A Systematic Analysis Of San Diego County'S Fire System: A Special Reference To The Status Of Local Government In The United States

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Content A SYSTEMATIC ANALYSIS OF SAN DIEGO COUNTY’ S FIRE SYSTEM: A SPECIAL REFERENCE TO THE STATUS OF LOCAL GOVERNMENT IN THE UNITED STATES by Lorenzo Thompson A D issertation Presented to the FACULTY OF THE GRADUATE SCHOOL UNIVERSITY OF SOUTHERN CALIFORNIA In P a rtia l F u lfillm en t of the Requirements fo r the Degree DOCTOR OF PHILOSOPHY (Public Administration) January 1973 INFORMATION TO USERS This dissertation was produced from a microfilm copy of the original document. While the most advanced technological means to photograph and reproduce this document have been used, the quality is heavily dependent upon the quality of the original submitted. The following explanation of techniques is provided to help you understand markings or patterns which may appear on this reproduction. 1. The sign or "target" for pages apparently lacking from the document photographed is "Missing Page(s)". If it was possible to obtain the missing page(s) or section, they are spliced into the film along with adjacent pages. This may have necessitated cutting thru an image and duplicating adjacent pages to insure you complete continuity. 2. When an image on the film is obliterated with a large round black mark, it is an indication that the photographer suspected that the copy may have moved during exposure and thus cause a blurred image. You will find a good image of the page in the adjacent frame. 3. When a map, drawing or chart, etc., was part of the material being photographed the photographer followed a definite method in "sectioning" the material. It is customary to begin photoing at the upper left hand corner of a large sheet and to continue photoing from left to right in equal sections with a small overlap. If necessary, sectioning is continued again — beginning below the first row and continuing on until complete. 4. The majority of users indicate that the textual content is of greatest value, however, a somewhat higher quality reproduction could be made from "photographs" if essential to the understanding of the dissertation. Silver prints of "photographs" may be ordered at additional charge by writing the Order Department, giving the catalog number, title, author and specific pages you wish reproduced. University Microfilms 300 North Z H b Road Ann Arbor, Michigan 48106 A Xerox Education Company - I 73-14,451 THOMPSON, Lorenzo, 1941- A SYSTEMATIC ANALYSIS OF SAN DIEGO COUNTY'S FIRE SYSTEM: A SPECIAL REFERENCE TO THE STATUS OF LOCAL GOVERNMENT IN THE UNITED STATES. University of Southern California, Ph.D., 1973 Political Science, public administration University Microfilms, A XEROX Com pany. Ann Arbor, M ichigan I Copyr t gh t (c ) by LORENZO THOMPSON 1973 THIS DISSERTATION HAS BEEN M ICROFILM ED EXACTLY AS RECEIVED. UNIVERSITY OF SOUTHERN CALIFORNIA THE GRADUATE SCHOOL U N IV E R S ITY PARK LOS ANGELES, C A LIFO R N IA 0 0 0 0 7 This dissertation, w ritten by Lorenzo Thompson is under the direction of h Dissertation Com mittee, and approved by all its members, has been presented to and accepted by The Graduate School, in partial fulfillm ent of requirements of the degree of D O C T O R O F P H IL O S O P H Y D ttm _ February 1973 D ate................... .............. I PLEASE NOTE: Some pages may have in d is tin c t p r in t . Filmed as received. U n iv e rs ity M icro film s, A Xerox Education Company I ACKNOWLEDGMENTS In most great v ic to r ie s the v ic to r awards his supporters by extending to them some form of patronage or accolade fo r th e ir work. Although I do not possess patronage from which to give, I would like to extend my sincere thanks to a few of the mony persons who made it possible for me to complete th is d is s e rta tio n . F irs t of a ll my sincere thanks to my Dissertation Chairman, Dr. Ross Cloyton, who has been not only an excellent Chairman but also a dear frie n d . Thanks to Neely Gardner end Dr. Richard (Dick) Bigger (the second and th ird members of my D issertation Committee) who not only assisted me i n t e lle c t u a lly but also provided me with the emotional stimulus to continue my academic endeavors when my future seemed so uncertain. I am deeply indebted to Theodore (Ted) Thomas whose assistance made it possible for me to s o lic it the funds necessary to continue in the Doctorol program even though I erroneously c r i t i c i z e d him on many occasions. I am also indebted to Dr. Lloyd Nigro, a warm individual I also erroneously c r i t i c i z e d on many • • i i occasions, who was most helpful in c ritiq u in g th is di ssertat ion. I could never express how fortunote and thankful I am to have been able to have an assistant like Richard (Oick) Dziezyk help me c o lle c t the data for th is d is s e rta tio n . My ty p is t, Pat Summers, w i l l again be able to have a normal day as a result of not being interrupted day and night when I ask her to retype a page here and there. To my eighteen-month old daughter, Teri, hopefully I w ill now be able to provide you with more piggyback rides. F in a lly , to my dear wife, Claudia, thank you for to le r a tin g me during the many days and nights when I had to run to the Iib ra ry or to the ty p is t, and when I had to spend the weekends w ritin g th is di ssertat ion. I TABLE OF CONTENTS ACKNOWLEDGMENTS ...................................................................... ii LIST OF TABLES ........................................................................ vl LIST OF FIGURES ...................................................................... vi i Chapter Page I. INTRODUCTION ........................................................ 1 An Overview of the Study from the Perspective of Open Systems Theory Major Components of Open Systems Tneory Synopsis of the Problem and Current Status of Local Government in San Diego County Purpose of the Study Research Design Input Variables Process Variables Output Variables Feedback Variables Procedures D e fin itio n of Terms Remainder of the Study I I . REVIEW OF LITERATURE ....................................... 30 Concepts and Status of Local Government in the United States C r i t e r ia for Assessing Local Governments Summary of A lte rn a tiv e s Functional Consolidation A lte rn a tiv e s as They Relate to Fire Protection Cone I us ion I I I . PRESENTATION OF DATA....................................... 57 F i ndi ngs i v Chapter Page IV. ANALYSIS OF DATA................................................... 113 How the Chiefs View Problems Relevant to Mutual Aid, Legislation and County, State, and Federal Aid V. CONCLUSIONS AND RECOMMENDATIONS 143 Impact of Consolidation on Present Fire Structure Role of the County in the Proposed Consolidation Furtner Recommendations Lim itations of the Study BIBLIOGRAPHY .................................................................................. 177 APPENDIXES A. Fire D is t r ic t s Questionnaire ............... 182 B. Legislation Referent to Local Governments (F ire D is t ric ts ) .................. 190 C. Synopsis of Insurance Ratings for Fire Protection ........................................ 210 D. Report on Functional Consolidation by Fire Chief A. V. Streuli ..................... 217 E. Powers of the County Board of Supervisors .............. 226 v LIST OF TABLES Table Page 1. Relationship Between City Fire A g e n c ie s ........................................................................ 63 2. Relationship Between Fire D is t r ic t s . . . . 65 3. Features Considered in Groding Schedule ........................................................ 212 4. Grading Schedule Classes .................................... 214 5. Insurance Rates (For $25,000 Single-Family Residence) ................................. 215 v i LIST OF FIGURES Figure Page 1. D istrib ution L is t of Quest i o n n a i r e 58 2. Fire Personnel per 1,000 Residents (C it ie s ) ........................................................................ 71 3. Fire Personnel per 1,000 Residents (D is tr ic ts ) ............... . . . . . . ............................ 72 4. 1971-72 City Budget To tals* for F ire Operations ........................ 89 5. 1971-72 Fire D i s t r i c t Budget Totals* . . . 90 6. Mean Percentage per Year Growth* . . . . . . . 93 7. Per Capita Expenditures for Fire A c tiv itie s 1971-72 ( C it ie s ) ......................... 94 8. Per Capita Expenditures for Fire A c tiv itie s 1971-72 ( D is t r i c t s ) .................. 95 9. C it ie s : Mean Percentage of Total Fire Budget* .............. 96 10. Fire D is t r ic t s : Mean Percantage of Total Budget ............ 97 vi i CHAPTER I INTRODUCTION Today we ere of the threshold of major changes in most governmental services throughout this country. One of the areas that needs changing most is the f i r e service; u n til recently it has been tr a d itio n a l and has not been f u l l y aware or accepting of the need to become more acclimated to our contemporary metropolitan liv in g environment. Today there is a strong awareness on the port of f i r e administrators of the need to focus a concentrated e f f o r t on reseorch ond development of programs that w ill lead to a more economical and e f f ic ie n t f i r e system. The history of mounting taxes ond the threot of even higher ones reinforce the need for more e ffic ie n c y in the f i r e service. Therefore, proper reseorch ond development studies in o il f ie ld s of f i r e prevention ond f i r e fig h tin g should be under taken. Eoch oreo needs to be analyzed from the standpoint of the "is" situation versus the future "ought to be." This means thot firemen must not cling to tro d itio n e l methods of providing f i r e 1 protection just because they "have done the job in the p a s t." On the other hand, firemen should not discard old methods fo r new ones just because they are new. They must develop sound analysis procedures to determine where new approaches are warranted. It is with the above in mind that the w r ite r hes decided to employ "open systems theory" and "systems analysis" in an o b jec tive analysis of the f i r e system of San Diego County. In so doing the w rite r has concluded that there are several possible solutions to m itig atin g the dilemmas surrounding San Diego County's f i r e system. There appear to be several possible a lte r n a tiv e s . They are: (1) consolidation of a ll f i r e services on a county-wide basis, (2) consolidation on a regional basis, (3) annexation, (4) federation, and (5) contracting. Although the w r ite r favors county-wide consolidation, a more r e a l i s t i c approach would probably be to u t i l i z e regional consolidation fo r some areas while making use of contractural arrangements in other areas. Nonetheless, the w r ite r must emphasize that consolidation is not a panacea fo r a ll the County's " f i r e " problems. An in-depth anolysis of such v a ria b le s as tax bases, managerial techniques and ad m in istration , ond the p o lit ic a l 3 environment for eech f i r e d i s t r i c t must also be undertaken. At I the above factors hove been considered in this study. The purpose of th is introductory chopter is to: (1) provide a synopsis of the study from the perspective of open systems theory; (2) present a synopsis of the problem and of the current status of local governments in Son Diego County; and (3) provide an overview of the a lt e r n a t iv e approaches to reo rg a n izo t?on of the various f i r e agencies in the County. An Overview of the Study from the Perspective of Open Systems Theory Many experts w ill readily odmit thot some thing is d r o s tic a lly wrong with local governments. While most suggest thot there are simply too many such governments, few have developed theories designed to adequately study them. Furthermore, there is no agreement on a strategy to change them so that they may become more responsive to the constituents they ore supposed to serve. The question of change is dealt with in subsequent chapters. The purpose of this section w i l l be to make use of an organizational theory which w ill help to structure a discussion of local governments in 4 Son Diego County in generol ond th e ir f i r e services in p o rtic u lo r. The theory odvonced below wos defined by Von Bertolonffy os "Open Systems Theory."^ When exomining systems, it should be recognized thot there ore two primary types— open ond closed systems. Closed systems, the older of the two, attempt to solve organizotionaI problems by opplying the lows of physics. However, th is opprooch f o i l s to take into consideration o il the environmental forces o ffe c tin g the orgonizotion, It tends to look only ot ports of the organizations where boundaries con be e x p l i c i t l y defined ond, consequently, where orgonizotionoI voriobles con be physically meosured. The opprooch oI so tends to view orgonizotions os if they ore seIf-contoined structures thot con be treated successfully without regord to the influence of uncontrolloble forces. While closed systems theory moy be suitable fo r analyzing or evaluating some orgonizotions, it d e f in it e ly would not provide o satisfactory solution ^Doniel Kotz ond Robert L. Kohn, The Soc?oI Psychology of Orgon?zotions (New York: John WfIey ond 5ons, I n c ., 1 ), fT! T8. 2 1b? d. , pp. 18-19. 3 1bi d. , p. 18. 5 to the problems confronting f i r e d i s t r i c t s in Son Diego County, within which ore locoted some 18 seporote f i r e d i s t r ic t s , 13 c i t i e s which hove th e ir own f i r e deportment, two speciol service oreos, ond one volunteer ogency.^ The reoson thot closed systems theory would not work is because each d i s t r i c t , in a c tu a lity , is not independent but dependent upon its environment in thot o f i r e in one d i s t r i c t d ir e c tly a ffe c ts the security of other d i s t r i c t s . This dependency con be seen in several ways. For example, the Laguna f i r e s began in the Cleveland Notional Forest, then spread to Pine Volley ond then to some of the other d i s t r i c t s in the County.** When one attempts to analyze the e ffic ie n c y of the f i r e system of Son Diego County, it is not enough to think of it as a closed system; it must be analyzed as on open system. 4A service area is a p a rtic u la r community or area of on incorporated or unincorporoted d i s t r i c t which is formed through on agreement of property owners, formed at t h e ir request, through C o lifo rn io State Service Areas procedures, opproved by the County Board of Supervisors wherein the area is located, end paid fo r through e special tax levied on the property in the service area benefited. **Stote of C olifornio Deportment of Conservation, Division of Forestry, CoIiTornia Aflame (Secremento: State of Co Ii forni a, October 4, 1 97UT; pp. 18-19. Using open systems theory one con onalyze o rg a n izo t!ons as they re la te to t h e ir totol environment since it tre a ts organizations os being dependent upon th e ir surrounding environment rother than being independent. This is very important in onolyzing the f i r e problems of San Oiego County. Subjects must not only take into consideration f ir e personnel, equipment, tra in in g , ond f a c i l i t i e s , but they must also consider the role other governmental agencies play in order to develop on optionol f i r e system. For example, f i r e s cannot be successfully fought without the services of the water department; consequently, there must be some form of coordination between the water and f i r e deportments. The role of the engineering department must be considered because the e ffic ie n c y of the f i r e department depends upon the engineering deportment to build roads which w i l l ollow easy access to the scene of f i r e s . In short, open systems theory is well suited to the r e a l i t i e s of loco I government in San Oiego County. In order fo r the reader to understand the essence of open systems theory, a synopsis of it s major components has been provided in the following paragraphs. Major Components of Open Systems Theory Katz and Kahn have ou tlined nine components of open systems theory or analysis. They are summarized in the following paragraphs. Importation of Energy Open systems import energy from th e ir external environment.^ When this concept is applied to an analysis of San Diego County's f i r e system, it indicates that the system obtains its resources through property taxes, and the more d ire c t services of other public agencies through forms of mutual aid . The system is very dependent upon th is flow of tax money and mutual aid in order to secure the inputs and services of personnel and equipment. When th is perspective is used, it suggests that the researcher should i n i t i a l l y take an inventory of the range of resources that the f i r e system needs to have from its environment. This would involve an investigation of the County tax base as welI as the amount of toxes actuaI Iy ut i I i zed. ^Ketz end Kahn, The Social Psychology of Organ i zet i ons. pp. 19-20. Through-Put Open systems tronsform the energy they import from the external environment (in th is case it would include money f i r e deportments get from the c itiz e n ry , and the mutuol oid they get from other agencies).^ In other words, f i r e odministrotors should be able to convert the above-mentioned resources into a social ond technological mechanism prepared to respond to and extinguish f i r e s in times of emergency. The energy imported is transformed into a product— on organization of men and equipment ready to fig h t f i r e s . Therefore, through an investigation of the voriables involved in th is process, a cost u t i l i t y analysis of how economically the above resources are being expended could be computed. Output Open systems export some product into the environment.® Fire agencies dispatch f i r e personnel and equipment to the scene of f i r e s in a manner intended to extinguish f i r e s with a minimum loss of l i f e and property, which moy result in lower cost for f i r e insurance for property owners. The analysis w ill determine the c it iz e n r y 's level of s a tis fa c tio n with regard to th e ir p a rtic u la r f i r e agency's output. Systems as Cycles of Events The pattern of a c t i v i t i e s tie d to energy exchanges has a cy clic character.^ As Katz and Kahn w rite , "The product exported into the environment furnishes the sources of energy for the re p e titio n of the cycles of a c t i v i t i e s . " ^ They go on to soy thot . , . the energy reinforcing the cycle of a c t i v i t i e s can derive from some form or some exchonge of the product in the external world or from the a c t iv i t y i t s e l f . 11 In essence, according to this model, i f the product (odequote f i r e protection) is found to be s a tis facto ry to its constituents, these c lie n t s w i l l , in turn, reward the system by extending additional resources to mointain or expand the a c t i v i t i e s of the system. When th is opprooch is applied to San Diego County's f i r e system, it means thot if 9 ib id . 1QIb id . , pp. 20-21. 11 Ibid. I 10 c it iz e n s could see thot the level ond odequecy of its f i r e protection merit more support, they would be more inclined to increose resources to expond the o c t i v i t i e s of the f i r e deportment. Neqotive Entropy In order to survive, open systems hove to moximize th e ir imported energy in order to expend ond/or increose the effectiveness of t h e ir 1 2 o c t i v i t i e s . This means thot these systems must be able to store energy (accrue surplus sums of money in th is cose) in order to survive during times of c r i s i s . They must liv e , so to speok, on borrowed time or un til new o c t i v i t i e s for survivol con be programmed. The Son Oiego County f i r e system is, in addition to just providing stru ctu ral f i r e protectio n , involved in pre-suppression o c t i v i t i e s in order to prevent rather than extinguish f i r e s . This process ill u s t r a t e s what Kotz ond Kahn coll 13 negentropy. The a rre s tin g of entropy is very important i f a system is to survive since entropy is o universal nature in which a ll forms of organization move toword disorgonizotion ond death. 121 bi d. . pp. 21-22. 13 Ibid. 11 Information Inputs Negative Feedback and the (boding Process Open systems should s o lic it both p o sitive and negative information about th e ir o c t i v i t i e s in order to determine s a tis fa c tio n levels with th e ir services ond the level of services that must be a tta in e d to sa tisfy th e ir constituents. Such "feedback" is essential i f they are to obtain continuous support fo r th e ir present ond future o c t i v i t i e s which may be so v it a l to the survival of the system. It is p a r t ic u la r ly important fo r o system to s o l i c i t negative feedback as th is form of feedback enables an organization to correct deviations from its desired course.^4 The Steady State and Dynamic Homeostasis* A system must maintain a constant re la tio n s h ip between both its constituents and th e ir environments. Such a "steady stote" is necessary i f the system is to continue to provide the types of services which w ill be necessary as the external environment a l t e r s . ^ When the concept of o steady 14lb?d.. p. 22. 1 5 lb id . . pp. 23-24. state is applied to San Diego County's f i r e services, it implies that f i r e adm inistrators should re ta in that kind of re la tio n s h ip w ith th e ir constituents which allows them ( f i r e adm inistrators) to persuade them (constituents) to supply the resources which are necessary to develop ond implement new technologies to cope with a changing environment. D? ffe re n t i at ?on Because of changing environmental conditions, social systems w ill become more and more complex and b r o a d . C o n s e q u e n t l y , more s p e c ia liz a tio n w ill tend to develop. Thus, the managerial a b i l i t y of the various f i r e administrators w i l l be investigated to determine th e ir a b i l i t y to f a c i l i t a t e train in g programs so that a smooth tr a n s itio n may take place. £qu i f i naI 11y According to th is concept, a desirable end-state can be reached through more than one opprooch.^ For example, when this concept is applied to f i r e protection, i t implies that f i r e administrators can a t t a in a more s a tis fa c to ry f i r e 13 system by having b e tte r equipment, better tra in in g of th e ir employees, better understanding of the p rin c ip le s of good management, b e tte r u t i l i z a t i o n of resources and by developing public educational programs to make the public more aware of the techniques of preventing f i r e s . In order that the reader may better appreciate the significance that open systems theory may have in improving San Oiego County's f i r e problem, an overview of the problem is given in the follow ing paragraphs. Also included is a synopsis of the current status of the local governmental agencies designed to provide the County's f i r e protect I on. Synopsis of the Problem and Current Status of Local Government in San Dieoo County With a histo ry of mounting taxes and diminishing service c a p a b ility , San Oiego County's f i r e system has recently come under severe attack from both private c itiz e n s and governmental o f f i c i a l s . ^ ® The a tta c k began with the Poway Fire of ^®See the Minutes of the San Oiego County Fire Technical Advisory Committee, December 1970. I 14 1967 ond reoched o peok with the Laguno Fire of late 1970. Perhaps a s t a t i s t i c a l overview of the la tte r w ill help to illu m in ate the County's f i r e problem. Simultaneously with the Wright and Clampitt Fires in Los Angeles County and the raging f i r e s of Tecate (Baja, C a lif o r n ia ), Son Diego County experienced a major f i r e of it s own~the Laguna F i r e . ^ The f i r e sta rte d on September 26, 1970, when a t o r r id wind blew a tree down across a hot line ig n itin g the dry grass ond surrounding weeds. The United States Forest Service, with mutual a id assistance from the C a lifo r n io Division of Forestry ond every other avoiloble f i r e fig h tin g unit in the County, fought in tre p id ly . However, a fte r several hours and the destruction of some 30,000 acres end a multitude o f homes, additional help had to be requisitioned from the states of Arizona, New Mexico, ond Utoh. The f ir e continued to spreed u n til it was extinguished on October 4, 1970. When the last modicum of sparks had been extinguished, the results were a loss o f : (1) 383 homes ($5.7 m i llio n ) ; (2) 1,200 other structures ($3.5 m i l l i o n ) ; (3) 225,500 E s t a t e of C a lif o r n ia Division of Forestry, C a lifo rn ia Aflame, pp. 18-21. ocres of trees end other vegetation ($30 m i l l i o n ) ; (4) 1,000 acres of fence and public u t i l i t y f a c i l i t i e s ($1 m i l l i o n ) ; (5) small dams (S3 m i l l i o n ) ; and (6) bridges and roads ($600,000).^® When the recovery costs were projected, the f in a l fig ure was in excess of $100 m illio n . Thus, a heightened awareness of the importance of the area of f i r e protection in Son Oiego County wos born. The problem in b rie f is as follows. 1. San Oiego County has a m u l t i p l i c i t y of local governmental agencies providing f i r e protection few of which are large enough in terms of geographic ju ris d ic tio n and broadness of tax base to operate e f f i c i e n t , modern f i r e services. At present there ore 18 special f i r e d i s t r ic t s , 13 c i t i e s , three special service areos, two areos under contract with the C a lifo rn ia Division of Forestry, and several in d u s tria l and m i l i t a r y units providing f i r e p ro tectio n . 8ecause of the m u l t i p l i c i t y of units, there is a great deal of duplication of f i r e services such as maintaining sim ilar programs, equipment and 21 personnel requirements. 20lbid. 21Annua I Report of Financial Transactions Concerning Special D is tric ts of C a lifo rn io , Fiscal Year 1970-1971, pp. V I - V I I . I 16 2. Lock of coordination of leadership is a major problem. This conclusion was derived o ffe r interviews with several prominent f i r e ch iefs in San Diego, Los Angeles and Contra Costa Counties. The m u l t i p l i c i t y of agencies/ coupled with a drive for each d i s t r i c t to maintain some form of commun i ty autonomy/ has led each d i s t r i c t to view th e ir problems os being unique and d iffe re n t from problems of neighboring d i s t r i c t s . This problem hos been perpetuated by a lock of leadership on the port of the San Diego County Board of Supervisors. There has been a lock of enthusiasm fo r developing means of coordination for the County's urban governments. 3. Psychological and p o l i t i c a l b a rriers to communication ore also important. In some areas of the County, p o l i t i c s hove prevented d i s t r i c t s from consolidating services. Toxpeyers and f i r e chiefs fear one d i s t r i c t won't pay for its f a i r share. P o lit ic a l leaders and volunteer members of the various boords ond commissions fear a loss of personal p restige. F in a lly , there is a fear on the port of many d i s t r i c t chiefs thot jobs ond securi ty will be threatened. This conclusion wos derived from personal interviews with prominent f i r e chiefs throughout San Diego County. The conclusion was 17 loter confirmed by those chiefs ot e Fire Chiefs' Association monthly meeting in October 1972. 4. To few people's surprise, the f i r e service is olmost emasculated by tra d itio n a lis m . It is one of the most tro d itio n laden of a ll governmental services. The reason for th is is that the public has been quite apathetic about the role of the f i r e service. For the most pert, the public scarcely remembers that the service is in existence u n til they observe flames. At least th is has been the trend u n til recently. Nevertheless, the proposed Wotson Amendment (even though it fa fle d to pass during the November 7 general e le c tio n ) , with its progrom to reduce property taxes and to increase e ffic ie n c y in local governmental operations, mokes it seem os i f the tid e has changed. 5. Urban growth has played a major role in expanding San Oiego County's f i r e problems. For example, 50 percent of a ll the population gained in 22 Southern C a lifo rn io in 1971 was in San Oiego County. It is also worth nothing that 69 percent of the County's population is under the age of 55 (the United States average is 64). Twenty-five percent ^Son Oiego Un i on-Tr i bune, August 13, 1972. 18 of oil construction in Southern C a lifo rn io nos in San Oiego County; the c it y of Son Oiego is ranked f i f t h in the country fo r th is a c t i v i t y . Two In fiv e adult San Diegans are college educated, ond 27 percent of the fa m ilie s have income over $15,000. These foctors a ffe c t the e ffic ie n c y of the f ir e services in as much os they c le a rly indicate how urban developments have dictated a new and expanded approach to solving the County's f i r e problems. As a re s u lt, for example, the c it y of San Diego is cu rren tly studying i t s capocity to extinguish f i r e s in high-rise buildings. Purpose of the Study The purposes of th is study are to take an inventory of a l l San Oiego County's f i r e resources; to analyze how these resources are cu rren tly being u t i l i z e d ; ond to recommend a strategy of change that w ill improve the ov erall e ffic ie n c y of the County's f i r e protection system. Research Design Since the f i r e system for San Oiego County has many sp ecific components eoch of which needs to 2 3 1bi d. I 19 be examined in d iv id u a lly , th is study w ill employ an inductive approach while u t i l i z i n g open systems theory as a tool leading to o synthesis of the various components. Open Systems Theory attempts to explain the functioning of systems by examining these systems u t i l i z i n g four primary types of v a ria b le s : input, through-put or process, output ond feedback. An explanation of these variables is advanced in the follow ing paragraphs. Input Voriables Insofar os th is study is concerned, input variobles w ill include a l l resources which ore employed in the d e liv e ry of f i r e services fo r each respective f i r e d i s t r i c t or service area. Two p a r t ic u la r ly important input v a ria b le s --to x e s and purchasing— ore discussed fu rther below. Tex Variable According to Chief A. V. S treu li of Contro Costs Consolidated Fire D is t r ic t , there may be a direc t c o rre la tio n between high tax rates ond the amount of resistance to some forms of reorgonizotion. A s im ila r explanation is advanced by most f i r e ch iefs in Son Diego County. Therefore, they w ill went to i n i t i a t e some form of change so that t h e ir p a rtic u la r 20 d i s t r i c t * w ill not suffer o loss of id e n tity end become engulfed by the Sen Oiego Ronger Unit of the Division of Forestry, es the le t t e r is viewed by mony es being eble to operete more cheeply due to Stete subsidy ond lower monpower costs becouse they don't extensively tre in t h e ir personnel to extinguish stru cturel f ir e s . Purchosinq Vorioble The oree of purchesing is often considered en element of co n tro l; thus, the hendling of such e c t i v i t i e s moy hove e r e l e t i v e l y high degree of beering on the u n i t 's fis c e l menegement. Process Voriobles Process voriobles ore those voriebles which in terpley in the d e livery of services. They ere the voriobles which con best be evoluoted by observotion since, in most coses, rules requesting them ore odministered on on informo! rother thon formol bosis. These voriobles ore p rim o rily focused around the o v o i l a b i l i t y ond monogeobiIity of equipment ond personnel. Therefore, voriebles in the through-put, or process, phase of the study w i l l be treated so os to determine the stotus end o v o i l a b i l i t y of e x is tin g personnel ond equipment os opposed to the needed I 21 personnel ond equipment. The voriobles coming under the process cotegory ore described below. Personnel. Troininq ond Equipment In ony evaluation o f f i r e services, train in g ond the number of personnel ovoi(able ore key elements in the determination of e f fic ie n c y . There is e d ire c t c o rrela tio n between the number of personnel employed ond the scope of tra in in g ond the O s population of the oreo being serviced. This c o rre la tio n exists due to the increosed tax base which provides the finonciol resources necessary to sustain these elements. Mutuo I Aid Mutual oid is o device designed to provide additional outside assistance from neighboring communities when the need exceeds the community's a b i l i t y to respond. This device is voluntary in nature ond bosed on the premise of re c ip ro c ity between un its of government. ^*This assumption was derived os a result of a personol interview with A. V. S tr e u li, Fire Chief of the Contro Costa Consolidated Fire D i s t r i c t . 22 Yehezkel Oror advocates the purely rational approach in the cxomlnat ion of variables coming under O C the process category of systems analysis. According to Oror, there are six phases included in the purely rational approach. They are lis te d below. 1. Establish a complete set of operational goals with r e la t iv e weights a llo ca ted to the d iffe re n t degrees to which each may be met. 2. Establish a complete inventory of resources with r e la t iv e we ight s. 3. Prepare a complete set of a lt e r n a t iv e cnoices a v a ila b le to the policy maker [in th is case the c itiz e n s of each f i r e d i str i c t ]. 4. Prepare a complete set of predictions of benefits and costs for each a lt e r n a t iv e . 5. Calculate net expectations for each a Ite rn a t iv e . 6 . Compare net expectations and id e n tify the a I t e r n a t i v e ( s) with tne highest net expectat io n .26 ^Yehezkel Dror, Pub I ?c Pol icymaking— Reexam i ned (San Francisco: Chandler Publishing Company, T9 6 8), pp. 132-40. 2 6 Ib id . , p. 133. 23 Dror re a lize d that it was most d i f f i c u l t to derive a purely ratio n al decision, even when a ll the phases of the purely ratio n al approach were followed, as it was impossible to lis t a ll the a lte rn a tiv e s a v a ila b le . Therefore, he suggested that any a lte r n a tiv e was purely rational when the resources u t i l i z e d to select the a lte rn a tiv e had been used to th e ir f u lle s t capacity. Thus, th is phase of the study w i l l be conducted from the standpoint of pure r a t i o n a l i t y es defined by Yehezkel Dror, Output Variables For the purposes of th is study, output varia b le s w ill include those processes which determine adequacy in the delivery of services in times when f i r e threatens to destroy lives or property. Therefore, th is study w ill attempt to evaluate variables such as the procedures for dispatching of personnel and equipment and the average amount of time i t takes to respond to an emergency f i r e s itu a tio n . 2 7 1b i d . I 24 Feedbock Voriobles Feedbock voriobles ore those processes which f o c i l i t o t e o determinetion of how well the primory goo Is ore being met. In essence, then, feedback voriobles w ill oid in determining s a tis fa c tio n of the c lie n t e le of e sp ecific system. The feedbock variables used to analyze th is phase w ill be discussed below. Autonomy Vorioble The f i r e service, in general, is tr a d itio n loden and hos operated over the years in a highly independent manner. The combination of its tr a d itio n a l heritage end its high degree of independence underlies the reluctonce end opprehension of the f i r e service when change is mentioned or suggested. Qoords of directors of the various special d i s t r i c t s have accustomed themselves to autonomous operation, ond they, too, look at change es a th reat to t h e ir autonomy. Procedures A questionnaire (see Appendix A) consisting of 30 questions was moi led to each f i r e c h ie f in San Diego County's 21 f i r e d i s t r i c t s , three service areas, end 13 c i t i e s . Although the m ajority of the questions were open-ended, ctosed-end questions were oI so used on severel occasions. The questionnaires were sent out on July 8, 1972. Nevertheless, to insure that a ll questions had been f u l l y answered, each c h ie f was interviewed in person w ithin three weeks a f te r the questionnaires were mailed. In an attempt to obtain as much of the required dota as possible, a decision was made to u t i l i z e a data guide provided by the C itizens Advisory Committee. The guide was the product of a jo in t e f f o r t by the former Committee end the Technical Advisory Committee of the San Diego County Fire Chiefs' Association. It ou tlin es the major areas of in terest end potential problems w ithin the f i r e services. Items on the guide are arranged in such a manner as to provide a degree of co ntinuity of subject matter. Questions were phrased in such a manner as to allow the respondent as much freedom as possible in his response. An attempt was made to avoid questions that could be answered in s im p lis tic yes or no terms. It was f e l t that such responses would not provide sp ecific data and would place too much emphasis on in te rp re ta tio n as the vehicle for ana ly s is . 26 It should be noted ot this juncture thot the questionneire, es designed, el lows consideroble freedom of response end, es e re s u lt, meny of the individuel responses proved d i f f i c u l t to c le s s ify . S im ile rly , the questionneire hed to be designed es e generol vehicle for deto gethering, recognizing thet eech f i r e egency hos its own idiosyncresies. The level of g e n e ro lity of the quest?onneire end time constreints imposed on the study e f f o r t mede c r i t i c e l inspection of meny items imprecticol. Thus, the dete to be reported on below w ill center on structurel f i r e conditions w ithin Sen Oiego County. D e fin itio n of Terms The following d e fin itio n s heve been provided so es to minimize misunderstendIng end confusion of concepts end lenguoge. 1, Annexet ? o n - Annexet? on is the t e r r i - to rie l obsorption of incorporeted or unincorporeted lends or other e n t i t i e s by en ex istin g unit of government. 2. Con so Ii dot i on. — Consoli dot i on is the in teg retion of two or more units of locol governments which ere r e l e t i v e l y equel in steture. 3. Incorporated area^ —-This is an area which has been incorporated as a ci *y. 4. Joint powers - oeneral. — If authorized by th e ir le g is la tiv e or other governing body, two or more public agencies by agreement may jo in tly exercise any power common to the contracting p a rtie s , even though one or more of the p a rtie s may be located outside the state ( r e f e r to Gov't. Code, Sec. 6502). The agency or e n t it y to administer or execute the agreement may be one of the parties to the agreement or a commission or board constituted pursuant to the agreement (r e fe r to Gov't. Code, Sec. 6506). The (adm inistering) agency is an enti *y separate from the p a rtie s to the agreement (re fe r to G ov't. Code, Sec. 6507). 5. Local Agency Formation Commi ssion.— Th i s agency is mandated by State Statutes in each county to encourage orderly formation and development of local governmental agencies based upon their relevancy to local conditions and circumstances, while at the same time f a c i l i t a t i n g the discouragement of urban sprawl. 6 . Local government. —-Th?s pertains to a legal governmental unit or e n t it y which is authorized to pass ordinances having local application, to levy toxes locolly, ond which ho# power to e ffec t the locol community c it iz e n r y . 7. Mutuol o?d«— This is o device designed to provide ossistonce from neighboring communities when the needs of o p o rtic u le r f i r e community exceed its copocity to odequotely respond to on emergency ( f i r e ) . 8 . Pre-suppress ?on oct i v i t ? e s . - -Thesc o c t iv i t ie s ore designed to m itigote or prevent the p o s s ib ility o f o f i r e occurring. They normolly involve in vestigoting the possible oreos where f i r e moy occur, such es home w iring, outmoded or vocoted houses, etc. 9. Technicol Advisory Comm i t te e . — The Technics I Advisory Committee is composed of members of the Son Oiego County Fire Chiefs' Associotion who hove been vested with the re s p o n s ib ility of serving os o lioison between locol c itiz e n s ond locol f i r e ogenc i es. 1 0. Un incorporoted oreos.— These ore oreos which ore not incorporoted os o c it y . Remoinder of the Study Chopter I a r t ic u la t e s the problem, the purpose, the research design and the scope of the study. 29 Chapter II reviews lite ro tu re referent to concepts end status of local governments in the United States, c r i t e r i a fo r assessing local governments, and a lt e r n a t iv e approaches to local governmental organizations. This chapter also provides a discussion of the a lte r n a tiv e s as they re la te to f i re protect i on. Chapter I I I provides a presentation on the findings of the data acquired from the questionnaires and personal interviews with the various f i r e chiefs in the County of Son Oiego. Chapter IV presents an analysis of the data. It also presents a number of recommendations on what can be done to a ll e v ia t e some of the problems a r tic u la te d in the preceding chapters. Chapter V summarizes the im plications and conclusions of the research. CHAPTER I I REVIEW OF LITERATURE This chapter reviews lit e r a tu r e related to concepts, c r i t e r i a and the status of local governments in the United States with special emphasis on local government in San Oiego County, p a r t ic u la r ly its f i r e services. Concepts and Status of Local Government fn the ~U5i+c"3 STal+cs American local governments ore currently in severe trouble. While they were o r ig in a lly well designed to accommodate the simpler needs of e a r l i e r times, they have f a ile d to accommodate this country's rapid change from a highly agrarian to a highly urban society,^ The theory of locol government, in its orig in a l conception in th is country, was influenced by Thomas Jefferson end loter further advanced by ^Committee for Economic Development (C .E .D .), Modernizing Local Government (New Yorks C.E.D. Publishers, 19&6), p. 8 . 30 31 O President Andrew Jackson. According to Jockson, "Democracy/ if it is to be successful, must fin d its strength in the individual farm er." The concept at that time was p e rfe c tly v a lid in that about 95 percent of the country's population was rural and s t a t ic . Consequently, a m u l t i p l i c i t y of local governments was quite workable or e f f i c i e n t since the problems of one government seldom overlapped or in te rfe re d with those of on adjoining government. However, as the industrial revolution began to reach its peok, many of the small formers began to relocate in large urban areas (th is trend reoched its peak during World War I I ) . Thus, regulation of such problems as heolth, education, tronsportotion, w elfare, and ch ild labor laws made the problems of intergovernmental re la tio n s more conspicuous.^ In the United Stotes there ore cu rren tly some 80,000 locol governments. Of th is number less o Charles R. Adrian, Governing Urban America; Structure, P o litic s and Administro+Son (New York: McGrow-H! IT Book Co.',' In c., 1955), p. 64. 3J_bid., pp. 50-53. ^Roscoe C, Martin, The C it ie s and the Federal System (New York: Atherton Press, 19b 5), pT 21 32 than h a lf have populations as large as 1, 0 0 0 ; less than 10 percent have populations as large as 1 0, 0 0 0; and less than 1 percent have populations of 1 0 0 ,0 0 0 or more.^ This c le o r ly indicotes thot the mojority of these locol governments ore not s u f f ic ie n t ly lerge enough e it h e r in population, size, or taxable resources to apply modern technology or u t i l i z e economies of scole insofar os solving many of today's problems, much less tomorrow's problems. When one thinks of the number of local governments now in existence, he is probably opt to osk, "Whot should be the proper c r i t e r i a for determining the v a l i d i t y of a p a rtic u la r local government?" According to the Committee for Economic Development (C .E .D .), before a locol government con expect to meet the needs for which it was creoted, it must meet four minimum q u a lific a tio n s : size, ratio n al structure, p o litic o ! unity, ond a u th o rity .^ Harold L, Wilensky ond Charles N. Lebeaux, Industrial Society and Social Welfare (New York: ftusseI I Sage Foundation, 19^8 ), pp. 50-89. ^C.E.D., Modernizing Local Government, p. 11. C r it e r ia for Assessing Locel Governments Si ze The question of size hos been a topic of discussion for hundreds of years. A ris to tle believed that the law of size lim ita tio n should be regulated refe re n t to both bigness as well as smallness. According to A r i s t o t le , the law of size lim ita tio n so apparent in nature was equally applicable to c i t i e s , and that a c i t y might be quite useless because of bigness or smallness. He wrote, M A c ity that is too small has not in i t s e l f power of s e l f - defense" (in our time, this would meon a b i l i t y to provide adequate services for its co n stitu en ts). He went on to say: One that is too large . . . can provide defense, but it would then become o nation ond it [th e c i t y ] would then hove d i f f i c u l t y trying to accommodate a form of government to i t . ' Leonardo da Vinci and Ebenezer Howard believed that the size of a local government should be lim ited to Q 25,000. They saw th is os the necessary number to be ^ A risto tle , A Treatise on Government. Book V I I , Chapter IV (New York: Everyman's L'brory E d itio n , 1947), pp. 209-10. ®Lewis Mumford, The C ity in History (Horcourt, Brace ond World, 1961), p. 180. able to employ adequate personnel and to operate from economies of scale, Arthur Millspough, w ritin g in 1936, also indicated that 25,000 should be the necessary population base of a total government i f it were to have an adequate s t a f f and perform enough functions to s o tis fy its constituents.^ The C.E.D. sets no sp ecific c r i t e r i a as fa r as size is concerned, but it does state: Each local unit must be s u ffic ie n tly large enough in population, geographic ju ris d ic tio n ond f * ----------------- A moke long-range p professional stof inoncial resources to ons, to o ttro c t ' and to manage modern serv i ces, 10 According to Paul K. Hott ond Albert J. Reiss, J r . , there remains o residual category of a t t r ib u t e s , desirable and undesiroble, which ore sometimes mentioned as c r i t e r i a of optimum size for local governments.^ Some of those ep ith ets include provincialism , frie n d lin e s s , community p a rtic ip a tio n , stondordizotion, anonymity, s tra in , spontaneity, and ^Arthur Millspough, locol Democracy end Crime ControI (Brookings Institute^ 1^36}, p^ 6 6. ^ C . E . D . , Modernizing Local Government. p. 1 6. ^ P o u l K. Hott ond Albert J. Reiss, J r . , C itie s and Society (New York: Crowe I I-Col Iie r Publishing Company, 1961), pp. 759-63. 35 economies of scole. Nonetheless, no single set of c r i t e r i a would receive universal acceptance. According to the Advisory Commission on In te r governmental Relations, the primary c r i t e r i a which has received widespread acceptance are the follow ing: 1. The governmental ju ris d ic tio n responsible for any service should be large enough to enable the benefits from that service to be consumed p rim arily w ithin that juri sd iction. 2. The unit of government should be large enough to permit r e a liz a tio n of the economies of scale . 12 In sum, the author has concluded that there is no universal c r i t e r i a which establish an optimum size for local government. Nonetheless, the author has adopted the above c r i t e r i a to serve as a guide for those units of local governments which may be operating from the standpoint of o lim ited budget. Rational Structure The structure of local governments has encountered a series of ottocks in recent years. Some of the attacks have been without substance; 12Adv isory Commission on Intergovernmental Relations ( A . C . I . R . ) , Performance of Urban Functions: Locol and Areawide (Washington, D .C .: A .C .I.R . Contract M- 21, September 1963), pp. 41-46. I 36 however, th is has been on exception rother thon e r u le . One of the most frequent ottocks has been focused on the lock of coordination or consolidation of services provided by locol governments. The primory reoson for th is is that the number of locol governments hos become so numerous ond t h e ir tax bases so smoll that they can no longer meet the needs of th e ir constituents. The adm inistration of resources is fragmented to the point that locol governments hove been overwhelmed by the duplication ond overlapping of services. This is p a rt ic u la r ly importont when one considers the r e l a t i v e l y lim ited amount of resources ovoileble to the local 1 3 governments in th is country. For example, there were 205 d iffe r e n t d i s t r i c t s in San Oiego County in 1970, some 50 d iffe r e n t independent school d i s t r i c t s , and when the 13 c i t i e s ore added, the number of local governments in the County exceeds 2 6 8 . ^ Two-hundred s ix ty -e ig h t locol governments may not seem like a ^ C . E . D . , Modern!zino Local Government, p. 1 1. ^Annual Report of Financial Transactions Concerning Speciol D is t r ic t s of C a lifo rn io , Fiscal Year 1970-1971, pp. V I - V I I . 37 large number for on area of 4,255 squore miles. Nevertheless, i f the number were to be computed on a per capita basis for the County's 1,411,767 people, we would find thot there would be a locol government of some kind for every 5,269 paople. The above figures were token from the San Picoo County Government, Yeorly B u lle tin , of April 1972. In the State of C a lifo rn io there ore some 5,750 separate locol governmental units. In oddition there ore 110 regional d i s t r ic t s , 250 state and federal boards and commissions, 18,000 elected o f f i c i a l s ond 1,400 federol gron t-in old programs. This brings the totol number of governments in C alifo rn ia to over 7,000. Upon observing these s t a t is t ic s , Lt. Governor Ed Reinecke, who is heading the Steering Committee to Reorganize Locol Governments in the State of C a lifo r n ia , stated thot "this shows we are victims of over-governmentoIizotion in the State of C alifo rn io ."^'* Thus, few of these locol governments con operate from economies of scale, ond are not able to employ people with the highly specialized s k ills v it a l to the solution of most governmental problems. San Diego Union-Tribune, November 15, 1972. An appropriate question at th is Juncture would be, "Whot is meant by the term 'ra tio n a l stru ctu re '? " According to the C.E.D., rational structure is a ttain ed when a p a rtic u la r government has a repre sentative governing body concerned with policy decisions and a single chief executive to secure unity in adm inistrative operations , ^ 6 No motter how it is defined, it seems appropriate to state that a governmental organization, or any organization for thot motter, w ill only be oble to o tto in economic r o t io n o lit y when there is a minimum of duplication and overlapping of services and ad m inistrative r e s p o n s ib ilitie s , ond when the organization has the capacity to operate from economies of scale ond provide f a c i l i t i e s for long- 1 7 ond short-ranged plonning. PoIi t i coI Un ? ty P o lit ic a l unity in America hos become one of the most complicated, misunderstood and confusing phenomena of our time. This is evidenced by the ^ C . E . D . , Modernizing Local Government, p. 16 1 ? I bi d. . p. 17. I 39 responses to our involvement in the V iet Nam War, dissent ion over forced integration ond bussing of school children to insure racial e n uo lity, the d iffe r e n t philosophies and opinions regarding issues re la te d to equal protection of the low, a ir pollution, ond welfare for the aged, poor or needy. When one re a liz e s the i n f i n i t e d iv e rs ity of th is country, it is not d i f f i c u l t to understand why our so-called "melting pot" hos never f u l l y melted. The sheer numbers of d iffe r e n t groups of people who come from d iffe r e n t countries ond who hove d iffe r e n t p o l i t i c a l , economical, social, e t h ic a l, or re lig io u s backgrounds hove made integration d i f f i c u l t . Put a ll these foctors together and look at on urban area in which these people may live (be it large or small), and it con then be seen how the customs, tr a d itio n s or mores of one group of people can c o n f lic t with those of another group of people. Thus, problems of coordination become important. These factors must be considered in an attempt to formulate governments designed to work in the best interest of a ll constituent groups. According to the C.E.D., in order for a governmental e n t it y to achieve p o l i t i c a l unity, the population that it proposes to govern must have enough common in terests, problems, and communications to q u a lify as a p o l i t i c a l e n tity , and be able to produce p o lit ic o l leadership responsive to active c itiz e n c o n c e r n s . A c c o r d i n g to the A .C .I.R ., this means that every unit of government should be responsible fo r a s u ffic ie n t number of functions so that it provides o forum for resolution of c o n flic tin g in terests, with s ig n ifican t re s p o n s ib ility for balancing governmental needs end r e s o u r c e s . ^ Thus, one may conclude thot in order for the m ajority of local governments to achieve the p o lit ic o l unity thot is so v it a l to its operation, thot is i f they ore to operote with both o minimum of c o n flic t and from economies of scale, a new type of leadership is requ i red. Anders Richter would put th is leadership in the hands of what he c o lls the "ExistentioI E x e c u t iv e ." ^ According to Richter, the E xis ten tial 1®J_bi_d., p. 16. 19A .C .I.R ., Perf ormence of Urban Functions: Local and Areawide. pT 42. ^Anders Richter, "The E x is ten tial Executive" in the reoder Towards Tomorrow1s Organ?zat ions t Challenges and P o s s ib ilitie s by Jang Sup Jun and Bruce Storm, Sec. 3, pT 57 tunpubli shed/. Executive is a leader or administrator who is able to transcend his own personal experiences in order to coordinate or unite large and diverse groups of people who may have d iffe re n t p o l i t i c a l , social, 21 economic, or e th ica l backgrounds. This suggests that the public adm inistrator of today must be much 22 more adaptive than those of the past. Today's administrator must be able to understand the relevancy of the times ond the re la tio n s between the roles of his organization and those of other organ7zations. Too mony public admin7s tra to rs have placed a ll th e ir time and e f f o r t s attempting to know o il there is to know about th e ir p a rtic u la r organizations without being able to equate the in t e r - relotiveness of th e ir organization w ith other organizations which seemingly ore externol to th e ir own. Such is the case in local governments today where vested interests have overruled the w ill of the m ajo rity . The intention here is not to disparage or intim idate the leader or administrator of any p a rtic u la r local government. Nonetheless, it seems 21 Ib id . 220ovid S. Brown, "Shaping the Organization to Fit the People," Public Administration for the 19701s by Bruce Storm, ftichard Harris end Jang Sup Sun (unpub!i shed). I 42 imperative to point out the p i t f a l l s of having channel vision when attempting to appraise the status of local governments. No matter what perspective one may take to observe or analyze local governments, it is important to re a liz e the necessity for under standing the p o lit ic a l values that people hold. This is essential when attempting to unify diverse groups on a wide scale. Thus, th is is the ratio n ale for the inclusion of p o lit ic a l unity as one of the elements for establishing c r i t e r i a for e f fe c tiv e locol governments. Aut hor ? ty When a local government has been given the re s p o n s ib ility for solving a number of urban problems, each such government must hove legal a u th o rity odequote to cope with the problems for which it is responsible and to enforce its 0 1 decisions. This means, for example, thot i f a locol government has the re s p o n s ib ility of solving a number of problems, such as crime, a i r p o llu tio n , e t c . , it must have the au th o rity to estab lish ond ^^C.E.D,, Moderniz i no Local Government, p, 16. 43 enforce those reguletions which w ill solve those problems. Furthermore, it eI so meens that the local government should have the power to levy and c o lle c t those resources which w ill f a c i l i t a t e the necessary resources to solve the problems. Nonetheless, one of the most e f f i c i e n t ways of determining the au tho rity of locol government is to f u l l y understand ony laws regulating its existence. Since the moin focus of th is study is the locol f i r e deportments in San Diego County, a synopsis of laws regulating them is found in Appendix B. In addition a synopsis of insurance ratings for f i r e protection is advanced in Appendix C. A fte r reviewing the c r i t e r i a fo r assessing local governments, it is helpful to consider some of the a lt e r n a t iv e models os advocated by many a u th o ritie s on local governments. Therefore, in the following paragraphs the outhor has provided a summary of several prominent models of recent times. Summary of A lte rn ativ es Local governments in San Diego County, and a l l of America fo r that matter, are now on t r i a l and th e ir furies ore ready to pronounce the defendants g u ilt y . The g u ilt y verdict seems to emonote from e process of duplication and overlapping of services at costs most taxpayers are e ith e r u nw illin g or unable to pay. Although these governments were well designed to meet the needs of much e a r l i e r times, they are unquestionably i l l suited to cope with the new urban problems and expectations imposed upon p r a c tic a lly a ll local governments throughout th is country. Their a b i l i t y and w illingn ess to adopt to change has been so dormant or r e c a lc itra n t that thei role in the American Federal System fo r the future i very nebulous. In short, American c itiz e n s are becoming very disenchanted with local government, and they have good reasons to be. The reasons, os the C.E.O. pointed out, are: 1. The direct expenditures rose from 120.1 b i l l i o n in 1952 to 145.1 b i l l i o n in 19b2, and by the end of 1972 the la t t e r amount is expected to rise to at least $90 b i l l i o n , 2. American crime rates in ru ra l, urban and suburban areas are high, 3. Several counties with less per capita wealth have lower infant m o rta lity rates and longer l i f e expectanc i e s .24 2 4 lb id , . p. 8 45 Another reoson is thot locol governments hove become too dependent upon property toxes to support its r e s p o n s ib ilitie s even though some of the courts, such os the C o lifo rn io Supreme Court, hove ruled that the u t i l i z a t i o n of locol property taxes to support such o c t i v i t i e s os schools is unco nstitutional. Notwithstanding is the foct that the proposed Watson Amendment in C o lifo rn io threatened to lim it the use of money extrocted through property toxes fo r other 25 specie! services. It appears thot unless state le g is la tu re s revise th e ir c o n stitu tio n s in such o way that local governments will be encouraged to revomp th e ir structures, the ever-expending arms of the federel government will continue to serve os the catalyst fo r change. According to Charles R. Adrian, several models of reorganization appear to be appropriate fo r improving local governments. They are annexation, m etropolitan federation, functional 26 consolidation, and city-county consolidation. 2^Read the arguments fo r and against Proposition 14. ^ C h a r le s P. Adrian, State and Locol Governments: A Study in the P o l i t i c a l ProcTss (New York: McGrow-MiI I Book Company, In c ., I9 6 0 ), pp. 247-51. 46 AnnexatIon According to Joe T. Kim: Annexation is the absorption of t e r r it o r y by o c it y or d i s t r i c t with the purpose of providing better service, operating government economically through the elim ination of duplicating services, and the s im p lific a tio n of a ll elements of local governmental o p e ra t i o n s . 27 In recent years more ond more locol governments hove gone to annexation as a technique for improving th e ir services. For example, 152 c i t i e s in the 5 ,OCX) or more population range completed annexations in 1945.2® Nonetheless, 787 m u n ic ip a litie s of 5,000 or more residents used th is technique in 19^ 7 .29 Annexation proceedings may be in it ia t e d by four primary techniques. They ore: (1) by an ordinance enacted by the council or governing boord of the annexing c it y or d i s t r i c t ; (2) by o favorable vote by the e le c to ra te of the i n i t i a t i n g c i t y ; (3) by a special act of the state le g is la tu re ; and (4) by on order of 0 court. 2 7 Joe T. Kim, A Study of the ReoroanI setion of Local Government Structure (D is serta tion presented 4o the Graduate School of the U niversity of Southern C o lifo rn io , Februory 1972), pp. 61-62, 2®John C. 8aI lens ond Henry J. Schmandt, The Me t rooo I is: It s peoo I e , Po I ? t ? c s and Econom ? c L ? Te." 2nd ed. (New York: Harper and Row Publishers, 1076J, pp. 284-87. 2 9 1 b id . 3 0 lbi d. . p. 288. 47 There ore several noteworthy advantages ond disodvontoges of annexations. The advantages are: 1. Annexation helps to elim inate the many overlapping layers of local government enabling them to better operate from economies of scale. 2. Annexation helps to reduce the costs of providing unnecessary f a c i l i t i e s and rendering services that previously were e ith e r non-existent or en ta ile d unnecessary outloys and operating costs. 3. Annexation helps to elim inate the inequity of services of two or more adjoining areas. ^ The disadvantages of annexation are lis ted be I ow. 1. Annexation does not provide an ever lasting cure in thot i t doesn't provide a solution where the area is in te rs ta te , and in some states where statutes prevent the integration of two or more oreos, e s p e c ia lly where those areas are in two or more count ies. 2. Annexation can be disadvantageous where the area annexed does not have a s u ffic ie n t tax base 31|<im, A Study of the Reoroan?zat ion of Local Government Structure, pp. 61-fe2?. 48 to adequately compensate the aree to which it is annexed for the added burden of additional services. 3. Annexation could mean a loss of id e n tity for the c itiz e n s of the p a rtic u la r oreo.32 When the advantages are contrasted against the disadvantoges, it appears that they outweigh the disadvantages. Nonetheless, i t appears that the best method of reorganization is the metropolitan federation consolidation. A discussion of i t is provided below. M etropolitan Federation According to Charles R. Adrian: Metropolitan federation is a two- t ie re d government: one area-wide to perform functions f i t t i n g into thot c la s s ific a tio n ond another for the local community to hondle functions of a more parochial in t e r e s t . 33 In order for th is plan to be successful, it would mean that such services os sewage disposal, water supply, f i r e protection, police protection, and planning should be provided on on oreo or metropolitan-wide basis. Such functions as gorbage 32 ib id .. p. 63. 33Adr ion, State and Locol Governments, pp. 247-51. I 49 c o lle c tio n end local street maintenance should be le f t to the local community. Metropolitan federation has been approximated quite successfully in such metropolitan areas as New Yorlt and Dade County and Miami, Florida. Miami and the 27 suburban c i t i e s have been able to re ta in th e ir local, individual id e n tity by providing minor local services, such as garbage c o lle c tio n and stre et maintenance, while yieldin g the major functions, such as sewage, water and planning, to o regional u n it. The obvious advantages of using th is approoch a r e : 1. It foci lit o t e s the capacity to provide on in teg ration of services throughout the metropolitan area based upon e f fic ie n c y , economy of scale, equ M y, ond long-range planning. 2. It f a c i l i t a t e s a government thot is close to its constituents by retaining psychological values through the preservation of community s p ir i t 34a I on K. Campbell, ed ., The State and the Urban Cr i si s (Englewood C l i f f s , New Jersey: fVenl !ce Ha I I , In c., 1970), pp. 63-65. I 50 of smoller suburbs os ogoinst the impersonality of the large-core c it y . A possible disodventoge of using metropolitan federation os a technique to improve locol governmental operations would be that in some cases it may create an additional unit of locol govern mental structure rather than reducing the number of local units; however, th is was not the case in Dade County, Functional Consolidation According to the C.E.D., functional consolidation is reached when two or more local governments performing a specific function pool or consolidate th e ir resources for that p a rtic u la r function. Thus, it creates a general purpose government to provide thot service from the stand- 35 point of better economies of scale. Functional consolidation has been recently approximated in Contra Costa County, C a lifo rn ia , where several locol f i r e agencies pooled th e ir resources for the purpose of providing better f ir e service while at the seme time operating from economies of scale. 3 5 c ,E .D ., Modern!z?no Local Government, p. 9 51 In order to understand the impact that metropolitan functional consolidation can have with respect to providing better services to a p a rtic u la r area, the author has provided in Appendix 0 a report that Chief A, V. S treu li (F ire Chief of the Contra Costa County, C a lif o r n ia , Consolidated Fire D i s t r i c t ) gave to the Seventy-fourth Notional Fire Protection Association (NFPA) Annual Meeting in Toronto, Ontario, Canodo, May 18-22, 1970, on the re s u lts of functional consolidation in that county. City-County Consolidation This approoch c o lls for an integration of the functions of the core c it y with those of the county, while at the seme time the county may re to in a p a rtia l id e n tity ond incorporated m u n ic ip a litie s moy remoin independent for local purposes. Generally speaking, however, the big differences between c i t y - county consolidation and federation are lis te d be Iow. 1. City-county consolidation establishes a single overarching local orea government in which the m ajo rity of a l l the resources for the p a rtic u la r area are c o lle c te d by a single ad m inistrative structure ond funneled into one general pool. They ore d is trib u te d from the stondpoint of o single adm inistrative structure, which elim in ates the many overlapping layers of government (Oovidson County, N ashville, Tennessee, is a clossic example of c i t y - county co nsolidation). This means that in a c i t y - county consolidation d iv e r s if ie d tax bases in the same orea ore equalized through the assessation ond c o lle c tio n of a single adm inistration, whereas in a federation eoch c ity , county, or d i s t r i c t retains 36 separate adm inistration for these functions. 2. City-county consolidation reduces the number of overlapping layers of government, whereas a federation may increase these numbers. There are several major odvontages to city-county consolidation. Joe T. Kim summarizes the advantages as: 1. Elim inating a ll the duplication of the same functions. 2. U t ili z in g ex istin g f a c i l i t i e s for c it y end county operations. 3. Economizing and saving taxpayers' money by u t i l i z i n g economies of scole. 36 Adrian, State and Local Governments, pp. 249-50. 53 4. One single structure of adminis tr a tio n with the c a p a b ility of producing close coordination. 5. Maximum u t i l i z a t i o n o f manpower ond noturol resources in tne c it y and county.37 Therefore, two major questions must be resolved at th is point. (1) "What ore the powers of the Board of Supervisors of a county in the State of C a lifo rn ia in reorganizing f i r e d i s t r ic t s so thot they may provide better services economically and e f f ic ie n t ly ? " These powers are presented In Appendix E. (2) "How do the above alte rn a tiv e s relate to f i r e ogencies?" This question is dealt with in the following paragraphs. AIterne t i ve s os They Relote Pi re Protect I on The a lt e r n a t iv e s advanced in the preceding paragraphs re la te to the local f i r e ogencies in San Olego County in the same basic manner as they r e la t e to other locol governments throughout the United States. This is p a r t ic u la r ly true os these fire agencies are local governments and like most local governments they are too large in terms of numbers 3 7 1bid. , pp. 248-49. 54 ond too smoI I in geogrophic oreo ond resources to e f f i c i e n t l y provide modern public services from economies of scole. For exomple, of the 18 f i r e d i s t r i c t s ond two service oreos in Son Diego County, none is s u f f ic ie n t ly lorge enough in scope of servico, toxoble resources, or geogrophic oreo to provide odequote f i r e service (os seporote e n t it i e s ) from economies of scole. Prior to 1964 o sim ilor s itu o tio n existed with the f i r e service in Contro Costo County, C o lifo rn io . Nevertheless, most of the f i r e problems in thot county were m itigoted through functionol consoIidotion (see Appendix 0 ). Son Diego County's f i r e problems could oI so be m itigoted through functionol consoIidot ion. This could be done on o county-wide or regionol bosis. Nonetheless, the most feosible woy would be to consolidote on o regionol bosis (the rotio no le for the l e t t e r is stoted In Chopter V). Son Diego city-coun ty f i r e consolidot ion could olso be ochieved with the consolidation of f i r e functions of the 13 c i t i e s , 18 f i r e d i s t r i c t s , end the two service oreos with those f i r e functions of Son Diego County. This could be done through some form of jo in t powers agreement (see Appendix B for d e t o i ls ) . The re s u lt would be on elim in o tio n of 55 the overlapping layer of government referent to f i r e service, equalization o f tax bases, and u t i l i z a t i o n of a single adm inistration which could provide better f i r e services from economies of scale. In the event that annexation is executed, it would probably mean the f i r e services of the 18 fir e d i s t r i c t s , 2 service areas, and such smaller c i t i e s as Encinitas, Del Mar, Imperial Beach, San Marcos, ond Vista could be annexed to large c i t i e s such os San Diego, Oceanside, El Cajon, or Chula Vista, as the la tte r are viewed as being s u f f ic ie n t ly large enough to operate modern public services. Again the re s u lt would be a curtailment of the overlapping layers of local government while f a c i l i t a t i n g a f ir e system which could provide adequate f i r e protection from economies of scale. F in a lly , metropolitan federation could provide a tw o-tiered government. An areo-wide government would perform f i r e and/or other functions which could best be provided county-wide rather than by individual c it ie s , d i s t r i c t s , or service areas, while ot the same time f a c i l i t a t i n g locol government which allows local communities to handle functions of o more parochial nature ( i . e . , street maintenance ond garbage c o lle c t io n ) . If th is was done, the 56 re s u lt would be e decreese in the number of locol governments in the County by at leest 21 since each of the 18 f i r e d i s t r i c t s ond two service oreos ond one volunteer ogency only provides one service. Conclusion In summary the author concedes that the ideal f i r e system for Son Diego County is county-wide consolidation of o il f i r e services. Nevertheless, because of the many p o lit ic a l b a rrie rs , it would be most d i f f i c u l t to consolidate a ll f i r e services under one system in a r e la t iv e ly short period of time. Therefore, the author hos recommended thot i n i t i a l consolidation be undertaken on a regionol bosis (while u t i l i z i n g any one of the obove lis te d a lte r n a t iv e s ) ond la te r be expanded county-wide. The ratio n ale fo r the obove recommendations has been advanced in Chapter V. I CHAPTER I I I PRESENTATION OF DATA This chapter addresses i t s e l f to the examination ond analysis of the data thot have been compiled from responses to the questionnaire. The questionnaire was sent to c it y f i r e deportments and f i r e protection d i s t r i c t s within Sen Diego County (see Figure 1 ). In addition to the questionnaire, personal interviews were conducted with the Chiefs of these various agencies or th e ir designated repre sentot i ves. The interviews became an essentiol port of the date-gathering a c t i v i t y , for they provided on opportunity to discuss the questionnaire and/or any other problem areas re la tin g to f i r e protection. S im ila rly , they allowed discussion of many areas that could not be e a s ily incorporated into a general questionnaire of th is type. With the exception of one f i r e department and most Noval units, a l l questionnoires were responded to and subsequent interviews conducted. Therefore, the dato re fle c te d herein present a 57 58 CITIES Cor Isbod Chulo Visto Coronodo De I Mor El Cojon Escondi do tmperiol Beoch Lo Me so Notional City Oceans!de Son Oiego Son Mercos Visto FIRE DISTRICTS AIp ? ne Bon i to-Sunny s i de Borrego Boston io Crest Enc ini tos FoI I brook Grossmont-HeIi x Lakes i do Lemon Grove Lower Sweetwater Montgomery Pi ne Vo I Iey Powoy FIRE DISTRICTS ( cont 5 nuedj Remono Rancho Santo Fe Santee Spr i ng Vo I ley SPECIAL SERVICE AREAS Joeumbo Ro i nbow Vo I ley VOLUNTEER Horbison Canyon DIVISION OF FORESTRY Ranger Unit Poumo Vo I ley OTHERS Convoir Aerospace Gulf General Atomic Navy In s ta lla tio n s FIGURE 1. DISTRIBUTION LIST OF QUESTIONNAIRE 59 comprehensive rather than to tal picture of structural f i r e protection w ithin San Diego County. Qucst?onno?re and Rationale tor its Contents In an attempt to provide as much of the requested data as possible, the researcher decided to u t i l i z e the data gu ideline provided by the C itizens Advisory Committee. The guideline was the product of a Joint e f f o r t by the C itizens Advisory Committee and the Technical Advisory Committee of the San Diego County Fire C hiefs' Association; it outlined the major areas of in terest and potential problems within the f i r e services. Questions were phrased in such e manner as to allow the respondent os much freedom as possible in his response. An attempt was made to avoid questions that could be answered in s im p lis tic yes or no terms. It was f e l t that such responses would not provide specific data and might produce too much emphasis on in te rp re ta tio n as the vehicle for analysis. It should be noted at th is Juncture that the questionnoire, as designed, allowed substantial freedom of response and, as a re s u lt, mony of the individual responses were d i f f i c u l t to c o rre la te . S im ila rly , the questionnaJre had to be designed as a 60 general vehicle for doto gathering, recognizing th at each f i r e agency has it s own idiosyncrasies. The general nature of the questionnaire ond the time constraints imposed on the study e ffo rt mode c r i t i c a l inspection of many items which were cal led for in the guideline t o t a l l y impossible. Thus, the data in the following paragraphs w ill center on an overview of structural f i r e conditions w ith in San Diego County. F ? nd i nqs In the paragraphs that follow , a synopsis of the re s u lts w ill be given for each of the questions u t i l i z e d in the questionnaire. Gcoqraphic Boundaries In inquiring about the geographic boundaries of the respective f i r e agencies, it was noted thot s tru ctu ra l f i r e protection ( c ity and d i s t r i c t boundaries) lie s predominantly in the western h a lf of the County. Some exceptions ore the Borrego Fire D is t r ic t and the Alpine, Pine Valley, Ramona, and Jacumba Fire D is t r ic t s . The d is trib u tio n of f i r e agencies c o rre la te s well with the d i s tr ib u tio n of the populace w ith in the County. 61 Viewing the e n tir e County egein we fin d thot c i t i e s end existing f i r e d i s t r i c t s comprise opproximeteIy one fourth the oreo, disregording m ilit a r y in s ta lla tio n s that encompass large areas along the coastline. S lig h tly over one h a lf the County is under control of other public agencies, i . e . , the Bureau of Land Management, State and Federal Park and Forest un its . C itie s and existing f i r e d i s t r i c t s ere generally provided f i r e services by th e ir own departments or by units under the State of C a lifo rn ia Division of Forestry. The remaining one fourth of the County is found situated on the periphery of ex isting c i t i e s or f i r e d i s t r i c t s , or is t o t a l l y surrounded by such agencies, creating islands. Brushiand protection for such areos is provided by the Division of Forestry under contract with the County although in coses of emergency the Division provides lim ited structural protection. These geographic area fig ures represent approximations os no precise figures were read ily a v a ila b le on areo covered or not covered by c it ie s or d i s t r i c t s . 62 Stations, Equipment, Population and Personnel The next series of questions dealt with the more basic and obvious parameters of f i r e protection, that is, the number of stations operated, breakdown of personnel, population of service area and equipment. For comparative purposes the reader is refe rred to Tables 1 and 2 which provide a quick and ready reference to these basic parameters. As subsets to this basic area of concern, an attempt was made to discover i f any changes were planned in any of these major categories. The following paragraphs bring out the resu lts. Fac ?I ? t ?es. — In the oreo of planned increases or major m odifications to existing f a c i l i t i e s , it was found thot 26 of the 36 respondents (72 percent) indicated that such increases were forecasted. Of these, 59 percent indicated that such changes were for the building of new stations. All of the proposed stations are scheduled for completion w ithin the next fiv e years. The remoining 13 percent indicated that modifications to ex isting f a c i l i t i e s ore plonned. Such modifications cover brood spectrums from such minor items os vehicle covers to extensive enlargement of a f a c i l i t y . These oreos of 6 3 TABLE 1 RELATIONSHIP BETWEEN CITY I « V e h ic le s Personn< A p prox. — — — — —— Popu- Number —— —— Name lo tio n S to tio n s Pumpers A e r ia l Misc. Full Part Cor Isbed* 15,500 1 3 - 2 18 1 Chu I a VI sta 72 ,00 0 4 6 — 8 70 1 Coronado 25 ,6 0 0 2 3 1 3 27 - DeI Mor* 4 ,5 0 0 1 3 1 5 6 22 El Co} on 57 ,0 0 0 3 5 1 8 56 8 Escondi do 4 2 ,6 0 0 2 4 1 2 40 - Imper^oI Beach 22,500 1 3 6 16 1 Lo Mesa 4 3 ,1 0 0 3 4 1 8 52 - Na t i onaI C i t y 5 1 ,0 0 0 2 4 7 50 6 3 TABLE 1 RELATIONSHIP BETWEEN CITY FIRE AGENCIES V e h Ic Ie » PersonneI 1971-72 Tox Rote Pumpe rs Ae r I o 1 Mi s c . Ful I Port Vo I . 1971-72 Budge t Asse ssed Vo I uo t T on s Secured Unse cured 3 - 2 18 1 7 191/072 62 /5 2 2 ,0 9 1 1.9 50 1.9 7 0 6 - 8 70 1 — 9 4 4 ,4 0 0 178/ 747,320 1.4 50 1 .5 0 0 3 1 3 27 - - 361/574 5 2 ,0 3 7 /7 1 8 1 .800 1.9 0 0 3 1 5 6 22 - 92 /4 0 5 17, 725,852 1 .050 1 .2 2 0 5 1 8 56 8 - 806/716 1 2 1 ,4 4 6 ,3 1 8 1.259 over. 1.4 5 5 o ver. 4 1 2 40 - - 69 0/0 00 9 8 ,1 9 3 ,9 1 6 1.610 over. 1 .6 1 0 o v e r. 3 - 6 16 1 19 228,366 2 7 ,7 9 9 , 745 2.306 1 .7 5 0 4 1 8 52 - - 670/446 9 3 ,1 7 4 ,6 8 5 1.490 1 .6 0 0 4 7 50 _ 647/309 5 8 ,7 2 6 ,7 1 3 1.6 20 1 .6 4 0 6 k TABLE 1 (CONTINUED Approx. V e h Ic Ie s PersonneI Nome Popu- lot ion Numbe r S ta t i ons Pumpe rs Aer i a I Mi sc. F u ll Par t Vo I . Oceans i de 45,400 4 5 7 56 Sen Oiego 700,000 35 51 10 115 713 San # Marcos 11,000 1 2 3 5 20 - Vi ste 40 ,00 0 3 4 6 34 V e h ic le s rep res en t e l l v e h ic u la r a p p a ra tu s ; pumpers liste< d e f i n i t i o n ; misee I Ieneous includes ombulances, rescue, brush r i g , « Insurence cla s s e s l i s t e d ere mejor c l a s s i f i c a t i o n s on I y ; d i s t r i c t may be c l a s s i f i e d d i f f e r e n t l y . F ire p r o t e c t io n f o r c i t i e s is provided out of government 6 4 TABLE 1 (CONTINUED Veh ic Ie s Personne1 1971-72 ### Tax R a t a * * * Pumper s Aer i a I Mi sc. F u l 1 Part V o l . 1971-72 Budget Assessed Va Iuat i ons Secured Unse cu re d 5 7 56 744,806 1 1 3 ,2 3 3 ,7 3 7 1 .9 9 7 o v e r. 1. 741 o v e r . 51 10 115 713 9 ,6 1 2 ,0 6 2 1 ,7 0 2 ,0 5 9 ,1 7 4 1 .8 0 9 1 .9 5 9 2 3 5 20 - 70,000 17,705,321 0 . 700 0 . 700 4 6 34 510,187 5 2 ,3 7 3 ,0 3 9 1 .1 4 0 1 .1 4 0 II v e h ic u la r opporatus; pumpers l i s t e d as per in d iv id u a l c h i e f ' s ludes ambulances, rescue, brush r i g , e tc . is te d are major c l a s s i f i c a t i o n s on I y ; in d iv id u a l areas w it h in c i t y or f f e r e n t I y . r c i t i e s is provided out o f government fu nd. I TABLE 2 RELATIONSHIP BETWEEN FI RE DISTRK a V e h ic le s Personnel Approx, ____________________ _ _ _ _ _ _ _ _ _ _ _ Nome Popu- 1 a t ion Number S ta t i ons Pumpers A e ria l Misc. Ful I Par A 1p i ne 4, 500 1 3 2 6 3 Bon i t a - Sunnys i de 6 , 0 0 0 1 2 3 12 — Borrego 1,800 1 1 5 4 - C re st 2,400 1 2 1 1 - Enc i n i fas 22 ,0 0 0 3 6 5 32 1 Fa 1 I brook 11 ,9 0 0 2 3 5 19 - G ross eo n t- He 1 i 5,5 00 1 1 — 9 - — Lake s i dec 3 0 ,0 0 0 2 3 6 20 4 Lemon G rovec 2 7 ,0 0 0 1 4 4 18 20 Lowe r Swee tw afer No Response to Q u e s tio n n a ire 6 5 TABLE 2 RELATIONSHIP BETWEEN FI RE DISTRICTS V e h ic le s 0 Personnel 1971—72 Tax Rote 1971-72^ Ins. Un se- Pumpers A e rio l Misc. F u ll Port V o l. Budget Closs Secured cured 3 — 2 6 3 28 72,000 — 0 .8 5 5 0 .5 1 9 2 - 3 12 - - 201,220 - 0 .8 7 3 0.0 71 1 - 5 4 - 19 88,883 - 0 .5 3 5 0 .4 9 9 2 - 1 1 - 25 46,600 - 1.258 0 .7 1 1 6 - 5 32 1 - 697,371 - 0 .9 2 4 0 .8 9 6 3 - 5 19 - 22 372,182 - 0 .7 5 9 0 .7 9 1 1 - - 9 - - 185,936 - 0 .3 8 8 0 .5 0 4 3 - 6 20 4 12 503,111 - 0 .7 8 6 0 .8 7 5 4 - 4 18 20 - 402,643 - 0 .7 9 4 0 . 8 1 0 to Q uestionn aire 44,954 _ 1.464 1 .4 0 3 66 TABLE 2 (CONTINUED) V e h ic le *® Personnel Appro*. Nome Popu- 1 at I on Number Stat i on* Pumpers A e r ia l Mi sc. Ful I Part Vo I Montgomery 1 9 ,0 0 0 1 5 2 12 7 1C P I ne Vo 1 1 ey 300 1 - - 4 1 - ie Romono 7,000 1 2 3 1 - 25 Roncho Sonto Fe 4 ,5 0 0 1 4 5 6 5 12 Son Morcos 11,000 1 2 3 5 20 - Sonteec 36,000 2 5 7 37 - 11 So 1ono 5,5 00 1 4 2 6 4 15 Spr ing Vo 1 1 eyc 41 ,0 0 0 3 4 6 37 1 — V I s t o c 40 ,00 0 3 — — — - - - 66 TABLE 2 (CONTINUED) Veh i c 1es° Pe rsonneI 1971-72b Budget Ins. Class 1971-72 Tox Rate Pumpers A e r ia l Mi sc. Ful I Part Vo I . Secured Un se cured 5 - 2 12 7 10 207, 585 - 0 .6 0 9 0 .7 1 0 - - 4 1 - 18 12,000 - 0 .4 8 5 0 .3 1 6 2 - 3 1 - 25 52,500 - 0.331 0 .3 2 4 4 - 5 6 5 12 147,830 - 0 .3 4 4 0 .4 0 4 2 - 3 5 20 - 137,000 - 0 .2 7 9 0 .3 0 3 5 - 7 37 - 11 713,679 - 1 .2 0 4 1.033 4 - 2 6 4 15 124,665 - 0 .5 4 6 0 .5 4 6 4 - 6 37 1 - 563,264 - 0 .9 9 2 1.047 — — — — — — 265,625 - 0 .7 2 7 0 .7 5 2 6 7 TABLE 2 (CONTINUED) Approx. Popu- Number 1 of i on Stot Ions V e h ic le s a Personne1 Nome Pumpers A e rio l Mi s c . Full Port Vo 1. Spec i o 1 Service D i s t r i c t s Re! n bow Vo 1 ley 600 1 3 — 15 Jocumbo 750 1 3 - 1 - 32 Horbison Canyon 1,000 1 3 1 12 Water Di s t r i c t A ff i I i o t e Poway 25,000 1 2 3 5 20 14 DI v i s f on of F o re s try Ronger Uni t 10 0,0 00 24d 30e 76 Seos. In - 206 9 0 mot. 208 Poumo Vo 1 le y c 1,300 1 1 - 4 - 4 6 7 TABLE 2 (CONTINUED) Vehicles® PersonneI 1971-72 Tax Rote Pumpers A e r ia l Mi s c . FuI I Part Vo I . 1 9 7 1 -7 2 ° Budge t I ns. Class Secured Unse cured 3 15 3 - 1 - 32 » 2 5 0 - - - 3 1 12 » 3 , 0 0 0 - - - 2 3 5 20 14 115,000 - - - 30e 76 Seas, in - 206 90 mat. 208 2, 758,660 10 mm 1 4 - 4 N.A. 68 TABLE 2 (CONTINUED) Veh i c 1e s® Personne1 Approx. Popu- Number Name 1 a t i on S ta tio n s Pumpers A e ria l Misc. Full Part Vo °Pumpers l i s t e d os per in d iv id u o l C h i e f 's d e s c rip tio n ; s t a f f , rescue, brush rig s , e t c . ^Budget fig u r e s os recorded w ith County of Son Diego. c F ir e p r o te c tio n provided by C a l i f o r n i o D iv is io n o f For ^Includes Ramona A ir p o r t f o r o e r ie l a t ta c k ond four Con eEngines o f 500-750 gpm r a t i n g . 6 8 TABLE 2 (CONTINUEO) Vehicles® Personnel 1971-72 Tex Ret< 1 9 7 1 -7 2 b Ins. Unse- n Pumpers A e r ia l M isc. Full Pert V o l. Budget Cless Secured cured s per in d iv id u o l C h i e f 's d e s c r ip tio n ; misee I Ieneous re p re s e n ts ambulances, , e t c . s recorded w ith County o f Son Diego. provided by C o il f o r n io D iv is io n o f F o re s try on c o n tra c tu a l b a s is . A i r p o r t fo r a e r i a l a t t a c k ond fo u r C on servation camps. '50 gpm r a t i n g . 69 planned increases vary in terms of t h e ir definiteness from firm ly planned purchases of land and/or supplies to s t r ic t ly an idea to meet a forthcoming need. Equ?pment. --Equipment represents another large expenditure item for the f i r e services. It was found that 33 percent of the respondents e ith e r have cu rren tly or are planning to add to th e ir respective capital improvement programs expenditures for new equipment. A few agencies hove recently purchased new vehicles which have been predominantly the pumper type. Although the various types of equipment, mainly vehicular apparatus, do not now appear to be a s ig n ific a n t drain upon the budgets of f i r e agencies within the County, it can be foreseen that those items w ill have major impact in the near fu tu re . The above position may be a rriv e d at when one considers the rapid growth w ith in the County, es p e c ia lly in the areas of apartments, townhouses, and condominiums. Those types of dwellings are often m u iti-flo o re d and w ill require a e r ia l apparatus in order to meet insurance ra tin g standards and to ensure protection of lives. Such equipment is quite c o stly and rare among e x is tin g f i r e departments. 70 This conclusion was derived as a resu lt of the researcher's personal observation of equipment possessed by the various f i r e d i s t r i c t s in San Diego County, The Technical Advisory Committee of the San Diego County Fire F ig h ters' Association confirued the above conclusion at t h e i r Monthly meeting in October 1972. PersonneI. — The lost major expenditure item is personnel. It was found that 59 percent of the respondents were contemplating the addition of more manpower. By types of manpower— f u I l - t i m e , part-tim e or volunteer— we found 39 new positions planned fo r f u ll- t i m e firemen, two on a part-tim e basis and no volunteer positions olthough volunteers would be re a d ily accepted in many of the smaller d i s t r i c t s . Three agencies indicated that they were considering additions to t h e ir forces, but were unable to define where or when these additions would take place. In order to more g ra p h ic a lly display the d is trib u tio n of f i r e fig h tin g personnel in the various agencies, Figure 2 was prepared to show the number of personnel per 1,000 residents fo r the 13 c i t i e s . Figure 3 shows the number of personnel per 1,000 residents fo r the f i r e d i s t r ic t s . Figures 2 71 NAME CARLS8A0 CHULA VISTA , CORONADO OELMAR EL CAJON ESCONDIOO IMPERIAL BEACH LA MESA NATIONAL CITY OCEANSIDE SAN DIEGO SAN MARCOS VISTA r T T 1.16 .97 .98 i 105 S H I w m m m tM I w s m m m m a m m M . v m m m r / m .5 1.0 NUMBER OF MEN FIGURE 2 . FIRE PERSONNEL PER 1 ,0 0 0 R m m 1 .0 5 1-12 1.20 1 -2 3 1-07 1 .6 0 LEGEND: FULL TIME TOTAL 6 -2 2 2.20 1 .5 IF MEN t 1 „ O O O R E S I D E N T S ( C I T I E S ) 2. 0 k 72 NAME ALPINE BONITO BORREGO* CREST ENCINITAS FALLBROOK HELIX LAKESIDE LEMON GROVE SWEETWATER MONTGOMERY PINE VALICY RAMONA vM ar yyyy/ m m t m y y y y y y y y y y y y y s y y y y y y y y y y y y y y y y y y y / y ;y y y y y y y ^ y y y y y y y ^ mf m1 ' ^ b h b h s s s ^. 1 1 1 1 1 1 1' 1 1 1 1 1 1 1 1 1 | | 1 1 1 I I I i l l i l l 1 1 1 i l l 1 1 1 1 1 1 i l l v y / s y y y y y / y y y y y y s /y y y y y y y y y y y y y y yyy y yy /y yy yyy y/yy yyy ym r/. v y y y y y y y y y y y y y y y y y y y y y y y y ) y ) ) y , y , y y I i 1 § 1 I I I 1 y y y y y y y y y y y y y y y y y y / y y y y y y y y y y y y y y y ys y y y y y y y y y y y y y y y m m t y y m v m m m m m m / y / / m m m w y m m t m m m y y y m m m m m . 1 1 i l i y y y y y y y y y y y y y y y y y y y y y y y y y y y y y y y y y y y NO RESPONSE y y y y y / y y y y y y y y y s y y y y y y y y y y y y y y y y y / , 1 1 ( 1 1 1 i i i i i i i i i . i i i 0 . .! 1.0 NUMBER OF MEN FIGURE 3 . FIRE PERSONNEL PER 1/ 0 0 0 RESIOENT 72 1.33 1 0 0 0 0 0 0 0 0 0 0 00 0 0 00 0 00 0 00 0 0 00 % 0 0 0 0 0 0 0 0 0 0 0 0 0 0 0 0 0 0 , 01/ 0000. 1 0 0 0 0 0 0 0 0 0 0 0 0 0 0 0 0 0 0 , 12.77 10.83 ' # 0 / 0 0 0 0 1 ' 0 0 0 0 0 0 0 0 0 0 0 0 0 0 0 0 0 0 0 0 0 0 0 0 0 0 0 0 0 0 0 0 0 0 0 0 0 0 0 0 0 0 0 0 m m ^ ^ ^ ^ 0 0 0 0 0 ^ ^ ^ ^ ^ ^ 0 0 ^ ^ 0 0 0 0 0 0 0 0 0 0 0 0 / 0 0 0 H 8.22 0 0 0 0 0 0 0 0 0 0 0 0 0 0 0 0 0 % . 1.45 1.50 1.59 3.44 100: 000 0 l ^ ffi 0 1 ^ Z 0 % :^ & 0 0 0 0 ^ % 0 0 0 % 0 > 0 0 0 0 0 0 0 0 / 0 , 0 0 0 / 0 0 0 / , 1.20 0 0 0 0 0 0 0 0 0 % . # 0 0 0 0 0 0 0 0 0 0 0 0 0 , 1.40 0 0 0 / 0 0 / 0 / 0 0 0 0 0 0 0 0 / 0 0 0 / 0 / 0 0 / 0 0 0 0 % / , 1.53 60.00 t 0 0 0 0 0 0 0 0 0 0 0 0 0 0 0 0 0 0 0 0 0 0 0 0 0 0 0 & 0 0 0 0 0 0 0 0 0 0 0 0 0 0 0 0 0 % 0 ( 0 0 0 0 t 3.71 0 0 0 0 0 0 0 0 0 ^ / 0 0 0 0 0 0 0 0 0 0 0 0 0 0 0 f c 0 0 0 0 0 0 0 0 0 0 0 0 0 0 0 0 0 % 0 . : 0 0 0 0 . 1JS3 LEGEND: FULL TIME TOTAL 2. 00 1.0 NUMBER OF MEN 1.6 2. 0 NEL PER 1 , 0 0 0 RESIDENTS (D IS T R IC T S ) k 73 NAME SAN MARCOS SANTEE SO LANA SPRING VALLEY LAKESIDE VISTA* fl _ 1 1 .4 3 11.02 r * 11.09 W S U S B , 66 W / tm m m m / z tm m m . u * •VISTA FIRE PROTECTION OISTRICT CONTRACTS FOR SERVICES WITH CITY OF VIST ____________________I_____________________ I_____________________1 ___ 1.0 NUMBER OF MEN 1.5 LEGENE FULI TOTI FIGURE 3 . (C o n tin u ed ) I 73 U B S 1.43 2.27 11.02 11.09 HSUS BSISKSSiHy9 9 2 R0TECTI0N DISTRICT CONTRACTS FOR SERVICES WITH CITY OF VISTA I_____________________ I_____________________ I_____ .5 1.0 NUMBER OF MEN 1.5 LEGEND: FULLTIME TOTAL 4.54 2.0 % FIGURE 3. (C o ntin ued ) 74 and 3 show not only the number per 1,000 residents, but olso indicate the r e la t iv e position of f u l l - t i m e personnel to the t o t a l . This is a highly s ig n ific a n t fa c to r in that the proportion of firemen may be dependent on large volunteer or part-tim e personnel contingents which cannot be assumed to be a v a ila b le whenever a f i r e may occur. This facto r is also highly relevant to the computation of f i r e insurance classi fic a tio n s . Pq p u lat ? on. — Approx imate population fig ures have been provided in Tables 1 (page 63) and 2 (page 65). It is necessary only at th is point to note that the population of the c i t i e s and d i s t r i c t s , as well as the County, are expected to continue to grow ot t h e ir current ra te . The d i s t r i c t s may feel the pressures of th is continuing population rise more as the urban society seeks out the suburbs. A few d i s t r i c t s have already reached the saturation point as fa r as population goes and w i l l not be adversely a ffe c te d by any changes in th is area. Therefore, whan one considers a l l the above parameters, it is evident that the f i r e protection community w i l l be undergoing r e l a t i v e l y great expansionary pains w ith in the next fiv e years. This 75 expansion movement must be considered in any attempt to discuss present and/or future f i r e protection needs w ith in San Diego County, Tre in i no. The next general area of coverage was directed towards tra in in g programs within the various f i r e ogencies. Although tra in in g would appear to be a r e l a t i v e l y simple area to cover, questions regarding th is section caused some consternation among the Chiefs in that the questions lacked the s p e c if ic it y the Chiefs thought was necessary. Scope. — W ? th the exception of the County Special Service areas of Rainbow Valley, Jacumba and the Herb?son Canyon Volunteer Department, it was found that most tra in in g a c t i v i t y is conducted w ithin the respective stations on a d a ily basis and is quite standardized in nature. Such train ing covers f i r e fig h tin g , prevention a c t i v i t i e s , sa fety and rescue techniques, e t c ., to mention just a few. Some management techniques also are being taught on a Iimi ted basi s. Cooperative t r a in in g . —»ln addition to the d a ily in-house tr a in in g exercises, 88 percent of the respondents responded that they p a rtic ip a te d in some fora of tra in in g exercises with other agencies. These d r i l l s are generally conducted on a periodic basis and are held e it h e r within t h e ir own area or t h e ir respective zones. Occasionally such exercises are held on a broader "mutual aid plan” basis. The value of such d r i l l s cannot be stressed enough fo r they promote cooperation between the various un its, provide fo r fa m iIia r tz e tio n with equipment and techniques, and enhance cooperative leadership. Such d r i l l s have demonstrated th e ir value in cases like the Laguna Fire of 1970. F ire science programs. — Two in s titu tio n s , Miramar and Palomar Colleges, o f f e r i n i t i a l train in g fo r r e c r u it s . These same in s titu tio n s go beyond th is level by o ffe rin g regu larly scheduled academic courses which w ill lead to an Associate in Science degree (A .S .) in f i r e science for the individual fireman. The programs offered at these commun ity colleges were the product of the County Fire Chiefs working in cooperation with local school o f f i c i o l s . in some d i s t r i c t s the men are o ffe re d cash incentives to attend such classes, with the amount o f return being based on the number of units successfully 77 completed. In most d i s t r i c t s fu rth e r educationel achievements are made a prereq u is ite for promotional considerations. In the remaining d i s t r i c t s , no p a rtic u la r emphasis is placed on t h is endeavor end the choice is le ft s t r i c t l y up to the in divid ual. Training e v a lu a tio n . — An attempt was made to gouge the respective C h ie f's opinions on the total tra in in g that th e ir men were receiving. It was found that 27 percent f e l t that the scope o f the tra in in g was broad, f iv e f e l t that the tra in in g was Just average, and three f e l t that the tra in in g was lim ited in scope. It is in terestin g to note that the three agencies who f e l t the tra in in g was lim ited represent two of the three County Special Service Areas. The t h ir d agency represents one of the smallest f i r e d i s t r i c t s in the County. S im ila rly , the th ir d Special Service Area rated its train in g as only average— a l l things considered. It should be noted that these areas have a high degree o f dependence on volunteer manpower and are more lim ited in equipment and f a c i l i t i e s than the other agencies. Having requested the Chiefs to evaluate the scope of t h e ir tra in in g programs, i t was then asked of them to evaluate or rate th e ir tra in in g a c t i v i t i e s 78 on on overall basis. Due to the variance in types of response and f o r ease of data c la s s if ic a t io n , the responses were categorized as poor, average, good, and ex c e lle n t. The following data indicate the d i s tr ib u tio n of these responses. The percentages were derived as a result of dividing the number of responses for each category by the to ta l number of responses to the question. This d is tr ib u tio n of ExceI lent Good Average Poor 29* 4 3 * 19* 9 * responses is quite sim ilar to the evaluation of the scope of train in g in that the some agencies re fle c te d the same types of responses in both instances. Note also that those reporting an average ratin g fo r their tra in in g a c t i v i t i e s are composed of the smal le r, less populated areas. The one exception is a northern c i t y with limited manpower. Thus, there appears to be a d ire c t c o rre la tio n between how the Chiefs rate tra in in g and the size and makeup of the agency. Planned chanoes. — Inouir?nq into the future prospects of tra in in g w ith in the f i r e agencies, it was noted that 21 of the 36 respondents (58 percent) ?9 were a n tic ip a tin g some change in th e ir basic tra in in g format. These planned changes f a ll into two basic categories: ( 1) increased manpower for tra in in g , and ( 2 ) increased equipment fo r training purposes. The following information shows the d is trib u tio n of the types of responses. Equip* Manpower Manpower ment & Eouip. Number of Agencies 5 2 7 No Change not Other Change I dent. Number of Agencies 2 15 5 The manpower changes generally r e fle c t a need for q u a lifie d men who con devote most, i f not a ll th e ir time, to tra in in g endeavors. The equipment changes range from miscellaneous specialized train ing aids to a complete tra in in g f a c i l i t y . Again it must be emphasized that many of these planned changes are s t r i c t l y thot—-pIanned. However, th is information reaffirm s the idea thot the needs of the f ir e service are growing and technology is changing on v i r t u a l l y o doily basis. The need to keep abreast with current and future conditions is recognized by the Chiefs. Pre-suppression a c t i v i t i e s .--The questionnaire then.focused its a tte n tio n on p a r t i c i pation in pre-suppression a c t i v i t i e s . That is, a c t i v i t i e s conducted to reduce potential f i r e hazards and, u ltim a te ly , losses. An overwhelming m ajority of the f i r e agencies (8 9 percent) reported thot they ore c u rren tly engaged in some form of pre-suppression a c t i v i t i e s . Again, to f a c i l i t a t e c o lla tio n and display of the dote, the responses were categorized into four areos: ( 1 ) structural inspection, (2) land clearance programs, (3) hydrant inspection, and (A) pre-planning. The following data indicate the d is trib u tio n (some agencies p a rtic ip a te in more than one a c t i v i t y ) of the f i r e ogencies among these categories. Structure I Land Hydrant 17 26 3 Pre-PIann i no No Specific Response 7 2 StructuraI i nspect i on. — St rueturaI inspection generolly e n ta ils the inspection of commercial buildings, but also includes places of public gathering and ta rg e t areas of high f i r e p o te n tia l, such os lumber yards, tank farms, etc. These 81 inspections ore conducted not only to assure code compliance but also to f a m ilia r iz e the firemen with building design, sources of water, s ta irw e lls , trouble spots, etc. Private residences ore not normally included in this inspection process due to the shortoge of manpower (minimum of two men requ ired), and because the public does not hove to ollow such inspection. The general ineffectiveness of such programs mokes enforcement a highly d i f f i c u l t I tern. Lond cIearance. -» T h ?s item generally refers to a weed abatement program of some sort. As one con see by re fe rrin g to the previous d is trib u tio n figures, th is Is the oreo of highest concentration. There is a high degree of standardization in these programs as s p ecific le g is la tio n exists which o u tlin es the procedures and processes a v a ila b le . Generally, we fin d that when an area is determined a hazard, the d i s t r i c t e ith e r clears the land and b i l l s the owner (through adding the b i l l to the owner's following year's taxes) or in some coses the owner is le f t with the to tal r e s p o n s ib ility , A few agencies do p a rtic ip a te in land inspections/ but do not press the clearance aspect very strongly. 82 Hydrant inspection. —-The data do not tru ly r e f le c t the real essence of this area. It was found that some departments engage in above ground and external maintenance of hydrants, while others leave the duty up to the respective water agency. L i t t l e emphasis was placed on th is area as the problem hos been recognized and is cu rrently in the process of reso lution by the County, Chiefs, and water agencies. Pre-pIenn i n o Th i s area is r e l a t i v e l y s e l f - evident, and it only needs to be said that th is function is done in te r n a lly and normally includes a plan of operation for sp ecific f i r e areas. Personnel assioned. — PersonncI assigned to conduct these a c t i v i t i e s vary widely from agency to agency. In some of the larger agencies, personnel are assigned on e f u l l - t i m e basis, while in others a l l personnel ore assigned a portion of the to ta l o v e ra ll e f f o r t as port of th e ir everyday work s itu a tio n . A large determinant of how many men are assigned or the degree of sp e c ia Iiza tio n in th is area appears to be the size of the ogency and its a b i l i t y to absorb these specialized costs. There does not appear to be any specific ordering of the placement of pre-suppression units as they a l l operate out o f individual f i r e stations. It is in teresting to note that 4 percent of those questioned did not report any p a rtic u la r p a rtic ip a tio n in pre-suppression a c t i v i t i e s . These negative respondents are e s s e n tia lly the same group thot reported th e ir tra in in g a c t i v i t i e s as limited in scope and poor o v e r a ll. Fire Prevention A c t i v it ie s Although th is would normally be considered a part of pre-suppression a c t i v i t i e s , it was handled as a separate unit so more specific data could be accumulated. Again, for the soke of ease of handling, three general categories were u t i l i z e d : (1) code enforcement, (2) in vestigation , and (3) public contact. The r e it e r a t io n of the investigation element was used as a check for co ntinuity of date and is deleted from this section. V i r t u a l l y a ll agencies reported p a rtic ip a tin g in th is general area, with the only exceptions being a few small d i s t r i c t s . The general consensus among the respondents showed that although the m ajority p a rtic ip a te d in the above a c t i v i t i e s , the extent of thot p a rtic ip a tio n is less than s a tis fa c to ry . 84 Code enforcement. — Current le g is la tio n (F ire Code) exists which establishes minimum requirements fo r buildings, e t c . , and 77 percent of the respondents indicated that they enforce such le g is la tio n . Other agencies did not become so engaged for various reosons ranging from "they have the community to live in" to lim ited manpower, etc. Public c o n ta c t.--Seventy-two percent of those agencies contacted reported that they have public contoct programs. These programs themselves cover a broad spectrum of a c t i v i t y from publishing a r t i c l e s in the local press, tours of the stotions, to speaking engagements. It was pointed out that a ll firemen ore expected to be sources of d irec t public contact in th e ir duties as well as through th e ir general c iv ic l i f e . Although such programs were noted, it become re a d ily apparent that there is no organized e f f o r t being conducted to pu blicize the needs of the respective departments and to ocquoint the public with t h e ir f i r e service ond the dangers that surround them. When queried about expansion o f these e f f o r t s , only 58 percent indicated thot they were contemplating doing th is. However, no specifics 85 were gathered as to when or how such expansion would take place. Along the same lines as prevention, the Chiefs were asked about home f i r e alarm systems in use within th e ir respective communities. Responses indicated that there are a minimal number of alarms in service throughout the County. In only one instance are they channeled into the f i r e station fo r response. Most agencies were u n fam iliar with the types of olarms being used and thought those in operation to be purely in d iv id u a lly in s ta lle d , maintained, and operated. Reporting time. — Considerinq thot the f i r s t fiv e minutes of o f i r e ore considered the c r i t i c a l period in which extinguishment is the easiest, the agencies were osked to provide some idea of o mean reporting time to the scene of a f i r e within their community. For discussion purposes, time intervals were created. These were: (1) 2-5 minutes, (2) 5-10 minutes, and (3) 10 minutes or more. The following figures depict the number of agencies f a l l i n g into eoch category. 10 Minutes 2-5 Minutes 5-10 Minutes or more 31 3 2 86 Note thot fo r insurance c lo ss!fico t ion purposes, o reporting time of 3-5 minutes is considered desirable. Your a tte n tio n is c a lle d to the fact that these reporting times are greatly dependent on many v ariables, i . e . , t r a f f i c , weother, time of day, e tc . Those indicating a longer run time do so because of distances involved from stations to the area's boundary. Time is also dependent on rood conditions, both surface conditions and width. Adequacy of structural p ro te c tio n . This question was asked of the Chiefs in on ottempt to see i f , in t h e ir opinion, oreos did ex ist which were inadequately protected. Seventy-five percent indicated that such oreas existed. With such a large percentage indicating thusly, the next area of concern was to inquire os to where these areas were located w ith in the boundaries of the agencies. The information below indicates the locations and the frequency of occurrence. D ? s t r ? c t-wIde Centra I C ity Fr ? noe 7 2 18 It can be seen that protection is needed predominantly in the frin g e areas, followed by some 87 d i s t r i c t or area-wide problems. The interview addressed it s e lf to the question of what was needed to remedy these s itu a tio n s . The remarks were varied and often d i f f i c u l t to c o rr e la te . The responses were, nonetheless, categorized ond the follow ing dato indicate the frequency of response by type solution. Department Expens? on Annexat ion Access 12 1 1 Water Building F a c i l i t i e s SuppIy Code & Equipment 14 3 2 It is d i f f i c u l t to c la s s ify a l l agencies on an even plane fo r each has its own c h a ra c te ris tic s which undoubtedly a ffe c t its a b i l i t y to provide the necessary protection. I terns such as te rra in , population d is trib u tio n , and road conditions must also be considered. Although not e l l agencies responded that such a need was e x iste n t and some indicated more than one response or solution fo r th e ir problem, the data indicate th at structural protection w ithin the County is a real problem. The two most id e n tifia b le 88 solutions in the eyes of the Chiefs ore expansion of th e ir deportments ond increased water supplies. Budgetary informotion. — The thrust of the questionnaire then shifted to the fin o n c io l parameters of the vorious f i r e ogencies. Budget fig ures were requested for a period of f iv e years in order thot o rote of growth could be determined. It must be noted that o lI responses were not the same in nature due undoubtedly to usage of d iffe re n t terminology. In order to use the most accurate fig u res possible, budget figures ond breakdowns of expenditures for the vorious d i s t r i c t s were checked with the budgets on f i l e with the County. Fiscal year 1971-1972 was used as the base yeor for comparative purposes. City budget breakdowns ore not so recorded; therefore, information r e lo tin g to them is based on that supplied by the questionnoI r e . Several other questions were asked along these some lin es: the cost of s ta ffin g the department over the fiv e -y e o r period; projections for increasing personnel costs, i f any; and costs d ir e c t ly related to the maintenance and purchase of equipment. Figure 4 shows the to tal budget a llo c a tio n s d ir e c t ly related to personnel; Figure 5 89 NAME CARLSBAD CHULA VISTA CORONADO DEL MAR EL CAJON ESCONOIOO IMPERIAL BEACH LA MESA NATIONAL CITY OCEANSIDE SAN OIEGO SAN MARCOS VISTA 190.072 191.072 329.000 Vm 361,974 67.360 m 92.405 552.000 166.504 536.356 566.509 56.000 W , 70,000 443,275 \/////////,. 510.137 0 2 3 1 5 4 (DOLLARS) "INCLUDES PERSONNEL. NON-PERSONNEL & EQUIPMENT FIGURE 4 . 1 9 7 1 -7 2 CITY BUDGET TOTALS* F< 852.550 944.400 ■ ■ M W 329,000 Wf f f t 361.574 92.405 703,401 806.716 552,000 m z m t m m . 690.000 536.356 670.446 566,509 wm m am wf t zr / / / / - 647.309 ___________618.077 744 jo 6 166,504 v m m 228.366 8.707,729 9.612.062 0.000 443,275 w m m . 510,137 2 3 4 5 (DOLLARS) 6 7 8 9 10 > PERSONNEL, NON-PERSONNEL & EQUIPMENT PERSONNEL TOTAL i 4 . 1 9 7 1 -7 2 CITY BUOGET TOTALS* FOR FIRE OPERATIONS 90 NAME ALPINE BONITA BORREGO. BOSTONIA CREST ENCINITAS FALLSROOK HELIX LAKESIDE LEMON GROVE SWEETWATER MONTGOMERY PINE VALLEY 640 ***2*2 72,060 m m , 201,220 2 2 2 2 * 88.883 13,000 22,000 134 2 46,600 390,276 225,429 22*2*322*222*2230 372,182 105.838 2 185,936 250.386 * 503,111 2 2 2 2 2 2 2 2 2 2 2 2 2 2 2 2 2 2 2 2 *2 2 2 2 2 402.643 44.954 ,700 12,000 5 6 (DOLLARS) •INCLUDES PERSONNEL, NON-PERSONNEL AND EQUIPMENT OUTLAY AND RESERVES LEGI FIGURE 5 . 1 9 7 1 -7 2 FIRE DISTRICT BUDGE 90 72,060 145.207 W / / / / / A 201.220 2 88,883 500 390.276 225,429 372.182 ,838 m m / / , 185.936 250,386 % 603,111 227.467 \ m / m m m m m . 402.443 2 697471 .954 2.710 m m / m , 207.585 OES PERSONNEL. NON-PERSONNEL AND MENT OUTLAY ANO RESERVES (DOLLARS) 6 LEGEND: PERSONNEL TOTAL 10 FIGURE 5 . 1 9 7 1 -7 2 FIRE DISTRICT BUDGET TOTALS* 1 1 91 NAME RAMONA . SANTA FE SAN MARCOS SANTEE SO LANA SPRING VALLEY VISTA 24000 W M f r . 52.500 61.640 147.830 48,000 ? 132,000 362,600 X#m 124.665 463.505 563 1,500 265,625 0 5 3 4 1 2 (DOLLARS) INCLUOES PERSONNEL. NON-PERSONNEL AND EQUIPMENT OUTLAY AND RESERVES FIGURE 5 . (Continued) t i 91 » ,500 $ 147,830 ? 132,000 \ # m 124.665 362,600 463,505 $ 265,625 _ l___ I % 713J679 $563,264 I 5 6 (DOLLARS) E S PERSONNEL. NON-PERSONNEL AND ENT OUTLAY AND RESERVES 10 LEGEND: w ^ ^ m ^ m r /s /w A r s /s /w PERSONNEL TOTAL FIGURE 5. (C ontin ued ) 1 92 indicates the totol budgets for a l l f i r e agencies responding. Again, these proportions are f e l t to be representative, but cannot be considered absolute because d iffe re n t agencies considered d iffe re n t elements in reporting personnel re la te d costs (a .g *, fringe benefits, pension, e t c ., may or may not be i nc I uded)* Exponding on the growth of the budgets fo r the fiv e year period, Figure 6 was developed to display the mean growth ra te of both c i t i e s and d i s t r i c t s . Computations were based on the use of the 19^8 budget fig u re s as the base year and computing the percentage increase fo r each successive year. Coupled with th is is the mean percent of annual growth fo r personnel and equipment expendi tures. An attempt was made to a r r iv e at some figures fo r per c a p ita expenditures (see Figures 7 and 8 ). Here the to ta l reported budget was divided by the population to a r riv e at the average per capita expenditure. Figures 9 and 10 are supplied to provide some insight into the to ta l d is trib u tio n of an average budget for a c ity f i r e department and a f i r e d i s t r i c t . Exact expenditure breakdowns for c i t i e s PERCCNT 30 26.4 25 24.1 20 17.5 15 10 5 0 TOTALBUOGET EQUIPMENT PERSONNEL 'BASED O N FIGURES FOR 1968-1972 FISCAL YEAR FIGURE 6. *A E A N PERCENTAGE PER YEAR GROWTH* DOLLARS 25 OEL MAR 20 OCEANSIDE ESCONDIDO LA MESA 15 CORONADOA ¥ „ _ J /'_ _ E L Q A J Q £ I ^•CHULA VIS1A 7 CARLSBAD JYIEAN1163 ‘SAN DIEGO \ /VISTA NATIONAL CITY 1 0 IMPERIAL BEACH 5 SAN MARCOS 0 CITY FIGURE 7. PER CAPITA EXPENDITURES FOR FIRE ACTIVITIES 1971-72 (CITIES) OOUARS 95 50 BORREGO PINE VALLEY 40 HELIX SANTA FE BONITA ALLBROO 30 'ENCINITA! RANGER UNIT SO LANA SANTEE MEAN 20.55" 20 CREST LEMON GROVE ALPINE LAKESIDE SWEETWATER SAN MARCOS 10 MONTGOMERY VISTA RAMONA JACUMBA 0 DISTRICT « FIGURE 8. PER CAPITA EXPENDITURES FOR FIRE ACTIVITIES 19 71-72 (DISTRICTS) •♦EQUIPMENT 15% PERSONNEL 35% •APPROXIMATION DERIVEO THROUGH REVIE V O F VARIOUS CITY BUOGETS AND IS NO: INTENDEO TO BE AN EXACT REPRESENTATION FOR ALL CITIES. ••INCLUDES SUPPLIES. SERVICES. CHARGES AND CAPITAL OUTLAY. FIGURE 9. CITIES: MEAN PERCENTAGE * a t a i r i at irvA C ▼ # CHARGES 1/2 OF 1% FIXED ASSETS RESERVES 21.5% SERVICES & SUPPLIES 16% PERSONNEL 5 5 % FIGURE 10. FIRE DISTRICTS: MEAN PERCENTAGE OF TOTAL BUDGET 98 were not a v a ila b le in o i l coses, so the information shown is bosed on data supplied by the questionnaire. D is t r ic t figures were calcu lated from budgets on f i l e with the County, Since we ore discussing mony agencies which are homogeneous in nome only, it is extremely d i f f i c u l t to be exact. Yet it is f e l t thot these representations ore beneficial in that they id e n tify key areas of budgetary concern; namely, the high cost fa c to r involved in personnel and the lower cost impact of supplies and services. Inasmuch os personnel costs represent the major portion of the budgets, the researcher asked for projections of increasing personnel costs. The following information indicates the type of response received in th is area. 2.5-10$ No Response No Projection Increase 7 20 8 Some of the HNo Response1 * grouping is composed of the Special Service Areas that are highly dependent on volunteer help and, thus, no budget projections are necessary. Although many agencies indicated that personnel costs would ris e , they were unable to provide any p ro jectio ns . This is possibly due to the current trend in public service; that is, more vocal 99 demands for increased wages. The various agency heads were uncertain as to the e ffe c t those demands might hove on ris in g costs. A small proportion of the respondents indicated whet could be termed as "normal" increases to keep abreast with the risin g cost of I i v i ng. Capital improvements programs. — In view of the foct thot ca p ita l improvements progroms ore on integral port of the fin a n c ia l picture of on agency, a tte n tio n was then focused upon them. It was found thot 72 percent indicated thot they were cu rre n tly involved in such o progrom. Items included in this fin a n c ia l plonning run the gomut from small equipment, radios ond hydrants a ll the way to new statio ns and expensive apparatus. When questioned os to whether or not any items were a n tic ip a te d to be added to e x is tin g progroms, approximately 46 percent re p lie d in the o ffirm o tiv e . Although the id e n t ific a tio n of s p ecific items to be added to a c a p ita l improvements program were fa r less frequent, the responses given Indicated that planned additions would be fo r major expenditures such as new stations ond apparatus. An in te re s tin g aside from these responses is that 100 several of those who Indicated thot they did not c u rren tly have or use a capital improvements progrom, indicated that they would or wished to add items to future programs. Capitol improvements programs constitute a tool for fin an cial planning to meet future needs. Thus, the data covered in these responses are thought to be quite relevont to the study in thot they: (1) indicote that the various agencies recognize the need for pre-pIonning, (2) recognize the need for more f a c i l i t i e s and equipment, ond (3) re a liz e needs for providing f i r e services ore expand i ng. Cooperative ac t ? v i t ie s. — The next line of questioning was geared toward assessing the degree to which each agency coordinated it s a c t i v i t i e s with other ogencies. With ris in g costs and lim ited resources, emphasis was placed on those areos that could hove a fin a n c ia l impact through economies of scale. With that idea in mind, the f i r s t question dealt with the u t i l i z a t i o n of some form of c e n tra lize d purchasing. It was found thot 66 percent stated that some type of group purchasing was engaged in. Of these, it was noted that most 101 ogencies cooperate with the County fo r the purchose of gasoline ond/or o il products. Much of the group purchasing a c t iv i t y is centered upon the purchase of o f f ic e and housekeeping supplies. When asked about cooperation in areas such as hiring, tra in in g , or c a p ita l improvements programs, i t was found thot the m ajo rity did not engage in such a c t i v i t i e s . The exceptions to this generally were the c i t i e s ond the Division of Forestry. This appears to be o reasonable observation since these units are of the size ond ond have resources s u ffic ie n t to make economies of scale both feasible ond p r a c tic a l. /\ Revenue sources. — Revenue sources oppear to co n stitu te o most obvious point and one not ju s tify in g inquiry as it is safe to say thot a l l agencies operate out of tax supported revenue. Nonetheless, there are a few in te re s tin g sidelights th at should be brought out in order to hove a more complete picture of revenue a c q u is itio n . When one examines the three Special Service Areas, he fin d s thot th e ir revenue supply is extremely lim ited. In order fo r them to operate, additional means of support have to be found. The 102 most common method of fund raising is the usage of the tra d itio n a l summer picn ic , which is so c h a ra c te ris tic of volunteer departments. The search for more funds does not stop here, however, as donations are often openly sought from the populace that makes up the service area. In areas of tha County that do not lie w ithin the borders of an e x is tin g c i t y or f i r e d i s t r i c t , the Division of Forestry supplies watershed p rotection . This protection is paid for through a contractual arrangement with the County in which the County pays approximately 10 percent of the cost ond the Stote poys 90 percent. The County funds used to provide th is service ore from property taxes that are c o lle c te d County-wide. It is reported that the people liv in g in the c i t i e s of the County contribute 80 percent of a ll County funds ond, as such, moke a major contribution to the funding of f i r e protection fo r o u tlying areas. Although th is is true, valuable watershed protection is provided to c it y water supplies by the Division of Forestry. Federal or state a i d . — The next issue broached was whether the p a rtic u la r agencies were c u rre n tly p a rtic ip a tin g in any form o f State or 103 Federal a id ; end, secondly, did they intend to seek out such aid in the fu tu re . Only 16 agencies indicated that a id was being received; and, as i t turns out, a ll such aid was in the form of additional manpower supplied through the Public Employment Program (PEP), L i t t l e mention was made o f the Stote O ffice of Emergency Service Vehicles which may provide help upon ap plication. Eight additional agencies noted that they would seek out such oid in the fu ture, again re fe rrin g mainly to the PEP Program. More than a few would like to see fin an cial a id coming from higher levels of government. This was especially noteworthy in view of the recent Federal in terest in the f i r e service and its problems. Mutual aid pert ic ? oat ion. — AI I agencies p a rt ic ip a te in mutual aid , and often groups w ill meet in jo in t train in g a c t i v i t i e s . Although the mutual a id program covers a ll recognized agencies, it does not include m ilit a r y in s ta lla tio n s and some of the larger in dustrial complexes which also hove f i r e departments. Agencies bounding m ilit a r y in s t a lla tio n s generally have informal agreements through which oid would be rendered in time of need. 104 S im ila rly , moat agencies p a rtic ip a te In day-to-day mutual aid agreements with t h e ir respective neighbors. These agreements may or may not be on a formalized, w ritte n basis. Inter-aoencv membershIps. — Just a b r ie f note need be made in th is regard, and that is that v i r t u a l l y a ll ogencies p a rtic ip a te and/or hold membership in the County and State Fire C h ie fs ’ Associations. From th is point on, the d iv e rs ity of memberships follows no sp ecific pattern. It is interesting to note that most of these memberships center oround top echelon personnel only, with fewer memberships reported fo r the s ta ff level functions like tro in in g , etc. Water suppIv. — Havino gone over the major elements surrounding the functioning of a f i r e agency, the next area of concern was how do the various Chiefs rote the other c r i t i c a l element in f i r e protect i o n ~ w o t e r . Here again, we did not receive responses from all agencies, but some interesting points were brought out. The follow ing data show the d is tr ib u tio n of responses by ra tin g . 10 5 Poor Average Good bxceI Ient 4 5 15 7 Considering that these responses were personal evaluations and that they had to be categorized into the above groupings, the d is tr ib u tio n indicates what one might expect from th is question. The major point is thot there are some areas considered poor as fa r as supplying woter for f i r e fig h tin g needs. Three of these areas are e a s ily understood as they represent the outlying small communities which have lim ite d water supply end service. The remaining agency represents a larger community with a poor g rid system ond only p o o r -to -fa ir d is tr ib u tio n fac i I i t ies. Cost effectiveness of pre-suppression act i vi t ie s .-~The question of the cost effec tive n es s of pre-suppression a c t i v i t i e s was asked of the Chiefs without any preconceived formula for measuring or assessing i t . The question was asked to provide insight into how the various agencies rated the impact of these a c t i v i t i e s . As one might imagine, the overwhelming m ajority of the responses were in the good-to-everage category, with none ratin g the service excellent and only two agencies ratin g it 106 poor. Some of the comments surrounding these poor ratings were lack of enforcement, arson investigation and convictions, and overlapping of ju ris d ic tio n s . The author does not place any significance on the responses to th is question as it is an area that is extremely d i f f i c u l t to evaluate. The Federal Government, in one of it s publications, did come up with a r a t i o of 3.85 to 1 cost savings through pre-suppression a c t i v i t i e s for fo re s t ond brushlands. The au thor's intent is not to evaluate that position, but rath er to point out the d iv e r s ity of responses. It is f e I t thot many more comments may have come forth i f time hod allowed a ll p a rtic ip a n ts in the study to c r i t i c a l l y analyze th is element of f i r e a c t i v i t y . Rating of equipment and communications. In these two areas there appeared a greater consensus than in any other. Here v i r t u a l l y a ll responses f e l l into the overage-to-good range. There were no poor ratings ond a minimum of ex cellen t ratin gs. As noted e a r l i e r in the data review, equipment does not appear to present a p a r t ic u la r problem at th is moment in time. The County f i r e agencies possess an excellent communications system through the use of a common 107 radio frequency (or frequencies). No specific comments were directed toward the communications net other thon an occasional remork of its misuse, that is, indiscriminate chatter over the radios. D irectives olready ex ist to remedy th is problem and only closer a tte n tio n to these d ire c tiv e s by agency personnel is needed. Looking at communications in general, both in f r a - and inter-agency, we can only report that the communications level appears to be quite good. Numerous comments have been made about the cooperation ond ease of communication among the Chiefs. This is c e rta in ly a sign of a mature d is c ip lin e and a w illingness to provide the best possible service. Changes in mutual a i d . — In view of the fact that the County possesses such a widespread Mutuol Aid Plan, an attempt was made to determine what changes, i f any, were needed in the plan as seen through the eyes of the various Chiefs. The d is trib u tio n shown below indicates the basic types of responses and the percentage of each. 108 Standardize C la r ify None No Comment T rein . & Equ?p . Terms, etc. 39* 14% 8% 8% Stronger Central Groupinos Pi spatch Mi sc. 11* 13* 7* S lig h tly over h a lf of a l l respondents evidently f e l t that no changes and/or additions were necessary, although many indicated that they f e l t changes would be made as time and need demonded. No mention was made of any fin a n c ia l or l i a b i l i t y d i f f i c u l t i e s which sometimes a ris e from such agreements. The remainder of the responses centered on vorious ospects and undoubtedly r e f le c t the varied individual in terests. It is interesting to note thot these areas id e n tify many of the p a r t ic u la r problems facing these agencies. Generally speaking, the current plan was thought of quite hig h ly , but complacency should not set in; thot is, the plan should remain f l u i d and not s ta tic , ready to be constantly upgraded as situation s ond technology present themselves. Leo i s let ion— changes or a d d itio n s . --T h i s question was geared to ascertain how current or e x is tin g le g is la tio n was viewed and also to determine what new le g is la tio n was desired to aid in the 109 provision of f i r e services. ApproximoteIy one th ird the respondents f e l t thot no changes were required. From thot point the d iv e rs ity of responses ronged for ond wide, often focusing on loco! conditions. Funding wos o point of major emphasis with specifics such os Federal ond State aid, contributions from insurance companies e ith e r d ire c tly or through percentages of premiums co llected , p a rtic ip a tio n in sales tax d is trib u tio n , end obtaining funds from mobile home taxation os new ways to meet the ever increasing demands fo r revenue. Enforcement of current le g is la tio n and the tightening of building codes (shake shingle roofs, wall boord sizes, e t c . ) were other areas of prominent in te re s t. In fact, some agencies thought the f i r e service would be better o f f i f half the ex istin g le g is la tio n were dropped and the remainder were conscientiously enforced. Other areas of concern centered on the crea tio n of a cabinet position on the state level to represent the f i r e service ( t h is action is c u rren tly being pursued by the C a lifo rn ia State Fire Chiefs' A ssociatio n); standardization of salaries for public safety people; ond standard!zotion of frin g e benefits such as retirement plans and the lik e . 110 It is in terestin g to note thet there nos only minor note of the Watson Amendment (a piece of le g is la tio n that wos put before the voters in November in the form of Proposition 14, ond one that could have s ig n ific a n t impact on the f ir e services). Although discussions have led to the opinion that th is le g is la tio n could very well pass, no e f f o r t appeared to be in progress to hinder i t . The proposition wos u ltim a te ly defeated, but i t did point out the need for agencies having an awareness of public sentiment concerning the issue of property toxat i on. What the County can do. —»At this point on attempt was made to ascertain how the respective Chiefs f e l t about the County and what it could do to help them in providing th is most essential service. Like the two preceding questions, the responses were extremely varied, but the total response was quite a b it higher with only four agencies indicating no response. By fa r , the largest percentage indicated thet the County could do most by providing leadership and assistance in consolidating such a c t i v i t i e s os tra in in g , dispatching, contractual arrangements for fringe areas, ond for reorganization. Other areas 111 o f in te re s t were creotion of stondords (service levels fo r the e n tir e County, building codes, e t c . ) ; a source of aid in the obtaining of monetary resources not only for the provision of the service but also fo r reseorch and arson in vestigation a c t i v i t i e s ; and a few came out d ire c tly fo r the creotion of a county-wide f i r e department. Realizing again the v a ria tio n in the sp ecific responses, the general trend indicated that the Chiefs view the County role as one of leadership and as the agency which could do most for t h e i r deportments by exercising a leadership ro le in the solution of their problem. State and Federal a i d . — Here again the major emphasis of the to ta l responses appears to be in the orea of funding. As in other questions, we found thot there was a wide variance of individual desires, but the emphasis centered on three basic wants: (1) funding fo r fir e re lo te d research; (2) establishment of standards other than those established by the insurance companies; and (3) g r a n ts -in -o id for tr a in in g f a c i l i t i e s ond other large expenditures. More s p e c ific areas were sharing costs fo r protection of state and federal f a c i l i t i e s , provision of 112 leadership toward consoIidation, and opening avenues for c e n tralized purchasing. Approximately one th ir d of the respondents made no comment at e l l in th is area. The points brought out again by these responses d e f in it e ly indicate the need fo r fin a n c ia l assistance or outside revenue sources not now tapped by ex is tin g agencies. Manpower and continuation or expansion of the current Public Employment Program would also be desirable. CHAPTER IV ANALYSIS OF DATA The previous section provided 0 copsulized picture of the responses made to the questionnaire. This section w i l l provide an analysis of th is data. The analysis w i l l be centered on a few of the major topic areas and w ill focus on an overview o f all sim ilar a c t i v i t i e s located w ith in the County. Geographic Boundaries and GrowfTi Bounderies. — The data revealed thot most structural f i r e protection lay predominateIy in the western h a lf of the County, with a solid line of protection along the coosttine and becoming more sporodic as i t moves eostward. As noted e a r li e r , th is finding tends to r e f le c t the location of and movements of the population. The dota did not reveal, however, that th is protection wos total in its coverage. In fa c t, several agencias noted thot islands existed in t h e ir communities with what was termed as " lim ite d structural p ro te c tio n ." Some o f 113 114 these islands lie on the periphery of existing c i t i e s or d i s t r ic t s while others lie almost t o t a l l y w ithin such boundaries. Two basic questions a ris e when discussing such areas: how are they created and who protects them? it is very d i f f i c u l t to id e n tify the exact causes of creation or the continued existence of these areas as the study did not include the c it iz e n r y . The Chiefs, however, expressed a b e lie f that the areas continued in existence as a result of the desires of the a ffe c te d people, w ith the basic reasoning being that there would be a tax advantage ga i ned. This leads to the second question, that of the provision of p rotective services. It was found that service to these areas is provided by the C a lifo rn ia Division of Forestry. Although many of these areas are situ ated in close proximity to f i r e fig h tin g services of a d i s t r i c t or c it y , they ore often located mony m iles from the nearest yeor-round Forestry station. In viewing the island or periphery s itu atio n , three basic problems a r is e : (1) equity of service versus cost, (2) tim eliness of pro tectio n , and (3) r is k . Addressing the f i r s t problem, i t was reported 115 by several Chiefs thet they respond to a f i r e in such areas. They do so in some cases because of the proximity of the f i r e to th e ir communities, re a liz in g that it may take considerable time fo r the Division of Forestry to respond. S im ilorly, the public would not understand how a f i r e u n it, located so close by, could just s i t there u n til the structure wos o total loss. It wos also pointed out that c it y ond d i s t r ic t stations often receive requests for assistance from such areas since the generol public is not o r d in a r ily owore of agency boundaries. Thus, we hove c i t i e s and d i s t r i c t s often providing the emergency services required by these communities; yet these communities are not contributing to the maintenance of such agencies. To the Chiefs th is is a source of much consternation since i t produces inequity in the costs of t h e ir services. Timeliness of response is r e a ll y an element of the above, but when one considers that the f i r s t few minutes of o f i r e ore c r i t i c a l in loss prevention, ?t becomes a s ig n ific a n t point in ond of i t s e l f . It is quite obvious that the c i t i e s or d i s t r i c t s are situated much closer to these oreos ond, thus, ore better able to service them in the m a jo rity of cases. Considering a ll elements involved 116 in reporting to o scene of e f i r e ( t r a f f i c , weather, road conditions, e t c . ) , reporting tin e changes the complexion of service from minimization of loss in one structure to the prevention of loss to odjoining structures os the point of o rig in is lost. The lest element to be deolt with is that of ris k . Not having c it iz e n contact, the researcher was unable to determine how they (c itiz e n s ) viewed the additional f i r e ris k . It may be said, though, that since these residents ore not port of a d i s t r i c t or c ity , they accept the risks accordingly. The problem, however, does not only a ffe c t c itiz e n s liv in g in these areas for, as noted e a r l i e r , these areas are in close proximity to other areas of population, and it is these other populated areos that ore also subjected to increased f i r e risks . The basic question is, are those c itiz e n s who live outside d i s t r i c t s or c ity boundaries allowed to increase the total f i r e r is k for the larger community simply to save a few dollars? There is no pot onswer to th is, but rather a solution must be found in land use standards and planning. Growth. - - It is important to point out ot th is time the r e la t iv e impact that growth w ill have on the 117 provision of f i r e services; for it is growth thot w ill determine the needs for odditionol monpower, equipment, and f a c i l i t i e s in the future. To say that San Diego County is growing rapidly would be an understatement. According to a recent population quote, San Diego has become the eleventh largest, c ity in the United States. The County has not stood s t i l l e ith e r, for 50 percent of the e n t ir e population growth in Southern C a lifo rn ia in the year 1971 was found in t h is County, S im ila rly , the County ranks extremely high for new construction a c t i v i t y . A drive along any highway in the County w ill provide s u ffic ie n t evidence of th is fact, fo r new housing tra c ts , apartments, and in d u s trial complexes are springing up at every turn of the eye. As the growth r a te in buiIding seems apparent, re fle c tio n must also be turned to the population. According to the 1970 Census, the population of the County was 1,411,767. The County Planning Department has extrapolated t h is fig ure, u t i l i z i n g current growth rates, and concludes that in 1975 the population w i l l be 1,554,900; in 1980 1,747,200, and in 1990 2,286,800. This population 118 growth is due lergely to the high rate of in flu x of new c it iz e n s . The clim a tic condition of the County makes it a highly desirable place to liv e . Topographical v a ria tio n s abound, providing a spot fo r even the most fin ic k y person. The population trends seem to indicate a very stable population, one that stays once it has established i t s e l f . This, no doubt, is a r e f le c t io n on the amenities that are found within the County. In summation, it is f a i r to say that the County can expect to experience continued heavy growth for the years to come. This growth must be considered as an elemental part of any evaluation of future services. Rccommcndot ? on. — In light of the current s itu a tio n surrounding the protection of island communities and the in equities involved, it is recommended that the County Board of Supervisors review and adopt a minimum set of standards fo r f i r e protection throughout the unincorporoted areas of the County. These standards should be the re s u lt of pre-planning, taking into consideration the elements of growth. F a c i l i t i e s , Equipment, ana Personnel 119 Fac i 111 ies. — Aoal n, growth is a c r i t i c a l element in th is area since it is th is growth that is determining the p o ten tial placeaent of new f a c i l i t i e s . Although no e f f o r t was aade to deteraine individual station locations and th e ir relationships to each other, there is cause to believe that both present and future f a c i l i t i e s w i l l not be u t i l i s e d to th e ir aaxiaua extent. In soae cases, growth is strongest at the periphery of the service areas and, thus, these are the areas which need supportive services aost. However, the same thing is occurring in adjoining or neighboring d i s t r i c t s , thus piecing two stations r e la t iv e ly close together and diminishing the e f fe c tiv e area of coverage of each. Equipment. — It would appear that equipment needs (vehicular apparatus) do not presently pose a problem to the f i r e services. The future prospects are that equipment w i l l be needed, however. The f i r e agencies should look at what types of growth that are presently going on in order to determine what to expect in the fu tu re . A quick look shows that there is increased building of 120 townhouses, condominium*, and apartment complex** a t wall aa t r a c t * . Many of these structures are 'm u11i-floored and quite compact. In order to service such structures, a e ria l apparatus w i l l undoubtedly be required, not only to meet the p ro te c tiv e needs of l i f e and property, but also to meet the requirements o f the insurance grading schedules. Such devices are extremely specialized and costly . It is th is la tte r point which poses extreme problems to the smaller c i t i e s and d i s t r i c t s . With an increasingly burdened budget to work from, it is hypothesized that many o f the agencies w ill not be able to a ffo rd such devices on th e ir own ( i t may be worthy to note that few d i s t r i c t s would meet the c r i t e r i a of size as a rtic u la te d by the authors in Chapter I I , Table 2 ) ; the c it iz e n s may have to obsorb the potential increase in insurance costs. Another point o f reference in the area of vehic u lar equipment is the reserve pieces that must be maintained and kept serviceable by each d i s t r i c t or c i t y . These units are not often c a lle d upon to a c t iv e ly p a rtic ip a te in the suppression a c t i v i t i e s , yet they must be maintained to s a tis fy insurance requirements and standards. This also is a burden to the olready overtaxed budget. 121 Personne_|_, — Th i • Is an area of p a rtic u la r interest to the study, fo r o department's worth is dependent upon its personnel. Recalling Table 1 (page 63) and Table 2 (page 65), we see that a large number of departments rely on part-tim e and volunteer help to meet th e ir personnel needs. This dependence is of primary Importance in that the p a rtic u la r department cannot rely on a l l its men responding when the need a rise s. These men moy or may not be in the local area when the alarm sounds; thus, there is no guarantee of how many men w ill be a v aila b le at a moment's n o tice. Although this is more evident in the volunteer categories, there is reason to suspect that the same would hold true for the p art-tim e category as w e ll. That is, sickness, personal reasons, e t c . , moy hold a man back os his commitment to the organization may not be as strong os thot of a f u l l - t i m e employee. Extrapolating the personnel issue fu rth e r, we f in d that many agencies ore only oble to non apparatus with a minimal number of men (two or three per v e h ic le ). Many Chiefs responding to the questionnaire f e l t thot such a number was t o t a ll y inadequate for proper u t i l i z a t i o n of men and 122 equipment. (The le t t e r point substentiotes the C .E .D .'» cleim thet mony loco I governments do not hove s u ffic ie n t resources to monoge modern services.) This fe e t, es hes been reported, hes monifested i t s e l f when co lls hove been pieced fo r mutuol oid. The shortege of personnel e I so mokes its presence f e l t in other orees, such es tra in in g , prevention, end pre-suppression a c t i v i t i e s . Ago in, th is is o cost fa c to r thot must be borne by the c it iz e n ry involved through the assumption of higher risks , lower service, ond higher insurance costs. Recommendet ? on. —• In the reolm of f a c i l i t i e s , it is suggested thet the County of Sen Oiego work with the Sen Oiego County Fire Chiefs' Associetion in developing o progrem fo r long-ronge pfenning. This progrem should then help eese location d i f f i c u l t i e s and help maximize e ffic ie n c y of ex istin g end fu ture f a c i l i t i e s . The County should explore the p o s s ib ilit ie s of providing finoncio! assistance to the f i r e services fo r major expenditures end work w ith the Chiefs fo r optimum placement of f a c i l i t i e s . Financial assistance could come in many forms; for 123 example, the County could serve as a lending source of low cost monies. The County should examine the f e a s i b i l i t y of conducting applicont screening, testing, and physicol adm inistration for the various agencies, thus providing o p o te n tia l cost savings. At this point no specific recommendations can be made in the area of increasing manpower due to budget constraints. Tra i n i nq As the times and technologies change, the element of troin ing comes to the fore in determining on e ffe c tiv e unit. The basic elements of troining and its adm inistration ore f o i r l y standard throughout the County. There ore those units which hove quite extensive and comprehensive programs, and there are some at the other end of the continuum with only marginal formal tr a in in g . Except fo r the two community colleges, a ll tro in in g is done at in d i- v i duaI stot ions. However, tro in in g does not end here. If one looks at the insurance groding schedule, one finds that between 40 and 50 percent of the totol points 124 assigned to tro in in g re fe r to o c t i v i t i e s which center around a troin ing tower and building. Twenty percent is assessed to the f a c i l i t i e s alone. Yet o review of the County shows only a few agencies, like the City o f Son Diego, possessing such f a c i l i t i e s . There con be no doubt thot such f a c i l i t i e s would aid in the reduction of insurance grades and costs, end would f a c i l i t a t e the tra in in g of the men— -o highly important item. Consideration must be given to the cost of such f a c i l i t i e s , estimated to be between $100,000 to $300,000, depending on the level of so ph isticatio n. As noted e a r l i e r , many o f the agencies would have d i f f i c u l t y finding the funds necessary to purchase major pieces of equipment. How could we then expect them to fund such expensive capital investments as tra in in g f a c i l i t i e s ? I f , perchance, each agency was to have such a f a c i l i t y , could it be e f f e c t iv e ly u t iliz e d ? To th is the answer must be no. Many ogencies do not have the back-up forces or equipment to allow the drawing of a company out of service so lely fo r the purpose of tra in in g . A serious attempt is presently being undertaken by the Heartland areo agencies (El Cajon, La Meso, Santee, Spring Valley, Lakeside, and 125 Lesion Grove) to establish a joint tra in in g f a c i l i t y fo r a ll to use. This is not only commendoble, but f o r sighted as w ell. There is ta lk of other such a c t i v i t i e s in other areas of the County. Such e f f o r t s would provide not only the tra in in g necessary, but the insurance ratin g agency has indicated that each p a rtic ip a n t would receive f u ll value for the train in g f a c i l i t y . In order to conduct a tra in in g program, one needs a tra in in g o f f ic e r . Here again, the lack of personnel does not allow each agency to have its own tro in in g o f f ic e r who can devote f u l l - t i m e e f f o r t to t h i s task. Comment should also be made of the two community colleges, Miromar and Palomar, that o ffe r academic troin in g in f i r e sciences. We found that Miramar College has l i t t l e d i f f i c u l t y in f i l l i n g classes, due mainly to the large number of f i r e personnel it can draw from. Thus, classes can be held at re g u la rly scheduled in te rv a ls , and the course content con vory in greo ter degrees. Several North County Chiefs have noted that they do not have th is lo titu d e in the system w ith in which they operate. The problem seems to lie in the foct that there are 126 fa r fewer men to draw from in f i l l i n g classes; th erefo re , there ore less classes and the d iv e rs ity is d imi n i shed. Another problem noted wos the bureoucrotic red tape thet must be surmounted in g e ttin g an individual from the North County en ro lled in courses at Miramar. The core of the problem lie s in the fact that each school d i s t r i c t is given aid based on the number of seots that it f i l l s ; th erefore, allowing men to go to Miromor reduces the size of the subsidy that Palomar would receive. Thus, we have the f i r e services placed in s t i l l another web o f ju r is - diet!ona I di spute, Training is also conducted between various agencies. Not having had the opportunity to observe such o c t i v i t y , only the r e la t iv e worth of such matters can be mentioned. They ere undoubtedly of great benefit to a l l concerned, and t h e i r value is expressed at the time of a disaster. Recommendat io n . — The County should encourage ond support, in any way possible, the e f f o r t s of those agencies seeking to build cooperative tra in in g f a c i l i t i e s and should work w ith the County Fire C h ie fs' Association in developing a tr a in in g program 127 ond f a c i l i t i e s that would be open to a l l . Such f a c i l i t i e s might be t r ie d on an area basis; that is, where the usage rate would be high and the costs d is trib u te d among mony. Pre-Suppression and Prevention The question of the r e la t iv e worth or savings a ttrib u ta b le to pre-suppression a c t i v i t i e s is open-ended. S t a t i s t i c a l l y , one may make o case fo r such a c t i v i t i e s on the basis of f i r e incident records; however, there is no clear proof that reduction in fir e s is due to the e ffe c ts of a pre-suppression program. Various ch iefs have noted that as long as you are dealing with the human element, you can never be c e rta in of the outcome. As logical as this approach appears to be, it is safe to assume a great many f ir e s are caused by carelessness which could just as possibly be prevented i f called to the c i t i z e n ' s a tte n tio n . Numerous agencies have noted that the costs of pre-suppression e f f o r t s are f a r less than the costs of extinguishing a blaze. The study questioned pre-suppression a c t i v i t i e s and found that most agencies conduct such a c t i v i t i e s , but the s im ila r it y ends there. The 128 scope of various programs d i f f e r s widely, es does the number of personnel involved and the degree of commitment displayed in following through on these ac t i v ! t i e s. Most agencies conduct structural inspections of commercial and public gathering buildings at least once a year. Although there are exceptions on both extremes of t h i s annual inspection, one must question i f once a year is s u ffic ie n t, es p ec ially in light of the growth of large shopping complexes and the lik e . Also, th ere is the need to c r i t i c a l l y inspect such complexes. D ire c tly coupled with this is the problem of non-uniformity In f i r e inspection standards, leaving a potential developer in a quendry about what is expected of him. Land clearance, commonly refe rre d to os weed abatement programs, is also in existence. The d i f f i c u l t y lie s in the fact that the code is not uniformly implemented in a l l coses, nor is it standard!zed. The weed problem, es p ec ially in a climate such as that found in San Diego County, c e r t a in ly is a cause for f i r e awareness and should be vigorously enforced. O verall, i t was found that a l l a c t i v i t i e s conducted under the label of pre-suppression lack the 129 manpower and expertise essential to conducting a thorough and systematic inspection program. In far too many instances these e f f o r t s are conducted by a minimal number of men, and in some coses th is is just a part-tim e e f f o r t . Fu ll-tim e manpower is considered essential to o thorough, comprehensive inspection program. The last element to be considered in th is realm is that of public re la tio n s . It was found that few agencies conduct public re la tio n s programs on an organized, on-going basis. Considering the constant in flu x of people into the County, such programs need to be developed. Programs should inform the public of the areas of p a rt ic u la r f i r e concern in the home and the community-at-large. There are many vehicles through which a program could be effe c te d , such as newspapers, te le v is io n or radio spots done on a public service basis, speaking engagements w ith in the community, ond the lik e . Through such programs the apothy of the generol public about th eir f i r e services may be lessened. Additional understanding and support should help the departments re a liz e t h e ir goals and needs. 130 Recommendat ion. - - 1 t is recommended that the County es tab lish and support a uniform f i r e code that could be enforced by a l l agencies, thus e lim in a tin g any confusion end duplication of e f f o r t . S im ila rly , the County Fire Chiefs' Association should encourage and support an active enforcement program of this and other ex isting codes. The County can fu rth er aid in th is area by providing the legal support thot would be required to make enforcement e f f e c t iv e . The enforcement program should be conducted by f u ll- t im e personnel who have a thorough knowledge of the codes, train in g in inspection techniques, and an understanding of human re I at ions. In the area of communications, the County should work with the C hiefs' Association in developing a comprehensive program for the en tire County. The County could oid in the d is trib u tio n a c t i v i t y on the broader scale, while the local c h ie f handles the program in his own community. Budget ary Conditions As any o rganization , public or p riv a te , is dependent on its fin a n c ia l position or s t a b i l i t y in order to function, the budgetary position o f the f i r e 131 services is of c r i t i c o i importance. Due to the scope of this pro}ect, not much time was spent in this area although o few s ig n ific a n t fin din gs were uncovered. In excess of 50 percent of a ll budgets are geared fo r personnel expenditures. This point illu s t r a t e s dram atically the impact of th is areo on the financing of f i r e services. W e can also expect that t h is re latio n sh ip w ill not diminish in the years to come. Note must now be made o f many o f the previous items in the analysis which c o n tin u a lly call out the undermanning of the agencies. This presents a paradoxical position of r is in g costs and fewer men to provide the expanding level of service required. We can only question how long the various agencies w ill be able to operate in t h is manner. The budgets are the re s u lt of ta x a tio n . This, in turn, r e fle c ts two things: (1 ) the p u b lic 's w illingness to poy for service, and (2) the r e la t iv e type or level of service desired. The psychology of the voter today is largely apathetic and negative when i t comes to voting fo r tax increases, fo r it is in such instonces that he expresses his displeasure with the situation s around him. Whereas f i r e services generally have not had d i f f i c u l t y in the 132 past in obtaining additional funds, they now find themselves having to operate in a p o l i t i c a l l y negative environment. It is true that a l l agencies have worked w ith in a p o lit ic a l framework, but th is new environment requires the f i r e services to take a more octive role in order to obtain support. Requests, es pecially for funds, are reviewed and must compete with other agencies' requests and by so doing open themselves up to c r i t i c a l review. The f i r e agencies can no longer assume that th e ir requests for tax increases w ill pass without s ig n ific a n t opposition. The public expects governmental u n its to provide the services it requests, but they are unaware of the costs involved in providing those services. Again, we have the need for a public re la tio n s program. With costs continuing to spiral in a ll areas of concern— personne I , equipment, and f a c i l i t i e s — and with the growing public resentment fo r increases in taxation, few a lte r n a tiv e s appear to be open to the f i r e services other than to explore a l l possible avenues of cost reduction. Such avenues include c e n tra liz e d purchasing, standardization of train in g and equipment, jo in t ventures on tra in in g a c t i v i t i e s , 133 and even a reorganization e f f o r t designed to more e f f i c i e n t l y u t i l i z e e x is tin g c a p a b ilit i e s . Recommendat ions. — 11 is our recommendation th at the County study the p o s s i b i l i t i e s of providing a source of low cost money to these agencies as a means of temporarily easing th e ir fin a n c ia l burdens. The County should also expand it s purchasing programs to include the f i r e services, thus e ffe c tin g p o ten tial savings through c e n tra liz e d purchasing. The Chiefs should formulate a committee that could review and recommend the standardszation of supplies, equipment, e tc ., necessary to e ffe c tu a te volume purchasing. A c r i t i c a l look should be given to the p o s s i b ilit ie s of coordinating and sharing future and e x is tin g f a c i l i t i e s , such as tra in in g programs and f a c i l i t i e s . Also, os part of th is review, consideration should be given to the long-range goals and needs of all the agencies and the p o s s ib ilit ie s of reorganization as a method of securing these goals and satisfyin g the needs. A ll these e f fo r ts should f a c i l i t a t e an ov erall cost reduction in not only f a c i l i t y costs, but in the areas of manpower and equipment as w e ll. 134 Mutual Aid Mutual aid is an extremely ben eficia l item when one considers the to ta l f ir e picture w ith in the County, but it is not without lim ita tio n s . Looking c r i t i c a l l y ot mutual aid agreements, we fin d that although they are formal in nature, response to a request for aid is purely voluntary. That is, a department does not have to respond to a request. Nor is the equipment that is sent guaranteed to be what is needed or, fo r that matter, manned s u f f ic ie n t ly to be of genuine assistance. It is conceded that such lim ita tio n s are not often publicized, but they must be considered. Gray areas appear to exist in the command structure at the various alarm states. Although the ex istin g system appears to be quite ratio nal and e f f i c i e n t , one must question the way the agreement is worded. In reading the command structure, the impression is received that i f a f i r e reaches a certain level, an operations commander, e t c . , must be selected to commond the a c t i v i t i e s . The plan does not break down how th is selection process occurs, nor does it specify what qua Iif ic a t io n s are required for se lection . This may appear a fin e point to make, but i f such a selection process does take place, how 135 much time is token before the commander reaches the f i r e and assumes command? Some Chiefs have indicated that they would like the process defined more c le a r ly or have such commanders pre-selected thereby minimizing the loss of time. Another point to consider about mutual aid is that it may a rriv e on the scene too late to provide the needed assistance. This hypothesis is based on the assumption that an individual chief may let a f i r e progress too far before c e llin g for aid. This may be considered as a natural phenomenon as the chief would be reluctan t to ca ll fo r help too e a rly , thereby opening himself up to c r itic is m of his competence-real or imagined. Another point concerning mutual aid is that, as the name would imply, it is to be re c ip ro c a l. The review of county-wide f a c i l i t i e s and departments did not bear th is out os many departments were found not able to recipro cate. This is due largely to in s u ffic ie n t manpower and equipment and the b e lie f that firemen could not leave t h e ir own communities unprotected. At th is juncture th is issue becomes one of equity and could possibly result in a d i s t r i c t or c ity not responding to a c a ll for a id because of these in e q u itie s . 136 The philosophy of mutual old olso requires that various units meet p e rio d ic a lly to tra in , improve cooperative techniques, and become more fo m ilia r with other u n its ' equipment and practices. As noted in the review of the data, such a c t i v i t i e s ore c u rren tly engaged in; however, these a c t i v i t i e s are not held re g u la rly in a l l zones, nor do they encompass a ll deportments or agencies. In fin a l analysis, mutual aid must be viewed as an emergency tool and not a panacea or substitute for the manpower and equipment eoch agency needs to provide the service of the future. Complacency must not be allowed to set in even though the program appears to be functioning quite well todoy since our changing world may make much of it in feas ib le tomorrow. Recommendat ion. — The County F ire C hiefs' Association should es ta b lis h a review committee that would be charged with the duty of constantly reviewing the mutual aid plan and ensuring it s success. The C h ie fs' re s p o n s ib ilitie s would include the scheduling of regular troining sessions in a ll areas of the County and assuring that a ll agencies, even the l i t t l e volunteer groups, be urged to 137 p a rt ic ip a te . The Association should fu rth er consider the appointment of disaster commanders in advance, thereby minimizing any loss of time that might come about. Such commanders might be the ex is tin g zone coordinators (c h ie fs ); they should be appointed for a period of time not under one year. Such commanders could respond to major f i r e c a lls , review the situation , c a ll for what help was needed, and d ire c t the e f fo r ts in an expeditious manner. Radio communications. —-AI though not s p e c ific a lly id e n tifie d in the questionnaire, an e f f o r t was made to gauge fe elin gs about the existing County radio net. The Chiefs indicated that they thought the system to be quite good and a major step towards bringing the County together. There was v i r t u a l l y no derogatory comment made, except to note th at on occasion f i r e personnel clog the various frequencies with c h a tte r. Since communications are such a v ita l element in the coordination and conduct of f i r e fig h tin g e f f o r t s , the system cu rren tly in use is providing th is c r i t i c a l element to v i r t u a l l y a l l departments in the County. Before proceeding with recommendations r e la t iv e to the existing radio net, a brief 138 explanatory note of the system's scope and operation is provided below for the reader's b e n efit. The radio net is composed of a Command and Control Station located at the main f i r e station in La Mesa, a back-up Command Station located in the County Operations Building, three radio repeater stations located on Mt. Pelomer, Cuyemoce Peak, and Lyons Peak, and individual radio un its in each f i r e department and a ll major pieces of apparatus. The Command end Control Station acts as the nerve center of to ta l operations, having the c a p a b ility to complete a radio hook-up with almost any f i r e agency in the County. The back-up system in the County Operations Building assures uninterrupted communication. Daily checks are made of a ll system components to assure proper operation. The system operates on o 24-hour basis and is designed to provide not only a local communications net, but also extended radio range service, inter-agency communicat Ions w ithin a zone, and Mutual Aid Service between e ll p a rtic ip a tin g agencies. The Mutual Aid Agreement c u rre n tly in use in the County fu rth e r defines system operation, testin g procedures, and frequency assignments. 139 Recommendet i on*. — The system described above has been called one of the fin est radio systems in C a lifo rn ia , but its largest drawback is that it is not to ta l in coverage. The Special Service Areas and the volunteer departments lack th is v it a l to o l. Poor coismun icat ion s, especially in e me i or confIagretion, con cost the lives of firemen as well as diminish th e ir effectiveness. Therefore, it is recommended that the County pursue a ll avenues to assist such areas in jo inin g th is well thought out radio net. How the Chiefs View Problems Relevant To 'H uTuaTX IdT "LeoTsT a i l on and County. -------------- 5 T a > .'.~ ^ n j F . d a r a 1 Aid--------------- Responses to questions in th is area revealed that there is a severe lack of coismun icat i on between County government and the d i s t r ic t s . There is also an indication that cosimunications among d is t r ic t s are not what they could or should be. While most of the Chiefs were more than w illi n g to discuss the County's f i r e problems in privacy, the environment created at the San Diego County Fire Chiefs' Association meetings did not lead to open communication amongst the f i r e c h ie fs . On numerous occasions individual Chiefs re a d ily agreed that they 140 would lik e to see free r commun7cotions; however, few f e l t or fe e l et lib e r ty to raise issues at the respective Chiefs' Association meetings. Information received through informal interviews indicated that while a lorge number of people may attend these meetings, county-wide p a rtic ip a tio n in them is lacking since some d i s t r i c t s seem to be highly represented while others may have l i t t l e or no representotion. Informal interviews revealed that most of the Chiefs respected the o b i l i t y o f the Ranger Units of the C a lifo rn ia Division of Forestry to fig h t brush f i r e s ; however, they were strongly opposed to conceding to them any further responsi b i l i t y f o r extinguishing structural f ir e s . Most Chiefs f e l t thot the Ranger Units were not properly trained nor equipped to do an adequate Job in th is area. Probably the most e x p lic it point brought out through the responses to this question was that w h ile most Chiefs were not comfortable with the thought o f consolidation on a county-wide bosis, they would be more than happy to consolidate such a c t i v i t i e s as tra in in g , dispatching, and th ird echelon maintenance. Nevertheless, the Chiefs indicated on several occasions that in order to do so i t was imperative 141 thot the Son Diego County Boord of Supervisors provide the leedership and d ire c tio n . Several Chiefs indicated th e ir b e lie f thot e consolidated f ir e department would be h e lp ful, again provided thot the County Board of Supervisors supply leadership. Before any such consoIfdotion could come about, the Chiefs f e l t that the Boord of Supervisors would d e f i n i t e l y have to issue a proclamation guaranteeing the s a la rie s of the Chiefs of the respective d i s t r i c t s . Although a consolidated f i r e department might mean that several of the C h ie fs' jobs might have to be re c lo s s ifle d , it should not re s u lt in a loss of salary to individuals c u rre n tly employed by any of the ex is tin g d i s t r i c t s . Aside from o fear of loss of prestige and influence in th e ir communities, th is appears to be one of the most troublesome obstacles impeding communication between the Board and the respective f i r e ch iefs . In the i n i t i a l consolidation e f f o r t s in Contra Costa County, Chief S treu li indicated a sim ila r situ a tio n occurred. Chief S treu li noted that when each chief whose d i s t r i c t would have been consolidated was s a tis fie d that consolidation could be safely negotiated without necessitating a loss of salary and job, community e f fo r ts were g re a tly enhanced. 142 There oppeared to be a generel consensus among the Chiefs thot the Board of Supervisors should es tab lish uniform standords of service levels and also establish uniform county-wide building codes. CHAPTER V CONCLUSIONS AND RECOMMENDATIONS At this point there con be no question thot o f i r e service problem exists within the County, Bosed on the informotion co llec ted end our onolysis, the following recommend©tions ore submitted os corrective measures. Recognizing thot o problem e x is ts , our f i r s t step is to review o il potential ovenues of action open to the County; they include annexation, metropolitan federation, functional consolidation, city-county consolidation, and maintenance of the stotus quo. These a lt e r n a t iv e s have been explained in detail in the Summory of A lte rn a tiv e s (pege 43), but as a refresher, annexation is a molding of two or more e n t it i e s into one and is to ta l in nature. Metropolitan federation re fe rs to the consolidation of one or more s p ecific services ( f i r e , police, e t c . ) which can be hondled best on o metropolitan basis, while other services ore l e f t to the respective communities. Functional consolidation involves the consolidation of only one p a rtic u la r function common to o number of local governments p e rt ic ip e t Ing. It 143 144 d if f e r s from m etropolitan federation in that the la t t e r may involve the consolidation of more than one function common to the p a rtic ip a tin g governments. City-county consolidation is quite sim ilar to metropolitan federation with the exception that it creates one to ta l government. Maintenance of the status quo needs no elaboration. After reviewing the a lte rn a tiv e s , maintenance of the stotus quo as an a v aila b le a lte rn a tiv e was elim inated as the problems depicted w ill continue to expond. Also elim inated from consideration is annexation in that the service e n t i t i e s , population, and tax bases are too diverse to bring about an equitable annexation, City-county consolidation has also been elim inated becouse the volume of p o lit ic a l e n t i t i e s , population and tax boses, equipment, ond f a c i l i t i e s to provide the service are such that i t cannot be reasonably expected to succeed at this time. However, th is a lte rn a tiv e should not be neglected t o t a l l y but kept in mind for the future when the p o l i t i c a l and popular positions of the County provide an environment conducive to success. This process of e lim in atio n has le f t us with the last two a I terna 11 ves~metropo I i ton federation or 145 functional conso Iid o ti on— os our suggested avenues of approach. In th is regard the researcher views f ir e services to be a problem which is metropolitan in nature and can be better provided on on area or metropolitan basis. The concepts of metropolitan federation and functional consolidation hove been modified to r e fle c t what are considered to be the most e f f i c i e n t ond expedient approaches to solving the problems of f i r e protection throughout the County (see the discussion of these two approaches in Chapter I I ) . Area Consolidation It is f e l t thot the most expedient avenue of problem solution lie s in oreo consolidation (through metropolitan federation or functional consolidation or both) as opposed to county-wide consolidation. These methods are considered to have the greatest potential for success and to provide the nucleus for solving the to ta l fire problem. Area consolidation w ill provide a l l the benefits of county-wide consolidation, but because of the smaller grouping, the chances of successful implementation are considered greater. Although mony look upon consolidation with distru st ond anxiety, the continuing financial pressures to provide services w ill leave no other vehicle open. With th is thought in mind, the following recommendations ore provided. Areas to Consolidate It is recommended that the Heortiand Group (El Cajon, Lakeside, La Mesa, Lemon Grove, Santee, and Spring Valley) consolidate th e ir f i r e service e f f o r t s . This procedure could be done through a jo int powers agreement creating a single f i r e department. This consolidation is recommended due to the geographic proximity of these communities, the general s im ila r it y of th e ir development, and the fact that the general area is f o i r l y well developed. This group has recognized the need for cooperative services and is presently engaged in th development of o jo in t training f a c i l i t y . Such a move spreads the costs of this unit among the group thereby reducing each contribution, while also reaping the benefits of improved insurance ratin g s. These fa c to rs produce positive pluses fo r the c it iz e n in improved services, better trained men, and lower costs in taxes as well as insurance costs 147 It i i fu rth er recommended thot the Heortlond Group expend its oreo to include the communities of Alpine, Bostonio, Crest, Grossmont-Mount Helix, ond Horbison Conyon. Although these ogencies do not r e f le c t on economic equolity w ith those of the Heortlond oreo, th e ir lock of tro in in g , monpower, ond equipment pose serious threots to the e n tire oreo. Becouse of th e ir fin on ciol differences, it is recommended thot the Heortlond Group provide the odditionol services to these oreos on e controct bosis or by onnexing them into o consolidated service oreo. Once consolidated, the fin on cio l posture of the Heortlond Group should be such thot these controctuol services could be provided at minimum costs. S p e c ific o lly , the services might include tra in in g , vehicle maintenance, ond back~up equipment and forces. Further, we recommend the communities of V is ta , Oceanside, end Carlsbad consolidate t h e ir f i r e e f f o r t s . This recommendetion, lik e that of the Heartland Group, is based on common geographic areas and needs. Each o f these communities is being herd pressed to meet the needs of th e ir community. By combining th e ir services and th e ir e f f o r t s , a more comprehensive f i r e fig h tin g program could 148 evolve. The location of these communities mokes c e n tra lize d tra in in g , dispatching, and service a real p o s s ib ilit y and would allow one unit to cover for another. S im ila rly , another area we feel should be consolidated is the e n tire South Bay area (Chula V ista, Bonita-Sunnyside, Montgomery, Sweetwater, ond National C it y ) . The area is facing severe growth pains w ith many apartment complexes heading the th ru st. These communities are having fin an cial d i f f i c u l t i e s in meeting the needs of the aree. Continued growth in th is region only in te n s ifie s the need fo r tra in in g , specialized equipment, and more manpower. Like the other areas suggested for consoIidotion, the geographic location and s im ila r it y of problems make them ideal prospects for consolidation e f f o r t s . The areas of tha County which were considered most appropriate for th is action have been id e n t ifie d . The next logical question would be what to do about the remainder of the County, To th is regard it is f e I t that the other agencies are not yet developed to the point where consolidotion e f f o r t s would be appropriate. At the present time those other agencies should remain in th e ir current form 149 u n til they expend to e point where the benefits of consoIidotion would be meaningful to the populace. Coupled with th is idea of consolidation is the recommendation thot the County Fire Chiefs' Association review the e x is tin g mutual aid zones. Existing zones appear to be t o t a l l y dysfunctionaI. This is also the consensus of the Technical Advisory Committee of the Son Diego County Fire Chiefs' Association. A case in point is the City of Oceanside or the C ity of Carlsbod conducting training exercises with or requesting aid from Del Mar, while the City of Vista, a neighboring community, is in a d iffe re n t zone. It is suggested that zones be re c la s s ifie d on a basis of geographic proximity ond s im ila rity of service and f i r e conditions. Such realignment should also consider any ottempts at consoIi dat i on. Although three areas of the County have been id e n tifie d as examples for consolidation, th is in no way p ro h ibits or excludes the p o s s i b ilit ie s of other communities coming together to take advantage of consolidation benefits. The au th o r's recommendations are addressed to the agencies which have the greatest need or can benefit most immediately through such action. It is the au th o r's firm b e lie f that a 150 county-wide f i r e department is the ultimate solution to the problems of the f i r e services; an incremental approach is proposed to achieve th is long-range goal. Once other agencies re a liz e the benefits are accruable and are of such a size as to make the benefits advantageous, it is the general fe e lin g that the ogencies w ill seek to consolidate with others. Why ConsoI{date? Thus fa r, we have been rather nebulous as to the benefits of consolidation, and it is to these points that we now address ourselves. Fundi no. — A fte r reviewing the data section of th is report, it is evident that financial aspects of the f i r e services are a most c r i t i c a l po in t. Tax rates for th is service range from 34 cents to well over a d o lla r. Inasmuch as the general public is becoming more conscious of i t s tax d o lla r and is more reluctan t to pay higher taxes, a new and better method must be found to provide the needed funds. Consolidation may be the answer to th is need. Through consolidation the u n ifie d egency has o greater tax base from which to draw and can compound th is with operations that are conducive to economies 151 of scole. Since the need for equipment, e t c ., con be spreod over o wider ronge ond need not be duplicated os in the cose of eoch individuol c i t y or d i s t r i c t ottempting to moke the purchose, the c o n trib u tio n of eoch toxpoyer con be lessened. Duplicotion of serv ices. — Another s ig n ifican t odvontoge of consolidation is the elim in atio n of duplicated services. Eoch individual c it y or d i s t r i c t should maintain c le r i c o l, maintenance, ond troining operations which, if combined, could result in o sig nifican t savings. Manpower. — In keeping with the administration of services on an individual level, a c e rta in number of personnel is required, i . e . , dispatchers. Under consolidation the need fo r men in such positions would be d r a s t ic a lly reduced. This is a s ig n ifican t point when you remember thot personnel costs represent 70 percent of the total f i r e budgets w ithin the County. A secondary benefit is thot these additional men, now free of their old tasks, represent the nucleus of s p e c ia liza tio n . That is, the consolidated agency would have the c a p a b ility of tra in in g th is e x tra manpower in sp ecialized areas, such as f i r e prevention, inspection, or arson 152 investigation. This s p e c ia liza tio n would provide the expertise lacking in these areas and allow the agency to in te n s ify and expand its level of services without major expenditures of funds or loss of personnel. S t i l l another side benefit of such a move would be the standardization of job descriptions and requirements, while creating more avenues for advancement by the lower echelons. This should increase morale and in terest in the agency and add to its retention a b i l i t y . Equ i pment. — Equi pment is yet another source of improving the cost picture while increasing the level of service. At the present time, each independent agency is required to maintain x number of vehicles in a reserve capacity. With the p o s s ib ility of being c a lle d into service, these units must be constantly ready to answer the c a l l . As reserve units are generally rather old, the cost of maintenance is high. Under a consolidated agency, the need for many of these reserve vehicles would be eliminated, thus e ffe c tin g a sizable savings. S im ilarly, the author has noted the dramatic growth picture of San Diego County with its many apartment complexes. Such growth needs new and specialized 153 equipment, nomeiy aeriol apparatus. Such vehicles are quite costly and, in our opinion, many of the d i s t r i c t s would be hard pressed to purchase such apparatus without severely endangering th e ir fin a n c ia l posture. With consolidation, one vehicle could serve a wide area of coverage i f c e n tr a lly located thereby meeting insurance needs and providing the protection levels necessary. Tra i nino. — Training is a crucial element in the development and delivery of the best possible services. Each agency conducts its own tra in in g sessions and, while quite sim ila r in nature, the scope of such a c t i v i t i e s is not uniform. Some of the smaller agencies have a d i f f i c u l t time conducting much of a tra in in g program at a l l . Training f a c i l i t i e s are another major element involved. Except for a few agencies, such f a c i l i t i e s as towers, classrooms, test stations, e t c ., are non-existent. Through consolidation, tro in in g a c t i v i t i e s could be standardized allowing quick and easy movement of men without fe a r of performance loss. A tra in in g f a c i l i t y , an extremely co stly item, could be b u ilt in a central location for use by a l l . Again the costs of such a f a c i l i t y could be spread over a 154 wider range, thus reducing net impact on tax rates. Being so located, a company could be pulled from duty without a loss of coverage os another company could be used to f i l l in temporarily (on a work-up system). A county-wide f a c i l i t y could become the source fo r the academy tra in in g which is cu rren tly conducted at Miramar and Pelomer Colleges. This c e n tra liz e d f a c i l i t y would keep the men in th e ir own area with fo m ilio r surroundings, and would allow them to p a rtic ip a te in developing t h e ir ocodemic s k ills as well as manipulative s k ills with the equipment they w i l l u ltim a te ly use. These f a c i l i t i e s could also be mode avoilobie to agencies not so consolidated thus improving service levels, stondordizing tra in in g a c t i v i t i e s , and enhancing the ease of d iffe r e n t agencies working together. Such a program is c u rre n tly being developed in Contra Costa County. Insurance costs and taxes. - - I t is in th is area that the impact of consolidation is most noticeable to the public. There is every reason to believe that consolidation w i l l provide for a lowering o f both these costs to the public. Contra 155 Costa County provides a very dynomic example of such benefits in that the tax rates fo r the consolidated area have dropped 15 cents over the period from 1964 to 1970. A continuing of this reduction is forecast fo r the future, although o recent increose was ca lle d fo r to purchase lands. Insurance costs make up a sizable portion of the costs for f i r e protection. Once the consolidated agency was formed in Contra Costa County, o roting of class three was awarded to i t . When new agencies joined th is consolidation, they also received a blanket three ra tin g . However, it must be re a liz e d that the joining agencies were required to meet ce rta in standards although the consolidated base made requirements easier to meet. There is no reason not to expect that this occurrence would duplicate i t s e l f in San Diego County as the insurance rating service has already indicated a w illingness to give cred it to the e n tire Heartland Group fo r th e ir proposed tra in in g f a c i l i t y . Elim ination of boundar ie s . — Thi s action is one which does not necessarily produce a d o lla r savings in operating costs; however, the level of service would most lik e ly improve dramoticaI Iy . No longer would a c h ie f from one area have to call on an outside or neighboring community for support, nor would he hove to wait fo r th e ir response and wonder what equipment w ill be sent and how it w i l l be manned? The consolidated area should o ffe r a larger f i r e force w ith b e tte r d is trib u te d equipment thereby e lim in atin g time delays and o ffe rin g any section of the areo a large-scale f i r e fig h tin g force. Another by-product of consolidation would be the rea llo c a tio n of statio n s, men, and equipment. This action can possibly do away with some existing stations that have marginal areas of coverage; that is, the station is located too close to a station of another d i s t r i c t thereby reducing the e f fe c tiv e range of coverage of both. New station locations might conceivably be required to provide total coverage. Costs for new stations could p a r t i a l l y be offse t by sale of older stations that are no longer required. The elim in atio n of p o lit ic a l boundaries also f a c i l i t a t e s the p o s s i b i l i t y for long-range planning. With such planning, costs could be reduced, service enhanced, and control exercised more e f f i c i e n t l y . Communicotions. — As ha* been previously mentioned, county-wide consolidation is f e l t to be the ultim ate long-range answer to current f i r e problems. To accomplish th is end, one point of primary importance is the provision for communications throughout the consolidated area. I th is regard, San Diego County has already met this requirement in its excellent radio net. It is f e l t that th is net could and should be used as a nucleus for future consolidation e f f o r t s , thereby enhancing the tra n s itio n a l period without loss of communications c a p a b ility . Although there ore a myriad of benefits to be accrued through long-range planning, the researcher has only highlighted a few of the major points. However, one should not f a i l to look into the legal p o s s i b ilit ie s of cost savings in c e n tra liz e d purchasing, adm inistration, personnel, e tc . It is because of the tremendous benefits a v aila b le that the author strongly recommends po sitive action be taken along these lines. 158 Impact of Consolidation on Present F ir e Structure When considering reorgenization or restructuring of local governments of any type, several primary questions must be regarded. They ere : 1. What ere the legal provisions that must be considered in reorganizing or merging c it ie s w ith d is t r ic t s ? 2. What w i l l be the role of the d is t r ic t boards, c it y councils, and commissions in areas where d is t r ic t s ore merged with c it ie s ? 3. What w i l l be the role of d i s t r i c t f i r e chiefs, and whet w i l l be the role of the c ity f i r e chiefs? 4. How con retirement plans be coordinated when there is a d is p a rit y among them fo r the d i s t r i c t s merging? 5. How w i l l pay, benefits, and job security be offected? Questions of th is sort were quite prevalent in Contra Costa County (on example of functional consoIidot ion) during the i n i t i a l phases of its consolidation e f f o r t s . Nevertheless, they were worked out through small peer group sessions with 159 f i r e chiefs end c it y and d i s t r ic t boards. Therefore, in lig h t of the above questions, the study group makes the following recommendations. 1. Referent to the role of the various d i s t r i c t boards, c i t y councils, or other governing mechanisms, the outhor recommends that for each regional federatio n , one representative be selected from each d i s t r i c t , c it y , or community. The newly selected representatives w ill then become the regional governing board. The primary function of th is board would be to serve as an overseer to the ad m in istration of th e ir p a rtic u la r fe d e ra tio n . The powers of the board should be s u f f ic ie n t ly broad to provide general guidelines to the various adm inistrators of eoch federation. Contro Costo County has experienced great success as a re s u lt of a s im ila r stru cture. 2. Probably one of the biggest problems to be faced by the federation w ill be to determine the ro les of the various chiefs who would be absorbed into the new system. Much of th is problem w i l l be to determine who w ill be ch ief. It is recommended that th is be determined by mutual consent omongst the chiefs and d i s t r i c t boards, c i t y councils, or commissions. A fte r a chief has been chosen, i t is 160 recommended that the remoining ch iefs be appointed as major divisio n heods, i . e . , one chief should be selected as assistant c h ie f-in -c h e rg e of tra in in g ; one be selected as assistant ch ie f-in -c h a rg e of adm inistration; another selected as assistant c h i e f - in-charge of operations; one c h ief should be selected as assistant c h ie f-in -c h a rg e of maintenance; and one ch ief should be chosen as assistant c h i e f - i n - charge of planning and the development of a sound pre-suppression and public information program. In federations where there is n 't an assistant chief a v aila b le to be put in charge of the above functions, It is recommended that two or more of these functions be combined under a single assistant c h ie f ( i . e . , assistant ch ief-in-charg e of tra in in g and maintenance, e t c . ) . In federations where the number of assistant chiefs may be more than the above-mentioned functions, the recommendation is that ce rta in functions be divided into sub-functions. For example, an assistant c h ie f of adm inistration could be put in charge of personnel and recruitment; an assistant chief could be in charge of finance and accounting. The number of agencies consolidating th e ir service w i l l provide the guide to the degree 161 of s p e c ia liz a tio n allowed. The above opproach appears to be extremely successful in Contra Costa County. 3. Referent to the combining or coordination of the d iffe r e n t retirement plons, it is recommended that the San Diego County Board of Supervisors make legal counsel a v a ila b le to examine the number of retirement plans in existence end to work out legal problems in having the retirement plons of the federation incorporated with one or a combination of these plans. In the event that a party of the federation is already in on adequate or sa tis fa c to ry plan, continued membership in it should be encouraged. 4. Referent to poy, benefits, and job security, it is recommended that the San Diego County Board o f Supervisors issue a proclamation insuring a l l personnel that the federation w i l l take place w ? thout a loss of job security or salory decrease. It is a I so recommended that the Board f a c i l i t a t e a plan to equalize or standardize the pay and benefit plans o f the proposed federations so os to minimize the departure of personnel from one federation to another or to d i ffe r e n t c i t i e s in pursuit of employment which provides income to insure at least 162 an adequate standard of liv in g . In many instances the study group observed that there was much concern on the part of Chiefs in several agencies that some of th e ir more copable personnel would be lost to other c i t i e s or ogencies who were more competitive salory and benefit wise. Therefore, i f benefits and s a laries of the new federations were improved, more resources would be devoted to fu rther train ing personnel while. minimizing the fear of losing those personnel a fte r such an investment, Role of the County in the Proposed Consolidation In an age when the number of local governments continues to grow, when the cost of services continues to s p ira l, and when functions of local governments are continuously being threatened to come under the supervision of State and Federal governments, i t appears that the time has come fo r the San Diego County government to provide leadership and d irec tio n to one of the most tr a d itio n laden services of our time—-the San Diego f i r e service. Therefore, the author recommends that the Board take the following steps. 1. Elim inate psychological barriers to communications. One of the dominant components of 163 ony good organization or re la tio n s h ip is good communications. Nevertheless, the lack of two-way communications between the County and the d i s t r i c t s and c i t i e s , coupled with the lack of adequate communications between d i s t r i c t s and c i t i e s , has created an environment of a lie n a tio n for a l l involved. Therefore, to elim inate th is b a rrie r it is strongly recommended thot the Boord of Supervisors sponsor a series of informal meetings with members of the County Fire Chiefs' Association on a weekly or bi-weekly basis. The purpose of these meetings should be to inform those members of the Board's commitment and re s p o n s ib ility toward the improvement of the County's f i r e problem. In turn, the respective members could give a firsth an d account or report of the problems as they are manifested on o d a ily basis. Thus, as a re s u lt, th is would help to illu m in ate the to ta l f i r e picture while at the same time strengthen the interpersonaI/personneI r e la tio n s between individual Board members and those ch iefs who may have reservations about the Board's re s p o n s ib ility and commitment to the betterment of the county-wide f i r e system in general and each d i s t r i c t in p a rtic u la r. It is suggested that the environment of these meetings be such that each 164 p a rtic ip a n t feels at lib e rty to discuss the issues openly and honestly without fear of any co nstraints. 2. Once the communications b a rrie r has been broken, continuous e f f o r t s must be in s tit u te d to insure that c o n tin u ity be maintained. Therefore, i t is highly recommended that re s p o n s ib ility to maintain liaison between it ( Board of Supervisors) and the various f i r e agencies be vested in a f i r e coordinator at the County le v e l. The coordinator should also be able to keep the Board posted on the number and types of supportive services that could be provided for the respective agencies. In the same vein, the coordinator should keep obreost of oil Stote and Federal funds thot may be a v a ila b le for the enhancement of f i r e services and, thus, be able to relay th is information to the various agencies. In the fin a l analysis, the coordinator should be vested with the re s p o n s ib ility of i n i t i a t i n g and coordinating a sustained e f f o r t to e s ta b lis h a bridge between the Board and the various agency boards. This is important inasmuch as any form of a coordinated program w i l l u ltim a te ly require the sanctions of these agency boards. It is important that the proposed County F ire Coordinator be selected ot the e a rlie s t possible 165 opportunity. The ra tio n a le for th is i t to insure smooth co ntinuity of communications os many chiefs have expressed fear of a time lag between the dete-gothering phase and the taking of positive action as evidenced by past studies. 3. The establishment of a uniform f ir e and building code is important in that it w i l l insure that future developments w ill meet a minimum standard. The establishment of these codes w ill also f a c i l i t a t e o more consolidated tra in in g program inasmuch as they w ill standardize most of the tra in in g procedures. Thus, mutual aid w ill also be enhanced as f i r e personnel from other d is t r ic t s w ill be f a i r l y fa m ilia r with s tru ctu ra l components in the event they are extinguishing f i r e s in d i s t r i c t s other than th e ir own. 4. Once the above codes have been established, an agency should be vested with the re s p o n s ib ility of enforcing them. It is recommended that th is re s p o n s ib ility be vested in the Department of Special Public Services. It should be understood that th is agency should have the a u th o rity to investigate the execution of these codes and to issue warnings or c it a tio n s whenever they are not complied with. 166 5. A research lab should be established to continue to study the County's f ' re problems. This leb should be able to keep the County Board of Supervisors, Fire Chiefs, ond d i s t r i c t boards informed of any present or po tential problems referent to f i r e p ro tectio n . It should also assist the above groups in deriving solutions. 6. It is important thot the Boord of Supervisors make known in Sacramento and Washington, D.C., the need fo r fin a n c ia l ossistonce to aid In implementing the necessary changes or reorganization of the existing County f i r e system. 7. It was obvious to the author th a t there was much concern in several of the agencies about the role of the County in guaranteeing a l l c itiz e n s adequate f i r e protection. Therefore, the author recommends that the County Board of Supervisors state the role of the County of San Diego in developing on improved f i r e system. Included in th is statement, the Board should also state its ro le in assisting these agencies in developing long- and short-range pIann i ng. 8. Personnel recruitment and te s tin g are very expensive functions when they are done on a small scale. Therefore, i t is recommended that the 167 County Boord of Supervisors review the legal aspects of making a v aila b le the County f a c i l i t i e s to assist in providing medical and physical examinations. It is also recommended that the County make av a ila b le personnel to assist in the testing of personnel fo r both new and promotional positions. 9. The County should also review the p o s s i b i l i t i e s of serving as the central purchasing agent for the f i r e agencies, and supplying needed ad m in istra tive and a n a ly tic a l assistance, planning and legal aid os the needs arise . Legal counsel can review the a p p lic a b i lit y of immediate County p a rtic ip a tio n or id e n tify whot le g is la tiv e changes w i l l be required to f a c i l i t a t e such steps. D e fin itio n of Roles In preceding chapters the author hos outlined areas that ore considered to be potential cendidates fo r consolidation and also some of the major benefits which can be derived from such oction, and how such action w i l l a ffec t the hierarchical structure or organization of the deportments. Should p o sitive action take place on the above recommendations, the County w i l l be protected by three major organi zations: the consolidated d i s t r i c t ( s ) , those 168 agencies not so consoIidated, and the C a lifo rn ia Oivision of Forestry. Because of th is division of groups, a tte n tio n is now directed to the d e fin itio n of the roles or duties of each of these groups. Consolidated Agencies The role of the consolidated agency re a lly does not require much elabo ration . This ogency would be charged w ith the respons i b i I i ty of providing the needed coverage for the area as well as p a r t i c i p a t ing in mutual aid agreements. The author foresees thot the consolidated area w ill provide leadership w ith in the f i r e services ond assist them to share, as much as possible, th e ir a ttrib u te s such as tra in in g with agencies that have not yet reoched the level s u ffic ie n t for consoIidat ion. C itie s and D is t r ic t s (Not' CbnsoT73aTe3T" " The a c t i v i t y of such agencies is encouraged in u t i l i z i n g as many avenues as possible to save money and improve e f f ic ie n c y (c e n tra liz e d purchasing, contractual services fo r support, and/or tr a in in g ). Their general role of coverage is not foreseen to change dram atically in the near fu tu re, though each 169 of them is a c tiv e ly encouraged to explore e ll p o s s i b ilit ie s of consolidating th e ir services. C a lifo rn ia Division of Forestry As noted e a r l i e r in the study, there are areas within the County that have l i t t l e or no structural f i r e protection . These areas lie predominantly in the back country where no c it y or f i r e d i s t r i c t e x is ts . Currently, the Division of Forestry provides lim ite d emergency services to mony of the periphery and island areas of the County that lie w ith in or are adjacent to established f ir e protection services. With these thoughts in mind, it ?s recommended that the role of the Division of Forestry be redefined as follows. 1. Though not leg ally charged with the structural protection of island and periphery areas, the creation and implementation of a minimum f i r e standard ( f i r e code) would remove the C a lifo r n ia State Division of Forestry from the grey orea separating stru c tu ra l and watershed protection. This would be accomplished as the standards would deal with minimum reporting times, equipment, and the like which are not c u rre n tly w ithin the scope of the Division of Forestry. Thus, the standards would 170 encourage such areas to Join existing agencies where services could most expediently be provided. However, such agencies would have the rig h t to annex or contract for these minimum services with whomever they desired, including the C a lifo rn ia Division of F o re stry. 2. In the periphery areas surrounding e x is tin g c i t i e s , d i s t r i c t s , or planned consolidated d i s t r i c t s , the minimum standards would again apply. In many instances such areas would not hove developed to the point where a s u ffic ie n t assessed voluotion existe d to maintain a f u l l - t i m e , permanent f i r e service. Although agoin the choice should lie with the c it iz e n r y , i t is recommended that the Division of Forestry be assigned the interim role of providing minimum structural p rotection . As these areas increase in size and value, they in turn should be annexed into the neighboring c it y , d i s t r i c t , or consolidated agency. 3. To provide fo r stru ctu ral protection in those back-country areas that are without year-round p ro tectio n , it is recommended that the County controct with the Division of Forestry to maintoin and operate its seasonal stations on a year-round basis (set up a County service area ). No 171 d is tin c tio n is mode of th is point os to which stotions/ i f not o i l , should be mointoined. Rother, this decision should be orrived et o fte r review of development a c t i v i t y ond loss of l i f e and property potent ioI s. Overv iew Reviewing the growth of the County, which tends to be generolly in o West to East d ire c tio n , the outhor fe e ls the obove roles would be most b e n e fic ia l. This is in f u l l re o lizo tio n thot where protection needs ere highest, there ore olreody f i r e services in existence. The exponsion of such services, rother thon to tal replacement, is f e l t to be the best choice for successful implementation. However, the Division of Forestry hos capacities which cannot be overlooked, ond th e ir continued role in f i r e protection for San Diego County is encouraged. Outside Assistance In recommending an incremental opprooch to to tal county-wide consolidation, the outhor also recognizes that these i n i t i a l steps toward reorgan?zotion w ill require a great deal o f e f f o r t . Many more s p e c ific studies w ill be required ond 172 knowledge end expertise developed. There con be no doubt that such steps w i l l cost money, and, fo r that reason, the author recommends securing the services o f organizations which possess the expertis e to provide the additional data that are needed. The Rand Corporation is c u rre n tly engaging in research services in various c i t i e s and counties throughout the nation that are engaging in reorganization or consolidation a c t i v i t i e s . Their services ere being financed by grants from the Office of Housing and Urban Development. The author discussed the s itu a tio n with a representative of Rand Corporation. The representatIve f e l t that Rand Corporation could be of great assistance in determining station locations, dispatching services and centers, and in personnel d i s t r ib u t io n . Computer programs and research methodologies are already existent in these areas. Since statio n locations, dispatch, e t c ., are key ingredients in the successful implementation of any consolidation e f f o r t , the author strongly urges the County end a l l other interested d i s t r i c t s ond/or c i t i e s to contact the Rond Corporation immediately. Since t h is is not an on~going program ond there ore lim ited funds, delay in requesting these services 173 may fin d them no longer a v a ila b le . These services would be provided at no cost to the County, c it y or d i s t r i c t except for a minimum amount of manpower needed to assist the Rand team. Further Recommendations Throughout th is report note has been made of the problems that were perceived during the course of the study. In order to successfully implement the suggested course of oction, the author recommends that the following actions be studied and taken. PersonncI In bringing about a consolidation, you consolidate men as well as equipment and f a c i l i t i e s . Personnel represent the key to the success of any organization, and care must be exercised in dealing with reorganization. It is recommended that the County and/or in terested c i t i e s or d i s t r i c t s commission a study which w ill review the personnel position of the f i r e services. Items of note should be work hours, job c la s s if ic a t io n , h irin g p o licie s, retirement programs, and benefit plans. The study should attempt to a r riv e at a standardized job description for each p o sition, determine q u a l i f i cations necessary for each position, and develop 174 wage ranges fo r each. Further, benefit and retirement programs should be evaluated so that when consolidation attempts occur, answers w ill be a v a ila b le to these most serious questions. It is f e l t that the County could best direct and conduct such a study because of the resources it has avai table, Educati on It is recommended that the County Fire C hiefs' Association inquire as to the p o s s i b ilit ie s of creating management seminars or classes for a ll upper level personnel. These courses could conceivably be conducted at Miramar College, Polomar College, C a lifo rn ia State University at San Oiego, or at a mutual train in g center. Such courses would enhance the respective c h ie f 's a b i l i t y to deal with both local forms of government and control over the resources he has at his disposal. PI annI no The benefit of long-range planning cannot be overlooked, and it is recommended that the County Fire C hiefs' Association, in conjunction with the County, mutually agree to p a rtic ip a te in long-range planning. A board could be established to review a ll 175 new f o c i l i t y plons and locations. Such a step would lessen the chances of stations being i l l placed in regard to total oreo protection. In conclusion it is quite appropriate that the author o u tlin e the lim ita tio n s of the study. These lim ita tio n s have been advanced in the following paragraphs. Lim itatio n s of the Study It should be noted at this juncture that this study was conducted under rather severe time constraints. These time constraints were established in the controct fo r the study and undoubtedly grew from an erroneous expectation by the contracting agency (San Oiego County) that the data requested were re a d ily a v a ila b le . The study guide, provided by the San Diego County C itizens Advisory Committee, c a lle d for a review and report on many points re la te d to the total f i r e protection pictu re w ith in the County, Many of the areas that were singled out for study, i . e . , tra in in g , personnel, e t c . , are so large in and of themselves that a separate study on each of them would have had to be engaged in to s u ffic ie n tly cover the subject. Due to the scope of the contractual study and time constraints, many of the areas which are covered in some detail in the study guide are only b r ie f ly considered in th is report. Realizing that other studies of th is nature have taken several years to complete, th is study has focused p rim arily on achieving an overview of local governments in the United States with a special emphasis on the f i r e protection services and re la te d problems w ith in the County of San Oiego. The author f u l l y recognizes the v a l i d i t y and need fo r pursuing many other aspects of providing f i r e services and, th erefo re, strongly recommends that fu rth er studies be commissioned to provide the d e ta ile d analysis required as time and need demand. BIBLIOGRAPHY 177 Bl BLIOGRAPHY Books Adrian, Charles R, Governino Urban Aeierico: Structure, PoJj1jc* and Admin Is t r a t io n . New Vork: Hctraw-H!IT book Company, Inc., 1955. __________. State and Local Governments; A Study in the P ol}I Ice I Process, Hew York? McGraw- HI I I Hook Company, Tnc,, 1960. Advisory Commission on Intergovernmental Relations ( A .C .I. R . ) . Performance of Urban Functions: Local and Arcawlde. Washington, b . C . : A .C .I.R . Contract M-21, September, 1963. A r is t o t le , A Treatise on Government. Book V I I , Chapter TV^ Hew York: tverymen's Library Edition, 1947. Bel lens, John C. ond Schmandt, Henry J. The Metropolis: Its People. P o lit ic s and Economic L i f e . 2nd Ed. New Vork: Harper and Row Publishers, 1970. Campbell, Alan K ., ed. The State and the Urban Cr i si s. Englewood C l i f f s , Hew Jersey: P re nt 1ce Hoi I , Inc., 1970. Committee for Economic Development (C .E .D .). Modernizing Local Government. New York: C.fc.'D. Publ I shers, 1966.--------- Dror, Yehezkel. Pub Iic Polievmak?no«-Reenomined. San Francisco: Chandler Publishing Company, 1968. Hatt, Paul H. and Reiss, J r ., Albert J, C it ie s and Society. New York: Crowe I I-Co I Iie r Pub I 1sning Company, 1961. Katz, Daniel ond Kahn, Robert L. T he Soc i a I Psychology of Organizations. Hew Vork: John Ik I ley and bons, Inc., 1966. 178 179 Martin, Roscoe C. The C itie s and the Federal System. New York: Atherton Press, W 65. Mi I Ispough, Arthur. Local Democracy and Crime Boston, Mass.: Brookings In s tit u te , 1936. Mumford, Lewis. The C ity in H isto ry. Harcourt, Brace end World, 19^1. State of C alifornia Department of Conservation, Division o f Forestry, C a I?fo rn ia AfIame. Sacramento: State of C a lifo rn io , October 4, 1970. Wilensky, Harold L. and Lebeoux, Charles N, Industrial Society and Social W elfare. New York: feusselT Soge Foundation, l9~>8. Per ? odicaIs Sen Diego Union-Tr?buna. San Diego, C a lifo r n ia , August 13, 1972. . San Diego, C a lif o r n ia , November 15, 1972. Unpublished M ateriel Brown, David S. "Shaping the Organization to F it the People," In reader Public Administration for the 1970's by Bruce ^Torm, Richard H arris and Jang Sup Jun, n.d, Kim, Joe T, A Study of the Reoroanization of Local Government S tru c tu re . Dissertation B resented to the Graduate School of the n iversity of Southern C a lifo rn ia , February, 1972. Richter, Anders. "The E x is te n tia l Executive." In reader Towards Tomorrow»s Organ! zat ions : Cha I lenqesand P o s s i b ? I i f i e s by Jong Sup Jun ond Bruce Storm, n.d. San Diego County Fire Technical Advisory Committee. Minutes, December 1970. S tr e u li, A. V. Personal Interview. July 19/ 1972. Public Documents Annual Report of Financial Transactions Concerning Special O is tr ic ts of C a lifo rn ia / Fiscal Year 1970-71. APPENDIXES 181 APPENOIX A FIRE DISTRICTS QUESTIONNAIRE 182 FIRE DISTRICTS QUESTIONNAIRE What ore the geographic boundaries w ithin which your department provides stru ctu ra l protection? What is the population of your service oreor How many stations are currently under your control? (a) Are there any planned increases and/or major modifications of existing fac i I i t i e s ? Ye s No I f yes: (o) What type of f a c i l i t y is planned ond what is the expected date of completion? How many pieces of vehicular apparatus does your department operate? (a) By type (b) By ret i nq What Is the number o f f u ll-tim e employees in your department? (a) Number of part-tim e employecs (b) Number of volunteer employees (c) Are there any planned increases in any of the above? Yes No 184 I f yes: (o) Whet are they? By job cI e s s ifI cat ion________ By employment stotus ( f u l l , part-tim e or voIun teer) 6. What types o f tra in in g a c t i v i t i e s are currently being conducted by your department? (a) What is the scope of these a c t iv it ie s ? (b) Are these a c t i v i t i e s conducted in concert with other agencies or departments? Yes No_ ( I f yes, exp la in ) ” (c) Are there any changes in train ing an tic ip a te d or planned? Yes___ No ( I f yes, give d e ta ils ) 7. Is your department cu rren tly engaged in any type of pre-suppression a c t i v i t i e s ( i . e . , weed c o n tro l)? Yes_______ No___ I f yes: (a) Are there any plans to expand ex isting a c t i v i t i e s or to start such a c t iv it ie s ? Yes No (b) What type(s) of a c t iv i t y is involved and how implemented? (c) Where ore the units conducting these a c t i v i t i e s located? 185 (d) How many personnel are assigned to such a c t i v i t i e s ? ________ 8. Is your department cu rren tly engaged in such a c t i v i t i e s as f i r e prevention, investigation or standards enforcement? Yes No If yes: (a) Are there any plans to expand existing a c t i v i t i e s or s ta rt such a c t i v i t i e s ? Yes No___ (b) What type of a c t i v i t y is involved and how implemented? (c) What is (are) the lo cetion(s) of the u n it(s ) conducting the above a c t iv it ie s ? 9. Are home alarm systems being u t i l i z e d in your d i s t r ic t ? Yes____ No •f (a) How many are there? _ _ _ _ _ _ (b) How are they implemented? 10, What is the average amount of time it takes for your f i r e f i g h t i n g personnel to report to the scene of a f ir e ? 11, Are there any areas w ith in your d i s t r i c t that you feel lacx adequate structural protection? Ye s No I f yes: (a) Where are these areas located? 186 (b) What do you feel is needed to provide such servicer 12. What has been your budget for each of the post fiv e years? 13. Whot have been the costs fo r s ta ffin g your department for each of the pest fiv e years? Whot are your projections for increasing personnel costs? 14. What hove been the costs re la te d to maintenance and purchase of equipment? 15. Do you presently have items budgeted fo r in a capital improvements program? Yes No_ I f yes: (o) Whot ore these items and expected date of purchase? (b) What is th e ir individual cost? (c) Do you a n tic ip a te adding any items not cu rren tly in o capital improvements program? Yes No I f ye*: (o) Whot ore they? 187 (b) What are the costs involved? 16. Does your deportment p a rtic ip a te in any of the below a c t iv i t ie s ? Yes No If yes, with whom end to whot e x te n t: (a) C entralized purchasing (b) Coordinated planning for h irin g , tra in in g end/or c a p ita l improvements 17. Whot ore your sources of revenue? 18. Are vou cu rren tly receiving a id from e it h e r (or both) State or Federal sources? Yes No If yes: (a) To what extent and from whom is the aid received? (b) Whot is the duration (actual or planned) of such aid? I f n o : (c) Do you a n tic ip a te seeking such aid? Yes No What type (program)? 188 From which agency? 19. Doe* your agency p a rtic ip a te in mutual aid agreements? Ye*___ No If yes, with whom? 20. Is your department c u rre n tly involved in any kind of coordinated, long-range planning for an ticip ated growth in f i r e protection needs? Yes No I f yes: (a) With whom is such planning conducted? (b) To whet extent does the planning cover? 21. What inter-aoency meetings, conferences, and/or memberships does your s t a f f p a rtic ip a te in? 22. How do you rate current tra in in g a c t i v i t i e s within your department? 23. How would you rate the q u a lity of your wat supply for f i r e - f i g h t i n g needs? 24. I f your department p a rtic ip a te s in a c t i v i t i e s sucn as pre-suppression, prevention, in vestigation , or standards enforcement, how would you rate th e ir cost effectiveness? 189 25. How do you role the effectiveness of your present equipment fo r your needs? 26. How do you rote the effectiveness of in tro - ond inter-deportmentoI communicot ions (informol ond formol os well os rodio)? 27. Whot chonges would you like to see in mutuol oid ogreements, if ony? 28. Whot le g is la tio n (chonges ond/or additions) do you feel would benefit you on loco I, county, ond stote I eve Is? 29. Whot could the County of Son Oiego do to aid you in improving your service? 30. Whot could State ond/or Federol agencies do to oid you? APPENDIX B LEGISLATION REFERENT TO LOCAL GOVERNMENTS (FIRE DISTRICTS) 190 LEGISLATION REFERENT TO LOCAL GOVERNMENTS (FIRE DISTRICTS) The phenomenon colled f i r e protection in Son Diego County hos now become o major concern to privote c itiz e n s ond insurance companies, as well as p o lit ic a l leaders. The primary reoson for this concern hos been the recent Loguna Fires of 1970 in which c itiz e n s owning property in unincorporated areas suffered heavy losses. At present, state le g is la tio n , os u t i l i z e d in San Diego County, provides for f i r e protection under two headings: incorporated ond unincorporated areas. LeoisI atio n Providino Fire Protection for UnIncorporated Areas 1. Through the Division of Forestry, the State o f C a lifo rn ia assumes re s p o n s ib ilitie s fo r f i r e protection a c t i v i t i e s throughout the state where approp riate. State leg islatio n a r tic u la te s the r e s p o n s ib ilitie s of the Division o f Forestry as foI lows: The State Fire ( r e f . ) Board shall c la s s ify a l l lands w itnin the state, without regard to any c la s s ific a tio n of londs by or fo r any federal agency or purpose, fo r the purpose of determining areas in which the fin a n c ia l re s p o n s ib ility 191 of preventing end suppressing f i r e s is p rim o rily the re s p o n s ib ility of the state. The prevention end suppression of f i r e s in e l l erees which ere not so c la s s ifie d ere p rim a rily the re s p o n s ib ility of local or federel agencies, as the case may be (P .R ., Chpt. 1, Art, 3, Sec. 4125). Lands included in s t a te -re s p o n s ib iIity areas are A. Lands covered wholly or in part by fo rests or by trees producing or capable of producing forest products. B. Lands covered wholly or in part by timber, brush, undergrowth or grass, whether of commercial value or not, which protect the soiI from excessive erosion, retard ru n -o ff of water or accelerate water percolation, i f such lands ore sources of water which is a v a ila b le for ir r ig a tio n or fo r domestic or industrial use. C. Land in areas which are p r in c ip a lly used or useful for range or forage purposes, wnich are contiguous to the lands described in subdivisions (A) and <B) (P .R ., Chpt. 1, A rt. 3, Sec. 4126). Lands not to be included in s ta te -re s p o n s ib iIity areas are: The Board shall not include w ithin s t a te -re s p o n s ib iIity areas any o f the fo I Iow i ng I ends: A. Lands owned or controlled by the federal government or any agency of the federal government. B. Land w ithin e x te rio r boundaries of any c it y . C. Any other lands w ith in the state which do not come within ony of the classes 193 which are described in Section 4126 (P .R ., Chpt. 1, A r t . 3, Sec. 4127). Although the C e lifo r n io State Division of Forestry may be able to provide structural f i r e protection, its main purpose is to provide f i r e protection to forest, brush and grassland areas. 2. When extended f i r e protection services ore needed, as in unincorporated areas with pockets of substantial population ond, hence, structures, specialized approaches to provide f i r e protection are needed. This idea was f i r s t re fle c te d by the Fire Protection D is t r ic t Low of 1881 which, in part, reads: Any unincorporated town or v illa g e of th is state may equip and maintain a f i r e deportment fo r the purpose of protecting property from destruction by f i r e (Stote Statutes of 1881, Chpt. 36, p. 26). In the same vein os the Fire Protection D is t r ic t Law of 1881, there are two other approaches to the same problem of providing sp ecialized f i r e protection in unincorporated areas. a) County Service Areas were created by enabling le g is la tio n of Stote Statutes in 1953, Chapter 858, to revise Government Codes commencing with Section 25210. Although County Service Areas 194 can be formed to provide almost any service function, what is important here is that a County Service Area con be formed to provide " s tr u c t u r e I" f i r e protection to unincorporated areas ( r e f e r to Gov’ t . Code, Chpt. 2.2, A rt. 1, Sec. 25210.4(b) and 25210.5). The declaration of policy sums up the le g is la t u r e 's a ttitu d e toward unincorporated areas and the problems to be encountered. The leg isla tu re hereby finds and declares that unprecedented growth in unincorporated oreas of a great many counties of C a lifo r n ia , p a r t ic u la r ly since 1940, has created many new and d i f f i c u l t problems of government. As a result of large population growth and intensive r e s id e n tia l, commercial and industrial development in such areas, extended governmental services are needed in such areas. . . . The residents and property owners of such areas are e n t it l e d to have made a v a ila b le to them reasonable a lte r n a tiv e methods of providing or securing the extended services they require and to choose among the a lt e r n a t iv e s a method best suited to th e ir local circumstances (Gov’ t . Code, Chpt. 2 .2 , A rt. 1, Sec. 25210.1). The Board of Supervisors of a county has a u th o rity over the d i s t r i c t (r e fe r to Gov't. Code, Chpt. 2.2, A r t . 5, Sec. 25210.50). b) Local Fire D is t r ic t s supersede the Fire D i s t r i c t Lew of 1881 by Stote Stotutes of 1961, Chapter 565, page 1, which is known as the F ire D is t r ic t Law of 1961 to revise the H & S Code commencing with Section 13801 which states that the power to provide f i r e protection with local control shall be an optional governmental organization to provide extended f i r e protection services to unincorporated areas. Vested in a local Fire Protection D is t r ic t Board of Directors (r e fe r to H & S Code, Sec. 13852) is the ultim ote autho rity in providing f i r e protection fo r th e ir p a rtic u la r local area. Thus, one may conclude that there are b a s ic a lly two options av a ila b le to residents in unincorporated areas insofar os obtaining extended f i r e protection services: (1) County Service Areas with structural f i r e protection functions, and (2) local Fire Protection D is t r ic t s . Of the two types, local Fire Protection D is t r ic t s are by fa r the most pravolent in San Diego County. As of 1972 there were 21 local Fire Protection D is t r ic t s with separate local boards, ond three County Service Area providing structural f i r e protection services under the auspices of the County Board of Supervisors. Since local Fire Protection D is t r ic t s are the most common in San Diego County, it is imperative that a b rie f summary of t h e ir formation ond general 196 powers as stip u la te d by state le g is la tio n be out Ii ned. Formation of local Fire Protection D is t ric ts Area. — Any area, incorporated or unincorporated, or any combination thereof, which does not include land defined as state re s p o n s ib ility in A r t ic le 1, commencing with Section 4000 of the Public Resources Code, may be orgonized as o local f i r e d i s t r i c t . If the proposed d i s t r i c t is in boundaries of state f i r e re s p o n s ib iIity , the d i s t r i c t board shall f i l e with the State Forester a notice of proposal and map showing I ego I subdivisions of proposed d i s t r i c t . Upon formation, any timbered, brush or grassland areas remain the re s p o n s ib ility of the state (r e fe r to H & S Code, Sec. 13821). Methods of Formation - P etition The supervising autho rity may determine by resolution that an area is to be formed into a d i s t r i c t to provide f i r e protection. I f a p e titio n for formation of Fire Protection D is t r ic t is signed by at least 25 percent of the voters who voted for a ll the candidates fo r governor at the last e le c tio n , the Board of 197 Supervisors shell then hold e heoring or e le c tio n on th is matter. If a p e titio n is signed by 51 percent of the registered voters in d i s t r i c t who voted fo r a ll the candidates fo r governor in the lost e le c tio n , the Board of Supervisors shall hold a public hearing and declare the d i s t r ic t formed by reso lution. If a p e titio n for formation is presented to the Board of Supervisors which is signed by owners of real property of the proposed d i s t r i c t equal to 51 percent of the to ta l assessed va luation , the Board of Supervisors shall hold a public hearing on th is matter and may declare the d i s t r i c t duly formed by resolution (re fe r to H & S Code, Sec. 13825). A p e titio n or resolution which proposes the formation of a d i s t r i c t shall specify one of the following methods of selecting the Board of Directors of the D i s t r i c t : (a) that the Board of Directors shall be composed of the supervising au th o rity , and (b) that the Board of Directors shall have five members appointed by the supervising au th o rity , or (c) elected as in San Diego County r e fle c tin g local control ( r e f e r to H < 5 S Code, Sec. 13831). 198 The p e titio n to form eny d i s t r i c t is subject to epprovel by the Locel Agency Formation Commission ( r e fe r to H £ S Code, Sec. 13826). Not i ce Notice of hearing must be published by the County Clerk f if t e e n days before said heering (r e fe r to Gov't. Code, Sec. 56084). Elect ions Special e le c tio n s w i l l be subject to provisions of the Elections Code re la tin g to special d i s t r i c t e le c tio n s ( r e f e r to Gov't. Code, Sec. 56100 ond 56101). Powers G enereI.--G e n e ra Ily . the powers include: a. to sue and be sued; b. to acquire reel or personal property and manege fo r the benefit of the d is tr ic t ; c. eminent domain; d. to es ta b lis h , equip, and maintain a f i r e department; e. to provide e ll personnel matters re la tin g to f i r e a c t i v i t i e s ; f . to employ counsel; g. to enter into contracts; and 199 h. to provide e l l special functions re lo tin g to f i r e (r e fe r to H & S Code, Sec. 13852). The D is t r ic t Boord moy contract with other governmental agencies. The D is t r ic t Board may also enter into mutual aid agreements with other f i r e agencies (re fe r to H & S Code, Sec. 13855). The D is t r ic t Board, a f te r publicatio n and notice of hearing, may adopt f i r e ordinances fo r prevention and maintenance of f i r e s (re fe r to H S S Code, Sec. 13872). Every person who v io la te s an ordinance pursuant to Section 13872 is g u ilt y of a misdemeanor (re fe r to H & S Code, Sec. 13873). While on duty, o f fic e r s of the f i r e department of the d i s t r i c t shall have the powers of peace o f fic e rs ( r e f e r to H & S Code, Sec. 13875). Finance.--The D is t r ic t Board may incur indebtedness without hearing or e le c tio n , in a n tic ip a tio n of revenue for the current year. Such indebtedness shall not exceed 85 percent of the estimated tax revenue fo r the years during which the loan is in e ffe c t (r e fe r to H & S Code, Sec. 13901). The Board of Supervisors shall levy a tax on the d i s t r i c t s u ffic ie n t to cover the cost o f the budget 2 0 0 submitted by the D i s t r i c t Boord ( r e f e r to H & S Code, Sec. 13907). Bonds moy be issued by o local fire d is tr ic t pursuant to th is chopter (re fe r to H & S Code, Sec. 13919). A speciol bond tax may be levied on the d is tr ic t fo r the retirement of interest end principal of outstanding bonds (refer to H & S Code, Sec. 13935). Contract s .--Occupants of land not in any f i r e d i s t r i c t or in an area of an agency providing f i r e protection may contract fo r services with a f i r e d i s t r i c t and payment fo r services to be established then (re fe r to H & S Code, Sec. 13941), Any c it y , a l l or p a r t i a l l y w ithin the boundaries of a local f i r e d i s t r i c t , may provide any f i r e fig h tin g apparatus or equipment for contractual use by the d i s t r i c t ( r e fe r to H & S Code, Sec. 13942). Reoroenizction -C o n s o lid a tio n , Annexation end Dissolution Ini t iet io n .— Prel iminory proceedings moy be in it ia t e d by proposal made by p e titio n or by application of the le g is la tiv e body o f any affected 201 county, c i t y or d i s t r i c t (r e fe r to Gov't. Code, Sec. 56130). Annexat ion. — Pet i t ions for annexation or detachment of t e r r i t o r y shell be signed by not less then 5 percent of the number of landowners owning land w ith in the proposed annexation or detachment who also own not less than 5 percent of the assessed valued land in such t e r r i t o r y (r e fe r to Gov't. Code, Sec. 56180). The Board of Di rectors of the conducting d i s t r i c t shall adopt a resolution i n i t i a t i n g proceedings for annexation or detachment which reso lu tion shall comply with the commission's reso lu tio n making determinations and s h a ll: a. indicate the manner in which prelim inary proceedings were commenced; b. include a statement of t e r r i t o r y to be annexed or detached; c. state whether t e r r i t o r y is inhabited or uninhabi ted; d. state the reason for annexation or detachment; e. set fo r t h terms of annexation or detachment; f . set a hearing on annexation or detachment; 202 g. ask for w ritte n protests to proposed annexation or detachment ( r e f e r to G o v't. Code, Sec. 56310). If o m ajority vote is in favor of said annexation or detachment proposals, the Board of Directors shall adopt o resolution confirming the order of annexation or detachment at on election c a lled only w ithin t e r r i t o r y to be annexed or detached (r e fe r to G ov't. Code, Sec. 56324). Con so I i dot i on. — Si qnature requirements for consolidation p e titio n s ere the same as those fo r annexation ( r e f e r to G ov't. Code, Sec. 56161). The Board of Supervisors shall adopt a resolution i n i t i a t i n g proceedings for consolidation which resolution shall comply with the commission's reso lution making the determination and s h a ll: a. state the names o f d i s t r i c t s to be consolidated and counties located th erein; b. indicate the manner in which preliminary proceedings were held; c. state the reasons for the proposed consoIi dat i on; d. set forth terms o f consolidot ion; e. f i x the time, date ond place for the near i ng; f. ask for w r itte n protests to consolidation ( r e f e r to Gov't. Code, Sec. 56380). 203 I f 0 m ajority of voters in the d i s t r ic t s to be consolidated fuvor consolidation, the Board of Supervisors she* I I adopt a resolution confirming the order of consolidation (r e fe r tc Gov’ t. Code, Sec. 56388). Pi sso I ut ? on. — Signature requirements for dissolution p e titio n s are the same as those for annexation ( r e fe r to G ov't. Code, Sec. 56182). Dissolution procedures are the same as for consolidation except (r e fe r to Gov't. Code, Sec. 56360 and 56370 re s p e c tiv e ly ). Notice and h e arin o .--When the commission desires to provide fo r notice and hearing p rio r to moking a determination on ony matter, the commission shall order a hearing to be held and set a time and place fo r th is hearing not more than 20 days after date of said order ( r e f e r to Gov't. Code, Sec. 56263). We must be aware at th is point thot the format fo r proceedings of consolidation, annexation, and dissolution is set a f t e r the prelim inary proceedings previously discussed have been approved by the Local Agency Formation Commission 204 (L .A .F .C .O .), which is described in the following porogrophs. L.A.F.C.O. Purposes.--The stote-mondoted L.A.F.C.O. was creoted by State Statutes, Chapter 587, in 1965. Among L.A.F.C.O. purposes are the discouragement of urban sprawl and encouragement of orderly formation ond development of local governmental agencies based upon local conditions and circumstances ( r e fe r to Gov’ t. Code, Sec. 54774). Powers.--The commission shall have the fo Ilow i ng powers: a. to review end approve or disapprove, with or without amendment, wholly, p a r t i a l l y or c o n d itio n ally , proposals f o r : 1 .) incorporation of c i t i e s / 2 .) formation of special d i s t r i c t s ; 3 .) the annexation of t e r r i t o r i e s to local agencies; 4 .) the exclusion of t e r r i t o r y from a c it y ; 5 .) the disincorporation of a c i t y ; and 6 .) development of new communities w ithin the ju ris d ic tio n of the commission pursuant to Sections 33021 ond 33298 of the H & S Code. 205 b. to adopt standards and procedures for the evaluation of proposals; c. to make end enforce rules regarding conduct of hearings; d. to incur expenses of operation; e. to appoint s t a f f ; ond f . to review boundaries of t e r r i t o r i e s involved in proposals (re fe r to Gov’ t, Code, Sec, 54790), Joint Powers Genera I . — If authorized by th e ir le g is la tiv e or other governing body, two or more public agencies by ogreement may jo in tly exercise ony power common to the contracting p a rtie s , even though one or more of the p a rties may be located outside the state (r e fe r to Gov't, Code, Sec. 6502), The agreements shall state the purpose of the agreement of power to be exercised. They shall provide for the method by which the purpose w ill be accomplished or the manner in which the power w ill be exercised (r e fe r to Gov't, Code, Sec, 6503), The p a rties to the agreement may provide th a t: (1) contributions from the treasuries may be made for the purpose set fo rth in the ogreement, (2) payments of public funds may be mode to defray the cost of such a purpose, or (3) advances of public funds may be 206 mode fo r the purpose* set fo rth in the agreement. The funds may be dispersed by the agency agreed upon ( r e f e r to Gov't. Code, Sec. 6504), The agency or e n tity to administer or execute the ogreement may be one of the p a rtie s to the agreement or a commission or board constituted pursuant to the agreement (r e fe r to Gov't, Code, Sec. 6506). The (adm inistering) agency is an e n t i t y separate from the p a rtie s to the agreement ( r e f e r to G o v't, Code, Sec. 6507). The agency shall possess the common power sp ecified in the agreement and may exercise it in the manner or occording to the method provided in the agreement. I f the agency is not one of the p a rtie s to the agreement but is a commission or board co n stitu ted pursuant to the ogreement, the ogency is authorized in i t s own name to do any or a ll of the fo llo w in g : to make and enter contracts; to employ agents or employees, or to ocquire, construct, manage or maintain buildings, works or improvements; or to acquire, hold or dispose of property or to incur debts, l i a b i l i t i e s or obligations which do not co n stitu te the debt, l i o b i l i t y or obligation of any o f the p a rtie s of the agreement. Said agency shall hove the power to sue ond be sued ( r e f e r to Gov't, Code, Sec. 6508). Finonces.— The power of the e n t it y to issue revenue bonds is odditionol to the powers common to the po rties to the joint powers ogreement, but shell not be exercised u n til outhorized by the p o rtie s to thot ogreement ( r e fe r to G o v't, Code, Sec. 6547). I f o seporete ogency or e n t i t y is created by the ogreement, the ogreement shoI I designate the treosurer, of one of the contracting p o rtie s , or in lieu thereof, the county treosurer o f o county in which one of the controcting porties is located to be the depository ond hove custody o f o il the money of the ogency from whotever source ( r e f e r to Gov't. Code, Sec. 6506.5). Any e n tity which sholl hove been outhorized to exercise the power to issue revenue bonds pursuont to this o r t ic le sholl hove the fu rth e r odditionol power to incur other forms of indebtedness. Soid further odditionol power sholl not be exercised u n til outhorized by po rties to the ogreement. Such indebtedness shall not be o debt, l i o b i l i t y or ob ligation of ony p o rtie s to the ogreement ( r e fe r to Gov't. Code, Sec. 6547.1). i 208 The revenue bonds may be issued to provide o il or ony port of the funds required for Acquisition, construction, ond finoncing of soid project including ony or o il expenses incidentol thereto or connected therewith ( r e f e r to Gov’ t. Code, Sec. 6548). Revenue bonds issued under th is a r t i c l e sholl not constitute o debt, l i o b i l i t y or o b liga tio n of any of the public agencies who ore po rties to the ogreement creating such on e n tity (r e f e r to Gov't. Code, Sec. 6551). Leg?slot ion Prov?dinq Fire Protection in Incorporated Areas The authority fo r oreas to incorporate into m u n ic ip a litie s and abide by the general laws adopted by the Legislature in the d iffe r in g codes is vested in the State Constitution, A rtic le XI, Sections 6, 7, 8 and 8^. General laws s p e c ific a lly re la tin g to m u n ic ip a litie s end f i r e protection ore found in the Government Code, T itle 4, Division 2, Chopter 10, A r t ic le 1, Section 38600, which reads: "The le g is la tiv e body of a c i t y may provide f i r e engines ond a l l other necessary opperetus fo r the prevention and extinguishment of f i r e s . " However, it must be understood thot no one can f u l l y understand the status of fir e fig h tin g in o p a rtic u la r area without knowing how the f i r e agency of the area is rated. Therefore, a synopsis of the f i r e insurance ratin g s for C a lifo rn ia f i r e agencies has been advanced in Appendix C. APPENDIX C SYNOPSIS OF INSURANCE RATINGS FOR FIRE PROTECTION 210 SYNOPSIS OF INSURANCE RATINGS FOR FIRE PROTECTION In ony consideration of f i r e services/ one must also consider the National Board of Fire Underwriters' Grading Schedule and how it relates to the cost facto r of f i r e protection. The Notional Board of Fire Underw riters' is a non-profit organization which provides expert engineers to consult with locoi government o f f i c i a l s concerning f i r e protection problems to measure the r e la t iv e conflagration po tential of local ogencies and the re la tiv e o b i l i t y of the f i r e defenses of the agency to protect against the conflagration p o te n tia l. It is these measures which are used by the various ratin g bureaus to estab lish f i r e insurance rates. Thus, it is evident that the q u o lity of f i r e protection services g re a tly influences the insurance rates charged fo r f i r e pro tection . The Grading Schedule establishes standards for the various components of f i r e defenses. Existing conditions are then compared to these standards and deficiency points are assigned for any conditions which f a l l short of the standards. The 211 212 c la s s ific a tio n of a given area is determined by the number of deficiency points assessed. TABLE 3 FEATURES CONSIDERED IN GRADING SCHEDULE*® Feature Stated Maximum Deficiency Points Percent of Total Woter Supply 1,700 34* Fire Deportment 1,500 30 Fire Alarms 550 11 Bui1ding Lows 200 4 Fire Prevention 350 7 Structural Conditions 700 14 Toto 1 5,000 100* *1964 Grading Schedule ®Source: Nationol League o f C itie s , The Grodina of Municipol Fire Protection Aaencies (WoIKlSgfin, D.C.; W 7 J / ppT 1-35. There ere seven d iffe re n t categories considered in the Grading Schedule, each with a maximum number of deficiency points assigned to i t . There ore a varying number of items considered under each category. The table shows the features considered, the moximum deficiency points allocated to each feature and the percent of the maximum deficiency points possible. The to tal of a ll points assessed are then used to determine the area's to ta l grading or c la s s ific a tio n (see Table 4 ) . It must be noted that extra deficiency points may be assessed for adverse clim a tic conditions or unusual or exceptional occurrences, such as earthquakes, floods, forest fir e s , e tc ., which eith er o f f s e t the protection afforded or increase the probabi I i ty of storting or spreoding of f ir e s . The p o in t/c la s s re la tio n s h ip depicted in the table represents the total area coveroge. Although such on area closs is often re fe rre d to, it is not uncommon to hove specific sub-areas w ith d ifferen t insurance c la s s ific a tio n s . This moy be caused by lack of protection f a c i l i t i e s in that area due to lack of structural need for such services, or such sim ilar reosons. Such is the cose in Son Diego County where one finds insurance c la s s ific a tio n s ranging from three to ten. To provide a means with which to grasp the impact of these insurance c la s s ific a tio n s , a $25,000 single fam ily home (stucco without shingle roof) w ill be used to indicate 214 TABLE 4 GRADING SCHEDULE CLASSES Closs Def i ciency Poi nt s 1 0 - 500 2 501 - 1,000 3 1,001 - 1,500 4 1,501 - 2,000 5 2,001 - 2,500 6 2,501 - 3,000 7 3,001 - 3,500 8 3,501 - 4,000 9 4,001 - 4,500 10 Over 4i, 500 Closs con oI so be assigned to oreos without o woter supply or without o f i r e deportment. 2 1 5 insurance costs for the various insurance c la s s ific a tio n s in use throughout the County (see Table 5 ). TABLE 5 INSURANCE RATES* (FOR 125.000 SINGLE-FAMILY RESIDENCE) Area Classes Approximate Annual Prem i urn 10 189.00 9B 84.00 9A 79.00 8 52.00 7 44.00 6 38.00 5 35.00 4 33.00 3 30.00 * Obtained from O ffic e of Insurance Services ♦ i t Premium rounded to neerest d o lle r The pertinent aspect of th is section is to demonstrate that the costs of f i r e protection do not lay e n t ir e ly with taxes alone. Poor f i r e protection 216 begets increased insurance rates, while conversely good protection brings lower insuronce rates. Insurance rates ( c la s s ific a tio n s ) and tax rates must be viewed as a single unit when approaching the subject of f i r e protection costs. APPENDIX D REPORT ON FUNCTIONAL CONSOLIDATION BY FIRE CHIEF A. V. STREULI 217 REPORT ON FUNCTIONAL CONSOLIDATION by Fire Chief A. V. Streuli Consolidation in Contra Costa County was f i r s t studied and tabled in 1935 bv the County Fire Chiefs' Association. In 1958 another study was proposed and Made by the County Adsiini s t r a t o r ' s O ffic e . That study was also rejec ted , p rim a rily because the involved p a rtie s f a i l e d to take an objective viewpoint. Fire ch iefs, p o lit ic ia n s and unions a ll took the s e lfis h approach, with resulting lack of action. However, the need fo r future studies was well established. Later that same year the problem was brought to a head by the incorporation of the City of Pleasant H i l l . The c i t y lay astraddle the Mt. Diablo Fire D is t r ic t and the Central Fira D is t r ic t . It had to decide which d i s t r i c t to jo in . Its decision to join the Central Fire D is t r ic t brought about the f i r s t real in terest in consolidation by c ity managers and the beginning of a movement for action. The f i r s t a c tiv e consolidation took place in December 1964, with the merger of the Central County Fire D is t r ic t and the Mt. Diablo Fire D is t r ic t , both 1961 Act f i r e protection d i s t r ic t s governed by the County Board of Supervisors. Each was f u l l y paid and had fiv e stations. In 1966 the Mountain View Fire D is t r ic t , a one-station, p a rt-p a id , pert-volunteer department, was annexed by action of the Board of Supervisors. In July 1968 the City o f Martinez, with a two- statio n , po rt-paid, part-vo lu n teer department, was annexed to the D is t r ic t by vote of the people. The next annexation came about as a result of a c it y incorporation. When the City of Lafayette was incorporated, it blanketed the Lafayette Fire D i s t r i c t , an outonomous f i r e d i s t r i c t . The C ity Council in it ia t e d and promoted annexation of the Lafayette Fire D is t r ic t on January 1, 1969. 218 219 At the seme time the Boord o f Supervisors merged the Bey Point Fire O is t r ic t . That onnexotion was the re s u lt of the Nevy's purchase of a safety buffer zone around i t s ammunition base, an action that o b lite ra te d the town of Port Chicago and cut a l l but a few square miles from the o rig in a l d i s t r i c t . The Benefits Gained by Consolidation Financial Benefits Tax reduct i o n .— Immediate Iv a f t e r the i n i t i a l consoIidation. a tax reduction pattern developed. Growth contributed to the reduction, but a capital improvements program that consisted of an average of 10 percent of the budget was in e ffe c t at the time. In other words, the growth was cream skimmed o f f the top to finance a very ombitious c a p ita l improvements program. The tax rotes were as follow s: 1964-65, 1.872; 1965-66, $.82/ 1966-67, $.799/ 1967-68, $.75; 1968-69, $.73/ and 1969-70, $.725. Insurance rate reduct io n.— The two d i s t r i c t s i n i t i a l l y consolidated enjoyed Class 3 dwelling rates in Fire Zones 1, 2 and 3. Later-annexing departments hod a best rote of e ith e r Class 4 or Class 6. Upon annexation, a l l immediately received a blonket reduction to Consolidated's Class 3. When m u ltip lie d by the to ta l number of residences in the O is t r i c t , the savings amounted to thousands of d o lla rs to the c it iz e n s . E lim ination o f duplicated se rvices.— Five of the o rig in a l d i s t r i c t s had had th e ir own f i r e alarm, maintenance, train in g ond c le ric a l services, which were combined into a single service with ensuing savings. Relocating stations soved statio n -b u ild in g and manning. Elim ination of duplicated p e r s o n n e I There were fiv e f i r e alarm operators on duty when the departments were operating independently. Since 220 consolidation there hove been only two f i r e olorm operators on duty— ond with on improvement in q u o llty. Tables of Organization co lled fo r a to tal o f 16 chief o f fic e r s in the seporote deportments. Under consolidation only 12 ore c a rrie d . Three f i r e marshals were elim inated. Elim ination of duplicated eouipment. — Each independeni deportment carried several reserve pumpers and specialized apparatus/ at considerable overhead cost. Only four reserve pumpers are required fo r the Consolidated D i s t r i c t / and fewer four-w heeI-drive opporotus. Disposal of troublesome older apporotus has lowered mointenonce costs. Hod the departments stayed independent, it would have been necessory to buy two new a e rio l trucks. Proximity of neighboring trucks mode those purchases unnecessary. Purchasing.— Quont i ty purchasing has drown s p irite d competitive bidding, w ith re s u ltin g savings. Improved Services Response s tre n g th .— Because of the lorger sources to drow from 7 firs t-o lo rm response has been increased by 30 percent. Ladder truck service has been extended to o il ports of the D i s t r i c t , many of which had no truck response ot e l l unless co lled for by mutual a id . The backup strength on ad d itional alarms is now programmed to a degree thot was impossible under independent operation. L o rg c -fire opera t ions.— Much con be so id obout mutual aid. E hj+ success lie s in developing standord operating procedures ond terminology and knowledge of apparatus c a p a b ilitie s , and in holding train ing sessions. How many of us do it? Not very many. L o rg e -d is trle t operations forced standord operoting procedures and mu 11i-company tro in in g . The result was improved lo rg e -fire operations. 221 £ Iiml not ion of boundary l i n e s . — A rti f I c iaI ond improctice I poli t * co I boundaries necessitated s ix - and seven-minute runs that could have been made in two minutes by another department. Now a ll f ir s t - a la r m response comes from the three nearest s t a t i on s. T re in in q .— The e f f o r t s at tra in in g had ranged from none to as much as part-tim e tro in in g o ffic e rs could develop with no f a c i l i t i e s . Recruits were put on the back of an engine and told to hang on tight and keep out of the way. With the appointment of a f u ll- t i m e troining o f f i c e r , it was possible to in s tit u te a fully-developed train ing program b u ilt around the American Insurance Association's Special Interest B u lletin No. 234, Fire Department Troining. Personnel showed immediate improvement ond soon dominated a l l county c i v i l service examinations. Apporatus.— Many of the pumpers in the o rig in a l d i s t r ic t s complied only with the pump tests in NFPA No. Stondord for Automotive Fire Apparatus, did not carry adequate equipment, and were t o t a ll y in f le x ib le . Forced standard!zotion has meant that o il pumpers have been brought up to NFPA No. 19 standards and are equipped with booster pumps to make them v e rs o tile units capable of fig h tin g structural or wildlond f i r e s . In ad dition, specialized apparatus such as tankers, o e rio ls and wildland units are immediately dispotched into many areas that previously did not receive that coverage. S ta ff spec ia I i zat io n .— One of the greatest benef i t S of consoIi dot i on 1s s ta ff s p e c ia liza tio n . When a man specializes on one joo, he displays greater p ro d u c tivity, makes fewer e rro rs , and is able to contribute more to development in his f i e l d . The expertise of s p e c ia lis ts is evident in the implementation and refinement of programs and in p a rtic ip a tio n in a c t i v i t i e s such as NFPA Committee work, codes development, and giving instruction in outside f i r e service schools ond consultation to other deportments. In th is vein t h e f i r e service^ should be no less concerned than business in qu ality and quantity of production. 222 Before consolidation the only f u ll- t i m e s p e c ia lis ts were f i r e prevention inspectors. All other s t a f f functions were handled by line personnel on o part-tim e basis. A fter consolidation it was possible to assign f u ll- t i m e personnel to plans check, arson investigation, permits, weed abatement, public re la tio n s and records, tra in in g , and the functions of master mechanic. Continuous exposure to t h e ir specialty gave men the opportunity to develop high s k ills . Greater Resources Commun I cat ? on s. — Before consolidation none of Faci I it ie s that or the Munic i pa I Fi re the departments had communications conformed to NFPA No. 73, Standard In s t a l la t io n , Maintenance and Use oj Alorm Systems. The savings on f i r e alarm personnel enabled the D is t r ic t to build a Fire Alarm Center that complied with NFPA No. 73 ond w ith C iv il Defense s p e c ific a tio n s fo r on emergency operating center. In s t a lla t io n of two remote radio sites improved coverage in mountoinous te rr a in . A radio-type alarm system provides area coverage that would otherwise be p ro h ib itiv e because of wire in s ta lla tio n ond underground!ng costs. Training faci I i t ies. — Before consolidation there were no designed troin ing f a c i l i t i e s . They were simply too costly for the independent departments. Since the advent of a single budget, a brooder tax base and a capital improvements program, a m il l i o n - d o l l a r f i r e college has been h a lf completed. The f i r e college is to be a total f a c i l i t y , including classrooms, tower, drafting p i t , f i r e building, d r iv e r -tr o in in o area, control tower, storage warehouse, and special problems area. It w i l l provide means to tra in personnel that would never have been possible under independent operation. Training aids. Instructors now hove a f u l l range of tra in in g aids, including a l l types of visual aids, video tapes, fireground simulators, mannequins and mockups, besides station lib r a r ie s 223 ond o reference lib ra ry . A stimulus to in structors, the tra in in g aids hove resulted in more e f f i c i e n t tra i n i ng. C lerica l s t a f f . — Some may question inclusion of the c ler ica I s t a ff os a resource. However, these people have proved to be v i t a l in organization mechanics. Their superior record-keeping, auditing, and production of printed m ate ria ls have enabled us to produce our communications and tra in in g m oterials in a q u a lity manner. Firemen have been re lie v e d of port-tim e c le ric o l duties ond put where they belong— in a c tive f i r e protection. Repair f e e i I i t i c s . - -Before consolidation eoch smaI I de pa rtme n f ma ? n t a i ne d minimum tools and equipment for repairing apparatus. Consolidation has meant a larger, more complete repair shop. The shop has specialized tools ond is supported by a lube truck and a tow truck. Apparatus is quickly repaired ond returned to service. Special equipment.— No special equipment is bought unless s u ffic ie n t use w ill be gained from i t . Unit cost usually goes up os the size of the department goes down. Use frequency valida ted the purchase of special equipment for a photo lob, a f i r e alarm repair platform truck, a ch lorine patch n i t . engineering equipment, a commercial sewing machine, ond woodworking equipment. Hose tower. — ConsoIidation made money ovoiloble to design and build a hose-drying tower that operates at maximum e ffic ie n c y and with minimum labor. The centra I Iy -lo c ate d tower w i l l handle 6.000 feet of 2^-incn hose per day. summer or winter. The resu lts are quicker return of hose to service and a smaller hose inventory. 224 Other Benefits Stronger programs. — I n b r ie f , the programs (act i v i t ies) that Hove been strengthened by consolidation are tra in in g , public education, company inspection, reserve firemen and hydrant maintenance. Before consolidation some departments were active in a few programs, none co nsistently. Standardization requirements forced development or in s tit u tio n of programs. As a re s u lt, h ig n-q u a lity programs were uniformly implemented throughout the 18 stations. Upgrading of r e c r u i t s . ~ A p p lic e n t qu ality voried w'tn the competition for tne job. ond competition depended p rim arily upon working conditions. Some departments had very few applicants, with a consequent lowering of q u o litv . A fte r consolidation end the raising of working conditions, the applicants numbered in the hundreds. The result wos b e tte r -q u a lifie d re c ru its . Promotional se I e c t ?v i t y . — The same p rin cip le holds here as for the upgrading of re c ru its . The more men competing, the better the uniform quo l i t y . Capital improvements.— CepitaI improvement programs usually vory in direct r a t io to growth. Tight budgets had forced some departments to put aside badly needed new apparatus ond tra in in g f a c i l i t i e s ond f i r e olorm center improvements. With brooder budgeting and a pooling of capital budgets, projects previously considered unobtainable could become r e o li t y . Retent ion of personne I . — Turnover of personneI for jo b -re la te d reasons indicated d is s a tis fa c tio n with working conditions, opportunity, and a c t i v i t y . Consolidation raised smaller and poorer-paying departments to on improved standard. Promotional opportunities were n e g lig ib le in stagnant departments; they ore p le n t ifu l in the larger consolidated d i s t r i c t . There ere also opportunities 225 fo r s p e c ia liza tio n , which serve to hold the interest of personnel and reduce turnover. Forced analysis and revised persocct?ve. — Al though i ndi r e c t , tKTs is one o f fhe area test benefits of consolidation. Merging d iffe r e n t ? hiIosophies, apparatus designs, tra d itio n s , ond ire problems is not always successful. Consequently, to resolve problems it is necessary to re-examine 1 • al- i. ia ai suits they produce. operations and equipment. about improvements in I APPENOIX E POWERS OF THE COUNTY BOARD OF SUPERVISORS 226 POWERS OF THE COUNTY BOARD OF SUPERVISORS According to the C a lifo rn ia D is t r ic t Reorganization Act of 1965, if ond when the Board of Supervisors determines th at ce rta in f i r e d i s t r i c t ( s ) are not providing adequate f i r e protection services, the Board may, by low, take the following course of act ion. A proposal for change of organization or for a reorganization may be mode by the adoption of a reso lution of a p p lic a tio n by the le g is la tiv e body of any affected county, c i t y , or d i s t r i c t (in th is case, the County Board of Supervisors). A resolution of a p plic atio n sholl contoin a ll the matters required to be contoined in a p e titio n for a chonge of organi zation and moy contoin ony of the matters outhorized to be contained in a p e titio n fo r dissolution or reorganization (G o v't. Code, Sec. 56195). Upon the f i l i n g of a resolution of a p p lic a tio n , the executive o f f ic e r (of the Local Agency Formation Commission) shall set the motter for hearing by the Commission (L.A .F.C .O .) and give notice thereof in the manner provided by Pert 4 227 228 commencing with Section 56250 of th is division (G ov't. Code, Sec. 56198). Government Code Section 56250-56276 consists of notice end hearings on resolutions of applications and, f i n a l l y , commission resolutions making determinations on the resolution of ap p lic atio n in quest ion. I f proposal or plan of organization is opproved by the commission with or without amendment, wholly, p a r t i a l l y or c o n d itio n a lly , it shall be mandatory fo r . . . the Board of Supervisors to take proceedings for change of organization or reorganization in accordance with Part 5 (commencing with Section 56290), hereof subject to compliance with the commission's resolutions making determinations (G o v 't, Code, Sec. 56274). Government Code Section 56290-56457 consists of the proceedings necessory fo r change of organization and reorgani zat ion. A fte r completion of prelim inary proceedings os provided in Part 4 (commencing with Section 56250), proceedings fo r changes of organization ond reorgonization shall be token pursuont to th is part (G o v't, Code, Sec. 56290), 229 Moreover, Section 56290-56457 of the Government Code is concerned with the specific requirements ond proceedings for chonges of organization and reorganization. The chonges of organization we ore concerned with here are dissolution and consolidation. It w ill be necessary, then, to examine the proceedings of these two sp ecific changes of orgonization. Conso Ii dot ion If the Boord of Supervisors o r ig in a lly adopted a resolution of ap p lic atio n pertaining to o change of organization ond s p e c ific a lly consolidation, then the Board of Supervisors shall odopt a resolution i n i t i a t i n g proceedings fo r consolidation, which resolution shall comply with the commission's resolution making determinations end s h e ll: a. State the names of a l l d i s t r i c t s proposed to be consolidated/ the name, i f any of the proposed new consolidated d i s t r i c t ; and the county or counties in which the some ere located; b. Indicate the manner in which the prelim inary proceedings were commenced; c. State the reason or reasons fo r the proposed consoIi dot i on; 230 I d. Set fo rth ony terms end conditions of ^ the proposed consolidotion; e. Fix o time, dote, ond piece of heoring on proposed consoIidotion which shoI I not be less thon 15 deys nor more then 60 doys o f te r the dote of odoption of resolution i n i t i a t i n g proceedings; ond f . Stote thot ony interested person desiring to moke w r itte n protest con do so through the county c le rk up to one hour before hearing time (Gov’ t. Code, Sec. 56380). Not later than 30 doys a f te r the conclusion of the heoring, the Boord of Supervisors shall odopt e resolution and moke one of the following determinations: (o) disapproval of proposed consoIidot ion or (b) ordering such consolidation, subject to confirmation by the voters upon the question of such consolidation (Gov’ t . Code, Sec* 56386). After the cenvess of the returns of the ele c tio n s upon the question of consolidation, the Boerd of Supervisors shell odopt a resolution e ith e r confirming the order of resolution, i f a m ejority of the votes cast on such question in each d i s t r i c t ordered to be consolidated favored such 231 consolidation, or determining the order of consolidation defeoted by f a ilu r e to receive the required vote. Pi ssoIut i on The procedure fo r dissolution is the some as that for consolidation except, of course, where the word "consolidation" is used, "dissolution" is subst i tuted.

Asset Metadata

Creator Thompson, Lorenzo (author)

Core Title A Systematic Analysis Of San Diego County'S Fire System: A Special Reference To The Status Of Local Government In The United States

Contributor Digitized by ProQuest (provenance)

Degree Doctor of Philosophy

Degree Program Public Administration

Publisher University of Southern California (original), University of Southern California. Libraries (digital)

Tag OAI-PMH Harvest,Political Science, public administration

Language English

Advisor Clayton, Ross (committee chair), Bigger, William Richard (committee member), Gardner, Neely (committee member)

Permanent Link (DOI) https://doi.org/10.25549/usctheses-c18-801814

Unique identifier UC11364281

Identifier 7314451.pdf (filename),usctheses-c18-801814 (legacy record id)

Legacy Identifier 7314451

Dmrecord 801814

Document Type Dissertation

Rights Thompson, Lorenzo

Type texts

Source University of Southern California (contributing entity), University of Southern California Dissertations and Theses (collection)

Access Conditions The author retains rights to his/her dissertation, thesis or other graduate work according to U.S. copyright law. Electronic access is being provided by the USC Libraries in agreement with the au...

Repository Name University of Southern California Digital Library

Repository Location USC Digital Library, University of Southern California, University Park Campus, Los Angeles, California 90089, USA

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University of Southern California Dissertations and Theses