkway, Littleton

This facility is where all heavy equipment maintenance occurs. While not an active fire station, six reserve medic units are stored here: A- 30, A-31, A-32, A-33, A-34, A-35. The maintenance facility is state-of-the-art and is equipped to safely and effectively perform all in-frame maintenance functions for all apparatus. It also has offices, a kitchenette, and break room, shower facilities, and loft storage with stock elevator for heavier inventory.

Survey Component West Metro FPD Structure 2 story, non-combustible, multiple drive through Construction type bays Date 2000 Built to code at time of construction–no known Seismic protection seismic retrofit Auxiliary power Natural gas generator Condition Excellent Special considerations ADA compliant and mixed gender appropriate Square footage Undetermined Facilities Available Exercise/workout Fitness room with contemporary exercise Kitchen/dormitory Standard kitchen and dining area Lockers/showers Yes Training room with video teleconferencing Training/meetings equipment Washer/dryer Yes Safety Systems & Assignments Sprinkler system Yes Smoke detection Yes, monitored locally Security Combination key pad locks Apparatus exhaust system Plymovent system

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Table 63: West Metro Training Center Address: 3535 S. Kipling Street, Lakewood

Less a facility than a complex, this training center is state of the art. Co-located with the State of Colorado’s USAR facility, which is also owned and operated by West Metro FPD, the main building contains truck bays for training apparatus, multiple classrooms, a lecture hall, and advanced technology audio-visual equipment. Training props include a tower, a brick burn house, multiple (trench, confined space, burn) props, and multiple activity areas.

Survey Component West Metro FPD Structure Construction type Ordinary construction, multiple building complex Date 2009 Built to code at time of construction–no known Seismic protection seismic retrofit Auxiliary power Natural gas generator Condition Excellent Special considerations ADA compliant and mixed gender appropriate Square footage 39,200 Facilities Available Exercise/workout Fitness room with contemporary exercise Kitchen/dormitory Standard kitchen and dining area Lockers/showers Yes Multiple training rooms, conference center with video teleconferencing equipment. Training Training/meetings tower, live fire props, trench, burn props, large drill yard. Washer/dryer Yes Safety Systems & Assignments Sprinkler system Yes Smoke detection Yes, monitored locally Security Combination key pad locks Apparatus exhaust system Plymovent system

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Wheat Ridge Facilities The following tables evaluate each facility owned and operated by Wheat Ridge Fire Protection District.

Table 64: Wheat Ridge Station 71 Address: 3880 Upham Street, Wheat Ridge

This station is home to Engine 71, which is staffed with four personnel, and Brush 71, which is cross- staffed as needed. The station has had multiple additions over the decades; while the layout does not lend itself to prompt turnout times, is a serviceable facility.

Survey Component Wheat Ridge FPD Structure Construction type 2 story, multiple construction types, back-in bays Date 1946, remodeled and added onto multiple times Built to code at time of construction–no known Seismic protection seismic retrofit Auxiliary power Natural gas generator, only critical circuits served Condition Good/Fair ADA compliant in office area and mixed gender Special considerations appropriate Square footage 13,569 Facilities Available Exercise/workout Fitness room with contemporary exercise Kitchen/dormitory Standard kitchen and dining area Lockers/showers Yes Training room with internal simulator room. Small Training/meetings meeting rooms Washer/dryer Yes Safety Systems & Assignments Sprinkler system Yes, in living spaces only Smoke detection Yes, monitored locally Security Combination key pad locks Apparatus exhaust system Plymovent system

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Table 65: Wheat Ridge Station 72 Address: 10901 W 38th Avenue, Wheat Ridge

This station is home to Tower 72, which is staffed with four personnel, and Brush 72, which is cross- staffed as needed.

Survey Component Wheat Ridge FPD Structure Construction type 1 story, ordinary construction, drive through bays Date 1980, remodeled in 2004 Built to code at time of construction–no known Seismic protection seismic retrofit Auxiliary power Natural gas generator, only critical circuits served Condition Good ADA compliant in office area & mixed gender Special considerations appropriate Square footage 8,730 Facilities Available Exercise/workout Fitness room with contemporary exercise Standard kitchen, 1 dorm has no 2nd means of Kitchen/dormitory egress Lockers/showers Yes Training/meetings Training room and small meeting room Washer/dryer Yes Safety Systems & Assignments Sprinkler system No sprinkler system Smoke detection Yes, monitored off-site Security Combination key pad locks Apparatus exhaust system Plymovent system

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Table 66: Wheat Ridge Station 73 Address: 2508 Gray Street, Edgewater

This station houses Engine 73, which is staffed with four personnel. The station is significantly compartmentalized in a meandering manner. It has inefficient and ineffective flow (climb stairs to a landing, then descend to get to next room), full- thickness concrete breaks in apron in numerous locations. Not conducive to a prompt turnout time. This station is slated to be replaced.

Survey Component Wheat Ridge FPD Structure Construction type 2 story, multiple construction types, back in bays Date Not available Built to code at time of construction–no known Seismic protection seismic retrofit Auxiliary power Natural gas generator, only critical circuits served Condition Poor Station is not set up for mixed gender Special considerations accommodations (unisex restroom), not ADA compliant Square footage Not available Facilities Available Exercise/workout Fitness room with contemporary exercise Kitchen/dormitory Standard kitchen Lockers/showers Yes Training/meetings Small meeting room Washer/dryer Yes Safety Systems & Assignments Sprinkler system Yes, in living spaces only Smoke detection Yes, monitored locally Security Combination key pad locks Apparatus exhaust system Plymovent system

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Apparatus Other than firefighters assigned to stations, response vehicles are probably the next most important resource of the emergency response system. The delivery of emergency services will be compromised if emergency personnel cannot arrive quickly due to unreliable transportation or if the equipment does not function properly.

Fire apparatus are unique and expensive pieces of equipment, customized to operate efficiently for a narrowly defined mission. An engine may be built in such a way that the compartments fit specific equipment and tools. Virtually every space on a fire vehicle is designed for function. This same vehicle, with its specialized design, does not lend itself well to operate in a completely different capacity, such as a hazardous materials unit or a rescue squad. For this reason, fire apparatus offer little flexibility in use or reassigned purpose. As a result, communities across the country have sought to achieve the longest life span possible for these vehicles.

Unfortunately, no piece of mechanical equipment can be expected to last forever. As a vehicle ages, repairs tend to become more frequent and more complex. Parts may become more difficult to obtain, and downtime for repairs increases. Given the emergency mission that is so critical to the community, downtime is one of the most frequently identified reasons for apparatus replacement.

Because of the expense of fire apparatus, most communities develop replacement plans. To enable such planning, communities often turn to the accepted practice of establishing a life cycle for apparatus that results in an anticipated replacement date for each vehicle. The reality is that it may be best to establish a life cycle for planning purposes, such as the development of replacement funding for various types of apparatus; yet, apply a different method (such as a maintenance and performance review) for determining the actual replacement date, thereby achieving greater cost effectiveness when possible.

Fire administrators should be concerned about aging of the fleet and having a funded replacement schedule. As frontline units age, fleet costs will naturally be higher and more down time will be associated with necessary repairs and routine maintenance.

It is beyond the scope of work and the expertise of ESCI to provide a mechanical assessment of the apparatus. These definitions describe the general appearance and suitability of apparatus for their intended purpose. For a mechanical evaluation of the apparatus, ESCI recommends seeking the services of a certified Emergency Vehicle Technician.

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Table 67: West Metro FPD Apparatus Inventory

Apparatus Pump Tank Type Year Make/Model Condition Staff Designation Size Capacity Engine 1 P-60 Type 1 2009 Pierce Quantum Excellent 6 1250 500 Medic 1 A-37 2009 Chevy 4500 Lifeline Excellent 2 N/A N/A Res. Engine P-21 Type 1 1991 KME Renegade Good 4 1250 500 Res. Medic A-29 2003 Ford E450 Good 2 N/A N/A D1 Chief 2014 Ford Expedition Excellent 4 N/A N/A Engine 2 P-66 Type 1 2014 Pierce Quantum Excellent 4 1250 500 Medic 2 A-39 2009 Chevy 4500 Lifeline Excellent 2 N/A N/A EMS Cache 1996 Ford E-250 Excellent 2 N/A N/A Engine 3 P-62 Type 1 2010 Pierce Quantum Excellent 4 1250 500 Tower 3 L-04 Aerial 2007 Pierce Quantum Excellent 4 2000 300 Medic 3 A-38 2009 Chevy 4500 Lifeline Excellent 2 N/A N/A Engine 4 P-63 Type 1 2010 Pierce Quantum Excellent 4 1250 500 Medic 4 A-27 2003 Ford E450 Good 2 N/A N/A Rescue 4 R-10 2004 Spartan SVI Excellent 4 N/A N/A Collapse 4 2000 Sterling Good 2 N/A N/A Tech rescue 1996 Ford F250 Excellent 2 N/A N/A Engine 5 P-44 Type 1 1999 Pierce Quantum Excellent 4 1250 500 Haz Mat R-07 1999 Freightliner 22' Van Excellent 2 Haz Mat R-03 1981 Chevy Van Good 2 Jeff Co Haz Mat 2012 Ford F750 Excellent Engine 6 P-53 Type 1 2004 Pierce Quantum Excellent 4 1250 500 Brush 6 P-50 Type 6 2001 Ford F550 Excellent 4 95 300 Engine 7 P-57 Type 1 2006 Pierce Quantum Excellent 4 1250 500 Medic 7 A-40 2009 Chevy 4500 Lifeline Excellent 2 N/A N/A Invest. C-96 2008 Ford F350 Excellent 4 N/A N/A Res. Tower L-02 Aerial 1994 Pierce Lance Excellent 4 1500 300 Res. Engine P-37 Type 1 1994 Pierce Dash Good 4 1250 500 Engine 9 P-64 Type 1 2011 Pierce International Excellent 4 1000 500 Medic 9 A-43 2012 Ford F450 Lifeline Excellent 2 N/A N/A Brush 9 P-55 Type 6 2006 Ford F550 Excellent 4 95 300 Deployment C-47 1994 Ford Bronco Excellent 2 N/A N/A Engine 10 P-58 Type 1 2007 Pierce Quantum Excellent 4 1250 500 Tower 10 L-05 Aerial 2008 Pierce Quantum Excellent 4 2000 300 Dive truck R-06 1999 Freightliner 20' Van Excellent 2 N/A N/A

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Apparatus Pump Tank Type Year Make/Model Condition Staff Designation Size Capacity D2 Chief 2011 Ford Expedition Excellent 4 N/A N/A SAM Officer 2011 Ford F350 Excellent 4 N/A N/A Spec Events 2003 E450 Lifeline Good 2 N/A N/A Med A-28 Engine 11 P-49 Type 1 2001 Pierce Dash Excellent 4 1250 500 Brush 11 P-56 Type 6 2006 Ford F550 Excellent 4 95 300 Engine 12 P-59 Type 1 2007 Pierce Quantum Excellent 4 1250 500 Medic 12 A-44 2012 Ford F450 Excellent 2 N/A N/A Engine 13 P-54 Type 1 2005 Pierce Quantum Excellent 4 1250 500 Medic 13 A-42 2011 Ford F450 Lifeline Excellent 2 N/A N/A Brush 13 P-48 Type 6 2000 Ford F550 Excellent 4 95 300 Reserve Eng P-40 Type 1 1996 Pierce Saber Excellent 4 1250 500 Tower 14 L-03 Aerial 2000 Pierce Dash Excellent 4 2000 300 Air Truck R-08 2002 International Excellent 4 N/A N/A Reserve Eng P-36 Type 1 1994 Pierce Dash Good 4 1250 500 Res. Rescue R-05 1993 Spartan Good 4 N/A N/A Engine 15 P-61 Type 1 2009 Pierce International Excellent 4 1000 500 Medic 15 A-41 2011 Ford F450 Excellent 2 N/A N/A Brush 15 P-51 Type 6 2001 Ford F550 Excellent 4 95 300 Res. Medic A-35 2008 Chevy 4500 Lifeline Excellent 2 N/A N/A Res. Medic A-34 2006 Ford E450 Lifeline Excellent 2 N/A N/A Res. Medic A-33 2006 Ford E450 Lifeline Excellent 2 N/A N/A Res. Medic A-32 2006 Ford E450 Lifeline Excellent 2 N/A N/A Res. Medic A-31 2005 Ford E450 Lifeline Excellent 2 N/A N/A Res. Medic A-30 2005 Ford E450 Lifeline Excellent 2 N/A N/A

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Table 68: Wheat Ridge FPD Apparatus Inventory

Apparatus Pump Tank Type Year Make/Model Condition Staff Designation Size Capacity

E-71 Type 1 2005 Darley Custom Good 6 1500 750 E-271 Type 1 1991 Pierce Dash Good 6 1500 750 B-71 Type 6 1999 Ford F-550/ Brush Good 5 95 300 BC-71 2009 Chevy 2500 Good 4 N/A N/A C-71 2009 Chevy Tahoe Good 5 N/A N/A C-72 2009 Chevy Tahoe Good 5 N/A N/A C-74 2004 Chevy Tahoe Good 5 N/A N/A BR-72 2004 Ford Expedition Good 3 N/A N/A C-75 2004 Chevy Tahoe Good 5 N/A N/A E-73 Type 1 2005 Darley Custom Good 6 1500 750 T-72 1996 Simon Duplex Good 4 1500 200 B-72 Type 6 1999 Ford F-550/ Brush Good 5 95 300

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Support Services Training A comprehensive training program is likely the single most important factor for the preparation of firefighters to meet the myriad of challenges they will face during their careers. To ensure maximum effectiveness and safety in complex environments, firefighters and officers must acquire and maintain sufficient initial training, ongoing training, and continuing education. Failure to provide necessary training endangers firefighters and citizens, and exposes the fire department to liability.

Training programs must go beyond simply fulfilling mandatory hours. Fire service training administrators and instructors must ensure that firefighters and officers are not only competent, but also self-confident in the variety of skills necessary to perform effectively in high-stress situations.

The National Fire Protection Association (NFPA) in its standard, NFPA 1001 (Firefighter I and II), identifies the minimum training requirements that can serve as the basis for entry-level firefighters. The NFPA recommends other standards that address initial and ongoing training for firefighters and officers in a variety of specific topics. The Insurance Services Office (ISO) has a similar list of items it considers when evaluating a community’s training for firefighters. In its Fire & Emergency Service Self-Assessment Manual (8th edition), the Commission on Fire Accreditation International (CFAI) addresses “Training and Competency,” and lists a number of performance indicators under the headings of training and education program requirements, performance, and resources.

ESCI has evaluated the various components and resources of the training programs for the Wheat Ridge Fire Protection District and the West Metro Fire Protection District to determine the impact and feasibility of a potential merger. Current industry standards list the following elements as fundamental to effective training programs:

• Training administration • Training recordkeeping • Training facilities and resources • General training competency • Training methodology, operations, and performance • Training manuals and protocols

Training Administration ESCI assessed the training administrative elements of each of the fire districts. In Wheat Ridge, the district does not have full-time staff dedicated to training. The West Metro Fire Protection District maintains a dedicated Training Division utilizing full-time staff and supplements the full time training staff with adjunct instructors through an over-time budget.

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Table 69: Training Administration

Survey Component West Metro FPD Wheat Ridge FPD Division chief oversees Training Center (Internal Service Fund) & training division; Training Center manager manages center. Safety Shift battalion chief is Division duties also fall under responsible for training. No Director of training program training; currently these duties are full- or part-time staff assigned managed by the Training Center only to training. captain, although the model has not been fully developed or realized. Three full-time captains (one business captain); three full-time lieutenants (one dedicated to Red Rocks College). Reorganization eliminated some training staff Training staff positions. The Training Center No dedicated training staff captain is also responsible for the Safety Division duties WMFPD supplements the full time training staff with adjunct instructs through an over-time budget. All Fire Instructor I, most meet the Using certified instructors intent of NFPA 1041; knowledge of Yes NFPA 1403 resides in Division. Training staff meets intent of NFPA 1041 Fire Service Instructor Pro Qualifications. Members are Fire All officers certified at Fire Personnel knowledge & understanding Instructor I through CMCB and Instructor and Fire Officer 1 have knowledge relating to level. specific topics such as live burning (NFPA 1403). Clerical Support Reorganization has created need to shift duties and become more efficient. A training support administrator was hired in late Staff support No March to assist. This is not an additional position, but a vacancy that was filled with a more robust job description. Adequate office space & supplies Yes No

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Wheat Ridge Training Administration A shift battalion chief is responsible for ensuring all of the training and education requirements are met for the firefighters and officers. All Wheat Ridge officers are certified fire instructors and are responsible for supplementing the training needs of the district. Additional internal and external certified instructors are utilized as well.

Wheat Ridge does not have full- or part-time clerical support specific to training and must rely on officers and the battalion chief responsible for training to address these needs.

West Metro Training Administration The WMFPD assigns a division chief to oversee the Training Division. Under the auspices of the division chief, one individual is assigned as the training center manager. The training staff consists of three full- time captains; one of who is a “business captain,” and three full-time lieutenants. One lieutenant is assigned to the Firefighter I academy at Red Rocks Community College.

Since the “reorganization,” some training staff positions have been eliminated. One example is the loss of an engineer training position that was responsible for driver/operator training and continuing education. In addition, the duties of the Safety Division have been re-assigned to the Training Division, and are the responsibility of one of the captains. In March 2015, a training support administrator was hired to fill a previous vacancy but with an expanded job description.

The WMFPD Training Division staff members are well-qualified and certified at a minimum of Fire Instructor I. All instructors meet the intent of NFPA 1041: Standard for Fire Service Instructor Professional Qualifications. The training staff also maintains knowledge of specific topics necessary to conduct a variety of training and education sessions. One example is NFPA 1403: Standard on Live Fire Training Evolutions, which recommends minimum requirements for conducting live fire training to ensure the safety of the participants and facilities.

District policy mandates that personnel transferred to the Training Division have a minimum rank of lieutenant. Lieutenants and captains are assigned to the division through the district’s “rotational” system. Because of the nature of this process, the division chief is unable to select personnel that he prefers for assignment to the Training Division. In 2015, the division would like to develop a sustainable succession planning document that would address strategic issues.

The West Metro Training Division enjoys a strong reputation in the region for providing quality training and education. This has provided opportunities to host regional fire academies and other classes. An additional revenue stream comes from both contractual (Littleton and WRFPD) and non-contractual (Fairmount, Golden, and Arvada) relationships with other fire departments. The Littleton Fire contract will cease as of March 2016; this decreases the revenue stream and number of resources to host multi- company drills.

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Training Administration Discussion Unlike some of the other divisions (e.g., Life Safety Division, etc.), the WRFPD does not have full-time personnel assigned to training. In the event of consolidation, the West Metro Training Division would not gain additional training staff. The addition of more firefighters and officers will certainly have some impact on training and education demands, in addition to record keeping, audits, and the increased wear and tear (depreciation) of the facility.

ESCI acknowledges the WMFPD’s financial constraints, but believes the Training Division is currently understaffed by as many as 2–4 personnel. The current “rotational” system does not necessarily ensure that officers assigned to the Division are the best qualified, most experienced, or have a desire and interest in fire service training. Further, ESCI recognizes the rationale used for requiring Training Division staff to have at least the rank of Lieutenant. However, the district may be limiting itself. There could be well-qualified, experienced personnel among the non-ranked firefighters who have a genuine interest in participating in training.

RECOMMENDATIONS: • The WMFPD should consider seeking or reallocating funds to sufficiently staff the Training Division with additional full-time staff. . This should include a full time position responsible for safety duties. • Consider re-evaluating the “rotational” system of assigning officers to the Training Division as well as the requirement of the minimum rank of lieutenant. . Modify the process to enable the Training Division Chief to determine the final selection of training staff. . Officers transferred to the Training Division should be assigned there a minimum of 2– 3 years.

Administrative Priorities & Budget In the following section, ESCI examines the administrative priorities and budgets related to training and education in each of the fire districts. It was evident from the site visit and various interviews that the leadership of both districts consider firefighter and staff training a high priority.

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Table 70: Administrative Priorities & Budget

Survey Component West Metro FPD Wheat Ridge FPD Operational goals set by deputy chief of operations; training goals/objectives Performance benchmarks for noted in the strategic plan. Lesser- specific positions & methods mandated goals reside within Training for increasing proficiency Goals & objectives identified Division with intermediate steps for levels of members have been desired outcomes. Attempting to completed with assistance develop a more efficient training model from an outside consultant. due to staff reductions. Priority by management toward Self-assessment; also stipulated in Yes training goals & strategic plan. Annual training report produced Yes Yes $1–1.2 million depending on how the Training Division & Training Center are $40,000 annually (majority of Current operating budget classified; some variance due to funds go to West Metro) reorganization. Designated (approx. $500,000) & Current reserves Not applicable discretionary (approx. $200,000)

The Wheat Ridge Fire Protection District utilized an outside consultant to determine performance benchmarks for specific positions, along with identifying methods for increasing the proficiency levels of firefighters and officers. The district publishes an annual training report. The WRFPD allocates $40,000 annually for training, of which the majority goes to the West Metro Training Division.

In the West Metro Fire Protection District operational goals and objectives are determined by the deputy chief of operations and are included in the district’s strategic plan. The Training Division develops lesser goals and objectives internally and in accordance with the district’s overall mission. For 2015, the division has developed a “Training Plan” that outlines specific training needs and addresses funding and the need to revise its business strategy and model. ESCI has reviewed this plan and supports its implementation.

The Training Center operates as an internal service fund (ISF), which is a different method than the Training Division. Depending on how both are classified, the combined annual operating budget allocated for training is between $1–1.2 million. The current finance model has a goal of allocating $2,000 a year per firefighter from the general fund—although this is not always realized due to financial constraints.

RECOMMENDATION: • The WMFPD should continue to pursue other funding sources and opportunities to produce alternative revenue streams.

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Training Records In this section, ESCI has evaluated each districts’ methods for maintaining training records and other recordkeeping pertinent to training and education.

Table 71: Recordkeeping

Survey Component West Metro FPD Wheat Ridge FPD Housed at the Training Center; audited Individual training files maintained Yes occasionally Computerized and paper; not fully digital Moved from Firehouse® Records & files computerized as of yet to TargetSolutions Maintained by company officers on High Daily training records Plains RMS; converting to Target Yes (see above) Solutions software (2015) Maintained by company officers on High Company training records Plains RMS; converting to Target Yes (see above) Solutions software (2015) Depreciable and non-depreciable items maintained on spreadsheets & through Training equipment inventoried Not applicable Finance Division (depreciable items greater than $5,000)

Both fire districts have done an excellent job of maintaining the necessary training records of their personnel. The Wheat Ridge Fire Protection District has moved from its records management system (RMS) for training documentation to TargetSolutions. This is an online application for not only tracking and reporting training, but also delivering a variety of fire-service training topics in accordance with specific NFPA and other standards.

The WMFPD has not yet become fully digitized in maintain its training records. The Training Division began converting its recordkeeping from its RMS to TargetSolutions in 2015. Company officers are required to enter personnel training records.

The Wheat Ridge Fire Protection District has limited training equipment and does not maintain inventory records. The West Metro Finance Division tracks training equipment inventory on both depreciable items (valued at greater than $5,000) and non-depreciable items using spreadsheet software.

Personnel Trained The Wheat Ridge Fire Protection District provided training records for the period between January 1, 2012, and December 31, 2014, of 52 firefighters, officers, and other staff. During this 36-month period, personnel attended a broad range of applicable subjects (totaling 59,569 hours) and averaging 1,145 hours per person (an annual average of 381 hours per person). Topics included everything from fire suppression tactics to emergency medical procedures.

The data provided to ESCI did not distinguish which position each individual held (i.e., firefighter, officer, administrative staff, etc.). When evaluating the first 30 individuals with the highest quantity of training

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hours, the annual average was 137 hours per person (or an average of 411 hours for the 36-month period).

In its 2014 “Annual Executive Summary,” the West Metro Training Division lists and describes the specific training delivered to its members for that year. The division listed 10 general categories (excluding EMS) that comprised a grand total 63,331 hours; the majority (27,530 hours) being company- level training. The report lists nine topics described as “key training deliveries,” provided directly by the division. These totaled 36,173 hours, averaging 111 hours annually per uniformed personnel.

Training Facilities An important aspect of training is the availability of adequate classroom facilities, drill grounds, props, equipment and other resources necessary to conduct effective training sessions.

Table 72: Training Facilities & Resources

Survey Component West Metro FPD Wheat Ridge FPD Substantial facility; approximately Training facilities (tower, props, pits) No dedicated training facility $18 million; comprised of 10 acres Able to use the Class A Class A & propane props exist in Live fire prop “burn house” at Fairmount residential & commercial settings Fire Training Center situated on about Fire & driving grounds 10 acres; driving grounds None encompass about 4 acres Training Center internal service fund has designated funds (capital Capital facilities/equipment plans & improvement, SCBA for Red Rocks Not applicable upgrades Academy, etc.) and discretionary funds for innovation and capital growth Six class rooms available; total Small classroom at Station Classroom facilities capacity about 230, depending on 71 arrangements AV & computerized network; Simulation lab at Station 71; Video, computer simulations ICS/fire simulation lab on site computers at each station Assorted trade journals at Hard & e-copy library maintained Books, magazines, instructional materials stations; books purchased at Training Center for students as assigned Adequate training space, facilities, & Yes No equipment Full-time employee maintains Maintenance of training facilities Training Center; adequately Not applicable funded

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Wheat Ridge Training Facilities One of the shortcomings found with the Wheat Ridge Fire Protection District is the lack of adequate training facilities. This does not indicate a lack of commitment to training by the leadership and personnel of the organization, but simply a lack of available resources.

The district maintains a small classroom at Station 71, along with a well-designed simulation lab. Each of the fire stations has computers accessible to the firefighters for online training. The Fairmount Fire Department allows the WRFPD to utilize their Class A “burn house.” Various trade journals and other publications are available at each of the stations.

West Metro Training Facilities The West Metro Fire Protection District maintains an $18 million state-of-the-art training center located on an approximate 10-acre site. The Training Center is clean and well-maintained under the direction of a full-time employee and is adequately funded on an annual operating cost basis; this does not include depreciation funding.

The Training Center has substantial residential and commercial live fire props for both Class A and propane. There are six classrooms that can be configured up to a capacity of 230 persons. Sophisticated audiovisual equipment is available in each classroom, and integrated with the computer network. In addition, a computer simulation lab enables scenario-based practice in incident command and fire suppression. The four-acre drill/driving grounds are sufficient to allow emergency vehicle operation training and a variety of training evolutions. A complete hard copy and digital library is maintained at the Training Center.

Training Facilities Discussion The West Metro Fire Protection District maintains an excellent training center with substantial equipment and other resources. Consolidation of the fire districts would provide the current firefighters and officers to the Wheat Ridge Fire Protection District with access to a much broader range of training and educational resources.

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General Training Competency & Operations ESCI assessed the general training competencies of each fire district. A critical element of any fire department is ensuring that its firefighters are competent or proficient in both basic and other skills.

Table 73: General Training Competency

Survey Component West Metro FPD Wheat Ridge FPD Entire district maintains ICS-100, ICS-200; Lieutenants are ICS-300; Captains & chiefs ICS-100, 200, 700 & 800 Incident command system– ICS-400, ICS-700 and ICS-800. Blue Card® required within 1 year of certification levels defined? certified at chief officer, officer & acting appointment; simulation lab officer level with quarterly ICS training in & Blue Card® to act as officer place (on-line and face-to-face). Two SOPs (301 & 306) concerning accountability; several others interface MAYDAY & PAR Standard Accountability procedures with accountability, such as MAYDAY, Operating Procedures radio, etc. Three layers of treaties; Administration Procedures (AP), Standard Operational Procedures (SOP– Operational), Directives Training Standard Operating Policy & procedures (specific nature); updated through Guidelines accreditation, & maintained on intranet or on Target Solutions. Specific safety SOPs (311 Highway Safety, Firefighter Life Safety 312 Rehabilitation, 313 Safety Isolation Safety procedures incorporated into the training Zone, etc.) as well as safety being written program in to most other operational SOPs WMFPD hosts own Firefighter II Academy; Training program that testing to Colorado Metropolitan outlines and tracks Certification Board (CMCB) Pro Board probationary member’s Standard. Academy is from 18–22 weeks development. New recruits Recruit academy long; depending on how some trained to NFPA 1001: prerequisites and mandates are addressed Standard for Professional (such as car seat technician or ICS Firefighter Qualifications; certifications). Outside agencies pay fee to Firefighter II participate in academy. Officer development training CMCB, which is a Pro Board accredited done via in-house & with Officer development training agency; Training chief is board of director West Metro; South Metro for CMCB Lieutenant Academy; officer development task book Fire Department Safety Officers Completed for all officers in Safety officer training Association (FDSOA), RIT, in-house training 2014

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Survey Component West Metro FPD Wheat Ridge FPD WMFPD has a Technical Rescue Team (high-angle, confined space, trench, etc.) & a Dive Team (lake, swift water, etc.). Special rescue (high angle, confined Technical Rescue Team supplements None space, etc.) Colorado USAR Team. WMFPD is host site for CO-TF1. Training associated with CO- TF1 is valuable resource to emergency responders. Hazmat operations training; Hazmat Team housed at Stations 3 & 5; three hazmat technicians; & Hazardous materials participate in a joint inter-county team two in-house hazmat instructors All trained in initial attack; district has 6 NWCG S-130 and S-190 interface stations that can support a Wildland firefighting annual refresher training; S- mutual aid immediate need. Wildland 190 & Engine Boss Team exists for extended deployments. Extrication training managed through Basic extrication training; two Vehicle extrication subject matter experts throughout district classes annually Implemented in 2010; engineers complete in-house Defensive driving & vehicle Taught in DOI at the FFII academy; training. State Driver- operation refreshers are given on occasion Operator certification required Use & care of small tools Policies & procedures for use & care Training done by officers SOPs for radio communications (SOP 212, Radio communications & dispatch In-house standard operating 800, and 807, etc.). Internal dispatch protocol? procedure center SOPs. Fire Officer and Driver/Operator (Engineer) programs are in place prior to promotional Employee development program Firefighter and AIC task books opportunities; review and revise through CMCB as well as internal needs Seldom captured through training (652 hours in 2014); some quick drills require Pre-fire planning included in Yes, by company officers and pre-fire planning at training level. Most training Prevention Division staff pre-fire planning captured through Life Safety Division. EMS skills & protocols? Provided by the EMS Division See “EMS” section

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As shown in the preceding table, both fire districts have effectively provided sufficient training and education for their firefighters and officers. In the WMFPD, employee development programs are in place for firefighters, officers, engineers, and “acting” officers and acting engineers. Overall, the districts are providing training in accordance with most national standards. The West Metro Training Division does not provide EMS training or continuing medical education (CME), which is the responsibility of the EMS Division.

Table 74: Training Operations

Survey Component West Metro FPD Wheat Ridge FPD Safety is captured in lesson and drill Plan provided by Absolute Fire Attention to safety plans & Safety, Littleton, CO Curbside lessons-learned (hot wash, etc.) conducted post-evolution. Annual reports developed indicating performance measures, opportunities & challenges. Lessons- Every structure fire and any Post-incident analysis learned for actual emergency significant incidents incidents; Training Division participates in process & produces lessons-learned document; electronic feedback forms included Several instructional manuals are Training program manual; Training procedures manual developed used (IFSTA, NFPA, etc.); in-house annual training calendar & used treaties are developed (training, created & distributed safety and drill plans, etc.)

The Wheat Ridge Fire Protection District has adopted a safety plan provided by a local outside firm. The West Metro Fire Protection District incorporates safety into its lesson and drill plans. In 2015, the WMFPD plans to develop and implement a new safety division model. Both districts recognize the importance and necessity of safety procedures during live-fire training and other drills.

In Wheat Ridge, a post-incident analysis is conducted after every fire and major incident. The West Metro Training Division participates in post-incident analyses and produces lessons-learned documents from both actual incidents and training evolutions. Electronic feedback forms are provided to participants in order to gain their perspective on a particular incident.

The WRFPD has developed a training program manual that defines expectations. A training calendar is developed annually and distributed among the district’s personnel. The West Metro Training Division utilizes a variety of resources from the NFPA, International Fire Service Training Association (IFSTA), and Colorado Metropolitan Certification Board (CMCB), to develop its own training, safety and drill plans.

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Training Competency & Operations Discussion As mentioned previously, the West Metro EMS Division is responsible for delivering EMS training and CME. ESCI has recommended (see Emergency Medical Services) transferring all EMS-related training to the Training Division if certain conditions could be met (i.e., the addition of more full-time training staff). There may be advantages to this and the potential exists for more efficiency by incorporating all training into one division. For example, in some cases fire, hazmat, and other training sessions could incorporate EMS CME. If this is implemented, the Training Division should work closely with the EMS Division in the development of annual training plans related to EMS. Plans should include frequent opportunities for firefighters to practice critical basic and advanced clinical skills.

Training Methodologies ESCI assessed the various methodologies adopted by each of the districts to deliver training and education. To be most effective, it is important that fire departments utilize an assortment of training methodologies in order to ensure sufficient knowledge and skills among their firefighters and officers.

Table 75: Training Methodologies

Survey Component West Metro FPD Wheat Ridge FPD Manipulative skills taught & part of most Skills repetition. PowerPoint® training drills (quick drills, officer lead, multi- presentations followed by Manipulative company, etc.). NFPA 1000 & accreditation multiple sessions of scenario- assists in development of skills & performance based practice measures Performance measurements developed; frequency counts sometimes managed to Two hours of training per Task performance/frequency increase success. NFPA 1000 & accreditation shift; three simulation assists in development of skills & performance sessions per month measures For all drills; lesson plans developed, taught, Develop internal tailored Use of lesson plans and archived lesson plans Night drills hosted in 2014; none scheduled Night drills One per month yet for 2015; may be unable to do in future Multi-company drills Multi-company drills conducted annually conducted with surrounding between WMFPD & WRFPD (7 times); drills Multi-agency drills agencies once each quarter conducted with WMFPD, WRFD, and Littleton (WMFPD, Arvada, & Golden FD three times annually FDs)

Inter-station drills Drills conducted monthly Yes

Company officer-lead drills conducted at drill Interagency drills Yes ground three times annually Participation in disaster drills developed Annually with Wheat Ridge Disaster drills conducted through North Central Region, Jefferson Police Department and County, City of Lakewood, & St. Anthony Pridemark Ambulance

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Survey Component West Metro FPD Wheat Ridge FPD Performance evaluations conducted annually. Annual performance Consist of 3–6 skill stations & a multi-company Yes evaluations & multi-agency exercise with a formal evaluation tool

Each of the districts has delivered training through use of multiple training methodologies. No longer required by the ISO, the West Metro Training Division may discontinue night drills due to budget constraints and commitments to other programs and needs. In 2015, the division plans to conduct formal evaluations of firefighter skills and multi-company evolutions.

General Training Discussion It was evident in ESCI’s observations that the leadership of both fire districts recognize the importance and value of training within their respective organizations. Despite operating under substantial constraints of funding and limited training staff, both districts have been able to deliver high-quality ongoing training and continuing education. During the site visit, Wheat Ridge firefighters expressed a passion for their jobs and a sincere desire to learn and improve; some have even expended their personal funds to acquire training.

In 2015, the West Metro Training Division conducted an online survey of the district’s members. The survey consisted of 54 questions within various categories: overall satisfaction with the Training Division; facilities, environment, curriculum and communication; knowledge of the Training Division and Training Center; general fire service concepts; and firefighter, paramedic, engineer, and officer needs assessments. ESCI commends the Training Division for its resoluteness to provide effective internal customer service. This document should provide the leadership with better insight into the training and educational needs of their firefighters and officers. The following figure is an excerpt of the results of some of the survey questions.

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Figure 30: Excerpt Results from the WMFPD 2015 Training Survey

In the last 18 months, I have been satisfied with communications from 13.64% 39.8% 37.50% 7.95% the Training Division (88).

In the last 18 months, I have been satisfied with the curriculum of the 21.59% 46.6% 28.41% 2.27% Training Division (88).

In the last 18 months, I have been satisfied with the instruction of the 8.99% 24.7% 49.44% 15.73% Training Division (89).

In the last 18 months, I have been satisfied with the 23.33% 24.4% 36.67% 12.22% environment/culture at the Training Center (90).

In the last 18 months, I have been satisfied with the facilities at the 5.62% 13.5% 49.44% 30.34% Training Center (89).

Overall, I have been satisfied with the Training Division within the last 24.77% 33.0% 33.94% 7.34% 18 months (109).

0% 10% 20% 30% 40% 50% 60% 70% 80% 90% 100% Strongly Disagree Disagree Neutral Agree Strongly Agree

From a training perspective, ESCI believes that consolidation is feasible but with some caveats. The WRFPD does not have a dedicated training division or training staff. Although the WMFPD currently provides some of the training to the WRFPD, the addition of more personnel will increase the burden on the Training Division. To be most successful, changes in the division’s training staff should be considered.

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Prevention & Life Safety Historically, most U.S. fire departments have developed fire prevention programs through the adoption of fire codes and ordinances; property inspections and code enforcement; fire-cause investigations; and public education programs. This, undoubtedly, has reduced property loss, death and serious injuries from fires.

In recent years, many fire departments have undertaken more comprehensive, multifaceted programs to address community-wide risk management beyond fire prevention only. This often includes emergency medical incidents, rescues, and hazardous materials. Using an assortment of risk assessment methods (ranging from firefighter “windshield surveys” to incident data analysis), fire departments are developing Community Risk Reduction (CRR) plans that produce mitigation strategies.

In the current (8th edition) Fire & Emergency Service Self-Assessment Manual published by the Commission on Fire Accreditation International (CFAI), Criterion 5B: Fire Prevention/Life Safety Program, states: “The agency operates an adequate, effective, and efficient program directed toward fire prevention, life safety, hazard risk reduction, the detection, reporting, and control of fires and other emergencies, the provision of occupant safety and exiting, and the provisions for first aid firefighting equipment.” The various performance indicators listed in that section are necessary to attain accreditation (fire investigations are covered in Criterion 5D).

Prevention & Life Safety Assessment The West Metro Fire Protection District maintains the Life Safety Division under the supervision of the Fire Marshal. The Wheat Ridge Fire Protection District operates the Division of Fire Prevention, also under the supervision of the Fire Marshal. Both the WRFPD and WMFPD provide all-inclusive prevention and life-safety programs among the various jurisdictions encompassed within their respective districts.

Wheat Ridge Division of Fire Prevention The Wheat Ridge Fire Division of Fire Prevention is responsible for code enforcement (including commercial life-safety inspections and construction plan-reviews), various public education programs, and fire investigations. Most of this activity occurs within the City of Wheat Ridge but also includes the City of Edgewater, unincorporated portions of Jefferson County, and the towns of Mountain View and Lakeside. The staff is comprised of: • 1–Fire Marshal (full-time) • 1–Deputy Fire Marshal (full-time) • 1–Assistant Fire Marshal (volunteer) • 1–Life Safety Education Coordinator (volunteer)

The Fire Marshal believes that one of the strengths of the organization is the “seasoned” and knowledgeable investigators. In addition, the prevention staff frequently engages with the business community and maintains ongoing positive relationships.

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West Metro Life Safety Division The WMFPD’s Life Safety Division is comprised of four bureaus: Code Enforcement, Fire Investigation, Community Education, and Building Construction/Plan Review. The Division’s primary responsibilities include: a variety of public education programs, fire investigations, promulgation and enforcement of fire codes, plan reviews of new construction, construction and building code-compliance inspections (by both Division personnel and on-duty line firefighters), regulation of hazardous materials use and storage, and issuance of building and special permits. Responsibilities of the division are apportioned among the bureaus:

• Code Enforcement Bureau—management of the building inspection process; following up on panel alarms; fielding calls and complaints from citizens regarding fire pits, BBQ grills, open/illegal burning, and other issues. The bureau is also responsible for permits and inspections of special events (e.g., firework displays, festivals, and other events involving large crowds). One assistant fire marshal in the bureau also serves as the hazardous materials compliance officer. • Community Education Bureau—responsible for delivering various public education programs, classes, and other materials to schools and businesses. • Fire Investigation Bureau—investigation and determination of the cause, origin, and circumstance of every fire occurring within the district. • Building Construction/Plan Review Bureau—reviewing all plans submitted prior to construction; building inspections following plan approval.

Figure 31: WMFPD Life Safety Division Organization Chart

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West Metro Life Safety Division Staffing The division maintains a staff of 18 full-time equivalents (FTE). Six line firefighters (scheduled among the three shifts) serve as additional fire investigators, and are not assigned full-time to the Division. The Life Safety Division management feels that the current staff is comprised of highly motivated individuals with a strong teamwork ethic and excellent internal communications. Without supervisor participation, division personnel collaborate on schedule development in a manner that ensures adequate daily staffing. These individuals have excellent credentials, which are consistent with Colorado State requirements. The WMFPD inspectors and other staff have positive working relationships among the various local governments within their jurisdictions.

As found within some of their other divisions, the West Metro Fire Protection District staffs the Life Safety Division with firefighters transferred from the Field Operations Division. The practice utilized for bringing in new personnel is a “rotational” method related to the promotional process. This manner of staffing can be problematic for the division for several reasons:

• Newly transferred personnel (firefighters) from Operations often do not have the necessary credentials to meet the Life Safety Division’s needs and requirements. Typically, it takes about two years to obtain the essential training and certifications. This minimizes overall productivity due to the time needed to learn the complexities involved in fire prevention and life safety.

• Division management does not always have the option to select those individuals they would prefer for vacant positions.

• Firefighters rotated in to the Life Safety Division do not necessarily have a genuine desire or interest in fire prevention and life safety and may be motivated by other reasons (this is not necessarily true in every case).

• Rotating personnel in and out of the division can result in staff with limited experience and the necessity to develop new relationships with the business community and others that were previously established.

• Expenses incurred for training, continuing education, and other employee-related expenses (specific to the Life Safety Division) have a limited return on investment since these costs must be repeated every few years.

Current Life Safety Division personnel are very well-qualified and highly functional. However, in the future, if new positions are added or personnel replaced using the current process, efficiency and service may temporarily decline—and likely include the addition of unnecessary training and overtime expenses. Although more difficult to ascertain, personnel rotated into the Division may or may not have aspirations for a career in prevention work. It was evident from ESCI’s site visit and subsequent discussions that current members of the Division have a strong commitment to their work.

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RECOMMENDATIONS: • As current personnel leave due to attrition, retirement or promotion, the WMFPD should consider hiring qualified and credentialed civilian inspectors and staff from outside the organization. . First consideration should be to develop a succession plan that enables education and development of interested firefighters prior to assignment to the Life Safety Division. . Second consideration could be for firefighters who express a genuine desire to work in the division and who have acquired a minimum amount of related training. • Wages and benefits of civilian staff would need to be negotiated with the bargaining unit. However, compensation should be at levels commensurate to attract qualified candidates. • Regardless of whether or not civilians are utilized, the deputy chief of the Life Safety Division should have the authority to determine the final selection of personnel within the division.

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Fire Codes & Enforcement Ordinances & Fire Codes Both fire districts provide code enforcement within their various jurisdictions. Generally, most of these communities have adopted, along with amendments, some variation of the International Fire Code (IFC), as developed by the International Code Council (ICC). While many of the jurisdictions within each district have implemented the 2012 version of the code, other communities are using older versions with assorted amendments. In the Wheat Ridge Fire Protection District, these range from the 2009–2012 versions. In the West Metro Fire Protection District, the various jurisdictions have adopted the IFC (some with amendments) with versions ranging from 2003–2012.

Table 76: Ordinances & Fire Codes

Survey Component West Metro FPD Wheat Ridge FPD IFC with amendments; Fire codes adopted IFC for plan reviews many NFPA standards by IFC reference 2012 IFC; different codes adopted by various 2012 IFC adopted in jurisdictions in district; December 2014 for Wheat Colorado adopted 2015 IFC Ridge; different IFCs Code used (year/version) for public schools & adopted by various healthcare facilities; 2012 jurisdictions in district, IFC for state-owned ranging from 2009-2012 properties Amended to 2012 IFC Local amendments to IFC Local codes or ordinances adopted; amendments codes for all municipalities Sprinkler ordinance in place Commercial only Commercial only

The State of Colorado has adopted the 2015 IFC for public schools and healthcare facilities but utilizes the 2012 IFC for state-owned properties. There are no residential sprinkler ordinances in either of the districts or their respective cities and towns. Throughout both districts, sprinklers for commercial occupancies are required in accordance with the IFC.

Since there is no uniformity or consistency among the various codes that have been adopted throughout both districts, the code-compliance inspection process is somewhat more complicated for prevention staff. However, this is not an overwhelming burden and necessitates that inspectors utilize the applicable code book for each particular community.

RECOMMENDATIONS: • The Life Safety Division should consider working with the various cities and other jurisdictions to adopt standardized, uniform fire codes and necessary amendments, in order to achieve consistency throughout the districts. • Consider forming a task force or committee to include key stakeholders representing the various jurisdictions throughout the district, as well as representatives of the WMFPD.

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Code Enforcement & Inspections Both divisions regularly conduct annual, biannual, and other code-compliance inspections, re- inspections and follow-up inspections. During 2014, Wheat Ridge conducted 921 inspections. During the same period, West Metro’s Division completed 1,849 new construction permit inspections, with 3,747 occupancy inspections done by line personnel. These figures do not include the hundreds of pre-fire planning completed by their respective shift personnel assigned to engine and other companies. Wheat Ridge describes one of their weaknesses as being a “lack of consistency of annual inspections.”

Table 77: Code Enforcement & Inspections

Survey Component West Metro FPD Wheat Ridge FPD Self-inspection program in place No No Annual for high & moderately high & Frequency of inspections biannual in moderately Annual inspections low occupancies; every 3 years for low hazards Perform existing occupancy inspections Yes Yes Annual per ISO & NFPA; Companies do annual pre- Pre-fire planning done; by whom? shift crews & Fire fire planning inspections Prevention staff Shift crews & Fire Inspection program Yes Prevention staff Yes; administrative citation Citation process in place & formally Yes; nuisance fees also process through the documented/adopted appropriate municipality Court cited to District Attorney Goes to arbitrator first Inspections computerized/documented Yes; High Plains RMS Firehouse Software® Number of personnel devoted to program 15 2 full-time; 3 volunteers Yes; miscellaneous fee Fees for specialty inspections and/or permits Operational permits schedule

New Construction & Plan Reviews The Wheat Ridge Division of Fire Prevention conducts new construction and plan reviews on a consistent basis. In 2014, they reviewed 185 new construction plans, and conducted 324 construction permit inspections. There was a substantial upsurge in workload in Wheat Ridge between 2012 and 2014. Plan reviews increased by 65 percent, while construction-related inspections went up by 144 percent. Some of this increased demand was addressed by the addition of one full-time staff member in 2013, and a volunteer in 2014.

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Table 78: New Construction & Plan Reviews

Survey Component West Metro FPD Wheat Ridge FPD Consulted in proposed new construction 10-day average approval Yes Perform fire & life-safety plan review Yes Yes Sign-off on new construction Yes Yes Yes, fees for building plans Charges for inspections or reviews Yes review Schools, daycare, hazmat Special risk inspections Some sites Storage tank inspections (above/below ground) Some Yes Key-box entry program in place Knox Knox

The West Metro Life Safety Division has also seen an increase in requests for plan reviews and construction inspections. During 2014, the Division completed 1,030 plan reviews, and 1,849 construction permit inspections. WMFPD revenue from permits and fees for 2014 was $502,173.

The following figure illustrates the levels of activity in plan reviews, construction inspections, and assorted code-compliance inspections by both districts during 2014. In the event of consolidation, the demand for plan reviews could increase to nearly 1,200 annually; construction inspections to nearly 2,200; and assorted code-compliance inspections to nearly 4,700 a year. The rate of growth seen in the preceding years indicates potentially higher numbers.

Figure 32: Wheat Ridge & West Metro Plan Review & Inspection Activity (2014)

4,000

3,500 Wheat Ridge West Metro 3,747

3,000

2,500

2,000 1,849 1,500

1,000 1,030 921 500 324 0 185 Plan Reviews Construction Inspections Assorted Inspections

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Fire Investigation Colorado State revised statutes authorize fire chiefs to: “investigate or cause to be investigated, the cause, origin, and circumstance of every fire occurring within his jurisdiction by which property is destroyed or damaged and, so far as is possible, determine whether the fire was the result of carelessness or design.”

Table 79: Fire Investigation Survey Component West Metro FPD Wheat Ridge FPD Two volunteer investigators; full-time fire Fire origin and cause determination Yes marshal and full-time deputy fire marshal Fire Investigation Person responsible for investigations Coordinator; one on-duty Fire marshal investigator/shift On-call volunteer Arson investigation and prosecution Yes investigator; full-time deputy fire marshal Arson investigation training provided Yes Outside source Yes (local PD & CO Bureau Liaison with law enforcement Yes of Investigations) Evidence collection process in place Yes Yes File, record, & evidence security Yes Done by law enforcement Support law enforcement; juvenile firesetter Process for handling juvenile suspects Yes intervention program available Records maintained on investigations Yes Yes Local FIT membership (fire investigation team) Yes No Scene control practices in place Yes; outlined in SOPs Yes Yes; Life Safety Division Staff does, or Lakewood Photographer available staff Crime Lab Adequate & appropriate equipment supplied Yes Yes Investigator decision; Release required for entry sometimes warrant Yes requested

Both West Metro and Wheat Ridge conduct fire-cause investigations within their respective districts. The West Metro Life Safety Division maintains a Fire Investigation Bureau responsible for these activities. The Bureau is overseen by a Fire Investigation Team Coordinator (FITC), with three full-time fire investigators. In addition, six shift firefighters are assigned as alternate investigators.

In 2014, the Wheat Ridge Division of Fire Prevention conducted a total of 47 fire investigations; 29 were determined to be of an accidental cause. The cause could not be determined in five cases. The WMFPD

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provided records for 2013, in which the Investigation Bureau investigated 132 out of 407 fires (approximately 32 percent) that year. Of the 132 fires that were investigated by West Metro in 2013, 58 incidents involved arson, and approximately 38 percent were cleared following investigation.

Electronic records are maintained by each district (via a respective records management systems) on fire and arson investigations. The Wheat Ridge Fire Protection District utilizes the Firehouse® Records Management System to document fire incidents and investigations, while West Metro uses High Plains RMS.

Arson Investigation Both organizations maintain relationships with local and state (Colorado Bureau of Investigations) law enforcement in cases of arson and juvenile-related fire incidents. Arson investigation training is provided to all investigators through several sources. The FIT and on-duty investigators at West Metro are all law enforcement officers certified in accordance with the Colorado Peace Officer Standards & Training (POST).

Both districts indicated they have adequate and appropriate equipment necessary for investigative purposes. West Metro does its own photography, as does Wheat Ridge although it utilizes the Lakewood Crime Lab on occasion for photographic services. Each has adequate evidence-collection and security policies in place, along with fire scene-control procedures.

Fire Safety & Public Education Public education is an important component of any effective prevention program. During its evaluation process, the Insurance Services Office (ISO) appraises the activities of the various public fire safety education programs and the training, certification, and qualifications of public fire safety educators. Such programs may include fire safety education in schools, residential fire safety programs and fire safety in occupancies with substantial loss-potential or hazardous conditions. The standard used by the CFAI in the accreditation process states: “A public education process is in place and directed toward identifying and reducing specific risks in a manner consistent with the agency’s mission.”10

10 CFAI: Fire & Emergency Service Self-Assessment Manual, 8th edition; Criterion 5C.

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Table 80: Fire Safety & Public Education

Survey Component West Metro FPD Wheat Ridge FPD One volunteer for pub. Public education (PIO works for Public education/information officer in place education; fire marshal fire chief) serves as PIO Addressing improvements in Some programs provided Public education in the following areas: strategic plan by request Calling 911 In schools Yes EDITH (exit drills in the home) In schools Yes Smoke alarm program On occasion; not consistent Smoke alarm classes only Fire safety in the healthcare setting; fire Fire safety (heating equipment, chimney, Limited; based on request extinguisher for electrical equipment, kitchen/cooking, etc.) commercial occupancies & elderly Bike helmets; fall prevention Wheat Ridge Fall Injury prevention (e.g., falls, burns, etc.) program at SAH Prevention Task Force Car-seat checks/installation Yes Available on request Fire extinguisher use 5–7 classes taught annually Available on request Fire brigade training No No Elderly care & safety Yes Available on request “Story Time at the Curriculum used in schools Firewise; own EDITH Firehouse” Babysitting classes offered Minimal No CPR courses, BP checks offered No No Wildland interface education offered At request Yes Fire safety in classroom Other programs File of Life; Smart911.com during fire prevention week; File of Life Publications available to public NFPA & district publications Yes Bilingual information available “After the Fire” pamphlet No Annual report distributed to community Yes Juvenile fire-setter program offered Yes; regional program Available on request

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Wheat Ridge Public Education Program In Wheat Ridge, the fire marshal serves as the public information officer (PIO) at fires and other major events. The district has endeavored to deliver effective public education but is limited to one volunteer assigned to conduct the various programs. According to management, public education tends to be “reactive” rather than “proactive.” Even with these limitations, in 2014 the WRFPD was able to conduct or participate in 74 public education classes, events, or tasks, along with attending 89 public relations committee meetings or other related events. The Division of Fire Prevention also reported conducting 40 continuing education classes to operations personnel on topics that included code enforcement and fire investigation.

West Metro Public Education Program West Metro’s public education program has been described thoroughly in the self-assessment document associated with the accreditation process. It has met the performance indicators as described in criterion 5C.1–8.11

The Life Safety Division’s ability to deliver public education programs has significantly declined. Currently, one individual is assigned to public education—a decrease from 4.5 FTEs previously delegated to provide public education.

Despite staff limitations, the division was able to generate 77,595 community education contacts during 2014. This included a number of events conducted by on-duty firefighters, such as apparatus visits at community events, evacuation drills, fire station tours, and the installation of smoke and/or carbon monoxide alarms in residences.

Table 81: West Metro Public Education Activities Quantity or Program/Activity Description No. of Citizen Contacts Assorted Community Events 19,000 citizens Assorted School Programs (students & teachers) 6,847 citizens Senior Fire Safety & Fall Prevention 615 citizens Special Needs 75 citizens Low-Income Outreach 7,501 citizens Workplace Safety & Fire Extinguisher Training 392 citizens Juvenile Firesetter Program 26 citizens Kids Club Monthly Safety Activities 49 classrooms Motor Vehicle Safety (car-seat checks) 361 Emergency Preparedness & Other Materials Distribution 21,244 items

In addition to the activities described in the previous table, the division provided 25 child car seats, 20 smoke alarms, 8 carbon monoxide alarms, 30 bicycle helmets, and 233 teddy bears (to kids in the Kids in

11 CFAI: Fire & Emergency Service Self-Assessment Manual, 8th edition.

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Crises Program). In 2014, the district acquired $110,423 in assorted products, grants, donations, and sponsorships.

Notwithstanding reductions in staffing and resources, both the Wheat Ridge Division of Fire Prevention and the West Metro Life Safety Division managed to deliver a considerable amount of fire prevention and life safety activities to their respective communities.

RECOMMENDATIONS: • The districts should continue to apply for additional grants and look for alternative revenue sources that can be used for public education and prevention programs. • Additional staff should be added to the districts and assigned to conduct public education and prevention programs. • Public education and prevention programs should be based on the results of a comprehensive community risk assessment, and integrated within a community risk reduction plan. • Prevention programs and activities should have measurable objectives that enable the Division to determine effectiveness and outcomes.

Community Risk Reduction The WMFPD Life Safety Division recently completed a station-based risk assessment entitled, “West Metro Fire Rescue Risk Assessment, 2009 to 2013.” In a number of areas, the document is comprehensive and addresses community risks in great detail. Using a scoring system, the Fire Manager™ module in the district’s records management system produced a hazard assessment risk profile (HARP) by assigning a numeric value to each commercial occupancy.

Table 82: Community Risk Assessment & Reduction

Survey Component West Metro FPD Wheat Ridge FPD Community risk reduction plan (CRR) completed Risk assessment only No Plan includes community risk assessment Yes No Community profile developed (demographics) Limited material No Target hazard analysis completed Station-based high hazards Yes Risks identified & prioritized Unclear in the report No Reduction strategies & tactics developed Unclear in the report No Does not appear plan Risk reduction plan implemented No implemented Plan being monitored & evaluated Yes; Updated in 2014 No

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Although this was a well-written assessment, ESCI identified specific shortfalls in some areas. There was limited demographic information describing the community profile. A good assessment should encompass the composition of the people who are part of or are impacted by the various problems occurring throughout the community. The assessment did not contain a detailed analysis of emergency medical incidents—the major driver of service demand. Potentially, there may be preventable illnesses and injuries (e.g., ground-level falls among the elderly; child head injuries from bicycle accidents; etc.) which could be addressed in a CRR plan.

It was evident that the WMFPD met the minimum requirements for accreditation by the CFAI by conducting a risk assessment. While a risk assessment is the important first step in the process, the document did not address the other important components of a complete community risk reduction plan. Likely due to limited staff and resources, the Wheat Ridge Fire Protection District was not in a position to develop a community risk reduction plan.

RECOMMENDATIONS:

• Should consolidation occur, the Life Safety Division should consider a re-assessment of risks that would include those areas within the WRFPD service area. . The assessment should include a more comprehensive analysis of EMS and include the development of a community profile that evaluates the district’s demography in more detail. . Causal factors of the primary risks should be included in the assessment. . Once identified, the risks should be evaluated and prioritized to determine consequences and community vulnerability. • The risk assessment should be used as the first step in the development of a complete community risk reduction plan. This should include: . The development of strategies and methods to eliminate or mitigate risks identified in the assessment. . Preparation of a written CRR plan, followed by implementation of the plan. . Ongoing monitoring and evaluation of the plan, and modification as indicated.

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Statistical Data Collection & Analysis Both districts utilize effective electronic data-collection applications. Fire and other incident records are maintained in accordance with the National Fire Incident Reporting System (NFIRS) version 5.0. Inspections, occupancy information, fire investigations, and public education programs are recorded. The results of data analysis are published and distributed to the public and key stakeholders.

Table 83: Statistical Data Collection & Analysis

Survey Component West Metro FPD Wheat Ridge FPD Records kept by computer Yes Yes Information Collected Fire incidents Yes Yes Time-of-day & day-of-week Yes Yes Method of alarm (how received) Yes Yes Dispatch times Yes Yes Investigator response times Yes No Hydrant-flow records maintained Done by 27 water districts Done by water districts Information analyzed & used for planning Yes Minimal Reports made & distributed Yes Yes FTEs used in data collection & analysis None; completed by all None

One issue that will need to be considered in the event of consolidation is the different records management systems utilized by the districts. Assuming that West Metro will continue to use High Plains RMS, Wheat Ridge staff will require training in order to maintain consistent records. It will be important that historical fire-incident, inspection, occupancy, and fire and arson investigation records and reports from Wheat Ridge be archived, but remain accessible, for a number of years following consolidation. This will need to be carefully considered, and the districts will want to ensure that they adhere to any applicable state laws that govern arson and/or fire investigation records.

RECOMMENDATION: • The WMFPD and WRFPD should assemble information technology professionals, prevention staff, and other subject-matter experts to develop a plan/process to address current and historical electronic records related to fire prevention, inspections, and investigations.

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Prevention & Life Safety Discussion It was evident during ESCI’s site visit and subsequent discussions and interactions, that the leadership and personnel in the prevention divisions of both districts are highly capable, dedicated, and qualified individuals. Both organizations have less-than-optimal staffing to accomplish a wide variety of important tasks. There is some apprehension among the Wheat Ridge prevention staff concerning what their role would be in the event of consolidation of the two fire districts. This is typical, reasonable, and to be expected in such cases. Life Safety consolidation costs are expected to re-key Knox Boxes, add West Metro keys, and key secure devices to Wheat Ridge apparatus, and outfit Wheat Ridge apparatus with drug vaults.

RECOMMENDATIONS: • The Wheat Ridge fire marshal should be given a key role in the West Metro Life Safety Division due to his experience, education, credentials, and positive relationships and familiarity with the business community in his fire district. • If consolidation becomes imminent, the fire marshals of both districts should work together to develop a detailed plan on the transition and integration of existing prevention staff between the two divisions. The role of each staff member should be clearly defined. • Following consolidation, all staff members should participate in the development of division goals, objectives, and priorities.

As is often the case with fire department consolidations, there will be challenges in the event of a merger of the two divisions. However, this is entirely feasible and could ultimately produce a more robust and proficient Life Safety Division within the West Metro Fire Protection District. ESCI did not identify any significant issues within the various elements that comprise prevention, which would be prohibitive of consolidation. With proper planning and due to the high caliber of the personnel of both districts, ESCI is confident that a merger of these divisions would be successful.

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Communication System Emergency communications is a critical component of an effective emergency services delivery system. Through the use of 911, this is typically the public’s first contact with the fire department.

Along with myriad other responsibilities, the two primary functions of emergency communications are first, to receive calls from citizens for assistance and determine the nature of the incident. And second, to quickly dispatch the necessary resources (i.e., fire apparatus and personnel) to the proper location. This is accomplished utilizing properly trained personnel; sophisticated telephone equipment; computer-aided dispatch (CAD) software; radio communications equipment; and a variety of other computer software applications and complex equipment.

Efficiency and accuracy is essential, especially in time-critical emergencies where proper resources must arrive at an incident scene as quickly as possible to mitigate the problem. In certain types of fires, medical and other emergencies, a rapid response can ultimately impact the outcome. Call-takers and/or dispatchers are often challenged with callers who are distraught and excited, and therefore must perform with composure and a high level of professionalism.

West Metro Communications Center The West Metro Fire Protection District operates its own communications center (WMCC), which is physically located within the fire administration building. A backup or redundant communications center is located at the WMFPD Training Center—to be used in the event of a catastrophic failure of the primary facility.

It was evident from ESCI’s site visit, interviews, and additional analysis, that the WMFPD operates a highly sophisticated, state-of-the-art communications center with well-qualified and experienced civilian personnel.

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Table 84: Communications Center

Survey Component West Metro Fire Protection District Population served Approximately 315,000 911 public safety answering point (PSAP) Secondary PSAP; 3 fire PSAPs in Jefferson County Wheat Ridge PD, Jefferson County, Lakewood PD, Surrounding PSAPs bordering the District Douglas County PD Wheat Ridge, Fairmount, Arvada Fire, Denver Fire, Surrounding & mutual aid fire departments Littleton Fire, South Metro Fire, Golden Fire, Pleasant View Fire Organizational Structure Mission statement, goals, & objectives Yes Number of operational staff 16.5 FTE dispatcher/call-takers Position descriptions Telecommunicators Administrative staff Division chief; civilian communications center manager Communications Staffing Work schedule Four shifts; 3, 12-hour & 1, 4-hour Minimum staffing policy Normally 4 daily, Minimum Staffing of 3 State requirements for public safety dispatchers State developing requirement; currently not required Union representation No

Public Safety Answering Point The WMCC serves as a secondary public safety answering point (PSAP), and receives 911 calls transferred from one of three primary PSAPs in Jefferson County and a fourth operated by the Douglas County Sheriff’s Office (Douglas Regional 911 Communications Center).

Communications Center Organization & Staffing West Metro serves a population of more than 315,000 persons, including contracts for dispatching/radio communications services to other fire departments and jurisdictions. This includes the WRFPD and Fairmount Fire Rescue. The majority of WMCC’s workload comes from calls and incidents within its own fire district.

The WMCC is managed by the division chief of support services and a civilian communications center manager. The district maintains 17.5 full-time equivalent (FTE) communication specialists and supervisor positions. These individuals serve a dual-role as call-taker (calls transferred from a primary PSAP) and dispatcher. Most of the current staff have significant experience with tenure averaging 15 years.

Supervisors and communication specialists are scheduled for four consecutive shifts, with three 12-hour shifts and one 4-hour shift. Normal staffing is four persons daily (24 hours, seven days per week) with a minimum of three per shift.

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Call Volumes/Dispatch Workload During 2013, the West Metro Communications Center dispatched 30,149 calls (not phone calls received) for service within its own district, the WRFPD, and Fairmount Fire Rescue. In 2014, there was increase of just over 7.2 percent—totaling 32,323 calls dispatched for that year. When combined for 2013–2014, the WMCC dispatched 62,472 calls.

In addition to emergent phone calls, the WMCC answers non-emergent calls for animal control, code enforcement, and other requests. During 2013, the center answered 73,420 non-911 (seven-digit, etc.) and 911 phone calls. Non-911 calls accounted for nearly 78 percent of the total volume; with 911 calls representing approximately 22 percent of the total received. The following figure illustrates the distribution, by jurisdiction, of all calls dispatched during that 24-month period.

Figure 33: WMCC Distribution by Jurisdiction of Incidents Dispatched (2013–2014)

669 (1%) 1,257 (2%)

7,579 (12%)

52,967 (85%)

West Metro Fire Wheat Ridge Fire Fairmount Fire Other Jurisdictions

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Operations & Performance Metrics The WMCC has adopted a standard of answering calls within three rings or ten seconds—which is consistent with the National Emergency Number Association (NENA) standard (NENA 56-005), and a bit more stringent than the NFPA standard of 15 seconds (NFPA 1221, Chapter 7; Section 7.4.1).

Table 85: Communications Center Operations & Performance Survey Component West Metro FPDt Call-answering time-standard Three rings or ten seconds (NFPA suggests 15 seconds) Alarm Handling = Pickup to Dispatch of 1.00 minutes Call processing/dispatch time standards adopted across each discipline as the benchmark, which is met 83.4% of the time. Evaluation of dispatch activities done Yes, through MetCom1 By time/day/month Yes By incident type Yes Average speed of answer Not available Average call/dispatch processing times 90% of all calls in 2013/2014 processed in 72 seconds Operational SOPs & Communication Administrative Standard operating procedures Instructions (CAI)

1Agreement with MetCom to provide GIS, using Esri® products for CAD, MDC’s, mapping and data analysis.

Internal Communication SOPs have not been updated to reflect WMFPD Standard of Cover alarm handling time and has caused some confusion in Dispatch. The 2013 edition of NFPA 1221, Section 7.4 Operating Procedures recommends that:

• Emergency alarm processing be completed in 60 seconds, 80 percent of the time; and 106 seconds 95 percent of the time (Section 7.4.2).

• The NFPA lists exceptions to these benchmarks in Section 7.4.2.2. They are defined as 90 seconds 90 percent of the time; and 120 seconds 95 percent of the time in the following cases: . Calls requiring emergency medical dispatch questioning and pre-arrival medical instructions. . Calls requiring language translation. . Calls requiring the use of TTY/TDD device or audio/video relay services. . Calls of criminal activity that requires information vital to emergency responder safety prior to dispatching units. . Hazardous material incidents. . Technical rescue.

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In June of 2011 the WMCC implemented Priority Dispatch EMD system. April 2015, the WMCC implemented response modification based on priority dispatching determinant codes. The intent was to develop a system in which emergency apparatus were more appropriately dispatched based on the acuity of calls for service. By minimizing unnecessary emergency responses, the safety of both the public and responders should be enhanced. The WMFPD Communications Center maintains written standard operating procedures (SOP) in two formats: Operational SOPs and Communications Administrative Instructions (CAI).

Data Analysis Results A spreadsheet consisting of 62,471 records from the period beginning January 1, 2013, through December 31, 2014, was provided to ESCI for analysis. The WMCC categorized each record as either “fire” or “EMS.” The results showed that 90 percent of all fire and EMS incidents were processed in 72 seconds. Ninety percent of fires during that period were processed in 118 seconds (1 minute, 58 seconds); and 90 percent of EMS incidents in 66 seconds (1 minute, 6 seconds). During the same time- period, calls for fires met the 60-second processing standard in 77 percent of the incidents. For EMS calls, the 90-second standard was met in 96 percent of the incidents.

It is important to note that these results are based on all calls processed. The data provided to ESCI did not distinguish between emergent and non-emergent calls. Therefore, call-processing times could potentially have better results than observed here. Through a contractual arrangement, the WMCC utilizes the Metropolitan Area Communications Center (MetCom) for evaluation of communications activities; including mapping services and other data analysis.

RECOMMENDATIONS: • Call-processing/dispatching performance benchmarks should be clearly defined and shared with the WMCC staff. . The WMFPD should consider formally adopting NFPA Standard 1221, Section 7.4 Operating Procedures (consistent with the CFAI standards). • Compliance should be evaluated monthly, and the results published and disseminated among all personnel within the Communications Center. • Performance results should be reviewed as part of the WMCC’s quality assurance process.

Wheat Ridge Fire Protection District Communications The West Metro Communications Center currently provides dispatch services to the Wheat Ridge Fire Protection District. The Communications Bureau of the Wheat Ridge Police Department serves as the primary PSAP for most of the WRFPD, with non-EMS calls being transferred to the secondary PSAP at the WMCC for dispatch. Between January 1, 2013, and December 31, 2014, Wheat Ridge accounted for approximately 12 percent of all calls dispatched by West Metro.

One area of concern is the process by which EMS calls are handled. Once a call has been determined to be a medical emergency, it is transferred to the communications center at Rural/Metro Pridemark

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Paramedic Services (the exclusive ambulance service provider for the cities of Wheat Ridge, Edgewater, and Fairmount). Pridemark subsequently determines whether a fire department response is warranted, dispatches one of its own units, and simultaneously transfers the call to the WMCC. The original intent of this policy was to minimize unnecessary EMS-incident responses by WRFPD by sending an ambulance only when indicated.

Although there is only anecdotal information from Wheat Ridge personnel, they indicate that this process may be producing inefficiencies and delayed dispatches of fire units to EMS incidents. They describe frequent cases where Pridemark arrives prior to or simultaneously with WRFPD apparatus. If accurate, this alone does not necessarily indicate delays in call transfers and dispatching. With the WMCC’s adoption of priority dispatching, a more effective process could be instituted if Pridemark’s communications center was bypassed and EMS calls transferred to the West Metro Communications Center.

RECOMMENDATION: • When monitoring and evaluating the Communications Center’s call-processing activities, non-emergent calls should be filtered out of the data in order to determine actual performance in time-critical and emergency situations.

Communications Facility & Equipment As mentioned previously, the WMCC utilizes state-of-the-art radio and telephone equipment; CAD and other computer software; and other equipment. Management staff stated that one of the strengths of the organization is its ability to stay current with technology and equipment. Part of this can be attributed to the Jefferson County Emergency Communications Authority (JCECA), which has provided substantial funding for new equipment.

The facility has more than sufficient floor space and infrastructure—along with adequate security—to support current operations and any future growth. In the event of a disaster that could impact the facility’s capacity to conduct operations or some other type of catastrophic failure, the WMFPD maintains a backup system at their Training Center. There are four 911 trunk lines at this location, along with radios and consoles.

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Table 86: Communications Facility & Equipment

Survey Component West Metro Fire Protection District Communications facility security Adequate security system/procedures in place TriTech CAD System; CAD regionalization with Littleton Computer-aided dispatch (CAD) software Fire, South Metro Fire, Evergreen Fire, & Arvada Fire Geo database Yes Automated dispatching software Locution, Inc. Fire Station Alerting System Emergency power Uninterrupted power supply (UPS) & backup generator Telephone equipment Six 911 trunk lines System infrastructure shared with Lakewood, Wheat Radio system Ridge, & WRFPD; Harris radios for all WMFR mobile units Radio control Digital P25 trunking system Recording equipment NICE® Recording/Logging (phone & radio) Workstations/Consoles 6 fully functional consoles Mobile communications devices Yes, mobile data computers (MDC) Locution, Inc. Fire Station Alerting System. WR now fully Fire/EMS notification system IP-based Locution Alerting. Fairmount will be soon Alarm monitoring/fire systems No Back-up plan/center operations Backup location at Training Center (four 911 trunk lines) Emergency notifications CodeRED® Community Notification Other duties Utilizing Smart911™ Regional radio communications interoperability Yes; Tactical Interoperability Plan Other information None Emergency medical dispatch (EMD) ProQA® based on MPDS; EMD certified; CPR certified All West Metro and Wheat Ridge frontline apparatus; all Apparatus monitored using AVL Wheat Ridge apparatus have recently added MDTs

Radio Equipment Repair & Maintenance Three radio technicians and one supervisor provide equipment repair and maintenance. The WMCC management identified these individuals as one of the organizational strengths. Management considers them to be both “very well-trained” and providing “excellent service” to the communications center.

Computer-Aided Dispatch System In 2013, the fire chiefs and communication center directors from the West Metro Fire Protection District, South Metro Fire Rescue Authority, and Littleton Fire Rescue met to begin the planning process that would ultimately result in a shared and consolidated CAD system. Subsequent to this, two additional fire departments came forward to express their interest in joining the consolidation process.

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In a report by the Jefferson County Emergency Communications Authority Board and JCECA Advisory Committee entitled Regional Fire CAD Consolidation Project the group clearly described the scope of the project, funding and costs, positive and negative impacts, and the rationale and benefits of regionalization. ESCI supports this project and commends the participants for their progressive approach and willingness to take the necessary steps to attain greater effectiveness and efficiency—which is in the best interest of their respective communities.

Other System Features The ECC provides emergency medical dispatch (EMD) capabilities using the ProQA® Paramount software. This application is based on the original Medical Priority Dispatch System (MPDS), and all dispatchers have been trained and certified in EMD.

All West Metro and Wheat Ridge frontline apparatus are equipped with automatic vehicle location (AVL) capabilities. WMFPD apparatus are also equipped with mobile data computers (MDCs) or terminals. Currently, WRFPD is working the West Metro IT Division to add MDCs to each of the district’s apparatus.

In cases of disasters, extreme weather, or other significant events, the ECC uses the CodeRED® Community Notification system to alert citizens throughout the district or in targeted neighborhoods.

Quality Assurance & Training The ECC has established a quality assurance/quality improvement (QA/QI) program to assist with ensuring effective communications. Currently, they are using the Advanced Quality Assurance (AQUA™) application, a companion application to the ProQA® program. However, they are considering changing to the Emergency Fire Dispatcher (EFD) program. Employee evaluations and additional QA/QI is accomplished through daily observation reports (including daily evaluation of probationary dispatchers) and annual performance evaluations.

Table 87: Communications Center Quality Assurance & Training

Survey Component West Metro FPD AQUA™ (Advanced Quality Assurance) software Quality assurance program (companion to ProQA®); considering EFD Fire for QA Daily observation reports; daily evaluation of Evaluations probationary dispatchers; annual performance evaluations International Academies of Emergency Dispatch; ongoing Training program training through assorted methods One training communications officer (CTO) per shift Training officer/staff minimum; shift supervisors also Training records maintained Yes, through district’s RMS

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Dispatchers have all been trained in accordance with the standards of the International Academies of Emergency Dispatch (IAED) and are provided with regular continuing education through a variety of methods. A minimum of one Communication Training Officer (CTO) is scheduled on each shift; with assistance from shift supervisors. Dispatcher training and continuing education records are maintained through the district’s records management system.

Communications Center Funding The WMFPD Communications Center has a current operating budget of approximately $2 million. Funding sources are acquired primarily from the district’s general fund and fees from intergovernmental agreements with the Wheat Ridge Fire Protection District and Fairmount Fire. Costs to the fire districts are based on call volume. For calendar year 2013, the WRFPD paid $162,917—which was an increase of over 32 percent from 2012 due to a rise in calls. An additional source of revenue comes from the Jefferson County Emergency Communications Authority. However, these funds can only be used to purchase specific equipment and not for operations. Due to a decline in district revenue, the budget has been decreased although not so substantially as to impact operations. At present, no reserve or capital equipment replacement funds have been set aside for use in the future.

RECOMMENDATION: • Consider establishing a communications reserve fund until such time as the regional communications plan has been implemented (see the following discussion).

Regional Communications Plan In April of 2014, eight fire and law enforcement agencies from around the region, including the JCECA, retained the consulting firm of Revolution Advisors, LLC (Westminster, CO) to conduct a study to determine options and the feasibility of creating a regionalized 911/emergency communications system. Both the WMFPD and Wheat Ridge Police Department were participants.

A preliminary feasibility study was presented describing several potential options. Ultimately, the participants selected a single center operating as the primary PSAP for all 911 calls, with both fire and law enforcement dispatching. The final report entitled, Regional 911 Final Feasibility Study, was presented in August 2014. This was a comprehensive study that thoroughly evaluated the numerous details and complexities comprising the various elements of emergency communications throughout the region.

The process of implementation will be lengthy and complex, the WMFPD estimates full completion within 18–24 months. The physical facility will be located at the WMFPD’s Fire Administration building in the space currently occupied by the West Metro Communications Center. In order to accommodate additional staff, equipment, and consoles, it will be necessary to expand and modify the existing facility and infrastructure. This will not be an obstacle, as there is ample physical space to meet the needs. The study suggested several options for installation of a backup communications center, but did not make final conclusions. At present, it has not been determined if the regional system will utilize the existing facilities at the WMFPD Training Center as the alternate location.

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Emergency Communications Summary & Comments After a thorough evaluation, ESCI found the West Metro Fire Protection District’s Communications Center to be a highly functioning, adequately funded, and substantially equipped operation with well- trained, experienced, and knowledgeable staff and management personnel. Communications staff did express concern about the current “pay-for-performance” system and lack of cost-of-living raises. They believe this has negatively impacted morale among the dispatchers. Also of note, management expressed a feeling of moderate concern among the WMCC staff, regarding the question of their future role in a regional communications system.

Because West Metro currently provides dispatch services to the Wheat Ridge Fire Protection District— with regard to communications aspect—ESCI did not identify any significant foreseeable obstacles to consolidation of the two fire districts. As recommended, in emergency medical incidents, the WMFPD and WRFPD should consider changing their policy to bypass Rural/Metro Pridemark and transfer these calls directly to the West Metro Communication Center.

ESCI’s analysis of the West Metro Communications Center call statistics indicated that there might be room for improvement in some of the call-processing times. The WMCC should evaluate this in detail, and possibly consider new strategies, which could lead to improvements. This however, may be a matter of the methods used for extracting their performance data.

ESCI strongly supports the regionalization plan. The comprehensive feasibility study completed by Revolution Advisors, LLC, clearly outlines improved efficiencies, lower costs, and a more effective 911/dispatch system. Ultimately, this should prove to be beneficial for the citizens of both the West Metro and Wheat Ridge Fire Districts.

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Fleet Services Fleet management for WRFPD is done by WMFPD fleet services. WRFPD has a scheduled maintenance program whereby it sends the unit to the WMFPD shops to be serviced. Otherwise, service request orders (SROs) are generated when vehicles need some type of service. These requests are categorized as major or minor. Minor issues are those that are not time critical nor have safety implications. These are placed on the list to be handled at the next preventive maintenance. Major items are sent to fleet as soon as possible for repair or the WMFPD mobile service unit responses to the station or other location.

WRFPD’s budget for vehicle service is $62,000 per year. Other budgeted items include ground ladder testing ($1,438), pump testing ($2,802), and aerial ladder testing ($2,525). WRFPD staff vehicles are serviced in-house by a firefighter who is also an ASE certified mechanic. Parts are purchased locally at a discounted price. Small engine power tools are maintained by a firefighter who is skilled in small engine repair. He maintains all of the chainsaws, K12 saws, and other small power equipment. A maintenance schedule determines when equipment is serviced. For a small organization, the process of using these additional skills of firefighters is cost-effective and leverages shift personnel who are available for response as well.

Table 88: Fleet Services Survey Component West Metro FPD Wheat Ridge FPD Administration Number of staff assigned 6 3 part time Span of control 1:6 N/A Support staff assigned 1 N/A Budget $1,262,000 $68,765 Policies & Procedures Compliance to NFPA 1911 Yes Yes Billing & Accounting Bill in-house and external thee same; Pay bills for outside repairs and for procedures funds transferred from accounts parts for internal vehicle maintenance Workload Number of Apparatus Maintained Heavy equipment 33 4 Staff vehicles 58 8 Ambulances 19 0 Rescue Type Vehicles 7 0 Maintenance done in-house, major Station Generators 20 repairs contracted Contract vehicles 30 0 Ratio of vehicles-mechanics 27.8% 25% Yes, in software. Monthly report of Billable hours tracked per billable staff hours, units repaired N/A mechanic (internal and external), and parts are distributed monthly Services Yes, done based on mileage/hours Done on time interval scheduling or Preventive maintenance and manufacturer’s when being serviced for other problem recommendations

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Survey Component West Metro FPD Wheat Ridge FPD Scheduled as per above and with Gas intervals Set per above intervals previously set Scheduled as per above and with Diesel intervals Set per above intervals previously set Inspection checklist used Yes WMFPD shop procedure Oil sample analysis Yes WMFPD shop procedure In-Frame powertrain repair Yes N/A Bench powertrain repair Yes N/A Electrical Yes N/A Small equipment installation Yes Yes Warning lights, siren, radio Unless too busy, then sent to outside Minor installs in-house with more installation vendor extensive at WMFPD shop Fabrication Yes N/A Light Yes N/A Heavy Yes N/A Testing Annual pump Yes Yes Aerial ladder UL third party testing Third party testing Ground ladders In house–by certified tester Third party testing Annual hose Done by line personnel Done by line personnel Field service Yes Through WMFPD shops Other Spec-writing Involvement Yes N/A Replacement cycle Yes N/A Involvement All have some level of EVT Mechanics EVT certified certification; 1 ambulance only; 5 ASE certified trucks & ambulance Parts inventory on hand Yes Yes Work orders, checklists, sublet Tracked through FASTER; sublet N/A work orders maintained tracked as well Costs tracked per vehicle Yes Yes Used in replacement Yes Yes decisions

WRFPD currently does not have a viable replacement schedule; an older version has not yet been revised and is no longer considered accurate. The fleet is categorized as good although aging. The average age of the front line apparatus is 15.8 years, however, two new vehicles are on order and will be paid for through a ten-year lease purchase. The two vehicles are an engine and a 100-foot tower. The combined annual lease payment is $219,000.

The WMFPD fleet is categorized generally as good to excellent. However, the fleet replacement schedule has been extended for all apparatus. The reason for extending the life is to minimize the cost of vehicles. This is in conjunction with a more data driven analysis of the condition of the vehicles. WMFPD fleet services division has been tasked to track and provide data to management on the

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maintenance cost of the vehicles. While the shop does utilize the FASTER software, which is capable of reporting the lifecycle costs, the shop does not use that capability. The fleet manager is reviewing what will be necessary to implement that function. The current average age of the fleet is 9.4 years. This considers the front line apparatus, excluding the brush units, medic units, and special teams units. The front line medic units have an average age of 7.8 years. NFPA 1911, 2012 edition recommends engines built prior to 1991 that are in good mechanical condition should be placed into a reserve capacity. Any unit over 25 years of age should be replaced.12 None of the apparatus in the fleet pre-date 1991 or the NFPA 1911, 1999 edition standard. The current standard does recognize that the life span of a well- manufactured, well-maintained apparatus driven by well-trained operators should not be defined only by age.

The latest WMFPD replacement schedule shown in the following table identifies number of years in front line service and in a reserve status.

Table 89: West Metro Apparatus Usage Schedule Use/Type Engine Ambulance Aerial Brush Rescue Staff Front Line 17–20 years 9–10 years 15 years 15 years 11 years N/A Reserve 7 years 3–5 years 5 years N/A 10 years N/A Total Service 24–27 years 12–15 years 22 years ? 21 years 15 years

The fleet replacement fund had a balance of $6,656,862 at the beginning of 2015. No further contribution is projected to be added until 2018. With no additions to the fund, the ending balance each year begins to decline to an ending balance of $2,505,408 in 2017. The plan calls for contributions to the vehicle replacement fund to start again at that time. During that same time-period, the plan calls for purchasing two engines, one aerial, two ambulances, and one rescue. The plan predicts a 3 percent annual inflation rate on prices of units using 2013/2014 prices as the base. While the replacement schedule is an excellent planning tool, there are a few concerns to be considered. The plan considers replacement of apparatus by evaluating the total cost of operation, which is a very valid approach. Close evaluation of apparatus reliability based on out-of-service times should be conducted to ensure that the replacement schedule keeps up with the need over the long term.

One of the strategies to extend the life of the ambulances is to purchase them on heavy duty chassis. The concept is that these have fewer repairs on brake and suspension systems. Fleet is looking at replacing chassis as they wear out and keeping the ambulance bodies as they are of good quality and will outlast the chassis at a ratio of two-to-one.

Since the WMFPD shop is already servicing WRFPD units, no negative impact of a merger is anticipated. Currently WRFPD is sending their apparatus to the WMFPS shop based on their own maintenance schedule. After a consolidation, the WRFPD units will be added into the WMFPD fleet preventive maintenance program, which could result in a slight increase in demand if the WMFPS maintenance schedule is adopted and currently exceeds WRFPD’s current maintenance schedule. The fleet services division at WMFPD has six Emergency Vehicle Technicians including the fleet manager, with one support

12 NFPA 1911, Appendix D1.

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person. The additional load on the preventative maintenance program will not have a significant impact on the schedule.

RECOMMENDATIONS: • Create an IGA for loaning fire apparatus from one agency to another for insurance purposes. • WMFPD should implement a streamlined and effective method to determine cost of operation for apparatus. • WRFPD should revise and adopt the vehicle replacement schedule.

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Information Technology The subject of information technology integration can have an impact on a consolidation. The different systems used by each agency are shown in the following table. As one might expect, WRFPD is operated with less technological infrastructure than WMFPD but certainly sufficient for its needs

Table 90: Technology Comparison by Agency Information Technology Component West Metro FPD Wheat Ridge FPD Network Cloud based VPN Station based server - VPN Video Teleconferencing Polycom VTC No Records Management System Fire Manager Firehouse Security Access to Stations Standard install No Phone System AltiGen VOIP ShoreTel VOIP MDT in apparatus Standard install Yes Station Video Security Standard install No Finance Software Fundware to Sage MIP Quick Books Human Resource Software HCM ERP No Staffing Software TeleStaff When 2 work

Integration of the technology systems can be costly. Most of the cost is a one-time investment but there are some on-going costs as well. Some of the issues to be considered are presented in the following discussion.

First, the network must be extended from the existing WMFPD network to the WRFPD stations. Currently, interconnectivity between the three WRFPD stations is through Comcast/Birch internet services. The demand on these connections is relatively small so this works well for the services being used. WRFPD had noticed some slowing at the stations recently but that has been corrected by working with Comcast. Firehouse, the records management system (RMS), is a web-based software program. Each WRFPD station accesses the Firehouse webservers through the internet. This service subscription is $5,032 per year for all three stations.

Another service across the network is the email. The mail server for WRFPD is located at Station 71. The email demand does not require significant bandwidth. The stations’ phone system, ShoreTel, utilizes VoIP (Voice over Internet Protocol) technology, which is also sent over the internet network connection. Finally, station alerting also uses the internet connection. The Locution system does not require significant bandwidth but may slow down if the internet connection experiences high demand for other functions. It would not typically be a significant time loss. Since station alerting is a mission critical system, the system has a radio back up so failure of the internet connection will not prohibit units from being dispatched. No delays have been noticed with the Locution system for station emergency notification.

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The cost of the Comcast/Birch network services is $978 per month. WRFPD does not have any personnel dedicated to IT functions but contracts this service with an outside vendor. Personal devices such as smart phones, tablets, and computers are allowed on the system to access the internet.

In a WMFPD station the demand for larger network increases significantly. The standard station configuration for WMFPD is for email (server at WMFPD Administration building), VoIP phone system, Locution station notification, Fire Manager RMS (server is located at Administration), video teleconferencing for training, door security system for card key access, and transmission of CAD updates through the station access point (“hot spot”) for updating the apparatus mobile data terminals (MDTs). WMFPD utilizes a cloud-based private VPN network operated in a mesh configuration so that any single failure of a connection will not render multiple stations disabled. The amount of data that traverses the network infrastructure is significantly higher and a 100MB connection using the Comcast ENS fiber based solution is used. The cost of this connection is $800 per month per facility.

According to the IT Director for WMFPD, the existing phone systems between the two districts are compatible and could be interfaced rather than replacing the ShoreTel in order to contain costs. There is no cost estimate for this to occur at this time.

The cost of integrating the three WRFPD stations into the WMFPD network and to standardize station configuration is reflected in the following table. The total is projected to be $129,000. The resulting reduction in WRFPD expenses would be approximately $17,000 per year.

Table 91: Integrated IT Estimated Costs

Wheat Ridge FPD Component Estimated Cost

Computer Hardware1 $7,200 Computer Software $3,600 Station Printers $2,400 Video Teleconferencing $13,500 Video Security & Access $21,000 RMS licensing fee $6,300 Station Network Infrastructure2 $75,000 Total IT initial cost $129,000 1Three in each station (9 total) 2Switches, wiring, wireless AP

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The current standard configuration for a WMFPD apparatus is to have a mobile data terminal located in each unit. This provides a number of services to line personnel. A primary benefit is the ability to dispatch the closest unit to the emergency. It also provides routing and CAD information for the address, such as hazards associated with the address as well as building plans, utility shut-offs, premise history, and law enforcement historical activity (a crew safety issue). The cost of installing a MDT into a rig is approximately $9,800. This includes the Data 911 computer, a one-time license fee, and a wireless connection to the station “hot spot.” The ongoing cost for the MDT software (VisiCAD) license is $120 annually and the monthly service for the air card is approximately $40 per month per unit. The annual cost of each apparatus will be approximately $600.

There is no other software currently in use that is required to be integrated with the system. However, there may be a desire to download the WRFPD financial data history into the Sage system and download previous years’ incident data into the Fire Manager program for analysis capability. This may be an additional cost for the software vendors if the agencies decide to perform this one time data transfer.

Configuring the stations initially and the increased maintenance for the additional computers may require additional IT help depending on the IT staff workload. According to the IT director, it is estimated to be about 0.5 FTE to support the additional workload. This would likely consume the savings realized by migrating all IT components to the WMFPD format.

WRFPD could be added to the following WMFPD systems without much additional cost:

1. ADP HCM—separate database, if required. If not, just add in additional employees. 2. MIP Financials – can support the additional personnel and locations. 3. Fire RMS consolidation could occur without much difficulty. 4. Card access system can be expanded to include the additional Wheat Ridge facilities. 5. Video Teleconferencing can be provided given the upgraded network connectivity.

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FISCAL ANALYSIS

One of the chief concerns facing fire service executives is budgeting and finance. As the economy slowly recovers from economic turbulence, fire entities are expected to face tight budgets for years to come - and in some instances, reductions may occur. For some governments this is logical, and for others such as public safety agencies, and in particular fire and EMS, will have to take many factors into account.

As the central mission of the fire service evolves, communities will have to essentially reconsider their approach to fire and EMS budgeting. Doing so effectively and efficiently requires access to historical data and a systematic approach to engaging key stakeholders. This section of the report is designed to educate the citizens and District officials about their financial past and how key assumptions or decision points may inform the future direction of each agency.

Our financial planning and analysis begins with a review of the current operating conditions, local and state economics and a historical financial review. At the conclusion of this section, we present a forecast of revenues and expenses.

We relied on data provided by both stakeholders, to include interview data, annual reports, county assessor data, financial audits (CAFR), and census data. The assumptions used in the forecast were developed by ESCI in conjunction with existing baseline assumptions provided by WRFPD and WMFPD. Current Conditions Review The relative financial health of any agency is an important factor in determining whether opportunities exist to take advantage of economies of scale, form partnerships to leverage strengths, or shore up weaknesses. The current financial structure for both fire protection districts is listed in the following survey table.

Table 92: Current Operating Conditions Fiscal Management Survey Component West Metro FPD Wheat Ridge FPD Finance Overview Designated fiscal year January 1 – December 31 January 1 – December 31 $2,764,541,429 Jefferson Assessed property value, FY 2014-15 $332,649,910 $101,546,770 Douglas Revised 2014-15 GF budget, fire department ~$54 M ~$3 M operating only Expenses (Includes a $6.2M contingency) 7.500 mills (2014) GF property tax, district levy FY 2014-15 12.382 mills 12.500 (2015) 2010: 3.700 mills FY 2010-2015: 12.382 mills Levy rate (5 year history) 2011-2014: 7.500 mills Zero increase in eight years 2015: 12.500 mills GF levy collection rate (FY 2014-15) ~98 percent ~98 percent Current Bonds, fire department (2015-16) GO Bonds None Levy rate 1.142 mills None Other tax levies/fees .071 abatement None

Levy rate None None

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Fiscal Management Survey Component West Metro FPD Wheat Ridge FPD Budgetary Controls Budget officer Director of Finance Fire Chief Budget development process Review and approval of budget Review and approval of Role of elected officials and set broad policy direction budget and set broad policy for the District direction for the District Local CPA in conjunction with Fire Chief summarizes Review and analysis/Prepare Role of administration requests into preliminary for board meeting budgets for approval by board Guide budget development Provide budget suggestions Role of management process, gather data, create when solicited analysis Provide budget suggestions Provide budget suggestions Role of staff when solicited when solicited Budget meetings are open to Budget meetings are open to Role of community the public the public Budget adoption process December prior to budget Budget approval Administration (internal) year by a Board of Fire Commissioners/Directors December prior to budget year December prior to budget Funding approval by a Board of Directors year by a Board of Directors Financial report Yes None Reviewed monthly by Chief Financial review Finance division and Chief and CPA Auditor CPA and State Auditor CPA and State Auditor Basis of accounting Accrual Basis Accrual Basis Purchasing Yes the policy is in place and Yes the policy is in place and Purchasing policy well documented (2502) well documented Internal staff handles Internal staff handles Central supplies/logistics purchases purchases Handled through Legal and Handled through Legal and Joint agreements/ventures board board Handled through Legal and Handled through Legal and JPAs/IGAs board board Bidding Follow State Law Follow State Law Leases Copier Copier Budget Operating budgetary funds Organized by program or category (BARS) Yes: Fund-Div-Dept-Object Yes Sub accounts None None Generated through the general Generated through the Reserve funds and other funds general and pension fund Revenue funds Yes: $48.9M Currently no revenue funds Enterprise funds Yes: $900K Currently no enterprise funds

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Fiscal Management Survey Component West Metro FPD Wheat Ridge FPD Salaries & Benefits: Salaries & Benefits: Personnel Costs total 88% of total Costs total 73% of total budgeted expenses budgeted expenses Yes there are contractual Contractual None revenues Commodities Yes there are commodities None Yes there is capital outlay in Yes there is capital outlay in Capital outlay the general fund the general fund Agency overhead Currently no reserve fund Reserve fund contributions N/A contributions Currently no fleet rental Fleet rental charges None charges Fleet maintenance is handled Fleet maintenance charges ~$1.2M by West Metro Fire Rescue Contracted through Cities of Motor fuel charges ~$300K Edgewater and Wheat Ridge Property/casualty insurance ~$300K Yes - McNeill Medical and dental insurance ~$5M Cigna Health /Delta Dental Pinnacle handles worker’s Workers’ compensation ~$400K compensation claims Workers’ compensation mod rate .69 .08 Volunteers. Closed in 2010 to Employee pension plan ~$3.7M any new list. Career pays into fund Communication - $32K yearly Administrative overhead ~$3.8M on towers. $42 per call for West Metro dispatch services Debt Currently no outstanding Bonded debt GO Bonds bond debt 2 apparatus (Aerial & Engine) Capital lease None - 10-year loan term with a payment of $208K annually Under the IGA, unfunded Unfunded liability OPEB Pension capital of approximately $1.5 M is still pending Pension fund Yes Yes Currently no outstanding Currently no outstanding Workers’ compensation claims claims claims Revenue Tax levy Limitations-Regulated by TABOR/Public vote 5.5% Property Tax Revenue 5.5% Property Tax Revenue for increases Limit Limit Service contracts Yes None

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Fiscal Management Survey Component West Metro FPD Wheat Ridge FPD Grants USAR $1,209,631 Recent awards Safe Allway CDOT: $31,702; None ~$700k AFG; ~$3.4M FEMA Outstanding applications No outstanding applications Pending grant for PPE Fundraising Foundation Yes None Volunteer association Yes None Fees for service Billing for fire response Yes None Inspection fee Yes Yes Hazardous materials Yes None Recovery outside of jurisdiction No None Airport/port fee(s) No None Event stand-by charges Yes None Ambulance service collection(s) Percentage collected (2014-15) 35% None Collection fee(s) $293,293 (rate 0.045) None

Local and State Economics Many governments in Colorado and the rest of the nation are facing fiscal challenges that are consistent with a “structural deficit.” This essentially happens when revenue sources are unable to support operation expenses. Many have viewed this as a prolonged circumstance rather than a link to a particular event in history.

Financial pressures wedded to structural deficits are correlated to increases in service demands, aged infrastructures, and high personnel costs (salaries and benefits). Compounding these areas are two key elements: local revenues are regulated by local and state law, and governments have shifted to local property taxes to meet the financial needs of the operating budget.

Couple these financial pressures with an unstable economy and we start to see what seemingly appears to be a health community fall under pressure. Even more so, fire service revenues are basically codependent upon the activity in the underlying local economy. When the local financial pressures outweigh the stability, fire and EMS providers feel the full impact.

Colorado, like many other states, has been hit hard by the recession, suffering from job loss, foreclosures, and a flopped housing market. Consequently, revenue sources have declined. Some would argue it is unlikely the housing market will return to pre-recession levels any time soon. Until then, being vigilant and informing stakeholders will ensure a stronger financial recovery.

Demographics The data in the following table displays local demographic trends for per capita income, median age, education, and school enrollment for the study area over a ten-year period. From the data provided, average per capita income for the ten-year period is equivalent to $45,510 annualized, which is above the 2013 total of $45,135. The median age is 39 years.

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Table 93: Local Demographics (2003-2013) Per Capita Median Education School Year Income Age (Years) Enrollment 2003 $38,466 38 14.5 34,692 2004 $40,334 38 14.5 34,504 2005 $42,351 38 14.5 34,078 2006 $42,709 38 14.5 33,942 2007 $43,680 39 14.5 34,200 2008 $46,250 39 14.5 34,502 2009 $45,279 37 14.5 34,355 2010 $51,811 40 14.5 35,227 2011 $53,846 40 14.5 36,861 2012 $50,752 41 14.5 36,861 2013 $45,135 41 14.5 37,600 Source: Jefferson/Douglas County School Districts, Demographer, US Labor Statistics, US Census, and Bureau of Economic Analysis

Unemployment and Population The figure below represents the trends in total population and unemployment rates for the study area over the same ten-year period. As shown, the population in the study area peaked at 259,132 in 2008 while the unemployment rate peaked at 7.9 percent in the same year. Prior to the recession, unemployment rates dropped significantly from 2003-2007, while population maintained a steady growth during the same time period. Since 2009, unemployment rates have decreased, which is a strong indicator of an economy breaking through turbulence.

Figure 34: Unemployment and Population Trends (2003-2013)

300,000 9 7.9 8 250,000

6.2 7 200,000 259,132 6 5 150,000

4 Population 100,000 3

2 Unemployment Rate 50,000 Population 1 Unemployment Rate (%) 0 0 2003 2004 2005 2006 2007 2008 2009 2010 2011 2012 2013 Source: County Assessor

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Housing Market

Figure 35: Jefferson County (CO) Housing Market (2010-2014) $400,000 3,761 4,000 $347,392 $350,000 3,500

$300,000 $272,676 3,000 $250,000 2,500 $200,000 2,000 $150,000 1,220 1,500 $100,000 Median Home List Price 1,000 Median Home Sales Price $50,000 500 Average Monthly Inventory

Median Home Sales/List Price HomeSales/List Median $- - Average Monthly Inventory Average 2010 2011 2012 2013 2014 Source: Zillow Research The figure above displays the median sales and list price and annual number of sales for single family homes in Jefferson County, Colorado, from 2010 through 2014. As shown in 2014, there is a disparate gap between the median list price ($347,000) and the median sales price ($272,000). This is equal to a $74,000 difference between what a seller is asking for versus what they actually receive. In addition to the gap between list and sales price, Jefferson County experienced a drop in average monthly inventory from 2010 (3,761) to 2014 (1,220). The inventory (supply) is low, which likely increases list prices (demand). Some could argue, low inventory levels and higher housing costs is another strong indicator of a recovering real estate market.

Figure 36: Douglas County (CO) Housing Market (2010-2014) $450,000 $420,972 4,000 3,377 $400,000 3,500 $342,828 $350,000 3,000 $300,000 2,500 $250,000 2,000 $200,000 1,156 1,500 $150,000 $100,000 Median Home List Price 1,000 $50,000 Median Home Sales Price 500

Median Home Sales/List Price HomeSales/List Median Average Monthly Inventory

$- - Monthly Inventory Average 2010 2011 2012 2013 2014 Source: Zillow Research The preceding figure paints a similar picture as shown in Jefferson County. As shown in 2014, there is a disparate gap between the median list price ($420,000) and the median sales price ($342,000). This is equal to a $78,000 difference. In addition to the gap between list and sales price, Douglas County has experienced a drop in average monthly inventory from 2010 (3,377) to 2014 (1,156). Again, the inventory (supply) is low, which likely increases list prices (demand).

As shown in the following figure, residential property value peaked in 2008 right before the recession, while non-residential and non-taxable properties peaked from 2009-2011 ($23 billion). New

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construction annexation and inclusions (blue line) have declined over the past 10 years, with 2011 marking the lowest year ($82 million). Non-taxable and non-residential have relatively remained level.

Figure 37: Property Value and New Construction (2003-2013) $25,000,000,000 $422,353,890 $23,614,779,167 $82,199,731 $450,000,000 $400,000,000

$20,000,000,000 $350,000,000

$300,000,000 $15,000,000,000 $250,000,000 $200,000,000 $10,000,000,000 Inclusion

$150,000,000 Property Value Property $5,000,000,000 $100,000,000 $50,000,000

$- $- Annexation Construction New and 2003 2004 2005 2006 2007 2008 2009 2010 2011 2012 2013 Non-Taxable Residential Non-Residential New Construction Annexation and Inclusions Source: County Assessor

Property Tax and Levy Collection The table below shows the WMFPD’s regular mill and bond levies rates, assessed value (AV) and estimated revenue generation from 2010 through 2015. As shown, AV trends have slightly fallen since 2010 from $3 million in 2010 to $2.9 million in 2015. The Districts total operating levy is 12.382 mills, which should generate about $35 million in 2015, while the bond levy is set at 1.142 mills and should generate another $4 million in revenues. In early 2014, the District went up for a mill levy increase, however it was denied - WMFPD has not had an increase in eight years.

Table 94: Property Tax Levies and Collections - WMFPD (2010-2016) Assessed Estimated Revenue Mill Levy + Year Valuation Generation (AV X Bonds (1000 AV) Mill/levy rate) 2010 $3,031,691 13.512 $40,964,209 2011 $3,003,478 13.595 $40,832,281 2012 $2,856,857 13.595 $38,838,968 2013 $2,827,117 12.382 $35,005,363 2014 $2,867,110 13.524 $38,774,799 2015 $2,866,088 13.524 $38,760,977 2016 Prelim. $3,272,428 13.524 $44,256,316 Source: Jefferson County and Douglas County Assessor

The following table shows the WRFPD’s regular mill and bond levies rates, assessed value (AV) and estimated revenue generation from 2010 through 2015. As shown, AV trends have slightly risen since 2010 from $296,000 in 2010 to $332,000 in 2015. The district’s total operating levy is 12.5 mills (2015),

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which should generate about $4 million in 2015. In early 2015, the district mill levy increase was raised from 7.5 mills in 2014 to 12.5 mills starting in 2015. There are zero bonds.

Table 95: Property Tax Levies and Collections – WRFPD (2010-2016) Estimated Revenue Assessed Valuation Year Mill Levy Generation (AV X (1000 AV) Mill/levy rate) 2010 $296,504 4.250 $1,260,143 2011 $295,460 7.500 $2,215,952 2012 $286,515 7.500 $2,148,861 2013 $284,727 7.500 $2,135,454 2014 $332,842 7.500 $2,496,316 2015 $332,571 12.500 $4,157,142 2016 Prelim. $393,313 12.500 $4,916,418 Source: County Assessor "Abstract of Assessment"

Consumer Price Index CPI-U is another strong measure of economic action. However, an inflation measure specific to the study area is not available. The figure below identifies the recent trend in the Denver-Boulder-Greeley, CO (CMSA) Consumer Price Index for All Urban Consumers (CPI-U). As shown, the annual inflation index slightly declined in 2009 despite a strong climb from 2004-2014. The average price paid for goods in 2004 equaled $187, while in 2014 it was $237. This is a 27 percent increase over 10 years.

Figure 38: Denver-Boulder-Greeley (CMSA) CPI –U (2004-2014) $250 $237 $240 $230 $220 $209 $210 $200 $187 $190 $180 $170 $160 $150 2004 2005 2006 2007 2008 2009 2010 2011 2012 2013 2014 Source: research.stlouisfed.org

Summary In summary, each of these economic metrics depend on each other. For example, as income earnings flatten, there could potentially be less buying leverage due to rising costs of housing, goods, etc. In addition to this, a history of unstable employment rates has shown that people are willing to relocate to find work. Consequently, the drop in sales of homes hits local governments hard as this is the primary source of revenue generation for many.

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A steady housing market is vital for two primary reasons. The first reason is that property tax revenues are a major revenue source for both districts. Second, equity from a citizen’s perspective is a source of wealth, and as that wealth devalues, so does spending and buying power. Lesser spending potentially equates to less sales tax collection (people purchase less goods and services), and the ability to keep up with inflation depletes.

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Financial Trends ESCI completed an analysis of historical revenues and expenses for each fire protection district to help identify relevant financial trends, strengths and weaknesses, and to inform the financial forecast presented in the next section of the report. The historical analysis helps illustrate how each stakeholder funds its services – on a fundamental level – where the money comes from and where it goes. West Metro Fire Protection District (WMFPD) Revenue Trend The general fund revenue budget ($48.9 million) for 2015B (2015 Budgeted) represents a decrease of 2.2 percent when compared to the 2014 actuals. This is likely due to anticipation of decreases in tax collection, EMS, permits, interest and other income. Property taxes have decreased since fiscal year 2010. About 72 percent of the 2015B revenues are allocated to property tax collection. EMS is the second largest revenue generation source for the operating budget (about 13 percent of the overall operations budget for 2015B). Other funds (general obligation, debt service, USAR, fleet services, apparatus, and training center) revenue total $6.9 million for 2015B. This is equivalent to 14.2 percent of the overall operating revenue.

Expense Trend The operating budget decreased by 3 percent from 2014 actual ($49.3 million) to 2015B ($47.8 million) to adjust for deficiency linked to tax revenue. Salaries and benefits reflect a decrease of headcount due to retirement and realignment. In addition, the district has not scheduled a fire academy in light of the budget constraints to offset increases in personnel. The district has made efforts to manage overtime in light of cost cutting. Personnel and benefits represent 88 percent of the general operating budget, followed by materials and services (9 percent) and operating capital (3 percent). Other funds total $8.9 million for the 2015B year, which is an increase of 6 percent from 2014 actual and equivalent to 18 percent of the overall general fund expenditure budget.

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Table 96: WMFPD Financial Trend (2010-2015) % of Revenue Source 2010A 2011A 2012A 2013A 2014A 2015B 2015B Property Tax 37,642,152 37,518,341 35,470,704 35,151,157 35,393,673 35,323,055 72% Specific Ownership Tax 2,811,697 2,717,164 2,841,169 2,965,330 3,130,799 3,000,000 6% Grants 8,604 40,418 48,516 77,244 12,551 40,000 0% On-Behalf Payment 19,444 19,444 19,444 19,444 - 19,444 0% Emergency Medical Services 6,656,976 4,092,541 6,360,642 6,075,772 6,490,653 6,405,000 13% Sale of fixed assets - 13,000 - - - - 0% Permits 254,551 289,792 325,756 396,968 548,479 380,000 1% Contractual 2,255,850 2,282,052 3,066,178 3,767,205 3,757,538 3,701,630 8% Fire Funds 176,813 574,269 845,483 697,310 516,210 - 0% Interest 159,121 136,183 36,591 24,353 138,356 25,000 0% Fees ------0% Donations 36,531 39,625 - 1,125 - - 0% Operating transfer ------0% Other 66,967 71,219 38,133 20,816 42,884 17,600 0% General Fund Revenue $50,088,706 $47,794,048 $49,052,616 $49,196,724 $50,031,143 $48,911,729 100% Other Fund Revenue 6,335,081 7,509,075 8,183,111 8,900,516 7,604,546 6,957,940

Table 97: WMFPD Historical Expenditure Trend (2010-2015) % of Expenditure Type 2010A 2011A 2012A 2013A 2014A 2015B 2015B Personnel & Benefits 43,639,802 44,579,922 42,731,509 43,217,793 42,825,645 42,099,853 88% Materials & Services 4,738,255 4,240,542 4,096,925 3,736,438 4,462,793 4,503,447 9% Operating Capital 1,911,381 2,185,439 2,390,316 2,390,503 2,025,742 1,205,105 3% General Fund Expense $50,289,438 $51,005,903 $49,218,750 $49,344,734 $49,314,180 $47,808,405 100% Other Fund Expense 11,957,900 11,646,257 9,624,886 11,444,715 8,353,236 8,902,247 Net Income (Loss) (200,732) (3,211,855) (166,134) (148,010) 716,963 1,103,324 Fund Balance, December 31 $16,620,534 $13,592,904 $13,426,776 $13,278,763 $13,995,726 $14,043,355

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Net Revenue and Fund Balance Trend The figure below shows the net revenue from 2010A-2015B. As we can see, all but two years (2014A and 2015B) experienced a loss ranging from $166 thousand to -$3.2 million. A total of $717 thousand net revenue for general fund budgets was received for 2014A, which is strength. Keep in mind; fund balances (discussed below) are utilized to offset deficits, which in turn balance the budget.

Table 98: WMFPD General Fund Revenue, Expenditure, and Historical Net Revenue/Deficit Trend 2010A 2011A 2012A 2013A 2014A 2015B Total GF Revenue 50,088,706 47,794,048 49,052,616 49,196,724 50,031,143 48,911,729 Total GF Expenditures 50,289,438 51,005,903 49,218,750 49,344,734 49,314,180 47,808,405 Gain/Loss $(200,732) $(3,211,855) $(166,134) $(148,010) $716,963 $1,103,324

WMFPD has done a respectable job maintaining an adequate General Fund balance, despite fiscal challenges. The figure below shows the WMFPD’s total fund balances from 2010A through the 2015B budget along with each year’s net revenue/deficit. As shown, the 2015B end fund balance for the general fund is expected to reach $14 million, which is a 16 percent decrease from 2010A.

Figure 39: WMFPD General Fund Balance Trend 120,000,000 20,000,000

100,000,000 15,000,000 80,000,000 [VALUE] 60,000,000 10,000,000

40,000,000 EndFund Blance

5,000,000

20,000,000 AnnualNet Revenue

- - 2010A 2011A 2012A 2013A 2014A 2015 B Total GF Expenditures Total GF Revenue Fund Balance, December 31st

Wheat Ridge Fire Protection District (WRFPD) Revenue Trend The general fund revenue budget ($4.3 million) for 2015B represents an increase of 55 percent when compared to the 2014A budget. This is due to a mill levy increase in 2015. Property taxes have increased over the past five fiscal years. About 95 percent of the 2015B is allocated to property tax collection. Specific ownership tax is the second largest revenue generation source for the operating budget (about 3 percent of the overall operations budget). Other funds (pension fund) revenue total $357 thousand for 2015B (equivalent to 8 percent of the overall operating revenue).

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Expense Trend General fund expenditures increased by 31 percent from 2014A ($3.1 million) to 2015B ($4 million). Personnel and benefits represent 70 percent of the general operating budget, followed by materials and services (24 percent) and operating capital (7 percent). Other expenditures (pension) total $276 thousand for 2015B, which is an increase of 11 percent from 2014A and equivalent to 7 percent of the general fund expenditure budget. Wheat Ridge Fire Protection District has held zero debt since 2012.

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Table 99: WRFPD Historical Revenue Trend % of Revenue Source 2010A 2011A 2012A 2013A 2014A 2015B 2015B Property Tax 1,055,507 2,055,768 2,023,159 2,093,919 2,466,960 4,183,497 95% Specific Ownership 80,000 141,870 140,000 157,646 194,917 150,000 3% Permits 15,000 37,657 40,303 34,820 57,951 45,000 1% Grant Income - 450,667 675,558 203,667 1,693 - 0% City Payment ------0% Interest 582 4,651 1,122 4,345 3,737 4,000 0% Charges for Service ------0% Other 7,385 16,344 5,000 80,472 110,631 - 0% Misc. - 110,199 42,000 304,000 - - 0% Sale of Equipment 4,800 - - - - - 0% Transfer 10,000 - - - - - 0% Wildland developments - - - 66,090 - - 0% General Fund Revenue $1,173,274 $2,817,156 $2,927,142 $2,944,959 $2,835,889 $4,382,497 100% Other Fund Revenue 363,936 333,375 348,139 269,352 332,500 357,500

Table 100: WRFPD Historical Expenditure Trend % of Expenditure Type 2010A 2011A 2012A 2013A 2014A 2015B 2015B Personnel & Benefits 755,645 1,367,753 1,816,471 2,503,822 2,393,598 2,799,087 70% Materials & Services 651,951 745,039 695,552 842,409 679,280 948,821 24% Operating Capital 67,725 234,690 237,873 214,882 764 267,000 7% General Fund Expense $1,475,321 $2,347,482 $2,749,896 $3,561,113 $3,073,642 $4,014,908 100% Other Fund Expense 382,465 386,554 384,710 234,167 248,751 276,251 Net Income (Loss) (302,047) 469,674 177,246 (616,154) (237,753) 367,589 Fund Balance, December 31 200,000 632,125 800,371 377,978 412,806 780,694

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Net Revenue and Fund Balance Trends The figure below shows the net revenue from 2010A-2015B. All but one year (2015B) experienced a loss ranging from -$237,000 to -$616,000. A total of $367,000 net revenue is expected for 2015B.

Table 101: WRFPD Revenue, Expenditure and Historical Net Revenue/Deficit Trend 2010A 2011A 2012A 2013A 2014A 2015B Total GF Revenue 1,173,274 2,817,156 2,927,142 2,944,959 2,835,889 4,382,497 Total GF Expenditures 1,475,321 2,347,482 2,749,896 3,561,113 3,073,642 4,014,908 Gain/Loss $(302,047) $469,674 $177,246 $(616,154) $(237,753) $367,589

Wheat Ridge Fire Protection District has done a respectable job maintaining general fund balances despite fiscal challenges. The figure below shows the WRFPD’s total general fund balances from 2010A through the 2015B budget along with each year’s net revenue/deficit. As shown, the 2015B general fund end fund balance is expected to reach $781,000.

Figure 40: WRFPD General Fund Balance Trend 10,000,000 1,000,000

780,694 8,000,000 800,000

6,000,000 600,000

4,000,000 400,000

EndFund Blance

2,000,000 200,000 AnnualNet Revenue

- - 2010A 2011A 2012A 2013A 2014A 2015 B Total GF Revenue Total GF Expenditures Fund Balance, December 31st

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Financial Forecast As part of this study, ESCI developed a forecasting model utilizing local trend data. The forecasts are not predictions of future policy direction nor are they recommendations as to what revenues and expense levels should be. The projections reflect a series of assumptions based on historical behavior and industry experience. The following key assumptions have been included within the baseline five-year forecast. West Metro Fire Protection District Projected Revenue Assumptions To estimate revenue projections, each line item was analyzed in parallel with current projections provided by the district. • Tax revenues increase significantly in 2016 and experience steady growth from 2017-2021. The district is anticipating a significant jump in assessed valuation collections in 2016 and then are expected to drop in the subsequent years. Based on the data, tax revenues increase from $35.3 million in 2015B to $43.5 million in 2021. This is equivalent to a 23 percent increase in tax revenue throughout the forecast period. • Specific ownership taxes increase 3 percent from 2015 to 2016. In addition, years 2017-2021 increase at a rate of 1.8 percent annually. The amount collected from specific ownership increases from $3 million in 2015 to $3.4 million in 2021. • Grant income is fixed at 2015 amounts for 2018, 2019, 2020, and 2021 (a $3.6 million SAFER grant awarded in 2015 is split over 2016, 2017, and 2018). • Emergency Medical Services experiences a 2 percent increase year over year based on historical findings. EMS continues to be a significant revenue source for the district. • Sales of fixed assets are fixed at $2,000. • Permits are fixed at $380,000. • Contractual income decrease from $3.7 million to $3.5 million from 2016 to 2017 and remained fixed at $3.5 million through the remainder of the forecast period. • Lease income is fixed at $300,000 from 2017 through 2021. • Interest and other income are fixed at 2015 amounts. • Other funds increase at a rate of 3 percent annually.

Projected Expenditure Assumptions In order to estimate expense projections for the district, each line item was analyzed in parallel with current projections provided by the district to determine what impact consolidation would have. • Personnel and benefits increase at an average annual rate of 3 percent. • Materials and Services increase at an average annual rate of 7 percent. • Capital outlay is based on projections provided by WMFPD. • Other funds increase at a rate of 3 percent annually.

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Projected Results Applying the revenue forecast assumptions identified above results in the revenue forecast presented in the following table. Total general fund revenue grows from approximately $48.9 million in 2015 to $58.5 million by 2021F (2021 Forecast). The annual growth rate in operating revenue is approximately 3 percent annually. Property tax revenue continues to represent 75 percent of the budget by fiscal year 2021F. EMS continues to be the second highest revenue source for the 2021F forecast at 12 percent (14 percent increase since 2015B). Other fund revenue increases by $1.3 million from the 2015B by 2021F.

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Table 102: WMFPD Revenue Forecast by Revenue Type Forecast % of Revenue Source 2015B 2016F 2017F 2018F 2019F 2020F 2021F 2021F Property Tax 35,323,055 40,621,513 40,621,513 42,652,589 42,652,589 43,505,640 43,505,640 75% Specific Ownership 3,000,000 3,090,000 3,120,900 3,276,945 3,309,714 3,342,812 3,376,240 6% Grants 40,000 2,196,230 1,795,476 299,246 40,000 40,000 40,000 0% On-Behalf Payment 19,444 19,444 19,444 19,444 19,444 19,444 19,444 0% EMS Billing 6,405,000 6,597,150 6,729,093 6,863,675 7,000,948 7,140,967 7,283,787 12% Sale of fixed assets - 2,000 2,000 2,000 2,000 2,000 2,000 0% Permits 380,000 380,000 380,000 380,000 380,000 380,000 380,000 1% Contractuals 3,701,630 3,701,630 3,539,283 3,539,283 3,539,283 3,539,283 3,539,283 6% Lease Revenue - - 300,000 300,000 300,000 300,000 300,000 1% Fire Funds ------0% Interest 25,000 25,000 25,000 25,000 25,000 25,000 25,000 0% Fees ------0% Donations ------0% Operating transfer ------0% Other 17,600 17,600 17,600 17,600 17,600 17,600 17,600 0% General Fund Revenue $48,911,729 $56,650,567 $56,550,309 $57,375,782 $57,286,578 $58,312,746 $58,488,994 100% Other Fund Revenue 6,957,940 7,166,678 7,381,679 7,603,129 7,831,223 8,066,159 8,308,144

Table 103: WMFPD Expenditure Forecast by Expenditure Type Forecast % of Expenditure Type 2015B 2016F 2017F 2018F 2019F 2020F 2021F 2021F Personnel & Benefits 42,099,853 43,519,054 43,368,144 45,017,258 46,687,349 48,379,546 50,136,464 84% Materials & Services 4,503,447 4,639,550 5,907,818 6,074,268 6,245,213 6,420,772 6,601,072 11% Operating Capital 1,205,105 1,661,766 1,700,680 2,400,800 2,441,843 2,488,261 2,531,551 4% General Fund Expense $47,808,405 $49,820,370 $50,976,642 $53,492,326 $55,374,405 $57,288,579 $59,269,086 100% Other Fund Expense 8,902,247 9,071,893 9,344,050 9,624,371 9,913,102 10,210,495 10,516,810 Net Income (Loss) 1,103,324 6,830,197 5,573,667 3,883,456 1,912,173 1,024,167 (780,093) Fund Balance, December 31 14,043,355 20,873,552 26,447,219 30,330,675 32,242,848 33,267,015 32,486,923

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Applying the expenditure forecast assumptions identified above results in the expenditure forecast presented in the following table. Total operating expenditure grows from approximately $48 million in 2015 Budget to $58.5 million by 2021. Overall, operating expense is forecasted to increase by approximately 4 percent per year. Personnel expense is the largest single expense category and represents roughly 84 percent of the total forecasted operating expense in 2021.

In sum, the financial forecasts are sensitive to the assumptions regarding revenues and expenses. For example, if assessed value increases from 2 percent to 3 percent of the prior year assessed valuation, the revenue could increase significantly. On the expense side, if wages and salaries increased at 5 percent per year instead of 3 percent, total operating expense would also increase significantly.

Table 104: WMFPD Revenue, Expenditure and Historical Net Revenue/Deficit Forecast 2015B 2016F 2017F 2018F 2019F 2020F 2021F Total GF 48,911,729 56,650,567 56,550,309 57,375,782 57,286,578 58,312,746 58,488,994 Revenue Total GF 47,808,405 49,820,370 50,976,642 53,492,326 55,374,405 57,288,579 59,269,086 Expenditures Gain/Loss $1,103,324 $6,830,197 $5,573,667 $3,883,456 $1,912,173 $1,024,167 $(780,093)

The figure above shows the forecasted net revenue and end fund balances from 2016-2021; there is a small deficit for 2021F. Net income declines to the rising costs of personnel, materials and services and a stagnant property tax collection.

The figure below shows the WMFPD’s total fund balances from 2016 through the 2021 forecast along with each year’s net revenue/deficit. As shown, the 2021 end fund balance for the general fund could be expected to reach $32.5 million under this model.

The rising costs of personnel and benefits and a stagnant revenue generation is likely going to shrink fund balances post 2021F. Again, the model is sensitive to increases in tax revenue – for example, if the citizens were to approve an increase in three mills, it is likely that we would see an increase in the fund balance.

Figure 41: WMFPD General Fund Balance Forecast 140,000,000 35,000,000

120,000,000 30,000,000

100,000,000 25,000,000 80,000,000 20,000,000 60,000,000 15,000,000

40,000,000 10,000,000

EndFund Blance

20,000,000 5,000,000 AnnualNet Revenue - - 2015B 2016F 2017F 2018F 2019F 2020F 2021F Total GF Revenue Total GF Expenditures Fund Balance, December 31st

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Wheat Ridge Fire Protection District Projected Revenue Assumptions As with WMFPD’s revenue assumptions, WRFPD’s revenue assumptions were conducted by analyzing each line item in parallel with current projections provided by the district to determine what impact a consolidation would have. • Tax revenues increase significantly in 2016 and experience steady growth from 2017-2021. The district is anticipating a significant jump in assessed valuation collections in 2016 and are expected to drop in the subsequent years. Based on the data, tax revenues increase from $4.2 million in 2015 to $5.1 million in 2021. This is equivalent to a 23 percent increase in tax revenue throughout the forecast period. • Specific ownership taxes increase 3 percent from 2015 to 2016. In addition, years 2017-2021 increase at a rate of 1 percent annually. The amount collected from specific ownership increases from $150,000 in 2015 to $168,000 in 2021. • Permits are fixed at $45,000. • Interest is fixed at $4,000. • Other funds increase at a rate of three percent annually.

Projected Expenditure Assumptions Expense projections for the district were estimated by analyzing each line item in parallel with current projection provided by the District to determine what impact consolidation would have. • Personnel and benefits increase at an annual rate of 3 percent. • Materials and Services increase at an annual rate of 3 percent. • Other funds increase at a rate of 3 percent annually.

Projected Results Applying the revenue forecast assumptions identified above results in the revenue forecast presented in Table 105. Total general fund revenue grows from approximately $4.4 million in 2015 to $5.4 million by 2021. The annual growth rate in revenue is approximately 2 percent annually. Property tax revenue continues to represent 96 percent of the budget by fiscal year 2021. Specific ownership tax continues to be the second highest revenue source for the 2021 forecast at 3 percent. Other fund revenue increases by $69,000 from 2015 to 2021.

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Table 105: WRFPD Revenue Forecast by Revenue Type Forecast

% of Revenue Source 2015B 2016F 2017F 2018F 2019F 2020F 2021F 2021 Property Tax 4,183,497 4,916,418 4,788,158 5,027,566 5,027,566 5,128,118 5,128,118 96% Specific Ownership 150,000 154,500 156,045 163,847 165,486 167,141 168,812 3% Permits 45,000 45,000 45,000 45,000 45,000 45,000 45,000 1% Grant Income ------0% City Payment ------0% Interest 4,000 4,000 4,000 4,000 4,000 4,000 4,000 0% Charges for Service ------0% Other ------0% Misc ------0% Sale of Equipment ------0% Transfer ------0% Wildland developments ------0% General Fund Revenue $4,382,497 $5,119,918 $4,993,203 $5,240,413 $5,242,052 $5,344,258 $5,345,930 100% Other Fund Revenue 357,500 368,225 379,271.75 390,650 402,369 414,440 426,874

Table 106: WRFPD Expenditure Forecast by Expenditure Type Forecast % of Expenditure Type 2015B 2016F 2017F 2018F 2019F 2020F 2021F 2021 Personnel & Benefits 2,799,087 2,893,445 2,990,984 3,091,811 3,196,037 3,303,777 3,415,148 70% Materials & Services 948,821 977,496 1,007,038 1,037,473 1,068,828 1,101,130 1,134,408 23% Operating Capital 267,000 275,010 283,260 291,758 300,511 309,526 318,812 7% General Fund Expense $4,014,908 $4,145,952 $4,281,283 $4,421,042 $4,565,376 $4,714,433 $4,868,368 100% Other Fund Expense 276,251 284,539 293,075 301,867 310,923 320,251 329,858 Net Income (Loss) 367,589 973,966 711,921 819,371 676,676 629,825 477,561 Fund Balance, December 31 780,694 1,754,661 2,073,326 2,479,780 2,743,538 2,952,188 3,008,573

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Applying the expenditure forecast assumptions identified above results in the expenditure forecast presented in Table 107. Total operating expenditure grows from approximately $4 million in 2015 to $4.9 million by 2021. Overall, operating expense is forecasted to increase by approximately 3 percent per year. Personnel expense is the largest single expense category and represents roughly 70 percent of the total forecasted operating expense in 2021. Other funds increase by $53,000 from 2015 to 2021.

In sum, the financial forecast is sensitive to the assumptions regarding revenues and expenses. For example, if assessed value increases from 2 percent to 3 percent of the prior year assessed valuation the revenue could increase significantly. On the expense side, if wages and salaries increased at 5 percent per year instead of 3 percent, total operating expense would also increase significantly.

Table 107: WRFPD Revenue, Expenditure and Historical Net Revenue/Deficit Forecast 2015B 2016F 2017F 2018F 2019F 2020F 2021F Total GF 4,382,497 5,119,918 4,993,203 5,240,413 5,242,052 5,344,258 5,345,930 Revenue Total GF 4,014,908 4,145,952 4,281,283 4,421,042 4,565,376 4,714,433 4,868,368 Expenditures Gain/Loss $367,589 $973,966 $711,921 $819,371 $676,676 $629,825 $477,561

The figure above shows the forecasted net revenue from 2016-2021. There is a gain for all years ranging from $368,000 to $1 million.

The figure below shows the WRFPD’s total general fund balances from 2016 through the 2021 budget along with each year’s net revenue/deficit. As shown, the 2021 end fund balance for all fund types would expect to reach $5 million under this model. With the mill increase in 2015, fund balances have remained steady.

Figure 42: WRFPD Fund Balance Forecast

12,000,000 6,000,000 5,070,015

10,000,000 5,000,000

8,000,000 4,000,000

6,000,000 3,000,000

4,000,000 2,000,000

EndFund Blance

2,000,000 1,000,000 AnnualNet Revenue

- - 2015B 2016F 2017F 2018F 2019F 2020F 2021F Total GF Revenue Total GF Expenditures Fund Balance, December 31st

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FUTURE OPPORTUNITIES FOR COOPERATIVE EFFORTS

Potential efficiencies this study identified can be categorized using an escalating level of cooperation between West Metro FPD and Wheat Ridge FPD. General partnering strategies fall in a range from remaining autonomous to the creation of a new organization. These strategies are discussed in greater detail following this overview.

To evaluate the opportunities for cooperative efforts effectively, a basic understanding of the methods for collaboration available to the agencies is necessary. The various partnering options are described, beginning with a do-nothing approach and ending with complete integration of the agencies into a new emergency service provider. The following alternatives will be evaluated and discussed:

• Maintain status quo • Contract for services • Fire Authority • Merger . Legal Consolidation . Fire District-to-Fire District Merger (exclusion/inclusion)

Status Quo This is a do-nothing option. While typically viewed negatively, in some cases the best action is no action. In this case, maintaining status quo means that certain issues will need to be addressed. The participating agencies remain as they are today, as neighboring agencies that respond collaboratively with each other for assistance and collaborate as is their current practice but remain independent.

The advantages of this approach are that it is the easiest option to implement and creates the least amount of work or stress on the organizations. Maintaining status quo also maintains local control. That is, the currently elected boards continue to oversee their individual agencies as their electorates’ desire, without the complication of considering the views of a different or expanded constituency.

The disadvantages of this approach are that the opportunities for efficiency (either financial or service level) through greater collaboration are not realized and some duplication and overlap continues. In today’s environment, taxpayers typically hold their elected officials accountable for delivering a quality level of service at an affordable rate and expect creative thinking to solve problems or achieve those ends. While “maintaining the status quo” is easy and involves the least amount of impact to the agencies, it can also be one of the riskier decisions to make politically. Contract for Services A contract for services can be for limited, discreet functions, such as for administrative, clerical, HR, IT, or financial services; often referred to as an administrative consolidation. Conversely, it can be for large support elements, such as training, fire prevention, logistics, central purchasing, or vehicle maintenance; often referred to as a functional consolidation. The primary element of fire department function can also be contracted, i.e., service delivery, often referred to as an operational consolidation. These consolidations are not legal terms and differ only in the scope of the contract. The process is the same

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for all three types of consolidation, which is referred to as an intergovernmental agreement (IGA) between the agencies.13

For an administrative consolidation, the advantages of such a model include reduced overhead costs by eliminating administrative duplication; a gradual alignment of otherwise separate operations under a single administrative head; potentially less resistance to change by the rank and file in the operational elements than other options; and singularity of purpose, focus, and direction at the top of the participating organizations. This option lends itself well to a gradual move toward a single, integrated agency where differences in attitude, culture, and/or operation are otherwise too great to overcome in a single move to combine.

The disadvantages include potential conflicts in policy direction from the participating boards and potentially untenable working conditions for the fire chief (“one person, multiple bosses”).

For a functional consolidation, the advantages are greater opportunities for efficiency; an opportunity to reinvest redundant resources into those areas lacking in resources (e.g., transferring redundant training officers back to a line [operations] function, increasing line strength); and a closer working relationship between members of the agencies in the consolidated function(s) that can spill over to other unrelated activities in the otherwise separate agencies. This type of collaboration may segue to greater levels of cooperation. Barriers can be broken down as members of each agency realize that the other agencies’ members “aren’t so different after all”.

A disadvantage is that interaction by and between line personnel of different agencies increases the potential for friction. Numerous details must be worked out in advance of such a contract, including but not limited to, work rules, employee assignments, compensation, office location, logos, asset allocation, authority, and even the name of the consolidated function. Further, independence and autonomy are lost in the consolidated areas, spilling into other seemingly unaffected areas. However, West Metro and Wheat Ridge are familiar with each other through the current collaborative efforts in response, training and fleet maintenance, making these areas less contentious and making other areas of collaboration less risky.

For an operational consolidation, the advantages are that the greatest opportunity for efficiency (not necessarily cost reduction) is typically in the operational element where service is delivered to the communities; and the level of trust and cooperation required to make implementation of this option successful implies a near-readiness to take the next step to full integration.

The disadvantage is that administrators and policy-makers must share power and gain consensus where they once had unilateral authority to control and implement. Bargaining unit agreements usually have to be aligned. Further, it sometimes becomes difficult to determine which agency would be the contractor.

13 CRS Title 29, Local Government, Section 29-1-203.

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Fire Authority The Colorado Constitution Article XIV, Section 18(2)a and the Colorado Revised Statutes 29-1-203 both allow for the provision of services through a cooperative agreement between governmental jurisdictions. Under these provisions two or more entities may provide a service that they are empowered to provide as a separate entity. This process is often used in situations where the two participating governments differ in type and revenue sources or where governments have differing rates of taxation. An example of the former is a municipality (sales tax funding) and a special district (property tax revenues) cooperating. An example of the latter is two special districts having differing mill levies.

In the Authority model the partnering governments fund through some formula the provision of services. The Authority can contract back for employees from an agency (i.e., one agency has all the employees) or all the employees are transferred to the new Authority. Obligations and assets owned by the governments may be transferred to the Authority. Contracts also can be assigned to the Authority which operates the services for the cooperating governments.

Like any other type of significant consolidation, the formation of a fire authority requires careful planning. Because the fire authority (FA) creates a new entity, there is an added layer of complexity to the planning. The new entity will need to register with the Internal Revenue Service (IRS), establish new accounts with the County and vendors, contracts will need to be assigned and negotiated, labor agreements need to be negotiated, payroll systems may need to be re-established, and so on. In other words, the formation of a new entity can be incredibly time intensive and attention to detail is critical.

Authorities can be temporary, e.g. until mill levies can be equalized to transition into one district, or continue to operate indefinitely. The funding formula can be set by contract and contributions determined by a variety of methods. Often these formulas are determined by service demand or assessed property valuation within the particular government or even a combination of the two. The formula usually reflects the unique situation for the entities involved.

The ownership or transfer of ownership of capital assets is not prescribed by law and will be determined by the pre-consolidation agreement. Although ownership of facilities and equipment will most likely be transferred to the newly formed fire authority, the responsibility for bonded indebtedness for capital assets will remain that of the originating agency until the debt is satisfied.

The Authority model is useful as described above where taxation levels or methods differ. It can be an intermediate step toward legal consolidation or a fire district-to-fire district merger, it does not require an election, it is customizable to meet unique needs, it may be less expensive, it may be quicker to accomplish, and it can include municipalities. The disadvantage is that Authorities can be dissolved relatively easily by vote of one board. Depending on the complexity of the Authority, it could be exceedingly difficult for staff and legal to unwind back to separate entities again. Another disadvantage is that the pre-existing boards still remain for taxation purposes. This creates some level of administrative duplication and adds complexity for the fire chief, who must spend a lot of time working with each of the boards. It also does not have taxing authority, creates an extra layer of government and is subject to non-appropriation.

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Merger A merger is a complete combining of the participating fire districts into one agency. One or more fire districts are absorbed into and become part of the surviving district. There are two types of mergers: a legal consolidation and a fire district-to-fire district transfer, otherwise known as an inclusion-exclusion merger. Colorado Revised Statues Title 32, Section 32-1-102, Subsection (4), Legislative declaration states:

“The general assembly further declares that it is the policy of this state to provide for and encourage the consolidation of special districts and to provide the means therefor by simple procedures in order to prevent or reduce duplication, overlapping, and fragmentation of the functions and facilities of special districts; that such consolidation will better serve the people of this state; and that consolidated districts will result in reduced costs and increased efficiency of operation.” In other words, the Colorado Legislature has determined that combining agencies for greater efficiency is good government and has developed mechanisms to encourage agencies to capture those opportunities for efficiency.

Legal Consolidation There exists a process for blending the two fire districts into one consolidated district within the Colorado Revised Statutes CRS 32-1-602. A pre-consolidation agreement created by the districts should define the expectations for the resulting merger. One district passes a consolidation resolution proposing the consolidation due to the fact that “specified services of each of the districts may be operated effectively and economically as a consolidated district and that the public health, safety, prosperity, and general welfare of the inhabitants of the special districts initiating the consolidation will be better served by the consolidation of such districts or services.”14

The resolution should specify the services offered by the consolidated district, the name of the consolidated district, whether there will be five or seven directors and other special conditions including time limit for the other district(s) to approve (not to exceed 6 months). The other board(s) passes a concurring resolution agreeing to the consolidation. These are filed with the court which schedules a hearing to determine the legality and whether it is in the public interest to form a consolidated district. If the court determines that the filing is in order, it will set an election within each district for approval. Approval of a majority of eligible voters within each of the special districts establishes the consolidated district.

The organizational board (members of consolidating boards) selects the board members who will be on the new board and set terms based on length of terms for which they have been elected. The remaining board members may serve on an advisory board until the end of their term.

Advantages of a legal consolidation are that it is permanent, it creates only one layer of government, it reflects citizen buy-in (if approved), it can establish director wards, and it can establish a seven-member board. Disadvantages include requiring a citizen election, it may require Board of County Commissioners approval, it cannot include municipalities (as partners), and it is more expensive than a

14 CRS 32-1-602 (2) (a)

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fire district-to-fire district merger or Fire Authority formation. Having a consolidation election requires increased costs for the election and the informational campaign, to make sure the public is fully aware, is much more challenging, particularly if there is an opposing element that may not be well-informed of the issues.

Exclusion/Inclusion A second method of merger exists within Colorado law. This process can be used if the districts’ mill levies are equal at the time of the exclusion and inclusion, similar to the pre-consolidation agreement described above. The two district boards approve an Intergovernmental Agreement (IGA) that defines the expectations of both parties. The absorbing district approves a resolution that agrees to include all the properties from the other district. The district ultimately being dissolved creates a resolution that agrees to exclude the properties in the district so that the properties can be included in the absorbing district. Both districts file a joint request for the exclusion/inclusion with the District Court. The Court will issue an Order of Exclusion and Inclusion. After the process is complete the district, with all property excluded, files to dissolve the district. Legal counsel advises that two or three board members’ residences should remain in the dissolving district to ensure eligible electors serve as board members and vote in the dissolution election.

All assets would become the merged district’s assets and financial responsibilities, such as contracts and pensions, unless defined otherwise and agreed to prior. Bonded indebtedness would remain with the properties within the originating district and not be assumed by the greater taxpayers.

The advantage of the exclusion/inclusion model is that it is permanent, creates only one layer of government, taxes either decrease or stay the same, does not require Board of County Commissioner approval, is relatively simple and does not require a vote of the district citizens. Even if not conducting an election, it should still be preceded by an informational campaign so that as many citizens understand the process as possible. The disadvantages are possible citizen opposition to the process, it cannot include municipalities, it cannot establish director wards, it cannot establish a seven-member board, and there are service plan limitations.

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Strategy A: Status Quo As described earlier, this is essentially a do-nothing option. Both districts have had revenue or expense challenges in recent years, making expense cuts or revenue increases necessary. Both districts, however, provide sound service to their constituents.

Wheat Ridge is facing a significant expense in relocating Station 73 as part of an agreement with the City of Edgewater. The district’s staffing configuration relies heavily upon volunteers to provide an effective response force but is currently working well.

West Metro is deep with resources due to its large service area demands and its role as a regional, entrepreneurial provider of dispatch, training and fleet maintenance services. There are some unmet needs, however. While many of its facilities are state of the art, some are in need of replacement.

Coincidentally, one of the facilities West Metro needs to replace is Station 1, which is the station bordering Wheat Ridge near the Edgewater area in the general area Wheat Ridge needs to replace its Station 73. Wheat Ridge is a basic life support provider of EMS services, with a private ambulance provider serving transport needs. Emergency medical calls for service are handled multiple times by different public safety answering points (PSAPs). These hand-offs can lead to unnecessary delays and lost information. West Metro, on the other hand, is an advanced life support provider and handles its own medical transports. Revenues for medical transport would come to the combined agency, defraying costs associated with providing a higher level of medical services.

If the two agencies combined, opportunities to capture efficiencies are potentially gained in station relocation, ALS first response and medical transports. Should they not combine and maintain status quo, the potential efficiencies are lost, increasing costs (in the case of relocating Station 73 and replacing Station 1) or missing revenue opportunities and improving service provision to Wheat Ridge (in the case of providing ALS first response and medical transport services).

Level of cooperation The level of cooperation between the two districts is expected to continue, such as mutual and automatic aid agreements, as well as dispatching, training and fleet maintenance.

Estimated timeline for completion Since this is a status quo strategy, implementation is immediate.

Affected areas While no areas are affected from the current conditions, the full cost of Station 73 replacement and Station 1 replacement would affect the debt each agency carries. Service provision to the citizens of WRFPD remains unchanged, but those citizens are denied the opportunity for ALS first response services.

Affected stakeholders Both agencies’ constituencies will have missed opportunities and/or larger debt incurred as a result of maintaining the status quo. In WRFPD, the missed opportunities include ALS first response service and shared cost of Station 73 replacement. In WMFPD, the missed opportunities include shared cost of Station 1 replacement and medical transport revenue.

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Summary/Objective of strategy With a decision to maintain status quo, the agencies will maintain the value derived from existing shared services. There may be small, specific enhancements to existing collaboration, but no major new shared services are anticipated.

ESCI guidance Elected officials and administrative staffs should ensure that discussions and decisions related to this strategy focus on the desired outcomes and best interests of the communities served. A decision to maintain status quo does not necessarily mean future collaborative efforts are off the table. Efficiency and enhancement of services should continue to drive decision-making. Participation in this study has undoubtedly increased the awareness of issues each agency has, and opportunities to address issues of mutual benefit should be explored.

Special considerations This strategy continues to afford the elected officials with a high level of control. However, as described previously, opportunities for efficiency are missed. There are likely numerous additional efficiencies to be gained by combining the agencies, which are not discoverable unless the agencies actually combined.

If this course of action is taken (status quo), the two elected bodies and administrative staffs are encouraged to continue dialogue to continue to find potential areas of mutual interest and mutual benefit.

Policy actions No other policy decisions must be made related to implementation of this strategy.

Fiscal analysis The status quo represents no shift in cost or change in efficiency.

Issues & Impacts The implementation of this strategy creates no additional issues or impacts other than the missed opportunities for greater efficiency listed in this strategy’s overview.

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Strategy B: Contract for Services A contract for services, typically referred to as an intergovernmental agreement (IGA) pursuant to CRS Title 29, Local Government15, is discussed in the previous section of this report. While the statute does not segregate types of agreements, ESCI breaks them into three major subheadings for ease of discussion and understanding: administrative, functional, and operational or full service agreements.

Level of cooperation A contracted services approach is applicable when agencies want to work more closely together but are either not ready, or are unable to unify or merge formally. This strategy may be applied to administrative activities including payroll, human resources, financial management, and others or may be configured so that a single administration is managing all of the participating agencies. Alternatively, the strategy may involve a functional unification for identified support services such as training, maintenance, or fire prevention.

The participating agencies maintain autonomy with separate governance and separate taxing authority, unchanged from current practices. Depending on the approach chosen, a single fire chief may provide the administrative services for the other contractually combined agencies or a single training director may operate the training program for both agencies, as just two examples. The district boards continue to govern the separate agencies independently, levying their own taxes at their own levy rates. This integration may be limited to the fire chief, or may include all administrative functions (and the personnel serving those functions) as well as support functions.

At its highest level, contracted service approaches may be expanded to include operational service delivery. That is, one entity contracts for the entirety of its fire protection, EMS, and related services, delivered exclusively by the other, or provider, agency. The contracting agency places full responsibility for all services, based on identified performance measures, on the provider and retains no service delivery function of its own.

Success of an administrative, functional, or operational consolidation strategy is built upon 1) an essential trust relationship between the partner agencies, 2) the thoroughness of the program agreement, 3) a collaborative approach to the management of the program(s), and 4) community understanding and support. Since the agencies already have a great deal of collaboration history, the foundation to build from has been created.

The approach requires in-depth, multi-level, and multi-functional planning, review, external and internal discussions, collaboration, and agreement between the district boards, the administrative staff members of both agencies. This strategy does not require public approval at the ballot box but is negotiated between the agencies.

15 CRS Title 29, Local Government, Section 29-1-203.

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ESCI notes that, although the existing governing bodies are preserved, the level of unilateral control is decreased. Also, the management teams of the contractually unified sections should regularly report to the individual boards on the performance of these new agreements.

Estimated timeline for completion If trust is high and conflicts minimal, this strategy could be accomplished in as little as six months. New issues are likely to arise, however, so the process of careful planning should not be short-cut due to presumed familiarity.

Affected sections Depending on the type of contractual consolidation implemented, the affected sections may be limited to a specific position, an administrative function(s), a support function(s), or all services.

Affected stakeholders While all agency members are affected in some manner, the district directors and agency staff within the affected sections will realize the most significant impacts.

Summary/Objective of strategy The objective should be seamless integration of the identified functions across the two jurisdictions by means of an Intergovernmental Agreement, as provided for under CRS Title 29. This statute allows both districts to agree to have a lead agency provide a service, jointly manage a service, or establish a separate legal entity, which is a combined group of officials charged with the responsibility to jointly manage the designated functions.

ESCI guidance In preparation for such a direction, the fire chiefs must establish and conduct regular joint meetings for the purpose of establishing the parameters of the contractual consolidation. This includes workload analysis to ensure greatest effectiveness while maintaining proper balance. ESCI recommends that the fire chiefs convene an ad hoc steering committee for the purpose of developing proposed common policies, performance standards, and functional plans within the divisions targeted for consolidation.

Should the concept of contracted services be expanded into operational areas, the degree of collaboration between the chiefs is escalated substantially. Operational guidelines, incident management procedures, and many additional factors will need to be compared and brought under a single, fully integrated operational strategy.

Special considerations Directors should understand that contractual consolidation is complex, labor-intensive, and challenging. As such, it is often a precursor to a more permanent consolidation, such as merger.

Contractual consolidation can encounter inherent administrative rigidity resulting from political complexities of the arrangement. Given accountability to two political bodies, administrative leaders can be pulled in multiple directions; they may also be limited by contractual

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requirements in their ability to adjust to environmental changes. Consequently, conflicting policy directives may sometimes be troublesome in a contractually unified agency. These challenges underscore the importance of the founding political relationship, the contractual agreement and the skills of management to ensure success.

Internal staff in the affected sections will likely require some time to adjust to new processes and reporting relationships. The community may notice changes in who they deal with and different processes likely employed from this strategy.

Policy actions The boards of directors will need to develop, approve, and implement an intergovernmental agreement. Careful development and understanding of the agreement by all parties is critical. Many agencies exercising this option have had to revise the original agreement several times in later years to address unforeseen issues. A detailed discussion prior to executing an agreement reduces the risk of early amendments.

Fiscal analysis Depending on the selected approaches, the initiatives described above may result in actual cost reduction (going from two fire chiefs to one, for example) or cost avoidance (reducing the need to hire more staff positions in the future), allowing those funds to be redirected toward other agency needs.

The costs for the combined activities should be based upon a formula developed between the agencies. This includes any fiscal windfall realized. To the extent there are weighted distribution of costs (and benefits) due to disproportionate cost or benefit, such distribution should be based on weight factors directly tied to the function shared and should follow guidance provided in the cost allocation options as outlined in the following.

Cost Allocation Options What follows is a listing of system variables that can be used (singly or in combination) to allocate cost between allied fire departments. Each option is summarized by the concept, its advantages and disadvantages, and other factors that should be considered. Regardless of the option(s) chosen to share the cost of service, the resulting intergovernmental agreement needs to address the formula chosen and the rationale behind it, as well as any exclusion, such as grant funded expenditures. In addition, service contracts often must reconcile the exchange of in-kind services between the participating agencies.

Area The cost of emergency service can be apportioned based on the geographic area served relative to the whole. For instance, the jurisdictional boundaries of the agencies represent about 109.4 square miles. The following figure displays the services area in square miles and the percentage for each jurisdiction, which represents the percentage of total cost share.

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Table 108: Cost Allocation by Service Area (2015) Service Area Percentage Jurisdiction in Square of Total Miles WMFPD 110 92.9% WRFPD 8.4 7.1% Total 119.4 100.0%

Apportionment founded on service area alone may work best in areas that are geographically and developmentally homogeneous.

Pro: Service area is easily calculable from a variety of sources. Size of service area generally remains constant with few if any changes.

Con: Service area does not necessarily equate to greater risk or to greater workload.

Consider: Service area may be combined with other variables (such as resources, assessed value and number of emergencies) to express a compound variable.

Assessed Value The assessed value (AV) of agencies is established by tax assessors under laws of the state. Usually, higher-valued structures and complexes carry a greater risk to the community from loss by fire; consequently, assessed value also tends to approximate the property at risk within an area. Fire departments are charged with being sufficiently prepared to prevent property loss by fire. Therefore, the cost of contracted fire protection may be apportioned relative to the assessed value of the allied jurisdictions. In this case, high valued buildings may pose a low risk to the community or to the fire department due to built-in fire protection features. Typically, AV is used to apportion cost of shared service by applying the percentage of each partner’s AV to the whole.16 The following table illustrates the allocation of cost by the assessed value of the agencies, which represents the percentage of total cost share.

Table 109: Cost Allocation by Assessed Value (2015) Assessed Percentage of Jurisdiction Valuation Total WMFPD $2,866,088,000 89.6% WRFPD $332,571,000 10.4% Total $3,198,659,000 100.0%

Pro: AV is updated regularly, helping to assure that adjustments for changes relative to new construction, annexation, and inflation are included. Because a third party (the assessor) establishes AV in accordance with state law, it is generally viewed as an impartial and fair measurement for cost apportionment. Fire protection is typically considered a property- related service; thus, allocation tied to property value has merit.

16 AV used is the total assessed value of the service area.

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Con: AV may not reflect the risk associated with certain properties. Some high value properties present low risk. Some comparatively lower value properties may not always represent the life risk, such as nursing homes or places of assembly, which might dictate more significant use of resources. In addition, some large facilities may seek economic development incentives through AV exemptions or reductions. Adjustments may need to be made to AV if such large tracts of exempt property in one jurisdiction cause an imbalance in the calculation. Last, AV typically includes the value of land, which is not usually at risk of loss by fire.

Consider: Discount AV by factoring it into a multi-variable allocation formula. As an additional consideration, assessors usually establish the AV in accord with the property tax cycle, which can lag somewhat behind the budget cycle of local agencies and the time when service contracts are reviewed or negotiated.

Deployment The cost for service is based on the cost of meeting specific deployment goals. Deployment goals may be tied to the physical location of fire stations, equipment, and personnel (strategic deployment) or by stating the desired outcome of deployment (such as is contained in standards of cover). A strategic goal could specify the location of five stations, six engines, one ladder truck and twenty-one on-duty firefighters, for example. A standard of cover might state the desired outcome as three engine companies, one ladder company, and thirteen emergency workers on the scene of all structure fire emergencies within eight minutes 90 percent of the time. While both strategic and outcome goals can be used effectively to assist in allocating cost, ESCI views outcome goals to be more specifically linked to the quality of service. This alternative however, is highly variable due to the independent desires of each community in regard to outcome goals.

This type of scoring system for each agency allows the ranking of each area based on the assigned apparatus and facilities required to deliver the staffing and required fire flow. The following illustrates the allocation of cost by the number of resources deployed to serve each jurisdiction, including fire stations and frontline engines and ladder trucks (not including reserve apparatus).

Table 110: Cost Allocation by Resource Deployment (2015) Engines & Percentage Jurisdiction Stations Total Aerials of Total WMFPD 15 17 32 84.2% WRFPD 3 3 6 15.8% Total 18 20 38 100.0%

Pro: Deployment is intuitively linked to the level of service. The outcome of deployment based on a standard of cover can be monitored continuously to assure compliance. Such deployment can be adjusted if standards are not met. This assures the continuous quality of emergency response throughout the life of a service contract.

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Con: Deployment may not equate to better service because such goals are prone to be used for political reasons and may not be used for quality of service reasons. Outcome goals require common reporting points and the automatic time capture of dispatch and response activities to assure accuracy. Record keeping needs to be meticulous to assure the accurate interpretation of emergency response outcomes.

Consider: Contracts for deployment-based fire protection should recognize that there is required infrastructure, such as administrative or overhead costs, as well as capital asset cost, depreciation, rent, and liability insurance. Thus, this allocation strategy is best used as part of a multi-variable allocation formula.

Service Demand Service demand may be used as an expression of the workload of a fire department or geographical area. Cost allocation based on emergencies would consider the total emergency response of the service area and apportion system cost relative to the percentage of emergencies occurring in the jurisdictions.

Table 111: Cost Allocation by Service Demand (2014) Service Percentage Jurisdiction Demand of Total WMFPD 27,564 87.8% WRFPD 3,824 12.2% Total 31,388 100.0%

Pro: Easily expressed and understood. Changes in the workload over the long term tend to mirror the amount of human activity (such as commerce, transportation, and recreation) in the corresponding area.

Con: Emergency response fluctuates from year to year depending on environmental and other factors not directly related to risk, which can cause dependent allocation to fluctuate as well. Further, the number of alarms may not be representative of actual workload; for example, one large emergency event requiring many emergency workers and lasting many hours or days versus another response lasting only minutes and resulting in no actual work. Finally, emergency response is open to (intentional and/or unintentional) manipulation by selectively downgrading minor responses, by responding off the air, or by the use of mutual aid. Unintentional skewing of response is most often found in fire systems where dispatch and radio procedures are imprecisely followed.

Consider: Using a rolling average of alarms over several years can help to suppress the normal tendency for the year-to-year fluctuation of emergencies. Combining the number of emergencies with the number of emergency units and/or personnel required may help to align alarms with actual workload more closely; however, doing so adds to the complexity of documentation. In a similar manner (and if accurate documentation is maintained), the agencies could consider using the total time required on emergencies as an aid to establish the comparative workload represented by each jurisdictional area.

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Fixed Rate The use of fixed fees or rates (such as a percentage) to calculate allocation of shared cost is more common between municipalities and independent fire districts. Occasionally, fixed-rate contracts involve the exchange of in-kind services.

Pro: The concept is simple and straightforward. A menu of service options and the fees corresponding to those alternatives can be developed by the contractor agency. The contracting agencies can tailor a desired level of service based on risk and community expectation by choosing from the various menu items.

Con: Partnering communities may change (i.e., population, jobs, commerce, structures, and risk) at divergent rates, causing disconnection between the rationales used to establish the fee and the benefit received. A fixed-rate contract may be difficult to coherently link to the services provided and/or received, which can lead to a lack of support by officials and the community.

Consider: Partnering agencies need to assure that provision for rate adjustment is included in the agreement, including inflation. The inclusion of administrative and/or overhead cost also requires statement, as does the reconciliation of in-kind service exchange. The ownership and/or depreciation of capital assets should be addressed, as should rent, utilities, and liability insurance. In the case of a fixed fee, the agreement should establish how the participation of other public agencies in the partnership would affect cost.

Population Payment for service can be based on the proportion of residential population to a given service area. The following figure lists the population by jurisdiction and the percentage of the total number of individuals living in each service area.

Table 112: Cost Allocation by Population (2015) Percentage Jurisdiction Population of Total WMFPD 247,648 88.9% WRFPD 31,000 11.1% Total 278,648 100.0%

Pro: Residential population is frequently used by governmental agencies to measure and evaluate programs. The U.S. Census Bureau maintains an easily accessible database of the population and demographics of cities, counties, and states. Estimates of population are updated regularly.

Con: While census tracts for cities frequently follow municipal boundaries, this is not the case with fire district boundaries, forcing extrapolated estimates, which can fail to take into account pockets of concentrated population inside or outside of the fire district boundaries. Residential population does not include the daily and seasonal movement of a transient population caused by commerce, industry, transport, and recreation. Depending on the local situation, the transient populations coming in (or going out) of an area can vary significantly, which can tend to skew community risk. Residential population does not

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statistically link with emergency workload; rather, human activities tend to be the linchpin that connects people to requests for emergency assistance.

For example, if residential population actually determined emergency workload, emergencies would peak when population was highest within a geographic area. However, in many communities where the residential population is highest from about midnight to about 6:00 a.m. (bedroom communities), that time is exactly when the demand for emergency response is lowest. It turns out that emergency demand is highest when people are involved in the activities of daily life—traveling, working, shopping, and recreating. Often, the persons involved in such activities do not reside in the same area. Additionally, simply relying on population will not account for the effects that socio-economic conditions have on emergency service response activity.

Consider: The residential population of unincorporated areas can sometimes be estimated by using the GIS mapping capability now maintained by most counties and municipalities. By counting the residential households within the area in question, then applying demographic estimates of persons per household, it may be possible to reach a relatively accurate estimate of population within the area in question. Alternately, residential population can be estimated by using information obtainable from some public utility districts by tallying residential electrical meters within a geographic area and then multiplying by the persons per household.

Transient populations can be estimated by referring to traffic counts, jobs data, hotel/motel occupancy rates, and, in some cases, park visitor statistics. Residential population plus transient population is referred to as functional population. Where functional population is significantly different from residential population, service agreements based on population should be adjusted to account for it.

Multiple-Variable Allocation Frequently, even though everyone may agree on the benefit of allied fire protection, officials find it difficult to reach an accord on the cost. The differences between community demographics and/or development, along with changes that occur within the system over the long term, can cause the perception of winners and losers. This can be especially prevalent when a single variable is used to apportion cost. A service contract based on more than one allocation determinate may help solve these problems.

For example, ESCI is familiar with a 9-1-1 dispatch center that serves more than 20 fire agencies of all sizes and types—large, small, metropolitan, and rural; on-duty career and on-call volunteer. Here, the service contract includes three determinates applied to each agency.

Base charge — 10 percent of the dispatch center’s budget is divided equally between all agencies. This charge is based on the acknowledgement that each agency is equally responsible to maintain the dispatch center on continuous stand-by, irrespective of size of the agency or its use of the dispatch services.

Usage charge — 45 percent of the dispatch center’s budget is divided between the agencies in accordance with the number of emergency dispatches made for each during the preceding year.

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The member agencies determined that this charge fairly assesses the overall use of the 9-1-1 dispatch system by each.

Risk charge — 45 percent of the dispatch center’s budget is divided between the agencies in accordance with the relative percentage of each department’s AV. The member agencies determined that this charge is relational to each department’s community risk and that it is closely associated with the overall ability to pay.

By apportioning the dispatch center cost over three variables, the members of this alliance have been able to reach a long-term agreement that fits the diversity of the partnering agencies. Other partnerships in other geographical areas may require a different solution involving different combinations of variables. In summary, when choosing a cost-sharing strategy for partnered fire protection, it is important to keep any apportionment formula fair, simple, and intuitively logical to assure that the public accepts and supports the endeavor.

Allocation Summary The information provided previously serves as a detail of cost allocation factors. Given the lengthy discussion provided with each option, ESCI has compiled the information into a summary table illustrating the distribution of factors between the agencies. These examples are for illustrative purposes and may be used as part of a check for fairness of assigning the cost for service.

Table 113: Summary of Cost Allocation Factors by Percentage (2015) Assessed Service Jurisdiction Area Resources Population Value Demand WMFPD 92.9% 89.6% 84.2% 87.8% 88.9% WRFPD 7.1% 10.4% 15.8% 12.2% 11.1% Total 100.0% 100.0% 100.0% 100.0% 100.0%

ESCI extrapolated the cost of emergency services using the most recent fiscal year budgeted amounts for Fire and EMS using a multiple variable formula. In addition to the individual funding alternatives, multiple-variable scenarios are also provided as examples of how this type of methodology can be modified and applied. The following figures show three multiple cost allocations by variable and the weighted apportionment by percentage. The first allocates costs on the basis of assessed value (50 percent) and service demand (50 percent).

Table 114: 50% Assessed Value and 50% Service Demand (2014-15) Assessed Service Jurisdiction Allocation Value Demand WMFPD 89.6% 87.8% 88.7% WRFPD 10.4% 12.2% 11.3% Total 100.0% 100.0% 100.0% The second example allocates the cost based on service demand (50 percent), resources (25 percent), and assessed value (25 percent).

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Table 115: 50% Service Demand, 25% Resources, 25% Assessed Value (2015) Service Assessed Jurisdiction Resources Allocation Demand Value WMFPD 87.8% 84.2% 89.6% 87.4% WRFPD 12.2% 15.8% 10.4% 12.6% Total 100.0% 100.0% 100.0% 100.0%

Any or all of the variables can be used to develop the cost allocation formula, and the weights can be adjusted to emphasize or de-emphasize each variable. Below lists all of the variables as equally weighted and result in the following multiple variable formula:

Table 116: All Variables at Equal Weights of 20% Each (2015) Assessed Service Jurisdiction Area Resources Population Allocation Value Demand WMFPD 92.9% 89.6% 84.2% 87.8% 88.9% 88.6% WRFPD 7.1% 10.4% 15.8% 12.2% 11.1% 11.4% Total 100.0% 100.0% 100.0% 100.0% 100.0% 100.0%

Whatever formula is used, care should be taken to avoid identifying a cost and then developing a formula to achieve the desired cost. While affordability is an important factor, the developed formula should reflect an appropriately balanced approach to addressing the service needs of participating agencies and allocating costs based on the factors driving service decisions.

Issues & impacts • No permanent organizational commitment is made since this is a contract. • All final decision-making power is outlined in the agreement and can range from retaining individual authority, delegating authority to a separate legal entity, or relinquishing authority to the lead agency. • Requires a collaborative approach to the management of the program(s) between the participating agencies. • Does not require public approval at the ballot box. • Existing governing boards are preserved even in a contract for full services in order to levy taxes to pay for the contract. • Administrative leaders can be pulled in multiple directions serving multiple masters if authorities are not carefully addressed in the contract. • No net new FTEs required. May free up existing FTEs for reassignment. • Prudent practice calls for taking the best of each agency’s rules, regulations, and operating procedures to create a new set. • Efficiencies can be gained in administration, fleet maintenance, training, fire prevention, shift command staff, and some operational elements by eliminating duplication or reassigning duplicate resources.

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Strategy C: Fire Authority The formation of a Fire Authority under CRS Title 29 through the use of an Intergovernmental Agreement is a relatively straightforward legal procedure; however, as with most strategies it requires significant thought and preparation. The creation of the separate entity will require additional administrative and legal work.

Level of cooperation The level of cooperation between Boards needs to be high both during the planning process and throughout implementation. It is important that the chosen funding mechanism be well considered and all Board members are in agreement.

Estimated timeline for completion The time required to accomplish the writing and adopting of the Intergovernmental Agreement is relatively short. However, the time spent contemplating the design, funding formula, and obligations of each district should not be abbreviated. Further, the implementation portion of the process after the IGA is signed can take some time. This is particularly true of the administrative changes (HR, IT, Finance, as examples) and training on new procedures for line personnel. Timing to implement full changes might be coordinated with a beginning of a fiscal/calendar year to simplify record keeping.

Affected sections Nearly all sections of all of the organizations will be affected by this initiative. This includes agency administrations, operations, training, and fire prevention components of each participating fire district. Boards will remain intact, but depending on the composition of the Authority Board, some board members will serve on the Authority Board and have additional meetings and responsibilities.

Affected stakeholders All personnel are likely to be affected in some way. Employees transferred to the new organization will have changes to salaries and benefits. Some positions may change and some ranks may be altered in management. Communication with the personnel is critical as with any of these options.

The citizens of the agencies will only be affected in that changes may occur in the deployment scheme. ESCI anticipates that the impact will be positive in that service level would improve in Wheat Ridge assuming expansion of an ALS first response capability and medical transport services.

Summary/Objective of strategy This strategy forms another organization for the purpose of providing efficient service to the citizens. The objectives should be:

• A smooth transition retaining the two organizations but forming a third functional, cohesive organization

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• Obtaining appropriately balanced representation from the currently separate agencies • To provide depth of resources, strength of service, financial sustainability and resiliency

This strategy combines both agencies into an Authority which for all purposes functions as one organization. The parent organizations will remain for approving budgets, certifying mill levies, selecting the representing board members on the Authority Board and giving general guidance to the designated board members. The Authority Board will be charged with setting strategic direction and oversight of the operations of the organization.

ESCI guidance ESCI emphasizes the critical importance of developing a clear vision for the long-term outcome of the Authority formation. The vision must be shared and fully agreed to by both agencies if the effort is to succeed. All decisions must be made openly and collaboratively, starting with a visioning session in which everything is on the table and personal agendas are set aside in the interest of achieving the common goal of unification.

In addition to the elected officials, the fire chiefs will need to meet regularly and also have discussions about how best to move forward. Involvement of committees of the involved personnel can be helpful. It must be kept in mind the guiding principle of doing what is ultimately in the best interest of the citizens served.

Numerous details will need to be studied. For example, how will transfer of personnel and assets to the Authority occur and what ramifications might result? The funding formula needs to be established and determine how those funds will be transferred. When will the Authority begin operation as a legal entity? Will there be a modification of benefits for personnel? IRS and other legal implications will need to be contemplated. With assistance from legal counsel, some of these and other items will be placed into IGA. Others need to be decided so that they can be communicated to the personnel as soon as possible.

After the IGA is signed implementation can begin, but not all changes need to be implemented at once. For instance, the line personnel integration occurs later, after training on operating procedures has occurred. It is highly recommended that personnel be integrated together so as to avoid a feeling of still being separate.

Special considerations After a relatively short time the complexities of unwinding the Authority can be costly and disruptive to the organization. The IGA should have elements that would prevent either party from unilaterally withdrawing in the future over relatively minor issues. This is particularly true as Boards change over time. While Colorado Constitutional provisions would prevent binding future Boards to a particular course of action or prevented from making changes or not appropriating funds, there can be contractual disadvantages to the district desiring to end the agreement. These can be designed so as to cause serious consideration before voting for dissolution. This is sometimes called the “poison pill”.

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Policy actions The Boards must approve the Authority creation via an Intergovernmental Agreement. This action will form a third entity that will be empowered to conduct the business of providing services to the combined jurisdiction.

Fiscal impacts The figure below lists the current budgeted positions followed by the conceptual staffing configuration for the newly formed Fire Authority as agreed upon by stakeholders on both sides. The positions listed in the table below do not increase nor decrease. However, most all staff would join West Metro at a comparable or higher pay scale reflecting similar, if not better tenure.

Table 117: Wheat Ridge Personnel Headcount and Cost Impacts Total Cost Count w/out ADJ Total Cost Function Count ADJ (2015) w/ADJ (2016) Chief 1 -1 $135,138 $0 Assistant Chief 0 1 $0 $169,441 Fire Marshal 1 0 $135,449 $135,449 Asst Fire Marshal/Inspector 1 0 $75,375 $101,486 Administration 1.5 -1.5 $52,496 $0 Battalion Chief 2 -1 $222,358 $107,533 Lieutenant 8 -8 $674,713 $0 Engineer 9 -9 $673,751 $0 Firefighter 11 17 $637,660 $2,482,619 PERSONNEL COST 34.5 -2.5 $2,606,940 $2,996,528 OTHER PERSONNEL COSTS $192,147* $32,962 TOTAL COSTS $2,799,087 $3,029,490 * Includes budgeted positions not carried over into “Total Cost w/ADJ (2016)”

Based on the above illustration, the total costs would increase from $2.8 million to $3 million as a result of the fire authority. This is equivalent to an 8 percent change in personnel and benefits costs, or $389,588 in the first year plus an anticipated 3 percent annually thereafter to match rising personnel costs presented in the financial forecasted model presented earlier.

Issues & impacts • Using a new name for the organization or the use of one of the agency’s name as the Authority name can cause confusion for citizens now being served by a “different” agency. • Employees hired before 1986 may have a Medicare exemption. Moving the employees to a new organization may show a “new hire” date that will trigger mandatory Medicare withdrawals from their pay. • Some contracts and mutual/automatic aid agreements which cannot be assigned to the Authority may need to be reconstructed. • Additional personnel and systems may cause workload increases on existing administrative personnel.

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Strategy D: Merger As previously discussed, a merger can occur in one of two ways: a legal consolidation or a fire district-to- fire district transfer (also known as inclusion-exclusion). In either case, the resulting combining of the agencies is permanent, but the inclusion-exclusion method does not require voter approval. In this case, a merger results in combining of the participating districts into a single fire district. The agencies no longer maintain autonomy, like some of the other strategies discussed. The merger will also require careful planning and development of a clear vision and strategy for moving forward.

The administrative and operational configuration of the newly merged district will require careful evaluation of existing resources and decision making in regard to future deployment. Administrative positions will need to be modified and personnel reassigned to roles that will differ from their previous experience. Similarly, some operational (line) positions will likely change as decisions are made regarding station assignments based on the staffing needs of a much larger organization rather than a single district, as it is currently. The process for a legal consolidation differs from exclusion/inclusion in the following ways:

Table 118: Merger Actions--Legal Consolidation vs. Exclusion/Inclusion Merger Actions Legal Consolidation Exclusion/Inclusion Pre-merger Establish a pre-consolidation agreement Establish an intergovernmental agreement Action Resolution required by one district; Absorbing district passes resolution including concurring resolution passed by other board. all property from other district. Dissolving Initiating resolution specifies services to be Policy Action district passes resolutions excluding all offered, name of consolidated district, property, making it available to be included number of directors, other special in absorbing district. conditions. Both districts file a joint request for Hearing scheduled, court determines if exclusion/inclusion with the court. Court consolidation is legal, in the public interest. issues an Order of Exclusion and Inclusion. Court Action If so, sets an election in each district for Once complete, district with excluded approval. Majority approval in both districts property files to dissolve the district. Keep required. 2-3 directors’ residences outside of exclusion so they can vote on final dissolving action. Combined board members select the board All assets become merged assets; all members who will serve on the new board financial responsibilities become merged Post Court/Voter (5 or 7) and set terms based on length of responsibilities, unless otherwise agreed Action terms they had previously been elected. upon. Bond debt remains with properties Remaining board members may serve on an within the originating district and not advisory board until expiration of their term. assumed by the greater taxpayers. Permanent, results in only one layer of Permanent, results in only one layer of government, taxes either decrease or stay government, has citizen buy-in, can establish Advantages the same, does not require County director wards, can create a seven-member Commission approval, does not require a board. vote. Election is expensive, may require County Possible citizen opposition, cannot establish Disadvantages Commission approval, more expensive than director wards, cannot establish seven- Exclusion/Inclusion merger. member board, service plan limitations. Level of cooperation

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The merger strategy requires multiple and often complex decisions, necessitating a high level of cooperation from the involved district directors. Administrative and line personnel in the organizations will also need to demonstrate a willingness to work together constructively if the initiative is to succeed.

Due to the complex nature of a merger, in-depth and multi-level assessment and planning will be critical, requiring an exceptional level of collaboration that must occur at all levels in the organizations. Open communication and transparency in discussions and decision making will be essential.

Estimated timeline for completion The steps for completing a merger of either type are detailed above and in the General Partnering Options section of this report. It is apparent from that discussion that while the process is straightforward, the planning steps are multiple and time consuming. Discussion, negotiation, and decision making can take 12 to 18 months before the matter is submitted to the electorate or dissolution action is taken.

Affected sections All sections of all of the organizations will be affected by the initiative. This includes the elected officials, agency administrations, operations, training, and fire prevention components of each participating fire district.

Affected stakeholders All agency members are affected in varying degrees. The district directors and administrative staffs will be the most heavily affected initially, due to the many implementation decisions that will be necessary.

Directors are affected in that board positions will be lost regardless of the merger option chosen. A fire chief will undoubtedly be assigned to a subordinate position in the newly merged organization. Members of both agencies could be impacted with the organizational shuffle that will come as a result of the merger reassignments/realignments that will likely be required.

The citizens of the agencies will be affected in that the newly expanded service area will require slight modification of the deployment scheme. ESCI anticipates that the impact will be positive in that service level would improve in Wheat Ridge through an ALS first response capability and medical transport services.

Summary/Objective of strategy This strategy combines both agencies into one. The objectives should be: • A smooth transition from two organizations into a single, cohesive organization • Obtaining appropriately balanced representation from the currently separate agencies • To provide depth of resources, strength of service, financial sustainability and resiliency

This strategy combines both agencies into a single fire district. Services would be provided by the existing resources of both agencies, pooled, and reconfigured to provide optimum services

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and governed by the seated board in an exclusion/inclusion merger, or by a potential mix of the current directors in a legal consolidation merger.

ESCI guidance ESCI again underscores the critical importance of developing a clear vision for the long-term outcome of the merger process. The vision must be shared and fully agreed to by both agencies if the effort is to succeed. All decisions must be made openly and collaboratively, starting with a visioning session in which everything is “on the table” and personal agendas are set aside in the interest of achieving the common goal of unification.

In addition to the elected officials, the fire chiefs will need to meet regularly and also have discussions about how best to move forward. The sole consideration should be answering the question, “What is in the best interest of the people we serve.”

Special considerations The merger initiative will be challenging and the directors need to understand that willingness to compromise will be essential. The first and perhaps most challenging decision will be which merger option to pursue. The directors must prepare for those conversations and remain flexible in their decisions. The deliberations should be based on financial, administrative, and operational considerations, to determine which approach is most beneficial, setting aside historical and territorial concerns.

Policy actions In the case of a legal consolidation, the two fire districts must develop a pre-consolidation agreement establishing the circumstances of the merged fire district. Once a pre-consolidation agreement is reached, one fire district takes the lead and adopts a resolution which specifies the services to be offered by the merged district, the name of the consolidated fire district the number of directors which make up the board of directors, and any other special circumstances. The other fire district passes a concurring resolution. These documents are submitted to district Court, where a hearing is scheduled. The Court will rule whether the consolidation is legal and proper, and is in the public interest. If the Court finds in favor of consolidation, an election within each fire district is set. As discussed previously, if a majority of voters approve the consolidation in both districts, the merger is approved.

In the case of an exclusion/inclusion merger, the two fire districts negotiate an intergovernmental agreement laying out the planned merger. The absorbing fire district passes a resolution that includes all of the property from the other fire district. The dissolving fire district passes a resolution excluding all property (excluding two or three directors’ residences to facilitate a dissolution vote). Both fire districts file a joint request for exclusion/inclusion with the District Court. If the Court concurs, it issues an Order of Exclusion and Inclusion. Immediately after the court order is issued, the remaining district directors vote to dissolve the remnants of the fire district, which are immediately included in the absorbing district.

Fiscal analysis The fiscal analysis of strategy D: Merger is discussed below. While the staffing elements are the same as the fire authority, the elements of merger are defined in more detail. The estimates and

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analysis presented are dependent on the outlined assumptions and subject to change depending on actual factors that influence revenue and expense. Key assumptions used in the assessment are followed by high-level estimates of revenues, expenses, and net revenues over a forecast period.

Key Assumptions – Revenue: Key assumptions used in developing the revenue estimates under the consolidation strategy are similar to the assumptions used in the Fiscal Analysis section presented earlier in the report. Property taxes represent the largest and primary source of revenue for the combined operations of the two agencies. Key revenue assumptions specific to the merger/annexation strategy include: • The permanent tax rate of the consolidated agency is equivalent to a rate that produces the amount of revenue necessary to provide personnel, service and materials, and capital replacement costs. The assumed effective levy rate for this model is 12.382 per 1000 AV. • Under the consolidation, West Metro would take over EMS services currently provided by a third party. In the first year, collections would increase 40 percent and then 4 percent year over year starting in 2017. • An average AV growth is anticipated to spike in 2016 (14 percent), 1.05 percent in 2018, and 1.02 percent in 2020.

Key Assumptions –Expenses: Key assumptions used in developing the expenditure estimates under the merger model are similar to the assumptions used in the Fiscal Analysis section presented earlier in the report. Personnel, materials and services represent the largest and primary source of expenditure generation for the combined operations of the two agencies. Expenditure assumptions specific to the consolidation strategy include: • The total personnel costs presented in the allocation model were utilized as the total personnel cost plus a reasonable increase in growth year over year. The personnel and expenses utilize the same assumptions presented under the fire authority option. • We would expect with a consolidation, a 3 percent increase in materials and service to match inflation trends.

Consolidated Taxable Assessed Value In order to develop a tax revenue projection, data acquired from the County Assessor’s Office were analyzed and utilized to project AV growth over the next five years.

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Table 119: Assessed Valuation Projections, Consolidated District

Estimated Assessed Assessed Mill Levy Revenue Year Valuation % Change Value + Bonds Generation (AV X (1000 AV) Mill/levy rate)

12.500- 2015 Combined $3,198,659,000 $3,198,659 $39,506,552 - 13.524 2016 Prelim. $3,665,741,000 $3,665,741 12.382 $45,389,205 14.9% 2017 $3,665,741,000 $3,665,741 12.382 $45,389,205 0.0% 2018 $3,849,028,050 $3,849,028 12.382 $47,658,665 5.0% 2019 $3,849,028,050 $3,849,028 12.382 $47,658,665 0.0% 2020 $3,926,008,611 $3,926,009 12.382 $48,611,839 2.0% 2021 $3,926,008,611 $3,926,009 12.382 $48,611,839 0.0%

The projected tax resources of the combined valuation are based on the most recent assessed valuation of the WMFPD and WRFPD. The 2015 combined assessed value total $3.2 million, as presented in the Fiscal Analysis section. The study area is expected to see a significant jump in AV growth for 2016, based on preliminary assessments from the County Assessor. For the merger option, an AV growth was calculated. The rates of 14.9 percent in 2016 and 5.0 percent in 2018 and 2.0 percent in 2020.

Consolidated Revenue Projections The next step estimated revenue projections for the consolidated district. This was done by analyzing each line item in parallel with current projection provided by the District to determine what impact a consolidation would have. • Tax revenues increase significantly in 2016 and experience slower growth from 2017-2021. The district is anticipating a significant jump in assessed valuation collections in 2016B and are expected to drop in the subsequent years. In order to keep the district from going to the ballot box, ESCI utilizes the lowest effective tax rate of 12.382. Based on the data, tax revenues increase from $45.3 million in 2016F to $48.6 million in 2021F. This is equivalent to a7 percent increase in tax revenue throughout the forecast period. • Specific ownership taxes increase 3 percent from 2015 to 2016. In addition, years 2017-2021 increase at a rate of 1 percent annually. The amount collected from specific ownership increases from $3.1 million in 2015 to $3.5 million in 2021. • Grant income includes a $3.6 million SAFER grant awarded in 2015 split over 2016, 2017, and 2018. • Emergency Medical Services are expected to spike in 2016, if the districts were to combine. Utilizing historical EMS financial and calls for service data provided by WMFPD, ESCI projected EMS income based on the district taking on WRFPD’s EMS services. This could bring to the table an additional $1.2 to $1.5 million. A 4 percent increase year over year was projected based on historical findings. EMS income is a significant revenue source for the district. • Sales of fixed assets are fixed at $2,000. • Permits are fixed at $425,000.

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• Contractual income decrease from $3.7 million to $3.5 million from 2016 to 2017 and remained fixed at $3.5 million through the remainder of the forecast period. • Lease income is fixed at 300,000 from 2017 through 2021. • Interest and other income are fixed at 2015 amounts. • Other funds increase at a rate of three percent annually.

In the merger model, combined total General Fund revenue could increase by approximately $64 million in 2016F to $67.5 million in 2021F.

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Table 120: Projected Revenues, Consolidated District % of Revenue Source 2015B 2016F 2017F 2018F 2019F 2020F 2021F 2021F Property Tax 39,506,552 45,389,205 45,389,205 47,658,665 47,658,665 48,611,839 48,611,839 72% Specific Ownership 3,150,000 3,244,500 3,276,945 3,440,792 3,475,200 3,509,952 3,545,052 5% Grants 40,000 2,196,230 1,795,476 299,246 40,000 40,000 40,000 0% On-Behalf Payment 19,444 19,444 19,444 19,444 19,444 19,444 19,444 0% EMS Billing 6,405,000 8,997,477 9,360,975 9,739,158 10,132,620 10,541,978 10,967,874 16% Sale of fixed assets - 2,000 2,000 2,000 2,000 2,000 2,000 0% Permits 425,000 425,000 425,000 425,000 425,000 425,000 425,000 1% Contractuals 3,701,630 3,701,630 3,539,283 3,539,283 3,539,283 3,539,283 3,539,283 5% Lease Revenue - - 300,000 300,000 300,000 300,000 300,000 0% Fire Funds ------0% Interest 29,000 29,000 29,000 29,000 29,000 29,000 29,000 0% Fees ------0% Donations ------0% Operating transfer ------0% Other 17,600 17,600 17,600 17,600 17,600 17,600 17,600 0% General Fund Revenue $53,294,226 $64,022,086 $64,154,928 $65,470,189 $65,638,812 $67,036,096 $67,497,091 100% Other Fund Revenue 7,315,440 7,534,903 7,760,951 7,993,779 8,233,592 8,480,599 8,735,018

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Consolidated Expense Projections Expense projections for the consolidated district were estimated by analyzing each line item in parallel with current projection provided by the districts to determine what impact consolidation would have. • Personnel and benefits increase at an annual rate of 3 percent annual. This model utilizes the same assumptions presented under the “Fire Authority” option above. Line positions would come over at the rank of Firefighter 1 with the exception of Wheat Ridge’s Chief, a single Battalion Chief, Fire Marshal, and an Assistant Fire Marshal/Inspector. Because of this increase, this places an additional financial burden on the absorbing agency. As shown in the following figure, the net income will begin to decline in 2018 because the tax rate will not likely keep up with the increases in personnel and benefits. • Materials and services are projected using inflation percentages. Our model assumes a conservative 6 percent annual increase on materials and services. • Capital outlay is based on projections provided by WMFPD and WRFPD. • Other funds increase at a rate of 3 percent annually.

In the merger model, total General Fund expenses could increase by approximately $54 million in 2016F to $64.5 million in 2021F. This includes other funds as well all the assumptions presented above.

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Table 121: Projected Expenses, Consolidated District % of Expenditure Type 2015B 2016F 2017F 2018F 2019F 2020F 2021F 2021F Personnel & Benefits 44,898,940 46,548,543 47,945,000 49,383,350 50,864,850 52,390,796 53,962,519 84% Materials & Services 5,452,268 5,617,047 6,914,857 7,111,741 7,314,040 7,521,902 7,735,480 12% Operating Capital 1,472,105 1,936,776 1,983,940 2,692,558 2,742,354 2,797,787 2,850,362 4% General Fund Expense $51,823,313 $54,102,366 $56,843,796 $59,187,649 $60,921,245 $62,710,484 $64,548,362 100% Other Fund Expense 9,178,498 9,356,432 9,637,125 9,926,238 10,224,025 10,530,746 10,846,668 Net Income (Loss) 1,470,913 9,919,720 7,311,132 6,282,540 4,717,568 4,325,611 2,948,729 Fund Balance, December 31 14,824,049 24,743,769 32,054,901 38,337,441 43,055,008 47,380,620 50,329,348

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Conclusion Based on this merger model, the newly formed District could generate a cumulative positive cash flow for all years. The creation of merged district will operate for the forecast period years under the tax rate of 12.382. However, it will be essential for the absorbing district to monitor assessed value/property tax collections to ensure expenditures don’t exceed revenues post 2021F. Net income appears to decline over the forecast period. Wheat Ridge stated publicly during the mill levy election in 2014 that another mill levy election would need to be held between 2019-2020 in order to complete the proper funding of the district.

Figure 43: Revenues, Expenses, Net Revenues, and Total End Fund Balance $140,000,000 60,000,000

$120,000,000 50,000,000

$100,000,000 40,000,000 $80,000,000 30,000,000 $60,000,000 20,000,000

EndFund Blance $40,000,000

AnnualNet Revenue $20,000,000 10,000,000 $0 - 2015B 2016F 2017F 2018F 2019F 2020F 2021F

General Fund Revenue General Fund Expense Net Income (Loss) Fund Balance, December 31st

Issues & impacts • The assessed valuation of the district will be increased to coincide with expanded boundaries in either merger scenario. • A highly collaborative mindset is needed at the management levels of each agency administration. • Simple majority voter approval in each of the merging districts is required for a merger to be successful in a legal consolidation. • West Metro Fire District has a seven-member board of directors. Wheat Ridge Fire District has a five-member board. In a legal consolidation, the 12 directors would meet and confer after ratification of the merger to determine which seven board members will continue and will set the terms based on their previous election for office. • No net new FTEs are anticipated. • Efficiencies may be realized in administration and support by eliminating duplication or reassigning duplicate resources.

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FINDINGS

Based on the evaluation of current conditions, fiscal analysis, and our experience with other projects of similar character and scope, we draw certain macro level conclusions regarding WMFPD, WRFPD, and the opportunities for collaboration. A summary of those findings follow. Both Agencies are Interdependent The fire districts depend upon each other and other neighbors for mutual aid and automatic aid assistance during emergency incidents. WRFPD has a high demand for its services on a per capita basis. WMFPD has a high demand in its urban areas and, predictably, lower demand but significant wildland risk in its rural area. With its depth of resources, WMFPD can manage much of its own demand internally. WRFPD faces resource depletion much more quickly in larger incidents, relying on WMFPD and other neighbors to either assist or backfill during these events. Both Agencies Currently Collaborate WMFPD provides fleet maintenance, training, and communications services to WRFPD. The agencies provide mutual assistance to each other during emergency incidents; and as a result of training and responding together, incidents flow smoothly and the personnel work well together. The familiarity reduces much of the angst that comes with consolidation at the line and administrative levels because each party is a “known commodity.” Important Distinctions Exist Between the Agencies WMFPD provides advanced life support (ALS) first response and emergency medical transport services. WRFPD provides basic life support (BLS) first response service, relying upon the local private ambulance company to provide emergency medical transport services. If the two agencies consolidate, WMFPD can extend its ALS services to the WRFPD service area, providing its citizens with high quality, seamlessly integrated emergency medical services. Revenue from this service is also expected to offset the expense of providing the service. The expanded service enhances both agencies’ service capabilities to their constituents. Opportunities for Increased Efficiency Exists The districts each have a fire station about a mile apart from each other (WRFPD Station 73 and WMFPD Station 1), which represents inefficient overlap of service. Station 73 is in poor condition and is to be returned to the City of Edgewater in the near term by agreement. Station 1 is an aging facility that could benefit from relocation and modification. An optimum location for response for both Station 73 and Station 1 is in the area of 20th Avenue and Reed Drive, coincidentally a point of convergence for WMFPD, WRFPD, and the City of Edgewater. WMFPD Station 1 could serve Station 73’s area from its current site, but would be improved by relocating as identified in this report. Each Agency Needs Infrastructure Improvements Although the need and the scale vary, important gaps were identified in each organization. In WMFPD, many stations have been recently remodeled but not all are seismically retrofitted to current standards. In WRFPD, two of the three fire stations are not well laid out to provide for prompt turnout times and one station is not well suited for its intended purpose but is slated to return to the City of Edgewater.

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Cultural Differences Exist Organizational culture is one of the most important factors impacting the success or failure of a cooperative effort. It is also, without question, the most difficult aspect to evaluate and it is challenging to predict the effect that differing internal cultures will have on the collaborative strategies. However, the existing collaboration between the agencies minimizes those differences significantly. This increases the likelihood that the agencies will experience only minor cultural differences. Room Exists for all Personnel Most consolidations are motivated by an effort to capture efficiencies, expand service, and/or avoid cost. Sometimes those cost avoidance measures include personnel reductions. In this case, however, depending on how implementation occurs and the model is developed; there is room for all personnel to be retained in some capacity within the combined agency. This does not commonly occur, but the circumstances in this instance create this potential. A process of consolidation that does not create “victims” through job loss and maintains efficiency with expanded services is the best possible outcome. Combining WMFPD and WRFPD is Highly Feasible All four major strategies contained in this report are feasible. Implementation of Strategy A–Status Quo passes on the opportunity to gain efficiencies, reduce the size of government, and increase services in some areas. Implementation of Strategy B–Contract for Services simply expands on what is already being done between the agencies, but on a potentially larger scale. Implementation of Strategy C–Fire Authority expands upon a contract for service by creating a new entity to administer the operations of the authority, while the existing boards continue to approve budgets, certify mill levies, and select the representing board members on the Authority Board. Implementation of Strategy D–Merger actually combines the two agencies into one agency. This strategy is at the pinnacle of the partnership scale.

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RECOMMENDATIONS

While each of the strategies contained in this report are feasible to implement, some of the strategies have shortcomings. Strategy A—Status Quo essentially changes nothing and ignores the efficiencies identified in this report. While there are many minor recommendations contained within the Current Conditions section of the report that would warrant consideration by each district separately, the study effort will have been largely wasted.

Strategy B—Contract for Service expands upon existing cooperation between the agencies and takes them to another level. While a contract for services would undoubtedly work between the agencies, it retains duplicated governance, does not truly integrate services, and is therefore not a permanent solution. It likely results in the retention of two fire chiefs, building in inefficient redundancy, and resulting in dynamic tension between the agencies to the extent that the two fire chiefs are pulled in different directions by their boards.

Strategy C—Fire Authority can overcome some of the obstacles of contracting for service by forming a new entity to manage the operations of the combined agencies. This process can unify the personnel and prevent the dynamic tension of having two fire chiefs. However, it retains the existing boards and adds a third governing body to manage the agency on behalf of the two separate agencies. While this step can be valuable for organizations which have not progressed in their relationship or are early in their organizational maturity. That is not the case here. WMFPD and WRFPD have high organizational maturity and a close working relationship. It is ESCI’s opinion that the two parties are ready for a more significant step toward permanently capturing the efficiencies that can be gained in consolidation.

ESCI therefore recommends that Wheat Ridge and West Metro implement Strategy D—Merger. This recommendation is based on the fact that the study has identified advantages of doing so and, conversely, has not revealed any major pitfalls to consolidation. The two agencies have cooperated successfully on many functional areas, such as communications, training, and fleet maintenance. Many of the advantages described in this report occur because of the economies of scale associated with planning and implementing a response system over a large area. The report predicts additional resources will be available to respond quickly to serious emergencies and that dispatching emergency medical responses directly with ambulances and fire apparatus that are in close proximity may well improve the provision of advanced life support services to WRFPD citizens. Additionally, there is cost avoidance that can be realized by combining the relocation of WRFPD Station 73 and the replacement of WMFPD Station 1.

Specifically, ESCI recommends that the method for the merger be Exclusion/Inclusion. Performing a full inclusion of the WRFPD into the WMFPD will result in several advantages. It simplifies governance and administration to one board and one management team. It requires only one budget rather than three and only one audit rather than three (or one audit that reflects three separate organizations) such as would be required in a fire authority model. There is a need for only one set of standard operating guidelines, one set of policies, one response system, one bargaining agreement, one infrastructure for technology, support services, and the numerous systems and process that are necessarily duplicated in two separate agencies, regardless of the level of collaboration.

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models for consolidation, contracting or authority, require more complicated formulas for maintaining financial equity which must be constantly reviewed and renegotiated over perceived changes in conditions. Moreover, there is no need for the board of county commissioners to participate in the decisions as would be required for a legal consolidation of districts.

Additionally, elections are costly and there is the opportunity for voters to pass the idea of merger of the two districts but not vote to increase taxes to the higher level even if only a marginal change. In that case, the process is virtually stopped and forces the formation of a fire authority or some other model of consolidation.

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IMPLEMENTATION

Many studies and reports have been published and presented to clients over the years by ESCI. Many times, clients are overwhelmed with information and options. It takes time to digest the report and decide what to do next. ESCI finds it helpful to offer a process whereby the clients can break the process down into smaller segments. Those smaller pieces allow policy-makers, fire chiefs, and communities to examine details and have discussions about what is possible. The following is offered as a framework to consider in the initial stages of evaluation. It is a strategic planning approach to partnerships.

Both Wheat Ridge and West Metro are veterans of collaboration, and each has previously experienced the process of combining organizations. Those experiences will add tremendous value to the process of considering the options available here. While the implementation process described here has been successfully used by many agencies through the United States, few of those agencies have had the level of previous experience combining organizations that West Metro, and to a lesser extent, Wheat Ridge have. ESCI recommends the following implementation process be considered as the agencies move forward. However, the agencies’ own experiences should also be factored into the process. The thrust of the implementation process is open, honest and frequent communication, with laser sharp focus on what is in the best interests of the citizens served.

The following flowchart outlines a process whereby the strategies contained in this report can be further refined, other critical issues identified, timelines assigned, and specific tasks developed and implemented. The process flowchart starts with the policymakers convening a series of meetings to discuss and develop a shared vision of both agencies. Key external stakeholders are often invited into the process to lend their expertise and perspective, ensuring that the community at large is represented in these important deliberations. Often, internal stakeholders have difficulty with “possibilities thinking” because of their close association with the status quo, which is human nature. The external stakeholders add valuable perspective by asking key questions and challenging the status quo.

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Figure 44: Process for Evaluating & Implementing Partnering Strategies

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Establish Implementation Working Groups As the flowchart indicates, various Implementation Working Groups should be established that will be charged with the responsibility of performing the necessary detailed work involved in analyzing and weighing critical issues and identifying specific tasks. Membership for these Implementation Working Groups should be identified as part of that process as well.

The number and titles of the working groups will vary depending on the type and complexity of the strategies begin pursued. The following list provides some key recommended working groups used in many collaboration processes and a description of some of their primary assigned functions and responsibilities. Joint Implementation Committee (Task Force) This committee is typically made up of the fire chiefs or chief executives of each of the participating agencies but may also include outside stakeholders such as business and community interests. The responsibilities of this group are to:

• Develop goals and objectives which flow from the joint vision statement approved by the policymakers’ vision sessions. • Include recommendations contained in this report where appropriate. • Establish the work groups and commission their work. • Identify anticipated critical issues the work groups may face and develop contingencies to address these. • Establish timelines to keep the work groups and the processes on task. • Receive regular updates from the work group chairs. • Provide regular status reports to the policymakers as a committee.

Governance Working Group This group will be assigned to examine and evaluate various governance options for any cooperative service effort. A recommendation and the proposed process steps will be provided back to the Joint Implementation Committee and the Policy-Maker Group. Once approved, this working group is typically assigned the task of shepherding the governance issue through to completion. The membership of this group typically involves one or more elected officials and senior management from each participating agency. Equality of representation is a key premise. Finance Working Group This group will be assigned to review the financial projections contained in the feasibility study and complete any refinements or updating necessary. The group will look at all possible funding mechanisms and will work in partnership with the Governance Working Group to determine impact on local revenue sources and options. Where revenue is to be determined by formula rather than a mill rate, such as in a contractual cooperative venture, this group will evaluate various formula components and model the outcomes, resulting in recommendations for a final funding methodology and cost distribution formula. The

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membership of this group typically involves senior financial managers and staff analysts, and may also include representatives from the agencies’ administrative staffs. Administration Working Group Working in partnership with the Governance Working Group, this group will study all of the administrative and legal aspects of the selected strategies they are assigned and will identify steps to ensure the process meets all administrative best practices and the law. Where necessary, this group will oversee the preparation and presentation of policy actions such as joint resolutions, dissolutions, and needed legislation to the policymakers. The membership of this group typically involves senior management staff from the entities involved and may also include legal counsel. Operations Working Group This group will be responsible for an extensive amount of work and may need to establish multiple sub- groups to accommodate its workload. The group will work out all of the details necessary to make operational changes required by the strategy considered. This involves detailed analysis of assets, processes, procedures, service delivery methods, deployment, and operational staffing. Detailed integration plans, steps, and timelines will be developed. The group will coordinate closely with the Logistics/Support Services Working Group. The membership of this group typically involves senior management, mid-level officers, training staff, volunteer leadership, and labor representatives. This list often expands with the complexity of the services being provided by the agencies. Logistics/Support Services Working Group This group will be responsible for any required blending of capital assets, disposition of surplus, upgrades necessary to accommodate operational changes, and the preparation for ongoing administration and logistics of the cooperative effort. The membership of this group typically involves mid-level agency management, administrative, and support staffs. Where involved, support functions such as fleet maintenance should also be represented. Volunteer Working Group This group will be responsible for developing proposals and practices of the volunteers into the integrated agency. This often includes review of existing volunteer response patterns, training activities, recognition activities, recruitment and retention programs, rank structure, authority, roles, and responsibilities. This group typically is made up of volunteer leadership and may also include senior management staff. This is a small but important group, and to the extent their role changes, it is critical that they be engaged in the change making process. Labor Working Group This group will have the responsibility, where appropriate, for blending the workforces involved. This often includes the analysis of differences between collective bargaining agreements, shifts schedules, policies, and working conditions. The process also includes work toward developing a consensus between the bargaining units on any unified agreement that would be proposed. Often, once the future vision is articulated by the policy-makers, labor representatives are willing to step up and work together as a team to identify challenges presented by differing labor agreements and offer potential consensus solutions. The

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membership of this group typically involves labor representatives from each bargaining unit, senior management and, as needed, legal counsel. This does not supplant any obligation to bargain. Communication Working Group This group will be charged with developing an internal and external communication policy and procedure to ensure consistent, reliable, and timely distribution of information related exclusively to the cooperative effort. The group will develop public information releases to the media and will select one or more spokespersons to represent the communities in their communication with the public on this particular process. The importance of speaking with a common voice and theme both internally and externally cannot be overemphasized. Fear of change can be a strong force in motivating a group of people to oppose that which they do not clearly understand. A well informed workforce and public will reduce conflict. The membership of the group typically involves public information officers and senior management. Meet, Identify, Challenge, Refine, and Overcome Once the working groups are established, they will set their meeting schedules and begin working on their various responsibilities and assignments. It will be important to maintain organized communication up and down the chain of command. The working group chairs should also report regularly to the Joint Implementation Committee. When new challenges, issues, impediments, or opportunities are identified by the working groups, this needs to be communicated to the Joint Implementation Committee right away so that the information can be coordinated with findings and processes of the other working groups. Where necessary, the Joint Implementation Committee and a working group chairperson can meet with the policy- makers to discuss significant issues that may require a refinement of the original joint vision.

The process is continual as the objectives of the plan are accomplished one by one. When sufficient objectives have been met, the Joint Implementation Committee can declare various goals as having been fully met, subject to implementation approval by the policy bodies. This formal “flipping of the switch” will mark the point at which implementation ends and integration of the agencies, to whatever extent has been recommended, begins.

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APPENDICES

List of Figures Figure 1: West Metro FPD Organization Chart ...... 12 Figure 2: Wheat Ridge FPD Organization Chart ...... 13 Figure 3: Study Area Historical Service Demand (2012–2014) ...... 39 Figure 4: Study Area Service Demand by Incident Category (2012–2014) ...... 41 Figure 5: Study Area Service Demand by Month (2014) ...... 42 Figure 6: Study Area Service Demand by Day of the Week (2014) ...... 42 Figure 7: Study Area Service Demand by Hour of the Day (2014) ...... 43 Figure 8: Study Area Incident Density (2014) ...... 44 Figure 9: Study Area Fire Incidents (2014)...... 46 Figure 10: WMFPD and WRFPD Study Area ...... 48 Figure 11: Study Area Population Density (2010 US Census Bureau Data) ...... 49 Figure 12: Population Density and Planning Areas – WMFPD SOC ...... 51 Figure 13: Study Area Station Response Zones ...... 52 Figure 14: Study Area Engine Company Distribution (ISO Criteria) ...... 54 Figure 15: Study Area Ladder Company Distribution (ISO Criteria) ...... 56 Figure 16: Study Area Travel Time Model, Four and Eight Minutes Travel Time ...... 58 Figure 17: Study Area Emergency Service Demand & Travel Time (2014) ...... 60 Figure 18: Study Area – Full First Alarm, Eight Minutes Travel Time ...... 62 Figure 19: Study Area – Effective Response Force, Eight Minutes Travel Time...... 64 Figure 20: WMFPD Emergency Response Frequency (2014) ...... 69 Figure 21: WRFPD Emergency Response Frequency (2014) ...... 70 Figure 22: Study Area Mutual Aid Resources, Eight Minutes Travel ...... 76 Figure 23: WRFPD & WMFPD—Annual EMS Incidents Dispatched ...... 81 Figure 24: EMS Demand by Fire Station (calls dispatched for 2013–2014) ...... 82 Figure 25: EMS Demand by Hour-of-the-Day (2010–2014) ...... 83 Figure 26: Medic Unit Eight-Minute Travel Times from Stations ...... 85 Figure 27: West Metro Medic Unit Planning Zones (Service Areas) ...... 97 Figure 28: Medic Units—Most Common Non-EMS Calls Dispatched (2013–2014) ...... 100 Figure 29: Travel Distances of Additional Medic Units in the WRFPD (4.5 and Eight Minutes) ...... 107 Figure 30: Excerpt Results from the WMFPD 2015 Training Survey ...... 152 Figure 31: WMFPD Life Safety Division Organization Chart ...... 154 Figure 32: Wheat Ridge & West Metro Plan Review & Inspection Activity (2014)...... 159 Figure 33: WMCC Distribution by Jurisdiction of Incidents Dispatched (2013–2014) ...... 170 Figure 34: Unemployment and Population Trends (2003-2013) ...... 189 Figure 35: Jefferson County (CO) Housing Market (2010-2014) ...... 190 Figure 36: Douglas County (CO) Housing Market (2010-2014) ...... 190 Figure 37: Property Value and New Construction (2003-2013) ...... 191 Figure 38: Denver-Boulder-Greeley (CMSA) CPI –U (2004-2014) ...... 192 Figure 39: WMFPD General Fund Balance Trend ...... 196 Figure 40: WRFPD General Fund Balance Trend...... 199 Figure 41: WMFPD General Fund Balance Forecast ...... 203

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Figure 42: WRFPD Fund Balance Forecast ...... 206 Figure 43: Revenues, Expenses, Net Revenues, and Total End Fund Balance ...... 236 Figure 44: Process for Evaluating & Implementing Partnering Strategies ...... 242

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List of Tables Table 1: Stakeholder SWOC ...... 5 Table 2: Responsibilities & Authority ...... 7 Table 3: Success Attributes ...... 8 Table 4: Organizational Structure ...... 10 Table 5: Agency Description & Service Demand ...... 14 Table 6: Strategic Planning ...... 18 Table 7: Regulatory Documents & Communication ...... 19 Table 8: Critical Issues ...... 20 Table 9: Documents, Records, & Security ...... 22 Table 10: Personnel Policies, Systems, & Processes ...... 25 Table 11: Disciplinary Process ...... 26 Table 12: Applications & Testing ...... 27 Table 13: Compensation ...... 29 Table 14: Employee Benefits ...... 31 Table 15: Employee Health ...... 32 Table 16: Personnel Assignments ...... 33 Table 17: NFIRS Classification & Incident Category ...... 40 Table 18: Study Area Service Demand by Incident Category (2012–2014) ...... 41 Table 19: WMFPD Unit Hour Utilization (2014) ...... 65 Table 20: WRFPD Unit Hour Utilization (2014) ...... 66 Table 21: Study Area Concurrent Incidents (2014) ...... 67 Table 22: WMFPD Concurrent Incidents (2014) ...... 67 Table 23: WRFPD Concurrent Incidents (2014) ...... 67 Table 24: NFPA 1710 Standard ...... 70 Table 25: Current WMFPD Performance Goals (2015 SOC) ...... 71 Table 26: WMFPD and WRFPD Components of Total Response Time (2014) ...... 71 Table 27: WMFPD Response Performance by Planning Area ...... 73 Table 28: WRFPD Response Performance by Station Area (2014) ...... 73 Table 29: WMFPD Response Performance by Incident Category (2014) ...... 74 Table 30: WRFPD Response Performance by Incident Category (2014) ...... 74 Table 31: Study Area Mutual & Automatic Aid (2014) ...... 77 Table 32: Emergency Medical Services Demand ...... 80 Table 33: Training & Continuing Medical Education ...... 86 Table 34: Medical Direction ...... 88 Table 35: EMS Continuous Quality Improvement ...... 91 Table 36: EMS Administration ...... 92 Table 37: Medical Equipment & Supplies ...... 94 Table 38: Emergency Medical Transport ...... 96 Table 39: Medic Units EMS Call-Volumes by Year ...... 98 Table 40: Medic Units Non-EMS/Non-Emergent Dispatches (2013–2014) ...... 99 Table 41: Medic Unit Transports (2013–2014) ...... 101 Table 42: West Metro Medic Unit UHU Rates ...... 102 Table 43: Potential Impacts on EMS with Expansion into the WRFPD Service Area ...... 105

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Table 44: Capital Assets ...... 111 Table 45: West Metro FPD Replacement Schedule ...... 111 Table 46: West Metro Administration/Communication ...... 114 Table 47: West Metro Station 1 ...... 115 Table 48: West Metro Station 2 ...... 116 Table 49: West Metro Station 3 ...... 117 Table 50: West Metro Station 4 ...... 118 Table 51: West Metro Station 5 ...... 119 Table 52: West Metro Station 6 ...... 120 Table 53: West Metro Station 7 ...... 121 Table 54: West Metro Station 8 ...... 122 Table 55: West Metro Station 9 ...... 123 Table 56: West Metro Station 10 ...... 124 Table 57: West Metro Station 11 ...... 125 Table 58: West Metro Station 12 ...... 126 Table 59: West Metro Station 13 ...... 127 Table 60: West Metro Station 14 ...... 128 Table 61: West Metro Station 15 ...... 129 Table 62: West Metro Fleet Maintenance Facility ...... 130 Table 63: West Metro Training Center ...... 131 Table 64: Wheat Ridge Station 71 ...... 132 Table 65: Wheat Ridge Station 72 ...... 133 Table 66: Wheat Ridge Station 73 ...... 134 Table 67: West Metro FPD Apparatus Inventory ...... 136 Table 68: Wheat Ridge FPD Apparatus Inventory ...... 138 Table 69: Training Administration ...... 140 Table 70: Administrative Priorities & Budget ...... 143 Table 71: Recordkeeping ...... 144 Table 72: Training Facilities & Resources ...... 145 Table 73: General Training Competency ...... 147 Table 74: Training Operations ...... 149 Table 75: Training Methodologies ...... 150 Table 76: Ordinances & Fire Codes ...... 157 Table 77: Code Enforcement & Inspections ...... 158 Table 78: New Construction & Plan Reviews ...... 159 Table 79: Fire Investigation ...... 160 Table 80: Fire Safety & Public Education ...... 162 Table 81: West Metro Public Education Activities ...... 163 Table 82: Community Risk Assessment & Reduction ...... 164 Table 83: Statistical Data Collection & Analysis ...... 166 Table 84: Communications Center ...... 169 Table 85: Communications Center Operations & Performance ...... 171 Table 86: Communications Facility & Equipment ...... 174 Table 87: Communications Center Quality Assurance & Training ...... 175 Table 88: Fleet Services ...... 178

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Table 89: West Metro Apparatus Usage Schedule ...... 180 Table 90: Technology Comparison by Agency ...... 182 Table 91: Integrated IT Estimated Costs ...... 183 Table 92: Current Operating Conditions ...... 185 Table 93: Local Demographics (2003-2013) ...... 189 Table 94: Property Tax Levies and Collections - WMFPD (2010-2016) ...... 191 Table 95: Property Tax Levies and Collections – WRFPD (2010-2016) ...... 192 Table 96: WMFPD Financial Trend (2010-2015) ...... 195 Table 97: WMFPD Historical Expenditure Trend (2010-2015)...... 195 Table 98: WMFPD General Fund Revenue, Expenditure, and Historical Net Revenue/Deficit Trend ...... 196 Table 99: WRFPD Historical Revenue Trend ...... 198 Table 100: WRFPD Historical Expenditure Trend ...... 198 Table 101: WRFPD Revenue, Expenditure and Historical Net Revenue/Deficit Trend ...... 199 Table 102: WMFPD Revenue Forecast by Revenue Type ...... 202 Table 103: WMFPD Expenditure Forecast by Expenditure Type ...... 202 Table 104: WMFPD Revenue, Expenditure and Historical Net Revenue/Deficit Forecast ...... 203 Table 105: WRFPD Revenue Forecast by Revenue Type ...... 205 Table 106: WRFPD Expenditure Forecast by Expenditure Type ...... 205 Table 107: WRFPD Revenue, Expenditure and Historical Net Revenue/Deficit Forecast...... 206 Table 108: Cost Allocation by Service Area (2015) ...... 217 Table 109: Cost Allocation by Assessed Value (2015) ...... 217 Table 110: Cost Allocation by Resource Deployment (2015) ...... 218 Table 111: Cost Allocation by Service Demand (2014) ...... 219 Table 112: Cost Allocation by Population (2015) ...... 220 Table 113: Summary of Cost Allocation Factors by Percentage (2015) ...... 222 Table 114: 50% Assessed Value and 50% Service Demand (2014-15) ...... 222 Table 115: 50% Service Demand, 25% Resources, 25% Assessed Value (2015) ...... 223 Table 116: All Variables at Equal Weights of 20% Each (2015) ...... 223 Table 117: Wheat Ridge Personnel Headcount and Cost Impacts ...... 226 Table 118: Merger Actions--Legal Consolidation vs. Exclusion/Inclusion ...... 227 Table 119: Assessed Valuation Projections, Consolidated District ...... 231 Table 120: Projected Revenues, Consolidated District ...... 233 Table 121: Projected Expenses, Consolidated District...... 235

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