Fire Station Location Study; January 2001
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ALMOtlT ASSOCIATES
We Specialize in Fire, Police & EMS Assistance
A FIRE STATION LOCATION STUDY
FOR THE CITY OF SALINA, KANSAS
FIRE.DEP ARTMENT
FINAL REPORT
JANUARY 2001
Almont Associates, Inc.
Jim Sparr, President
P.O. Box 338
Almont, Colorado 81210
Telephone 970/641-3813
Fax 970/641-4154
E-Mail: almont@gunnison.com
ALMONT ASSOCIATES, INC.
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January 1, 2001
Dennis Kissinger
City Manager
City - County Building
300 W. Ash St.
Salina, KS 67401
Dear Mr. Kissinger,
Please find enclosed the final report of the fire station location analysis. The smaller
maps included in the report will be drawn on full-scale city maps for the final
presentation on January 8, 2001.
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Sincerely,
r~
Jim Sparr, President
Almont Associates, Inc.
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PO BOX 338. ALMONT, COLORADO. 81210
PHONE: 970/641-3813 . FAX: 970/641-4154
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TABLE OF CONTENTS
Leiter of Transmittal
Table of Contents
Executive Summary
1.0 OVERVIEW
1.1 Study Purpose ............................................:..................................................... 1
1.2 Study Goals ..................................................................................~..................1
1.3 Study Methodology .................................................................................:........1
2.0 COMMUNTIY AND DEPARTMENT PROFILES........................................................ 3
2.1 Current City Profile.......................................................................................... 3
2.2 Future City Profile ...........................................................................................3
2.3 Department Profile.................. ........... ..... ......... ........ ......... .............. ......... ........ 4
2.3.1 Staff Allocation........................ ........................... ..................... ..... .......... 6
3.0 FIRE STATION LOCATION ........................................................................................... 8
3.1 Target Hazards.................................................................................................. 8
3.2 A1ann History ................................................................................................. 10
3.3 ISO................................................................................................................. II
3.4 Response Time ...............................................................................................11
3.5 Level of Service.............................................................................................. 12
3.5.1 Components of Service Delivery ............................................................12
3.6 Risk................................................................................................. ............... 13
3.7 Options .......................................................................................................... 13
3.7.1 Option 1.................................................................................................13
3.7.2 Option 2 ................................................................................................ 16
3.7.3 Option 3 ................................................................................................. 18
4.0 RECOMMENDATIONS ................................................................................................20
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EXECUTfVES~RY
Almont Associates was selected by the City of Salina to conduct an analysis of the
current and future fire station location needs of the community. One of the components
the team considered was ISO/CRS (Insurance Service Office/Commercial Risk Services).
ISO is an organization that rates a community in terms of water supply; dispatching, and
the fire department. ISO then provides an overall rating from 1 to 10 with I being the
highest rating. Insurance companies then use this rating to determine insurance rates for a '
community. Salina is currently rated at a class 3. For homeowners a rating of class 7 is
the maximum rating that is beneficial for insurance premium purposes. For commercial
properties the lower the rating the better. In general, ISO wants a pumper located within 1
Y, miles and a ladder within 2 Y, miles of properties. Without an enormous influx of
money for several facilities and additional personnel, no community can cover 100% of
all properties. A more realistic goal would be approximately 90% coverage. The project
team sought to utilize this when considering different options.
A second component the team considered was response times. Response times are
imp?rtant certainly for fire response, but more importantly, for an EMS response. A
response time is broken down into three components - dispatch time, turnout time, and
travel time. Dispatch time is the elapsed time, from when the dispatcher receives a call for
service and then alerts the closest station. Turnout time is the time measured from the
receipt of the alarm until the personnel are on board the vehicle and ready to travel.
Travel time is the elapsed time from the station to the scene of the emergency..The team
utilized a travel time goal of 4 Y, minutes and as with the case of ISO, a realistic goal
would be coverage of90% of the community.
Although the project team considered individual properties as they related to specific
hazards, our analysis and recommendations considered the community as a whole.
Naturally, citizens, visitors, and businesses who are located next to a fire station are
going to receive quicker service than those who choose to be located several miles away.
In all cases the response by a well-trained , fully staffed 24 hour duty department is
superior to the delayed response of a volu'nteer department.
In conclusion, after analyzing all factors, the project team believes that the current
configuration of four fire stations is the best for the community. We would, however,
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recommend the placement of the ladder/rescue from station 3 to station 2. We also
recommend a dialogue with the owners to discuss the purchase of the property to the
north or west of the station to allow for the remodel and expansion of the current facility
to accommodate the recommended changes. Lastly, the project team recommends that the
city hire three additional firefighters to be placed on Engine 3 with the new configuration.
This would allow the four-person pumper company to respond into the airport indus~rial
area as well as the airport itself and begin immediate firefighting and rescue operations in
the event Medic 3 is out of the station on another call. This is important for the two-in-
two-out safety standard which basically wants two firefighters on the outside of a
building for rescue, while two firefighters enter the building for fire operations. We
would recommend the next purchase of major equipment be a quint (combination ladder
and pumper). This would allow for an equal response to all areas of the city with a
vehicle that can perform as a ladder and a pumper depending on the need.
This document should be viewed as part of a fluid planning process. It is not intended as
a plan for immediate action. For instance, the normal capital improvement plan process
should be utilized to fund any recommendations. An example would be the purchase of a
quint as the next major apparatus acquisition. Someone from the city should contact
appropriate property owners to ascertain any desire to sell their property. Lastly,
architectural assistance should be secured to plan for any remodel/addition consideration.
The city has taken several actions that have and will have a positive impact on public
safety. A specific example is the recent approval of the Ohio overpass. The project, when
completed, will provide more reliable response times to the northeast area of the city.
Members of the project team view this document as the first step in the planning process.
We will remain available to assist the city in any way during the implementation phase of
our recommendations.
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1.0
OVERVIEW
1.1 Study Purpose
The City of Salina, Kansas utilized a competitive selection process to secure the
professional services of A1mont Associates to assist in a fire station location analysis. The
primary areas of study are: 1) evaluation of the current facilities, analyze the need for an
additional facility and suggest a station location for any additional facility, 2) ISO rating as it
relates to fire station locations, 3) staffing as it relates to fire station location, and 4) apparatus
and equipment as they relate to fire station location.
1.2 Study Goals
The primary study goals included:
1. To assess the ability of existing fire stations to meet the needs of the city with respect
to the delivery of firelEMS services;
2. To analyze overall alarm response times related to current station locations and
possible alternate locations;
3. To analyze fire department staffing as it relates to any station location proposals;
4. To analyze the target risk hazards;
5. To analyze any ISO considerations as related to station location;
6. To analyze an alarm history by type, number, and location;
7. To analyze future community needs; and
8. Finally to offer assistance on determining the future course of fire station location
needs.
1.3 Study Methodology
The. study was initiated through management level meetings to discuss in detail the
background of the project. Study objectives were refined and agreement was reached on all
study areas. Extensive staff interviews were conducted regarding current responsibilities,
program needs, and service level issues. A physical review of the majority of the community
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was made to confirm facility locations, facility condition, identify target hazards, and to gain an
understanding of the geographic and demographic elements affecting service delivery. Data
collection included personal visits and interviews with fire department staff, city management,
and planning; a review of existing planning data and reports, a review of response times; and the
generation of new information through research and discussion with related agencies and
departments.
The Project Team would like to express appreciation to the management and staff of the
Salina Fire Department, city management, and the planning department.
Some of the written documents and information collected during the on-site analysis
included:
~ City-wide maps
~ Fire Master Plans
~ Land Use and Other Maps
~ Demographic Data
~ Response Times
~ Alarm History
~ Related Documents
~ ISO Documents
~ Target Hazards
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2.0
COMMUNITY AND DEPARTMENT PROFILES
2.1 Current City Profile
The City of Salina has a mix of predominantly commercial, residential, industrial, and
some agricultural uses. All of these uses are spread throughout the city, as evidenced by a
review of the land use map. The following table demonstrates the population and new dwelling
permits issued during the last ten years.
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YEAR POPULATION DWELLlNGPERMITS ISSUED
1990 42,303 88
1991 42,303 84
1992 42,299 117
1993 43,060 144
1994 43,304 116
1995 43,304 122
1996 44,167 132
1997 44,167 123
1998 44,176 274
1999 44,022 116
This table illustrates that although not consistent there has been steady growth in the city.
While other communities have experienced a decline, Salina has several positive factors that
have contributed to its steady growth. The presence of transportation routes, available land,
utility capacity, a commitment to public safety, and good planning efforts are just a few of the
elements that contribute to steady manageable growth.
2.2 Future City Profile
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It is important to consider the future growth of Salina in order to properly consider any
fire station placement. If we look at the history of population, area served, and good
private/public partnerships this will ensure a steady growth well into the 21" century. A review
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. of the land use map as well as a physical review of recent growth indicates that future
commercial and industrial growth will occur toward the southern portion of the city and most
residential growth will occur in the east and southeast portion of the community. A logical
question then becomes at what point would the need for a fifth station become necessary? Two
benchmarks are generally used to answer that question. One is used by ISO and that is when a
given area outside the normal coverage area is 50% built-up it should then be covered by a
facility. Another benchmark is population. If we were to consider a fifth facility and would like
for that facility to respond equally to the population as a whole then a population of roughly 20%
of the overall population would be appropriate. In reality a combination of both would be
desirable. For this reason it is important for planning to keep accurate population numbers by
census tract for future service consideration. Unless unusual circumstances occurred, the team
does not foresee the need for consideration of another facility for at least the next 10 years.
2.3 Department Profile"
. The Salina Fire Department delivers fire and EMS services from four facilities. The
organization and structure of the department is sufficient to provide the full range of services.
The integration of full EMS services in the department maximizes labor resources and places the
department at the top of comparisons with other departments.
A profile of each of the four station facilities is described as follows.
Fire Station 1- 222 W. Elm
This facility was constructed in 1949 and is considered the headquarters house and is
engineered similar to fire station facilities of this date with the first floor housing trucks and
supporting numerous administrative functions. The second floor primarily supports the living
quarters for fire fighters. Travel efficiency from various functional areas to conduct normal
administrative and fife response activities, although not optimal, is reasonably good. However,
there always exists an increased level of risk associated with movement from the second floor to
the first floor for emergency response requirements. Recent improvements include additions to
. the truck bay for housing larger units, as well as the addition of female shower and rest room
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facilities. Truck bay ceiling height and overhead doors are of minimal height but are adequate for
current apparatus. However, truck bay dimensions may hinder the design offuture fire apparatus,
which are continuing to increase in size as greater functionality/capability is incorporated into
the same. The station reflects relatively good condition considering the age and degree of
improvements to the facility. Overall vehicle space requirements appear to be adequate at this
time. Office space is extremely cramped with some office space that has been converted from a
closet and a food pantry. Suggestions for improvement would include a complete inspection of
all mechanical and electrical systems for possible upgrades/installations to ensure safety and
reliability. Lastly, an office needs assessment should occur to determine present and future
needs as well as their physical location. One consideration might be the utilization of space if
station 2 is remodeled and expanded.
Fire Station 2 - 1120 S. Santa Fe
This facility was built in 1957 and reflects a typical design of this time period with the
. majority of living quarters being on the second floor and the utility and truck bays on the first
floor. No significant improvements have been made to the facility by observations other than the
addition of one overhead door to the rear truck bay several years ago. Functionality of the station
regarding the upper floor is not adequate to meet the needs of the current 5-6 people let alone any
additional assignments, as well as female accommodation. Travel paths from the seCond floor to .
the truck bay are acceptable. However, as with Fire Station 1, there always exists an increased
level of risk associated with movement from the second floor to the first floor for emergency
response requirements. A serious deficiency does exist with regard to the truck bay. Although a
back overhead door was installed for rear entry, the same does not afford a straight pathway for
larger trucks to enter the station. This situation promotes unsafe maneuvering of larger fire trucks
and personnel safety. Overall dimensions of the truck bay including ceiling and overhead door
height are minimal and will hinder the design of future fire apparatus. It is also recommended
that all mechanical and electrical systems be evaluated to ensure safety and reliability. Overall
space is somewhat limited for support of normal functions let alone any additional a~signments
as will be discussed later.
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Fire Station 3 - 2633 Belmont
This facility was built in 1986 and is in good condition with relatively good efficiency
regarding travel patterns for both administrative activities and emergency response needs.
Structure, mechanical and electrical systems all appear to be in good condition. The truck bay is
adequate with good entry/exit patterns and overall dimensions to support both current and future
apparatus acquisitions. Overall space appears to be adequate for all functions supported. There
are no significant deficiencies regarding this facility that were observed. There are shower, and
rest room facilities for males and females.
Fire Station 4 - 669 Briarcliff
This facility was built in 1969 and is in relatively good condition with adequate
. maintenance being performed. It appears that mechanical, electrical and structural systems are in
relatively good condition. Travel pathways for conducting both normal administrative and
emergency response activities, although not optimal, are adequate. Truck bay entry/exit and
overall dimensions are adequate to support both current and anticipated future apparatus
acquisitions. There are no significant deficiencies that were observed.
2.3.1 Staff Allocation
The chart on the following page demonstrates the distribution of firelEMS personnel by
position, assignment and function. It should be noted that each position takes approximately 3.5
people to fill each position. This is necessary to cover each position 24 hours each day, 365 days
per year. To cover the following 24 positions requires approximately 84 people be assigned to
operations, and that is exactly the number of people currently assigned.
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. Division Chief Lieutenant Paramedic Fire Total
Station 1 Firefighter Fighter
Division Chief 1 0 0 0 1
Quint 1 0 1 0 3 4
EMS Lieutenant 0 1 0 0 1
Medic 1 0 0 2 0 2
Station 2
Engine 2 0 1 0 2 3.
Medic 2 0 0 2 0 2
Station 3
Engine 3 0 1 0 2 3.
Ladder 3/Rescue 3 0 1 0 1 2
Medic 3 0 0 2 0 2
Station 4
. Quint 4/Rescue 4 0 1 0 3 4
Total 1 6 6 11 24
· Whenever an "extra" person is available, a fourth person is placed on Engine 3. In extremely
rare cases an extra person is placed on Engine 2. This will be addressed more fully in
recommendation section 4.0.
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3.0
FIRE STATION LOCATION
3.1 Target Hazards
One of the many characteristics needed in any fire station location analysis is the location
of target risk hazards in the community. A target risk hazard is defined as any structure or
operation that offers a potential threat to life, safety, or property damages beyond a "normal"
risk. The definition applies to processes or operations that involve a potential fire or explosion
by the nature of the materials used, such as chemicals, heat generated during processing, or both.
The classification includes the type of construction, methods and materials used, and the
presence or absence of protective devices, such as firewalls or sprinkler systems. The
classification always includes places of large gatherings, such as churches and schools.
Consideration is also given to those groups that need more help, such as nursing homes and day
care centers.
Using the above definition, a list of target hazards was provided to the Project Team. The
list was used to generate a geographic display of these hazards. That display, which is presented
on the following page, can be used as an overlay to determine the adequacy of coverage on any
station location option.
The significance of plotting these risk hazards is twofold; first, it is important to analyze
the response time from any station location configuration. Secondly, it is important to look for
any potential alternatives, such as more intensive prevention efforts. Prevention efforts will
provide the highest degree of reliability, as well as provide the best long-term approach to
any community's fire potential.
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. 3.2 Alarm History
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YEAR FIRE CALLS EMS CALLS TOTAL
1990 1,128 2,560 3,688
1991 1,101 2,639 3,740
1992 1,110 2,663 3,773
1993 1,239 3,091 4,330
1994 1,240 3,146 4,386
1995 1,284 3,327 4,611
. 1996 1,499 3,563 5,062
1997 1,558 3,384 4,942
1998 1,630 4,141 5,771
1999 1,510 3,913 5,423
MAY 1999 - NOVEMBER 2000
STATION FIRE FIRST TOTAL EMS TOTAL CALLS
RESPONDER FIRE
1 414 97 511 .2,176 2,687
2 274 80 354 1,233 1,587
3 288 78 366 760 1,126
.4 158 208 366 146 512
TOTAL 1,134 463 1,597 4,315 5,912
The tables above are significant in that they indicate a steadily increasing demand for
. services commensurate with population and visitor growth. The alarm distribution rate indicates
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. that it is consistent with station proximity to population density and aging structures. It is
important to note that capacity for response still exists in each of the responding units.
3.3 ISO
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Some thought should be given to ISO when considering any station location. ISO
(Insurance Service Office) is an organization that rates a municipality's fire department, water
supply, and overall fire defenses, giving a rating from 1 to 10. These base ratings are then used
by most insurance companies as a basis to set insurance rates. The components of an ISO rating
as they relate to station location are threefold. First, for homeowners, an ISO rating class of 7 is
the maximum benefit rating with Salina having a Class 3 rating. In any scenario of the current
configuration of station locations, or any option listed, this criteria is adequately met. For
commercial properties the lower the rating the better. A component ISO considers is the
placement of facilities and their distance to properties. The component of having a pumper
within l'lz miles of commercial structures is primarily met with the current configuration (all
options with accompanying maps have l'lz mile distances to demonstrate this coverage).
Another component of having a ladder within 2'1z miles of a commercial structure is
demonstrated in the recommendations at the end of the report. Without a vast infusion of money,
it is virtually impossible to cover all areas of the community. A more realistic goal would be to
cover 90% or more ofa given community and Salina accomplishes that goal.
3.4 Response Time
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Before results of the computer model can be utilized, it is imperative that a distinction be
made between response time and travel time. Response time, by definition, is the elapsed time
from the receipt of a call for help by the dispatcher until the responding company actually arrives
at the scene. It is comprised of three separate components: dispatch time, turnout time, and
travel time. Dispatch time is the time elapsed between the receipt of the call by the dispatch
center and the transmittal of the alarm. With well-trained dispatchers, the proper number of
dispatchers, and Computer Aided Dispatch, this time should be no more than 50 seconds. The
50 second dispatch time is derived from the.national guidelines established by the International
Association of Fire Chiefs. Turnout time is the time it then takes for the alerted station to staff
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their apparatus and start en route to the address of the alarm, as firefighters may be involved in a
training session, inspection, or station and equipment maintenance. When the alarm is sounded,
turnout time averages about 30 seconds. This time, too, cannot be reduced appreciably unless
firefighters were to sit in their apparatus awaiting alarms at all times. Therefore, when seeking to
reduce response times, the easiest component to affect is travel time, which is the time measured
from when the apparatus begins to respond until it arrives at the emergency; and naturally it
varies proportionately with distance. The efficient placement of available resources is the only
variable that can reduce travel distances; and that is what this study sought to accomplish, along
with several other considerations.
As a final note, even though the maps demonstrate a complete road network, it is
recognized that some of the streets shown are not realistically serviceable for fire apparatus. It is
also noted that the computer model simulation does not take into account weather conditions
such as snow. An assumption is made that some day these roads will be improved and the vast
majority of the time, normal weather conditions prevail. Any consideration of special factors,
i.e. weather or unimproved roads, would add to the response times shown. Probably the most
significant consideration in this regard is the recently approved Ohio Overpass. This will have a
significant impact on reliable response times into the far northeast section of the city.
3.5 Level of Service
3.5.1 Components of Service Delivery
The primary components of any fire service delivery system are facilities, apparatus and
equipment, staffing and training. Communities vary on the mix of these components to provide
a delivery system. Some communities choose to provide a full compliment of recommended
staffing of three to four (3 - 4) full-time personnel on each piece of apparatus housed in fewer
facilities, while other communities choose to provide less staffing in more facilities and depend
heavily on volunteers to support the firefighting force. The former is the approach used by the
City of Salina, and offers the h.est approach in terms of quick response hy well-trained personnel.
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3.6
Risk
Any decision on any of the four main components of a fire service delivery system
involves an element of risk. The tempering factor for eliminating virtually all risk is cost. If cost
were not a factor, the City of Salina could place several facilities fully equipped, staffed, and
continually trained in all emergency aspects. The reality of limited tax_dollars competing for
various needs in any given community means that choices must be made that will limit delivery
of one or more components of a delivery system. When these decisions are made, an element of
risk accompanies any decision. The main goal is to develop decisions that provide a reasonable
comfort level to risk.
3.7 Options
Almont Associates has evaluated several different options relative to station location.
After careful consideration, we offer the following 3 options for consideration.
3.7.1 Option 1- Service from Four Stations As They Are Currently Located
If the City decides to have service provided from four locations, the current configuration
is probably the best possible considering costs and benefits. The map on page 15 depicts the
current configuration of stations.
As the map indicates, the travel time to the vast majority of the service area provides a
superior level of response. In fact, a review of the actual response time demonstrates an average
response travel time of 3 minutes, 15 seconds in" 1997, 3 minutes 18 seconds in 1998 and 3
minutes sixteen seconds in 1999. An overlay of the target hazards demonstrates a 92% coverage
rate. If we consider ISO, again the vast majority of the service area is adequately met, with the
outline indicating I Y, mile coverage for pumpers.
There are two areas of slight concern with the current configuration. There are some
areas of the community outside of the 1 Y, mile coverage area in the far north and southwest
areas of the city. Secondly, with the placement of the ladder company at station 3, the
community is missing its maximum ISO coverage for a ladder company. Certainly, it is
. recognized that a quint (cOmbination ladder and pumper) are positioned at stations I and 4,
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however, ISO will not allow a community to count the quint as both a ladder and a pumper for
high point credit unless a full staffing of six people are assigned to the quint. Points are then
deducted for under-staffing. This is why most communities designate a quint as a ladder or a
pumper. The quint then should be dedicated as either a ladder or a pumper for ISO purposes and
Quint 1 and 4 are better declared as pumpers. The fire department should be commended for the
purchase of quints because in actuality a ladder or pumper is readily available to all parts of the
city. The two areas of concern will be discussed in the final recommendations (section 4.0).
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3.7.2 Option 2 - Service from Four Stations With Station 2 Relocated to the
Vicinity of Cloud Street and Centennial
This option was considered as a result of some available property and an attempt to cover
future areas of development. The map on the following page depicts this option.
As the map indicates, there is some slight improvement on the western portion of the city;
however, this option leaves older portions of the city uncovered. Additional far western portions
of the city (east ofI-135) are covered; however, this area is not where the majority of future
growth and development will occur.
Lastly, the response times and ISO considerations are not as desirable as the current
configuration. The project team does not recommend this option.
Almon! Associates
16
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3.7.3 Option 3 - Service From Four Stations With Station 1 Relocated to the
Vicinity of 7th and Pacific Road and Station 3 Relocated to the Vicinity of 9th
and Schilling Road
This option was considered as a "what if' we were beginning with a clean slate" This
option has the advantage of providing an improved level of coverage to southern and western
portions of the city, as well as the" far northern portion ofthe city. This option also reduces
overlay coverage of stations and provides a greater distribution of ISO coverage to land area.
The disadvantages include less coverage in terms ansa and response times to the more
populated areas of the city where alarms are currently occurring. A final concern is cost. Even
with a smaller facility, the price of replacing Station 3, a relatively new station, could easily
exceed $1,250,000.
The price of replacing Station 1, the headquarter station, could easily exceed $3,500,000.
Even though cost is a minor factor of consideration, the project team cannot find enough benefit
to the majority of the community to consider a recommendation of this option.
A Imont Associates
18
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4.0
RECOMMENDA nONS
After careful consideration, the project team recommends that service be provided from
four stations as they are currently configured with some physical and operational changes. The
project team recommends that Station 2 become what is known as a "power" station. A power
station offers all of the responses ofa ladder company, a pumper company, and a medic unit. In
essence, we are recommending switching the response apparatus from Station 3 to Station 2 and
vice versa.
The map on the following page depicts the ISO boundary of 2'h miles for a ladder
company as it is currently located verses if it were moved to Station 2. As can be seen, there is
far better coverage throughout the city by a designated ladder company. A target hazard overlay
indicates that the ladder company change would cover 36% of the target hazards as opposed to
the current 24% coverage. This would be the only operational change.
The physical changes required would be additional land, changes to the living quarters,
and bay area. To accomplish this, we would recommend discussion with property owners of the
houses to the north or west of Station 2 concerning the purchase of their properties. This would
provide the land and clear area around the facility that is necessary. We would also recommend
the expansion/remodel of the garage area to accommodate three drive-thru bay areas. We would
recommend that the city hire 3 additional fire personnel to be placed on Engine 3. This would
allow Engine 3 to begin immediate firefighting operations in the industrial area and airport if
Medic 3 were on another call. This is necessary to comply with the two-in-two-out safety
standard, which basically requires two fire personnel outside of the building for rescue while two
fire personnel enter the building for firefighting operations. Finally, we recommend the purchase
of the next scheduled major apparatus be a quint. As with all of our recommendations, this
should be scheduled through the normal funding processes, such as the CIP (Capital
Improvement Program).
Almont Associates
20
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