Pinellas Assembly Fire/EMS Task Force Meeting minutes July 14, 2003, 3 pm Largo Training Center

Transcription

1 Pinellas Assembly Fire/EMS Task Force Meeting minutes July 14, 2003, 3 pm Largo Training Center Present: Staff: Joe Calio, Sally Foote, Ed Hooper, Sally Israel, Kathleen Litton, Tim Schuler, (Jerry Knight absent) Jim Callahan, Gay Lancaster Others: Fire Chiefs Jim Angle, Kevin Bowman, Brian Brooks, Charlie Fant, Dan Graves, John Leahy, Scott McGuff, William Naylor, Jeffrey Parks, Jay Stout, Caroll Williams, Steve McCarthy (Commander hazmat team), Kevin Bronson, Cindy Goodson(LA), Chuck Kearns, Dwaine Booth, Mike Cooksey, Craig Hare (PC), Bob Siler and Steve Murphy (American Medical Response ), Tim Baker, Alfred Brooms, Dave Daiker, Rick Koda (PC Council of Firefighters), John Frank (LE Board of Fire Commissioners) The committee adopted the minutes of the 6/30 meeting with one amendment (added one individual to the attendance list). An amended benchmark survey was distributed to the members. The survey previously distributed on June 16 had incorrect population data. On the agenda today, the fire chiefs' perspective. Introductions were given of those in attendance. The agenda include a brief history/overview, a discussion of fire chiefs' consensus items and then answer any specific questions of the committee. Historical Overview Safety Harbor Fire Chief Jay Stout gave a brief overview of the history of the fire/ems service. Chief Stout has 34 years experience in the fire service in Pinellas County, 32 years with Safety Harbor Fire Department and 2 years with the Florida Forestry Service. Prior to 1973, there was little-to-no fire protection in unincorporated Pinellas County. What was available was provided primarily through volunteer firefighters. Florida Forestry was available for wildfire protection. At the time, there were no mutual or automatic aid agreements, city firefighters were not authorized to cross boundaries. There was a mutual aid agreement with the forestry service. Once on scene, Forestry could request assistance in unincorporated areas. At that time, there were also deficiencies in water supply. A fire in unincorporated county (Greenbriar condominiums, Clearwater), resulted in the creation of fire districts to serve unincorporated county areas. The citizens of the unincorporated areas passed a referendum to tax themselves for fire protection services. This tax is based upon the taxable value of the county area served compared to the city area served. Those in the unincorporated areas are unable to utilize any other types of revenue to fund fire protection costs. Cities, on the other hand, have many alternative revenue sources to draw upon in addition to property taxes. Several agencies utilize fire impact fees for development and redevelopment to reduce the financial burden of infrastructure improvements. In the 1970s and 1980s, reciprocal mutual aid agreements were executed among the fire departments. The agreements were based upon each agency's ability to reciprocate resources of engines, ladder trucks, etc. If you requested specialty apparatus and

2 were unable to reciprocate, additional usage fees could be charged. In some cases, agreements required city manager or mayor approval prior to fire apparatus being authorized to cross borders, causing additional response time delays. In the 1970s, many local jurisdictions had sprinkler ordinances. Legislative action resulted in the deletion of local sprinkler ordinances. The Pinellas County Construction and Licensing Board (PCCLB) regulated and interpreted fire codes countywide. Years later, the fire code addressed the need for fire sprinklers, which was reduced in scope this prior legislative session for condominium complexes greater than 75 feet. In the early 1980s, there were varying levels of EMS in the county, from none to paramedic-level medical response. Because of these differing levels of service, a referendum was held to establish the same level of EMS service countywide. This action created a countywide EMS authority, including the ability to assess a property tax millage for consistent EMS care countywide. The then-ems Council assisted in the development of the system. At that time, many fire department's provided emergency medical transport. Other medical transport services were provided through private companies, primarily affiliated with funeral homes. In 1983, there were issues with increased costs of the system (line-item budgets) and the corresponding increase in the EMS millage. A consultant (Touche Ross and Co.) reviewed the EMS system and recommended system improvements and standardization of the quality of medical care provided throughout the county. As a component, it was recommended the fire departments retain a line-item budget only if they would provide medical transportation as well as first-responder services. No agreement was reached between the providers and the county. A second consultant was retained (the Fourth Party, Inc.) that proposed the county should implement a Public Utility Model that provides for a separate transport contractor and would cap costs for fire department first responders (termed excess compensation) for the term of the 10-year agreement. St. Petersburg received reimbursement for actual costs rather than marginal costs as a result of litigation. Fire department transport was prohibited except under extreme circumstances. Over the term of the contract, costs were diverted from the EMS to the fire side because of the EMS compensation cap. The transition to a centralized emergency communications center was a positive, costsaving improvement. Prior to implementation, each agency provided for their own alarm processing. The centralized center operates at a high level and provides consistency in dispatch countywide. In 1990, the county and all the cities and special fire districts executed a countywide automatic aid agreement that would provide for the automatic response of the closest, most appropriate unit to an emergency without regard to jurisdiction, significantly reducing response times. This is compared to mutual aid which typically is not initiated until the first arriving unit is on scene and requests additional assistance. This was a tremendous improvement to the system and the agreement serves as a model for agencies both within the state and the nation. In 1992, the county retained a consultant (MGT of America, Inc & Parish/LaRue) to conduct a Government Services Improvement Study in anticipation of charter review. This study recommended the elimination of several fire stations as a cost saving measure. This study was negatively received by the fire service and the cities objected

3 to the report. Because of the great number of personnel resources needed to mitigate fire emergencies, it is not unusual to empty several stations to provide a sufficient number of firefighters to mitigate a structure fire. The chiefs indicated the closure of fire stations would reduce fire protection capabilities. In 1997, the new EMS First-Responder agreements were executed. The agreement is a flat-fee contract with an annual escalator clause based upon the municipal price index. In FY 2003, funds are included from Penny for Pinellas for the construction of a centralized fire training facility. This will be a state of the art facility that will provide live fire training capabilities for personnel. In May 2002, the American Assembly was convened. At this summit, the fire/ems service was identified as an issue suitable for task force review, to include consideration of consolidation or regionalization. The chiefs' perspective is it appears fire/ems was targeted because of isolated financial issues or complaints of certain communities (Lealman, High Point, South Pasadena). These economic issues are acknowledged because of the high cost to the unincorporated property owners and their inability to utilize any other revenue source than ad valorem taxation. From an operational perspective, fire and EMS services are functionally consolidated and provide an excellent service to the Pinellas County community. The fire departments utilize a countywide dispatch system, closest unit response, standard operating guidelines, integrated incident command system, cooperative purchasing, and interagency training. It was questioned whether there is any way to smooth out the costs for fire and EMS to provide for a more equitable distribution across the county? It was noted that everyone pays the same for EMS services (0.66 mills), but fire tax rates vary from to mills in the unincorporated areas of the county. In some cases, the fire millage is higher than citywide millages. Chief Stout indicated municipalities have alternative revenue sources to reduce reliance on ad valorem taxes. If the county could establish an alternative revenue source, it could potentially reduce the property tax burden of the unincorporated residents. There was discussion about the adverse impact if the millage was distributed evenly across the county. It would result in some residents paying significantly more so that others could pay less. While it could be considered more equitable because everyone would pay the same, it could also be considered a subsidy. It was asked whether the fire chiefs oppose a countywide tax. The chiefs indicated they understood the benefits of everyone paying the same for fire protection. Smaller fire departments are unable to provide the numbers of personnel and equipment necessary to mitigate fire emergencies without drawing upon other communities who may pay more for fire protection. Automatic aid makes resource utilization countywide more efficient and affords all residents equal coverage. It also allows some areas to tap into other agencies' resources so it is not necessary to staff-up to the maximum resources needed to operate a stand alone fire department resulting in cost savings. It was stated it was not within the fire chiefs' authority to support or oppose a countywide fire tax, that it is more of a political decision. It is the county's decision on how the unincorporated revenues are generated. It was stated the county does not have authority to utilize the various types of franchise fees afforded to cities. The County Commission previously considered an electricity surcharge, but it was not approved. The county does have some alternative revenue sources, however they are typically designated for specific purposes, i.e., highway and gas taxes are for used for road improvements, the local

4 option sales tax (Penny for Pinellas) is limited to infrastructure improvements. Nearly all of the county's general fund is ad valorem. It was clarified that the unincorporated fire districts are charged based upon actual fire costs by district, EMS is charged countywide and ambulance transport is self-supporting through user fee charges. There was discussion on the fee assessment for fire rather than utilizing ad valorem. The Pinellas Suncoast Independent Fire District currently is the only agency utilizing this method. Everyone within the PSFD district pays, including those that are tax exempt. Residential property is charged a flat fee regardless of property valuation ($120 annually). Commercial properties are assessed a varying rate based upon square footage. The chiefs indicated it appeared nothing was broken, except for economic issues related to four specific areas (Lealman, High Point, Belleair/Belleair Bluffs and South Pasadena). It would be more desirable to address the specific problems rather than lump the entire system into the mix. It was acknowledged that some areas are in turmoil because of financial considerations. One fire chief stated there are different needs, costs, and fire loads by jurisdiction. To ask one city to offset the costs of another could be considered unfair. Another chief indicated some funding issues are directly related to annexation. Annexation results in lost revenues to the independent special fire districts (Lealman and East Lake) while still responsible to respond to the annexed areas as the closest apparatus. It was also noted Kenneth City pays a significantly lower rate to Lealman for the provision of fire protection services. It was acknowledged the Lealman community was likely the focal point that brought forward the fire/ems funding and consolidation discussion. One chief indicated the system is not broken now because it is functionally consolidated, but it may operate better in the future if consolidated. At the recent Lealman condominium fire, there were numerous jurisdictions working together to mitigate the emergency. It seems reasonable to spread the costs out because all communities have the same equipment, training and resources available. Another chief made the comment in the High Point area, that there are large consumers of resources that do not contribute to the EMS and fire protection costs, i.e., the airport, jail, and a soon-to-be constructed high school. Because these facilities are tax exempt, the remaining property owners have a higher tax burden. In the South Pasadena area, it was stated the South Pasadena Fire Department has a contract to provide a service and those residents are assessed in accordance with the funding formula. It was stated that the biggest problem in this unincorporated area is the lack of infrastructure which is a disincentive to annexation. It was noted the costs for fire protection in the unincorporated South Pasadena Fire District are significantly higher (3.105 mills) compared to the South Pasadena citywide millage (1.560). In addition, this area is in Gulfport's exclusive planning zone. It was restated that unincorporated property owners can only be assessed ad valorem taxes, while cities are able to utilize other revenue sources in addition to ad valorem to offset their portion of fire costs. It was stated the county's concern is the various unincorporated fire millages (from in Tierra Verde to in High Point). It's difficult for the County Commission to explain to citizens why the broad variation of rates occurs when each individual receives essentially the same service. The county is not critical of the system, but there are concerns with the rates of those affected in the unincorporated areas. The county has questioned whether there is a method to equalize rates without winners and losers. It was acknowledged there are territorial issues, but that no matter what happens throughout the process, the firefighters will still do their job whether the system stays status quo, regionalizes or consolidates.

5 There was discussion related to medical transport. The county stated that in the process of developing the request for proposal for transport services a few years ago, the cities discovered the transport contract was not as rich as previously perceived because of reductions of Medicare/Medicaid reimbursements. One chief countered that some fire departments are interested in emergency transport as an appropriate extension of the mission to provide quality services to the community. Several cities worked collectively on the topic prior to the transport RFP, and one city (Largo) actually bid on transport in conjunction with a private provider. The taskforce is charged to evaluate the equity of service delivery and the method in which it is financially supported. Why are there two separate structures and charges for the same people for fire and EMS services? Approximately 80 percent of the fire departments' responses are medical related yet EMS funding is approximately 27 percent of the total budget. FY 2002 Budget 1 : Amount Percentage County EMS Funding $ 30,329, County Fire Funding 13,929, City/District Funding 67,692, Total $111,951,496 Pinellas County is a small community of neighborhoods. Some will defend their right to be a small town, however, there are common elements of training, expectations of service and qualifications. The committee is charged to answer the questions of what makes sense outside of political considerations. Does consolidation make sense? Does regionalization make sense? It was stated that regionalization as a concept may make more sense so that nearby cities could agree among themselves, which may result in a more successful outcome. Fire chief consensus topics: Insurance Service Office (ISO) Rating: Currently, ISO ratings range from 2 to 5 in Pinellas County. ISO is an independent rating agency utilizing a scale from 1 to 10, with 1 being the best rating possible. The ISO ratings are as follows 2 : ISO Class 2 ISO Class 3 St. Petersburg Clearwater, Dunedin, Largo, Pinellas Park, Pinellas Suncoast, Seminole. ISO Class 4 Belleair/Belleair Bluffs, Gulfport, Lealman, Madeira Beach, Palm Harbor, Safety Harbor, Redington Beach, South Pasadena, Tarpon Springs, Treasure Island 1 Note, information obtained from the 5/19/03 fire/ems delivery presentation as amended (totals were recalculated after addition of Pinellas Administration and airport moved to county-fire funding from city funding). 2As of March 2002.

6 ISO Class 5 East Lake, Oldsmar The fire chiefs collectively agree a goal should be to seek an ISO Class 3 rating countywide. ISO ratings are based upon a scoring system of 10% communications system, 40% water supply and 50% fire protection resources. Maximum credit (10%) is awarded for the county's centralized communications center. Establishing a Class 3 rating countywide would require addressing water supply issues, i.e., water main sizes and hydrant placement, and may require additional fire resources. In 1990, ISO conducted a countywide assessment in consideration of a countywide ISO rating. The results of the 1990 survey reflected a potential ISO 4 rating: Assigned Maximum Communications center 9.04% 10.00% Fire Department 31.48% 50.00% Water Supply 31.10% 40.00% *Divergence (2.96%) Total 68.66% Class % This 1990 survey reflected the county was very close to receiving a countywide Class 3 rating and that it is an achievable goal. It would require significant work of the involved parties to complete the training documentation and other reporting requirements of the Insurance Services Office. A countywide Class 3 rating could result in substantial savings for commercial property owners' insurance. It would not have any affect on residential insurance rates. It would take a significant additional financial investment to achieve an ISO Class 1 or 2 rating. The committee members agreed that seeking a countywide Class 3 rating should be considered for inclusion in the committee's report of recommendations. Medical Transport: The chiefs agree emergency transport by fire departments would improve the level of service to the community through the use of cross-trained firefighter/paramedics. Training Facilities: Currently, St. Petersburg and Clearwater have their own dedicated training facilities. It is very important to complete the centralized training facility, and recommend two additional regional training facilities for north and south county to reduce travel distance. Currently, continuing medical education (CMEs) requires three hours each month, 10 out of 12 months of medical director approved curiculum. This education is provided through St. Petersburg College. Approximately 100 classes are offered throughout the county each month to ensure all paramedics and EMTs complete required CME training. The county is evaluating alternative methods to complete CME that would not necessitate classroom attendance. St. Petersburg College is also completing a needs assessment to potentially develop continuing fire education. All fire departments currently complete in-house firefighter training and participate in mulit-company and multi-jurisdictional drills.

7 There was additional discussion about benchmarking other agencies. The group discussed Broward, Palm Beach, Hillsborough, Jacksonville and Volusia counties. All are large jurisdictions, but none are similar in make-up to Pinellas County's fire/ems system. When asked whether there were any other specific comments from the fire chief group, two additional comments were made, 1) as noted in the prior MGT study, specific recommendations related to fire station closings is difficult to manage and 2) rumors and speculation on consolidation can sometimes defer or delay service level improvements at the local level. During the approximate six months the county and fire chiefs met in anticipation of the fire/ems taskforce being convened, another major topic of discussion was the desirability of pooling insurance resources. The rising costs of health, liability and workers compensation insurance are reaching a crisis point for all governmental agencies. The county conducted an initial evaluation, and has determined it could be feasible to establish an umbrella company as a self-insurance provider managed by a private, professional 3 rd party administer at a cheeper cost. It was noted 12 of the 20 departments currently utilize United for health insurance, but with variations of coverage and benefits. If all municipalities and special fire districts joined with the county, it would be a very large pool for the purpose of leveraging premium rates. It would also provide a total community benefit, in that indigent care could potentially be added at a lower cost. It was noted that unincorporated fire millages are set based upon total budget costs, that presumably may include capital outlay. It was suggested it may be desirable to establish an impact fee at the county level that could be utilized to offset unincorporated areas' capital needs. There is a method established in the budget process for the fire departments to designate and reserve capital funds over a period of time to smooth out the spikes in the unincorporated fire millage. There was a brief discussion about the specialty teams, i.e., hazardous materials and technical rescue teams. These specialty teams are provided by five fire departments with some budgetary support from Pinellas County. The hazardous materials team departments include Largo, Palm Harbor, Pinellas Park, Seminole and St. Petersburg. The technical rescue team departments include Clearwater, Largo, Pinellas Park, Seminole and St. Petersburg. These teams provide specialty response and mitigation countywide. The taskforce is charged with completing their report of recommendations by October. In addition, a mid-term meeting is scheduled in August of all the taskforce chairs with the Pinellas Assembly executive committee. In order to meet these goals, the taskforce discussed the agenda for the next two meetings. It was tentatively agreed as follows: Next meeting - 7/28, presentations scheduled Hazmat/TRT specialty teams, American Medical Response (AMR) and the Pinellas County Council of Firefighters. Following meeting: 8/11, invitation to city managers, mayors and chairs of fire boards.

8 It was agreed to maintain the 3pm start time for meetings. Items to be provided at next meeting: Breakdown of total property value and taxable property value in Pinellas County. Individual maps of the fire and EMS districts for committee members. Copy of Pinellas Suncoast Fire & Rescue District, current and proposed assessment charges. Meeting adjourned 5:20 pm. NOTE: Additional information will be provided by Pinellas County at a later date.