HomeMy WebLinkAbout2017.09.11 Council Workshop PacketWorkshop Meeting
AGENDA
PASCO CITY COUNCIL
7:00 p.m.
September 11, 2017
Page
1. CALL TO ORDER:
2. ROLL CALL:
(a) Pledge of Allegiance
3. VERBAL REPORTS FROM COUNCILMEMBERS:
4. ITEMS FOR DISCUSSION:
3 - 8 (a) Award of Valor
9 - 18 (b) Fire Department Recruit Class 17-1 Graduates
19 - 213 (c) Station 84 Update
214 - 226 (d) Code Enforcement - PMC Title 11
227 - 231 (e) 2018 HOME Annual Work Plan and Allocation (MF# BGAP 2017-004)
232 - 236 (f) 2018 Community Development Block Grant (CDBG) Annual Work
Plan and Allocations (MF# BGAP 2017-003)
(g) "Bridging the Gap Between Collecting Data and Harnessing Data"
Presented by Troy Phillips, Senior Management Analyst, Public Works
Department
237 - 254 (h) Award and Acceptance of HAEIF Loan
5. MISCELLANEOUS COUNCIL DISCUSSION:
6. EXECUTIVE SESSION:
7. ADJOURNMENT.
Page 1 of 254
Workshop Meeting September 11, 2017
REMINDERS:
1. 7:00 a.m., Thursday, September 14 - BFCG Tri-Mats Policy Advisory Committee
Meeting. (COUNCILMEMBER BOB HOFFMANN, Rep.; REBECCA FRANCIK,
Alt.)
2. 7:00 p.m., Thursday, September 14, Transit Facility - Ben-Franklin Transit Board
Meeting. (MAYOR MATT WATKINS, Rep.; COUNCILMEMBER CHI
FLORES, Alt.)
3. 11:30 a.m., Friday, September 15, 107 E. Columbia Drive, Kennewick - Benton-
Franklin Council of Governments Board Meeting. (MAYOR MATT WATKINS,
Rep.; COUNCILMEMBER REBECCA FRANCIK, Alt.)
4. 6:00 p.m., Saturday, September 16, 6811 W. Okanogan Place - “Back the Blue”
Law Enforcement Appreciation Day. (MAYOR MATT WATKINS)
This meeting is broadcast live on PSC-TV Channel 191 on Charter Cable and
streamed at www.pasco-wa.gov/psctvlive.
Audio equipment available for the hearing impaired; contact the Clerk for assistance.
Page 2 of 254
AGENDA REPORT
FOR: City Council September 6, 2017
TO: Dave Zabell, City Manager Workshop Meeting: 9/11/17
FROM: Bob Gear, Fire Chief
Fire Department
SUBJECT: Award of Valor
I. REFERENCE(S):
Pasco Fire Department Regulation 0406 "Award of Valor-Civilian"
Award of Valor
II. ACTION REQUESTED OF COUNCIL / STAFF RECOMMENDATIONS:
Presentation to Council and Discussion
III. FISCAL IMPACT:
None
IV. HISTORY AND FACTS BRIEF:
On August 23, 2017 at 2017 hrs., Mr Masood Zarifi, Mr. Philip Mark Stroh, and Mr.
Porter Romm, extricated an elderly male patient from a burning vehicle. Their actions
were performed prior to emergency services arrival and at great risk to themselves and
resulted in the survivability of the patient. Their actions have met the criteria for the
Award of Valor.
V. DISCUSSION:
The Award of Valor is granted for actions deemed to be above and beyond the normal
responsibility of a civilian. Their actions should result in the attempted or actual
saving of a life or the prevention of substantial property damage or loss. The act(s)
must have been performed at substantial personal risk to the individual. A civilian may
be nominated for this award. All nominations will be investigated by a committee of a
Battalion Chief, the Department Safety Officer and a member from the ranks. The
Committee's final recommendation will be forwarded to the Fire Chief for final
Page 3 of 254
approval.
Page 4 of 254
RULE 0400
REGULATIONS
0401-0407
Posted:May 12.2014
Issued:May 26,2014
Revised:
COMMENDATION/MERITORIOUS SERVICE
REGULA TIONS
0401 FIREFIGHTER OF THE YEAR
Each shift within the ?re department should select a Fire?ghter of the Year.This
will be done by ‘utilizing the department form.The selection will be completed
prior to December 15th of each year.After selection,the forms for the selected
individuals will be forwarded to the Fire Chief by January 1st.
0402 The Fire Chief,in consultation with the Battalion Chiefs,will select the Fire?ghter
of the year from the shi?nominees.
0403 The Fire Chief,at the annual city employee appreciation banquet,will present an
award to the Fire?ghter of the Year.This award will be as detemtined by current
city policy.
0404 MEDAL OF VALOR
Awarded for actions deemed to be above and beyond the normal responsibility of a
member.These actions should result in the attempted or actual saving of a life or
the prevention of substantial property damage or loss.This act must have been
performed at substantial personnel risk to the individual and the medal may be
awarded posthumously.
A member of the department may be nominated for this award by any member of
the department or a private citizen.All nominations for this medal will be
investigated by a committee of a Battalion Chief,the Training and Safety Of?cer
and a member chosen from another shift.The committee’s ?nal recommendation
will be forwarded to the Fire Chief for ?nal approval.When reviewing the
recommendations for an award of a medal of valor,it must be recognized that
actions taken maybe outside of normal department policies or operating guidelines.
Reviewers should consider L the factors involved,care?illy reviewing the
actions taken,the risk to the individual vs.the bene?t of the action and whether the
action taken resulted in undue risk to the individual or public.
15‘Edition~5/12/2014 Page 1
Page 5 of 254
RULE 0400
REGULATIONS
040 l -0407
Posted:May l2.2014
Issued:May 26,2014
Revised:
COMMENDATION/MERITORIOUS SERVICE
REG ULA T1ONS
0405
0406
The Medal of Valor will consist of the following:
o A medal
0 A ribbon to be worn on Class A or Class B unifonn.
-A personnel plaque
The medal and ribbon will be per department uniform policy.
MEDAL OF MERIT
This medal will be awarded for actions by a member deemed to be above the norm
but not of a nature or extent to qualify for a Medal of Valor.The acts taken to
qualify for this award will not be of such a nature as to seriously endanger the life of
the recipient.The medal of merit may be awarded to any member of the
department for documented actions while on duty for the department.A member
of the department may be nominated for this award by any member of the
department or private citizen.The nomination will be reviewed by a committee of
Battalion Chiefs,the Department Safety Officer and a member chosen from a
different shift.The committee’s ?nal recommendation will be forwarded to the
Fire Chief for ?nal approval.The Medal of Merit will consist of the following:
0 A medal
0 A ribbon to be worn on Class A or Class B uniform.
0 A personnel plaque
The medal and ribbon will be per department uniform policy.
AWARD OF VALOR -CIVILIAN
Awarded for actions deemed to be above and beyond the normal responsibility of a
civilian.These actions should result in the attempted or actual saving of a life or the
prevention of substantial property damage or loss.This act must have been
performed at substantial personnel risk to the individual and the medal may be
awarded posthumously.
151Edition-5/12/2014 Page 2
Page 6 of 254
RULE 0400
REGULATIONS
040 1-0407
Posted"May l3.2014
Issued:May 26,2014
Revised:
COMMENDATION/MERITORIOUS SERVICE
REGULATIONS
0407
15‘Edition-5/12/2014 Page 3
A civilian may be nominated for this award by any member of the department or a
private citizen.All nominations for this medal will be investigated by a committee
of a Battalion Chief,the Department Safety Of?cer and a member from the ranks.
The committee’s ?nal recommendation will be forwarded to the Fire Chief for ?nal
approval by.The Award of Valor will consist of a personnel plaque.
AWARD OF MERIT -CIVILIAN
This medal will be awarded for actions by a civilian deemed to be above the norm
but not of a nature or extent to qualify for a Medal of Valor.The acts taken to
qualify for this award will not be of such a nature as to seriously endanger the life of
the recipient.
A civilian may be nominated for this award by any member of the department or a
private citizen.All nominations for this medal will be investigated by a committee
of a Battalion Chief,the Department Safety Officer and a member from the ranks.
The committee’s ?nal recommendation will be forwarded to the Fire Chief for ?nal
approval by.The Medal of Merit will consist of a personnel plaque.
Page 7 of 254
Proclamation
“Award of Valor”
WHEREAS, the strength of a community is defined, in part, by the willingness of its
citizens to serve the greater good; and
WHEREAS, valor is described as great courage in the face of danger; and
WHEREAS, on the night of August 23, 2017, Masood Zarifi, Philip Mark Stroh, and
Porter Romm, extricated an elderly male patient from a burning vehicle; and
WHEREAS, their actions were performed prior to emergency services arrival and at
great risk to themselves; and
WHEREAS, their heroic deeds resulted in the saving of a life.
NOW, THEREFORE, I, Matt Watkins, Mayor of the City of Pasco, Washington, on
behalf of the entire City Council, present the Civilian Award of Valor to Mr. Masood
Zarifi, Mr. Philip Mark Stroh, and Mr. Porter Romm and urge all citizens to join me in
thanking them for their selfless act of service.
IN WITNESS WHEREOF, I have hereunto set my hand and caused the Official
Seal of the City of Pasco, State of Washington, to be affixed this 11th day of September
2017.
Matt Watkins, Mayor
City of Pasco
Page 8 of 254
AGENDA REPORT
FOR: City Council September 5, 2017
TO: Dave Zabell, City Manager Workshop Meeting: 9/11/17
FROM: Bob Gear, Fire Chief
Fire Department
SUBJECT: Presentation of Fire Department Recruit Class 17-1 Graduates
I. REFERENCE(S):
Recruit Class 17-1 PowerPoint
II. ACTION REQUESTED OF COUNCIL / STAFF RECOMMENDATIONS:
Presentation to City Council and Discussion
III. FISCAL IMPACT:
$32,500 saving
IV. HISTORY AND FACTS BRIEF:
The City Council's 2016-2017 public safety goals included reducing fire and
ambulance response times and achieving the Washington State Rating Bureau (WSRB)
protection Class 4.
V. DISCUSSION:
In order to meet City Council's response time goals in the Riverview Area, we have
acquired a fire station in that area using a former Franklin County Fire District #3
facility and residential house combination. Further, the Fire Department has recently
hired additional staffing to support the projected activities of the station.
To expedite the opening of Station 84 while providing quality, cost effective initial
training, the Fire Department sponsored an in-house recruit academy. The 10 week
academy provided over 4000 hours of academic and practical professional
development in topics such as; Pasco Fire Department history, forcible entry, hose and
ladder operations, live fire exercises, technical rescue, hazardous materials, apparatus
operations and emergency medicine. Over 29 qualified members of the Fire
Page 9 of 254
Department participated in the instruction of those skill sets.
Notable Achievements:
• Recruit Class 17-1 achieved an academic average of 93%
• Cost comparison $23,500 for in-house training vs. $56,000 for State Fire
Academy cost
• Accelerated timeline for opening of Station 84
The provision of the in-house recruit training academy is a positive step forward to
achieving a Washington State Rating Bureau (WSRB) Protection Class 4. The in -
house academy and training environment as compared to the Washington State Fire
Academy is more cost-effective and yields comparable results.
Page 10 of 254
Recruit Class 17-1
Pasco Fire Department Page 11 of 254
Project
Train eight recruits to be assigned to
shift and be able to rapidly adapt to
PFD organization, and safely respond
to a wide variety of services PFD
provides. Page 12 of 254
Considerations
•Facilities required for training
•Cost and availability of WA State Fire
Academy utilized by Richland and
Kennewick
•Eight varying levels of experience and
training
•Environmental issues
Page 13 of 254
Scope
10 weeks of training
50 hours a week
29 PFD Instructors
935 instructor hours
4000 man hours of training Page 14 of 254
Cost
Total PFD Recruit School Cost
$23,500
Estimated State Fire Academy Cost
$56,000
Savings to City of Pasco= +$32,500 Page 15 of 254
Additional Benefits
Greatly shortened timeline to in-service
status by learning PFD procedures and
agency specific training which is not
provided at State Academy
By using in house instructors we were
able to create “ownership” in the process Page 16 of 254
Fire Academy Student Survey - 2017
Class 17-1 was given a 15 question anonymous online
survey to rate satisfaction with: Instructor Leadership,
Safety, Course Content, Academy Organization, and
Instructor Knowledge and Preparedness.
Overall Satisfaction Rating: 92% Page 17 of 254
Page 18 of 254
AGENDA REPORT
FOR: City Council September 8, 2017
TO: Dave Zabell, City Manager Workshop Meeting: 9/11/17
FROM: Bob Gear, Fire Chief
Fire Department
SUBJECT: Station 84 Update
I. REFERENCE(S):
Pasco Fire Department- Emergency Services Master Plan
CIP Remodel 2016
II. ACTION REQUESTED OF COUNCIL / STAFF RECOMMENDATIONS:
Update and Discussion
III. FISCAL IMPACT:
None
IV. HISTORY AND FACTS BRIEF:
In January of 2016, the City of Pasco took possession of the property at 1208 Rd. 48 as
part of an asset transfer with Franklin County Fire District #3 due to the annexation of
properties within the area commonly referred to as the "doughnut hole". In ord er to
achieve the improvement of emergent response times to the area, improve the City's
overall insurance rating, and in consideration of the recommendations of the Fire
Department Master Plan it was determined to be necessary to provide staffing at the
station.
As part of the 2017 budget, Council authorized expenditures to improve the station and
city-owned residential structure to the west of the Rd. 48 Fire Station in order to
provide crew quarters.
V. DISCUSSION:
Page 19 of 254
Work improve the station to an operational state commenced in early 2017 . Several
notable achievements have are complete; installation of a sprinkler system within the
living quarters, information technology infrastructure has been installed, access doors
have been installed into the apparatus areas, repairs to both structures have been
affected, and appliances have been installed and/or replaced.
Simultaneous to the efforts to ready station 84 for service, the additional staffing
authorized to operate the station was hired and recentl y completed training (Recruit
Class 17-1), an additional ambulance purchased, and new deployment plans have been
developed to account for the additional station coming online.
Staff is in the final phases of the capital improvements, developing staffing matrices,
and expect to be placing crews into service at Station 84 on or about November 1,
2017.
Page 20 of 254
Pasco Fire Department
Washington
Emergency Services Master Plan
Fall 2016
Prepared by:
Don Bivins
Jim Mooney
Martin Goughnour
Rob Strong
Stuart McElhaney
Page 21 of 254
Page 22 of 254
Pasco Fire Department (WA)
Emergency Services Master Plan 2016
Final Report i
Table of Contents
Executive Summary ............................................................................................................... 5
Evaluation of Current Conditions ......................................................................................... 23
Organizational Overview ......................................................................................................................... 23
City Governance & Structure .............................................................................................................. 23
Pasco Fire Department Structure ....................................................................................................... 24
Washington Surveying & Rating Bureau ............................................................................................. 26
Activity Comparisons .......................................................................................................................... 26
Management Components ..................................................................................................................... 30
Management Elements ....................................................................................................................... 30
Management Documents and Processes ........................................................................................... 31
Critical Issues ...................................................................................................................................... 31
Communications ................................................................................................................................. 32
Record Keeping and Documentation .................................................................................................. 32
Fiscal Analysis of Current Conditions ...................................................................................................... 33
Economic Context ............................................................................................................................... 33
Historical & Current Revenues and Expenses of PFD ......................................................................... 48
Staffing .................................................................................................................................................... 68
Administrative and Support Staffing................................................................................................... 68
Emergency Response Staffing ............................................................................................................. 69
Personnel Management ..................................................................................................................... 71
Emergency Medical Services ................................................................................................................... 73
EMS Service Delivery System and Logistical Support Services ........................................................... 73
Current Medical Control and Oversight .............................................................................................. 78
Quality Assurance/Quality Improvement Mechanisms ...................................................................... 78
EMS System Integrity and Required Credentialing ............................................................................. 79
Hazardous Materials ............................................................................................................................... 81
PFD Infrastructure ............................................................................................................................... 81
Regional Team Make-up ..................................................................................................................... 82
Technical Rescue ..................................................................................................................................... 83
Types of Technical Rescue .................................................................................................................. 83
Technical Rescue Team Configuration ................................................................................................ 83
Airport Impacts ....................................................................................................................................... 85
Adequacy of the Current ARFF Response Capability at the Tri-Cities Airport .................................... 86
Potential Impact to Growth in Pasco Based on the Planned Growth of the Airport .......................... 87
Recommendations Relative to Future Deployment Decisions and Response Demand ..................... 88
Training ................................................................................................................................................... 89
General Training Competencies .......................................................................................................... 89
Training Administration ...................................................................................................................... 91
Training Schedules .............................................................................................................................. 91
Training Facilities ................................................................................................................................ 92
Training Procedures, Manuals, and Protocols .................................................................................... 93
Page 23 of 254
Pasco Fire Department (WA)
Emergency Services Master Plan 2016
ii Final Report
Training Record Keeping ..................................................................................................................... 93
Fire Prevention ........................................................................................................................................ 94
New Construction Plan Review and Inspection .................................................................................. 94
Code Enforcement .............................................................................................................................. 96
Fire and Life-Safety Public Education Program ................................................................................... 97
Community Risk Reduction ................................................................................................................. 98
Fire Investigation Program .................................................................................................................. 99
Pre-incident Planning ........................................................................................................................ 100
Statistical Collection and Analysis ..................................................................................................... 101
Fire Department Planning ..................................................................................................................... 103
Emergency Preparedness & Response Planning............................................................................... 103
Administrative Planning .................................................................................................................... 105
Capital Assets and Assessment of Current Infrastructure .................................................................... 107
Facilities ............................................................................................................................................ 107
Apparatus .......................................................................................................................................... 112
Service Delivery and Performance ........................................................................................................ 114
Service Demand Study ...................................................................................................................... 114
Distribution Study ............................................................................................................................. 118
Concentration Study ......................................................................................................................... 127
Reliability Study ................................................................................................................................ 129
Response Performance Summary ..................................................................................................... 131
Mutual and Automatic Aid Systems ................................................................................................. 136
Incident Control and Management................................................................................................... 137
Future System Demand Projections ................................................................................... 139
Population Growth Projection .............................................................................................................. 139
Population History ............................................................................................................................ 139
Population Projections ...................................................................................................................... 140
Service Demand Projection ................................................................................................................... 141
Community Risk Analysis ...................................................................................................................... 143
Future Delivery System Models ......................................................................................... 151
Development of Response Standards and Targets ............................................................................... 151
Critical Tasks, Risk, and Staffing Performance .................................................................................. 151
PFD Response Time Performance Objectives ................................................................................... 154
Strategy Recommendations ............................................................................................... 155
Short-Term Strategies ........................................................................................................................... 155
Priority 1 – Items Involving Immediate Internal Safety Concerns .................................................... 155
Priority 2 – Considerations That May Present Legal or Financial Exposure ..................................... 156
Priority 3 – Matters That Address a Service Delivery Issue .............................................................. 156
Priority 4 – Considerations to Enhance the Delivery of Services ...................................................... 156
Priority 5 – An Important Thing to Do .............................................................................................. 157
Mid-Term Strategies ............................................................................................................................. 158
Page 24 of 254
Pasco Fire Department (WA)
Emergency Services Master Plan 2016
Final Report iii
Training Center/Training Manual...................................................................................................... 158
Shared System Status Manager ........................................................................................................ 159
Develop a Combined Dispatch Center for Benton and Franklin Counties ........................................ 160
Peak Activity Units ............................................................................................................................ 161
Alternate Response Units ................................................................................................................. 162
Staffing Increases .............................................................................................................................. 163
Logistics Center ................................................................................................................................. 163
Station Redeployment ...................................................................................................................... 164
Long-Term Strategies ............................................................................................................................ 167
Additional Fire Station ...................................................................................................................... 167
Cost Projections ................................................................................................................ 169
Revenue & Expenditure Forecast ......................................................................................................... 169
Forecast Assumptions ....................................................................................................................... 169
Financial Forecast Results ................................................................................................................. 173
Appendices ....................................................................................................................... 187
Appendix A: Table of Figures ................................................................................................................ 187
Page 25 of 254
Page 26 of 254
Pasco Fire Department (WA)
Emergency Services Master Plan 2016
Final Report 5
Executive Summary
Emergency Services Consulting International (ESCI) was engaged by the City of Pasco Fire Department to
conduct an emergency service master plan for the fire department.
Purpose and Approach
The purpose of a master plan for the fire service is to understand where the fire department is in
relation to the risks the community is faced with today, anticipate community growth (and therefore risk
growth) and recommend steps to take to position the fire department to address that growth in
advance with appropriate resources and infrastructure. In short, a master plan keeps the fire
department from lagging behind community growth and development, maintaining or enhancing service
as the community grows. It is an effective policy-making and budgeting tool as well. Knowing where
and how the community will grow into the future and what the fire department will need in terms of
policy and budget support to address it—well in advance—is a critical element of city council
deliberation.
The first phase of this master plan was to conduct a baseline assessment of the current conditions and
current service performance of the fire department. The purpose of this phase was to assess the
agency’s infrastructure, operations and service delivery in comparison to industry standards and best
practices, as well as to create a benchmark against which the options for future service delivery can be
measured.
The second phase was to conduct an assessment of the potential future community conditions, service
demand, and fire protection risks that the organization may be expected to serve. The purpose of this
phase was to determine community growth projections and interpret their impact on emergency service
planning and delivery.
The third phase was to identify future service delivery system models to include developing response
standards and targets, addressing critical task analysis, evaluation of community risk, identifying the
appropriate staffing levels to increase the effectiveness of emergency incident actions, and addressing
response time performance through the creation of realistic performance objectives.
Finally, the fourth phase was to recommend short- medium- and long term strategies to meet the needs
of the community now and into the foreseeable future, keeping pace with growth and address gaps in
the existing system where possible.
Evaluation of Current Conditions
The Pasco Fire Department is a modern fire department with appropriate equipment, some facilities
that are in need of upgrade or relocation, and personnel who work harder than most comparable
agencies in Washington and throughout the U.S. At .70 firefighters per 1,000 population served, PFD is
lower than their regional median peers (.84)1 and substantially lower than the national median (1.24)2.
1 2015 National Fire Protection Association (NFPA) Benchmark Data.
2 Ibid.
Page 27 of 254
Pasco Fire Department (WA)
Emergency Services Master Plan 2016
6 Final Report
This, in and of itself is not necessarily an indicator of workload, but when added to the frequency of
emergencies, which is twelve percent higher than their regional peers3, and the frequency of fires, which
is double their regional peers4, it is clear that PFD firefighters handle significantly more emergencies
with substantially less resources than their counterparts in similar sized fire departments.
This is an important fact to consider, given the growth ESCI projects for the community. If PFD is already
behind the curve, growth will only exacerbate the strain. The current population of Pasco is 68,240 as of
the initiation of this report, and grew by over eighteen percent in six years (between 2010 and 20165).
In 2015-2016, Pasco has more than tripled the rate of growth of each of the other two cities that make
up the Tri-Cities. ESCI used the more conservative growth factor to project a population of 92,114 in
Pasco by 2025 (approximately 35 percent growth) with the population nearly doubling by 2040 (nearly
91 percent growth by 2040)6.
It is ESCIs understanding that PFDs goal is to achieve a Washington Surveying and Rating Bureau (WSRB)
Public Protection Class (PPC) four (4) by 2018. A reduced rating would reduce fire insurance premiums
paid by businesses whose insurance companies rely on the PPC ratings. Improvements in hydrant
testing, resource deployment, staffing, and fire code inspections will move PFD substantially closer to
their goal of a lower PPC, which this report recommends.
Service Delivery and Response Performance
PFD has a typical frequency for EMS incidents at almost eighty percent (80%) of their total calls for
service (demand). However, as stated earlier in this summary, PFDs fire occurrence is double their peer
group and is anecdotally over two-and-a-half times greater (5.4% of call volume versus 2%) than the
occurrence of fires for any fire department this ESCI team has ever studied, regardless of size.
There appears to be no significant pattern of demand for service by month, with the highest volume
occurring in July and not tapering off significantly until January and February. It is relatively quiet for the
latter months of winter, but in March demand grows steadily until it spikes again in July, only to start the
cycle over.
The demand for service by hour of day is a very typical pattern, which begins to climb at 8:00 a.m. and
stays high through 8:00 p.m. (sixty-four percent of calls for service), where it then begins to decline. It
mirrors human activity. As people settle in for the night, human activity is slowed and call volume
reflect that. The lowest time for emergencies is between the hours of midnight through 6:00 a.m.
Paradoxically, while call volumes are low during the sleeping hours, life loss from the relatively few fires
that occur also spike statistically. This is because people are asleep and more vulnerable to a fire,
however rare, overtaking their escape once they are awakened. This underscores the importance of
working smoke detectors, which provides an early alert for an early escape.
3 Ibid.
4 Ibid.
5 As this report was drafted, OFM released 2016 population numbers, reporting Pasco’s population at 70,560
6 Washington State Office of Financial Management.
Page 28 of 254
Pasco Fire Department (WA)
Emergency Services Master Plan 2016
Final Report 7
The high demand during the day lends itself to establishing Peak Activity Units (PAUs) to augment
foundational resources (twenty-four hour engines with a full complement of personnel) during those
peak periods of demand. The lull in demand for service between 8:00 p.m. and 8:00 a.m. allows these
PAUs to be shut down, as long as the foundational response capability remains intact.
PFD service demand (both fire and EMS incidents) is concentrated in the central core area of Pasco,
between Station 81 and Highway 395. Additionally, the commercial corridor along Road 68 and the
residential neighborhoods north of Interstate 182 experience higher incident density as depicted in the
following map.
All Incident Types, 2014-2015
National consensus standards, such as the NFPA 1710,7 specify that career staffed, urban fire
departments should deploy resources such that 90 percent of emergency service demand can be
reached in four minutes or less travel time. PFD has adopted a travel time standard of a six-minute
travel time for the arrival of the first apparatus on scene. The following map displays the portions of the
PFD service area that are within six minutes or less travel time of a staffed fire station.
7 NFPA 1710, Standard for the Organization and Deployment of Fire Suppression Operations, Emergency Medical
Operations, and Special Operations to the Public by Career Fire Departments (National Fire Protection Association
2010).
Page 29 of 254
Pasco Fire Department (WA)
Emergency Services Master Plan 2016
8 Final Report
PFD Response/Travel Time Model
The above illustrates the travel time potential from existing staffed fire stations (assumes each unit is in
quarters and available for immediate response). Approximately ninety-five percent (95%) of the
incidents which occurred in 2014-2015 were within six minutes’ travel time from existing staffed
stations, assuming the primary response unit was in quarters and available for immediate response.
However, the following map demonstrates actual travel time performance within a distinct geographic
area. As displayed, 2015 actual travel time performance did not meet the PFD travel time standard of six
minutes in approximately 33 percent of the PFD service area.
Page 30 of 254
Pasco Fire Department (WA)
Emergency Services Master Plan 2016
Final Report 9
Travel Time Performance by Fire Management Zone, 2015
In addition to the distribution of resources to provide an effective response time, concentration of
resources is critical to the more significant responses, such as fire, motor vehicle collisions, and other
multi-unit response call types. It is critical that sufficient resources (personnel and equipment) arrive to
a significant incident quickly enough to have a positive effect on the incident (mitigation).
The NFPA 1710 Standard specifies that the full first alarm assignment for a moderate risk structure fire
(single story residential structure) should arrive within eight-minutes travel time, 90 percent of the time
(90th percentile). The PFD full first alarm assignment for a structure fire calls for 11 personnel and
apparatus from all three staffed fire stations. The following map demonstrates that only a small portion
of the core area of Pasco is within eight minutes or less travel time of all three of the PFD stations.
Page 31 of 254
Pasco Fire Department (WA)
Emergency Services Master Plan 2016
10 Final Report
Station Concentration, Staffed Stations
PFD has adopted a travel time goal of 12 minutes for the arrival of the full first alarm assignment to a
fire suppression event (measured at the 90th percentile). The following map demonstrates the portions
of the PFD service area that are within 12 minutes or less travel time of all three staffed fire stations.
At 12 minutes or less travel time, PFD is capable of assembling a full first alarm throughout the majority
of the service area. Again, this map models potential travel time assuming all apparatus and personnel
are available. In 2015, PFD actually required over 22 minutes to meet the adopted standard for a full
first alarm (11 personnel) for a fire suppression event 90 percent of the time. Note that the PFD full first
alarm assignment of 11 personnel does not meet industry best practice8 recommendations of 14 to 16
personnel for a moderate risk structure fire. Examination of the 2015 Performance Measures Report
reveals that in 2015 PFD met the 12-minute travel time goal for a full first alarm for 50 percent of fires
suppression events.
8 Center for Public Safety Excellence/Commission on Fire Accreditation (CPSE/CFAI) Standards of Cover, 5th
Edition.
Page 32 of 254
Pasco Fire Department (WA)
Emergency Services Master Plan 2016
Final Report 11
Full First Alarm, 12 Minutes Travel Time (PFD Travel Time Goal)
Unit hour utilization (UHU) measures the amount of time that a unit is committed to an incident. The
larger the number, the greater the unit’s utilization and the less available it is for assignment to
subsequent calls for service. Given that both NFPA 1710 and Washington State Statute (RCW 35.103 Fire
Departments: Performance Measures) require that whatever standard is established, it be at the 90th
percentile. If a unit is being utilized on an emergency more than ten percent of the time, it is not likely
that said unit will achieve the 90th percentile. It is not surprising that each of the three medic units
exceed ten percent utilization.
Simultaneous or concurrent incidents can also negatively affect a fire department’s ability to muster
sufficient resources to respond to additional emergencies. The following graphic demonstrates the
number of concurrent incidents experienced by PFD in 2014 and 2015.
Concurrent Incidents, 2014-2015
Concurrent
Incidents
Total
Incidents
Percent
Concurrent
2014 1,521 4,715 32.3%
2015 1,843 5,103 36.1%
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Over 30 percent of 2014 and 2015 PFD service demand occurred while another incident was in progress.
The number of concurrent incidents increased from 1,521 to 1,843 between 2014 and 2015. With over
36 percent of the service demand occurring concurrently in 2015, the increase over 2014 reflects 21
percent growth year-over-year.
PFDs overall performance is best summarized by the following graphic.
Response Performance Goals versus Actual Performance, 2015
Response
Type
Adopted
Turnout
Standard
(Minutes)
Actual
Performance
(Minutes)
Percent
Meeting
Standard
Adopted
1st
Arrival
Response
(Minutes)
Actual
Performance
(Minutes)
Percent
Meeting
Standard
Fire
Suppression
Response
(NFIRS 100- 199)
2:00 2:53 63% 6:00 5:59 90.1%
Full First Alarm-
Fire Suppression
Response
NA NA NA 12:00 22:31 50%
First Arriving
Medical Unit
(BLS or ALS)
2:00 1:51
93.1%
6:00
6:20
88.1%
First Arriving ALS
Unit 2:00 1:52 93.2% 6:00 5:21 92.9%
Hazardous
Material 2:00
3:14
50%
6:00
5:21
92.9%
Technical
Rescue 2:00 1:37 91.7% 6:00 8:11 67.6%
ARFF N/A N/A N/A 3:00
2:15
100%
Wildland 2:00
3:28
58%
6:00 7:48
84.6%
Overall 2015
Response
Performance
2:00 2:06 88% 6:00 6:02 89.8%
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Short-term Strategies
The short term strategies listed in this report are a compilation of the recommendations aimed at
improving the current conditions of the Pasco Fire Department. While the consulting team felt that PFD
was a highly skilled, well managed and professional organization, there is always room for improvement.
The recommendations compiled in the current conditions section of the report are distributed among
five categories. The five categories, along with a brief definition and the number of recommendations in
that category are as follows:
• Priority 1 – Items Involving Immediate Internal Safety Concerns (0)
• Priority 2 – Considerations That May Present Legal or Financial Exposure (1)
• Priority 3 – Matters That Address a Service Delivery Issue (8)
• Priority 4 – Considerations to Enhance the Delivery of Services (20)
• Priority 5 – An Important Thing to Do (17)
Mid-Term Strategies
The mid-term strategies are progressive enhancements of the current conditions and net improvements
to the status quo. Many will likely require policy consideration and budget allocation.
Training Center/Training Manual
Fire departments in Benton and Franklin counties historically have unilaterally selected training manuals
from a variety of options or developed their own, resulting in diverse training efforts and on-scene
performance which varied within the region. The creation and application of a single standardized
training manual will provide for a more consistent training, better on-scene coordination, and improved
firefighter safety. With firefighters of Benton and Franklin County fire departments trained in the same
techniques, responders to emergency incidents can have the confidence that they will be prepared to
work effectively as a team.
ESCI recommends that all fire agencies in Benton and Franklin counties develop and adopt common
training standards as well as a single training manual. Currently, the Tri-Cities fire departments are in
the infancy stages of developing a training manual for adoption by all of the agencies. To expedite the
process, ESCI recommends that material from accredited existing model training manuals, hose
evolutions, and standard operating guidelines be adopted, with modifications as necessary for local
conditions.
PFD has inadequate facilities to conduct training. Training facilities should offer a controlled and safe
environment where simulations can develop and test the skill sets of emergency workers. Training
involves individual, company, and multi company skills development in evolutions, the operation of
firefighting equipment and apparatus.
Best practices suggest that emergency workers have regular access to training grounds for repetitive
drills and to develop new skills. PFD has contracted with WWCFD #5 for use of the training center in
Burbank and has been granted rights to use the City of Kennewick’s training facilities, however the
arrangement has constraints and limitations to their use. Without a cooperative effort, PFD has used
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whatever space is available for apparatus operator skills training, practicing hose evolutions, and other
manipulative undertakings.
ESCI recommends that at a minimum the three municipal fire departments cooperate on fire training
facilities. Ideally a cooperative venture would involve all Benton and Franklin County emergency service
providers. It is financially unrealistic to expect that every fire department in the area build and maintain
an independent training facility.
Shared System Status Manager
The three municipal fire departments that make up the Tri-Cities each perform a necessary but
redundant function as it relates to EMS response and medical transportation. Those redundant activities
include managing and maintaining balanced coverage of medic units to ensure rapid response time and
immediate availability. The Tri-Cities fire departments have cooperated with each other on various EMS
functions, including joint protocols, a shared EMS Medical Program Director, and EMS training activities.
ESCI believes that it is in the best interest of the three fire departments to have a single, shared
individual to manage EMS resources without regard to boundary. While it would be fiscally unfeasible
for each fire department to employ a 24-hour EMS supervisor (System Status Manager), it is practical for
them to collectively employ personnel for this function.
This System Status Manager (SSM) can use their advanced paramedic training and leadership skills to
oversee paramedics, monitor and coordinate resources, provide on-scene management at EMS
incidents, and maintain a safe working environment. The SSM assist the Medical Program Director with
personnel training and develop work improvement plans. Other duties include coordinating EMS unit
deployment, providing backup, and promoting positive customer relations. They interact with the
Medical Program Director, receiving hospitals, battalion chiefs, medical officers, and dispatch centers to
intervene and solve problems or answer questions.
Develop a Combined Dispatch Center for Benton and Franklin Counties
During periods of high call volume, EMS resources are essentially depleted. On one morning in April
2016, eight medic units were responding, transporting, or at the scene of a medical incident at the same
time in the Tri-Cities area. This illustration points out the need for coordinating fire and EMS response.
One obstacle to establishing a seamless regional EMS response is the two Public Safety Answering Points
(PSAPs). This was also a concern echoed by those interviewed by ESCI. Fire, hazardous materials, water
rescue, and technical rescue responses consistently require responses from fire agencies from both
counties, yet are handled by two PSAPs that have difficulty communicating and coordinating with each
other.
Currently, the Franklin and Benton County PSAPs are unable to automatically transfer calls to each other
and instead rely on dialing a seven-digit phone number and transferring information verbally. This
outdated communication method elongates the time to dispatch emergency calls and can lead to
missing information or lost calls. Existing information technology (IT) resources lack the capability to
automatically transfer 9-1-1 calls or automatically requesting resources from neighboring agencies.
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Although consolidation of dispatch functions for Benton and Franklin Counties is almost universally
supported and has been discussed for years, little progress towards a merger or consolidation has
occurred. ESCI believes that a critical element of delivering timely, effective and efficient emergency
services is to provide timely, effective and efficient communications and coordination. This is not
currently being performed due in large part to the two PSAP system. Consolidating the two systems into
one and taking advantage of new technologies will enhance regional emergency services perhaps more
than any other single action.
Peak Activity Units
Staffing is typically a fire agency’s single most expensive resource. A significant factor that drive cost are
the 24-hour nature of the fire service demand. The rationale for staffing and deploying in this manner is
the unpredictable nature of emergencies. Once a base emergency response capability is achieved
throughout the 24-hour cycle, however, additional capacity can be gained with a more flexibly staffed
and deployed model.
This efficient and effective model includes resources which augment the traditional deployment of
response resources. This flexible unit follows the observable trends in emergency calls for service
(demand) which dictates to a significant degree the distribution of that flexible resource. Implementing
this flexible unit reduces response times where demand is high or when prescheduled vacancies (i.e.,
training) occur. These flexible resources (Peak Activity Units, or PAUs) are deployed in a manner that
mirrors the ebb and flow of emergency demand.
PAUs are typically staffed and deployed during the most statistically busy times of the day and week,
which make the unit less costly and more flexibly deployed, both by time of day and geographically.
PAUs can be staffed with a medical crew if that is its primary purpose, with a fire suppression crew if
that is tis primary purpose, or both.
Regardless of staff capability, the staff can be obtained by hiring new personnel, by using callback crews
on overtime, or converting a regularly assigned crew to a PAU. Staffing of a PAU should not be done
through the use of cross-staffing (thereby taking a critical resource out of service), as it depletes the
core resources and reduces agency capability.
PAUs are not only assigned as an additional resource based on statistically busy times and locations.
They can also be used as an incremental enhancement to service growth, to manage gaps in coverage
(such as training activities), and could even be cooperatively staffed with a neighboring agency(s).
Adding PAUs as an adjunct to existing staffing patterns adds flexibility to fire department emergency
operations.
ESCI recommends PFD evaluates the potential benefits of establishing a PAU jointly with its neighbors
within the Tri-Cities area. If this configuration is deemed mutually beneficial, discussions should ensue
with interested parties to implement this unit and share in the costs of operating the unit. If not
deemed mutually beneficial, PFD should consider implementing a PAU by itself to be operated within
the Pasco service area.
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Alternate Response Units
Non-emergent calls for service represent a drain on emergency service capability throughout the United
States. A more cost effective and efficient model should be implemented, whose primary mission is
focused on non-emergency, lower acuity emergency medical calls. Its purpose is to keep the primary
fleet of emergency response vehicles and crews in service and available for the higher acuity, true
emergency calls. Tualatin Valley Fire & Rescue (TVF&R) in Washington County, Oregon, implemented a
12-month pilot of this program in 2011. The agency experienced positive results, so TVF&R permanently
incorporated the units into its daily operation.
The premise behind the unit is to reduce the expensive staffing and vehicle response to likely non-life-
threatening calls for service. The units are sport utility vehicles, staffed by one Firefighter/Paramedic.
The units are dispatched according to a protocol used by the dispatch centers, which medically triages
the calling party.
ARUs respond to lower acuity call types. In TVF&R, the ARUs also respond to minor non-medical calls
such as lockouts, smoke detector problems, and burning complaint investigations. The four TVF&R
ARUs deployed during the pilot responded to 2,134 incidents in 12 months, which represented 7.2
percent of the agency’s total call volume for that year.
It is important to understand, however, that ARUs do not provide recognized credit through the
Washington Surveying and Rating Bureau. Emergency medical services response capability is not
evaluated by WSRB since it is focused on property conservation and property risk. However, response
time and unit reliability are improved by the use of ARUs, and the Spokane Fire Department, who also
has recently implemented ARUs stated that, “…the public perception of the program has been
overwhelmingly supportive and accepted throughout the community as simply, ‘smart government’”.
Staffing Increases
The PFD is on the low end of the spectrum for administrative staffing for municipalities its size as a ratio
to line personnel. There has been concern about the assistant chief’s position not being appointed as a
regular position. This leads to instability and a lack of clarity administratively. This is a critical position in
the management team and must be solidified.
The line staffing does not meet national standards and, more significantly, do not meet state or local
norms. Two-person engine companies, augmented by a two-person medic unit (if available), creates an
unreliable staff deployment for structure fires and therefore places a substantial burden on responders
during emergencies. ESCI recommends that the City of Pasco follow a plan of ramping up staffing in the
fire department over successive years. This improves incident safety, reduces worker fatigue, and
increases the likelihood of PFD receiving a Class 4 rating from the Washington Surveying and Rating
Bureau.
It should be the goal of PFD to achieve three-person engine companies and two-person ambulances,
discontinuing the practice of cross-staffing these two critical pieces of equipment. The cross-staffing of
critical first response units creates a routine response compromise. The cross-staffing of brush units
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Final Report 17
(type 6 engines) or other support units is, however, an efficient practice to follow. As Unit Hour
Utilization increases for the medic units, the urgency becomes greater to separate these two assets from
required tandem responses.
Logistics Center
PFD sits in an urbanized core area where inefficient duplication exists as each of the municipal fire
departments which make up the Tri-Cities provides logistical support to keep their assets in operational
readiness and ensures that enough supplies, tools, and equipment are available. These siloed systems
lend themselves to a regional approach.
The agencies can jointly determine the proper level of inventory to maintain within the system. The use
of system-wide inventory planning ensures that the most cost-effective inventory management can be
established for the system participants. This is referred to as “Just-In-Time” Inventory. To a great
degree, a just-in-time inventory process relies on the efficient monitoring of the usage of materials and
ordering replacement goods that arrive shortly before they are needed. This simple strategy helps to
prevent incurring the costs associated with carrying large inventories of raw materials at any given
point.
Standardizing specifications for the purchase, repair, and maintenance of apparatus, self-contained
breathing apparatus (SCBA), communication devices, Personal Protective Equipment (PPE), uniforms,
replenishable supplies and miscellaneous equipment often equates to less out-of-service time. Support
personnel setting up a requisition and delivery system is a key efficiency of this type of approach. These
economies of scale accrue to the benefit of each participating agency.
Station Redeployment
While PFD has done amazing work, it is clearly straining to keep up. The service level and capability are
not sustainable without commensurate growth of resources to match the unprecedented growth of
emergency demand and of the city itself. ESCI sees indications of the system declining in the following
ways:
• PFD is at the minimum performance for its own goal of the first apparatus on scene (89.7
percent).
• PFD is currently only able to assemble a full first alarm in 12 minutes or less travel time (its self-
imposed performance goal) at 50 percent of fire suppression events. The goal is 90 percent.
Current service demand and the lack of additional resources negatively affects the time required
to assemble a full first alarm.
• PFD is currently rated as a Class 5 fire department by WSRB. Lack of engine companies and their
staffing has been identified as a deficiency.
• The population within the service area has increased by over 14 percent since 2010.
• New development and population growth are projected to continue increasing, both in the near
future and long term.
• Service demand has steadily increased and is projected to continue increasing; it will negatively
affect response performance in the near future.
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Currently, the three staffed PFD stations are physically located within six minutes or less travel time to
over 95 percent of current service demand inside the Pasco UGB. However, the fact that PFD actually
achieves this travel time less than 90 percent of the time is an indication that concurrent calls are
negatively impacting service.
Current Staffed Station Deployment
ESCI believes that Station 84 should be staffed but not at its current location. As depicted in the
following map, ESCI recommends relocating Station 84 west of its current location to the area of West
Court Street and Road 68. Further, ESCI recommends relocating Station 83 north to the area of Sandifur
Parkway and Road 68. By making these changes, approximately 99 percent of current service demand
inside the Pasco UGB is within six minutes or less travel time of a staffed station.
The relocation of these two stations also provides PFD with the opportunity to construct either station
with administrative offices in mind. Designing one of the stations to also house administrative offices
with proper flow and separation can be done without compromising its function as an active fire station.
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Final Report 19
Proposed Four Staffed Station Deployment & Reconfiguration
This station redeployment anticipates increased future demand in the Riverview are as well as north of
Interstate 82. The redeployment also increases the concentration of PFD resources available for
concurrent (simultaneous) or higher risk incidents and increases the area covered in a balanced manner.
Staffing of Station 84 can begin earlier than the time it takes to acquire a new site and construct the new
station. ESCI believes it would be prudent to implement a Peak Activity Unit (see description earlier in
this executive summary), temporarily housed at the existing Station 84 until such time as the new
station is constructed and ready for staffing with an engine, which should then become part of the Pasco
Fire Department’s core response system and staffed traditionally.
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Final Report 21
Long-Term Strategies
The short and mid-term strategies discussed will move the organization forward substantially. A longer-
term, high-level view of future needs is also important to provide a “big picture” view of how the
organization may continue with future initiatives. Primarily, long-term strategies are centered around
community growth and related workload and how both impact the future deployment of fire stations
and personnel.
Additional Fire Station
The City of Pasco has a large area of open space that is currently home to mineral extraction in an open
pit. The city has a study which lays out the Broadmoor Properties, a Planned Unit Development (PUD)
which contains approximately 1,000 acres of available land. A range of between 2,000 to over 3,000
housing units are planned for, along with commercial, retail (including a 350,000 square feet big box
store), and office development. Whether this PUD comes to fruition or is redeveloped in a more
traditional form, it represents substantial growth on the west side of Pasco.
At the point where it becomes clear that Broadmoor Properties begins to develop, PFD will have to plan
for the probable construction of a fifth fire station. In the following map the siting of the fifth fire
station is considered.
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Five-Station Deployment Model
While Station 85 is proposed very near the existing border of the City of Pasco, ESCI believes the City will
likely annex to the urban growth boundary directly north of the Broadmoor Properties site. This would
position the station to provide an effective reach not only to Broadmoor but also to the development
and increased density likely to come to areas surrounding Broadmoor. This also takes advantage of
property already owned by the City of Pasco.
This location also provides good access to both sides of Interstate 182 and would address concerns
identified by the Washington Surveying and Rating Bureau in the area of the possible planned unit
development. Adding this station simultaneous to the development of Broadmoor also increases the
concentration of resources available in the western portions of the service area east of Broadmoor.
With an appropriately staffed engine company and medic unit at the station, the combined resources of
the Pasco Fire Department, deployed as identified in the preceding map, will significantly enhance
resource concentration—and ultimately effective response force. This resource deployment pattern is
anticipated to address community growth and service demand growth into the foreseeable future.
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Final Report 23
Evaluation of Current Conditions
The Pasco Fire Department (PFD or Department) Emergency Services Master Plan begins with ESCI’s
Evaluation of Current Conditions, an assessment of the agency as it was found to be operating upon
initiation of the project in April 2016. Using organizational, operational, staffing, and geographic
information system (GIS) models, this phase of the study identifies how the organization is currently
operating and provides recommendations for improvement in services delivered to the community.
ESCI bases this evaluation on data provided by the agency and collected in the course of ESCI’s
fieldwork. The information is compared to a combination of Washington State laws and regulations,
National Fire Protection Association (NFPA) standards, Commission on Fire Accreditation International
(CFAI) self-assessment criteria, health and safety requirements, federal and state mandates relative to
emergency services, and generally accepted best practices within the emergency services community, as
well as the experience of ESCI’s consultants.
There are 12 elements which make up the current conditions report for the Pasco Fire Department.
Each element provides the reader with a general description; how PFD is structured or performs in that
element; and any recommendations which, in ESCI’s opinion, enhances the Department’s performance,
increases its efficiency or effectiveness, or are generally accepted practices in the fire service industry.
ORGANIZATIONAL OVERVIEW
The Organizational Overview component provides a summary of agency composition, configuration, and
the services provided. Data provided by the administrative and management staff of the Pasco Fire
Department were evaluated. In addition, interviews with line personnel, bargaining unit representatives,
supervisory and administrative staff, city management, and allied governmental agencies were
combined with information collected in the course of ESCI’s fieldwork to develop the following
overview.
The purpose of this section is two-fold. First, it verifies the accuracy of baseline information along with
ESCI’s understanding of the agency’s composition. This provides the foundation from which the
Emergency Services Master Plan is developed. Secondly, the overview serves as a reference for the
reader who may not be fully familiar with the details of the agency’s operations. Where appropriate,
ESCI includes recommended modifications to current observations based on industry standards and best
practices.
City Governance & Structure
Pasco Fire Department is a municipal fire service provider for the constituents of the City of Pasco. It is
one of 25 distinct departments, divisions, or programs provided to the citizens of the city. The Pasco City
Council is comprised of seven elected officials, each serving four-year terms. Five council members are
elected within geographic districts of the city while two are elected at large. The council elects a mayor
from among the seated councilmembers. The City of Pasco operates under the "Council-Manager" form
of government, per the Revised Code of Washington Chapter 35.18. Under the Council-Manager form of
city government, the councilmembers are the elected officials of the City, who then in turn appoint and
oversee the city manager. The city council sets policy for the city, adopts a budget and supervises the
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Emergency Services Master Plan 2016
24 Final Report
city manager. The city manager implements policy as set by the city council, manages the adopted
budget, and manages the day-to-day operation of the city through subordinate department heads
within the city, including the fire chief.
The following map reflects the service area of the Pasco Fire Department.
Figure 1: Service Area Map
Pasco Fire Department Structure
The Pasco Fire Department was established by council action on July 16, 1908, after a series of fires
destroyed portions of the town. It currently serves approximately 70,560 persons9 within the service
area. The city service area encompasses approximately 37 square miles, with an additional seven
square miles in the urban growth boundary. The fire chief, Bob Gear, was appointed through a
competitive process by the city manager in 2009. The fire chief is an at-will employee and is under
contract with the city. The fire chief recommends hiring and termination actions to the city manager,
but otherwise administers discipline at his sole discretion. Legal counsel is available to the fire chief
9 Source: Washington State OFM Population Estimate. July 2016.
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Pasco Fire Department (WA)
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Final Report 25
through the city attorney and personnel advice is available from the Human Resources Director. The
Pasco Fire Department organization chart follows:
Figure 2: Organizational Chart
Citizens
Fire Chief
B Shift Battalion
Chief
C Shift Battalion
Chief
A Shift Battalion
Chief
Sta. 81
1 Capt.
1 Lt.
4 FF
Sta. 82
1 Capt.
1 Lt.
4 FF
Sta. 83
1 Capt.
3 FF
Sta. 81
1 Capt.
1 Lt.
4 FF
Sta. 82
1 Capt.
1 Lt.
4 FF
Sta. 83
1 Capt.
3 FF
Sta. 81
1 Capt.
1 Lt.
4 FF
Sta. 82
1 Capt.
1 Lt.
4 FF
Sta. 83
1 Capt.
3 FF
Administrative
Assistant
City Manager
Assistant Chief
Each station on each shift has paramedics assigned
– the rank of the paramedics varies
City Council
EMS Billing
EMS Captain
Training Captain
D Shift
2 FF’s
Fire Prevention
Specialist
As with most fire departments, Pasco Fire Department is hierarchical, reflecting the paramilitary
structure of the fire service. However, PFD makes a distinction about its hierarchy in that it is scalar
during emergency incidents and project-oriented day to day. The functional program management
structure is circular, where the process owner (the PFD administration) is in the center, surrounded by
the many routine program activities required to maintain emergency operational readiness. They
include such things as facilities, equipment, apparatus, training, EMS, Safety, Haz-Mat, and ARFF. Mid-
managers are assigned these program areas, with additional, smaller projects connected to the major
programs. The processes are interdependent and better and faster decisions can be made.
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26 Final Report
All suppression employees from battalion chief down are covered in a collective bargaining agreement.
The span of control in the fire department is within industry standards at 1:6 for the fire chief. The fire
department has three career-staffed fire stations within the city and an unstaffed fire station within an
area of the city which was recently annexed from the district area bordering the city. In addition, PFD
has a vehicle and logistics supply building located in the back of Station 83. PFD provides fire
suppression, advanced life support emergency medical services and ambulance transport services,
technical rescue services, and hazardous materials services (through a regional partnership) to its
constituency.
Washington Surveying & Rating Bureau
PFD enjoys a Public Protection Class (PPC) 5 from the Washington Surveying & Rating Bureau (WSRB).
This rating is what many insurance companies base their insurance premiums on for privately insured
properties. The higher the PPC class, the greater the likelihood that individual property insurance
premiums will increase, especially for commercial properties. The WSRB rates four major areas: Fire
Department (40 percent of total PPC), Water Supply (35 percent of total PPC), Fire Safety Control (fire
prevention – 16 percent of total PPC), and Emergency Communications (9 percent of total PPC). Within
these major areas are subcategories. The combined total points issued in these areas is compiled to
provide a total classification on a scale of 1 to 10, with 10 being without fire protection and 1 being the
best fire protection available.
There are opportunities to improve in areas of the PPC that increase the likelihood of PFD receiving a
Class 4 in its next rerate. The following specific areas represent opportunities for significant
improvement:
• Continue conducting annual hydrant inspections, including operation and checking static
pressure. Flow testing the system grids should occur every five years, which is not currently
being performed.
• Positioning staffed fire apparatus in a strategic manner to extend an effective reach to the
structures within the city. This topic is addressed in greater detail in the Service Delivery and
Performance section of this report.
• Increasing the staffing on existing deployed fire apparatus. EMS units may be factored into
overall staffing, depending on how often they are actually available to respond to fires.
• Continue conducting annual fire code inspections of commercial occupancies by certified fire
code inspectors.
Activity Comparisons
ESCI has compared PFD against similar sized fire agencies within the 13 western states using National
Fire Protection Association (NFPA) benchmark data for 2015. “Region” as used in the following figures is
defined as fire agencies in Alaska, Arizona, California, Colorado, Hawaii, Idaho, Montana, Nevada, New
Mexico, Oregon, Utah, Washington, and Wyoming serving a population of between 50,000-99,999.
For a primarily suburban fire department, PFD is a very busy department, as the following figure depicts.
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Final Report 27
Figure 3: Total Incidents per 1,000 Population, 201510
In total incidents, PFD experienced 74.7 emergency responses per 1,000 population in its service area,
which is eight more responses per 1,000 population served (or 544 total responses more per year) than
the regional median.
A similar comparison is offered in the following figure, referencing only fires that occurred on a per
1,000 population basis.
10 2015 National Fire Protection Association (NFPA) Benchmark Data.
66.7
74.7
0
10
20
30
40
50
60
70
80
90
100
Regional Median PFD
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28 Final Report
Figure 4: Fires per 1,000 Population, 201511
At four fires per 1,000 population served, the occurrence of fires in the PFD service area is double the
regional median, or 136 more fires annually than the regional median. The following provides a
comparison of dollar losses to fires on a per-capita basis compared to regional and national averages.
11 Ibid.
2.0
4.0
0
1
2
3
4
5
Regional
Median
PFD
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Final Report 29
Figure 5:Fire Loss per Capita, 201512
Given that PFD’s service area experiences fires at double the regional median, it is remarkable that the
fire loss per capita is significantly less than half the regional median and less than half the national
average. This is likely an erroneous data set from Pasco. The PFD crews roughly estimate the fire loss
for a given property. Contacting the insurance carrier for actual losses will improve fire loss reporting
accuracy, likely increasing the fire loss per capita rate.
It is important to note that the above referenced data sets are a one-year snapshot; they may not be an
accurate representative of overall trends.
Recommendations:
• Consider implementing improvements in hydrant flow testing, resource deployment, and
staffing to achieve a PPC 4 rating.
12 Ibid.
$35
$31
$15
$0
$5
$10
$15
$20
$25
$30
$35
$40
Regional Average National Average PFD
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30 Final Report
MANAGEMENT COMPONENTS
Effective fire department management is a complicated and expanding challenge for fire service leaders.
With increasing complexity comes increased cost. Today’s fire department must address management
complexities that include an effective organizational structure, setting and measuring levels of service,
staying abreast of new technologies and methods, evaluation and maintenance of a qualified work
force, staff development for effective succession, and financial sustainability for the future. This section
of the report deals with the elements typically found in the management structure of an organization.
Management Elements
An organization must have a plan in place, goals and objectives established and communicated, and
metrics in place to measure effectiveness or achievement. PFD has established goals and objectives,
which are reviewed and reported on annually. The Department has an established mission statement,
but no vision statement or organizational values/guiding principles. The elements PFD has in place and
the elements that are missing (vision and values) are usually combined into a single document referred
to as a strategic plan. A strategic plan typically has the following elements:
• Internal and external environmental scan (SWOT Analysis)
• Mission, vision, values
• Initiatives, goals and subordinate objectives with performance metrics or outcome statements
• Timelines assigned to each objective
• Initiative manager assigned to each initiative
• Responsible persons assigned to coordinate achievement of each objective
The strategic plan establishes timelines for the goals and objectives to be accomplished and assigns
them to appropriate personnel to complete. In compiling a strategic plan, the goals and objectives are
aligned as prioritized work flow, timelines ensure they stay on track, and the personnel assigned to
achieve them are accountable for keeping the work product moving forward. The work is consistent
with the mission, propels the agency toward its vision, and the values reinforce how personnel treat
each other (culture) in the process of achieving the strategic plan.
PFD should either conduct a full-fledged strategic plan for a three to five-year period or compile all of
the current work products into a strategic plan and add the missing elements. Adopting a strategic plan
in either circumstance ensures that all personnel have a clear understanding of what is to be
accomplished, by when and by whom. All non-emergency work that does not align with the strategic
plan should be evaluated for its importance, since work not reflected in the strategic plan robs energy
away from accomplishing the strategic plan.
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Management Documents and Processes
PFD also has regulatory documents, which are current as of January of 2015, with some position
descriptions requiring review and revision as they are recruited for. As in many organizations, some
policies and practices are in writing but are not regularly reviewed.
Most regulatory, policy and guidance documents vary from one agency to the next, reflecting the
personality of the leadership and philosophy of the organization. However, ESCI recommends that PFD
take care to segregate the documents into three categories: Regulatory, Policy, and Guidance. Examples
of the contents of each of these categories include:
• Regulatory – includes rules and regulations, code of conduct, code of ethics, and other actions
or inaction where violation can result in serious consequences for the violator and/or the
organization.
• Policy – includes those adopted by the city council, whether written by the council itself, by its
legal counsel, or by the fire chief. These are essentially the rigidly enforced practices of the
department. Violation has serious consequences for the violator and the organization,
potentially with legal implications.
• Guidance – includes standard operating procedures or guidelines and issues where process or
the leader’s intent is explained to the members. These documents explain how something is
performed or provides a framework for decision-making. Violation may or may not have serious
consequences for the violator and/or the organization.
All of these documents should be reviewed and revised as appropriate on a planned cycle. ESCI
recommends that one-third of the documents be reviewed each year so that the complete set is
reviewed and revised every three years. There should also be established a formal process to develop
new regulations, policies, and guidelines.
Critical Issues
Public safety agencies routinely face a complex array of new critical issues and emerging challenges.
Some public safety leaders unwisely choose to face these issues and challenges alone and forego the
benefits of involving numerous talented and capable members of the organization at all levels. The PFD
administration has listed the following critical issues facing the organization:
Figure 6: Critical Issues
Critical Issues
• Low line staffing levels
• Lack of sufficient number of operational stations
• Poor distribution of stations
• Prevention and inspections not performed within PFD
The items in the previous figure require engaging with city management to develop strategies to address
these issues. Doing so not only improves service to the community, it will likely result in an improved
Public Protection Class, lowering some insurance premiums within the city.
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Communications
PFD invests significant time and effort into its internal communication. Staff meetings are convened
regularly, with minutes taken. Written memoranda are occasionally used to supplement staff meeting
information and member forums are conducted (all hands meetings) to address urgent issues of global
impact. The fire chief and his command staff subscribe to an open door policy. While the organizational
chart clearly depicts formal authority, it reflects the emergent nature of the fire service. The routine,
day-to-day communication and activities in the department are less formal. Programs are often
assigned to personnel that deviate from the formal org chart.
External communication is more dependent upon the broader city. PFD does have a formal complaint
process in place and does rely occasionally on community surveys, performed by the city on behalf of all
departments. A community newsletter, which occasionally has articles of interest about the fire
department, is distributed by the city.
Record Keeping and Documentation
In any organization, documentation of activities is of paramount concern. Sound management decisions
cannot be assured without sound data, which is gathered in records routinely.
The Department has a process for public records access in place and has hard copy files protected in
office file drawers. The fire chief’s office is not routinely locked but should be if sensitive files are
maintained in the office. Electronic files are secured by passwords assigned to users with rights to
appropriate documents and the file server is backed up daily off site. These are sound practices in the
fire service industry.
At fire stations, public access doors are secured with combination locks. Apparatus bay doors are
occasionally left open—both intentionally and unintentionally—which may compromise perimeter
security. Response vehicles rely on locked fire stations to provide security (which can be defeated with
open bay doors as identified above), but staff vehicles are typically unsecured in the parking lot.
All testing records are in place for self-contained breathing apparatus, hose, ladders, pumps, and
breathing air from the cascade system. Hose, ladder, pump and breathing air testing is contracted to a
third party. Vehicle maintenance records are retained at city shops. The rest of the testing, including gas
monitor calibration, occurs internally.
Recommendations:
• Review and update all regulatory documents on at least a three-year cycle.
• The fire chief’s office should be secured if sensitive files are kept there.
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FISCAL ANALYSIS OF CURRENT CONDITIONS
This section provides information on the financial condition of the Pasco Fire Department and the
local/regional economic context affecting its future operations. It begins with a review of selected
national, state, and local economic/demographic data to provide for the Department’s current condition
and forecast outlook. Historical revenues and expenses are examined, highlighting key aspects and
factors affecting the Department’s revenue and expense trends. Finally, using information provided by
Department staff and regional economic contextual information, a forecast of revenues and expenses
through 2021 is provided.
This presentation and analysis, as well as various staffing and funding cases modelled, relied on the
financial documentation provided by the Department. Additional information sources included; the U.S.
Census Bureau, U.S. Department of Commerce Bureau of Economic Analysis, the U.S. Department of
Labor (Bureau of Labor Statistics), the State of Washington Office of Financial Management, the
Washington Center for Real Estate Research, the Franklin County Tax Assessor, the Pasco Building
Permits & Inspection Services, and the Pasco Comprehensive Annual Financial Reports (CAFRs). The
assumptions used in the forecast were developed by ESCI and reviewed by Department staff.
Economic Context
Economic data from Franklin County and the Kennewick-Pasco-Richland Metropolitan Statistical Area
(MSA) suggests that the local economy may not have suffered as much as other parts of the country
during the 2008-2011 recession and some indicators suggest that the area’s economy has met or
exceeded pre-recession highs in some respects. Economic activity including levels of employment, one
and two-family residential permits, residential home sales in the region, per capita and median family
income among other measures have generally recovered and in some cases exceeded their pre-
recession peaks.
The following figure shows non-seasonally adjusted average annual trends in total employment and
available total labor force on the left-hand axis (red and blue lines; respectively) and unemployment
rates on the right-hand axis (green bars) for the Kennewick-Pasco-Richland MSA from 2006 through
2015. As shown, both the available labor force and number of workers employed have trended similarly
throughout the period, rising rapidly to their respective peaks in 2010. Both measures gradually
declined to respective lows in 2013-14 after which they again began to climb, almost reaching their 2010
peak values by 2015.
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34 Final Report
Figure 7: Tri-Cities Employment, Available Labor Force and Unemployment Rate, 2006-2015
Source: U.S. Department of Labor, Bureau of Labor Statistics
The unemployment rate declined from 6.6 percent in 2006 to a low of 5.7 percent in 2008, after which it
rose rapidly to its highest level of the period at 9.4 percent by 2012, slightly later than experienced in
other parts of the country during the recession.
The following figure compares the unemployment rate for the Washington State with that in the Tri-
Cities area. The state reached its peak unemployment rate of 9.9 percent in 2010, the low point of the
recession generally observed elsewhere in the country; whereas the Tri-Cities area’s unemployment rate
while climbing during the recession, did so at a slower rate and did not reach its peak until 2012. While
both the state and Tri-Cities area are continuing to recover jobs, the Tri-Cities area did not experience as
great a fluctuation in total employment as seen statewide.
4
5
6
7
8
9
10
11
12
60,000
70,000
80,000
90,000
100,000
110,000
120,000
130,000
140,000
Unemployment Rate Tri-Cities Unemployment Rate Labor Force Employed
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Figure 8: Comparison of State of Washington and Kennewick-Pasco-Richland MSA
Unemployment Rates, 2006-2015
Source: U.S. Department of Labor, Bureau of Labor Statistics
The following figure shows inflation adjusted per capita income in 2013 dollars for Washington and the
United States for the period 2005 through 2014. Both show similar trends with income peaking in 2007-
2008 just ahead of the recession and reaching recession lows in 2010 before beginning to recover in
2011. By 2012, per capita income in both the United States and Washington had surpassed respective
pre-recession highs and continues to climb. Per capita income in the state has been higher than the
national average throughout the period and was about 7.5 percent above the U.S. average in 2014.
0
2
4
6
8
10
12
Tri-Cities Unemployment Rate State Unemployment Rate
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36 Final Report
Figure 9: Comparison of Per Capita Income (Inflation Adjusted 2013 Dollars)
United States and Washington, 2005-2014
Source: State of Washington Office of Financial Management
The following figure compares median household income for Washington State and Franklin County for
the period 2005-2014. Statewide median household income parallels the trend seen across the state for
per capita income in the previous figure. That is, income peaked at $57,858 in 2008 and then declined
during the recession to a low of $54,888 in 2010 for a loss of 5.1 percent. Statewide per capita income
dropped from $47,981 in 2008 to $45,523 in 2010, also a loss of 5.1 percent. Median household income
for Franklin County followed a rather different trend than that observed statewide. Income rose slightly
between 2005 and 2006 before spiking in 2007 at $49,337 after which it fell to a low in 2009 of $43,754
for a decline of 11.3 percent. However, the very next year the median increased to $53,355 surpassing
the pre-recession high by $4,018 or 8.1 percent. Thereafter, median income steadily increased to the
point where it essentially matches the statewide median income.
$35,000
$37,000
$39,000
$41,000
$43,000
$45,000
$47,000
$49,000
$51,000
$53,000
$55,000
United States
Washington
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Pasco Fire Department (WA)
Emergency Services Master Plan 2016
Final Report 37
Figure 10: Median Annual Household Income, Washington State and Franklin County, 2005 to 2014
Source: State of Washington Office of Financial Management
One fairly consistent indicator of economic conditions is the volume of residential home sales and
median sales price of those homes. The following figure shows the long-term trend of median sales
price for homes sold in Washington from 2000 through 2014. The run-up of prices prior to the 2008-
2011 recession is a fairly common trend seen in most areas of the country. Prices peaked in 2007 at
$309,600 and then dropped to recession lows in 2011 of $224,180, a loss of $85,420 or 27.6 percent of
their peak value.
Since 2011, values have been recovering at a rate approximating that seen from 2000-01 through 2003,
which seems to be a reasonable “background” rate of rise in value. By 2014, median home prices have
recovered to $268,400 gaining back a bit over half of the value lost from the pre-recession peak. If the
“bubble” is removed from this trend, values have risen from $176,300 in 2000 to $268,400 in 2014 an
increase of $92,100 or 52.2 percent over 14 years, an average of 3.7 percent per year.
$30,000
$35,000
$40,000
$45,000
$50,000
$55,000
$60,000
$65,000
$70,000
Franklin County
Washington
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Pasco Fire Department (WA)
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38 Final Report
Figure 11: Median Home Sales Price in Washington State, 2000 to 2014
Source: State of Washington Office of Financial Management
$0
$50,000
$100,000
$150,000
$200,000
$250,000
$300,000
$350,000
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Pasco Fire Department (WA)
Emergency Services Master Plan 2016
Final Report 39
Figure 12: Median Home Sales Price and Sales Volume (Seasonally Adjusted First Quarter Sales) in Washington
State and Franklin County, 2008 to 2016
Source: U.S. Census Bureau, Washington Center for Real Estate Research
The previous figure focuses in on the period from 2008, close to the pre-recession peak, through 2016.
The data in this figure represents seasonally adjusted sales volume for the first quarter of each year
shown.
It is interesting to note the stark difference between what happened statewide and locally in Franklin
County. While median values in the state fell significantly during the recession to their lowest point in
2012, a trend similar to that seen across the nation during the recession, values in Franklin County
merely stayed relatively flat through the recession. Sales volume statewide has not really shown any
particular trend while volume in Franklin County was relatively flat from 2008 through 2012. From 2012,
first quarterly sales volume began a healthy trend almost doubling from 650 in 2012 to 1290 in 2016, an
increase of 98.5 percent in four years or almost 25 percent annually.
0
20,000
40,000
60,000
80,000
100,000
120,000
$100,000
$150,000
$200,000
$250,000
$300,000
$350,000
$400,000
2008 2009 2010 2011 2012 2013 2014 2015 2016
Washington Sales Volume
Washington Median Sale Price
0
200
400
600
800
1,000
1,200
1,400
$0
$50,000
$100,000
$150,000
$200,000
$250,000 Franklin County Sales Volume
Franklin County Median Sale Price
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40 Final Report
Figure 13: Single Family Residential Permits and Total Value and Commercial/Industrial Permits Issued by Pasco
Building Permits & Inspection Services, 2005-2014
Source: City of Pasco Building Department
The previous figure shows the number of single-family residential permits issued by the Pasco Building
Permits & Inspection Services along with total value of the projects over the period 2005-2014 as well as
the number of commercial and industrial permits issued for the same period. Unlike other parts of the
country where residential construction activity rose through 2008 and then declined during the
recession, the trend in Pasco was that of a sharp decline from 1,027 residential permits issued in 2005 to
a low of 404 permits issued in 2008 for a drop of 60.7 percent in three years. Residential construction
investment dropped by almost $88 million or 53 percent during the same period. However, residential
activity picked up again by 2009 reaching a post-2008 peak of 544 permits issued in 2010 when most of
the country was in the middle of the recession. After 2010, residential construction activity again fell to
its lowest point of the period at 220 permits issued in 2013 with only three more issued in 2014.
Commercial and Industrial permits have generally fluctuated between a low of 274 permits in 2008 and
a high of 408 issued in 2013. Other than a slight rise in 2009, activity in this sector generally fell from a
high in 2006 to a low in 2008 and 2010 after which activity increased to its highest level in 2013, falling
off slightly in 2014.
0
200
400
600
800
1,000
1,200
$0
$20,000
$40,000
$60,000
$80,000
$100,000
$120,000
$140,000
$160,000
$180,000
Total Permit Value (Thousands) SFR Value SFR Permits Commercial/Industrial Permits
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Figure 14: State of Washington, Franklin County and City of Pasco Historical Population, 2005-2015
Source: U.S. Census Bureau, State of Washington Office of Financial Management
The previous figure graphically illustrates population trends for Washington State (blue line on the left
axis), Franklin County, and the city of Pasco (red and green lines, respectively, on the right axis) from
2005 through 2015. Pasco has comprised between 73 and 78 percent of the total Franklin County
population over the ten-year period, gaining slightly by 2015. The city has grown from 45,846 in 2005 to
68,240 in 2015, an increase of 22,394 residents or 48.8 percent during this period. The growth has been
relatively steady at just under 5 percent per year and is the major driver of Franklin County’s population
increase, accounting for 91.1 percent of the county’s growth. During the same period, the state’s
population increased by 762,594 or 12.1 percent which equates to just over 1 percent annually.
The following figure shows high, medium, and low population projections for the total Franklin County
population through 2030. If the major growth continues to occur within the city limits of Pasco as seen
historically, this may significantly increase demand for emergency services.
Further, population demographics may play an increasing role in the demand for emergency services.
While projections were not available specifically for the City of Pasco, data for the state shows that the
fastest growing demographic by far is the over age 65 population class. This trend may or may not
impact Pasco into the future as the median age in the Benton and Franklin County region between 2005
and 2015 has only averaged approximately 33 years.
40,000
50,000
60,000
70,000
80,000
90,000
100,000
110,000
120,000
130,000
140,000
3,000,000
3,500,000
4,000,000
4,500,000
5,000,000
5,500,000
6,000,000
6,500,000
7,000,000
7,500,000
8,000,000
Washington Franklin County Pasco
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42 Final Report
Figure 15: High, Medium, and Low Population Projections for Franklin County through 2030
Source: U.S. Census Bureau, State of Washington Office of Financial Management
Figure 16: Washington State Selected Historical and Projected Population by Age Group, 2005-2030
Source: U.S. Census Bureau
Inflation is another measure of economic activity. Section 2 of the agreement between the City of Pasco
and the Port of Pasco (airport) for fire service refers to increases in the annual payment for service and
how this is calculated. Generally, annual payments are based upon actual personnel costs established
through collective bargaining. However, in the event that the city and union do not reach agreement,
“…the annual service payment shall be increased by the Consumer Price Index issued by the U.S.
Department of Labor for the West Coast Class B/C Cities.” The following figure shows the trend from
2000 through 2015 of the West Coast Class B/C Cities Urban Consumer Price Index for All Urban
0
20,000
40,000
60,000
80,000
100,000
120,000
140,000
160,000
180,000
200,000
High Medium Low
0
200,000
400,000
600,000
800,000
1,000,000
1,200,000
1,400,000
1,600,000
1,800,000
2,000,000 Ages 5-17
Ages 17-22
Age 65+
Age 85+
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Final Report 43
Consumers (CPI-U). The index averaged 3 percent in 2000-2001 after which it dropped to 1.5 percent
and then climbed steadily to a pre-recession high of 3.5 percent in 2008. During the nine years
preceding the recession, the average annual inflation factor was approximately for West Coast B/C cities
was 2.73 percent, slightly lower than the national average of 2.89 percent. It actually dropped to -0.6
percent in 2009, immediately after the pre-recession peak of the economy in 2008 and jumped to 3.0
percent by 2011, generally regarded as the low point in the recession economy. As the economy began
to show signs of recovery, the annual inflation index dropped to 1.7 percent in 2012 and then appeared
to stabilize around 1.2 percent over the next two years before again falling in 2015 to 0.4 percent. The
average post-recession high has been 1.3 percent.
Figure 17: Inflation Trends: Urban CPI-U West Coast Class B/C Cities, 2000-2015
Source: U.S. Bureau of Labor Statistics
Taxable retail sales and shared plus local option sales tax revenues respond very quickly to changing
economic conditions and are a good indicator of the health of an area’s economy. The following figure
provides a comparison of Franklin County and city of Pasco taxable retail sales (red and blue lines;
respectively) for the period 2005 through 2014. Taxable sales in both jurisdictions rose from 2005 to
their respective pre-recession peaks in 2007-08 and 2008 for Franklin County and Pasco, respectively,
before falling to a recession low in 2009. Pasco fell off by 8.5 percent while Franklin County dropped
13.2 percent. Both Franklin County and Pasco have seen an increasing trend in sales from their 2009
lows and had surpassed their pre-recession peak between 2012 and 2013. Franklin County taxable retail
sales have increased 30.4 percent between 2009 and 2014, approximately 6.1 percent each year. Pasco
has seen its sales increase by 26.7 percent, or 5.3 percent each year, over the same period. Both
economies appear to be improving at a significant rate.
2.9% 3.1%
1.5%
2.0%
2.7% 2.9% 2.9% 3.1%
3.5%
-0.6%
1.0%
3.0%
1.7%
1.1% 1.3%
0.4%
-1.00%
-0.50%
0.00%
0.50%
1.00%
1.50%
2.00%
2.50%
3.00%
3.50%
4.00%Annual Change in CPI-U Pre-Recession Nine-Year
Average CPI-U 2.73%
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44 Final Report
Figure 18: Franklin County and City of Pasco Taxable Retail Sales Trends, 2005-2014
Source: State of Washington Department of Revenue
The improvement in taxable retail sales seen in the previous figure translates into increased local option
and shared sales tax revenue for the city. This is illustrated in the following figure, which divides the
revenue into four categories: basic, optional, criminal justice and public safety/health. Aggregate sales
tax revenue is shown for each year. Specifically, sales tax revenue climbed from $7.82 million in 2005 to
a peak of $8.98 million in 2008 before falling to a recession low of $7.92 million in 2009. Total sales tax
revenue had recovered from the recession low point and had already surpassed its pre-recession peak
between 2011 and 2012. Revenue has continued to climb at a steady rate to $12.61 million in 2015 for
total increase since 2009 of 59.2 percent or approximately 9.9 percent annually.
$400,000
$500,000
$600,000
$700,000
$800,000
$900,000
$1,000,000
$1,100,000
$1,200,000
$1,300,000
$1,400,000
Taxable Retail Sales (Thousands) Pasco Franklin County
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Final Report 45
Figure 19: Pasco Local Sales and Use Tax Distribution by Major Function, 2005-2015
Source: State of Washington Department of Revenue
The following figure shows property values for the city of Pasco from 2005 through 2014. Residential
values are shown as blue bars, commercial as red, and other property as green. Combined property
value (in thousands of dollars) is shown numerically above each year. After dropping slightly in 2006 to
$1.83 billion, total property value continued a slow climb to its 2014 high of $3.48 billion, a total
increase of 90.1 percent over the period or approximately 11.3 percent annually. Residential values
declined to a low point in 2009, but overall values were sustained by an increase that year in commercial
and other property values.
$7,819 $8,063 $8,653 $8,981
$7,919 $8,299 $8,865 $9,454
$10,563
$11,508
$12,606
$0
$2,000
$4,000
$6,000
$8,000
$10,000
$12,000
$14,000
Sales & Use Tax Revenue (Thousands) Public Safety/Health Criminal Justice Optional Basic
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46 Final Report
Figure 20: City of Pasco Residential, Commercial, and Other Property Values, 2005-2014
Source: Franklin County Tax Assessor
The following figure illustrates the relationship between combined property values for the period 2005
through 2014 and the city debt service and operating millage rates, which ultimately determine city
property tax revenue each year. City council sets the millage rates each year, which are then applied to
taxable property value as determined by the county tax assessor. As overall property values have risen
from 2006 to 2014, the city council has been able to reduce the millage or tax rates each year. Typically,
as taxable value goes up, the same tax rate will generally provide the taxing entity with more revenue.
In order to maintain the same annual revenue stream then, if the taxable value goes up, the tax rate is
reduced and vice versa.
$1,972,610
$1,825,363
$2,483,167
$2,861,340
$2,934,792
$2,901,913
$3,008,528
$3,219,889
$3,330,794
$3,480,999
$0
$500,000
$1,000,000
$1,500,000
$2,000,000
$2,500,000
$3,000,000
$3,500,000
$4,000,000
Property Value (Thousands) Other Commercial Residential
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Final Report 47
Figure 21: City of Pasco Debt Service and Operating Millage Rates vs. Total Property Value, 2005-2014
Source: Franklin County Tax Assessor
Between 2006 and 2014, when the taxable value was going up at a fairly steady rate, the tax rate was
similarly reduced leading to lesser revenue than would have otherwise been received by the city.
However, the tax rate was still not reduced sufficiently to maintain the previous year’s revenue amount
so revenue still increased despite a reduction in the tax rate. The following figure shows two of the
city’s major revenue sources, sales and property tax. As discussed above, sales tax revenue (shown in
red) has been increasing at a relatively higher rate than property taxes (shown in blue) due to the
reduction in millage each year.
0
0.5
1
1.5
2
2.5
3
3.5
4
$0
$500,000
$1,000,000
$1,500,000
$2,000,000
$2,500,000
$3,000,000
$3,500,000
$4,000,000
Debt Service Millage Operating Millage Total Property Value
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48 Final Report
Figure 22: City of Pasco Sales and Property Tax Revenue Trends, 2005-2014
Source: City of Pasco 2014 Comprehensive Annual Financial Report (CAFR)
Historical & Current Revenues and Expenses of PFD
An analysis of departmental historical revenues and expenses for the Pasco Fire Department (PFD) was
completed in order to help identify relevant financial trends, strengths and weaknesses, and to lay the
groundwork for the financial forecast presented in the Strategy Recommendations section of the report.
The Department is actually comprised of two separate budgets; the fire rescue side, which is one of
several City General Fund budgets; and the ambulance side, which is operated as a city Utility Fund with
its own revenue, expense, and fund balance.
Pasco Municipal Code (PMC) Section 3.05.020 establishes ambulance service in the city and certain
extraterritorial areas, as provided by the Pasco Fire Department, as a public utility. Further, PMC
Section 3.05.030 establishes a utility revenue fund known as the ambulance services fund separate and
apart from all other funds of the city. This section requires that, “Any and all revenues received by this
utility [PFD Ambulance Service]…shall be credited to the ambulance services fund, along with
appropriations from the general fund…”
Further, “All expenditures for the regulation, operation, and maintenance…shall be paid out of the
ambulance services fund…” and “Capital costs…shall be paid only from a separate established account
within the ambulance services fund and shall not be paid from the [Ambulance Utility] service fee.” The
city uses an annual interfund transfer to the City General Fund in the ambulance line item operating
budget to fund capital apparatus replacement as needed. This is an annual recurring expenditure.
PMC Section 3.05.020 also states that, “Money in the ambulance services fund shall not be transferred
to the general fund, nor to any other fund of the City, except as payment for services rendered by the
utility.” The city uses a cost allocation methodology to determine such services provided to each
0
2,000
4,000
6,000
8,000
10,000
12,000
14,000
Revenue (Thousands) Property Tax Sales and Use Tax
Page 70 of 254
Pasco Fire Department (WA)
Emergency Services Master Plan 2016
Final Report 49
operating department, including the ambulance utility. The fire and ambulance budgets contain
interfund transfers to the extent required by the allocation methodology to move funds into the
appropriate General Fund departments that provide services or materials/consumables to the
Department. For example, fuel is allocated based upon usage, facilities costs are charged,
administrative costs are charged, and each budget allocates a certain amount of funding for capital
equipment replacement each year, as mentioned above.
For clarity, the following analysis includes the interfund transfer for apparatus replacement, currently a
line item in the fire and ambulance operating budgets, into the capital portion of the budget rather than
the operating portion. As noted above, this replacement funding is considered a recurring expense
item.
In order to provide staff and elected officials with a comprehensive perspective of the fire department
and yet to account for ambulance revenue and expense as required by city code, the following section
includes separate analyses of the General Fund fire budget and the Utility Fund ambulance budget, as
well as the overall department budget where applicable.
The historical analysis helps illustrate how the PFD funds its services – where the money comes from
and where it goes. Historical budget data for the Department was provided by staff and was
supplemented with a review of past city audits and historical budget records. The historical analysis
should provide administration and elected officials with a solid basis upon which to evaluate
recommendations and develop sustainable future policy. The data provided by staff was comprehensive
and presented in excellent condition.
Revenue
The following figure identifies the major recurring revenue sources for the Department as well as annual
interfund transfers from the General Fund into the ambulance fund and the ambulance fund’s beginning
fund balance. Since the fire side of the Department is just one of several General Fund departments,
only those revenues specifically contractual and/or fire service fee-related in nature are shown as
recurring fire revenue sources. The difference between these fire department-specific revenues and the
cost of operating the fire portion of the Department is funded with other, unrestricted General Fund
revenues such as property taxes and sales taxes.
On the other hand, as discussed above, the ambulance portion of the Department is operated as a
utility. Thus, it must show all of its recurring revenues as well as fund balance and transfers from the
General Fund that make up the difference between recurring revenue and recurring expense and
reserve targets. The following figure shows all available financial resources for the ambulance fund and
fire-specific recurring revenue sources (“Total Fire Resources”) for the fire budget in the General Fund.
Page 71 of 254
Pasco Fire Department (WA)
Emergency Services Master Plan 2016
50 Final Report
Figure 23: Pasco Fire Department Financial Resources (Fire and Ambulance), FY 2011 – FY 2016
Source: Departmental Audited and Adopted Budget Documents
The following figure graphically shows actual recurring revenues specific to fire and ambulance service
from FY 2011 through FY 2015 and the amended revenues for FY 2016. Fire revenues have grown from
$438,856 in FY 2011 to $729,000 in FY 2016, an increase of 66.1 percent or an average annual increase
of 8.27 percent. Ambulance revenues have grown at a relatively steady rate from $2,030,267 in FY 2011
to $3,361,368 in FY 2014, an increase of 65.6 percent or an average annual increase of 14.5 percent
($444,000) per year.
Figure 24: Fire and Ambulance Recurring Revenues, FY 2011 - FY 2016
Source: Departmental Audited and Adopted Budget Documents
The following figure shows the fire-specific recurring revenue sources in more detail.
• The major source, and driver of the changes seen in the previous figure, is the revenue derived
from the airport fire protection agreement. Through an interlocal cooperation agreement, PFD
provides aircraft rescue and firefighting (ARFF) services as well as structural fire protection and
Financial Resouces 2011 2012 2013 2014 2015 2016
By Type Actual Actual Actual Actual Actual Amended
Airport Fire Protection Agreement $396,281 $487,609 $417,936 $513,724 $666,723 $700,000
Charge for Services/Misc Sources $42,575 $50,949 $31,698 $36,033 $67,894 $29,000
Total Fire Resources1 $438,856 $538,558 $449,634 $549,756 $734,616 $729,000
Ambulance Utility Fee $876,842 $1,262,574 $1,628,558 $1,999,850 $2,095,864 $3,466,019
Ambulance Billing $1,148,437 $1,241,466 $1,204,939 $1,331,715 $1,332,990 $1,500,000
Contractual Services/Misc Sources $4,988 $3,246 $6,439 $29,804 $29,085 $27,650
Ambulance Recurring Revenue $2,030,267 $2,507,287 $2,839,936 $3,361,368 $3,457,939 $4,993,669
Interfund Transfer $420,000 $890,000 $1,157,000 $420,000 $420,000 $420,000
Beginning Fund Balance $318,894 $82,492 $255,701 $563,575 $927,533 $857,991
Total Ambulance Resources $2,769,161 $3,479,778 $4,252,637 $4,344,943 $4,805,472 $6,271,660
1Excludes unrestricted General Fund sources such as property taxes, sales taxes, etc.
$438,856 $538,558 $449,634 $549,756
$734,616 $729,000
$2,030,267
$2,507,287
$2,839,936
$3,361,368
$3,457,939
$4,993,669
$0
$1,000,000
$2,000,000
$3,000,000
$4,000,000
$5,000,000
$6,000,000
2011 2012 2013 2014 2015 2016
Total Recurring Fire Revenue
Total Recurring Ambulance Revenue
Page 72 of 254
Pasco Fire Department (WA)
Emergency Services Master Plan 2016
Final Report 51
other associated services to the Tri-Cities Airport as operated by the Port of Pasco, a separate
Washington Municipal Corporation from the city of Pasco.
Figure 25: Fire Recurring Revenues, FY 2011 - FY 2016
Source: Departmental Audited and Adopted Budget Documents
• The interlocal agreement, dated April 20, 2015, provides that the Port will pay $699,996 in
monthly installments to the City for ARFF services in FY 2016. This amount essentially provides
for the cost of PFD personnel assigned to the airport fire station and increases each year based
upon actual employee costs. In the event of protracted contract negotiations, the annual fee
increases by the Consumer Price Index for West Coast Class B/C cities.
• Maintenance and utilities costs for operation of the airport station are split between the Port
and City on a 40/60 basis, respectively. The Port is responsible for acquiring ARFF-related
equipment and supplies while the City is responsible for structural equipment and supplies.
• The contract payment to the City has grown from $396,281 in FY 2011 to $699,996 as amended
in FY 2016, an increase of 76.6 percent over the period or an average of 9.68 percent per year.
• Charges for services and other miscellaneous fire revenues have varied considerably from a low
of $29,000 in the amended FY 2016 budget to a high of $67,894 in FY 2015 with an average of
$43,000 over the period FY 2011 through FY 2016.
Figure 26 shows ambulance fund recurring revenue in more detail. The two primary sources are
ambulance billing and the ambulance utility fee.
$438,856
$538,558
$449,634
$549,756
$734,616 $729,000
$0
$100,000
$200,000
$300,000
$400,000
$500,000
$600,000
$700,000
$800,000
2011 2012 2013 2014 2015 2016
Airport Fire Protection Agreement
Charge for Services/Misc Sources
Total Recurring Fire Revenue
Page 73 of 254
Pasco Fire Department (WA)
Emergency Services Master Plan 2016
52 Final Report
Figure 26: Ambulance Recurring Revenues, FY 2011 - FY 2016
Source: Departmental Audited and Adopted Budget Documents
• The Revised Code of Washington (RCW) in Section 35.21.766 gives cities the authority to
establish an ambulance service as a public utility and to set and collect rates and charges for
services; PMC Section 3.05.020 establishes the ambulance service as a city of Pasco utility and
provides authority to charge rates for this service as approved by council.
• PMC Section 3.05.040 establishes the following rate categories for emergency medical services:
resident, non-resident, non-transport emergency medical services and mileage. PMC Section
3.07.010(A) sets the rates for resident and non-resident ambulance transport, including mileage
charges and non-transport emergency medical services.
• Ambulance billing revenue has risen from $1,148,437 in FY 2011 to a projected $1,500,000 in FY
2016 an increase of 30.6 percent or an average of 5.66 percent ($70,000) per year.
• PMC Section 3.05.025 states that, “A monthly service utility fee…shall be established from time
to time by ordinance of the City Council in conformity with RCW 35.21.766.”
• RCW 35.21.766(3) requires a cost of service rate study. The FCS Group performed a cost of
service and rate study for the City, which was completed November 18, 2015.
• PMC 3.05.025 designates the utility fee formula, the classifications of fee payors, and
distinguishes between rates paid for emergency medical services by resident fee payors and
non-residents who are not subject to the monthly fee.
• PMC 3.07.010(B) sets the monthly ambulance utility fees by payor classification. These rates
were last set by City of Pasco Ordinance 4253 in 2015 to take effect in January 2016.
• Utility Fee revenue increased from $876,842 in FY 2011 to $2,095,864 in FY 2015 for an increase
of 139 percent or an average of 25.1 percent per year. This was due in part to the growth in the
$1,148,437 $1,241,466 $1,204,939 $1,331,715 $1,332,990 $1,500,000
$876,842
$1,262,574 $1,628,558
$1,999,850 $2,095,864
$3,466,019
$2,030,267
$2,507,287
$2,839,936
$3,361,368 $3,457,939
$4,993,669
$0
$1,000,000
$2,000,000
$3,000,000
$4,000,000
$5,000,000
$6,000,000
2011 2012 2013 2014 2015 2016
Ambulance Utility Fee
Contractual Services/Misc Sources
Ambulance Billing
Total Recurring Ambulance Revenue
Page 74 of 254
Pasco Fire Department (WA)
Emergency Services Master Plan 2016
Final Report 53
city through new construction and annexation as well as actual increases in the rates. Revenue
remained flat in FY 2015 pending the results of the FCS Group rate study.
• Rates were increased significantly in FY 2016 and revenue is expected to increase from the
$3,457,939 that was received in FY 2015 to $4,993,669 in FY 2016 or 44.4 percent year-to-year
as council works to implement the recommendations of the FCS Group rate study and more fully
fund ambulance service from user fees and billing.
• As shown in the preceding figure, other recurring revenue sources comprise a very minor
component of the total recurring revenue stream. This source averaged just $4,981 from FY
2011 through FY 2013, after which it jumped in FY 2014, and has averaged almost $29,000 since.
This increase is attributed to county fire district and contract ambulance service revenue
beginning in FY 2014 of between $25,400 and $27,100 per year.
Other financial resources available to the ambulance utility include the annual interfund transfer from
the City General Fund (GF) and the beginning fund balance. Figure 27 illustrates the relationship
between total recurring ambulance revenue, the GF interfund transfer and beginning fund balance.
Between FY 2011 and FY 2013, the GF transfer increased from $420,000 to $1,157,000 an increase of
175 percent or an average of 71 percent per year. Even with this increase and rising recurring revenue,
the beginning fund balance was declining, going from $318,894 in FY 2011 to just $82,492 in FY 2012. It
began to increase the following year to $255,701 in FY 2013 and continued to rise through FY 2015 to
$927,533. Council reduced the GF interfund transfer to the ambulance utility in FY 2014 to $420,000
where it has remained through FY 2016. With increases in the monthly utility fee and billing revenue,
the pressure to subsidize the utility with GF revenues has significantly declined.
Figure 27: Ambulance Recurring Revenues, GF Subsidy, and Beginning Fund Balance, FY 2011 - FY 2016
Source: Departmental Audited and Adopted Budget Documents
$420,000
$890,000 $1,157,000
$420,000 $420,000 $420,000 $318,894 $82,492 $255,701
$563,575 $927,533 $857,991
$2,030,267
$2,507,287
$2,839,936
$3,361,368 $3,457,939
$4,993,669
$0
$1,000,000
$2,000,000
$3,000,000
$4,000,000
$5,000,000
$6,000,000
2011 2012 2013 2014 2015 2016
I/F Transfer (Subsidy)
Beginning Fund Balance
Total Recurring Ambulance Revenue
Page 75 of 254
Pasco Fire Department (WA)
Emergency Services Master Plan 2016
54 Final Report
Expenditures
Figure 28 shows in tabular format actual PFD expenses for the period FY 2011 through FY 2015 and
amended FY 2016 according to PFD budget records. As with revenue, expenses are shown separately
for the General Fund fire budget and the Utility Fund ambulance budget.
Figure 28: Pasco Fire Department Expenditures (Fire and Ambulance), FY 2011 – FY 2016 – Tabular Format
Source: Departmental Audited and Adopted Budget Documents
The following figure shows total expenses for each budget (fire in red bars, ambulance in blue bars) and
then the total expenditures for the Department in the green dashed line for the period FY 2011 through
FY 2016.
• The Department’s total recurring expenditures increased from $6,967,542 in FY 2011 to
$11,172,298 in FY 2016, an increase of 60.3 percent or average of 10.4 percent per year.
• The fire budget increased from $4,280,872 in FY 2011 to $5,602,747 in FY 2016, an increase of
30.9 percent or average of 6.6 percent annually.
• The ambulance budget increased from $2,686,670 in FY 2011 to $5,569,551 in FY 2016, an
increase of 107 percent or average increase of 16.7 percent annually.
Expenditure 2011 2012 2013 2014 2015 2016
By Type Actual Actual Actual Actual Actual Amended
Wages $2,977,219 $3,046,092 $4,134,937 $3,580,536 $4,320,485 $3,432,779
Benefits $591,682 $627,221 $876,047 $947,315 $1,085,707 $972,163
O&M Supplies $214,717 $131,167 $106,394 $121,191 $202,009 $234,646
Other Services/Charges $275,106 $318,780 $292,183 $377,685 $476,544 $603,499
Capital - I/F ER Replacement $222,148 $244,827 $250,760 $245,570 $243,345 $281,660
Capital - Other $0 $50,568 $0 $55,129 $7,521 $78,000
Total Fire Expenses $4,280,872 $4,418,654 $5,660,320 $5,327,428 $6,335,611 $5,602,747
Wages $1,629,611 $1,765,019 $2,182,955 $1,810,210 $2,084,988 $2,993,627
Benefits $333,705 $358,845 $445,948 $478,304 $507,119 $833,654
O&M Supplies $75,028 $88,407 $125,091 $131,728 $174,575 $249,215
Other Services/Charges $442,020 $801,181 $714,243 $787,968 $967,845 $1,186,340
Capital - I/F ER Replacement $198,770 $210,625 $220,825 $209,200 $212,955 $257,215
Capital - Other $7,535 $0 $0 $0 $0 $49,500
Total Ambulance Expenses $2,686,670 $3,224,077 $3,689,061 $3,417,410 $3,947,481 $5,569,551
Page 76 of 254
Pasco Fire Department (WA)
Emergency Services Master Plan 2016
Final Report 55
Figure 29: Expenditures (Fire and Ambulance), FY 2011 - FY 2016 – Graphic Format
Source: Departmental Audited and Adopted Budget Documents
Figure 30 shows the relative proportion of departmental expenses allocated to each budget from FY
2011 through FY 2016.
• From FY 2011 through FY 2016, fire expenditures have generally averaged 60 percent of the
total Department expenditures while ambulance expenditures have averaged 40 percent.
• As of FY 2016, expenses have been balanced almost equally between the two budgets.
Figure 30: Fire and Ambulance Expenses as a Percentage of Total Department Expenses, FY 2011 - FY 2016
Source: Departmental Audited and Adopted Budget Documents
$2,686,670 $3,224,077 $3,689,061 $3,417,410 $3,947,481
$5,569,551
$4,280,872
$4,418,654
$5,660,320 $5,327,428
$6,335,611
$5,602,747
$6,967,542
$7,642,732
$9,349,382
$8,744,838
$10,283,092 $11,172,298
$0
$2,000,000
$4,000,000
$6,000,000
$8,000,000
$10,000,000
$12,000,000
2011 2012 2013 2014 2015 2016
Sub-total Fire
Sub-total Ambulance
Total Department
38.6% 42.2% 39.5% 39.1% 38.4%
49.9%
61.4% 57.8% 60.5% 60.9% 61.6% 50.1%
$6,967,542
$7,642,732
$9,349,382
$8,744,838
$10,283,092
$11,172,298
0.0%
10.0%
20.0%
30.0%
40.0%
50.0%
60.0%
70.0%
80.0%
90.0%
100.0%
$2,000,000
$3,000,000
$4,000,000
$5,000,000
$6,000,000
$7,000,000
$8,000,000
$9,000,000
$10,000,000
$11,000,000
$12,000,000
2011 2012 2013 2014 2015 2016
Sub-total Ambulance
Sub-total Fire
Total Department
Page 77 of 254
Pasco Fire Department (WA)
Emergency Services Master Plan 2016
56 Final Report
The allocation of expenses between the General Fund fire budget and the ambulance utility budget are
beginning to more closely approximate the allocation based upon call volume and time spent on calls as
discussed by the FCS Group in its November 2015 rate study. In simple terms, since almost 80 percent
of emergency calls responded to by the Department are EMS-related, then more of the expenses than
40 percent should appropriately be allocated to the ambulance budget. The City is moving in this
direction, which will continue to relieve pressure on the General Fund.
Figure 31: Combined Fire and Ambulance Wages and Benefits, FY 2011 - 2016
Source: Departmental Audited and Adopted Budget Documents
• Total fire department wages and benefits as well as total staff count (FTEs) are provided in
Figure 31 above. Wages include regular, specialty and other pay as well as overtime pay. Fiscal
Year 2013 reflects a significant retroactive wage increase, as well as the addition of several
positions, accounting for the spike. The annual increase observed in wages and benefits reflects
the addition and/or reclassification of various positions each year as well any annual increases
that were applied to both represented and non-represented employees in the department.
• Department wages have increased in a non-linear manner from $4,606,830 in FY 2011 to
$6,426,406 in FY 2016, an increase of 39.5 percent or approximately 7.9 percent per year.
• Total wages jumped from $4.8 million in FY 2012 to $6.3 million in FY 2013 reflecting the
retroactive wage increase as well as added positions, but then fell back to just under $5.4 million
in FY 2014 before climbing back up to $6.4 million in FY 2015 where they remained for FY 2016
with a slight increase.
• Departmental benefits on the other hand have increased linearly from FY 2011 to FY 2016. They
were $925,387 in FY 2011 and $1,805,817 in FY 2016 for a total increase of 95.1 percent or
average increase of 15.1 percent per year.
51.2 52.2
60.2 56.2 63.2 66.2
$4,606,830 $4,811,111
$6,317,892
$5,390,746
$6,405,473 $6,426,406
$925,387 $986,066 $1,321,995 $1,425,620 $1,592,826 $1,805,817
10
20
30
40
50
60
70
80
$0
$1,000,000
$2,000,000
$3,000,000
$4,000,000
$5,000,000
$6,000,000
$7,000,000
Total FTEs Wages Benefits
Page 78 of 254
Pasco Fire Department (WA)
Emergency Services Master Plan 2016
Final Report 57
Since so many positions have been added and/or reclassified over the period from 2011 through 2016, it
is beneficial to discuss the impact of these changes on the Personal Services categories in the fire and
ambulance budgets. This will be significant when reviewing expenditure forecast assumptions later in
the study. The goal of the following analysis is to develop a forecast increase percentage for the wages
and benefit line items that can be applied to each budget.
• With the exception of 8 line positions (2 in fire and 6 in ambulance) added in 2013 and the
subsequent loss of 4 line positions in 2014, overall department staffing has increased from 51.2
to 66.2 between 2011 and 2016. Figure 32 shows the allocation of positions between each
budget, by fiscal year, with department total FTE count at the bottom. Figure 33 displays the
allocation of total positions between the fire and ambulance budgets along with total wages.
Figure 32: Fire Department Staff County by Position and Budget, FY 2011 - 2016
2011 2012 2013 2014 2015 2016
FIRE CHIEF 0.5 0.5 0.5 0.5 0.5 0.5
ASSISTANT CHIEF 0 0 0 0 0 0.5
TRAINING SAFETY/BATTALION CHIEF 1 1 1 1 1 0
TRAINING SAFETY/CAPTAIN 0 0 0 0 0 1
BATTALION CHIEF 0 3 3 3 3 1.5
CAPTAIN 3 8 8 8 7 7
LIEUTENANT 9 3 3 3 5 5
FIREFIGHTERS 22 17 19 20 22 19
DEPARTMENT ASSISTANT II 0.5 0.5 0.5 0.5 0.5 0.5
PART TIME FIRE PREVENTION 0.2 0.2 0.2 0.2 0.2 0.2
SUB-TOTAL FIRE BUDGET FTES 36.2 33.2 35.2 36.2 39.2 35.2
FIRE CHIEF 0.5 0.5 0.5 0.5 0.5 0.5
ASSISTANT CHIEF 0 0 0 0 0 0.5
BATTALION CHIEF 0 0 0 0 0 1.5
CAPTAIN EMS OFFICER 1 1 1 1 1 1
CAPTAIN PARAMEDIC 0 1 1 1 2 2
LIEUTENANT /PARAMEDIC 0 0 0 0 1 1
PARAMEDIC 13 16 22 17 19 24
DEPARTMENT ASSISTANT II 0.5 0.5 0.5 0.5 0.5 0.5
SUB-TOTAL AMBULANCE BUDGET FTES 15 19 25 20 24 31
TOTAL FIRE DEPARTMENT FTES 51.2 52.2 60.2 56.2 63.2 66.2
AMBULANCE BUDGET
FIRE BUDGET
POSITION
FULL-TIME EMPLOYEES (FTES) BY FISCAL YEAR
Page 79 of 254
Pasco Fire Department (WA)
Emergency Services Master Plan 2016
58 Final Report
Figure 33: Fire and Ambulance Budget FTEs and Wages, FY 2011 - 2016
• In order to estimate the impact of annual salary and benefit increases due to collective
bargaining or other salary drivers, the cost of the added/reclassified positions must first be
removed to arrive at an adjusted amount. An approximation of the cost of the new/reclassified
positions between 2011 and 2016 was made using the above data and salary information
obtained from the department for 2016.
• Figure 34 below shows the change in FTE count by category (Command, Company Officer, Line
and Staff positions) from 2011-2016.
• Line positions are defined as paramedics and firefighters.
• Company officers are first-line operational supervisors and are defined as Lieutenants and
Captains (regardless of whether they are paramedics or not so long as they are on shift riding
out of fire stations).
• Command staff positions are defined as field or administrative officers not assigned to specific
fire stations riding on apparatus such as engines, ladders or ambulances. Rather, these officers
may respond to emergencies individually and serve in various command functions.
• Staff or other positions are defined as non-uniformed office or other support.
0
5
10
15
20
25
30
35
40
$0
$500,000
$1,000,000
$1,500,000
$2,000,000
$2,500,000
$3,000,000
$3,500,000
$4,000,000
2011 2012 2013 2014 2015 2016
TOTAL Fire FTE TOTAL Ambulance FTE
Wages (Fire)Wages (Ambulance)
Page 80 of 254
Pasco Fire Department (WA)
Emergency Services Master Plan 2016
Final Report 59
Figure 34: Staff Changes by Category, FY 2011 - 2016
• Line positions increased between 2011 and 2016 by 8 with the addition of 5 new paramedics
(assumed at the base paramedic hourly rate) and the reclassification of 3 firefighter positions to
paramedic (assumed to be difference between the 24-36 month firefighter hourly and base
paramedic hourly rates). Total added wages for 5 new and 3 reclassified positions would be
approximately $363,552. The benefit total using the calculated ratio (30.7% of wages) would be
approximately $111,610.
• These line positions would be subject to overtime and using the average OT to wages ratio of
11.47% then total added wages for these positions would be approximately $405,251. The
benefits will increase by a like amount and would be approximately $124,412.
• Company officer positions have increased between 2011 and 2016 by 3 overall, with the
addition of 2 captain/paramedics and 1 lieutenant /paramedic. However, 4 lieutenants have
also been reclassified to captain which is an incremental increase of approximately 4.6%. Total
added wages would be approximately $305,424. The benefit total would be approximately
$93,765.
• These positions are also subject to overtime and using the average OT to wages ratio of 11.47%
then total wages would be approximately $350,321. The benefits will increase by a like amount
and would be approximately $107,548.
• Command staff positions have increased from 3 to 7 between 2011 and 2016. This increase
occurred through the addition of 2 battalion chiefs, 1 assistant chief and 1 staff captain. The
total added wages would be approximately $480,000. The benefit total would be approximately
$147,360.
1.2 1.2 1.2 1.2 1.2 1.2
35 33
41
37
41 43
12 12 12 12
15 15
3 6 6 6 6 7
0
5
10
15
20
25
30
35
40
45
50
2011 2012 2013 2014 2015 2016FTE Count Other
Paramedics/Firefighters
Company Officers
Command Staff
Page 81 of 254
Pasco Fire Department (WA)
Emergency Services Master Plan 2016
60 Final Report
• Since the 2 battalion chief officers are field positions, it is assumed that overtime also accrues to
them but not to the assistant chief or the staff captain. Using the average OT to wages ratio of
11.47% then the wages for these two positions would be approximately $275,280. The benefits
will increase by a like amount and would be approximately $83,685.
• Total wages for all 4 additional command positions would be approximately $515,280 while
total benefits would be approximately $156,645.
• In order to gain a more accurate picture of Personal Services increases between 2011 and 2016,
the adopted 2016 budget for forecast purposes will be adjusted by subtracting the calculated
incremental costs of adding the above 15 new positions and reclassifications. Total Wages
(including OT) of the new/reclassified command, company officer and line positions would be
approximately $1,225,955 while total benefits would be approximately $388,605.
• Therefore, adjusted 2016 wages, for comparison with 2011 wages should be approximately
$5,200,451 for a total increase of $593,621 or 12.9 percent over five years. This is an average
annual increase of 2.58 percent. Adjusted 2016 benefits for comparison purposes with 2011
should be approximately $1,417,212 for a total increase of $491,825 or 53.2 percent over five
years. This is an average of 8.9 percent annually.
Page 82 of 254
Pasco Fire Department (WA)
Emergency Services Master Plan 2016
Final Report 61
Figure 35: Fire and Ambulance Regular Wages and Overtime, FY 2011 – FY 2016
Source: Departmental Audited and Adopted Budget Document
Figure 35 shows regular wages and overtime for the GF fire budget and the ambulance utility budget for
FY 2011-2016. Total wages are shown by the green dashed line with the total amount shown above.
This reflects retroactive pay in FY 2013, increases in staffing within the fire budget as mentioned above,
and a shift from general fund support to ambulance utility support in FY 2016.
Ambulance wages have increased from $1,477,995 in FY 2011 to $1,832,558 in FY 2015 for an increase
of 24 percent or average increase of 7.0 percent annually. The amount jumped to $2,919,079 in FY
2016. This reflects retroactive pay, increases in staffing and a shift from general fund support to
ambulance utility support.
Fire wages have varied throughout the period averaging $2.65 million in FY 2011-12 then climbing to
$3.67 million in FY 2013, falling back to $3.2 million in FY 2014, then rising back up to $3.74 million in FY
2015 before falling back to $3.2 million in FY 2016.
The change in ratio between the fire and ambulance budgets is driven by the change in wages and
coincides with a change in allocation of shared personnel costs following the November 2015 FCS Group
rate study as implemented in the FY 2016 budget.
Overtime is generally 15 percent or less of the regular wages expense for both budgets.
$4,606,830 $4,811,111
$6,317,892
$5,390,746
$6,405,473 $6,426,406
$0
$1,000,000
$2,000,000
$3,000,000
$4,000,000
$5,000,000
$6,000,000
$7,000,000
Overtime (Ambulance)
Wages (Ambulance)
Overtime (Fire)
Wages (Fire)
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Figure 36: Fire and Ambulance Operating Expenses, FY 2011 – FY 2016
Source: Departmental Audited and Adopted Budget Documents
• Total operating expenses for the Department are shown in Figure 36 by the dashed green line
with the totals above the triangular symbol.
• Each budget includes a line item (54.4910) for I/F ER Replacement which is a recurring amount
funded each year for capital apparatus replacement. For the purposes of this analysis, this
amount is shown as a recurring capital expense rather than an operating expense to clarify that
this is for capital equipment.
• Department operating expenses have increased from $1,006,872 in FY 2011 to $1,418,573 in FY
2014 for an increase of 40.9 percent or approximately 13.4 percent per year for three years.
• This increase was driven primarily by ambulance operating costs, which increased 77.9 percent
over the period through FY 2014 or approximately 25.3 percent per year. Fire operating costs
remained relatively flat during this period.
• The rate of increase in operating costs increased between FY 2014 and FY 2015, a rate sustained
through FY 2016. The operating costs went from $1,418,573 in FY 2014 to $2,273,700 in FY
2016 for an increase of 60.3 percent or an average increase of 26.6 percent per year.
• Both fire and ambulance operating costs increased at a high rate (average annual increase of
29.8 and 24.9 percent, respectively) from FY 2014 to FY 2016.
$489,823 $449,947 $398,577 $498,877
$678,553 $838,145
$517,049
$889,588 $839,333
$919,696
$1,142,419
$1,435,555
$1,006,872
$1,339,535 $1,237,910
$1,418,573
$1,820,972
$2,273,700
$0
$500,000
$1,000,000
$1,500,000
$2,000,000
$2,500,000
2011 2012 2013 2014 2015 2016
Sub-total Ambulance Operating
Sub-total Fire Operating
Total Department Operating
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Figure 37: Fire and Ambulance Capital Expenses, FY 2011 – FY 2016
Source: Departmental Audited and Adopted Budget Documents
• Figure 37 shows total Department I/F (interfund) ER Replacement costs for the period FY 2011-
2016 as a green dashed line with the total over each green triangle. As stated, although this is a
recurring expense and is budgeted as an operating cost, this expense is for replacement of
capital apparatus in each fund and is shown as a recurring capital expense for the purposes of
this analysis.
• Department costs have averaged $450,000 per year from FY 2011-2015 and jumped in FY 2016
to $540,000.
• Costs have generally been split equally between the fire and ambulance budgets.
• Other non-emergency response capital apparatus costs are shown by fund for fire and
ambulance budgets in Figure , which follows.
• These expenses are sporadic and relatively minor when compared with the ER replacement
expenditures discussed above.
$222,148 $244,827 $250,760 $245,570 $243,345 $281,660
$198,770
$210,625 $220,825 $209,200 $212,955
$257,215
$420,918
$455,452
$471,585
$454,770 $456,300
$538,875
$0
$100,000
$200,000
$300,000
$400,000
$500,000
$600,000
2011 2012 2013 2014 2015 2016
Sub-total Fire I/F ER Replacement
Sub-total Ambulance I/F ER Replacement
Total Department I/F ER Replacement
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Figure 38: Fire and Ambulance Non-Apparatus Capital Expenses, FY 2011 – FY 2016
Source: Departmental Audited and Adopted Budget Documents
Net Income/Deficit
Figure shows graphically the department sub-total of actual fire expenses for FY 2011 through FY 2015
with amended for FY 2016 in red. Revenue shown for the same period represents the contractual
payment from the Port to the City under the interlocal agreement for ARFF services as well as other fire
specific fees. Since the fire budget of the PFD is a budget within the General Fund, the “operating
deficit” reflects that portion of the expenditures budget funded by City general revenues other than the
specific recurring fire revenue sources; for example, tax revenues such as sales and property taxes.
$0
$20,000
$40,000
$60,000
$80,000
$100,000
$120,000
$140,000
2011 2012 2013 2014 2015 2016
Non-apparatus Capital (Ambulance)
Non-apparatus Capital (Fire)
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Figure 39: Fire Recurring Revenue, Expenditure, and Net Surplus/(Deficit) Trends, FY 2011 – FY 2016
Source: Departmental Audited and Adopted Budget Documents
Conversely, Figure illustrates in graphic format the Department sub-total of actual ambulance expenses
for FY 2011 through FY 2015, with amended FY 2016 in red. Revenue shown for the same period
represents primarily ambulance billing and the ambulance utility fee. Since the ambulance budget of
the PFD is a self-contained budget, the “operating deficit” reflects the difference between recurring
ambulance revenue and recurring expense. To the extent that there is an operating deficit, it must be
made up through other funding sources available. These include the General Fund transfer (subsidy)
discussed above and the beginning fund balance each year.
-$3,842,016 -$3,880,096
-$5,210,687 -$4,777,671
-$5,600,995
-$4,873,747
$438,856 $538,558 $449,634 $549,756 $734,616 $729,000
$4,280,872 $4,418,654
$5,660,320 $5,327,428
$6,335,611 $5,602,747
-$8,000,000
-$6,000,000
-$4,000,000
-$2,000,000
$0
$2,000,000
$4,000,000
$6,000,000
$8,000,000
Operating Surplus(Deficit)Total Fire Revenues Total Fire Expenses
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Figure 40: Ambulance Recurring Revenue, Expenditure and Net Surplus/(Deficit) Trends, FY 2011 – FY 2016
Source: Departmental Audited and Adopted Budget Documents
The following figure illustrates the relationship between the annual operating surplus/(deficit), General
Fund transfer into the Ambulance Utility Fund, and the beginning fund balance each year. As in Figure ,
the green bars represent the annual operating surplus or the operating deficit. Even though the above
figure shows recurring revenue increasing each year, expenses are as well and continue to exceed
revenues. Therefore, the ambulance fund runs a deficit each year. This deficit, despite an infusion from
the General Fund, causes fund balance to decrease (as shown by the blue line) which decreases from FY
2011 through FY 2012. As the General Fund subsidy is significantly increased, the decrease in fund
balance is arrested and reversed.
Expenses were significantly reduced in FY 2014 and the annual operating deficit was almost reduced to
zero, allowing the fund balance to continue increasing and allowing the City to reduce the subsidy to the
ambulance fund. The City keeps the subsidy flat at $420,000 from FY 2014 through FY 2016 and, as
operating deficits again increase, the fund balance begins to react by decreasing between FY 2015 and
FY 2016.
-$656,402 -$716,791 -$849,126
-$56,042
-$489,543 -$575,882
$2,030,267 $2,507,287
$2,839,936
$3,361,368 $3,457,939
$4,993,669
$2,686,670
$3,224,077
$3,689,061 $3,417,410
$3,947,481
$5,569,551
-$2,000,000
-$1,000,000
$0
$1,000,000
$2,000,000
$3,000,000
$4,000,000
$5,000,000
$6,000,000
Operating Surplus(Deficit)Recurring Revenue Recurring Expenses
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Figure 41: Ambulance Operating Surplus/(Deficit), Fund Balance, and GF Transfer (In) Trends, FY 2011 – FY 2016
Source: Departmental Audited and Adopted Budget Documents
-$656,402
-$716,791 -$849,126
-$56,042
-$489,543 -$575,882
$420,000
$890,000
$1,157,000
$420,000 $420,000 $420,000 $318,894
$82,492
$255,701
$563,575
$927,533 $857,991
-$1,000,000
-$500,000
$0
$500,000
$1,000,000
$1,500,000
Operating Surplus(Deficit)General Fund Transfer In Beginning Fund Balance
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STAFFING
The most valuable asset of any organization is its people. The effective management of human
resources requires a balance between the maximum utilization of the overall workforce and the
experience of a high level of job satisfaction by individual workers. To achieve this goal consistently,
management must combine reliability with a safe working environment, fair treatment, the opportunity
to provide input, and recognition of the individual’s commitment and sacrifice. Job satisfaction depends
upon this combination of factors.
Administrative and Support Staffing
One of the primary responsibilities of a fire department’s administration is to ensure that the fiscal,
infrastructure, and support elements are in place and functioning smoothly and effectively so that the
core mission—responding to and mitigating emergencies—can be accomplished in a safe and efficient
manner.
Like any other part of a municipal fire department, administration and support need the appropriate
resources to function properly. In this section of the staffing analysis, the ratio of administrative and
support positions to total organizational staffing is compared to industry best practices and similar
organizations. Too large an emphasis on administrative staffing can have as detrimental an influence on
the efficient functioning of an organization as too little. It is important to achieve an appropriate
balance between administration and support and the operational sides of a department. Organizational
success may depend upon it.
The level of administration and support staffing represents 10.5 percent of Pasco Fire’s total staff. This
ratio is on the low end of what ESCI sees when studying fire departments in the northwest. Fire districts
often have ratios in the 15 to 18 percent range, but this is because districts must provide all of the
support functions that cities are able to provide through other departments within the city’s
organizational infrastructure. Human resources, information technology, and building and apparatus
maintenance are some of those functions. Pasco has done a good job of integrating the needed fire
department support under other civilian divisions within the city. Still, Pasco Fire Department’s
administrative and support function is very lean.
While Pasco Fire should be complimented for maintaining an efficient administrative profile, the lack of
adequate staffing can create problems in two areas. First, the lack of functional redundancies can result
in the crippling of normal operations when the unexpected arises. There should be adequate staffing
such that if any member of staff were to become unavailable for work for an extended period, someone
else can step in to pick up that load. Second, lacking adequate staffing in administrative or managerial
functions can lead to lost opportunities because it is personnel at these levels who are likely to
recognize potential needs or exposures within the community. Personnel who are over-burdened with
current workload are prone to “tunnel vision” when the organization needs them looking out on the
horizon.
Most of the administrative functions are physically centralized at PFD’s main station. This centralized
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structure serves to facilitate good communications between divisions and elements; however, unlike
most smaller departments with a shared fire station and administrative facilities, PFD’s is not designed
in such a way that administrative offices are housed together and separated (if only slightly) from the
operations side of the facility. The result is at least twofold: there is a lack of space for chief officers who
may need to be engaged in confidential conversations, and the “walk through” nature of the facility
creates too many distractions for those who are working in the space. Casual interactions between
managerial staff and line personnel can be positive, but they can also serve to cause inefficiencies in the
work place.
The issue of better organizing the work environment for administrative staff will be addressed in the
Capital Needs section of this report.
Emergency Response Staffing
An adequate number of properly trained staff of emergency responders is required for putting the
appropriate emergency apparatus and equipment to its best use in mitigating incidents. Insufficient
staffing at an operational scene decreases the effectiveness of the response and increases the risk of
injury to all individuals involved.
The first 15 minutes is the most crucial period in the suppression of a fire. How effectively and
efficiently firefighters perform during this period has a significant impact on the overall outcome of the
event. This general concept is applicable to fire, rescue, and medical situations. Critical tasks must be
performed in a timely manner in order to control a fire or to treat a patient. Pasco Fire Department is
responsible for assuring that responding companies are capable of performing all of the described tasks
in a prompt, efficient, and safe manner. The following figure lists PFD’s emergency response staffing.
Figure 42: Emergency Response Staffing per Shift
Operational
Assignments
Station
81
Station
82
Station
83
Battalion
Chief
Total
Suppression
Minimum Staffing 4 6 4 1 15
Maximum Assigned 5 7 5 1 18
Considerable ongoing local, regional, and national discussions and debates around large incidents of
significant consequence have brought attention to the matter of firefighter staffing. Frequently, this
discussion is set in the context of firefighter safety. While there are published standards regarding
firefighter staffing, they generally speak in terms of the number of firefighters assigned to a particular
apparatus, often characterized as a preferred standard of, ”…a minimum of four personnel per
company.” ESCI notes that the more critical issue is the number of firefighting personnel assembled in a
reasonable amount of time at the scene if an emergency that can perform the required critical tasks to
mitigate the emergency regardless of the type or number of vehicles upon which they arrive.
Complicating the issue of operational staffing for large incidents is the continued responsibility of the
fire service in providing their communities’ first line of emergency medical response. These responses
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often require fewer personnel resources while occurring in much greater numbers than fires. Whether
a fire department provides emergency transport to the hospital or not, medical emergencies have
continued to challenge many fire service organizations’ abilities to keep up with service demands. PFD is
no exception.
PFD’s response protocols necessitate transferring Medic Unit crews to “swing” over to the fire apparatus
when a multi-unit fire response is dispatched (i.e., structure fire), resulting in a four-person company. If
the medic units are in quarters and available, as well as their counterpart fire engine, the crews will
merge on the engine to respond, leaving the medic unit unstaffed and out of service. If the medic unit
or fire engine are separated when the dispatch occurs, they respond to the fire incident separately. In
either case, medical incident response capability is compromised, yet the additional staffing is critical to
the structure fire response. By increasing the staffing on the engine companies, structure fire responses
are less dependent upon the added staffing medic units represent. This maintains an effective EMS
response capability while improving the effective response force for structure fires (discussed in greater
detail in the Service Delivery & Performance section of this report).
Regarding fires and other major emergencies, the number and types of tasks needing simultaneous
action will dictate the minimum number of firefighters required to combat different types of incidents.
In the absence of adequate personnel to perform concurrent action, the incident commander must
prioritize the tasks and complete some in chronological order rather than concurrently.
Many fire departments develop Standards of Cover to define how they will respond to a variety of
emergencies. Standards of Cover (or SOC) take into account the particulars of each organization,
recognizing that how fire departments respond to various situations depends upon their size, their
available resources, and the priorities of that agency’s community. SOCs also communicate to
employees and to citizens how the agency expects its responders to approach emergency situations.
PFD does not have a Standards of Cover. Absent such a document, fire departments may be held to
state and/or national standards that may not take into consideration the practical realities of the given
locale. This is discussed in greater detail in the Future Delivery System Models section of this report.
When looking at the minimum requirements for accomplishing the tasks necessary in responding to a
residential house fire, it should be noted that Pasco Fire Department’s minimum daily staffing does not
provide adequate personnel resources even when all on-duty units are available. This is due in part to
the requirement that two firefighters remain at the airport at all times. This deficit is addressed in
several ways. Off-duty firefighters are permitted to check out pagers from the department if they are
available to return to work in the event of one larger incident or many smaller ones. Also, PFD and its
neighboring fire departments rely upon a system of mutual and automatic aid to assist one another in
gathering adequate resources to mitigate any emergencies that are too large for one department to
manage.
Another means of comparison, also used on a national basis, is that of measuring the number of
firefighters per 1,000 population of the service area. The following figure illustrates the current
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comparison of PFD staffing with both national and regional medians as reported by the National Fire
Protection Association. Note that this analysis does not take into account whether the fire departments
in question provide ambulance transport to their communities.
Figure 43: Staffing Comparison, 2015
Using this comparison, PFD is 16.67 percent below the regional median for career personnel and 56.46
percent below the national median.
Personnel Management
The following review relates to the baseline personnel management components typically found in an
appropriately administered organization.
Pasco Fire Department uses officer level staff to perform tasks that could be more efficiently delivered
through non-uniformed staff. For example, the EMS Officer delivers supplies to each of the stations
although such work could be performed by less expensive staff, freeing officer time for higher value-
added activities.
Operations personnel in the fire service in Washington most commonly work 24-hour shifts. Under
federal labor regulations they can work up to 53 hours per week before their employers are obligated to
pay them at an overtime rate, and those 53-hour weeks can be averaged over a longer period than one
week. Each employer may adopt a period of time for averaging the employees’ work week from a
maximum of 28 days to a minimum of 7 days. In the fire service in the northwest, these time periods,
known as “FLSA (Fair Labor Standards Act) cycles” tend to run from 24 to 28 days. Twenty-four-hour
shifts are broken up by off-duty periods that can be regular or varied. For example, a common schedule
is one 24-hour shift on-duty followed by two 24-hour shifts off duty. Another common variation is one
shift on, one shift off, one shift on, one shift off, one shift on, four shifts off. Both examples provide an
0.84
1.24
0.70
0
0.2
0.4
0.6
0.8
1
1.2
1.4
Regional Median National Median PFD
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average of 48 hours off duty for every 24 hours on duty. Both also result in a work week that averages
56 hours and therefore requires that the employer pay over time for the extra hours.
PFD, like many other fire departments in Washington, schedules additional off-duty shifts to bring the
average work week below 56 hours. Almost all firefighters in Pasco work the one shift on followed by
two shifts off with one additional shift off in each 28-day FLSA cycle, resulting in an average work week
of 50 hours. The 50-hour work week is common throughout Washington State.
In addition, PFD currently employs two firefighters on a floating work schedule (called “D” shift) that is
designed to give the Department the flexibility to place these “extra” firefighters where they are needed
to cover vacancies created by injuries, vacations, or other absences. This new schedule is an example of
the City’s and the Union’s willingness to look at creative ways to address a common emergency services
issue—staffing for vacancies that occur in an unpredictable way.
A growing trend in the fire service has been the introduction of the 48-hour work shift; that is, 48 hours
on duty followed by 96 hours off duty. This schedule has developed in response to the greater distances
that some fire service personnel are living from the communities which they serve. This phenomenon is
a product of the explosion in real estate values in some communities (making it impossible for public
service employees to afford housing in the cities where they work) and the competitiveness of the fire
service industry (leading candidates for employment to compete for jobs farther and farther from the
places where their families already live). Both of these instances result in longer and longer commutes.
They can also result in fewer firefighters living within a reasonable distance from their place of
employment should emergency callback of off-duty workers be an issue.
For busier fire departments, the issue of being able to work safely for this increased amount of on-duty
time is being studied. Anecdotally, the 48-hour shift has proven to be very popular with firefighters but
less so with fire administrators.
PFD currently uses the 24-hour on-duty schedule with an average 50-hour work week. Both are within
regional norms and make effective use of the currently available personnel. Another approach to
staffing that is not currently being used in Pasco is “Peak Activity Staffing.” Peak Activity Units (PAUs)
are staffed during those periods when fire department activity is predictably at its highest, according to
a careful analysis of past response and activity data.
Recommendations:
• Redesign or relocate the administrative offices so that they have adequate space and separation
from the operations side of the facility.
• Develop a plan to assure that all administrative functions have a “back up” provider.
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EMERGENCY MEDICAL SERVICES
An EMS (emergency medical services) system includes personnel, facilities, and equipment for the
effective and coordinated delivery of emergency medical services within a geographical area. An
effective EMS system involves many different agencies, organizations, and the public working together
to provide rapid recognition, notification, response, treatment, and transport to those in need of
immediate medical attention. Generally, most EMS systems include at least system access and dispatch
components, first response, ambulance transport, and definitive hospital care. The addition of a trained
public component has proven to improve patient outcomes.
King County, Washington, is touted as the county where someone who has a cardiac arrest has a greater
chance of survival than anywhere else in the world.13 The survival rate for cardiac arrest in King County
hit an all-time high of 62 percent in 2013. Incorporating the use of High Performance CPR (cardio
pulmonary resuscitation), an ambitious goal for a 75 percent survival rate for witnessed cardiac arrest
was set for Benton and Franklin Counties. In 2014, the survival rate for witnessed cardiac arrest in
Benton and Franklin Counties climbed to 63 percent. By comparison, the cardiac survival rates in New
York City, Chicago, and other urban areas have been recorded in the single digits.14
Kudos:
• To the Benton/Franklin Counties’ EMS system for achieving a substantial increase in the
survival rate from witnessed cardiac arrest.
EMS Service Delivery System and Logistical Support Services
Besides PFD, there are five other fire departments which provide 9-1-1 generated ambulance transport
services, with one private ambulance service providing inter-facility and BLS (Basic Life Support) services.
• Richland Fire Department
• Kennewick Fire Department
• Walla Walla Fire District #5
• Benton County Fire District #4
• Franklin County Fire District #3
• AMR (American Medical Response), BLS
Tri-Cities fire departments currently operate very similar fire and EMS response services but not in a
systematically planned and coordinated manner. While certain efficiencies are realized in an ad hoc
fashion through automatic aid, it is primarily based upon obvious service gaps in the system. There has
13 Public Health News, King County has world's highest survival rate for cardiac arrest, Seattle and King County
Health, May 19, 2014.
14 Ibid.
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been no thorough risk assessment, data analysis, and response planning between the agencies to
achieve the optimum use of combined resources.
Fittingly though, EMS is the single most uniformly operating section of the Tri-Cities fire departments.
Joint protocols, a shared EMS Medical Program Director, and EMS training are all uniform to the fire
departments in Franklin and Benton counties. Mid-Columbia (Benton/Franklin) EMS and Trauma Care
Council provides the focal point for coordinating emergency medical services. The mission and vision of
the Mid-Columbia Council is:
Mission: To advance the emergency medical service and trauma care system. Vision: Be the best
Emergency Medical Service (EMS) and Trauma Care system (TCS) we can be through: providing a
continuum of care from prevention to return to the community with the highest quality of life
possible; collaborative coordination of all stakeholders; producing the highest level of efficiency
and effectiveness; and being a model EMS and TCC in Washington State.
Organized as a private, non-profit organization, the Council works with the Washington State
Department of Health, hospitals, pre-hospital EMS providers, airborne medical transport, and other
regional healthcare partners to develop and enhance the EMS and trauma care system. In ESCI’s
experience, the Mid-Columbia Council functions at a level above other EMS organizations and is
commendable.
Kudos:
• To PFD and the other member organizations of the Mid-Columbia (Benton/Franklin) EMS and
Trauma Care Council for their leadership and dedication to pre-hospital medical care of the
sick and injured.
EMS is the most frequent service provided by the Tri-Cities fire departments. During periods of high call
volume, EMS resources are essentially depleted. On one morning in April 2016, eight medic units were
responding, transporting, or at the scene of a medical incident at the same time in the Tri-Cities. This
illustration points out the need for coordinating fire and EMS response. One obstacle to establishing a
seamless regional EMS response is the two PSAPs (Public Safety Answering Points). This was also a
concern echoed by those interviewed by ESCI.
Recommendation:
• Complete the current efforts to combine emergency communications for Franklin and Benton
counties in a single PSAP.
Traditional municipal fire and medic companies are staffed and continuously available 24 hours per day
to respond to emergencies. As more powerful analytical tools have become available, some fire
departments are being more aggressive with move-ups, posting, and deployment spawning such terms
as “dynamic redeployment” and “system status management”.
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EMS systems structured and based on traditional paradigms are changing. Many people view EMS as
simply ambulance transportation or fire department response to medical events. However, those views
are being challenged as insurance companies, including Medicare, demand more accountability for
ambulance transport and emergency treatment, and fire departments seek better use of resources to
extend services to the communities they serve.
One technique of managing costs is to staff emergency response units as needed, increasing apparatus
and personnel resources during times that have and/or are forecast to have greatest service demand.
These staffed units are commonly referred to as Peak Activity Units (PAU). PAUs (i.e., fire engine,
medic/ambulance) staffing occurs for scheduled events, for periods of peak service demand, or to cover
a response zone while fire personnel attend training. Adding a PAU as an adjunct to current staffing
patterns adds flexibility to fire department emergency operations. As with several other
recommendations, a shared PAU between multiple Tri-Cities fire departments would be the most
efficient and cost effective operating model. This is further discussed in the Mid-Term Strategies section
of this study.
Recommendation:
• Deploy a shared agency staffed PAU during times of greatest EMS service demand.
A variation on the PAU model is the use of Alternative Response Units (ARUs). While a PAU’s primary
mission is to respond flexibly to peak demand for emergency services, an ARU answers non-emergency
and lower acuity emergency medical calls. Its function is to keep the primary fleet of emergency
response vehicles and crews in service and available for true emergency calls. Tualatin Valley Fire &
Rescue (TVF&R) in Washington County, Oregon, implemented a 12-month pilot of this program in 2011;
Spokane Fire Department (SFD) implemented a six-month pilot of this program in 2013 and recently
extended it an additional 18 months. Both agencies have experienced positive results, with TVF&R
permanently incorporating the units into its daily operation.
The premise behind ARUs is to reduce the expensive staffing and vehicle response to likely non-life-
threatening calls for service. ARUs are sport utility vehicles, staffed by one firefighter/paramedic in
Tualatin Valley’s model. Dispatching is according to a protocol used by the dispatch centers, medically
triaging the calling party. SFD’s Spokane Combined Communication Center communication specialists
are certified Emergency Medical Technician/Emergency Medical Dispatch (EMT/EMD). In TVF&R’s case,
communication specialists at Washington County Communications Center are not necessarily EMTs but
are trained to the EMD certification level.
Spokane’s ARU pilot included three units deployed strategically throughout the SFD service area.
Initially, SFD deployed ARUs Tuesday through Friday from 8:00 a.m. to 6:00 p.m., times of peak activity.
In the six-month pilot, the units handled 1,193 incidents that would have been handled by an engine
company, medic unit or ladder truck. In TVF&R, ARUs also respond to minor non-medical calls such as
lockouts, smoke detector problems, and to investigate burning complaints. The four TVF&R ARUs
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responded to 2,134 incidents in 12 months, which represents 7.2 percent of the agency’s total call
volume for that year.
Recommendation:
• Consider alternative deployment options as demands for service increase, including a shared
agency ARU.
At the heart of any fire department are the activities and functions that support the delivery of
emergency services. Logistics are actions that keep assets in operational readiness and ensure that
enough supplies, tools, and equipment are available to mitigate emergencies. PFD personnel dedicate a
certain level of daily effort in maintaining emergency apparatus and equipment and ordering and
stocking firefighting and EMS supplies.
Although PFD is an emergency services provider, it is also a business spending tens of thousands of
dollars each year to ensure emergency mission readiness. Like all businesses, fire departments need to
be receptive to new practices to maximize the value of budget dollars. Such practices may take the form
of economies of scale, administrative efficiencies, paperwork reduction, technological advances, and
innovative cost saving concepts.
Logistics and support services for EMS represent a labor-intensive process requiring good policies and
attention to detail. The procurement and distribution of EMS supplies is also an important behind-the-
scenes practice that needs hands-on work and meticulous record keeping. Filling the demand for
logistical services is a constant necessity in any organization and vital to ensure the operational
readiness of the agency. A significant amount of the PFD EMS officers’ time is consumed with logistics
duties. A process repeated by EMS officers at each fire department in the Tri-Cities area.
The Tri-Cities fire departments have on occasion cooperated on purchasing. Collaborating for supply
and logistics in an EMS system allows agencies to achieve “right-column” pricing on EMS supplies and
equipment, reduces average transaction costs, and realizes benefits of standardizing equipment.
Creating a joint purchasing and logistics program for EMS, and potentially other supplies, offers the
ability to create joint bids for supplies and equipment and achieve additional benefits such as integrated
inventory of supplies that can accommodate lag times in deliveries from manufacturers and suppliers.
A multi-agency purchasing program could improve the management of PFD’s and partner agencies’
supply chains. In theory, the agencies would collectively create or contract for a logistics center to
manage the purchasing process of EMS supplies.
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Recommendation:
• Standardize EMS equipment and supply purchases through a group purchasing and
distribution system.
The RCW (Revised Code of Washington)15 requires a cost of service study to identify the total cost
necessary to regulate, operate, and maintain the ambulance utility. In 2015, the City of Pasco
contracted with the FCS Group for an Ambulance Utility Cost of Service and Rate Study. The rate study
states that “with a net ambulance utility costs of $5,790,137 and 22,840 regular billing units, the
ambulance rate per unit is $253.51 a year, or $21.13 a month.” If adopted it would have represented a
173 percent increase over the previous utility rate of $93.00 a year or $7.75 a month. Understandably,
an increase of that magnitude was not palatable for the Pasco community or City Council. A more
restrained ambulance utility rate increase approved in 2016 resulted in an annual charge of $151.80 or
$12.65 a month. Even with the rate change, the City had to continue making annual General Fund
contributions, albeit smaller ones, to fully fund ambulance service. Rate issues identified in the FCS
study for the City of Pasco to consider in order to close the gap were:
• An exemption of nursing homes from paying the monthly ambulance utility rate fee.
• Commercial, industrial, and other businesses and properties pay a single monthly fee (the same
rate as a single-family residence).
• Hotels and motels pay a single monthly fee (the same rate as a single-family residence).
At the time of the rate increase, a determination was made to maintain the ordinance in its original
form. Nursing homes, hotels, motels, RV and mobile home parks, and commercial businesses were
considered one billing unit, keeping them listed in their current billing category (the same rate as a
single-family residence). As a matter of equity and in proportion to ambulance services usage, the
ambulance utility charge is low. Any change in how the City of Pasco addresses this issue could increase
the number of billing units. These changes primarily would affect rates paid by businesses. As a result
of increasing the number of units, the current utility rate can be maintained to increase revenue or
lowered as a result of spreading the costs across more billing units.
There is a demonstrated need for PFD to increase staffing in an effort to mirror increases in the area
served, services provided, and service demand. ESCI recommends increasing the number of billing units
for businesses, lodging, and properties with multiple dwellings to accurately reflect ambulance service
usage. It would be appropriate at the same time to adopt an increase to more closely align revenue
with the cost of operating the ambulance service.
15 RCW 35.21.766 (3), Ambulance services—Establishment authorized.
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Recommendation:
• Revisit the practice of a flat rate utility fee structure of support for ambulance service.
• Keep the ambulance utility cost analysis and cost of service updated regularly.
Current Medical Control and Oversight
The Medical Program Director (MPD) is responsible for providing medical oversight and guidance to
Emergency Medical Services Technicians and Paramedics. The MPD must develop or adopt written
prehospital patient care protocols to direct Emergency Medical Services personnel in patient care.16
Medical control and oversight in Benton and Franklin Counties is directed by an ABEM (American Board
of Emergency Medicine) board certified M.D. (Doctor of Medicine) and FACEP (Fellow of the American
College of Emergency Physicians). The current MPD is uniquely qualified for the position, having been
an EMT and paramedic prior to his medical career. The MPD’s passion for delivery of quality EMS in the
Tri-Cities region is highly regarded by paramedics and fire department leadership. Funded by the local
council, a part-time administrative assistant provides recordkeeping services.
PFD’s paramedics, as well as those in the other local agencies, are well trained and held to a high
standard of patient care by the MPD. Contributing to the success of the EMS program and quality
patient care is the low turnover rate of paramedics. In our experience, many EMS providers struggle to
retain experienced, well-trained paramedics. One probable reason for the high retention rate is that
PFD and other Tri-Cities fire departments are desirable places of employment. PFD paramedics have the
option of involvement in other facets of emergency services.
There were concerns that must be addressed for the pre-hospital delivery system to continue the
provision of quality care in Pasco and the two counties. Separation of PFD from other fire departments
is not realistic when discussing concerns as there is a symbiotic relationship connecting them together.
EMS concerns raised consist of:
• Communication system incompatibility between the two counties, two dispatch centers.
• Growth in Franklin County and Benton County is not reflected in additional facilities, apparatus,
and personnel.
• PFD’s ASA (Ambulance Service Area) is larger than the City of Pasco.
• A shortage of Senior EMT Instructors (SEIs); there are only two in Northern Franklin County. SEI
certification and recertification requirements are an obstacle.
• Paramedic burnout.
Quality Assurance/Quality Improvement Mechanisms
The goal of QA (Quality Assurance) and QI (Quality Improvement) in EMS is to ensure the provision of
the highest level of paramedicine. QA/QI activities are monitored by the MPD with support from
16 WAC 246-976-920, Medical Program Director.
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individual agency EMS officers, including PFD’s. QA and QI is a quality management process that
encourages all health care providers to continuously ask the questions, “How are we doing?” and “Can
we do it better?”17 QA monitors, investigates, studies, and makes recommendations regarding the
quality and level of health care provided by the EMS system. Effective QA/QI is accomplished through
education and the correction of inappropriate practices and conduct.
Each PCR (Patient Care Report) prepared by PFD’s paramedics is reviewed. The oncoming shift reviews
PCRs from previous shift and flags reports based on five criteria. The criteria are established and
changed monthly by the MPD. PFD’s Medical Officer reviews random PCRs, patient refusals, and those
with flagged criteria. PCRs with flagged criteria are then forwarded to the MPD. PCRs selected by the
MPD, along with the medical officer and QA Committee, are presented at monthly case review sessions.
Individual paramedics receive feedback on a routine basis.
Kudos:
• For a process that ensures the systematic review of every PCR.
EMS System Integrity and Required Credentialing
Pasco FD is licensed by the WSDOH (Washington State Department of Health), Office of Community
Health Systems to provide pre-hospital EMS ALS (Advanced Life Support). Licensure of EMTs and
paramedics lies with the WSDOH. EMT and paramedic applicants applying for certification require the
recommendation of the supervising MPD. The MPD is accountable for ensuring that PFD’s EMS
personnel meeting CE (continuing education) requirements and clinical skill maintenance. PFD’s
documentation for CE and recertification presented to the MPD is complete and accurate.
Recertification and CE documentation is maintained electronically.
Medical protocols are developed to standardize the emergency patient care that EMS providers deliver
at the scene of illness or injury and while transporting the patient to the closest appropriate facility for
definitive care. Protocols are a form of “standing orders” for emergency patient care intervention in a
patient who has a life-threatening illness or injury. PFD’s EMTs and paramedics operate under patient
care protocols adopted in 2014. Protocols are updated bi-annually with an updated version scheduled
for July 2016 release.
Three hospitals in the Tri-Cities area operate four EDs (emergency departments):
• Lourdes Medical Center
• Kadlec Regional Medical Center
• Trios Southridge Hospital
• Kadlec Emergency Room, Kennewick
17 Edwards PJ, et al. Maximizing your investment in EHR: Utilizing EHRs to inform continuous quality improvement,
JHIM (Journal of Healthcare Information Management), 2008.
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Two of the receiving EDs are designated trauma centers. Kadlec Regional Medical Center is a Level 3
trauma center and Trios Southridge Hospital is Level 3 and Pediatric Level 3. The three designated
stroke centers are Lourdes Medical Center, Level 2; Trios Southridge Hospital, Level 2; and Kadlec
Regional Medical Center, Level 2. Transporting EMS medic units receive on-line medical control from
the receiving hospital. Paramedics can consult with receiving hospitals via cellular phone, the radio
HEAR (Hospital Emergency Administrative Radio) system, and with 12-lead telemetry to Kadlec Regional
and Lourdes Medical Centers.
Innovation, advancement, and the evolution of EMS continue to accelerate. In the past, training and
certification of the public in CPR (Cardio-Pulmonary Resuscitation) and first aid were the only expected
EMS outreach services. Contemporary outreach programs in EMS may involve fall and injury
prevention, the treatment and release of patients, follow-up of patients released from the hospital,
inoculation clinics, and community health programs. Within the region, Prosser Medical Center’s
ambulance service provides home visits to patients who have been in the hospital. The purpose of the
program is to keep patients from being readmitted to a hospital.
Improvements in technology have made it possible for once cost prohibitive equipment to be available
to the public. It is now common to have relatively inexpensive AEDs (Automated External Defibrillators)
deployed in businesses and places of public assembly. To increase the chance for survival requires a
person trained in the use of an AED and/or CPR. Scientific studies demonstrate when CPR is performed
according to guidelines, the chances of successful resuscitation increase substantially. Minimal breaks in
compressions, full chest recoil, adequate compression depth, and adequate compression rate are all
components of CPR that can increase survival from cardiac arrest.
SCA (Sudden Cardiac Arrest) can happen to anyone, at any time; CPR-trained citizens have been
improving patient outcomes and saved many lives by reducing collapse-to-CPR and collapse-to-
defibrillation times. Smartphone applications are available that alert CPR-trained bystanders to
someone having an SCA that may require CPR. Activation by the public safety communication center
occurs simultaneous with the dispatch of EMS resources. Notification includes the locations of AED
(automatic external defibrillators) with real-time mapping of nearby devices. Activation of the app
happens only if the event is occurring in a public place (the application is not activated for residential
addresses).
Recommendation:
• Deploy a Smartphone app to notify CPR-trained citizens of a Sudden Cardiac Arrest incident.
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HAZARDOUS MATERIALS
Hazardous materials response capability had, for many years, been a military mission commonly called
nuclear, biological, and chemical (NBC) defense. With the increased use of chemicals and chemical
processes in communities and their shipment throughout the United States, municipal fire departments
began adapting this military mission, coining the term “hazardous materials” and adding this capability
to the list of services provided to primarily large urban cities in the 1980’s.
Since 9-11, the possibility of intentional hazardous materials releases caused many fire departments to
add this capability regardless of the size of the community served, mostly in concert with other regional
partners. In turn, the terminology changed, with weapons of mass destruction (WMD) the threat of
chemical hazards being expanded to include Chemical, Biological, Radiological and Nuclear (CBRN),
which replaced the former acronym NBC (nuclear, biological, chemical). In the military, an “e” was
added for explosive devices; for standardization, the fire service has also expanded to include the “e”.
Informally, hazardous materials and CBRNE are essentially one in the same, with CBRNE typically used to
describe possible acts of terror and hazardous materials used to describe accidental exposure to civilian
populations.
In 2007 and 2008, the Washington Fire Chief’s Association attempted to establish nine regional CBRNE
teams dispersed throughout Washington State, along with a funding mechanism to ensure
sustainability. The intent was to provide a regional response team with technical expertise and
equipment. The teams were to be selected from among applicant fire departments that were well
positioned for response within their region, and had already demonstrated some level of expertise or
the commitment to achieve that level of expertise. Multiple funding mechanisms were identified to
provide for these teams, but proposed legislation was held up in committee. The economic downturn
also hobbled the effort as funds dried up nationally.
Virtually all fire departments in the United States have received hazardous materials–operations level
training, but this does not constitute a hazardous materials team. A true hazardous materials or haz-
mat team is capable of offensive actions once a substance is identified and a proper course of action
determined. Hazardous materials teams are made up of technicians certified in these various risk
factors. The most advanced civilian hazardous materials team offensive capability is referred to as Level
A.
PFD Infrastructure
All firefighters in Pasco are trained to at least the operations level, but Pasco Fire maintains only minimal
resources for decontamination. Chief officers and some company officers are trained to the Haz-Mat
Incident Commander and Haz-Mat Safety Officer level.
Equipment for “plume modeling,” that is, using a computer program to predict, given current weather
conditions and the characteristics of the leaking chemical, the spread of a hazardous spill
(CAMEO/ALOHA) is maintained by the Franklin County Emergency Manager (FCEM). A gas monitor is
kept on each of Pasco Fire’s Type 1 engines.
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Regional Team Make-up
Pasco Fire is a member of the Tri-County Regional Hazardous Materials Team. Its major partners are the
cities of Kennewick and Richland, locally, and the cities of Yakima and Walla Walla, regionally.
Equipment for Levels A and B entries and for decontamination are stored in a central trailer on Highway
395 near Kennewick. PFD maintains six personnel trained to the “Technician” level and tries to assure
that at least one of them is on duty every day. The target for assembling a team and being prepared to
make a Level A entry is one hour.
Because of the presence of a significant Burlington Northern Rail terminal in the area, PFD’s
participation in a regional haz-mat team is vital to the community it serves. Much of the region’s
hazardous materials cargo is transported by train or, alternately, by commercial trucking over the
region’s highway system. Even so, activations of the regional team are estimated to be about once per
year. At that level of activity, no meaningful statistics regarding performance can be developed. As part
of the pre-planning process for a possible hazardous materials incident, many communities perform a
“Commodity Flow Study” with the purpose of identifying the kinds and amounts of hazardous products
that typically pass through the region. To ESCI’s knowledge such a study has not been conducted. PFD
and the other regional haz-mat team partners should ask the Franklin County Emergency Management
Division to coordinate such a study.
The team participates in a training schedule that meets or exceeds the state’s annual maintenance
minimums. Because each of the Tri-Cities is actively involved, each department takes the lead in
planning and providing a monthly Haz-Mat training drill on a rotating basis. Because each of the
departments provides a monthly drill, a team member from Pasco who misses the Pasco drill can “make
up” the training with one of the partner agencies.
Recommendations:
• Maintain a hazardous materials equipment inventory that includes useful life of all equipment
for which Pasco Fire is responsible so that replacement, repair, and maintenance can be planned
for.
• Establish and maintain a minimum staffing requirement for the haz-mat technicians.
• Periodically review Pasco’s financial ability to maintain its participation in the regional haz-mat
team, assessing the cost-benefit ratio.
• Request that the county emergency manager coordinate a Commodity Flow Study for Pasco and
its surrounding neighbors.
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TECHNICAL RESCUE
Technical rescue is the term applied collectively to several rescue disciplines that require training and
certifications in excess of those generally held by most firefighters.
Types of Technical Rescue
Building collapse is one of the technical rescue disciplines. As the name suggests, it relates to the
advanced ability to determine if a building is in danger of collapse (after a fire or an explosion for
example) and training in the techniques used to stabilize a compromised structure so that other
firefighting tasks (such as rescue or extinguishment) can be performed safely.
Trench rescue is another technical specialty. Personnel trained in this area have special skills in the area
of shoring up a collapsed trench or hole. Confined space rescue, similar to trench rescue, focuses on a
likely rigid space, above or below grade, that may have an oxygen deficient or toxic atmosphere and
requires special care in rescuing trapped victims. High-angle rescue is the discipline that addresses the
rescuing of victims over the sides of cliffs, down steep embankments, or from building locations that
cannot be reached by means of a ladder.
Some departments include swift water rescue as a part of its technical rescue operations. Other
departments consider water rescue to be a rescue discipline separate from technical rescue. PFD
includes water rescue within its technical rescue program.
Although all firefighters receive training in the area of vehicle extrication, technical rescuers will have
advanced training and access to additional tools that make possible the rescue of more elaborately
trapped victims (an example of this might be the medical patient trapped under a rail car or a large
truck).
In some departments, technical rescue is taken on by interested firefighters as an “additional duty”. This
was more common before the development of state certifications in these disciplines and the realization
that poorly trained staff who perform these functions can be a danger to themselves, their co-workers,
and the public. Since the terrorist attacks of September 11, 2001, the federal government has given
financial support in the form of training and tools to fire departments around the country to develop
and improve their urban search and rescue (USAR) teams. These are teams made up of firefighters
trained in some or all of the technical rescue disciplines described above.
Technical Rescue Team Configuration
PFD’s firefighters all receive training in basic technical rescue skills and are certified to the “awareness”
level for Structural Collapse Rescue. Additionally, members of the Technical Rescue Team are trained to
the technician level in specific areas of expertise. These disciplines are: confined space, rope/high angle
rescue, trench collapse rescue, and vehicle/machinery rescue. Pasco maintains teams in each of these
disciplines with personnel often cross-trained in multiple technical rescue specialties. Initial training for
team members is through recognized expert providers and on-going training is managed locally and
regionally. Pasco Fire meets or exceeds annual maintenance training standards, with team members
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from each discipline receiving technician level certification. This is the highest level of certification
achievable for these technical team members.
While Pasco Fire is still waiting for the delivery of the required boat, it also has members trained to the
technician level in swift water rescue and is planning training for firefighters not assigned to the team to
provide support for technicians involved in water rescues.
Members of the Technical Rescue Team are evenly assigned across the three shifts, and training is
scheduled on a monthly basis and coordinated with the Technical Rescue Teams in Kennewick and
Richland. Combined, the technical teams from the Tri-Cities form a robust regional response capability.
As with the Hazardous Materials Team, this partnership increases the opportunities for members to
access training and provides for each agency’s personnel to become familiar with each other’s members
and equipment.
PFD has a goal of maintaining two technicians in each discipline on each shift as a form of minimum
staffing, but this goal is not consistently achieved.
Recommendations:
• Maintain an inventory that includes useful life of all equipment for which Pasco Fire is
responsible so that replacement, repair, and maintenance can be planned for.
• Establish and maintain a minimum staffing requirement for the Technical Rescue Team.
• Periodically review Pasco’s financial ability to maintain its participation in the regional team,
assessing the cost-benefit ratio.
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AIRPORT IMPACTS
The Tri-Cities Airport operated by the Port of Pasco serves Southeastern Washington and Northeastern
Oregon. It is now the third largest airport by passenger boarding in the state of Washington with over
300,000 enplanements in 2010.18 Since then, enplanements have continued to grow to nearly 350,000
in 2015, an increase of 6 percent over 2014 (as illustrated in the following figure).
Signs point to continued increases in passenger traffic at the airport. The number of flights continues to
swell with the addition of three daily Delta Airlines flights to Seattle and an Alaska Airlines early evening
flight to Seattle. In 2015, the Port of Pasco Tri-Cities Airport was awarded a $750,000 Small Community
Air Service Development (SCASD) grant to recruit and support daily, non-stop service to Los Angeles
International Airport (LAX). Flights to LAX could begin as early as June 2016. A historical view of
passenger enplanements for the past decade is provided in the following figure.
Figure 44: Tri-Cities Airport Passenger Enplanements, 2006 – 2015
Terminal improvements totaling $41.9 million are continuing. Phase 1 terminal improvements are
complete with Phase 2 on schedule for completion in the summer of 2016. Phase 3 will run from
summer 2016 to January 2017.
The City of Pasco and the Port of Pasco have entered into a 50-year interlocal agreement for the City to
provide ARFF (Aircraft Rescue and Firefighting). Terms of the most recent iteration of the agreement,
dated April 20, 2015, prescribes what each signatory’s responsibility. Key elements are:
• Port will provide full access to the airport fire station to the City.
• City will provide ARFF services.
• City provides equipment for firefighting, EMS, and hazardous materials.
18 FAA, Enplanements at Primary Airports (Rank Order) CY10, ACAIS (Air Carrier Activity Information System).
0
50,000
100,000
150,000
200,000
250,000
300,000
350,000
400,000
2006 2007 2008 2009 2010 2011 2012 2013 2014 2015
Passenger Enplanements
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• Port provides ARFF equipment.
• Specificities for shared payment of utilities, facility maintenance, training costs, and inspection
services.
• Requirements for staffing and minimum skills qualifications.
• Port designates the City Fire Chief to be the Airport Fire Chief.
In consideration of the services provided by the City to the Port, the Port will compensate the City the
amount of $699,996 in 2016. Increases in payment beginning in 2017 are based on the actual cost of
personnel.
While ARFF services are required for airport operations, there are benefits to collocating ARFF, EMS, and
fire services in an on-site facility. For the airport, colocation offers more emergency resources within a
shorter response time. For the Department, PFD personnel can gain a depth of knowledge of the airport
property. For both the Port and City, there are cost sharing benefits. Requests for ARFF services and
response activity at the airport have remained relatively flat.
Adequacy of the Current ARFF Response Capability at the Tri-Cities Airport
Airport and PFD administrators describe a positive working relationship that is beneficial to both parties.
A study of ARFF was conducted by Safety & Security Instruction and W.A.M.D.I. Aviation Consultants,
LLC, for the Port, the City, and the PFD in 2013. The study concluded that the Port and City are working
together and currently the airport maintains all requirements for Federal Aviation Regulation (FAR) 139
in relation to the ARFF program.19 The Port of Pasco and the Pasco Fire Department developed a stated
set of mutual goals for ARFF (Aircraft Rescue Fire Fighting) for the Tri-Cities Regional Airport.
1. To have ARFF personnel more proactive in airport safety and security during daily airport
operations.
2. To form a more effective and efficient partnership to deliver customer service that exceeds
management and customer expectations within a defined budget.
3. To involve the ARFF team with the airport and all of its tenants.
PFD and the Port have addressed and continue to address recommendations made in the 2013 study.
One improvement accomplished was increasing ARFF staffing to two personnel to ensure better
coverage. This brings to six the number of personnel assigned to Fire Station 82 (Airport Fire Station)
per shift.
Challenges related to ARFF as identified by the Port include:
• Recordkeeping for the FAA (Federal Aviation Administration) Part 139.
• Annual FAA evaluation.
• Need for a DEF (Discreet Emergency Frequency).
19 Aircraft Rescue Firefighting Study, SSi, Inc. and W.A.M.D.I. Aviation Consultants, LLC, 2013.
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• Securing FAA grant funding for a replacement ARFF unit.
• Annual ARFF vehicle pump and sodium bicarbonate testing and fluffing the Purple-K.
• Keeping ARFF personnel engaged with little response volume.
PFD firefighters certified to perform aircraft rescue firefighting duties (National Fire Protection
Association Standard 1003) must meet FAR 139 refresher burn requirements. Additionally, there are
other knowledge and skill maintenance requirements in place to meet FAA regulations and job
proficiency. They involve FAA rules and regulations, aircraft and airport familiarization, fire behavior,
ARFF apparatus, PPE (Personal Protective Equipment), rescue and firefighting procedures, hazardous
materials, incident command, and airfield communications. Practical skills include forcible entry and
disentanglement; live fire truck operations; live wheel/brake; engine, galley, and cabin fires; and
flammable liquids foam firefighting and tactics.
Current training of ARFF personnel is the responsibility of the PFD Training Officer. All ARFF personnel
receive annual training that meets or exceeds FAR 139 and NFPA 1003 Standards for Airport Fire Fighter
Professional Qualifications. PFD is the repository of training records. Initial ARFF certification training is
conducted at the Moses Lake, Washington, Airport. It involves 40 hours of basic ARFF training and live-
fire burn exercises. Continuing education requirements involve in-house classes, a contactor delivering
didactic ARFF specific training to PFD personnel on-site, and live fire burns at Moses Lake.
It is beyond the capacity of any fire department to operate and maintain enough resources for every
eventuality. For this reason, best practices are for fire and EMS agencies to enter into automatic and
mutual aid agreements that are mutually beneficial to the participants. The City of Pasco maintains
automatic and mutual aid agreements and contracts with other cities, fire districts, and the Tri-Cities
Hazardous Materials Response Team for response to major incidents. FCEM (Franklin County
Emergency Management) is responsible for coordinating, establishing, and maintaining the agreements
and emergency response plans.
Potential Impact to Growth in Pasco Based on the Planned Growth of the Airport
With the increase in enplanements, the Port of Pasco revised the airport’s 20-year Master Plan.20 From
this information, the Port determined the need to expand and modernize the terminal. The
development in progress is the largest expansion and modernization project since the original
construction of the terminal.21
Three methods are used to forecast enplanements in the Pasco Airport Master Plan, CAGR (Compound
Annual Growth Rate), market share, and socioeconomics.22 The 20-year master plan forecast
enplanements to grow to 337,489 in 2018; this number was exceeded in 2015. Increasing passenger
count could translate to more direct flights and the airlines using larger aircraft to serve the Tri-Cities.
20 Pasco Tri-Cities Airport Master Plan Update, prepared by Mead & Hunt, Inc., November 2011.
21 Tri-Cities Airport, Terminal Expansion and Modernization Project.
22 Ibid.
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Even with continued increases in aircraft activity, analysis showed that Pasco’s airport runway
configuration is expected to be adequate through 50 years; no additional runways are expected.23
A PFD concern in the 2013 ARFF Study was a runway extension may potentially increase air-carrier
operations to Index C. The consultants stated, “Expansion of runway system will increase attractiveness
of PSC as alternate landing site for large aircraft with emergencies.” Lengthening Runway 12 is possible
but not likely. According to Port administration, the current configuration of taxiways and the runways’
length, width, and strength, can accommodate present operations and have the capacity for most
aircraft configurations for the near future. PFD and Pasco have in the past experienced the diversion of
a large aircraft to the Tri-Cities Airport. On October 21, 2013, the middle-of-the-night arrival of a
diverted B757 which indicated a cargo hold fire necessitated rapid evacuation of passengers. PFD not
only supported the diverted flight landing and verified no fire, but also developed support for the
feeding and sheltering of 183 passengers and six crew members overnight. This positively demonstrated
results of the cooperation between the Port and PFD.
Recommendations Relative to Future Deployment Decisions and Response Demand
PFD incident commanders and operations personnel need to have a working knowledge of the Pasco Tri-
Cities Airport AEP (Airport Emergency Plan). In particular, ARFF personnel require an in-depth
understanding and should participate in regular (if not frequent) exercises of the AEP.
Per the AEP, the Airport Director and Deputy Airport Director assume the role of agency administrator
of incidents that occur on airport property. Customarily and appropriately, their presence at the airport
is during regular business hours. Tri-Cities Airport law enforcement officers and ARFF personnel are the
first responders for emergency incidents at the airport. This is true for times of scheduled commercial
air operations, General Aviation, and during the hours of non-scheduled airline activities. In this
capacity, as first on the scene, and in keeping with the AEP and best practices, ARFF personnel would
establish command of the incident.
With on-going improvements to the Tri-Cities Airport terminal, AEP Annex A, dated January 2012, will
require amendments to reflect current conditions. In light of continued construction and terminal
improvements, PFD and ARFF personnel should be interacting with airport staff and tenants at least
weekly.
Recommendation:
• Modify AEP Annex A to reflect improvements to the terminal.
• PFD and ARFF personnel at Fire Station 82 conduct familiarization and interact with airport
staff and terminal tenants weekly.
23 Ibid.
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TRAINING
The importance of the initial and on-going training and continuing education of firefighters, EMTs, and
paramedics cannot be overstated. The actions of fire department personnel on emergency responses
that are less than stellar are generally a direct reflection of a substandard training program. Personnel
that receive training that focuses on continuous improvement are safer and more efficient and effective
on emergency incidents.
PFD has had the luxury of hiring only experienced (lateral entry) firefighters, EMTs, and paramedics.
Initial training of new hires begins with an indoctrination while assigned to day shift for ten weeks.
During the first year (probation) of employment, task book assignments are completed. The most
recent graduates of probation mentor recruits (new hires). This unique method of mentorship has been
successful for several reasons. The mentor is familiar with the material having recently completed it
themselves, they can relate to what the probationary employee is experiencing, and they are
approachable.
Following the probation period, personnel need on-going training and skill maintenance. To this end,
there has to be a sufficient number of instructors, training grounds, and adequate training materials
either internally or available from outside sources. Training sessions should be formal and follow a
prescribed lesson plan that meets specific objectives. Additionally, training sessions involving
manipulative exercises should include a safety message and have a dedicated safety officer.
In this section, ESCI reviews PFD’s training practices, compares them to national and other applicable
state standards and best practices and offers recommendations as are appropriate.
General Training Competencies
The basis for effective training is established standards. There exists a variety of training standards
including those from the National Fire Protection Association (NFPA), the International Fire Service
Training Association (IFSTA), the International Fire Service Accreditation Congress (IFSAC), and
applicable Washington Administrative Code (WAC)24 firefighter safety and training requirements. EMTs
and paramedics must comply with the Washington State Department of Health (WADOH) Ongoing
Training & Evaluation Program (OTEP) for continued certification.
Accountability of PFD personnel at emergency incidents is with the Passport Accountability System.
Policies developed in-house outline the use of passports. Safety procedures for training activities are in
the PFD health and safety manual. Fire department employees receive monthly training on a rotating
variety of selected safety topics.
Beyond firefighting and EMS, PFD personnel are involved in a variety of specialized disciplines.
Specialized services provided by the department include:
• High/Low angle rescue
• Swiftwater rescue
24 Chapter 296-305 WAC, Safety standards for Firefighters.
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• Confined space rescue
• Trench rescue
• Active shooter
• Hazardous materials response
• Wildland firefighting
• Vehicle extrication
Each specialized service requires personnel to have initial and on-going training to maintain the level of
skills necessary to operate efficiently and safely. PFD cooperates with other fire departments in the
delivery of some specialized services. Hazardous materials response, wildland firefighting, and fire
investigation are the most highly organized. There are plans for greater cooperation for additional
specialized services including swift water rescue.
Firefighters must learn and retain a vast number of skills. Training should be on maintaining skills and
acquiring new abilities. This can be accomplished with competency-based training (CBT). CBT is training
designed to allow a learner to demonstrate the ability to do something. The key being that they either
can or cannot yet do the task that they are learning. They do not have to be better or faster than
others, they simply have to demonstrate the task, exercise, or skill well enough to be competent. When
a firefighter demonstrates competency to complete a task, the focus can be shifted to advanced training
or learning additional skills.
PFD uses CBT for evaluating manipulative skills with monthly scheduled exercises for ladders and hose,
and quarterly for SCBA (self-contained breathing apparatus). Although scheduled, monthly manipulative
skills training is reportedly not always completed. Using CBT, PFD is able to meet WSRB firefighter
training requirements. PFD conducts a variety of drill activities involving more than a single fire station
or company, including:
Drill Type Frequency
Night drills Annually, multi-company and multi-
agency
Multi-agency drills Quarterly, generally
Inter-station drills Monthly
Disaster drills conducted Annually, or with greater frequency
Pre-fire planning included in
training
Limited; engine companies conduct
vulnerability assessments of large
commercial structures
On-going firefighter training is predominantly for skill maintenance and learning new techniques for
established practices. In addition to regular on-going training, a path for developing future company
and chief officers should be offered. Placing individuals aspiring to greater responsibility in a position of
authority without preparation will often have a disappointing outcome. PFD has developed a task book
to prepare a person to be a company officer.
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Training Administration
Until April 2016, a PFD battalion chief assigned to days coordinated the training program. Coordination
of the training program was only one of the various job duties assigned to the battalion chief. ESCI was
delighted to be in attendance on the day that PFD promoted a captain to the full-time position of
training officer.
Kudos:
• To PFD and the City of Pasco for creating, funding, and filling the full-time position of training
officer.
Much of the day-to-day training is the responsibility of on-duty company officers. PFD has had mixed
success with officers completing and recording scheduled training activities. It is ESCI’s opinion that this
will be resolved with the recent addition of a full-time training officer to monitor compliance with
training requirements.
Training Schedules
With the number of skills required for firefighting, it is necessary to assess a firefighter’s abilities and
skill level. PFD uses CBT for evaluating manipulative skills with monthly exercises for ladders and hose,
and quarterly exercises for SCBA (self-contained breathing apparatus). Firefighters complete EVIP
(Emergency Vehicle Incident Prevention) training bi-annually and pass a checkout for each vehicle they
operate.
An annual calendar is prepared with training subjects prescribed for each month. Columns of each
major subject area are broken down to include the topic and tasks to be accomplished during the
training session. Monthly subjects include hose drill, ladder drill, technical rescue training, ARFF,
hazardous materials safety, driving, and SOG (standard operating guideline) review. A sample PFD
monthly training schedule is provided in the following figure.
Figure 45: Master Training Schedule, January 2015
Hose Drill TRT ARFF HazMat Safety SOG Review
January Blind Alley Ropes Family
of 8's knots
Airport
Familiarization
ERG
Review
Infectious
Disease Control
30-6.2.2 Rope Care
& Maintenance
Task: Structural PPE Inspection, Safety Belt Inspection (A Shift) Utility and Rescue Rope Inspection (B-Shift Utility
Rope, TRT-Rescue Rope, Rescue Harness), Facility Safety Inspection (C Shift)
Program Emphasis: Water Rescue Awareness
Recommendation:
• Define outcomes for training classes.
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Training Facilities
An effective, standards-driven training program is a vital part of a fire department’s safety and accident
prevention program and vice versa. Training is especially important for high risk/low frequency
scenarios, such as building collapse or rail accidents. Regular participation in an effective and
continuous training program results in safer, more efficient, and effective emergency operations.
Proficient emergency responders develop confidence in their abilities to handle emergency incidents
through regular access to training centers for repetitive drills (skill maintenance and refinement) and to
develop new abilities.
Emergency responders must be equipped with a balance of knowledge and skills that are periodically
exercised in a realistic but safe environment. Modern fire training centers continue to evolve with the
blending of suitable space, durable yet adaptable structures, and current technology. Training center
facilities must incorporate classroom resources, computer resources, incident simulation equipment,
and individualized study resources.
While ideally every fire department should have a training facility, practically and financially this is not
always feasible. Realistically though, a fire department needs access to an area where firefighters can
safely practice and maintain manipulative skill proficiency. Equally important are open spaces that
include devices (props) that provide or create the realistic effects associated with fire, EMS, and rescue
incidents. Training facilities provide a controlled and reasonably safe environment to simulate
emergencies in order to develop and test the skill sets of emergency workers. Training involves both
individual and group manipulative skills development in the operation of firefighting equipment and fire
apparatus. NFPA 1402: Guide to Building Fire Service Training Centers is a standard that describes the
appropriate design and construction of facilities for fire training.25
PFD contracts with Walla Walla County Fire District #5 for use of its training center in Burbank; PFD has
also been granted rights to use Kennewick’s training facilities on a case-by-case basis. It was reported
that the grounds are frequently out of service and unavailable. The Burbank training center has a fire
prop and is used for live fire training exercises. PFD will resort to using any space that is available for
driving skills training and to practice hose line stretches. Tri-Cities fire departments have had and will
continue to have informal discussions on cooperatively developing joint training facilities.
Space to deliver didactic instruction involves having adequate classroom facilities with audiovisual
capabilities. PFD lacks adequate dedicated classrooms for instruction. The airport fire station (Fire
Station 82) has one classroom that can accommodate approximately 24 people. The day rooms at PFD’s
two other fire stations serve double as classrooms. Large monitors electronically linked through the
internet offer simultaneous interactive delivery of lessons to on-duty firefighters.
25 National Fire Protection Association, Standard 1402 Guide to Building Fire Service Training Centers, 2012 Edition.
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Recommendation:
• Construct or acquire access to a centrally located fire-training center.
Training Procedures, Manuals, and Protocols
A training manual is the playbook that firefighters use to practice and prepare to operate safely and
efficiently. A playbook is used to standardize techniques and processes for individual companies, fire
stations, and between shifts. Within a geographic region with interdependency for most fires and larger
emergency incidents, it is appropriate that there be a regional training manual. In discussions with Tri-
Cities area fire chiefs, there is a willingness to collaborate on a common set or manuals.
Recommendation:
• Develop a common training manual for Tri-Cities fire agencies.
A single training manual should be broad enough to take in the unique requirements of individual
jurisdictions. While one agency has a need for aerial operations, another will need rural water supply
tactical operations. Meeting the discreet needs of a fire department will encourage buy-in.
PFD has a series of manuals describing practices for hose, ladders, operating motorized fire apparatus,
ropes, tactics, hazardous materials, etc. Changes will occur over time in how fire departments operate.
It is a best practice to include the adoption date of a manual, a scheduled for review interval, and
authorizing signature of the fire chief.
Training Record Keeping
Individual training records are entered and archived on ERS (Emergency Reporting System), the
Department’s RMS (record management system). Company-training activities are not logged. Company
officers have responsibility for recording training activity. In some instances, company officers have
been failing to record training. ERS has the capability to produce reports showing the training received
by individual employee, category, or type of training received and number of hours of instruction. As a
tool, the RMS can assist in the development of training activities and certification plans.
In 2015, 56 PFD personnel received a total of 16,800 hours of training. Fire-related training averaged
ten hours per month per employee and five hours of EMS training per month per employee. Other
training activities, technical, specialty team, and instruction outside the Department averaged ten hours
per month per employee. Company officers must be diligent in recording training activity.
Recommendation:
• Memorialize training manuals and policies with adoption date, scheduled review interval, and
authorizing signature of the fire chief.
• Company officers must record training activity accurately and consistently.
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FIRE PREVENTION
Fire prevention should be the cornerstone for all activities performed by a fire department. The
prevention of fire and loss of life, human suffering (injuries to the public and firefighters), environmental
harm, and property damage is the optimum return on investment for fire agencies. Proactive
involvement in construction, code enforcement, and educating the public to prevent destructive fires
and training the public to survive them is the best accomplishment of fire prevention.
There are five fundamental components that together work to create an effective fire prevention
program:
• New construction inspections and involvement
• Code enforcement
• Fire safety and public education
• Fire cause determination
• Statistical collection and analysis
New Construction Plan Review and Inspection
Plan review and permitting for a new development or building in Pasco is the responsibility of the City’s
Inspection Services Division. Once constructed, the City will have the responsibility to protect the
structure and building occupants. As a result, the City and PFD have an interest and fiduciary duty to
ensure that development and building construction meets adopted fire and life safety code.
Pasco’s issuance of industrial, commercial, and residential new construction permits, along with a wide
variety of other construction projects, continues to remain strong. The figure below offers a historical
review of the number of building permits issued annually for the last 15 years.
Figure 46: Annual Building Permits Issued, 2001 – 2015
0
500
1,000
1,500
2,000
2,500
3,000
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The City adopted the 2012 IBC (International Building Code) and the 2012 IFC (International Fire Code).
Amendments to the two model codes that meet local conditions and requirements have been adopted.
The model codes and local amendments are applied to all new construction projects. Adoption of the
2015 IBC and IFC code is slated for July 1, 2016.
Pasco’s Inspection Services Manager and his staff perform reviews of submitted building plans for the
City, which may include consultation with a PFD representative for larger projects. Consultation with
PFD does not occur on proposed tenant improvements. The Inspection Services Division conducts on-
site compliance inspections during construction. Recently the PFD added a part-time employee who is
available for consultation during the pre-application process.
The Inspection Services Manager holds monthly meetings with a PFD battalion chief for the purpose of
updates on pending and progress of projects under construction. During ESCI’s onsite visit, interviewees
reported that outside of the monthly meetings, there is an open dialogue between the PFD and
Inspection Services Manager on any questions or concerns related to construction projects.
Recommendation:
• Have PFD representative review commercial tenant improvement applications.
Advances and an expanding range of construction methods and building products are now being widely
used by builders for economy and functionality. This is particularly true of wooden truss roofing systems
and wood floor I-joists commonly referred to as lightweight construction. Lightweight construction
owes its beginning, at least in part, to a publication developed by the Douglas Fir Plywood Association
and first began appearing nearly 50 years ago.26 From an engineering perspective, lightweight materials
and construction techniques often outperform traditional dimensional lumber and assembly methods.
A downside of lightweight construction is that lightweight constructed trusses and I-joists can quickly
collapse during a fire. Because of the potential risk, New York State enacted a law mandating property
owners inform first-responders when they build or rehabilitate a building using "truss-type" pre-
engineered wood or timber. This information must be stated on the building permit application if truss
(lightweight) construction method is being used. For this reason and others, we recommend that a
summary list of projects under construction including information on the construction methods be
circulated to PFD personnel. Tours of larger building projects during the construction phase will allow
PFD personnel to observe construction methods.
Recommendations:
• On-duty personnel tour larger building projects during the construction phase.
• Distribute a summary of active construction projects to PFD personnel.
26 History of Lightweight Construction, APA – The Engineered Wood Association, sourced April 27, 2016.
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Code Enforcement
Consider that a new building in a community becomes a benefit and a liability for the entire life of the
structure. It is in the best interest of the owner of the structure, occupants, and others that frequent
the building for it to continue to meet fire and life safety standards. Regular fire and life safety
inspections and correcting deficiencies have proven to reduce the frequency of fire incidents, loss of life,
and damages.
Jurisdictions conducting inspections in almost all public structures had much lower fire losses than
those that did not; the fire rate in jurisdictions without code enforcement was more than twice as
high as those with code enforcement.27
The same study found that of the jurisdictions with inspection programs, those that used suppression
companies for a majority of inspections had lower fire rates than those using only dedicated fire
inspectors. The collective bargaining agreement currently precludes fire personnel from conducting
code enforcement inspections.
In January 2015, the City of Pasco reactivated a Fire Safety Inspection Program through the City's
Inspection Services Division. The program has a stated goal to increase fire safety throughout the City
and dovetail efforts of the Pasco Fire Department in working toward the City Council’s goal to maintain
the Class 5 fire insurance rating and lower it over the next few years.28 The program applies to
businesses and multiple-family units. The City Council determined to reinitiate a fire inspection program
in 2014 following a highly publicized public process. The City of Pasco had not had a formal Fire Safety
Inspection Program since 1987.
Fire code enforcement and administration is the responsibility of the Inspection Services Division with
the Inspection Services Manager holding the title of fire marshal. Certified inspectors are devoted to the
inspection program to verify and enforce fire and life safety code compliance. Inspections of existing
occupancies classified as moderate risk are bi-annual; high-risk occupancies are inspected annually. The
program includes a biennial rental inspection for all properties offered to the public. Of the 2,236 rental
units inspected in 2014, 15 rental units failed and three properties were brought into code compliance.
Prior to the issuance of a City business license, an inspector from the Inspection Services Division
inspects each new business. At the time of the final inspection, a determination is made categorizing
the business as a low, moderate, or high-risk occupancy. Factors are the occupancy (business type),
type of building construction, size of building, building use, and built-in fire protection systems.
Examples of risks are:
• Moderate risk – Restaurants, contractors, landscapers with equipment, feed stores, small
chemical and storage areas, large retail stores, markets, and taverns
27 Code Enforcement: Critical for a Successful Fire Prevention Program, Fire Engineering, January 1, 2013.
28 Troy Hendren, Inspection Services Manager, City of Pasco Memo, RE: Fire Safety Inspection Program, December
29, 2014.
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• High risk – Food processing plants, chemical plants, agricultural warehouses, auto repair shops,
auto body shops, lumberyards, fueling and gas storage and distribution centers
There are approximately 1,200 inspectable occupancies in Pasco. Of that number, an estimate is that
1,000 are moderate risk and 200 are high-risk businesses. There were roughly 800 business inspections
completed in 2015.
Recommendation:
• Involve on-duty suppression crews in fire and life safety inspections. This must be negotiated
in the current collective bargaining agreement.
Firefighters are capable of conducting straightforward, uncomplicated fire and life safety inspections.
However, even seemingly “simple” fire code compliance inspections can be complicated. Having on-
duty personnel participate in high-risk fire and life safety inspections allows them to observe the
situation they could face in the event of a fire. Time spent by on-duty personnel inspections could be
leveraged to develop a pre-incident fire plan.
Fire and Life-Safety Public Education Program
The purpose of public fire and life safety education is to minimize the number of emergencies and
training the community in appropriate actions to take should an emergency occur. Life and fire safety
education provides the best chance for minimizing the effects of fire, injury and illness to the
community. Additionally, public education can correlate to firefighter safety. As an example, arriving at
the scene of a house fire, the first arriving fire officer finds that the residents have all evacuated safely
and are accounted for in a meeting location. Their actions have accomplished the first priority of the fire
department, life safety, and the firefighters can concentrate on fire suppression.
Public fire and life safety can be a simple or an in-depth program covering a variety of topics. Example
topics include: fire extinguisher-training, smoke detector education and installation, CPR, first aid
courses, fall prevention, home fire safety, fire prevention materials in multiple languages, fire brigade
training for business, and many others. Even the largest fire departments cannot cover all fire and life
safety topics and so a fire department needs to decide where to direct resources.
Official establishment of PFD’s public education program occurred recently. Historically, PFD’s public
education program was limited to providing annual E.D.I.T.H. (Exit Drills in the Home) education to first
and third grade elementary students. Estimates are that 3,000 students participate in the program
annually but there is little data on previous education actions, outcomes, or effectiveness before this
year.
Since July 2015, public education activities have included:
• Senior citizen smoke alarm program in cooperation with the American Red Cross. The program
installs smoke detectors and/or batteries and provides in-home voluntary fire safety
inspections.
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• Monthly PSAs in collaboration with a local radio station.
• Participation in community events including Cinco De Mayo festivities.
• Fire station tours.
• Public fire safety presentations.
The process of collaborating and regionalizing the public education activities with fire departments in
the Tri-Cities area has begun. Planning for a regional community risk reduction program is set to kick-off
in late 2016 and run into fiscal year 2017. Blurred geopolitical boundaries in the Tri-Cities area makes it
appropriate that some public education activities be delivered regionally.
The Public Education Committee creates monthly reports documenting public education activities. PFD
has three certified public fire educators assigned to the program. Fire educators receive a specialist
incentive of 2 percent of top-step firefighter pay.
Community Risk Reduction
A significant trend in the fire service nationally is a concept called Community Risk Reduction (CRR). CRR
is an integrated approach to risk management that marries emergency operations and prevention
strategies into a more cohesive approach to reducing risks in any community. It includes the fire
department partnering with the community, non-profit organizations, and private sector agencies with a
mission nexus to an identified community risk.
The concept starts with the fire department mining data to quantify community risk. Once the
community risks have been identified, they are prioritized based on frequency of emergency service
demand or consequence (to the victim, to the community, to the local economy). Upon prioritizing the
risks, strategies are developed to mitigate the risks. These strategies are incorporated into a CRR plan,
which integrates resources across the fire department, partner agencies and the community to
implement the various strategies in an integrated way. After plan implementation, the results are
reviewed to determine the impact on the risks. Adjustments are made, as necessary, based on the
results and the process is refined and continuously re-implemented.
The risks are not limited to structure fires. They can include falls, drowning, interface exposure, or any
risk requiring fire department response. Risk can also be localized by station area. Station captains, in
collaboration with fire prevention staff, can develop and manage a station-specific CRR plan as a subset
of the fire department’s plan.
Recommendation:
• Develop a comprehensive Community Risk Reduction plan. Use Vision 20/20 as a resource.
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Kudos:
• PFD and the City of Pasco are commended for their commitment and investment in fire and
life safety education. Evidence is the assignment of four public educators on shift to the
program.
Fire Investigation Program
According to NFPA Standard 921,29 there are four possible determinations when investigating the causes
of fire:
• Accidental fire cause
• Natural fire cause
• Incendiary fire cause
• Undetermined fire cause
Accurately determining the cause of fires often provides clues to preventing future incidents.
Identifying fires that are set intentionally (incendiary), along with the identification and/or prosecution
of the responsible parties, can prevent additional fires. If the cause of a fire is natural or accidental, it is
also of great value in knowing and understanding its origin. It is of value in identifying where to direct
fire prevention and public education efforts to reduce or prevent reoccurrences.
PFD has four internal personnel available for fire cause determination. There is one fire investigator
assigned to each shift and a program manager on days. Two of the fire investigators have certification
from the National Association of Fire Investigators, National Certification Board as Certified Fire and
Explosion Investigators (CFEI) and two are in the process of being certified. Fire investigators receive a
specialist incentive of 2 percent of top-step firefighter.
There is a depth of internal and external resources available to PFD fire investigators. PFD participates
in the Tri-County Fire Investigation Task Force and collaborates with the law enforcement on
investigations. Pasco Police Department (PPD) has assigned an investigator to work with PFD
investigators on fire investigations. Equipment is available for investigations, as are additional personnel
for larger fire incidents. PFD investigators are responsible for photographing and scene documentation.
As a part of fire investigations, the PPD secures and manages physical evidence that is collected.
Over the past 12 months (April 26, 2015, to April 25, 2016), there were 277 reported fires. Per Revised
Code of Washington (RCW), PFD investigates each fire to determine cause. 30 Of the 277 reported fires,
four were determined to be of natural cause, 49 incendiary, and 44 of undetermined origin. Some
investigations are less formal and only documented in the PFD’s RMS (Record Management System) by
29 NFPA 921: Guide for Fire and Explosion Investigations, (National Fire Protection Association 2014).
30 RCW 43.44.050, Reports and investigation of fires—Police powers, 1996.
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the incident commander. A certified investigator investigates those fires considered to be of suspicious
origin, having significant loss, or by determination of the incident commander.
Pre-incident Planning
Pre-incident plans give firefighters information on specific structures and processes and are a tool for
firefighters to engage in strategy and tactical tabletop discussions before an emergency occurs. Pre-
incident planning involves evaluating protection systems, building construction, contents, and operating
procedures that may influence emergency operations.
A firefighter typically works in an alien environment of heat, darkness, confusion, and extreme danger.
Often, a firefighter’s first visit to a building is when he or she is summoned to an emergency at the
facility; the very time that the internal environment of the structure may be at its worst. Contrary to
Hollywood’s portrayal of the inside of a building on fire, visibility is likely to be nearly zero due to smoke.
A lack of familiarity with the layout of a structure can easily cause a firefighter to become disoriented
and subsequently suffer injury.
It is important that firefighters and command staff have accurate information readily at hand to identify
hazards, direct tactical operations, and understand the proper use of built-in fire resistive features of
structures. This is accomplished by routinely touring structures, developing pre-incident plans, and
conducting tactical exercises — either on-site or tabletop. The standards set forth in NFPA 1620,
Standard for Pre-Incident Planning, guide the development of pre-incident plans. To have value, pre-
incident plans need to be current. Pre-plans should be distributed to all mutual/automatic aid partners.
An ideal pre-incident planning system uses standardized forms and protocols. Data is collected in a
consistent format and presented in a manner that permits commanders and emergency workers to
retrieve it quickly and easily. All require the use of consistent methods for collection, verification,
storage, presentation, and update of emergency plans.
PFD pre-fire plan development is in its infancy with first plan iterations designed as a one-page overview
of buildings for company officers. Final format and design of pre-fire incident plans has not yet
occurred. Deployed pre-fire plans will be available in emergency response vehicle MDTs (mobile data
computers/terminals). A sample is provided below.
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Figure 47: PFD Pre-Incident Plan Template
Recommendations:
• Create a procedure for pre-incident plan development.
• Set a goal and objectives for completion of pre-incident plans.
Statistical Collection and Analysis
The U.S. Fire Administration states that, “A compelling reason for documenting fire and EMS incidents is
a legal requirement.”31 Insurance companies, victims, regulatory agencies, and others may require
documentation of the facts surrounding an incident.
Incident reports of fire response can yield a bevy of insight. Proffering elementary data in fire
department annual reports is common. However, the details can be beneficial to fire departments by
yielding information into the origin of fires, how people are being injured, and the geographic locations
where events are occurring in a jurisdiction, among other evidence.
PFD uses Emergency Reporting System as an RMS for recording incident data. Analysis of response data
occurs in-house. An annual report is prepared for the Pasco City Council. Analysis is typically done by
31 Fire Data Analysis Handbook, U.S. Fire Administration, Second Edition, FA 266/January 2004, page 1.
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the PFD staff for a three-year historical period (although PFD has the ability to search further) to identify
trends or areas of concern. PFD’s RMS has limited analytical capabilities and PFD makes use of it to the
software’s ability. Occasionally, PFD has used the services of an outside specialist to validate RMS data
and to assist in identifying/validating trends.
The fire investigation team conducts informal analysis of fire investigation data. This analysis has proven
effective. On several occasions, this informal analysis has assisted the Pasco PD, including the
investigation and prosecution of a nuisance burner. The fire investigation program is relatively new to
PFD, and they are working to formalize the data analysis process.
Recommendation:
• Complete formalization of the fire investigation and incident analysis process.
Similar to plans review, fire and life safety inspections, fire cause determination, and analysis, PFD and
the City have made constructive strides by dedicating personnel resources to their public education
program. The next step is to draft procedures and policies outlining how information and data from
each program area is captured, analyzed, and reported.
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FIRE DEPARTMENT PLANNING
The fire service nationally creates and gathers large volumes of data in the performance of their duties,
both from their emergency response activities and in preparation for and anticipation of large-scale
disasters. However, many of these same organizations do not analyze the data sufficiently to evaluate
effectiveness and adjust as necessary to become more effective or efficient. The Pasco Fire Department
is an exception to this unfortunate trend. While there are areas for improvement, PFD does quite a lot,
given the resource constraints it faces.
There are two major types of planning fire departments should employ: emergency preparedness and
response planning and administrative planning for the future of the organization. Each of these are
described in the following pages, as well as how PFD fares in these major categories.
Emergency Preparedness & Response Planning
As emergency response agencies, fire departments must thoroughly understand their community risks.
These risks must be quantified. There are numerous risk/consequence or risk/probability matrices
available; but regardless of the labels on the axes, they usually fall into one of the quadrants in the
following figure.
Figure 48: Risk/Probability Matrix32
As the risk is quantified generally into one of the four quadrants, a decision is made based on the level
of risk. Communities cannot create a zero chance of a risk, which would indicate there is no risk.
Likewise, there cannot be 100 percent chance of a risk, since that would make it a certainty, not a risk.
Every community must come to grips with an acceptable level of risk, recognizing that it is improbable,
impractical, and unaffordable to eliminate risk in a community. Using a matrix helps fire department
32 "Risk Impact/Probability Chart: Learning to Prioritize Risks." Risk Impact/Probability Chart. N.p., n.d. Web. 22
June 2016.
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officials determine approximately where the line is between an acceptable and unacceptable risk. It is
important to note that for the individuals directly involved in an incident, it is never considered an
acceptable risk. The quadrants in the previous figure may be defined as follows.
• Low impact/low probability – Risks in the bottom left corner are low level, with acceptable
consequences if the incident occurs. These can often be considered an acceptable risk and
require no further action.
• Low impact/high probability – Risks in the top left corner are moderate level – if the incident
happens, the fire department can usually handle it with existing resources. However, effort
should be given to reduce the likelihood that these incidents occur. This is where community
risk reduction strategies pay significant dividends to a community.
• High impact/low probability – Risks in the bottom right corner are high level if they do occur, but
they are very unlikely to happen. Risks in this quadrant are prime candidates for training and
contingency planning. A fire department may spend time and energy preparing for such an
incident and may even acquire specialized equipment and other non-staff resources to prepare
for this risk. These risks also lend themselves well to community risk reduction strategies, such
as public education, community engagement, and code enforcement.
• High impact/high probability – Risks toward the top right corner are critical. These should be the
highest priorities for the fire department and for the community. Aggressive action is required,
such as staffing for these risks, equipping for these risks, and engaging the community in risk
reduction and preparedness.
Once the community risks are identified and appropriately categorized, plans of action are developed
consistent with their category. In many instances, high-risk facilities are preplanned in the event of an
incident occurring there. Fire personnel become very familiar with these facilities, understanding what
risks each of these facilities poses and what features the building has that can be used to gain a tactical
advantage, such as area separation walls or built-in fire deluge systems. These facilities are known as
target hazards.
PFD has been working with the City’s Inspection Services Manager to identify these buildings since 2015.
The PFD engine company crews use the Occupancy Vulnerability Assessment Profile (OVAP) to identify
the buildings which fall into a “maximum” or “significant” rating. To date, PFD has identified 27 such
buildings in its service area out of the over 300 buildings evaluated. The Department is currently
developing incident scenarios through a fire simulation software platform on those identified buildings
that can be assigned to the crews or provide a guided discussion at the shift level. Further, for those
buildings that have been identified that meet the risk levels, PFD has developed a one-page pre-incident
“site plan” that is uploaded to the CAD system and is accessed by the crews on scene by hyper-links on
the response page of the Mobile Data Terminals (MDTs).
A key component of response planning is developing a critical task analysis and deployment plan for
various incident types within the community. These elements are collectively referred to as Standards
of Cover.
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As mentioned in the Staffing Section of this report, many fire departments have developed a Standards
of Cover. Applying the principles of risk analysis and practical emergency response strategies and
priorities, fire departments can address, in general terms, how they will respond to a variety of
emergency incidents that may occur.
Developing such a document serves to reinforce the particular department’s approach to mitigating
emergencies and helps to inform both policy makers and the community’s citizens about the differences
in response, such as to a single-family house fire as opposed to an apartment building or a
commercial/industrial occupancy.
Standards of Cover perform a safety function to the extent that they serve to remind both firefighters
and their chief officers of the limits of what can be prudently accomplished at an emergency scene. The
creation and the promulgation within the department of such a document can have a lasting effect upon
the effectiveness of the agency.
Recommendations:
• Continue developing a complete database of all “maximum” or “significant” facilities in the
PFD service area.
• Identify all non-facility risks (transportation systems and weather extremes) and develop
target response plans for the high-level risks.
• Develop and publish a Pasco Fire Department-specific Standards of Cover.
Administrative Planning
Administrative planning is often an underappreciated process. It does not have the urgency of response
planning and is therefore easy to put off to a later date. Many fire departments do not fully appreciate
the importance of these plans. There are multiple types of administrative planning devices. The most
common are master planning, strategic planning, capital improvement planning, apparatus and
equipment replacement planning, and personnel planning. Some elements of capital improvement
planning, apparatus and equipment replacement planning, and to a lesser extent personnel planning are
included in master plans.
A master plan is essentially a long-range plan of the community served by the fire department. It
identifies the current conditions that exist in the community and assesses land use and development
plans for the community, as well as the urban growth boundaries for potential future growth.
Population and service demand growth are projected at least ten years into the future, and the impact
of that growth is identified. Recommendations are made in a master plan which address critical
infrastructure gaps or gaps which will occur if the projected growth is not responded to appropriately
and in a timely manner.
A strategic plan is of shorter duration, typically three to five years, and is internally focused. In this type
of planning process, citizen-stakeholders are interviewed to identify their attitudes, priorities, and
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concerns as it relates to the department. Internally, a SWOT Analysis (Strengths, Weaknesses,
Opportunities, and Threats) is conducted. Reconciling the citizen-stakeholder feedback with the internal
SWOT analysis results provides a clear picture of the organization’s environment. This environmental
scan shapes the strategic initiatives the department should focus on. Within each strategic initiative,
multiple goals and subordinate objectives are established, complete with timelines, outcome measures,
and responsible parties. A strategic plan is in essence a three to-five year internal work plan for a
department.
Pasco Fire Department has an apparatus and equipment replacement plan that extends over 15 years
into the future. While it does not have a capital improvement plan in place, this master plan is intended
to address those issues. The results of the capital facility needs are intended to be inserted into the
City’s overall Capital Improvement Plan.
It is commendable that the Pasco Fire Department has recognized the importance of administrative
planning by embarking on this master planning effort. The recommendations contained in this master
plan, if executed, will help PFD serve the community well into the future with appropriate infrastructure
in place in advance of the growth that drives an increase in service demand. PFD does not have a
current strategic plan, but the proper order for these plans to take place suggests that a strategic plan
follow a master plan, not the other way around.
Recommendation:
• Consider conducting a strategic plan at the conclusion of the master planning process.
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CAPITAL ASSETS AND ASSESSMENT OF CURRENT INFRASTRUCTURE
Regardless of an emergency service agency’s financing, if appropriate capital equipment is not available
for the use by responders, it is impossible for a fire department to deliver services effectively. Two
primary capital assets that are essential to the provision of emergency response are facilities and
apparatus (response vehicles).
The following is an inventory and assessment of the capital facilities and apparatus/equipment Pasco
Fire Department relies upon to provide services.
Facilities
Figure 49: Station 81
Address: 310 N. Oregon St.
Station 81 serves as the administrative
offices and headquarters station. It houses
an engine and medic unit, each staffed with
two (four-person minimum assigned to the
station). The administrative offices are
cramped with no room for expansion; the
circulation to the administrative offices
follows a confusing path. Ambulance billing
is conducted in an open space, leading to
confidentiality issues.
SURVEY COMPONENT OBSERVATIONS
STRUCTURE -- STATION 81
Construction type Wood frame
Date 11-30-1999
Seismic protection/energy audits No
Auxiliary power Diesel Generator
Condition Fair
Special considerations (ADA, mixed
gender appropriate, storage, etc.)
Meets ADA standards and is mixed gender
appropriate. Storage is minimal
Square footage 6,200
FACILITIES AVAILABLE
Exercise/workout Yes
Kitchen/dormitory Yes
Lockers/showers Yes
Training/meetings No
Washer/dryer No
FACILITIES AVAILABLE
Sprinkler system Yes
Smoke detection Yes
Security No
Apparatus exhaust system Yes
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Figure 50: Station 82
Address: 3502 Varney Ln. (Airport)
This is a six-bay station on airport property,
minimum six personnel, maximum seven
personnel staffing. Two stay on site for ARFF
responses to the airport. Houses an ARFF
unit, a Stryker unit, a ladder truck and a
medic unit. The station is also home to a
reserve engine and miscellaneous trailers for
operations support. Poor internal flow,
impeding rapid turnout times. Gaps in
exterior walls indicate settling problems.
SURVEY COMPONENT OBSERVATIONS
STRUCTURE -- STATION 82
Construction type Cinder Block
Date 03-13-2006
Seismic protection/energy audits No
Auxiliary power Diesel Generator
Condition Fair/Poor
Special considerations (ADA, mixed
gender appropriate, storage, etc.)
Meets ADA standards and is mixed gender
appropriate. Storage is adequate.
Square footage 10,710
FACILITIES AVAILABLE
Exercise/workout Yes
Kitchen/dormitory Yes
Lockers/showers Yes
Training/meetings Yes, occupancy of 27
Washer/dryer No
FACILITIES AVAILABLE
Sprinkler system Yes
Smoke detection Yes
Security No. Required to be locked at all times due to
FAA rules.
Apparatus exhaust system No – budgeted for 2017
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Figure 51: Station 83
Address: 3203 Road 68
This is a two-bay station (with four bay
storage building out back) and a minimum of
four personnel, maximum five staffing. The
crew splits response on an Engine and a
Medic Unit (two each). Extremely tight living
quarters.
SURVEY COMPONENT OBSERVATIONS
STRUCTURE -- STATION 83
Construction type Wood frame
Date 12-04-1998
Seismic protection/energy audits No
Auxiliary power Diesel Generator
Condition Fair
Special considerations (ADA, mixed
gender appropriate, storage, etc.)
Meets ADA standards and is mixed gender
appropriate. Storage is minimal
Square footage Not Available
FACILITIES AVAILABLE
Exercise/workout No
Kitchen/dormitory Yes
Lockers/showers Yes
Training/meetings No
Washer/dryer No
FACILITIES AVAILABLE
Sprinkler system Yes
Smoke detection Yes
Security No
Apparatus exhaust system Yes
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Figure 52: Vehicle Storage (Station 83 Annex)
Address: 3203 Road 68 (directly behind)
No Picture Available
This building serves as an annex located
directly behind Station 83. The building
stores seasonal apparatus and equipment,
as well as exercise equipment. While not
convenient, the Station 83 crew does have
access to the exercise equipment while on
duty.
SURVEY COMPONENT OBSERVATIONS
STRUCTURE -- VEHICLE STORAGE BUILDING (STATION 83 ANNEX)
Construction type Steel Frame
Date 02-27-2009
Seismic protection/energy audits No
Auxiliary power No
Condition Good
Special considerations (ADA, mixed
gender appropriate, storage, etc.) N/A -- Building is all storage
Square footage 3,500
FACILITIES AVAILABLE
Exercise/workout Yes
Kitchen/dormitory No
Lockers/showers No
Training/meetings No
Washer/dryer No
FACILITIES AVAILABLE
Sprinkler system No
Smoke detection No
Security No
Apparatus exhaust system No
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Figure 53: Station 84
Address: 1208 Road 48
No Picture Available
This unstaffed fire station was acquired by
PFD from Franklin County Fire District #3 as
an asset transfer due to annexation. It is not
well suited as an operational fire station.
The apparatus bays are small, with low
overhead for modern fire apparatus. The
crew quarters are not designed for shift
accommodation. The PFD also owns the
adjacent home, giving the combined
property expansion potential.
SURVEY COMPONENT OBSERVATIONS
STRUCTURE -- STATION 84
Construction type Cinder Block
Date 1958
Seismic protection/energy audits No
Auxiliary power No
Condition Poor
Special considerations (ADA, mixed
gender appropriate, storage, etc.)
Does not accommodate personnel
assignments well. Not ADA or mixed gender
appropriate. Very limited storage.
Square footage 1,920
FACILITIES AVAILABLE
Exercise/workout No
Kitchen/dormitory Yes
Lockers/showers No
Training/meetings No
Washer/dryer No
FACILITIES AVAILABLE
Sprinkler system No
Smoke detection Yes, battery only
Security No
Apparatus exhaust system No
Facilities Discussion
The PFD facilities are collectively marginal at best from a design and function standpoint. The physical
location of the stations from a service delivery standpoint is addressed in the Service Delivery and
Performance section of this report.
Station 81 is crowded as a result of combining the administrative offices with the fire station. Station 82
that serves the airport well but not necessarily the surrounding portion of the city the airport sits within.
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The airport itself acts as a barrier to the more populated areas that are physically closest to the station.
The station is poorly designed, impeding rapid turnout for crews assigned there with a wall separating
the apparatus bay into two segments. Gaps in exterior walls may indicate building settling or poor
construction. Station 83 is a small station made more tolerable by the addition of the annex behind the
station. The annex located behind Station 83 is an inexpensive but functional facility that houses
seasonal apparatus and equipment.
Station 84 is an acquired facility from Franklin County Fire District #3 and is wholly inadequate as an
operational fire station. The facility is small, is not designed to house a shift crew, nor is it adequate to
house most modern fire apparatus.
None of the fire stations have washers and dryers for crews to launder bedding or uniforms, requiring
crews to bring potentially biohazard-contaminated clothing home to launder. There is only one training
room amongst all of the stations, which may facilitate centralized training for the Department, but does
not accommodate individual crew training sessions, which is a more common need. Stations that house
crews are protected by a fire sprinkler system and smoke detectors.
Recommendations:
Station 81
• Relocate the administrative offices out of Station 81.
− Consider collocating the administration with a new fire station designed to
accommodate both a functioning fire station and the administrative offices.
• Remodel Station 81 to convert the existing administrative offices into more living quarters.
Station 82
• Evaluate exterior wall cracks to determine potential settling issues.
• Interior dividing wall in apparatus bay impedes rapid turnout by crews. Breaching this wall to
facilitate rapid turnout should be explored.
• Complete the installation of the apparatus exhaust system slated for 2017.
• Focus on facility security as required by FAA regulations.
Station 83
• Relocate Station 83 with additional training room and additional living space.
Station 84
• Consider temporary use of this facility for deployment of a peak activity unit.
• Relocate Station 84 as per recommendations in the Service Delivery & Performance section of
this report.
Apparatus
The Pasco Fire Department maintains a high quality fleet of response vehicles that are generally newer
and clearly well maintained. The overall condition of the fleet was found to be generally good to
excellent. This is partly due to the fleet maintenance division of the Public Works Department for the
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City of Pasco. If heavy work is required to be performed on the pump, tank, or other elements of the
suppression function of the unit, repairs are contracted to a commercial fire apparatus repair facility in
Spokane by certified Emergency Vehicle Technicians (EVTs). The high quality of the fleet is also
significantly due to the apparatus replacement schedule the City maintains for all of its apparatus. The
City maintains a 15-year replacement schedule for all of the fire apparatus, which has funding allocated
annually from the General Fund or ambulance utility fund. An inventory of fire apparatus, configuration,
and condition for each station is provided in the following figure.
Figure 54: Apparatus Inventory and Condition
Station 81 Apparatus
Apparatus
Designation Type Year Make & Model Condition Min.
Staffing
Pump
Capacity
Tank
Capacity
E2811/#3137 Engine T1 2014 Rosenbauer New 2 1,500 750
E2861/#3119 Engine T6 2002 Ford F-550 Good 2 125 250
M2821/#3136 Ambulance T2 2014 Dodge 4500 New 2 N/A N/A
UT280/#3127 Staff Car 2010 Chevy 1500 Good 1 N/A N/A
UT281/#3122 Staff Car 2005 Chevy 2500 Good 1 N/A N/A
UT282/#3139 Command 2015 Chevy Tahoe New 1 N/A N/A
MO281/#3138 Staff Car 2014 Ford F250 Good 1 N/A N/A
FB281 Rescue Boat 2016 22’ Rescue Boat New 3 200 N/A
Station 82 Apparatus
Apparatus
Designation Type Year Make & Model Condition Min.
Staffing
Pump
Capacity
Tank
Capacity
L2811/#3134 Ladder T1 2012 Rosenbauer Good 2 2,000 400
R2841/#3125 Rescue T4 2006 Ford F550 Good 2 N/A N/A
M2822/#3135 Ambulance T2 2014 Dodge 4500 New 2 N/A N/A
E2814/#3124 Engine T1 2006 HME Reserve N/A 1,500 750
AR281 ARFF 2008 Oshkosh Good 1 1,500 1,500
AR282 ARFF 1990 Oshkosh Good 1 1,500 1,500
Tender 2822 Tender T2 --- M923 A2 6X6 New Build 1 500 2,000
M2829/#3131 AmbulanceT2 2011 Chevy 4500 Reserve N/A N/A N/A
Station 83 Apparatus
Apparatus
Designation Type Year Make & Model Condition Min.
Staffing
Pump
Capacity
Tank
Capacity
E2813/#3121 Engine T1 2003 Central States Good 2 1,500 750
M2823/#3133 Ambulance T2 2012 GMC 4500 Good 2 N/A N/A
E2863/#3132 Engine T6 2012 Ford F-550 New 2 125 250
E2819/#3116 Engine T1 1999 HME Reserve N/A 1500 750
A2828/#3130 Ambulance T2 2009 Chevy4500 Reserve N/A N/A N/A
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SERVICE DELIVERY AND PERFORMANCE
Service Demand Study
The following figure displays Pasco Fire Department service demand for the previous five calendar years.
The annual incidents displayed below represent all incident types including mutual/automatic aid given
to neighboring fire jurisdictions.
Figure 55: Service Demand, 2011 - 2015
PFD service demand increased by over 20 percent (20.4 percent) during the time period displayed in this
figure. The following figure uses National Fire Incident Records System (NFIRS) incident type definitions
to categorize incidents as “Fires” (structures, vehicle, brush, any responses categorized as a 100 series
incident in NFIRS), “EMS” (all calls for medical service including motor vehicle accidents [MVAs] and
rescues, any responses categorized as a 300 series incident in NFIRS), and “Other” (false alarms, hazmat
incidents, service calls, all other NFIRS incident series).
2011 2012 2013 2014 2015
Annual Incidents 4,238 4,400 4,341 4,715 5,103
0
1,000
2,000
3,000
4,000
5,000
6,000
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Figure 56: Incident Type, 2014-2015 Incidents
This figure demonstrates that EMS incidents represent the majority of service demand in the PFD service
area. As the primary provider of BLS and ALS emergency medical first responder and transport service in
Pasco, EMS incidents comprise nearly 79 percent of PFD service demand. Incidents coded as a fire
represent 5.4 percent of service demand during 2014 and 2015. This is more than twice the industry
norm for fire demand. All other incident types make up nearly 16 percent of PFD service demand.
Temporal Demand
It is also useful to evaluate service demand temporally in order to determine if there are specific trends
during certain periods where staffing can be modified to better fit the demand. The following figures
display total service demand during 2014 and 2015, summarized by various measures of time.
Figure 57: Service Demand by Month of the Year, 2014-2015
Fires Other EMS
Incident Type 5.4%15.7%78.9%
0%
20%
40%
60%
80%
100%
0%
1%
2%
3%
4%
5%
6%
7%
8%
9%
10%
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Service demand varies within a range of 2.4 percent throughout the year. In general, the lowest service
demand occurs during December, January, and February. July and August demonstrate the greatest
service demand in this figure.
Figure 58: Service Demand by Day of the Week, 2014-2015
As with monthly service demand, service demand varies throughout the week. Again, the range is
relatively narrow (slightly less than 2 percent).
Figure 59: Service Demand by Hour of the Day, 2014-2015
PFD service demand correlates with the activity of people, with workload increasing during daytime
hours and decreasing during nighttime hours as shown in this figure. Incident activity is at its highest
0%
2%
4%
6%
8%
10%
12%
14%
16%
Sunday Monday Tuesday Wednesday Thursday Friday Saturday
0%
1%
2%
3%
4%
5%
6%
7%Midnight1 AM2 AM3 AM4 AM5 AM6 AM7 AM8 AM9 AM10 AM11 AMNoon1 PM2 PM3 PM4 PM5 PM6 PM7 PM8 PM9 PM10 PM11 PMPage 138 of 254
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between 10:00 AM and 6:00 PM. Over 64 percent of calls for service occurred between 08:00 AM and
08:00 PM. There is a significant and predictable increase in service demand during the day. This provides
an opportunity for PFD to anticipate increased workload and improve response performance by
deploying additional apparatus during periods of peak activity.
Geographic Service Demand
In addition to the temporal analysis of service demand, it is useful to examine the geographic
distribution of service demand. Using incident location data provided by PFD, ESCI plots incident
locations and calculates the mathematical density of 2014 and 2015 service demand in the PFD service
area.
Figure 60: Geographic Service Demand –All Incident Types, 2014-2015
PFD service demand is concentrated in the central core area of Pasco, between Station 81 and Highway
395. Additionally, the commercial corridor along Road 68 and the residential neighborhoods north of
Interstate 182 experience higher incident density. The majority of the incidents displayed in this figure
are EMS incidents (78.9 percent). The following figure displays 2014-2015 fire incidents.
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Figure 61: Geographic Service Demand –All Fires Incidents, 2014-2015
Fire incidents are the least frequent incident type in the data set. However, incidents categorized as
Fires are distributed throughout the study area in a pattern similar to the overall incident data.
Distribution Study
The distribution analysis presents an overview of the current deployment of facilities, apparatus, and
personnel within the Pasco Fire Department service area.
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Figure 62: Study Area
PFD currently provides fire protection, EMS first response and transport (ALS and BLS), hazmat, and
rescue service within the City of Pasco. In addition, PFD operates Aircraft Rescue and Fire Fighting (ARFF)
apparatus at the Tri-Cities Airport. The City of Pasco encompasses approximately 37 square miles. There
are islands of unincorporated Franklin County inside the City of Pasco. Through an inter-governmental
agreement (IGA), PFD and Franklin County Fire District #3 (FCFD#3) have signed an automatic aid
agreement which ensures that the closest available resource is dispatched to emergency incidents in
these areas. The same IGA transferred ownership of the FCFD#3 Station 32 to PFD (labeled as Station 84
in the figure above).
In the figure below, ESCI utilizes Washington Office of Financial Management (OFM) population (2015
estimate) and traffic analysis zone (TAZ) data to display population density Pasco area. Using National
Fire Protection Association (NFPA) population classifications, population density is categorized as urban,
suburban, and rural.
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Figure 63: Population Density, Office of Financial Management (OFM) 2015 Population Estimate
The population density inside Pasco is largely urban in nature. The majority of area categorized as rural
or low density (less than 500 per square mile) inside the Pasco Urban Growth Boundary (UGB) is zoned
for industrial land use; or currently undeveloped land slated for future development and population
growth. The overall population density inside of Pasco is approximately 1,844 per square mile.
The Washington Surveying and Rating Bureau (WSRB) is a statewide insurance industry organization that
evaluates fire protection for communities across Washington. A jurisdiction’s WSRB rating is an
important factor when considering fire station and apparatus distribution since it can affect the cost of
fire insurance for fire district residents and businesses.
To receive maximum credit for station and apparatus distribution, WSRB recommends that all “built
upon” areas in a community be within 1.5 road miles of an engine company. Additionally, a structure
should be within five miles of a fire station to receive any fire protection rating for insurance purposes.
In the following figures, ESCI examines PFD fire facility distribution by WSRB distance criteria over the
existing road network.
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Figure 64: Station Distribution, WSRB Criteria
Approximately 28 percent of the road network inside Pasco is within 1.5 miles of a PFD station. The
entire PFD service area is within five miles travel of a PFD station. PFD is currently rated as a Class 5 fire
department (Class 1 represents exemplary fire protection).
Similar to engine company criteria, WSRB recommends that ladder companies (aerial apparatus) be
placed at 2.5-mile intervals in areas with buildings over three stories in height.
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Figure 65: Aerial Apparatus Distribution, WSRB Criteria
The PFD aerial apparatus currently placed at Station 82 is well placed to respond throughout the PFD
service area.
The WSRB Public Protection Classification program only addresses fire suppression activities and is
primarily concerned with the geographic coverage of property. For jurisdictions such as PFD that
respond to all types of emergencies, the travel time required to respond from a fire station to any type
of emergency call for service is of equal importance. The following figures demonstrate travel time over
the existing road network. Travel time is calculated using the posted speed limit and adjusted for
negotiating turns and intersections.
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Figure 66: Travel Time Model, NFPA Criteria
Figure 66 demonstrates PFD travel time capabilities from the currently staffed PFD fire stations. National
consensus standards, such as the NFPA 1710,33 specify that career staffed, urban fire departments
should deploy resources such that 90 percent of emergency service demand can be reached in four
minutes or less travel time. Pasco City Council has adopted a travel time standard of six minutes travel
time for the arrival of the first apparatus on scene. The following figure displays the portions of the PFD
service area within six minutes or less travel time of a staffed fire station. Note that the street network
data provided to model travel time does not include data for the Tri-Cities Airport. However,
examination of aerial photo data reveals that the entire airport complex is well within four minutes
travel of Station 82.
33 NFPA 1710, Standard for the Organization and Deployment of Fire Suppression Operations, Emergency Medical
Operations, and Special Operations to the Public by Career Fire Departments (National Fire Protection Association
2010).
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Figure 67: Potential Travel Time Model, PFD Response/Travel Time Model
As illustrated in the figure above, the majority of Pasco is within six minutes travel time of a PFD staffed
station. More importantly, the following figure demonstrates the percentage of historical service
demand (2014-2015) that is within six minutes or less travel time of a PFD staffed fire station.
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Figure 68: 2014-2015 Service Demand and Six Minutes Travel Time Model
Approximately 95 percent of the incidents displayed in this figure occurred within six minutes travel
time of a staffed fire station. The travel time model in this figure displays potential travel time capability,
assuming all apparatus are in quarters and available to respond. The following figure uses GIS data
provided by PFD to display actual travel time performance in 2015 summarized by the PFD geographic
fire management zones (FMZ).
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Figure 69: Actual Travel Time Performance by Fire Management Zone, 2015
Using an approximately 0.25-mile grid, PFD has established fire management zones (FMZ) for the PFD
service area. The Department is able to track the distribution of incidents and actual travel time
performance within each FMZ. As opposed to the previous travel time models, which model potential
travel time capability, Figure 69 demonstrates actual travel time performance within a distinct
geographic area. As displayed in this figure, 2015 actual travel time performance did not meet the PFD
travel time standard of six minutes in approximately 33 percent of the PFD service area. The use of
geographic FMZ’s is an effective tactic to pinpoint areas where traffic delays, lack of street network
connectivity, or responses from a more distant station (due to concurrent incidents) negatively affects
actual response performance.
Recommendation:
• Improve street networks for improved response time performance in areas where compliance
is not achieved due to poor circulation (such as east-west of State Route 395).
• Add Emergency Vehicle Preemption technology to signalized intersections for improved
response times.
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Concentration Study
The concentration analysis examines PFD’s ability to assemble multiple resources (both apparatus and
people) in a timely manner. The following figure displays the concentration of PFD stations in the study
area in eight minutes or less travel time. This is to ensure that enough people and equipment arrive
soon enough to safely control a fire or mitigate any emergency before there is substantial damage or
injury. The eight-minute travel time criteria is based on NFPA 1710. The NFPA 1710 Standard specifies
that the full first alarm assignment for a moderate risk structure fire (single story residential structure)
should arrive within eight minutes travel time, 90 percent of the time (90th percentile).
Figure 70: Station Concentration, Staffed Stations
The PFD full first alarm assignment for a structure fire calls for 11 personnel and apparatus from all
three staffed fire stations. Figure 70 demonstrates that only a small portion of the core area of Pasco is
within eight minutes or less travel time of all three of the PFD stations. Pasco City Council has adopted a
travel time goal of 12 minutes for the arrival of the full first alarm assignment to a fire suppression event
(measured at the 90th percentile). The following figure demonstrates the portions of the PFD service
area that are within 12 minutes or less travel time of all three staffed fire stations.
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Figure 71: Full First Alarm, 12 Minutes Travel Time (PFD Travel Time Goal)
At 12 minutes or less travel time, PFD is capable of assembling a full first alarm throughout the majority
of the service area. Again, this figure models potential travel time assuming all apparatus and personnel
are available. In 2015, PFD required over 22 minutes to meet the adopted standard for a full first alarm
(11 personnel) for a fire suppression event 90 percent of the time. Note that the PFD full first alarm
assignment of 11 personnel does not meet industry best practice34 recommendations of 14 to 16
personnel for a moderate risk structure fire. Examination of the 2015 Performance Measures Report
reveals that in 2015 PFD met the 12-minute travel time goal for a full first alarm for 50 percent of fires
suppression events.
By increasing the staffing on existing engine companies and increasing the number of engine companies,
PFD increases the effective response force for structure fires to within industry best practices and
regional norms. Increasing the staffing on engine companies reduces the reliance upon medic unit
staffing being transferred to the engines, which leaves the EMS response element vulnerable.
34 Center for Public Safety Excellence/Commission on Fire Accreditation (CPSE/CFAI) Standards of Cover, 5th
Edition.
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Reliability Study
The workload of emergency response units can be a factor in response time performance. The busier a
given unit, the less available it is for the next emergency. If a response unit is unavailable, then a unit
from a more distant station (or mutual/automatic aid department) must respond, increasing overall
response time. Although fire stations and response units may be distributed to provide quick response,
that level of performance can only be obtained when the response unit is available in its primary service
area.
Unit hour utilization (UHU) measures the amount of time that a unit is committed to an incident. The
larger the number, the greater the unit’s utilization and the less available it is for assignment to
subsequent calls for service. The following two figures display the total time PFD apparatus were
committed to an incident in 2014 and 2015 and expresses this as a percentage of the total hours that
year.
Figure 72: 2014 Unit Hour Utilization (UHU)
Apparatus Average Time
Committed
Total Time
Committed UHU Rate
AR281 41:25 8:58:25 0.10%
AR282 32:45 3:16:29 0.04%
BC281 23:39 104:05:07 1.19%
E2811 18:23 448:38:23 5.12%
E2813 21:38 500:13:30 5.71%
E2819 19:48 214:50:32 2.45%
E2861 33:47 19:42:15 0.22%
E2863 35:37 13:39:07 0.16%
L2811 18:54 308:11:03 3.52%
M2821 31:46 905:15:21 10.33%
M2822 31:42 970:40:56 11.08%
M2823 36:30 798:49:30 9.12%
M2824 35:59 250:40:36 2.86%
MO281 25:45 55:48:09 0.64%
R2841 25:32 4:40:57 0.05%
TO281 1:10:28 46:58:47 0.54%
Figure 73: 2015 Unit Hour Utilization (UHU)
Apparatus Average Time
Committed
Total Time
Committed UHU Rate
AR281 31:26 7:51:28 0.09%
AR282 51:04 3:24:17 0.04%
BC281 21:21 310:31:22 3.54%
E2811 18:01 501:59:15 5.73%
E2813 19:51 497:22:23 5.68%
E2819 21:08 59:52:02 0.68%
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Apparatus Average Time
Committed
Total Time
Committed UHU Rate
E2861 1:23:54 85:18:00 0.97%
E2863 42:45 34:54:31 0.40%
L2811 17:51 464:50:18 5.31%
M2821 30:47 1015:50:58 11.60%
M2822 31:16 1059:07:52 12.09%
M2823 35:53 962:25:43 10.99%
M2829 47:20 24:27:07 0.28%
MO281 25:54 44:27:46 0.51%
R2841 10:06 1:30:51 0.02%
TO281 1:38:35 57:30:40 0.66%
Not surprisingly, the PFD transport medic units display the highest UHU rates. These units respond to
nearly 80 percent of current service demand. Transport time to the hospital, patient handoff, report
writing, and restocking increases the time medic units are unavailable. On average, medic units are
committed to an incident between 30-35 minutes. The first out fire apparatus at each of the PFD
stations all demonstrate similar UHU rates in the range of 5 to nearly 6 percent. The average time an
engine was committed to an incident varies from approximately 18-20 minutes.
Industry best practice documents35 suggest that UHU rates for individual apparatus in the range of 25 to
30 percent for fire and EMS units can lead to employee burnout issues and can negatively affect station
and unit reliability. Currently UHU rates in the study area do not exceed these levels. Note that as unit
hour utilization increases, not only are units less available for emergency responses, but they are also
less likely to complete other duties, such as inspections, training, public education, and maintenance.
PFD should monitor unit hour utilization to ensure that response performance and other duties are not
negatively affected. The overall UHU rate for all PFD apparatus increased from approximately 53 percent
to over 58 percent between 2014 and 2015.
It is important to understand that PFD’s response protocols necessitate Medic Unit crews to merge with
their sister fire apparatus when a multi-unit fire response is dispatched (i.e., structure fire), resulting in a
four-person fire unit and a non-staffed Medic Unit. This is also dependent upon the medic units and
their sister fire engines being in quarters and available for the crews to merge. If the medic unit and fire
engine are separated when the dispatch occurs, they respond to the fire incident separately. In either
case, medical incident response capability is compromised in favor of the critical need for the additional
staffing on the structure fire response. As the UHU for medic units increases above their current activity
levels, failure rates (the frequency a unit is unable to achieve its response time objective to its own area)
will increase and response times will degrade. Engine staffing will be an important factor to consider as
the Medic Unit UHU approaches 25 percent.
35 Center for Public Safety Excellence/Commission on Fire Accreditation (CPSE/CFAI) Standards of Cover, 5th Edition.
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Simultaneous or concurrent incidents can affect a fire department’s ability to muster sufficient
resources to respond to additional emergencies. The following figure demonstrates the number of
concurrent incidents experienced by PFD in 2014 and 2015.
Figure 74: Concurrent Incidents, 2014-2015
Concurrent
Incidents
Total
Incidents
Percent
Concurrent
2014 1,521 4,715 32.3%
2015 1,843 5,103 36.1%
Over 30 percent of 2014 and 2015 PFD service demand occurred while another incident was in progress.
The number of concurrent incidents increased from 1,521 to 1,843 between 2014 and 2015. With over
36 percent of the service demand occurring concurrently in 2015, the increase over 2014 reflects 21
percent growth year-over-year.
PFD has identified the frequency of concurrent incidents as an issue that negatively affects PFD response
performance. In addition to tracking the overall occurrence of overlapping incidents, PFD tracks the
percentage of instances of overlapping incidents within each station’s service area. In other words, how
many times was a station committed to an incident when another incident in the same station area
occurred? The following figure displays the percentage of concurrent incidents that occurred within
each of the PFD first due station areas.
Figure 75: Concurrent Incidents by Station Area, 2014-2015
2014 2015
Station 81 12.5% 15.4%
Station 82 12.4% 13.2%
Station 83 10.4% 12.3%
In 2015, Station 81 exhibits the highest percentage (15.4 percent) of concurrent incidents. Station 83
demonstrates the lowest percentage (12.3 percent) of concurrent incidents. All three PFD stations were
committed to an incident over 10 percent of the time when another incident occurred in the same
station’s service area. Note that between 2014 and 2015, the frequency of concurrent incidents
increased by an average of almost 3 percent in each of the PFD station areas.
Response Performance Summary
In the performance summary, ESCI reviews current PFD response performance. The Department
provided ESCI with 2014-2015 incident and apparatus response data recorded and stored in the PFD
records management system software program. As required by the Revised Code of Washington
(RCW)36 the Pasco City Council has established response performance goals and provides a report
36 RCW 35.103 and 35A.92: Fire Departments-Performance Measures
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documenting response performance annually. The following figure displays the current PFD response
performance goals and the Department’s actual response performance during 2015.
Figure 76: Response Performance Goals and Performance, 2015
Response
Type
Adopted
Turnout
Standard
(Minutes)
Actual
Performance
(Minutes)
Percent
Meeting
Standard
Adopted
1st
Arrival
Response
(Minutes)
Actual
Performance
(Minutes)
Percent
Meeting
Standard
Fire
Suppression
Response
(NFIRS 100- 199)
2:00 2:53 63% 6:00 5:59 90.1%
Full First Alarm-
Fire Suppression
Response
NA NA NA 12:00 22:31 50%
First Arriving
Medical Unit
(BLS or ALS)
2:00 1:51
93.1%
6:00
6:20
88.1%
First Arriving ALS
Unit 2:00 1:52 93.2% 6:00 5:21 92.9%
Hazardous
Material 2:00
3:14
50%
6:00
5:21
92.9%
Technical
Rescue 2:00 1:37 91.7% 6:00 8:11 67.6%
ARFF N/A N/A N/A 3:00
2:15
100%
Wildland 2:00
3:28
58%
6:00 7:48
84.6%
Overall 2015
Response
Performance
2:00 2:06 88% 6:00 6:02 89.8%
The data displayed in this figure and the PFD Annual Performance Report meets the intent of RCW
35.103 and 35A.92. RCW 35.103 and 35A.92 specify that fire departments establish levels of service,
types of service, and performance objectives (e.g., turnout time and response time). These elements are
to be reported every year. Turnout time is defined as, “…the time beginning when units receive
notification of the emergency to the beginning point of response time”. Response time is defined as,
“…the time that begins when units are enroute to the emergency incident and ends when the unit
arrives on scene”.
Industry best practice documents such as the Center for Public Safety Excellence and the Commission on
Fire Accreditation (CPSE/CFAI) Standards of Cover document and the national consensus standard NFPA
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171037 recommend that fire departments track and report all of the components of total response time
listed as follows:
• Call Processing Time – The amount of time between when a dispatcher answers the 911 call and
resources are dispatched.
• Turnout Time – The time interval between when units are notified of the incident and when the
apparatus are enroute.
• Travel Time – The amount of time the responding unit actually spends travelling to the incident.
• Total Response Time – Total Response Time equals the combination of “Processing Time,”
“Turnout Time,” and “Travel Time.”
The following figure displays the performance recommendations from the NFPA 1710 standard.
Figure 77: NFPA 1710 Response Performance Recommendations
Response Element NFPA Recommendation
Call Processing 60 Seconds @ 90th Percentile
Turnout Time 60 Seconds @ 90th Percentile for EMS
80 Seconds @ 90th Percentile for Fire
Travel Time (First unit on scene-Fire or EMS) 4 Minutes @ 90th Percentile
Travel Time (First arriving ALS unit) 8 Minutes @ 90th Percentile
Travel Time-Full First Alarm (Moderate risk-structure fire) 8 Minutes @ 90th Percentile
Call Processing Time
In Franklin County, the Franklin County Communications Center serves as the public safety answering
point (PSAP) for 911 emergency calls. The communications center is also responsible for dispatching
police, fire, and EMS agencies in Franklin County. As part of the annual performance report, PFD reports
call processing time performance data provided by the county communications center. In 2015, the
dispatch center met the NFPA 1710 criteria for call processing time (60 seconds) approximately 53.3
percent of the time. As reported, 90 percent of PFD incidents were dispatched in 116 seconds or less.
The Franklin County Dispatch Center is a countywide multidisciplinary agency and call processing time is
not under the direct control of the PFD. However, Department leaders need to be aware of call
processing time performance. ESCI commends PFD for monitoring call processing performance and
encourages the Department to work cooperatively with the dispatch center to work toward meeting the
national standard.
Turnout Time
As displayed in Figure 76, the PFD turnout time standard is two minutes (120 seconds) or less for all
types of emergency incidents (measured at 90 percent). NFPA 1710 calls for turnout times of 60 seconds
for EMS emergencies and 80 seconds for fire emergencies. Overall, PFD apparatus were enroute to 90
37 Center for Public Safety Excellence/Commission on Fire Accreditation (CPSE/CFAI) Standards of Cover, 5th
Edition., NFPA 1710, Standard for the Organization and Deployment of Fire Suppression Operations, Emergency
Medical Operations, and Special Operations to the Public by Career Fire Departments (National Fire Protection
Association 2010).
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percent of emergency incidents in 2 minutes 6 seconds or less. Further examination of the data in
Figure 76 reveals that for certain types of incidents (structure fires, wildland fires, hazmat), PFD turnout
time performance exceeds the adopted goal by nearly 60 to 90 seconds.
Turnout time is one area of the overall response performance that field personnel have at least some
ability to control; given good training, information concerning current performance, and facilities that
allow for rapid and efficient movement of personnel. PFD has identified turnout time performance as an
area for improvement.
Travel Time
The Pasco City Council adopted travel time standard is six minutes or less travel time for the arrival of
the first unit on scene at any type of emergency incident (measured at 90 percent). NFPA 1710 standard
specifies a travel time of four minutes or less for the arrival of the first unit on scene at fire or EMS
emergencies. Overall in 2015, the first PFD apparatus on scene required 6 minutes 2 seconds to travel to
90 percent of incidents. Note that the PFD travel time standard for ARFF incidents at the Pasco Airport is
three minutes; PFD met the standard for 100 percent of ARFF incidents in 2015.
In addition to the performance standards for the arrival of the first unit on scene, PFD identifies travel
time performance goals for the arrival of a full first alarm at a fire suppression event and the arrival of
the first advanced life support (ALS) unit at an EMS incident. As displayed in Figure 76, PFD only meets
the standard for a full first alarm 50 percent of the time. PFD ALS apparatus arrive at nearly 93 percent
(92.9 percent) of ALS EMS emergencies in six minutes or less travel time. Note that the NFPA travel time
standard for the arrival of an ALS unit is eight minutes or less travel time if part of a first responder BLS
system that provides a travel time of four minutes or less.
Travel time is potentially the longest component of total response time. The distance between the fire
station and the location of the emergency influences total response time the most. The quality and
connectivity of streets, traffic congestion, and geography all play crucial roles in travel time
performance. The use of traffic control technology (signal pre-emption devices), closest unit dispatch
using automatic vehicle location (AVL), and mobile data terminals with vehicle routing software are
examples of using modern technology to reduce the travel time and improve response performance.
Note that PFD is pursuing all of these technological means to improve response performance. ESCI
commends PFD and City of Pasco leaders for these efforts.
The travel time models in the Distribution Study demonstrate that PFD apparatus have the potential to
reach over 90 percent of service demand in six minutes or less travel time. Figure 76 shows that PFD
overall actual travel time performance is slightly over six minutes (06:02 at 90 percent). However, PFD is
unable to assemble adequate resources from the three currently staffed stations to assemble a full first
alarm assignment to mitigate a fire suppression event beyond the capabilities of a single engine.
Additionally, as discussed elsewhere in this report, future growth and increasing service demand will
negatively affect travel time performance in the future.
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Total Response Time
Industry best practices recommend tracking and recording the individual components of total response
time. By tracking the individual components of total response time, fire jurisdictions are able to identify
and correct specific deficiencies. PFD appropriately follows the provisions of RCW 35.103/RCW 35A.92
Fire Departments: Performance Measures, in establishing the metrics of its performance. The following
figure displays PFD overall emergency response performance for 2014 through 2015. Non-emergent
incidents, mutual or automatic aid responses given outside of Pasco, cancelled calls, data outliers, and
invalid data points have been removed from the data set.
Figure 78: PFD Overall Response Performance, 2014-2015
Note that call processing time is not included in the calculation of response time in this figure. Although
PFD monitors call processing time, the data provided to ESCI did not include the time the 911 center
received the initial call, therefore response performance is measured from the time PFD is dispatched to
the arrival of the first unit on scene. This is a commonly used measurement of response time, especially
for agencies such as PFD that are dispatched by a separate dispatch center.
The most frequent response time in the data displayed above occurred between five and six minutes.
Cumulatively, PFD units arrived at over 73 percent (73.2 percent) of emergency incidents in six minutes
or less from the time PFD was dispatched to the incident. The first unit on scene arrived at 90 percent of
emergency incidents in 7 minutes 15 seconds or less from the time units were dispatched.
In ESCI’s experience, Pasco Fire Department’s response performance compares favorably to that of
similarly configured fire jurisdictions, which provide similar services to comparable service areas and
population. PFD is to be commended for providing a high level of service with a relatively low number of
resources when compared to other fire jurisdictions.
0%
10%
20%
30%
40%
50%
60%
70%
80%
90%
100%
0
200
400
600
800
1,000
1,200
1,400
1,600
1,800
2,000
0:00<01:00<02:00<03:00<04:00<05:00<06:00<07:00<08:00<09:00<10:00<11:00<12:00<13:00<14:00<15:00<16:00<17:00<18:00<19:00<20:00<21:00<22:00<23:00<24:00<25:00<26:00<27:00<28:00<29:00<30:00MoreCumulative Percent Frequency of Incidents Response Minutes
Frequency Cumulative Percent
90th Percentile Response
Time-Dispatched to First On
Scene: 07:15
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PFD has appropriately established performance standards that meet the requirements of the Revised
Code of Washington and allow PFD leaders to identify deficiencies and areas for improvement.
Additionally, PFD performance goals are achievable, fiscally responsible, and appear to meet community
expectations. Note that NFPA 1710 as referenced throughout the Response Performance Summary is
simply a point of reference. The NFPA standard is not a mandate or codified. However, NFPA 1710 is a
national consensus standard and should be viewed as a desirable goal.
Looking to the future from a response performance perspective, the Pasco Fire Department faces three
challenges. The first challenge is to maintain or improve on the currently adopted PFD response
performance standards. The second challenge is to reduce the time required to assemble adequate
resources to handle higher risk incidents or provide additional resources to deal with multiple
simultaneous incidents. The third challenge is to increase the assembly of resources to achieve an
effective response force.
Mutual and Automatic Aid Systems
There are numerous mutual aid agreements, both formal and informal, in place between fire, police,
and emergency medical agencies in the Tri-Cities area. Mutual aid is typically employed on an “as
needed” basis where units are called for and specified one by one through an incident commander.
Automatic aid agreements differ from mutual aid agreements in that under certain mutually agreed
upon criteria, resources from the assisting agency are automatically dispatched as part of the initial
response. These agreements facilitate closest unit dispatch to emergencies in boundary areas and allow
for the dispatch of additional apparatus and personnel to specific predefined emergencies. The
following figure displays PFD mutual and automatic aid activity by frequency and by hours in 2015.
Figure 79: Mutual and Automatic Aid, 2015
Examination of the data reveals that approximately 61 percent of aid received by PFD involved fire
incidents. Approximately 66 percent of the aid given by PFD involved EMS incidents. The frequency of
assistance PFD provides other departments is much higher than PFD receives, but the time spent
providing assistance versus the time spent receiving assistance tells another story. The frequency of aid
given by PFD is high relative to what it receives, but the amount of time PFD commits to providing
assistance to others is significantly lower than it receives from others.
One primary purpose of mutual or automatic aid agreements is to improve the regional application of
resources and staffing. Cooperative efforts between jurisdictions are an effective means to bolster a
community’s fire protection resources or to reduce unnecessary redundancy and overlap between
communities. This is especially important in an area such as the Tri-Cities. As a metropolitan area with
Mutual/Auto
Aid Frequency Hours -
Fire
Hours -
EMS
PFD Received 55 234.29 25.43
PFD Gave 298 149.34 25.39
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an estimated population of over 270,000, demand for emergency services is amplified in the individual
communities that make up the Tri-Cities.
Technological issues related to passing emergency dispatch information between the Franklin and
Benton County Communications Centers hampers effective automatic aid between Tri-Cities fire
jurisdictions. ESCI encourages PFD to work cooperatively with other Tri-Cities fire jurisdictions and the
county dispatch centers to resolve technological barriers. Also, consider establishing a single regional
dispatch center which would handle emergency communications for all Tri-Cities emergency service
providers.
Incident Control and Management
PFD uses the Incident Command System (ICS) for tactical incident control and the National Incident
Management System (NIMS) as its standard management protocol. These methodologies for managing
emergency incidents are widely accepted industry standards and are incorporated appropriately into
PFD emergency and daily operations.
The Department’s SOG manual addresses the use of the incident command system (ICS) on emergency
scenes. ICS training is included in the annual training schedule. An emergency scene accountability
system (Passport System) is utilized to insure firefighter safety and accountability. PFD effectively utilizes
the ICS and NIMS for emergency and non-emergency operations.
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Future System Demand Projections
In this section, ESCI projects and analyzes future system demand in the PFD service area. Future demand
is largely dependent on changes over time to population, demographics, economics, and the local
infrastructure. This analysis utilizes data from the U.S. Census Bureau, the Washington Office of
Financial Management (OFM), and the City of Pasco Comprehensive Plan.
POPULATION GROWTH PROJECTION
Population History
The Washington Office of Financial Management (OFM) estimates the 2016 population of Pasco as
approximately 70,560 as of July 2016. The following figure illustrates historical population change in
Pasco from 1980 through 2016.
Figure 80: City of Pasco Population History, U.S. Census and Washington OFM Data, 1980-2016
This figure demonstrates the rapid growth in Pasco, especially between 1990 and 2010. Although the
average annual growth rate has slowed, the population of Pasco grew by over 18 percent between 2010
and 2016. The following figure uses OFM estimates from 2010 through 2016 to examine the annual
growth rate in the Tri-Cities (Pasco, Kennewick, and Richland) area.
1980 1990 2000 2010 2016
Population 18,428 20,337 32,066 59,781 70,560
Average Annual Growth
Rate 3.24%1.04%5.77%8.64%3.01%
0%
1%
2%
3%
4%
5%
6%
7%
8%
9%
10%
0
10,000
20,000
30,000
40,000
50,000
60,000
70,000
80,000
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Figure 81: Tri-Cities Annual Population Change, 2010-2016 OFM Estimates
Pasco demonstrates the greatest population growth in the Tri-Cities area during the time period
displayed in this figure. This may be attributed to factors such as annexation of portions of the
unincorporated islands of Franklin County into the City of Pasco or new development given the amount
of land available for development inside the City.
Population Projections
The Washington State Growth Management Act (Chapter 36.70A, RCW) authorizes the Washington OFM
to produce a range of population forecasts at the county level. City and county planners use the OFM
projections to coordinate planning for growth within their respective jurisdictions. The following figure
displays the most recent OFM population projection for Franklin County and a projection for the City of
Pasco based on the OFM population projection for the county.
2010-
2011
2011-
2012
2012-
2013
2013-
2014
2014-
2015
2015-
2016
Kennewick 1.01%0.66%1.66%1.69%0.76%1.06%
Pasco 2.04%2.74%4.68%3.31%0.69%3.40%
Richland 2.15%1.63%2.53%1.84%1.90%0.62%
0%
1%
2%
3%
4%
5%
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Figure 82: Franklin County and City of Pasco Population Projection
Currently the population of Pasco represents approximately 79 percent of the population of Franklin
County. The City of Pasco Comprehensive Plan estimates that the population of the city will represent 80
to 85 percent of the county population by 2027 (the planning period of the current Comprehensive
Plan). In the City of Pasco projection displayed above, ESCI applies a value of 80 percent to arrive at a
population of 92,114 in Pasco by 2025 (approximately 35 percent growth) and demonstrates the
population nearly doubling by 2040 (nearly 91 percent growth by 2040). Note that this analysis uses the
OFM “Moderate Growth Rate”, which appears to correspond closely to the actual growth in Franklin
County.
SERVICE DEMAND PROJECTION
In evaluating the deployment of facilities, resources, and staffing, it is imperative to consider potential
changes, such as population growth, that can directly affect emergency workload. Changes in service
demand may require changes and adjustments in the deployment of staffing and capital assets in order
to maintain acceptable levels of performance. For the purposes of this study, ESCI uses the population
forecast for the City of Pasco presented above and multiplies this by a per capita incident rate derived
from historical service demand for 2014 and 2015. This analysis provides a picture of potential service
demand through 2040, based on population growth in the PFD service area. The results are displayed in
the following figure.
2015 2020 2025 2030 2035 2040
Franklin County 87,755 100,926 115,142 130,284 146,103 162,900
City of Pasco 68,240 80,741 92,114 104,227 116,882 130,320
0
20,000
40,000
60,000
80,000
100,000
120,000
140,000
160,000
180,000
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Figure 83: Projected Service Demand, 2015 through 2040
PFD service demand grew by over 20 percent in the last five years. Based on projected population
growth, PFD can expect to see service demand continue to increase. Fires (of all types) demonstrate the
lowest rate of increase. This reflects a national trend and can be attributed to improvements in building
codes and fire prevention over the last several decades. EMS is expected to continue to be the
predominant factor affecting service demand. Other incidents (including haz-mat, alarm sounding, and
service calls) not involving actual fires are predicted to increase in part due to the use of automatic
alarm systems, which decrease the number of actual fires but increase service demand.
It is not the intent of this study to be a definitive authority for the projection of future population in the
service area but rather to base recommendations for future fire protection needs on a reasonable
association with projected service demand. Since population growth and human activity is a primary
driver of emergency service demand, it is important to have a projection of the future size of the
community. Although population projections can vary, and may change over time, it is clear that PFD
will continue to be an emergency service provider to a growing population. Planning should begin now
to maintain the resources needed to meet the continuing demand for services.
2015 2020 2025 2030 2035 2040
EMS 4,011 4,761 5,432 6,146 6,892 7,685
Other 810 949 1,083 1,225 1,374 1,532
Fires 282 328 374 423 475 529
Total 5,103 6,038 6,888 7,794 8,740 9,745
0
2,000
4,000
6,000
8,000
10,000
12,000
0
2,000
4,000
6,000
8,000
10,000
12,000
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COMMUNITY RISK ANALYSIS
Community risk is assessed based on a number of factors: the service area population and population
density, the demographics of the population, local land use and development, and the geography and
natural risks present within the community. These factors affect the number and type of resources (both
personnel and apparatus) necessary to mitigate an emergency. The following figure examines
population density in the PFD service area.
Figure 84: Population Density, OFM 2015 Traffic Analysis Zone Data
As noted earlier, the population density within the current PFD service area is predominantly urban.
Approximately 79 percent of the population of Franklin County resides in Pasco. Comparing Figure 84 to
the incident density maps in the Service Demand Analysis demonstrates the strong correlation between
service demand and population density.
Demographics
The Washington State Growth Management Act (GMA) and the City of Pasco Comprehensive Land Use
Plan ensure that the projected population growth in Pasco will occur inside the city limits or urban
growth boundary. Infill and development of currently undeveloped land inside the Pasco UGB will
increase the population density (human activity) and community risk in the PFD service area.
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In addition to the distribution of the population, the demographics of the population can affect the
amount of service demand and the risk within a community. The following figure displays the population
by age group within the City of Pasco service area compared to Washington State.
Figure 85: Study Area Population by Age, 2014 U.S. Census American Community Survey (ACS)
The 2014 Census Bureau American Community Survey (ACS) estimates the median age in Pasco as 28.3
years. The estimated median age in Washington State is approximately 37.4 years. Compared to the
state, the percentage of the population over 65 is significantly lower in Pasco. However, the population
group over age 65 is the fastest growing age group in the nation. National medical industry studies
suggest that patients over 65 years of age are three times more likely to access local emergency services
than other age groups. NFPA studies indicate the population segments over 65 or less than 5 are at
higher risk for fatalities in residential fires. The following figure displays additional demographic factors
that can affect community risk in the PFD service area.
Figure 86: PFD Study Area Demographics, 2014 2014 US Census American Community Survey (ACS)
Demographic City of
Pasco
State of
Washington
Median household income $54,700 $60,294
Owner-occupied Housing 66.3% 62.7%
Persons without health insurance 20.6% 12.9%
Personal Income Below Federal
Poverty Level 20.5% 13.5%
The demographics displayed above are factors which indicate a population that is more likely to use fire
department services than other populations. Individuals with lower incomes and no health insurance are
more likely to use local EMS resources compared to individuals with health insurance and a personal
0%
5%
10%
15%
20%
25%
30%
35%
40%
Under 5
years
5 to 14 years 15 to 24 25 to 49 50 to 64 65 or Over
City of Pasco State of Washington
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physician. A somewhat mitigating factor is that a high percentage of owner occupied homes generally
equates to wage earners willing to invest in their community.
Land Use
ESCI uses the data from the City of Pasco Comprehensive Plan to examine current and future land use
within the Pasco Urban Growth Area. Risk is assigned to the land use classifications to present a view of
relative community risk.
• Low Risk – Areas zoned for agricultural purposes, open space, low-density residential and other
low intensity uses.
• Moderate Risk – Areas zoned for medium-density single-family properties, small commercial
and office uses, low-intensity retail sales, and equivalently sized business activities.
• High Risk – Higher-intensity business districts, mixed use areas, high-density residential,
industrial, warehousing, and large mercantile centers.
The following figure maps relative community risk within the PFD service area using the criteria listed
above.
Figure 87: PFD Study Area Community Risk and Land Use
The PFD service area is a mix of low, moderate, and high risk properties. Residential properties are
primarily single family dwellings (approximately 90 percent). While single family dwellings are usually
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categorized as a moderate fire risk, they represent a lower risk when compared to commercial and
industrial properties; low density residential areas are classified as low risk in this analysis. Areas
classified as moderate risk are predominantly commercial properties or commercial/residential mixed
use areas. The areas classified as high risk in this figure represent land designated as industrial, high
density residential and high density mixed use. Note that the area east of Highway 395 is primarily
designated for industrial land use. Currently, most of this area is undeveloped agricultural land;
however, at some time in the future this land will be available for industrial use.
It is also helpful when discussing community risk to examine incident data to determine the types of
properties that actually generate demand for fire department services. The next figure uses National
Fire Incident Reporting System (NFIRS) data provided by PFD to display the actual property use
associated with 2015 incidents.
NFIRS Property Use Category Percent of 2015 Incidents
1 – Assembly (Restaurant, Bar, Theater, Library, Church,
Airport Passenger Terminal) 4.1%
2 – Educational (Private/Public School, Daycare Center) 2.8%
3 – Health Care, Detention & Correction (Nursing Home,
Hospital, Doctor Office, Jail) 11.0%
4 – Residential (Private Residence, Hotel/Motel,
Residential Board and Care) 56.4%
5 – Mercantile, Business (Grocery Store, Service Station,
Business Office, Other Retail) 4.9%
6 – Industrial, Utility, Agriculture, Mining 0.7%
7 – Manufacturing 0.8%
8 – Storage 0.7%
9 – Outside Property, Highway, Residential Street 18.1%
Over 56 percent of PFD service demand in 2015 occurred in residential properties, principally one or
two-family dwellings. Approximately 18 percent of incidents took place on outside property; over 66
percent of these incidents happened on the street network (including state and federal highways) within
the PFD service area. Incidents at properties categorized as health care or detention accounted for 11
percent of 2015 service demand. Nursing homes, doctors’ offices, clinics, and hospitals, comprised over
80 percent of service demand in the health care category. The remaining incidents were distributed at
various other property types as displayed above.
Transportation Risk
The nature and configuration of the transportation network through a fire jurisdiction can affect the
response capabilities of emergency services and the types of risk present in the fire department’s
service area. This is especially true in the PFD service area. The following figure displays the elements of
the transportation network in the PFD service area.
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Figure 88: PFD Study Area Transportation Network
Three limited access highways (Interstate 182, Highway 395, and Highway 12) transect the Pasco area.
The Burlington Northern and Santa Fe Railroad (BNSF) operates rail lines and a major switching yard
within the city. The Port of Pasco operates a water transportation freight facility on the Columbia River
and the Tri-Cities Airport is a FAA Index B commercial airport.
The three highways that run through the PFD service area provide for rapid travel through the service
area. However, limited access onto and across the highways can negatively affect travel time to some
portions of the service area. Additionally, these transportation routes produce increased service
demand due to traffic related emergencies. As discussed previously, incidents on the transportation
network represented over 18 percent of PFD service demand in 2015.
Rail lines in the PFD service area are a risk due to the nature and volume of the materials transported or
handled. Large amounts of chemicals, flammables, and toxic material are transported daily on rail
networks. The 2015 Franklin County Comprehensive Emergency Management Plan (CEMP) estimates
that over 1,000,000 gallons of combustible liquids are transported by rail through Pasco each week.
However, Franklin County Emergency Management has not conducted or commissioned a Commodity
Flow Study, so the actual risk from rail incidents is not currently quantified. The rail lines and sidings
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located in the downtown core area (near Station 81) not only represent a likely substantial level of risk,
but also affect travel time for emergency vehicles in this area.
The Port of Pasco’s waterfront facilities increase activity and potential risk in the industrial area adjacent
to the Columbia River. Historically, service demand is not high in the waterfront area. However, the
potential exists for complex fire or rescue incidents requiring specialized training or equipment or a
large scale incident with far reaching financial and environmental consequences. In addition to the
waterfront area, the Port of Pasco operates the Tri-Cities Airport. PFD provides ARFF service to the
airport from Station 82. Examination of PFD incident data reveals that actual ARFF standby incidents are
infrequent. PFD operations at the airport are discussed in detail elsewhere in this report.
Other Risk Factors
The climate, vegetation, and topography make wildland fire a regular risk in the PFD service area. There
are pockets of undeveloped or primarily agricultural land inside the city limits, interspersed with
residential structures. This increases the potential for a wildland fire to affect the residents of Pasco. In
2015, wildland fires represented approximately 25 percent of fire incidents in the PFD service area. The
Department operates two Type 6 brush units (one at Station 81 and one at Station 83). PFD works
cooperatively with neighboring rural fire districts and state and federal wildland firefighting agencies
during wildland fire emergency incidents. PFD participates in the Franklin County Community Wildfire
Protection Plan (CWPP), which provides a countywide plan to mitigate wildland fire risk. ESCI
encourages PFD to continue working pro-actively to promote wild-land fire prevention and education as
part of the Franklin County CWPP.
The Pasco Fire Department is the first responder to hazardous materials incidents within the PFD service
area. In addition, PFD is a member of the Tri County Regional Hazardous Materials Response Team. The
Franklin County CEMP identifies over 30 “Tier II” facilities in Pasco. These facilities have sufficient
quantities of hazardous materials on site that regulations require they report to appropriate state and
local agencies. PFD should assure that this information is available on apparatus mobile data terminals
(MDT). Further discussion of hazardous materials responses is included in the Current Conditions
section of this report.
Many buildings in the city are used for purposes that create a higher degree of risk. Governmental
buildings, high occupancy buildings, facilities providing care to vulnerable populations, and others may
require greater numbers of fire department resources during an emergency. Additionally, certain
buildings, their contents, functions, or height and size present a greater firefighting challenge and
require special equipment, operations, and training. Building department and tax assessor data can be
utilized to identify and map higher risk structures. ESCI encourages PFD to work with GIS personnel and
the dispatch center to ensure that these buildings are included in the mapping database and available
on the MDTs in PFD apparatus.
The Franklin County Comprehensive Emergency Management Plan provides a framework for mitigation,
response, and recovery activities for natural and human caused hazards that may affect the residents of
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Franklin County. The City of Pasco and Pasco Fire Department participated in the 2015 update to the
plan, and the City is a signatory to the document. The CEMP identifies a multitude of natural and human
caused hazards beyond those discussed above. ESCI commends the City of Pasco and PFD for
participating in the Comprehensive Emergency Management Planning process.
Summary
The purpose of the community risk assessment presented above is to provide an overview of the nature
of community risk in the Pasco Fire Department service area. ESCI recommends that PFD develop a
Community Risk Assessment Plan that includes the following components:
• Identification of risks
• Categorization of risks (Low, Moderate, High)
• Development of strategies and tactics to mitigate risks
• Determination of the appropriate level of fire department resources (apparatus and personnel)
• Monitoring, evaluation, and modification of the Community Risk Plan
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Future Delivery System Models
DEVELOPMENT OF RESPONSE STANDARDS AND TARGETS
ESCI emphasizes the importance of response standards and targets. Once established, these standards
establish measurable goals for service delivery, which then form the baseline for the deployment of
resources. Response standards must be developed by the individual community; and balanced against
the financial aspect of what a community is able and willing to afford.
RCW 35.103 Response Standards and Targets
As discussed in the Service Delivery analysis, the Pasco City Council has established the following
response standards in accordance with RCW Chapter 35.103:
• Fire Suppression Incident: First apparatus on scene and full first alarm assignment (Effective
Response Force).
• EMS: First apparatus (medically equipped) on scene and first advanced life support (ALS)
apparatus on scene.
• Hazardous Materials: First apparatus on scene.
• Technical Rescue: First apparatus on scene.
• Aircraft Rescue and Firefighting: First apparatus on scene.
The adopted standards for the incident categories listed above are:
• Turnout Time: 2:00 minutes or less 90 percent of the time (From the time dispatched to
apparatus enroute).
• Travel Time: 6:00 minutes or less 90 percent of the time (From the time apparatus is enroute to
the arrival of the first apparatus on scene).
• Travel Time: 6:00 minutes or less 90 percent of the time (For the arrival of an advanced life
support apparatus).
• Travel Time: 12:00 minutes or less 90 percent of the time (For the arrival of the full first alarm
assignment at a fire suppression event).
PFD’s ability to meet the standards listed above are discussed at length in the Response Performance
section.
Critical Tasks, Risk, and Staffing Performance
The PFD service area consists of a primarily urban environment with a variety of risks. As the actual or
potential risk increases, the need for higher numbers of personnel and apparatus also increases. With
each type of incident and corresponding risk, specific critical tasks need to be accomplished and certain
numbers and types of apparatus should be dispatched. The discussion below provides examples of the
critical tasks that must be accomplished to mitigate different emergencies.
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Fires
The number and types of tasks needing simultaneous action will dictate the minimum number of
firefighters required to combat different types of fires. In the absence of adequate personnel to perform
concurrent actions, the command officer must prioritize the tasks and complete some in chronological
order, rather than concurrently. These tasks include: • Command • Scene safety • Search and rescue • Fire attack
• Water supply • Pump operation • Ventilation • Back-up/rapid intervention
The following figure illustrates a sample critical tasking for the number of personnel on scene for various
levels of fire risk. This information is an example of critical tasking and is not intended to define the
actual personnel necessary based on risk.38
Figure 89: Sample Critical Task Staffing, Fire Risk
Sample Critical Tasking Analysis
Firefighter Personnel Needed Based On Level of Risk
Structural
Maximum
Risk
Structure
Significant
Risk
Structure
Moderate
Risk
Non-
Structure
Low Risk
Attack line 4 4 2 2
Back-up line 4 2 2 (2)
Support for hose lines 4 3 2
Search and rescue 4 4 2
Ventilation 4 2 2
Rapid intervention team 4 4 2
Pump Operator 2 1 1 1
2nd apparatus/ladder operator 1 1 (1)
Command 2 1 1 1#
Safety 2 1 1#
Salvage 4
Rehabilitation 2
Division/group supervisors (2)
Total 37-39 23 14-16 3-6
() indicates task may not be required at all such incidents.
# indicates task may, at times, be completed concurrently with other position.
38 Note: Based on examples provided in the publication Commission on Fire Accreditation International/Center for
Public Safety Excellence (CFAI/CPSE), Standards of Cover, 5th Edition.
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The first 15 minutes is the most crucial period in the suppression of a fire. How effectively and efficiently
firefighters perform during this period has a significant impact on the overall outcome of the event.
All Risk Critical Resource Tasking
Critical task analysis also applies to non-fire type emergencies including medical, technical rescue, and
hazardous materials emergencies. Numerous simultaneous tasks are necessary to effectively control an
emergency. The department’s ability to muster needed numbers of trained and certified personnel
quickly enough to make a difference is critical to successful incident outcomes. The following figures
provide examples of the number of personnel required to perform the critical tasks in a prompt,
effective, and safe manner.
Figure 90: Non-Structure Fire Critical Tasking
Task Personnel
Command 1
Pump Operator 1
Primary Attack Line 2
Total 4
Figure 91: Hazardous Materials Incident Critical Tasking
Task Personnel
Command 1
Pump Operator 1
Primary Attack Line 2
Back-Up Line 2
Support Personnel 7
Total 13
Figure 92: Motor Vehicle Collision with Entrapment Critical Tasking
Task Personnel
Command 1
Pump Operator 1
Primary Attack Line 2
Extrication 3
Patient Care 2
Total 9
Figure 93: Emergency Medical Incident Critical Tasking (BLS)
Task Personnel
Ambulance Transport 2
First Responder 2
Total 4
Figure 94: Emergency Medical Incident Critical Tasking (ALS)
Task Number of Personnel
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Task Number of Personnel
Command 1
Transport Driver 1
Patient Care 3
Total 5
ESCI stresses that the critical tasks presented above are only presented as examples. Establishing the
resource level needed for various types of emergencies is a local decision. Factors influencing decisions
for incident staffing include the type of equipment operated, training levels of responders, the number
of personnel available, operating procedures, and the nature of risks protected.
ESCI recommends that PFD conduct field validation of critical tasks and staffing levels. Scenarios should
be conducted using standard operating procedures and realistic response times based on actual system
performance. After field validation is complete, the Department may find that the critical tasking can be
adjusted appropriately upward or downward for each incident type. Once the critical task analysis is
completed and validated, PFD should review current run cards and dispatch protocols to ensure that
adequate resources are dispatched to meet the critical tasks identified for a particular incident type.
PFD Response Time Performance Objectives
The process of setting response time performance objectives will include two sets of questions:
• What are the expectations of the community and elected officials for initial response times of
the fire department to an emergency incident? What is the public’s perception of quality
emergency services where response time is concerned?
• What response time performance would be reasonable and effective in containing fire, stopping
the loss, and saving lives when considering the common types of incidents and fire risks faced by
the Pasco Fire Department?
ESCI has reviewed the Pasco Fire Department response performance goals and believes the city council
adopted goals address the questions listed in the previous paragraph. The PFD response standards meet
the intent of RCW Chapter 35.103 and follow industry best practices by measuring response
performance at a specific percentile (90 percent) instead of an average. In preparing the annual
response performance report, PFD tracks the individual components of total response time (call
processing, turnout, and travel time). This allows PFD to identify deficiencies and develop a plan for
correction based on actual performance. Using geographic Fire Management Zones, PFD is able to track
actual performance to identify underserved areas within the service area. ESCI encourages PFD to
continue refining data collection and reporting methodology. PFD should consider publishing a standard
of cover document.
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Strategy Recommendations
SHORT-TERM STRATEGIES
This report has numerous recommendations which are intended to enhance the current practices of the
Pasco Fire Department. The presence of these recommendations should not be construed to indicate
that PFD has a lot of problems. On the contrary, the consulting team agreed that this agency was one of
the top professional organizations we have evaluated. The data the Department maintains is excellent,
and the practices are professional and skillful, despite being constrained by scarce resources. These
recommendations reflect a continuous improvement mindset.
To categorize the types of recommendations into a priority list, they are inserted under the appropriate
headings, defined as follows:
Priority 1 – Items Involving Immediate Internal Safety Concerns
The recommendation deals with an improvement or initiative that solves an issue affecting the safety of
firefighters and/or other department personnel. These are not matters that simply make it easier to do a
particular function but in fact render a currently unsafe situation safe.
Priority 2 – Considerations That May Present Legal or Financial Exposure
The recommendation resolves a situation that is creating or is likely to create the opportunity for legal
action against the department, the city, or its members. It also may be a situation that could subject the
department to a significant expense, such as resolving a leaking underground storage tank.
Priority 3 – Matters That Address a Service Delivery Issue
The recommendation addresses a service delivery situation that, while it doesn’t create an immediate
safety risk to personnel or the public, does affect the department’s ability to deliver service in
accordance with its standards of performance. For example, delivering training needed to allow
personnel to deal effectively with emergency responses already being encountered.
Priority 4 – Considerations to Enhance the Delivery of Services
The recommendation improves the delivery of a particular service. For example, adding a piece of
equipment that will improve the delivery of a service.
Priority 5 – An Important Thing to Do
The recommendation doesn’t fit within any of the above priorities, but is still worth doing.
Priority 1 – Items Involving Immediate Internal Safety Concerns
• Pasco Fire Department did not have any issues that ESCI identified as an internal safety concern.
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Priority 2 – Considerations That May Present Legal or Financial Exposure
• Periodically review Pasco’s financial ability to maintain its participation in the regional haz-mat
team, assessing the cost-benefit ratio.
Priority 3 – Matters That Address a Service Delivery Issue
• Develop a comprehensive Community Risk Reduction plan using Vision 20/20 as a resource.
• Maintain a hazardous materials equipment inventory that includes useful life of all equipment
for which Pasco Fire is responsible so that replacement, repair, and maintenance can be planned
for.
• Establish and maintain a minimum staffing requirement for the haz-mat technicians.
• Water Rescue Team members are assigned to work at Station 81; but all other Technical Rescue
Team members should be assigned to Station 82, responding with the ladder/rescue units
• Modify AEP Annex A to reflect improvements to the terminal.
• PFD and ARFF personnel at Fire Station 82 conduct familiarization and interact with airport staff
and terminal tenants weekly.
• Combine emergency communications for Franklin and Benton counties in a single PSAP.
• Include PFD ARFF personnel in applicable Annexes of the AEP.
Priority 4 – Considerations to Enhance the Delivery of Services
• Consider implementing improvements in hydrant testing, resource deployment, staffing and fire
code inspections to achieve a PPC class 4.
• Have PFD representative review commercial tenant improvement applications.
• On-duty personnel tour larger building projects during the construction phase.
• Distribute a summary of active construction projects to PFD personnel.
• Deploy a shared agency staffed PAU during times of greatest EMS service demand.
• Consider alternative deployment options as demands for service increase, including a shared
agency ARU.
• Deploy a Smartphone app to notify CPR-trained citizens of a Sudden Cardiac Arrest.
• Construct or acquire access to a centrally located fire-training center.
• Involve on-duty suppression crews in fire and life safety inspections.
• Complete formalization of the fire investigation and incident analysis process.
• Address the following capital facilities issues:
Station 81
• Relocate the administrative offices out of Station 81.
− Consider collocating the administration with a new fire station designed to accommodate
both a functioning fire station and the administrative offices.
• Remodel Station 81 to convert the existing administrative offices into a training room.
Station 82
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• Evaluate exterior wall cracks to determine potential settling issues.
• Interior dividing wall in apparatus bay impedes rapid turnout by crews. Breaching this wall to
facilitate rapid turnout should be explored.
• Complete the installation of the apparatus exhaust system slated for 2017.
• Focus on facility security as required by FAA regulations.
Station 83
• Relocate Station 83 with additional training room and additional living space.
Station 84
• Consider temporary use of this facility for deployment of a peak activity unit.
• Relocate Station 84 as per recommendations in the Service Delivery & Performance section of
this report.
Priority 5 – An Important Thing to Do
• Consider conducting a strategic plan at the conclusion of the master planning process.
• Review and update all regulatory documents on at least a three-year cycle.
• The fire chief’s office should be secured if sensitive files are kept there.
• Redesign or relocate the Administrative offices so that they have adequate space and separation
from the operations side of the facility.
• Develop a plan to assure that all administrative functions have a “back up” provider.
• Request that the county emergency manager coordinate a Commodity Flow study for Pasco and
its surrounding neighbors.
• Standardize EMS equipment and supply purchases through a group purchasing and distribution
system.
• Define outcomes for training classes.
• Develop a common training manual for Tri-Cities fire agencies.
• Memorialize training manuals and policies with adoption date, scheduled review interval, and
authorizing signature of the fire chief.
• Create a procedure for pre-incident plan development.
• Set a goal and objectives for completion of pre-incident plans.
• Continue developing a complete data base of all “maximum” or “significant” facilities in the PFD
service area.
• Identify all non-facility risks (transportation systems and weather extremes) and develop target
response plans for the high level risks.
• Develop and publish a Pasco Fire Department-specific Standards of Cover.
• Validate and/or develop critical tasking for each response type anticipated
• Revisit the practice of a flat rate utility fee structure for support for ambulance service.
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MID-TERM STRATEGIES
The short-term strategies are a compilation of the various recommendations included in this report
which address efficiencies and effectiveness as the agency currently exists. The mid-term strategies are
progressive enhancements of the current conditions and net improvements to the status quo. They will
likely require policy consideration and budget allocation.
Training Center/Training Manual
Fire department trainers use manuals based on national, state, and local standards as a resource to
develop lesson plans for didactic and hands on skills training. Training sessions provide firefighters with
the knowledge, skills, and abilities to perform in emergency and non-emergency situations in an
effective, efficient, and safe method. Currently, the Tri-Cities fire departments are in the infancy stages
of developing a training manual for adoption by all of the agencies. ESCI recommends that there be a
single training manual for all fire agencies in Benton and Franklin counties. Care should be exercised to
prevent the development process from being drawn out or languishing on the back burner. To expedite
the process, ESCI recommends that material from accredited existing model training manuals, hose
evolutions, and standard operating guidelines, with modifications for local conditions, be adopted.
Until the most recent effort, fire departments in the two counties unilaterally selected training manuals
from a variety of options or developed their own. Not surprisingly, training efforts and on-scene
performance varied in the region. The creation and application of a single standardized training manual
will provide for a more consistent training, better on-scene coordination, and improved firefighter
safety. With firefighters of Benton and Franklin County fire departments trained in the same
techniques, responders to emergency incidents can have the confidence that they will be prepared to
work effectively as a team. In all likelihood, this will improve the willingness of firefighters from the
various fire departments to work together as a coordinated workforce.
In conjunction with a shared training manual, ESCI recommends that PFD and its neighboring fire
departments develop and adopt common training standards. Training standards provide the benchmark
used in training. They are used to define and specify the quantity and quality of training for achieving
levels of competency and certification. Certain standards are mandated by governing or regulating
agencies such as the Washington State Patrol, Fire Protection Bureau. Others are industry standards
developed by organizations like the National Fire Protection Association (NFPA) and International Fire
Service Training Association (IFSTA). Additional options involve the development of standards locally or
the use of private vendors. Private vendors can provide standards and certifications which are often
applicable to specialized training.
While classroom instruction is a component of preparing emergency responders with knowledge, a
training facility is the other indispensable element. Training facilities offer a controlled and safe
environment where simulations can develop and test the skill sets of emergency workers. Training
involves individual, company, and multi company skills development in evolutions, the operation of
firefighting equipment and apparatus.
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Proficient emergency responders have confidence in their own abilities in handling the emergency
events that they encounter. Best practices suggest that emergency workers have regular access to
training grounds for repetitive drills and to develop new skills. Active, regular manipulative training has
been identified as a vital part of a fire department’s safety and accident program.
Heretofore, PFD has contracted with WWCFD #5 for use of the training center in Burbank and has been
granted rights to use the City of Kennewick’s training facilities. This arrangement has resulted in a less
than satisfactory situation. The use of these facilities has constraints and limitations with PFD having
zero ownership or buy-in. Without a cooperative effort, PFD has used whatever space is available for
apparatus operator skills training, practicing hose evolutions, and other manipulative undertakings.
ESCI recommends that at a minimum the three municipal fire departments cooperate on fire training
facilities. Ideally a cooperative venture would involve all Benton and Franklin County emergency service
providers. It is financially unrealistic to expect that every fire department in the area build and maintain
an independent training facility. Cooperating on facilities that meet the needs of all of the fire
departments needs is prudent. For a cooperative venture to be successful there has to be a contribution
made by all participants that indicates a level of ownership. Contributions can take many forms. One
fire department might provide instructors, another finances, it might come as an in-kind contribution of
apparatus or equipment, station coverage, or from existing training facilities.
Shared System Status Manager
The Tri-Cities fire departments have cooperated with each other on various EMS functions. They share
joint protocols, a shared EMS Medical Program Director, and EMS training activities are all uniform to
the fire departments in Franklin and Benton counties. Coordination of emergency medical services is via
the Mid-Columbia (Benton/Franklin) EMS and Trauma Care Council. It is fitting that each of the three
cities has supervisors with responsibility for all daily events of their respective fire departments. Each of
the fire departments has a medical officer to coordinate EMS functions for their organization. With EMS
being the single most frequent service delivered, it is in the best interest of the fire departments to have
an individual to manage EMS resources without regard to boundary. While it would be fiscally
unfeasible for each fire department to employ a 24-hour EMS supervisor (System Status Manager), it is
practical for them to collectively employ personnel for this function.
EMS supervisors use advanced paramedic training and leadership skills to oversee paramedics, monitor
and coordinate resources, provide supervision and on-scene management at EMS incidents, while
maintaining a safe working environment. Supervisors inspect emergency vehicles and make sure that all
equipment complies with rules, ordinances and regulations, as well as ensure that workers are following
department policies and applicable laws. They assist the Medical Program Director with personnel
training and develop work improvement plans. They also monitor workers, resolve problems, and
document grievances and disciplinary actions.
Other duties involve assigning and distributing work, coordinating EMS unit deployment, providing
backup, and promoting positive customer relations. They interact with the Medical Program Director,
receiving hospitals, battalion chiefs, medical officers, and dispatch centers to intervene and solve
problems or answer questions. They may evaluate patients, deliver emergency medical treatment,
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triage, and follow up with patients recently released from hospitals. EMS supervisors may also handle
accident records, prepare and submit staff reports and grant proposals, as well as assist paramedics on
problematic or unfamiliar cases.
Develop a Combined Dispatch Center for Benton and Franklin Counties
EMS is the most frequent service provided by the Tri-Cities fire departments. During periods of high call
volume, EMS resources are essentially depleted. On one morning in April 2016, eight medic units were
responding, transporting, or at the scene of a medical incident at the same time in the Tri-Cities. This
illustration points out the need for coordinating fire and EMS response. One obstacle to establishing a
seamless regional EMS response is the two Public Safety Answering Points (PSAPs). This was also a
concern echoed by those interviewed by ESCI. EMS was not the only area of concern related to having
two PSAPs. Fire, hazardous materials, water rescue, and technical rescue responses consistently require
responses from fire agencies from both counties.
Modern emergency services agencies are becoming ever more dependent upon technology to assist
them in meeting their responsibilities and service demand. These technologies begin with the
telephone communications system within the jurisdiction. Emergency (and some non-emergency) calls
for service are typically routed through a community 9-1-1 system to a centralized PSAP. The PSAP then
either dispatches the appropriate resources or transfers the caller to a more appropriate center.
Information from the caller is usually automatically received by the PSAP through Automated Number
Information/Automated Location Information (ANI/ALI) into the emergency phone system. This
information is then transferred into a Computer Aided Dispatch (CAD) system, which serves as a
database and assistive dispatch technology. There are two PSAPs serving Franklin and Benton Counties.
Currently, the Franklin and Benton County PSAPs are unable to automatically transfer calls to each other
and instead rely on dialing a seven-digit phone number and transferring information verbally. This
outdated communication method elongates the time to dispatch emergency calls and can lead to
missing information or lost calls.
Dispatch operations are crucial, directly influencing fire/EMS service levels, response times, service
delivery, and the collection of data for analysis. Necessary components of dispatch operations include
call-taking, dispatching fire and emergency medical services personnel, providing pre-arrival
instructions, and recordkeeping. Emergency service providers are served by the individual 9-1-1
communication centers for dispatching fire/emergency medical response and EMD (emergency medical
dispatch). Individual communication centers might be irrelevant if the Tri-Cities emergency service
providers were not interdependent. Given that there are frequent occasions where emergency units
travel across geopolitical lines for mutual aid it would be a practical matter to have a single
communication center for both counties. Existing information technology (IT) resources lack the
capability to automatically transfer 9-1-1 calls or automatically requesting resources from neighboring
agencies.
Although consolidation of dispatch functions for Benton and Franklin Counties is almost universally
supported and has been discussed for years, little progress towards a merger or consolidation has
occurred.
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Another issue is the lack of automatic vehicle locator (AVL) and mobile data terminal (MDT) technology
in the system, which contributes to the inefficiency of dispatch of the appropriate units and the
inconsistency of data recording. For instance, if all EMS units within the Tri-Cities area were equipped
with AVL and MDT capabilities, the closest appropriate unit could be dispatched rather than relying on
static response. Additionally, the capability of units to check in route to a scene independent of radio
communication would allow for more accurate response performance tracking and analysis.
Peak Activity Units
Staffing is typically a fire agency’s single most expensive resource. A significant factor that drive cost are
the 24-hour nature of the fire service demand. The rationale for staffing and deploying in this manner is
the unpredictable nature of emergencies. Once a base emergency response capability is achieved
throughout the 24-hour cycle, however, additional capacity can be gained with a more flexibly staffed
and deployed model. This efficient and effective model includes resources which augment the
traditional deployment of response resources. This flexible unit follows the observable trends in
emergency calls for service (demand) which dictates to a significant degree the distribution of that
flexible resource. Implementing this flexible unit reduces response times where demand is high or when
prescheduled vacancies (i.e., training) occur. These flexible resources are referred to as Peak Activity
Units (PAUs) and they are deployed in a manner that mirrors the ebb and flow of emergency demand. A
PAU has four major configuration variables: the unit itself, the crew make-up/size, the deployment
purpose/philosophy, and deployment hours/geography.
PAUs are typically staffed and deployed during the most statistically busy times of the day and week,
which make the unit less costly and more flexibly deployed, both by time of day and geographically.
These units can be a fire engine that is a Type 1 (a so-called structure fire engine) or a Type 6 (also-called
wildland fire engine) configuration, a medical rescue unit, or a multi-purpose squad. Regardless of the
type of vehicle it is, what makes it unique is the way it is deployed and staffed. PAUs can be staffed with
a medical crew if that is its primary purpose, with a fire suppression crew, or both. It can be deployed
during wildland fire season with a wildland fire crew. Regardless of staff capability, the staff can be
obtained by hiring new personnel, by using callback crews on overtime, or converting a regularly
assigned crew to a PAU. Staffing of a PAU should not be done through the use of cross-staffing (thereby
taking a critical resource out of service), as it depletes the core resources and reduces agency capability.
These concepts normally require bargaining the hours and working conditions under which the unit is
staffed when a collective bargaining unit is affected.
PAUs are not only assigned as an additional resource based on statistically busy times and locations.
They can also be used to manage gaps in coverage for units participating in training and could even be
cooperatively staffed with a neighboring agency(s). A PAU could be only occasionally staffed for
activities such as a scheduled event or routinely staffed for periods of peak demand. Adding PAUs as an
adjunct to existing staffing patterns adds flexibility to fire department emergency operations.
ESCI recommends PFD evaluates the potential benefits of establishing a PAU jointly with its neighbors
within the Tri-Cities area. If this configuration is deemed mutually beneficial, discussions should ensue
with interested parties to implement this unit and share in the costs of operating the unit. If not
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deemed mutually beneficial, PFD should consider implementing a PAU by itself to be operated within
the Pasco service area.
Alternate Response Units
Alternative Response Units (ARUs) are a different model than the Peak Activity Units, whose primary
mission is responding flexibly to peak demand for emergency services. The Alternative Response Unit is
focused on non-emergency, lower acuity emergency medical calls. Its purpose is to keep the primary
fleet of emergency response vehicles and crews in service and available for the higher acuity, true
emergency calls. Tualatin Valley Fire & Rescue (TVF&R) in Washington County, Oregon, implemented a
12-month pilot of this program in 2011. The agency experienced positive results, so TVF&R permanently
incorporated the units into its daily operation.
The premise behind the unit is to reduce the expensive staffing and vehicle response to likely non-life-
threatening calls for service. The units are sport utility vehicles, staffed by one Firefighter/Paramedic.
The units are dispatched according to a protocol used by the dispatch centers, which medically triages
the calling party. In TVF&R’s case, the communication specialists at Washington County
Communications Center are not necessarily EMTs but are trained to the EMD certification.
The dispatcher triages and categorizes a patient over the phone using a series of questions following an
EMD algorithm. The calls are placed into one of typically five categories: Alpha, Bravo, Charlie, Delta,
and Echo responses. Alpha is lowest on the severity/acuity scale and is not a life-threatening call type.
Echo is the highest severity/acuity and the most urgent, immediate life-threatening call type. ARUs
respond to Alpha and Bravo calls routinely but may also respond to higher acuity calls if the unit
happens to be closer than emergency response units to improve response time. It is important to note
that the agency recognizes that a single paramedic in an ARU cannot effectively deal with a higher acuity
call type alone, thus the focus on lower acuity call types.
In TVF&R, the ARUs also respond to minor non-medical calls such as lockouts, smoke detector problems,
and burning complaint investigations. The four TVF&R ARUs responded to 2,134 incidents in 12 months,
which represented 7.2 percent of the agency’s total call volume for that year.
A unique feature of the TVF&R ARUs is that assignment/recruitment of staff on these units emphasized
paramedic assertiveness as a desirable trait, since the unit lends itself to “jumping” calls to provide a fast
response, assessment, and potential cancellation of more traditional response units where the ARU is
closer and available.
It is important to understand, however, that ARUs do not provide recognized credit through the
Washington Surveying and Rating Bureau. Emergency medical services response capability is not
evaluated by WSRB since it is focused on property conservation and property risk. However, response
time and unit reliability are improved by the use of ARUs, and one agency which implemented a pilot
ARU program stated that, “…the public perception of the program has been overwhelmingly supportive
and accepted throughout the community as simply, ‘smart government’”.
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Pasco Fire Department (WA)
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Final Report 163
Staffing Increases
There are small gaps in the staffing configuration of the PFD administration. Administratively, the PFD is
on the low end of the spectrum for municipalities of its size as a ratio to line personnel. There has been
concern about the assistant chief’s position not being appointed as a regular position. This leads to
instability and a lack of clarity administratively. This is a critical position in the management team and
must be solidified.
The line staffing does not meet national standards and, worse yet, do not meet state or local norms.
Two-person engine companies place a substantial burden on responders during the scene of
emergencies. ESCI recommends that the City of Pasco follow a plan of ramping up staffing in the fire
department over successive years. This improves incident safety, reduces worker fatigue, and increases
the likelihood of PFD receiving a Class 4 rating from the Washington Surveying and Rating Bureau.
It should be the goal of PFD to achieve three-person engine companies and two-person ambulances,
discontinuing the practice of cross-staffing these two critical pieces of equipment. The cross-staffing of
critical first response units creates a routine response compromise. The cross-staffing of brush units
(type 6 engines) or other support units is, however, an efficient practice to follow.
Logistics Center
At the heart of any fire department are the activities and functions that support the delivery of
emergency services. A logistics center keeps agency assets in operational readiness and ensures that
enough supplies, tools, and equipment are available for emergency workers to mitigate the emergency.
PFD sits in an urbanized core area where inefficient duplication undoubtedly exists as each of the cities
which make up the Tri-Cities set up siloed systems that would otherwise lend themselves to a regional
approach.
Although emergency services providers, the fire agencies in the area are also businesses that collectively
spend hundreds of thousands of dollars each year to ensure mission critical readiness. Like all
businesses, fire departments need to be receptive to new practices to maximize the effectiveness of
budget dollars. Such practices may take the form of economies of scale, administrative efficiencies,
paperwork reduction, technological advances, and innovative cost saving concepts.
The procurement and distribution of routine supplies is an important behind-the-scenes process that
needs hands-on work and meticulous record keeping. These support services are currently provided by
a variety of personnel in the region, some are support and some are likely management. Filling the
demand for logistical support is a constant necessity in any organization and vital to ensure the
operational readiness of the agency. Key elements of a combined logistical center are:
• Assessment of current assets.
• Assessment of current levels of support service activities.
• Standardization of apparatus, equipment, and supplies.
• Standardization of preventative maintenance programs and recordkeeping.
• Centralization of supply and equipment acquisition, warehousing and distribution.
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Standardizing specifications for the purchase, repair, and maintenance of apparatus, self-contained
breathing apparatus (SCBA), communication devices, Personal Protective Equipment (PPE), uniforms,
replenishable supplies and miscellaneous equipment often equates to less out-of-service time. Support
personnel setting up a requisition and delivery system is a key efficiency of this type of approach. These
economies of scale accrue to the benefit of each participating agency.
Distribution can be managed internally or through agreements with suppliers to gain the advantages of
collective purchasing and supply, such as:
• Administering a larger collective bid process for supplies can achieve lower prices and attract
additional competitors;
• Negotiating terms of the conditions of a purchase that might not be available to smaller
purchasing centers, and;
• Conducting collective bidding processes that are applicable to all of the agencies.
The agencies can jointly determine the proper level of inventory to maintain within the system. The use
of system-wide inventory planning ensures that the most cost-effective inventory management can be
established for the system participants. This is referred to as “Just-In-Time” Inventory. To a great
degree, a just-in-time inventory process relies on the efficient monitoring of the usage of materials and
ordering replacement goods that arrive shortly before they are needed. This simple strategy helps to
prevent incurring the costs associated with carrying large inventories of raw materials at any given
point.
Station Redeployment
While PFD has done amazing work, it is clearly straining to keep up. The service level and capability are
not sustainable without commensurate growth of resources to match the unprecedented growth of
emergency demand and of the city itself. ESCI sees indications of the system declining in the following
ways:
• PFD is at the minimum performance for its own goal of the first apparatus on scene (89.7
percent).
• PFD is currently only able to assemble a full first alarm in 12 minutes or less travel time (its self-
imposed performance goal) at 50 percent of fire suppression events. The goal is 90 percent.
Current service demand and the lack of additional resources negatively affects the time required
to assemble a full first alarm.
• PFD is currently rated as a Class 5 fire department by WSRB. Lack of engine companies and their
staffing has been identified as a deficiency.
• The population within the service area has increased by over 14 percent since 2010.
• New development and population growth are projected to continue increasing, both in the near
future and long term.
• Service demand has steadily increased and is projected to continue increasing; it will negatively
affect response performance in the near future.
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Currently, the three staffed PFD stations are within six minutes or less travel time to over 95 percent of
current service demand inside the Pasco UGB. However, the fact that PFD actually achieves this travel
time less than 90 percent of the time is an indication that concurrent calls are negatively impacting
service.
Figure 95: Current Staffed Station Deployment
ESCI believes that Station 84 should be staffed but not at its current location. As depicted in the
following figure, ESCI recommends relocating Station 84 west of its current location to the area of West
Court Street and Road 68. Further, ESCI recommends relocating Station 83 north to the area of Sandifur
Parkway and Road 68. By making these changes, approximately 99 percent of current service demand
inside the Pasco UGB is within six minutes or less travel time of a staffed station.
The relocation of these two stations also provides PFD with the opportunity to construct either station
with administrative offices in mind. Designing one of the stations to also house administrative offices
with proper flow and separation can be done without compromising its function as an active fire station.
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166 Final Report
Figure 96: Proposed Four Staffed Station Deployment & Reconfiguration
This station redeployment anticipates increased future demand in the Riverview are as well as north of
Interstate 82. The redeployment also increases the concentration of PFD resources available for
concurrent (simultaneous) or higher risk incidents and increases the area covered in a balanced manner.
Staffing of Station 84 can begin earlier than the time it takes to acquire a new site and construct the new
station. ESCI believes it would be prudent to implement a Peak Activity Unit (see description earlier in
this section), temporarily housed at the existing Station 84 until such time as the new station is
constructed and ready for staffing with an engine, which should then become part of the Pasco Fire
Department’s core response system and staffed traditionally.
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Pasco Fire Department (WA)
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Final Report 167
LONG-TERM STRATEGIES
Additional Fire Station
The City of Pasco has a large area of open space that is currently home to mineral extraction in an open
pit. The city has a study which lays out the Broadmoor Properties, a Planned Unit Development (PUD)
which contains approximately 1,000 acres of available land. A range of between 2,000 to over 3,000
housing units are planned for, along with commercial, retail (including a 350,000 square feet big box
store), and office development. Whether this PUD comes to fruition or is redeveloped in more
traditional methods, it represents substantial growth on the west side of Pasco.
At the point where it becomes clear that Broadmoor Properties, in whatever form it takes, begins to
develop, PFD will have to plan for the probable construction of a fifth fire station. In the following figure
the siting of the fifth fire station is considered.
Figure 97: Five-Station Deployment Model
While Station 85 is proposed very near the existing border of the City of Pasco, ESCI believes the City will
likely annex to the urban growth boundary directly north of the Broadmoor Properties site. This would
position the station to provide an effective reach not only to Broadmoor but also to the development
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168 Final Report
and increased density likely to come to areas surrounding Broadmoor. This also takes advantage of
property already owned by the City of Pasco.
This location also provides good access to both sides of Interstate 182 and would address concerns
identified by the Washington Surveying and Rating Bureau in the area of the possible planned unit
development. Adding this station simultaneous to the development of Broadmoor also increases the
concentration of resources available in the western portions of the service area east of Broadmoor.
With an appropriately staffed engine company and medic unit at the station, the combined resources of
the Pasco Fire Department, deployed as identified in the preceding figure, will significantly enhance
resource concentration—and ultimately effective response force. This resource deployment pattern is
anticipated to address community growth and service demand growth into the foreseeable future.
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Pasco Fire Department (WA)
Emergency Services Master Plan 2016
Final Report 169
Cost Projections
REVENUE & EXPENDITURE FORECAST
ESCI developed a forecast of revenues and expenditures to assess the near term financial sustainability
of current operations and test various service level improvements. The forecast is based on historical
actual revenues and expenditures and informed assumptions about how those revenues and
expenditures will change in the future. The key assumptions used in the forecast are presented below
followed by the forecast results and selected metrics.
Since the Pasco Fire Department actually resides in two separate funds, the forecast looks at the
General Fund fire budget and the Ambulance Utility Fund budget separately. However, some of the
assumptions used are common to both budgets. For example, employee wages and benefits should
react the same in both funds. To the extent that each budget utilizes unrestricted General Fund
revenues, the previous discussion of local economic performance and indicators provides some context
for potential General Fund revenue growth in the City during the forecast period.
Since the Ambulance Utility Fund is a self-contained fund separate from the General Fund fire budget
and has its own recurring revenue sources and fund balance, three separate scenarios for a status quo
forecast are provided. Each of the three scenarios uses the same expenditure assumptions but the
revenue assumptions are altered in each case to provide staff and council with a sense of how varying
the utility fee and the General Fund transfer might affect annual operating surplus/(deficit) and
beginning fund balance. The only recurring revenue item varied in each case is the Ambulance Utility
Fee. The General Fund subsidy (I/F Transfer In) was also reduced in the third scenario.
The fire budget includes four separate scenarios: status quo, the addition of a third firefighter on each
engine on each of the three shifts, the addition of a three-person engine company at the time a new fire
station is placed in service, and a combination of the last two scenarios which adds a third person to
each existing engine company and adds an additional engine company. It is unknown when the City
plans to build a new station and how it would finance the project; therefore, the capital costs of adding
a new station (as well as the station operating costs) are not included in the scenarios. Only the
recurring costs of staffing the additional engine are modeled.
Forecast Assumptions
Revenue Forecast Assumptions
• Airport Fire Protection Agreement
- The interlocal agreement, dated April 20, 2015, provides that Port of Pasco will pay
$699,996 to the City for ARFF services in FY 2016. Amount increases each year based
upon actual employee costs.
- As discussed earlier, and excluding staffing increases and reclassifications, personnel
services costs have historically increased an average of 3.7 percent annually between
2011 and 2016. Wages have increased an average of 2.58 percent annually while
benefits have increased an average of 8.9 percent annually.
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- Forecast assumes airport interlocal revenue will increase 9.2 percent annually.
• Charges for Services/Misc. Sources - Fire
- Charges for Services and other miscellaneous fire revenues have varied from a low of
$29,000 in the amended FY 2016 budget to a high of $67,894 in FY 2015 with an average
of $43,000 over the period FY 2011 through FY 2016.
- Forecast assumes $43,000 as base, which escalates with inflation at 2 percent per year.
• Ambulance Billing
- Ambulance billing revenue has risen from $1,148,437 in FY 2011 to a projected
$1,500,000 in FY 2016 or approximately 5.66 percent annually.
- Forecast assumes billing revenue increases 5.7 percent per year from FY 2016 base of
$1.5 million.
• Ambulance Utility Fee
- Ambulance utility fee has risen from $876,842 in FY 2011 to $1,999,850 in FY 2015 and
remained relatively flat at $2,095,864 in FY 2015 while council considered a new rate
study.
- From FY 2011 through FY 2015, the average annual rate of increase was 25.1 percent.
- Base utility fee will be FY 2016 amount of $3,466,019.
- Forecast Scenario A assumes that the ambulance utility rate will rise at the same 1
percent annual growth rated projected by the city utility study and that the GF subsidy
will remain fixed at $420,000 per year.
- Forecast Scenario B assumes that the ambulance utility rate will rise at 2.74 percent
annually which is based upon the state’s Office of Financial Management projection for
single-family residential (projected growth at 3.1 percent for this class which represents
69 percent of the billable units) and multi-family residential (projected growth at 2.4
percent for this class which represents 25 percent of the billable units) growth in
Franklin County. Further, this scenario assumes that the GF subsidy will remain fixed at
$420,000 per year.
- Forecast Scenario C balances recurring expense and recurring revenue to maintain a
small annual operating surplus/(deficit). This scenario allows the Utility Fee to rise each
year in the following manner: 25 percent in FY 2017-2018, 15 percent in FY 2019, 12.5
percent in FY 2020, 15 percent in FY 2021 and 20 percent in FY 2021. This scenario also
allows the GF subsidy to be gradually decreased from $420,000 until it is fully eliminated
in FY 2020.
• Contractual Services/Misc. Sources - Ambulance
- Contractual services and miscellaneous sources of ambulance revenue were relatively
minor from FY 2011 through FY 2013 ranging from a low of $3,246 in FY 2012 to a high
of $6,439 in FY 2013. With the addition of county fire district contracts in FY 2014, this
source increased to $29,804 and has averaged $28,846 for the last three years.
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Pasco Fire Department (WA)
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- Forecast assumes a base of $28,800 which increases with inflation at 2 percent annually.
Expense Forecast Assumptions
• Salaries/Wages
- No change in staffing levels for status quo scenario.
- Based upon early discussion of historical Personal Services costs, assuming that the
impact of added staff and reclassifications are removed, wages have increased an
average of 2.58 percent annually while benefits have increased an average of 8.9
percent annually. Total PS costs have increased an average of 3.7 percent annually in
aggregate.
- Forecast assumes an average annual increase of 2.58 percent using the FY 2016 amount
as the base for fire and ambulance budgets.
- A firefighter with 25-36 months has a current salary of $70,850 with benefits of$25,552
which is the rate used to add one firefighter per engine per shift.
- Adding a three-person engine company assumes the need for one firefighter at the rate
shown above, plus a firefighter with 49 or more months’ experience to serve as a
driver/engineer at a salary of $78,728 with benefits of $26,078 and a lieutenant at a
salary of $86,606 with benefits of $26,604.
- Overtime is assumed to average 15 percent per employee annually.
- One-time on-boarding costs per employee are assumed to be $5,000 and are included in
operating costs.
• Benefits
- Historical personnel benefits have increased linearly from FY 2011 to FY 2015 at an
average rate of 8.9 percent per year exclusive of added staff and reclassification as
discussed above.
- Benefit rate increase driven largely by annual increases in health care costs, which have
increased as much as 30 percent per year for the period.
- Forecast uses an 11.3 percent increase each year for benefits with FY 2016 as the base.
• O&M Supplies
- As shown in the upper portion of Figure 98, O&M Supplies for the fire budget declined
from $214,717 in FY 2011 to a low of $106,394 in FY 2013 before increasing steadily to
$234,646 in FY 2016.
- One-time on-boarding costs of $5,000 per employee are added for each additional
employee added in the various fire scenarios.
- Average annual increase between FY 2012 and FY 2016 is 19.5 percent.
- Forecast for Fire O&M assumes FY 2016 as base with an annual increase of 10 percent.
- As shown in the lower portion of the figure, O&M Supplies for the ambulance budget
have increased linearly from $75,028 in FY 2011 to $249,215 in FY 2015 for an average
annual increase of 28 percent.
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- Forecast assumes FY 2016 as base with an annual increase of 25 percent.
- It is important to note that O&M Supplies is an area where costs could be contained and
it is likely that the department will do so in the future. Therefore, costs modeled can be
considered a high end forecast. FCS Group used 2 percent, or inflation, for their
forecast; therefore, their modeled expenses are significantly lower than those shown
here.
Figure 98: Historical Operating Expense Trends – Fire and Ambulance Budgets
Source: Departmental Audited and Adopted Budget Documents
• Other Services/Charges
- As shown in the upper portion of Figure 98, Other Services/Charges for the fire budget
were relatively flat, averaging $300,000 from FY 2011 through FY 2013 after which they
climbed from $292,183 to $603,499 in FY 2016.
- Average annual increase between FY 2013 and FY 2016 is 27.4 percent.
- Using the FY 2011 figure of $275,106 as a starting point, the average annual increase
through FY 2016 is 17.9.
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- Forecast for Fire Other Services/Charges assumes FY 2016 as base with an annual
increase of 20 percent.
- As shown in the lower portion of the figure, Other Services/Charges for the ambulance
budget have generally increased linearly (with the exception of a spike in FY 2012) from
$442,020 in FY 2011 to $1,186,340 in FY 2016 for an average annual increase of 25.2
percent.
- Forecast for Ambulance Other Services/Charges assumes FY 2016 as base with an
annual increase of 25 percent.
- Again, this is an area where the department can control costs and has indicated that it
will continue to work towards cost containment. FCS Group used 2 percent growth in
these expenses and their expense forecast is, therefore, lower in comparison.
• Capital – I/F ER Replacement
- Department costs averaged $450,000 per year from FY 2011-2015 split almost equally
between the fire and ambulance budgets, jumping in FY 2016 to $540,000.
- This line item has grown an average of 5.1 percent annually in the fire budget and 5.6
percent annually in the ambulance budget.
- ESCI’s experience is that capital apparatus increases in cost by approximately 3 percent
annually.
- Forecast assumes FY 2015 as base year with capital apparatus costs escalating 5 percent
for growth and 3 percent for inflation annually for a total annual increase of 8 percent.
• Capital - Other
- Other capital costs in both the fire and ambulance budgets show no trends with
sporadic expenditures.
- Forecast assumes a base case of an average of the prior six years of expenditures with
an annual increase at the assumed rate of inflation (2 percent).
• Debt Service
- No debt is contemplated during the forecast period.
Financial Forecast Results
Service Level Remains Status Quo – Scenario A (Ambulance and Fire Budgets)
As mentioned above at the beginning of this section, three status quo scenarios are offered for the
Ambulance Utility Fund using the same expenditure assumptions for all three but varying the
Ambulance Utility Fee and General Fund subsidy (I/F Transfer In). The fire budget is part of the City
General Fund budget and the forecast does not change with the three scenarios in the ambulance fund.
Thus, the status quo forecast for the fire budget as shown in Figure 99 will only be presented once and
will be discussed first.
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Figure 99: Status Quo Forecast (Graphical) – Fire Budget
Utilizing the assumptions presented above, recurring fire-specific revenues are expected to increase
from $729,000 in FY 2016 to $918,956 in FY 2022 at an average annual rate of 3.48 percent for the
forecast period. Recurring expenditures are expected to increase from $5,602,747 in FY 2016 to
$8,260,887 in FY 2022 at an average annual rate of 6.64 percent for the forecast period. As shown in
the above figure, recurring expense exceeds recurring revenue resulting in an annual operating deficit
(green bars) which is made up with other, unrestricted General Fund revenues such as property and
sales tax. Because the recurring expenses are expected to increase at a higher rate than the recurring
fire-specific revenues, the annual operating deficit funded by other unrestricted GF revenues grows each
year.
In Status Quo – Scenario A, the Ambulance Utility Fee is only allowed to increase at the same annual
rate as forecast in the city utility study. Therefore, the fee only grows at 1.0 percent each year. The
General Fund subsidy or I/F Transfer in to the Ambulance Fund is kept at its present level of $420,000
per year under this scenario.
The following figure shows how the various components of the recurring expenditure and revenue
budgets increase during the forecast period given the assumptions previously detailed.
-$4,873,747 -$5,087,874 -$5,437,538 -$5,830,164 -$6,272,709 -$6,773,391 -$7,341,931
$729,000 $769,785 $797,521 $826,268 $856,064 $886,947 $918,956
$5,602,747 $5,857,659 $6,235,059 $6,656,432 $7,128,773 $7,660,338 $8,260,887
-$10,000,000
-$8,000,000
-$6,000,000
-$4,000,000
-$2,000,000
$0
$2,000,000
$4,000,000
$6,000,000
$8,000,000
$10,000,000
2016 2017 2018 2019 2020 2021 2022
Operating Surplus(Deficit)Total Fire Revenues Total Fire Expenses
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Figure 100: Status Quo Forecast (Tabular) – Scenario A
Figure 101 shows graphically what happens as this scenario unfolds. Recurring operating expenses
increase from $5,569,551 in FY 2016 to $10,703,267 in FY 2022 for an average annual increase of 11.52
percent while recurring revenues increase from $4,993,669 to $5,803,636 for an average annual
increase of only 2.54 percent. This difference leads to an annual operating deficit that grows from
$575,882 in FY 2016 to 8-1/2 times that amount by FY 2022 at $4,899,632. This has a major negative
effect on the beginning fund balance as shown in orange in the lower part of the figure. In all likelihood,
this scenario is financially untenable by FY 2018 without a major reduction in service level or increase in
revenue, either recurring revenue or GF subsidy.
Financial Resouces 2016 2017 2018 2019 2020 2021 2022
By Type Amended Forecast Forecast Forecast Forecast Forecast Forecast
Airport Fire Protection Agreement $700,000 $725,900 $752,758 $780,610 $809,493 $839,444 $870,504
Charge for Services/Misc Sources $29,000 $43,885 $44,763 $45,658 $46,571 $47,503 $48,453
Total Fire Resources1 $729,000 $769,785 $797,521 $826,268 $856,064 $886,947 $918,956
Ambulance Utility Fee $3,466,019 $3,500,679 $3,535,686 $3,571,043 $3,606,753 $3,642,821 $3,679,249
Ambulance Billing $1,500,000 $1,585,500 $1,675,874 $1,771,398 $1,872,368 $1,979,093 $2,091,901
Contractual Services/Misc Sources $27,650 $29,423 $30,011 $30,612 $31,224 $31,848 $32,485
Ambulance Recurring Revenue $4,993,669 $5,115,602 $5,241,571 $5,373,053 $5,510,345 $5,653,762 $5,803,636
Interfund Transfer $420,000 $420,000 $420,000 $420,000 $420,000 $420,000 $420,000
Beginning Fund Balance $857,991 $702,109 $224,868 -$753,635 -$2,350,751 -$4,712,381 -$8,020,040
Total Ambulance Resources $6,271,660 $6,237,711 $5,886,439 $5,039,418 $3,579,595 $1,361,381 -$1,796,405
1Excludes unrestricted General Fund sources such as property taxes, sales taxes, etc.
Expenditure 2016 2017 2018 2019 2020 2021 2022
By Type Amended Forecast Forecast Forecast Forecast Forecast Forecast
Wages $3,432,779 $3,521,345 $3,612,195 $3,705,390 $3,800,989 $3,899,055 $3,999,650
Benefits $972,163 $1,058,686 $1,152,909 $1,255,517 $1,367,258 $1,488,944 $1,621,460
O&M Supplies $234,646 $258,111 $283,922 $312,314 $343,545 $377,900 $415,690
Other Services/Charges $603,499 $724,199 $869,039 $1,042,846 $1,251,416 $1,501,699 $1,802,038
Capital - I/F ER Replacement $281,660 $262,813 $283,838 $306,545 $331,068 $357,554 $386,158
Capital - Other $78,000 $32,507 $33,157 $33,820 $34,497 $35,187 $35,890
Total Fire Expenses $5,602,747 $5,857,659 $6,235,059 $6,656,432 $7,128,773 $7,660,338 $8,260,887
Wages $2,993,627 $3,070,863 $3,150,091 $3,231,363 $3,314,732 $3,400,252 $3,487,979
Benefits $833,654 $907,849 $988,648 $1,076,637 $1,172,458 $1,276,807 $1,390,443
O&M Supplies $249,215 $311,519 $389,398 $486,748 $608,435 $760,544 $950,680
Other Services/Charges $1,186,340 $1,482,925 $1,853,656 $2,317,070 $2,896,338 $3,620,422 $4,525,528
Capital - I/F ER Replacement $257,215 $229,991 $248,391 $268,262 $289,723 $312,901 $337,933
Capital - Other $49,500 $9,696 $9,890 $10,088 $10,289 $10,495 $10,705
Total Ambulance Expenses $5,569,551 $6,012,843 $6,640,074 $7,390,169 $8,291,976 $9,381,421 $10,703,267
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Figure 101: Status Quo Forecast (Graphical) – Ambulance Budget Scenario A
Service Level Remains Status Quo – Scenario B (Ambulance Budget)
In Status Quo – Scenario B, the Ambulance Utility Fee is increased based upon the State’s Office of
Financial Management projections for single-family and multi-family residential growth in Franklin
County. Based upon the ratio of single- and multi-family residential units and the projected growth rate
for each, the fee grows at 2.74 percent each year. The General Fund subsidy or I/F Transfer in to the
Ambulance Fund is kept at its present level of $420,000 per year under this scenario. The results of this
revenue scenario are not materially different from Scenario A.
-$575,882
-$897,241 -$1,398,503 -$2,017,116
-$2,781,631 -$3,727,659
-$4,899,632
$4,993,669 $5,115,602 $5,241,571 $5,373,053 $5,510,345 $5,653,762 $5,803,636
$5,569,551 $6,012,843
$6,640,074 $7,390,169
$8,291,976
$9,381,421
$10,703,267
-$6,000,000
-$4,000,000
-$2,000,000
$0
$2,000,000
$4,000,000
$6,000,000
$8,000,000
$10,000,000
$12,000,000
2016 2017 2018 2019 2020 2021 2022
Operating Surplus(Deficit)Recurring Revenue Recurring Expenses
$857,991 $702,109 $224,868
-$753,635
-$2,350,751
-$4,712,381
-$8,020,040
-$9,000,000
-$8,000,000
-$7,000,000
-$6,000,000
-$5,000,000
-$4,000,000
-$3,000,000
-$2,000,000
-$1,000,000
$0
$1,000,000
$2,000,000
2016 2017 2018 2019 2020 2021 2022
Beginning Fund Balance
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Figure 102 shows graphically what happens as this scenario unfolds. Recurring operating expenses
increase from $5,569,551 in FY 2016 to $10,703,267 in FY 2022 for an average annual increase of 11.52
percent while recurring revenues increase from $4,993,669 to $6,200,707 for an average annual
increase of 3.67 percent. This difference leads to an annual operating deficit that rapidly grows from
$575,882 in FY 2016 to $4,502,560. This has almost the same major, negative effect on the beginning
fund balance as shown in orange in the lower part of the figure.
Figure 102: Status Quo Forecast (Graphical) – Ambulance Budget Scenario B
The following figure shows the relationship between recurring revenue and expense, operating
surplus/(deficit), the General Fund transfer in to the fund and the beginning and ending fund balances
each year of the forecast period.
-$575,882 -$836,932 -$1,275,630 -$1,829,355
-$2,526,589 -$3,402,872
-$4,502,560
$4,993,669 $5,175,911 $5,364,444 $5,560,813 $5,765,387 $5,978,549 $6,200,707
$5,569,551 $6,012,843 $6,640,074 $7,390,169
$8,291,976
$9,381,421
$10,703,267
-$6,000,000
-$4,000,000
-$2,000,000
$0
$2,000,000
$4,000,000
$6,000,000
$8,000,000
$10,000,000
$12,000,000
2016 2017 2018 2019 2020 2021 2022
Operating Surplus(Deficit)Recurring Revenue Recurring Expenses
$857,991 $702,109 $285,177
-$570,453
-$1,979,808
-$4,086,397
-$7,069,269
-$8,000,000
-$7,000,000
-$6,000,000
-$5,000,000
-$4,000,000
-$3,000,000
-$2,000,000
-$1,000,000
$0
$1,000,000
$2,000,000
2016 2017 2018 2019 2020 2021 2022
Beginning Fund Balance
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Figure 103: Status Quo Forecast (Tabular) – Ambulance Budget Scenario B
Again, this scenario is not materially different from Scenario A and clearly illustrates what happens as
expenses rapidly outpace revenue. While the department can control some of its operating expenses,
the degree to which that can occur will not be enough to offset the ever increasing operating deficit.
Although the historical annual increase in the ambulance utility fee has been as high as 25 percent
annually, such increases projected into the future would provide significantly more revenue than is
needed to fund the department. Therefore, a third scenario is provided to more closely align increases
in the Ambulance Utility Fee with actual forecast expenses as well as minimizing the GF subsidy, should
council choose to do so.
Service Level Remains Status Quo – Scenario C (Ambulance and Budget)
A more realistic recurring revenue scenario is offered for consideration in Status Quo – Scenario C. In
this scenario, the forecast assumes that the fund must retain some level of fund balance carried forward
that would sustain its recurring expenditure budget for the first several months until sufficient revenue
is received to fund recurring expenses and replenish the fund balance. An analysis of monthly cash flow
would provide a more complete picture of what level of reserves would be needed. This forecast
scenario contemplates that the fund would fully support its expenditure (and required reserve) budget
by FY 2019 when the GF subsidy is reduced by half its current amount to $210,000 as shown in the table
in the following figure.
Figure 104: Status Quo Forecast (Tabular) – Ambulance Budget Scenario C
In this scenario, the Ambulance Utility Fee is increased in a manner that minimizes the difference, the
operating surplus/(deficit), between the recurring expenses and revenues while also maintaining a level
of fund balance between 15-20 percent of recurring expenses. The Utility Fee has been increased in this
scenario as follows: 20 percent in FY 2017, 15 percent in FY 2018-19, 12.5 percent in FY 2020, 20 percent
in FY 2021 and 15 percent in FY 2022, while the GF subsidy has been gradually reduced from $420,000 in
Ambulance Utility Fund 2016 2017 2018 2019 2020 2021 2022
Recurring Revenue $4,993,669 $5,175,911 $5,364,444 $5,560,813 $5,765,387 $5,978,549 $6,200,707
Recurring Expenses $5,569,551 $6,012,843 $6,640,074 $7,390,169 $8,291,976 $9,381,421 $10,703,267
Operating Surplus(Deficit)-$575,882 -$836,932 -$1,275,630 -$1,829,355 -$2,526,589 -$3,402,872 -$4,502,560
General Fund Transfer In $420,000 $420,000 $420,000 $420,000 $420,000 $420,000 $420,000
Beginning Fund Balance $857,991 $702,109 $285,177 -$570,453 -$1,979,808 -$4,086,397 -$7,069,269
Ending Fund Balance $702,109 $285,177 -$570,453 -$1,979,808 -$4,086,397 -$7,069,269 -$11,151,830
Ambulance Utility Fund 2016 2017 2018 2019 2020 2021 2022
Recurring Revenue $4,993,669 $5,774,146 $6,488,991 $7,302,582 $8,091,736 $9,436,714 $10,664,025
Recurring Expenses $5,569,551 $6,012,843 $6,640,074 $7,390,169 $8,291,976 $9,381,421 $10,703,267
Operating Surplus(Deficit)-$575,882 -$238,697 -$151,083 -$87,586 -$200,240 $55,292 -$39,242
General Fund Transfer In $420,000 $420,000 $420,000 $210,000 $105,000 $0 $0
Beginning Fund Balance $857,991 $702,109 $883,412 $1,152,329 $1,274,743 $1,179,502 $1,234,795
Ending Fund Balance $702,109 $883,412 $1,152,329 $1,274,743 $1,179,502 $1,234,795 $1,195,552
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FY 2017 to zero in FY 2021. The specific impact of these modeled increases on the monthly rate would
cause the rate to increase from the current $12.65 per unit as follows:
• FY 2017 – 20 percent increase to $15.18
• FY 2018 – 15 percent increase to $17.46
• FY 2019 – 15 percent increase to $20.08
• FY 2020- 12.5 percent increase to $22.58
• FY 2021- 20 percent increase to $27.10
• FY 2022 – 15 percent increase to $31.17
Figure 105 shows graphically what happens as this scenario unfolds. Recurring operating expenses track
very closely with recurring revenues. Expenses increase from $5,569,551 in FY 2016 to $10,703,267 in
FY 2022 for an average annual increase of 11.52 percent while recurring revenues increase from
$4,993,669 to $10,664,025 for an average annual increase of 13.5 percent.
This difference in recurring revenue and expense leads to annual operating deficits that fluctuate from a
high of $575,882 in FY 2016, to a low of $39,242 in FY 2022, while there is actually a surplus in FY 2021.
This fluctuation leads at an initial decrease in beginning fund balance as seen by the dashed orange line
in the bottom of the figure from $857,991 in FY 2016 to a low of $702,109 in FY 2017 followed by a
gradual increase to $1,274,743 in FY 2020 after which the fund balance generally stabilizes around $1.2
million each year. Given the expenditure assumptions, this scenario gives staff and elected officials
some idea of how revenues might need to increase in order to preserve a status quo service level
without a General Fund subsidy over the long term.
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Figure 105: Status Quo Forecast (Graphical) – Ambulance Budget Scenario C
Service Level Increases – Scenario D (Fire Budget)
Scenario D represents an increase in fire service level through the addition of a third firefighter to each
of the three existing engine companies on all three shifts for a total of nine additional firefighters. This
brings station staffing level from four to five with two personnel assigned to the ambulance and three
assigned to the engine. This and the succeeding scenarios use the FY 2016 pay scale shown in Figure
106. Base wages are shown along with wages and overtime increased to account for average annual
observed overtime of 15 percent. Scenario D adds a 25-36 month level firefighter to each of the three
engine companies.
-$575,882 -$238,697 -$151,083 -$87,586 -$200,240
$55,292
-$39,242
$4,993,669
$5,774,146
$6,488,991
$7,302,582
$8,091,736
$9,436,714
$10,664,025
$5,569,551 $6,012,843
$6,640,074
$7,390,169
$8,291,976
$9,381,421
$10,703,267
-$2,000,000
$0
$2,000,000
$4,000,000
$6,000,000
$8,000,000
$10,000,000
$12,000,000
2016 2017 2018 2019 2020 2021 2022
Operating Surplus(Deficit)Recurring Revenue Recurring Expenses
$857,991
$702,109
$883,412
$1,152,329
$1,274,743
$1,179,502 $1,234,795
$0
$200,000
$400,000
$600,000
$800,000
$1,000,000
$1,200,000
$1,400,000
2016 2017 2018 2019 2020 2021 2022
Beginning Fund Balance
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Figure 106: FY 2016 Firefighter Pay/Benefit Scale Used for Scenarios D, E, and F
Figure 107 shows the full recurring cost of adding nine firefighters in Scenario D (a third on each engine
company). The scenario adds these firefighters in FY 2017, but the table below shows what the cost
would be if they were added at any point within the forecast period. Costs escalate at the rate
discussed above for wages (6 percent) and benefits (11.3 percent) that have been observed historically.
The operating cost for on-boarding these employees, estimated at $5,000 per employee, is a one-time
cost that would include mainly bunker gear, uniforms, etc. The table below also shows what this one-
time cost would be in whatever year these employees were added. While other operating costs may go
up per employee, these would be minor relative to salary and benefits.
Figure 107: Cost of Adding a Third Firefighter to each Engine Company in Various Years of Forecast Period
Service Level Increases – Scenario E (Fire Budget)
Scenario E represents an increase in fire service level through the addition of a fourth engine company
staffed with two firefighters and one lieutenant on each of three shifts for a total of nine additional
firefighters. This engine company would be housed in an as yet to be built fourth fire station. It is not
known when this station would be built and how it would be funded. Therefore, the capital facility and
apparatus/equipment costs as well as recurring station operating costs are not included in this analysis.
For budget planning purposes, staff could use a very generalized figure of $2-2.5 million for an equipped
fire station and $450-500,000 for an equipped fire engine. Staff should plan on hiring the personnel in
the year following construction of the station.
Scenario D adds one 25-36 month level firefighter, one 49+ month firefighter (functioning as
driver/engineer), and one lieutenant to each of three shifts to staff the additional engine company. The
table below shows the total cost of adding the personnel as well as the one-time cost in whatever year
these employees would be added.
FY 2016 Pay Rates by Base Base Wages Benefits
Position Wages Benefits w/ Overtime
Firefighter (25-36 Months)$70,850 $25,552 $81,478 $29,385
Firefighter (49+ Months)$78,728 $26,078 $90,537 $29,990
Lieutenant $86,606 $26,604 $99,597 $30,595
2016 2017 2018 2019 2020 2021 2022
Wages (w/ OT)$733,298 $752,217 $771,624 $791,532 $811,953 $832,902 $854,390
Benefits (w/ OT)$264,463 $288,000 $313,632 $341,545 $371,942 $405,045 $441,094
Operating (on-boarding)$45,000 $45,900 $46,818 $47,754 $48,709 $49,684 $50,677
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Figure 108: Cost of Adding Another Engine Company in Various Years of Forecast Period
Service Level Increases – Scenario F (Fire Budget)
In order to give staff and council an appreciation for the full impact of adding a third firefighter to each
existing engine company and a fourth three-person engine company, Scenario F was prepared adding
both service level upgrades. Scenario F represents an increase in fire service level through both the
addition of a fourth engine company staffed with two firefighters and one lieutenant on each of three
shifts as well as the third firefighter on the three current engine companies for a total of 18 additional
firefighters.
As discussed above, the additional engine company would be housed in an as yet to be built fourth fire
station. Scenario F adds four 25-36 month level firefighters (one for each existing engine and one for
the new engine), one 49+ month firefighter (functioning as driver/engineer), and one lieutenant to each
of the three shifts. The table below shows the total cost of adding the 18 personnel as well as the one-
time cost in whatever year these employees would be added.
Figure 109: Cost of Adding a Third Person in each Engine and Another Engine Company in Various Years of
Forecast Period
Using the tables from Scenarios D and E, staff and council can mix and match timing of implementing
either of these upgrades. Figure 110 summarizes the net impact of the above fire service scenarios for
each year that the change might be implemented. Total fire budget expenditures are shown in the
orange dashed line for each year of the forecast and represent a status quo service level. The
incremental cost each year of adding a third firefighter on each engine company is shown with the blue
bars while the incremental cost of adding an additional engine company is shown in the red bars. While
the total number of additional firefighters is the same for each upgrade, the engine company is costlier
due to the experience level and commensurate pay grade required to fill the positions needed.
Adding a third firefighter on each of the three existing engines will add $1.086 million in FY 2017, which
grows to just under $1.3 million annually by FY 2022. The addition of an engine company adds just over
$1.5 million in FY 2017, if added then, and grows to $1.9 million by FY 2022. The addition of a third
firefighter to each engine company adds approximately 16.9 percent to the fire budget each year while
the addition of another engine company adds approximately 24.16 percent annually on average.
2016 2017 2018 2019 2020 2021 2022
Wages (w/ OT)$814,835 $835,858 $857,423 $879,544 $902,236 $925,514 $949,392
Benefits (w/ OT)$570,402 $621,168 $676,452 $736,656 $802,219 $873,616 $951,368
Operating (on-boarding)$45,000 $45,900 $46,818 $47,754 $48,709 $49,684 $50,677
2016 2017 2018 2019 2020 2021 2022
Wages (w/ OT)$1,548,132 $1,588,074 $1,629,046 $1,671,076 $1,714,190 $1,758,416 $1,803,783
Benefits (w/ OT)$834,865 $909,168 $990,084 $1,078,201 $1,174,161 $1,278,662 $1,392,462
Operating (on-boarding)$90,000 $91,800 $93,636 $95,509 $97,419 $99,367 $101,355
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Figure 110: Annual Cost Differential of Adding a Third Person in each Engine and/or Another Engine Company
$1,086,116
$1,085,255 $1,133,077 $1,183,896 $1,237,947 $1,295,485
$1,502,926 $1,533,875 $1,616,200 $1,704,455 $1,799,130 $1,900,760
$5,602,747 $5,857,659 $6,235,059
$6,656,432
$7,128,773
$7,660,338
$8,260,887
$0
$500,000
$1,000,000
$1,500,000
$2,000,000
$2,500,000
$3,000,000
$3,500,000
$4,000,000
$4,500,000
$5,000,000
$0
$2,000,000
$4,000,000
$6,000,000
$8,000,000
$10,000,000
2016 2017 2018 2019 2020 2021 2022 Cost Differential from Status Quo Status Quo Total Expenses Addition of Third Firefighter
Addition of Full Engine Company
Total Fire Expenses (Status Quo)
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Appendices
APPENDIX A: TABLE OF FIGURES
Figure 1: Service Area Map ......................................................................................................................... 24
Figure 2: Organizational Chart .................................................................................................................... 25
Figure 3: Total Incidents per 1,000 Population, 2015 ................................................................................. 27
Figure 4: Fires per 1,000 Population, 2015 ................................................................................................. 28
Figure 5:Fire Loss per Capita, 2015 ............................................................................................................. 29
Figure 6: Critical Issues ................................................................................................................................ 31
Figure 7: Tri-Cities Employment, Available Labor Force and Unemployment Rate, 2006-2015 ................ 34
Figure 8: Comparison of State of Washington and Kennewick-Pasco-Richland MSA Unemployment Rates,
2006-2015 ........................................................................................................................................... 35
Figure 9: Comparison of Per Capita Income (Inflation Adjusted 2013 Dollars) United States and
Washington, 2005-2014 ...................................................................................................................... 36
Figure 10: Median Annual Household Income, Washington State and Franklin County, 2005 to 2014 .... 37
Figure 11: Median Home Sales Price in Washington State, 2000 to 2014 ................................................. 38
Figure 12: Median Home Sales Price and Sales Volume (Seasonally Adjusted First Quarter Sales) in
Washington State and Franklin County, 2008 to 2016 ....................................................................... 39
Figure 13: Single Family Residential Permits and Total Value and Commercial/Industrial Permits Issued
by Pasco Building Permits & Inspection Services, 2005-2014 ............................................................ 40
Figure 14: State of Washington, Franklin County and City of Pasco Historical Population, 2005-2015 ..... 41
Figure 15: High, Medium, and Low Population Projections for Franklin County through 2030 ................. 42
Figure 16: Washington State Selected Historical and Projected Population by Age Group, 2005-2030 .... 42
Figure 17: Inflation Trends: Urban CPI-U West Coast Class B/C Cities, 2000-2015 .................................... 43
Figure 18: Franklin County and City of Pasco Taxable Retail Sales Trends, 2005-2014 .............................. 44
Figure 19: Pasco Local Sales and Use Tax Distribution by Major Function, 2005-2015 ............................. 45
Figure 20: City of Pasco Residential, Commercial, and Other Property Values, 2005-2014 ...................... 46
Figure 21: City of Pasco Debt Service and Operating Millage Rates vs. Total Property Value, 2005-2014 47
Figure 22: City of Pasco Sales and Property Tax Revenue Trends, 2005-2014 ........................................... 48
Figure 23: Pasco Fire Department Financial Resources (Fire and Ambulance), FY 2011 – FY 2016 ........... 50
Figure 24: Fire and Ambulance Recurring Revenues, FY 2011 - FY 2016 .................................................... 50
Figure 25: Fire Recurring Revenues, FY 2011 - FY 2016 .............................................................................. 51
Figure 26: Ambulance Recurring Revenues, FY 2011 - FY 2016 .................................................................. 52
Figure 27: Ambulance Recurring Revenues, GF Subsidy, and Beginning Fund Balance, FY 2011 - FY 2016
............................................................................................................................................................ 53
Figure 28: Pasco Fire Department Expenditures (Fire and Ambulance), FY 2011 – FY 2016 – Tabular
Format ................................................................................................................................................. 54
Figure 29: Expenditures (Fire and Ambulance), FY 2011 - FY 2016 – Graphic Format ............................... 55
Figure 30: Fire and Ambulance Expenses as a Percentage of Total Department Expenses, FY 2011 - FY
2016 .................................................................................................................................................... 55
Figure 31: Combined Fire and Ambulance Wages and Benefits, FY 2011 - 2016 ....................................... 56
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Figure 32: Fire Department Staff County by Position and Budget, FY 2011 - 2016 .................................... 57
Figure 33: Fire and Ambulance Budget FTEs and Wages, FY 2011 - 2016 .................................................. 58
Figure 34: Staff Changes by Category, FY 2011 - 2016 ............................................................................... 59
Figure 35: Fire and Ambulance Regular Wages and Overtime, FY 2011 – FY 2016 .................................... 61
Figure 36: Fire and Ambulance Operating Expenses, FY 2011 – FY 2016 ................................................... 62
Figure 37: Fire and Ambulance Capital Expenses, FY 2011 – FY 2016 ........................................................ 63
Figure 38: Fire and Ambulance Non-Apparatus Capital Expenses, FY 2011 – FY 2016 .............................. 64
Figure 39: Fire Recurring Revenue, Expenditure, and Net Surplus/(Deficit) Trends, FY 2011 – FY 2016 ... 65
Figure 40: Ambulance Recurring Revenue, Expenditure and Net Surplus/(Deficit) Trends, FY 2011 – FY
2016 .................................................................................................................................................... 66
Figure 41: Ambulance Operating Surplus/(Deficit), Fund Balance, and GF Transfer (In) Trends, FY 2011 –
FY 2016 ................................................................................................................................................ 67
Figure 42: Emergency Response Staffing per Shift ..................................................................................... 69
Figure 43: Staffing Comparison, 2015 ......................................................................................................... 71
Figure 44: Tri-Cities Airport Passenger Enplanements, 2006 – 2015 ......................................................... 85
Figure 45: Master Training Schedule, January 2015 ................................................................................... 91
Figure 46: Annual Building Permits Issued, 2001 – 2015 ............................................................................ 94
Figure 47: PFD Pre-Incident Plan Template .............................................................................................. 101
Figure 48: Risk/Probability Matrix ............................................................................................................ 103
Figure 49: Station 81 ................................................................................................................................. 107
Figure 50: Station 82 ................................................................................................................................. 108
Figure 51: Station 83 ................................................................................................................................. 109
Figure 52: Vehicle Storage (Station 83 Annex) ......................................................................................... 110
Figure 53: Station 84 ................................................................................................................................. 111
Figure 54: Apparatus Inventory and Condition ......................................................................................... 113
Figure 55: Service Demand, 2011 - 2015 .................................................................................................. 114
Figure 56: Incident Type, 2014-2015 Incidents ......................................................................................... 115
Figure 57: Service Demand by Month of the Year, 2014-2015 ................................................................. 115
Figure 58: Service Demand by Day of the Week, 2014-2015 ................................................................... 116
Figure 59: Service Demand by Hour of the Day, 2014-2015 ..................................................................... 116
Figure 60: Geographic Service Demand –All Incident Types, 2014-2015 ................................................. 117
Figure 61: Geographic Service Demand –All Fires Incidents, 2014-2015 ................................................. 118
Figure 62: Study Area ................................................................................................................................ 119
Figure 63: Population Density, Office of Financial Management (OFM) 2015 Population Estimate ....... 120
Figure 64: Station Distribution, WSRB Criteria ......................................................................................... 121
Figure 65: Aerial Apparatus Distribution, WSRB Criteria .......................................................................... 122
Figure 66: Travel Time Model, NFPA Criteria ............................................................................................ 123
Figure 67: Potential Travel Time Model, PFD Response/Travel Time Model ........................................... 124
Figure 68: 2014-2015 Service Demand and Six Minutes Travel Time Model ........................................... 125
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Figure 69: Actual Travel Time Performance by Fire Management Zone, 2015 ........................................ 126
Figure 70: Station Concentration, Staffed Stations .................................................................................. 127
Figure 71: Full First Alarm, 12 Minutes Travel Time (PFD Travel Time Goal) ........................................... 128
Figure 72: 2014 Unit Hour Utilization (UHU) ............................................................................................ 129
Figure 73: 2015 Unit Hour Utilization (UHU) ............................................................................................ 129
Figure 74: Concurrent Incidents, 2014-2015 ............................................................................................ 131
Figure 75: Concurrent Incidents by Station Area, 2014-2015 .................................................................. 131
Figure 76: Response Performance Goals and Performance, 2015 ........................................................... 132
Figure 77: NFPA 1710 Response Performance Recommendations .......................................................... 133
Figure 78: PFD Overall Response Performance, 2014-2015 ..................................................................... 135
Figure 79: Mutual and Automatic Aid, 2015 ............................................................................................. 136
Figure 80: City of Pasco Population History, U.S. Census and Washington OFM Data, 1980-2016 ......... 139
Figure 81: Tri-Cities Annual Population Change, 2010-2016 OFM Estimates ........................................... 140
Figure 82: Franklin County and City of Pasco Population Projection ....................................................... 141
Figure 83: Projected Service Demand, 2015 through 2040 ...................................................................... 142
Figure 84: Population Density, OFM 2015 Traffic Analysis Zone Data ..................................................... 143
Figure 85: Study Area Population by Age, 2014 U.S. Census American Community Survey (ACS) .......... 144
Figure 86: PFD Study Area Demographics, 2014 2014 US Census American Community Survey (ACS) .. 144
Figure 87: PFD Study Area Community Risk and Land Use ....................................................................... 145
Figure 88: PFD Study Area Transportation Network................................................................................. 147
Figure 89: Sample Critical Task Staffing, Fire Risk ..................................................................................... 152
Figure 90: Non-Structure Fire Critical Tasking .......................................................................................... 153
Figure 91: Hazardous Materials Incident Critical Tasking ......................................................................... 153
Figure 92: Motor Vehicle Collision with Entrapment Critical Tasking ...................................................... 153
Figure 93: Emergency Medical Incident Critical Tasking (BLS) ................................................................. 153
Figure 94: Emergency Medical Incident Critical Tasking (ALS) ................................................................. 153
Figure 95: Current Staffed Station Deployment ....................................................................................... 165
Figure 96: Proposed Four Staffed Station Deployment & Reconfiguration .............................................. 166
Figure 97: Five-Station Deployment Model .............................................................................................. 167
Figure 98: Historical Operating Expense Trends – Fire and Ambulance Budgets ..................................... 172
Figure 99: Status Quo Forecast (Graphical) – Fire Budget ........................................................................ 174
Figure 100: Status Quo Forecast (Tabular) – Scenario A .......................................................................... 175
Figure 101: Status Quo Forecast (Graphical) – Ambulance Budget Scenario A ........................................ 176
Figure 102: Status Quo Forecast (Graphical) – Ambulance Budget Scenario B ........................................ 177
Figure 103: Status Quo Forecast (Tabular) – Ambulance Budget Scenario B ........................................... 178
Figure 104: Status Quo Forecast (Tabular) – Ambulance Budget Scenario C ........................................... 178
Figure 105: Status Quo Forecast (Graphical) – Ambulance Budget Scenario C ........................................ 180
Figure 106: FY 2016 Firefighter Pay/Benefit Scale Used for Scenarios D, E, and F ................................... 181
Page 211 of 254
Pasco Fire Department (WA)
Emergency Services Master Plan 2016
190 Final Report
Figure 107: Cost of Adding a Third Firefighter to each Engine Company in Various Years of Forecast
Period ................................................................................................................................................ 181
Figure 108: Cost of Adding Another Engine Company in Various Years of Forecast Period..................... 182
Figure 109: Cost of Adding a Third Person in each Engine and Another Engine Company in Various Years
of Forecast Period ............................................................................................................................. 182
Figure 110: Annual Cost Differential of Adding a Third Person in each Engine and/or Another Engine
Company ........................................................................................................................................... 183
Page 212 of 254
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Page 213 of 254
AGENDA REPORT
FOR: City Council September 6, 2017
TO: Dave Zabell, City Manager Workshop Meeting: 9/11/17
FROM: Rick White, Director
Community & Economic Development
SUBJECT: Code Enforcement - PMC Title 11
I. REFERENCE(S):
PMC Title 11
II. ACTION REQUESTED OF COUNCIL / STAFF RECOMMENDATIONS:
Discussion
III. FISCAL IMPACT:
IV. HISTORY AND FACTS BRIEF:
Title 11 of the Pasco Municipal Code was adopted by City Council in 1996 to provide
regulations for use by the Code Enforcement Board in carrying out their responsibilities as
outlined in Section 11.04 of Title 11.
Council has heard recent public comment expressing concern about certain provisions of Title
11, specifically the Board's application of the penalty associated with "repeat violations" (those
violations by the same person for which voluntary compliance has been sought within two
years) and had asked for a briefing on the matter.
V. DISCUSSION:
The penalty of $200 for "repeat violations" is established by PMC 11.02.060 (2) and is
highlighted in the attached Title 11 of the PMC. A provision for "repeat violation penalties" is
include in Title 11 as a preventative measure to help minimize serial nuisance violations and
bring them to a close.
Staff has prepared a presentation for Council with data from the Code Enforcement process for
years 2015 and 2016. The presentation will provide information on the number of: complaints;
cases opened; cases that proceed to the Code Enforcement Board and the number of cases
heard by the Board for adjudication. This same information will be presented for "repeat
violations" in 2015 and 2016. The information presented illustrates that the vast majority of
Page 214 of 254
code infractions are resolved early in the enforcement process with only a small percentage
resulting in a "repeat violation".
Discussion by City Council on this issue is requested.
Page 215 of 254
PMC Title 11 03.20.2017 1
TITLE 11
CIVIL INFRACTIONS
CHAPTER 11.02 VIOLATIONS AND PROCEDURES ......................................................2
CHAPTER 11.04 CODE ENFORCEMENT BOARD ........................................................10
Page 216 of 254
PMC Title 11 03.20.2017 2
CHAPTER 11.02 VIOLATIONS AND PROCEDURES
Sections:
11.02.010 APPLICABILITY OF CHAPTER..........................................................2
11.02.020 PURPOSE.......................................................................................2
11.02.030 DEFINITIONS ................................................................................2
11.02.040 VOLUNTARY CORRECTION.............................................................4
11.02.050 NOTICE OF CIVIL VIOLATION.........................................................5
11.02.060 HEARING BEFORE THE CODE ENFORCEMENT BOARD......................7
11.02.070 ABATEMENT BY THE CITY..............................................................8
11.02.080 ADDITIONAL ENFORCEMENT PROCEDURES ....................................9
11.02.090 CONFLICTS....................................................................................9
11.02.100 MEANING OF TERMS......................................................................9
11.02.110 SEVERABILITY .............................................................................10
11.02.010 APPLICABILITY OF CHAPTER. The provisions of this chapter shall
apply to enforcement of Title 5 (excluding Sections 5.04.110 – Revocation of License,
Section 5.04.115 – Reinstatement Procedures and Standards for Reviewing an
Application for Reinstatement, Chapters 5.12 - Pawnbrokers and Second-Hand Dealers
and 5.46 - Private Detective Agencies, Private Detectives, Private Security Guards, and
Private Security Companies), Title 6 - Health and Sanitation, Chapter 10.52 – Parking,
Title 12 - Streets and Sidewalks, Title 13 – Water and Sewers, Title 16 - Building Code,
Title 17 - Sign Code, Title 19 - Mobile Homes, Title 25 - Zoning, and Chapters 8.02
(excepting Sections 8.02.130, 8.02.170 and 8.02.320 – Animal Control), 9.60 - Public
Nuisances, 9.61 - Noise Regulation, 9.62 - Abandoned Vehicles and Vehicle Hulks, and
9.63 – Chronic Nuisances. The Code Enforcement Board is also designated as the
“Improvement Board” for the purposes of RCW 35.80.030. (Ord. 4347, 2017; Ord.
4289, 2016; Ord. 4017, 2011; Ord. 3534 Sec. 2, 2002; Ord. 3190 Sec. 1, 1996.)
11.02.020 PURPOSE. The purpose of this chapter is to establish and efficient
system to enforce the regulations of the City of Pasco, to provide an opportunity for a
prompt hearing on alleged violations of such regulations, to establish monetary
penalties for violations as authorized by RCW 34A.11.020, and to establish a standard
procedure to be used by the City to abate unsafe or unlawful conditions. (Ord. 3190
Sec. 1, 1996.)
11.02.030 DEFINITIONS. As used in this chapter, unless a different meaning is
plainly required:
(1) ABATE. “Abate” means to repair, replace, remove, destroy or otherwise
remedy a condition which constitutes a civil violation by such means, in such a manner
and to such an extent as the applicable department director determines is necessary in
the interest of the general health, safety and welfare of the community.
(2) ACT. “Act” means doing or performing something.
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PMC Title 11 03.20.2017 3
(3) APPLICABLE DEPARTMENT DIRECTOR. “Applicable department director”
means the director or the department or any designated alternate City agent or
employee empowered by ordinance or by the City Manager to enforce a City of Pasco
ordinance or regulation.
(4) CIVIL INFRACTION. “Civil infraction” means a violation for which a
monetary penalty may be imposed as specified in this chapter. Each day or portion of a
day during which a violation occurs is a separate violation.
(5) DEVELOPMENT. “Development” means the erection, alteration,
enlargement, demolition, maintenance or use of any structure or the alteration or use of
any land above, at or below ground or water level, and all acts authorized by a City of
Pasco regulation.
(6) EMERGENCY. “Emergency” means a situation which the applicable
department director determines requires immediate action to prevent or eliminate
threat to the health or safety of persons or property.
(7) CODE ENFORCEMENT BOARD. “Code Enforcement Board” means the
Pasco Code Enforcement Board established pursuant to Pasco Municipal Code Chapter
11.04.010.
(8) OMISSION. “Omission” means a failure to act.
(9) PERSON. “Person” means any individual, firm, association, partnership,
corporation or any entity, public or private.
(10) PERSON RESPONSIBLE FOR THE VIOLATION. “Person responsible for the
violation” means any person who is required by the applicable regulation to comply
therewith, or who commits any act or omission which is a civil violation or cause or
permits a civil violation to occur or remain upon property in the City, and includes but is
not limited to the owner(s), lessor(s), tenant(s), or other person(s) entitled to control,
use and/or occupy property where a civil violation occurs.
(11) REGULATION. “Regulation” means and includes the following as now or
hereafter amended:
(a) Enforcement of Title 5 (excluding Chapters 5.12 - Pawnbrokers and
Second-Hand Dealers and 5.46 - Private Detective Agencies, Private Detectives,
Private Security Guards, and Private Security Companies), Title 6 - Health and
Sanitation, Chapter 10.52 - Parking, Title 12- Streets and Sidewalks, Title 13 -
Water and Sewers, Title 16 - Building Code, Title 17 - Sign Code, Title 19- Mobile
Homes, Title 25 - Zoning, and Chapters 8.02 (excepting Sections 8.02.130,
8.02.170 and 8.02.320 - Animal Control), 9.60 - Public Nuisances, 9.61 - Noise
Regulation, 9.62 - Abandoned Vehicles and Vehicle Hulks, and 9.63 - Chronic
Nuisances.
(b) All standards, regulations and procedures adopted pursuant to the
above; and
(c) The terms and conditions of any permit or approval issued by the
City, or any concomitant agreement, with the City.
(12) REPEAT VIOLATIONS. “Repeat violations” means a violation of the same
regulation in any location by the same person for which voluntary compliance previously
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PMC Title 11 03.20.2017 4
has been sought within two years or a Notice of Civil Violation has been issued within
two years.
(13) VIOLATION. “Violation” means an act or omission contrary to a City of
Pasco regulation including an act or omission at the same or different location by the
same person, and including a condition resulting from such act or omission. (Ord.
4289, 2016; Ord. 3190 Sec. 1, 1996.)
11.02.040 VOLUNTARY CORRECTION. (1) Applicability. This section applies
whenever the applicable department director determines that a violation of a regulation
has occurred or is occurring.
(2) General. The applicable department director shall pursue a reasonable
attempt to secure voluntary correction by contacting the person responsible for the
violation where possible, explaining the violation and requesting correction.
(3) Issuance of Voluntary Correction Agreement. A Voluntary Correction
Agreement may be entered into between the person responsible for the violation and
the City, acting through the applicable department director.
(a) Content. The Voluntary Correction Agreement is a contract
between the City and the person responsible for the violation under which such
person agrees to abate the violation within a specified time and according to
specified conditions. The Voluntary Correction Agreement shall include the
following:
(i) The name and address of the person responsible for the
violation; and
(ii) The street address or a description sufficient for
identification of the building, structure, premises, or land upon which or
within which the violation has occurred or is occurring; and
(iii) A description of the violation and a reference to the
provision(s) of the City of Pasco ordinance or regulations which has been
violated; and
(iv) The necessary corrective action to be taken, and a date and
time by which the corrective action must be completed; and
(v) An agreement by the person responsible for the violation
that the City of Pasco may abate the violation and recover its costs and
expenses and a monetary penalty pursuant to this Chapter form the
person responsible for the violation if all terms of the Voluntary Correction
Agreement are not met.
(vi) An agreement that by entering into the Voluntary Correction
Agreement the person responsible for the violation waives the right to an
administrative appeal of the violation and/or the required corrective
action.
(b) Administrative Review of Compliance. After the person responsible
for the violation has given notice to the City of completion of the abatement
required under the Voluntary Correction Agreement, the applicable department
director shall, within three (3) working days, determine if the abatement is
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PMC Title 11 03.20.2017 5
complete. If said director determines that the abatement is not complete, the
person responsible for the violation shall have five (5) days in which to file an
appeal with the Community & Economic Development Director of the City for
review of such determination, which review shall be completed within thirty (30)
days of the date of the receipt of the notice of review. The only issue subject to
review shall be whether here has been complete compliance with the terms of
the Voluntary Correction Agreement.
(c) Extension-Modification. An extension of the time limit for
correction or modification of the required corrective action may be granted by
the applicable department director if the person responsible for the violation has
shown due diligence and/or substantial progress in correcting the violation but
unforeseen circumstances render correction under the original conditions
unattainable.
(d) Abatement by the City. The City may abate the violation in
accordance with Section 11.02.070 below if the terms of the Voluntary Correction
Agreement are not met.
(e) Collection of Costs. If the terms of the Voluntary Correction
Agreement are not met the person responsible for the violation shall be assessed
a monetary penalty commencing on the date set for correction and thereafter, in
accordance with Section 11.02.050(5) plus all costs and expenses of abatement,
as set forth in Section 11.02.070(4). (Ord. 3190 Sec. 1, 1996; Ord. 3457 Sec. 1,
2001.)
11.02.050 NOTICE OF CIVIL VIOLATION. (1) Issuance.
(a) When the applicable department director determines that a violation
has occurred or is occurring, and is unable to secure voluntary correction
pursuant to Section 11.02.040, the applicable department director may issue a
Notice of Civil Violation to the person responsible for the violation.
(b) The applicable department director may issue a Notice of Civil
Violation without having attempted to secure voluntary correction as provided in
Section 11.02.040 under the following circumstances:
(i) When an emergency exists; or
(ii) When a repeat violation occurs; or
(iii) When the violation creates a situation or condition which
cannot be corrected; or
(iv) When the person knows or reasonably should have known
that the action is in violation of a City of Pasco regulation.
(2) Content. The Notice of Civil Violation shall include the following
information:
(a) The name and address of the person responsible for the violation;
and
(b) The street address or a description sufficient for identification of
the building, structure, premises, or land upon or within which the violation has
occurred or is occurring; and
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PMC Title 11 03.20.2017 6
(c) A description of the violation and a reference to the provision(s) of
the City of Pasco regulation which has been violated; and
(d) The required corrective action and a date and time by which the
correction must be completed after which the City may abate the unlawful
condition in accordance with Section 11.02.070 and the Code Enforcement
Board’s Order; and
(e) The date, time and location of an appeal hearing before the Code
Enforcement Board which will be a least 10 days from the date of the Notice of
Civil Violation is issued; and
(f) A statement indicating that the hearing, other than the repeat
violation hearing, will be canceled and no monetary penalty will be assessed if
the applicable department director approves the completed, required corrective
action at least 48 hours prior to the hearing; and
(g) A statement that the costs and expenses of abatement incurred by
the City pursuant to Section 11.02.070(4) and a monetary penalty in an amount
per day for each violation as specified in Section 11.02.050(5) may be assessed
against the person whom the Notice of Civil Violation is directed as specified and
ordered by the Code Enforcement Board.
(3) Service of Notice. The applicable department director shall serve the
Notice of Civil Violation upon the person to whom it is directed, either personally or by
mailing, by both regular mail and certified mail, a copy of the Notice of Violation to such
person at their last known address. If the person to whom it is directed cannot after
due diligence be personally served within Franklin County and if an address for mailed
service cannot after due diligence be ascertained, notice shall be served by posting a
copy of the Notice of Civil Violation conspicuously on the affected property or structure.
Proof of service shall be made by a written declaration under penalty of perjury
executed by the person effecting the service, declaring the time and date of service, the
manner by which the service was made, and if by posting the facts showing that due
diligence was used in attempting to serve the person personally or by mail.
(4) Extension. No extension of the time specified in the Notice of Civil
Violation for correction of the violation may be granted, except by order of the Code
Enforcement Board.
(5) Monetary Penalty. The maximum monetary penalty for each separate
violation per day or portion thereof shall be as set forth in Chapter 3.07 of this code.
(6) Continued Duty to Correct. Payment of the monetary penalty does not
relieve the person to whom the Notice of Civil Violation was issued of the duty to
correct the violation.
(7) Collection of Monetary Penalty.
(a) The monetary penalty constitutes a personal obligation of the
person to whom the Notice of Violation is directed. Any monetary penalty
assessed must be paid to the City of Pasco within 10 calendar days from the date
of mailing of the Code Enforcement Board’s decision or a notice from the City
that penalties are due.
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PMC Title 11 03.20.2017 7
(b) The City Manager or his/her designee is authorized to take
appropriate action to collect the monetary penalty. (Ord. 4085, 2012; Ord. 3873,
2008; Ord. 3190 Sec. 1, 1996.)
11.02.060 HEARING BEFORE THE CODE ENFORCEMENT BOARD. (1) Notice. A
person to whom a Notice of Civil Violation is issued will be scheduled to appear at a
hearing before the Code Enforcement Board not less than 10 calendar days after the
Notice of Civil Violation is issued.
(2) Prior Correction of Violation. Except in the case of a repeat violation as
defined in PMC 11.02.030(12), the hearing will be canceled and no monetary penalty
will be assessed if the applicable department director approves the completed required
corrective action at least 48 hours prior to the scheduled hearing. A hearing for a repeat
violation shall not be canceled and a minimum monetary penalty of $200.00 will be
assessed even if corrective action has been completed at least 48 hours prior to the
scheduled hearing.
(3) Procedures. The Code Enforcement Board shall conduct a hearing on the
civil violation pursuant to the rules of procedure of the Code Enforcement Board. The
applicable department director and the person to whom the Notice of Civil Violation was
directed may participate as parties in the hearing and each party may call witnesses.
The City shall have the burden of proof to demonstrate by a preponderance of the
evidence that a violation has occurred and that the required corrective action is
reasonable. The determination of the applicable department director as to the need for
the required correction action shall be accorded substantial weight by the Code
Enforcement Board in determining the reasonableness of the required corrective action.
(4) Decision of the Code Enforcement Board. (a) The Code Enforcement
Board shall determine whether the City has established by a preponderance of the
evidence that a violation has occurred and that the required corrective action is
reasonable and shall affirm, vacate, or modify the City’s decision regarding the alleged
violation and/or the required corrective action, with or without written conditions.
(b) The Code Enforcement Board shall issue an Order to the person
responsible for the violation which contains the following information:
(i) The decision regarding the alleged violation including
findings of fact and conclusion based thereon in support of the decision.
(ii) The required corrective action.
(iii) The date and time by which the correction must be
completed.
(iv) The monetary penalties assessed based on the criteria in
Section 11.02.060(4)(c).
(v) The date and time after which the City may proceed with
abatement of the unlawful condition if the required correction is not
completed.
(c) Assessment of Monetary Penalty. Monetary penalties assessed by
the Code Enforcement Board shall be in accordance with the monetary penalty
schedule in Section 11.02.050(5).
Page 222 of 254
PMC Title 11 03.20.2017 8
(i) The Code Enforcement Board shall have the following
options in assessing monetary penalties:
(a) Assess monetary penalties beginning on the date of
the Notice of Civil Violation was issued and thereafter; or
(b) Assessed monetary penalties beginning on the
correction date set by the applicable department director or an
alternate correction date set by the Code Enforcement Board and
thereafter; or
(c) Assess no monetary penalty;
(d) Assess less than the maximum monetary penalty.
(ii) In determining the monetary penalty assessment, the Code
Enforcement Board shall consider the following factors:
(a) Whether the person responded to staff attempts to
contact the person and cooperated with efforts to correct the
violation;
(b) Whether the person failed to appear at the hearing;
(c) Whether the violation was a repeat violation;
(d) Whether the person showed due diligence and/or
substantial progress in correcting the violation;
(e) Whether a genuine code interpretation issue exists;
and
(f) Any other relevant factors.
(iii) The Code Enforcement Board may double the daily monetary
penalty schedule if the violation is a repeat violation. In determining the
amount of the monetary penalty for repeat violations the Code
Enforcement Board shall consider the factors set forth in Section
11.02.060(4)(c)(i).
(d) Notice of Decision. The Code Enforcement Board shall mail, by
both first class and certified mail, a copy of the decision to the appellant and to
the applicable department director within 10 working days of the hearing.
(5) Failure to appear. If the person to whom the Notice of Civil Violation was
issued fails to appear at the scheduled hearing, the Code Enforcement Board will enter
an order finding that the violation occurred and assessing the appropriate monetary
penalty. The City will carry out the Code Enforcement Board’s Order and recover all
relates expenses, plus the cost of the hearing and any monetary penalty from that
person.
(6) Appeal to Superior Court. An appeal of the Code Enforcement Board’s
decision must be filed pursuant to the general appeal period as set forth in Chapter
1.01 of this Code, or is thereafter barred. (Ord. 4085, 2012; Ord. 3877, 2008; Ord.
3873, 2008; Ord. 3190 Sec. 1, 1996.)
11.02.070 ABATEMENT BY THE CITY. (1) The City may abate the condition
which was caused by or continues to be a civil violation when:
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PMC Title 11 03.20.2017 9
(a) The terms of Voluntary Corrective Agreement pursuant to
11.02.040 have not been met; or
(b) A Notice of Civil Violation has been issued pursuant to Section
11.02.050 and a hearing has been held pursuant to Section 11.02.060 and the
required correction has not been completed by the date specified in the Code
Enforcement Board’s Order; or
(c) The condition is subject to summary abatement as provided for in
Section 11.02.070(2).
(2) Summary Abatement. Whenever any violation of a regulation causes a
condition the continued existence of which constitutes an immediate and emergent
threat to the public health, safety or welfare or to the environment, the City may
summarily and without prior notice abate the condition. Notice of such abatement,
including the reason for it, shall be given to the person responsible for the violation as
soon as reasonably possible after the abatement.
(3) Authorized Action by the City. Using any lawful means, the City may enter
upon the subject property and may remove or correct the condition which is subject to
abatement. The City may seek such judicial process as it deems necessary to effect the
removal or correction of such condition.
(4) Recovery of Costs and Expenses. The cost, including incidental expenses,
of correcting the violation shall be billed to the person responsible for the violation
and/or the owner, lessor, tenant or other person entitled to control, use and/or occupy
the property and shall become due and payable to the City of Pasco within 10 calendar
days. The term “incidental expense” shall include, but not be limited to personnel
costs, both direct and indirect, including attorney’s fees; costs incurred in documenting
the violation; hauling, storage and disposal expenses; and actual expenses and costs of
the City in preparing notices, specifications and contracts, and in accomplishing and/or
contracting and inspecting the work; and the costs of any required printing and mailing.
(5) Interference. No person shall obstruct, impede, or interfere with the City
or its agents, or with any person who owns, or holds any interest or estate in any
property, in performing any acts necessary to correct the violation. (Ord. 3190 Sec. 1,
1996.)
11.02.080 ADDITIONAL ENFORCEMENT PROCEDURES. The provisions of this
Chapter are not exclusive, and may be used in addition to other enforcement provisions
authorized by the Pasco Municipal Code except as precluded by law. (Ord. 3190 Sec. 1,
1996.)
11.02.090 CONFLICTS. In the event of a conflict between this chapter and any
other provision of the Pasco Municipal Code or City Ordinances providing for a civil
penalty, this chapter shall control. The provisions of the Penal Code, Title 10 and Title
10A, do not apply to this title. (Ord. 3190 Sec. 1, 1996.)
11.02.100 MEANING OF TERMS. For the purposes of this code, whenever the
terms civil infraction and civil penalty are used in any code, ordinance or regulation of
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PMC Title 11 03.20.2017 10
the City, those terms shall be deemed to have the same meaning as the terms civil
violation and monetary penalty, respectively, as used herein. (Ord. 3190 Sec. 1, 1996.)
11.02.110 SEVERABILITY. If any one or more sections, subsections or
sentences of this chapter are held to be unconstitutional or invalid, such decision shall
not affect the validity to the remaining portion of this chapter and the same shall
remain in full force and effect. (Ord. 3190 Sec. 1, 1996.)
Page 225 of 254
PMC Title 11 03.20.2017 11
CHAPTER 11.04 CODE ENFORCEMENT BOARD
Sections:
11.04.010 CREATION OF PASCO CODE ENFORCEMENT BOARD......................11
11.04.020 OPERATION OF CODE ENFORCEMENT BOARD...............................11
11.04.010 CREATION OF PASCO CODE ENFORCEMENT BOARD. There is
created a Code Enforcement Board (CED) for the City of Pasco, Franklin County,
Washington. The Board shall hear appeals and render decisions regarding civil
violations of the Pasco Municipal Code. Its express mission and purpose shall include
the following:
(1) Conduct hearings on civil violations of the Pasco Municipal Code;
(2) Determine whether the City has established by a preponderance of the
evidence that a civil violation of the Pasco Municipal Code has occurred;
(3) Assess monetary penalties in instances where is has been determined that
civil violations of the Pasco Municipal Code have occurred;
(4) Adopt rules of procedure for hearings concerning civil violations of the
Pasco Municipal Code;
(5) To act in an advisory capacity to the City Council, City Manager, and staff
in matters relating to code enforcement and civil violations. (Ord. 3189 Sec. 1, 1996.)
11.04.020 OPERATION OF CODE ENFORCEMENT BOARD. The membership of
the Pasco Code Enforcement Board shall be as follows:
(1) The Board shall consist of five (5) voting members;
(2) All positions on the Board shall be filled by persons appointed by the City
Council;
(3) All members of the Board shall be residents of the City of Pasco, both at
the time of their appointment and for the full term of their appointment;
(4) The CEB members who are first appointed shall serve terms as designated
in 11.04.020(a), but thereafter board members shall be appointed for a term of four (4)
years and shall commence on the first day of January of the year of the appointment;
(a) The term for the first appointed board members shall commence
and terminate as follows:
Position 1 - January 1, 1997 to January 1, 1999
Position 2 - January 1, 1997 to January 1, 1999
Position 3 - January 1, 1997 to January 1, 2000
Position 4 - January 1, 1997 to January 1, 2000
Position 5 - January 1, 1997 to January 1, 2000
(5) The appointing authority may remove by majority vote any person it
appointed for lack of due diligence or for other good cause, including those stated in
PMC 2.58.010. Any vacancy created by removal from office, resignation, change in
residency to outside the City limits of Pasco, or for any other reason, shall be filled by
the appointing authority for that position for the remainder of that term. (Ord. 4339,
2017; Ord. 4340, 2017; Ord. 3189 Sec. 1, 1996.)
Page 226 of 254
AGENDA REPORT
FOR: City Council September 5, 2017
TO: Dave Zabell, City Manager
Rick White, Director
Community & Economic Development
Workshop Meeting: 9/11/17
FROM: Angie Pitman, Urban Development
Coordinator
Community & Economic Development
SUBJECT: 2018 HOME Annual Work Plan and Allocation (MF# BGAP 2017 -004)
I. REFERENCE(S):
Proposed Resolution
Planning Commission Minutes Dated: 8/17/17
II. ACTION REQUESTED OF COUNCIL / STAFF RECOMMENDATIONS:
Discussion
III. FISCAL IMPACT:
Pasco's share of Federal HOME funds is $107,000 (plus program income).
IV. HISTORY AND FACTS BRIEF:
Pasco entered into a HOME Consortium Agreement with Richland and Kennewick in
1996 making the City eligible for Federal HOME funds. Every three years, d uring the
renewal cycle, member cities are given the opportunity to withdraw from the
consortium, make changes to the cooperative agreement, or select a new Lead Agency.
In April 2016, the Consortium renewed the Agreement through December 31, 2019.
HOME funds are allocated based on need and income eligibility and may be used
anywhere within the city limits, however, neighborhoods designated as priority by
Pasco City Council receive first consideration. Funding is first targeted in the
Longfellow and Museum neighborhoods, then within low-moderate income census
tracts (201, 202, 203 and 204). If HOME funds cannot be applied to those areas, then
they are used as needed within the Pasco city limits for the benefit of eligible low -
moderate income families.
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V. DISCUSSION:
The City is restricted to using HOME funds for down payment assistance for first time
homebuyers in accordance with the Tri-Cities HOME Consortium Cooperative
Agreement approved by all three cities in 2010, renewed in 2016. Estimated HOME
entitlement funds totaling $107,000 (plus program income received) will be used to
provide down payment assistance for approximately 10 first time homebuyers.
Staff presented recommendations for funding at the August 17, 2017 Planning
Commission meeting. The Planning Commission recommended approval of staff
funding recommendations as presented.
If Council concurs with the recommendation of the Planning Commission, the
proposed resolution will be returned for Council action.
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RESOLUTION NO. __________
A RESOLUTION APPROVING FEDERAL 2018 HOME ANNUAL WORK PLAN
AND ALLOCATION
WHEREAS, the City of Pasco together with Kennewick and Richland renewed a
cooperative agreement 2016 continuing participation in the Consortium originally formed in
1996 under the Home Investments Partnership (HOME) Program through 2019; and
WHEREAS, the Consortium allows the three cities to be eligible for federal HOME
funds; and
WHEREAS, the City has established a Community Housing Improvement Program
(CHIP); and
WHEREAS, $107,000 is expected to be available from entitlement funds, plus program
income, for Pasco HOME projects in program year 2018, NOW, THEREFORE,
BE IT RESOLVED BY THE CITY COUNCIL OF THE CITY OF PASCO:
Section 1. That the 2018 HOME funds received by the City of Pasco shall be
allocated to the Community Housing Improvement Program (CHIP) First Time Homebuyer
Assistance program which operates city-wide with priority given to neighborhood improvement
areas and low-moderate income census tracts; and
Section 2. That the City Manager or his delegate is hereby authorized to sign all
agreements in accordance with the 5-Year Consolidated Plan, and Annual Action Plan
Supplements previously approved by Council.
PASSED by the City Council of the City of Pasco this day of , 2017.
CITY OF PASCO:
_____________________________
Matt Watkins
Mayor
ATTEST: APPROVED AS TO FORM:
_____________________________ ___________________________
Daniela Erickson Leland B. Kerr
City Clerk City Attorney
Page 229 of 254
PLANNING COMMISSION MINUTES
8/17/2017
E. Block Grant 2018 HOME Fund Allocations (MF# BGAP 2017-
004)
Chairman Cruz read the master file number and asked for comments from staff.
Rick White, Community & Economic Development Director, discussed the 2018 HOME
Fund Allocations. The City of Pasco, City of Kennewick and City of Richland worked
together and formed a consortium to receive additional federal funds from HUD that
individually each city wouldn’t be able to receive. In 2018 the consortium expects to
receive $430,000 and those funds are earmarked for housing solutions in increasing
the supply or affordability of housing. The Commission a few years backed changed the
way those funds could be allocated to add rehabilitation projects. Those projects were
done in the past but the onerous regulations applied then are even greater now and
there is a hefty penalty if those regulations are not met and HUD may need to be paid
back. Because of this, the HOME Consortium has dedicated these funds to down
payment assistance. It is a popular program with a maximum of a $10,000 grant to
first time homebuyers as long as they are low-moderate income households. Those are
processed as fast as they come in. Staff is requesting that the program continue.
Commissioner Bowers asked about the recommendation for the entitlement funds to be
used for the down payment assistance and what other options there were for the funds.
Mr. White answered that it could be used for housing rehabilitations. The City of
Richland is in a unique circumstance that the price of homes have reached a point
where home prices are too high for low-moderate income individuals so they took on a
project in conjunction with a community development housing organization, likely
Habitat for Humanity, to build housing. So new construction and rehabs can be done
but enough funds must be available to complete the projects.
Commissioner Bowers discussed if the housing market makes it difficult to allocate
funds to down payment assistance then the cities can partner with their funds to help
with low-income rental housing and if that was an option.
Mr. White said it was an option.
Commissioner Bowers asked if the cities joined to form the consortium due to the lack
of a CDC.
Mr. White responded that the cities formed a consortium because of the required
population based needed to receive the federal funding.
Commissioner Alvarado asked what the threshold was for making it cost prohibitive for
people to use the down payment assistance funds.
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Mr. White replied that it is dependent on the housing market as well as who finances
the home. Some lenders may be more inclined to allow a larger ratio of income to
housing.
Commissioner Campos stated that he had personal experience with that with his own
loan process with lenders.
Chairman Cruz added that increasing homeownership is huge and this program has
been a huge success.
With no further questions or comments the public hearing closed.
Commissioner Campos moved, seconded by Commissioner Bykonen,
Page 231 of 254
AGENDA REPORT
FOR: City Council September 5, 2017
TO: Dave Zabell, City Manager
Rick White, Director
Community & Economic Development
Workshop Meeting: 9/11/17
FROM: Angie Pitman, Urban Development
Coordinator
Community & Economic Development
SUBJECT: 2018 Community Development Block Grant (CDBG) Annual Work Plan and
Allocations (MF# BGAP 2017-003)
I. REFERENCE(S):
Proposed Resolution - Based on Planning Commission Recommendation
Planning Commission Minutes Dated: 7/20/17 and 8/17/17
II. ACTION REQUESTED OF COUNCIL / STAFF RECOMMENDATIONS:
Discussion
III. FISCAL IMPACT:
CDBG Entitlement for 2018 is estimated at $695,000.
IV. HISTORY AND FACTS BRIEF:
A "Request for Proposals" for 2018 CDBG funds was published in the Tri -City Herald
and Tu Decides newspapers in June. Eight (8) requests were received totaling
$489,500.
The Planning Commission held public hearings and discussion on July 20, 2017 and
August 17, 2017. The public hearings solicited public comment on any application for
funding, or reallocation for the City of Pasco 2018 Community Development Block
Grant (CDBG) Program. At the public hearings, presentations were made relating to
proposed activities.
V. DISCUSSION:
Staff presented recommendations for funding at the August 17, 2017 Planning
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Commission Meeting. The Planning Commission recommended approval of funding
recommendations as presented.
There is always some question regarding funding levels approved by Congress. Actual
available funding for these FY 2018 activities will remain in question until the early
part of 2018 when the award is made. Staff recommends all projects not recommended
for whole or partial funding be put in the 2018 annual action plan as a contingency
projects should funds become available. An amendment to the Annual Action Plan
would be necessary to allocate unobligated funds to any project not in the plan. If
funding levels are lower than estimated, activity funding will be reallocated prior to
submission of the plan.
Based on Council discussion of the recommendation of the Planning Commission, the
appropriate resolution will be returned for Council action.
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RESOLUTION NO. _________
A RESOLUTION approving the Program Year 2018 Community Development Block Grant
Allocations and Annual Work Plan.
WHEREAS, staff has prepared the Program Year 2018 Annual Work Plan for activities totaling
$695,000 from estimated entitlement, program income and unobligated funds; AND
Now, THEREFORE,
BE IT RESOLVED BY THE CITY COUNCIL OF THE CITY OF PASCO:
Section 1. That the Pasco City Council hereby approves the Annual Work Plan as follows:
Activity Funding
CDBG Program Administration $139,000.00
Civic Center -Youth Recreation Specialist $20,000.00
Martin Luther King Community Center Recreation Specialist $20,000.00
Senior Citizen's Center Recreation Specialist $30,000.00
YMCA Martin Luther King Community Center Recreation Programs $20,000.00
Pasco Specialty Kitchen - Small Businesses (Job Creation) $75,000.00
Community Housing Improvement Program (CHIP) $100,000.00
Code Enforcement Officer $48,000.00
Peanuts Park Renovation – Phase II Construction $243,000.00
TOTAL $695,000.00
Section 2. That the Pasco City Council hereby approves unfunded and partially funded
projects above as contingencies in the annual action plan; and
Section 3. If entitlement funds are less than estimated, program administration and public
services will be reduced to do not exceed limits, City projects may be voluntarily reduced, and all other
projects will be proportionately reduced; and
Section 3. That the City Manager or his delegate is authorized to sign all agreements in
accordance with the 5-Year Consolidated Plan and Annual Action Plan Supplements previously
approved by Council.
PASSED by the City Council of the City of Pasco this _____day of _______________, 2017.
_____________________________
Matt Watkins
Mayor
ATTEST: APPROVED AS TO FORM:
_____________________________ ___________________________
Daniela Erickson Leland B. Kerr
City Clerk City Attorney
Page 234 of 254
PLANNING COMMISSION MINUTES
7/20/2017
H. Block Grant 2018 Community Development Block Grant
Allocations (MF# BGAP 2017-003)
Chairman Cruz read the master file number and asked for comments from staff.
Rick White, Community & Economic Development Director, discussed the 2018 Community
Development Block Grant (CDBG) Allocations. The staff memo went over the history of the
Block Grant program and the authorizing legislation at the federal level. He went over the
programs used to divide up those funds. The block grant funds themselves are allocated to
cities. The City of Pasco is an entitlement city so Pasco received funds every year for a
certain amount automatically without having to apply or compete for it. That amount is
based on the population and the income levels of households within the city limits. The
Consolidated Plan is the Comprehensive Plan of the Block Grant Program and provides
guidance on the HOME program, the Neighborhood Stabilization Program and the Block
Grant Program. A couple of years ago, Council reduced the goals in the Consolidated Plan
to the three goals presented on the overhead and in the staff memo. There is selection
criteria that staff uses in order to provide recommendations to the Commission and then
City Council adopted a resolution, Resolution 1969, passed in 1999 that designates the
Planning Commission as the official Block Grant Advisory Committee of the City. It
identified priorities for projects and concludes that social services are not allowed as eligible
uses of CDBG funds. While that seems tough, there is a social block grant progra m at the
state level that does provide for needs of health, education and welfare that this program is
not necessarily set up to provide.
For the program year of 2018, staff estimates we will receive $695,000 based on the funding
level of 2017. It is uncertain if that number will go up or down. However, the 8 proposals
received (3 of which were non-city applicants) all come in under the funds we estimate to
receive. The breakdown of the 8 proposals are: Program Administration (capped at 20%),
Public Services (YMCA, MLK Center and Senior Center staff), Economic Opportunities
(DPDA for assistance with the Specialty Kitchen) and Affordable Housing which will be
carried out by city staff and Rebuilding Mid-Columbia to assist in housing renovations and
repairs for low to moderate income families.
Steve Howland of YMCA of the Greater Tri-Cities, 1234 Columbia Park Trail, discussed his
request for funds. He has received CDBG funds in previous years for the same project.
Their largest program is the soccer program but they also have a weight room, computer lab
and soon to have a STEM program. They are requesting the funding to help keep these
programs running.
Chairman Cruz pointed out that their program can assist over 2,000 people which is a lot of
people for the small amount of money they have requested from the City.
Commissioner Portugal asked how many kids visit the center on a daily basis.
Mr. Howland said it depends but in the summer it can range from 50 -200 kids per day.
And by kids, they take young adults and teens as well as grade school age children.
With no further questions or comments the public hearing closed.
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PLANNING COMMISSION MINUTES
8/17/2017
D. Block Grant 2018 Community Development Block Grant
Allocations (CDBG) (MF# BGAP 2017-003)
Chairman Cruz read the master file number and asked for comments from staff.
Rick White, Community & Economic Development Director, discussed the 2018
Community Development Block Grant (CDBG) Allocations. He pointed out the fund
summary and staff recommendations that were included in the memo to the Planning
Commission. This was a unique year in that there were no private applications aside
from the YMCA Youth Center and the total money requested was less than our expected
2018 allocations. As done in the past, we have established a practice of placing
contingencies in the allocation process so that we don’t have to recreate this process
should the expected funding fall short or if one of the project falls though. He briefly
discussed the amounts recommended, much of the extra funds going towards
downtown improvements, such as, Peanuts Park and the Specialty Kitchen as well as
other goals and improvements for the revitalization of the downtown.
Commissioner Bowers asked about the proposal summary and how there is less money
requested than the total amount of their project and if that is because the agencies need
to contribute their own funds.
Mr. White said in a way, yes. It is related to the agency match. And there can only be
so much money spent towards public services and the City tries to keep it under 12%.
Commissioner Bowers asked if the amount for staff administration was the same as
previous years.
Mr. White responded that it was more because it is based on the amount expected to be
received and this year more is expected. The money is often underspent and it is placed
into the contingencies.
With no further questions or comments the public hearing closed.
Commissioner Roach moved, seconded by Commissioner Campos, to close the public
hearing and recommend the City Council approve the use of funds for the 2018
Community Development Block Grant Program as set forth in the “2018 Fund
Summary” as recommended by Staff. The motion passed unanimously.
Page 236 of 254
AGENDA REPORT
FOR: City Council September 1, 2017
TO: Dave Zabell, City Manager Workshop Meeting: 9/11/17
FROM: Richa Sigdel, Director
Finance
SUBJECT: Award and Acceptance of HAEIF Loan
I. REFERENCE(S):
HAEIF Loan Application
II. ACTION REQUESTED OF COUNCIL / STAFF RECOMMENDATIONS:
Presentation to Council members and discussion
III. FISCAL IMPACT:
Loan Amount: $1,500,000
Interest Rate: 3.2% (75% of Prime)
Loan Duration: 10 Years
IV. HISTORY AND FACTS BRIEF:
City Council 2016-2017 economic vitality goals included promoting the community as
a desirable place for commercial and industrial development while strengthening
existing partnerships and coordinating efforts.
V. DISCUSSION:
Many key components within the current Process Water Reuse Facility (PWRF)
facility are nearing or have exceeded their original design capacity and there is
significant demand from current users for expansion, as well as strong interests from
others to access the facility for expansion purposes.
The Council recently approved a professional services agreement to prepare Capital
Facilities Plan/Engineering Report amendment that develops a regional master plan for
industrial water treatment and guides the PWRF expansion and operation for the 20-
Page 237 of 254
year planning horizon.
Additionally, consistent growth in the food processing industry is constraining the
operations of the current facility. The proceeds of the loan, if approved by the Council,
will be used to complete near-term capital projects that will help to alleviate these
constraints.
Staff looks forward to a more detailed discussion with the Council and direction as to
the loan.
Page 238 of 254
Page 1 of 16
PUBLIC INFRASTRUCTURE LOAN PROGRAM
APPLICATION FOR FUNDING
CERTIFICATION
Government applicant: City of Pasco
Contact person: Richa Sigdel
Title: Finance Director
Phone number: 509-544-3065
Address: 525 N. 3rd Avenue, Pasco Washington
e-mail address: sigdelr@pasco-wa.gov
Amount of HAEIFC loan requested: $1,500,000
Other funding sources/amount: $ 531,000 – Existing Processors
$ 200,000 – Future Processors
$ 2,575,000 – Economic Development Administration
$ 500,000 – Franklin County Economic Development
$ 2,650,000 – Department of Commerce
$1,802,000 – Other Grants/Revenue Bonds
Total cost of project: $ 9,758,000
Project description:
The City of Pasco is seeking funding to assist with the planning, engineering, and construction of
projects that address both immediate and future facility needs of the Process Water Resource Facility
(PWRF) and facilities servicing it. The projects includes planning, engineering, environmental review
and construction of the Kahlotus-Pasco Regional Pump Station and Forcemain, Foster Wells
Forcemain, Irrigation Pump Station, and general facilities upgrades. Many key components within the
current PWRF facilities are nearing or have exceeded their original design capacity and there is
significant demand from current users for expansion as well as strong interests from others to access
the facility for expansion purposes.
Declaration: I HEREBY CERTIFY THAT THE INFORMATION GIVEN IN THIS APPLICATION TO THE
HANFORD AREA ECONOMIC INVESTMENT FUND COMMITTEE IS TRUE AND CORRECT TO THE
BEST OF MY KNOWLEDGE AND BELIEF.
Page 239 of 254
Page 2 of 16
Richa Sigdel, Finance Director
Page 240 of 254
Page 3 of 16
A. REQUEST FOR FUNDING
In order to expand the development and diversification of the economy of Benton and Franklin Counties,
the HAEIFC has been authorized to make loans and grants to political subdivisions of Benton and Franklin
Counties to assist qualified applicants by financing all or part of the cost of public facilities.
Loan amounts will be coupled with or accepted interest rate based on the current Treasury bond rate at the
time of application and may be adjusted based on closing date. The first payment will normally be due
monthly after closing. Beginning payment start date can be negotiated based on project start date but no
longer than 6 months from the time of closing.
A1. Indicate what type of HAEIFC funding you are requesting.
A loan of
$ 1,500,000
Indicate the loan payment schedule:
Semiannually – If only a loan is offered, the City would like a semi-annual repayment plan
A2. a.) If HAEIF decides to award a loan of HAEIF funds to your entity, how will the loan be repaid?
The loan will be repaid over a 10-year repayment schedule.
Note: If an HAEIF loan is given to a jurisdiction, that jurisdiction is obligating its full faith and credit to repay
the loan, regardless of the project which prompted the application for HAEIF funding.
B. IDENTIFICATION OF PUBLIC FACILITY PROJECT AND COSTS
(The term public facilities may include development of land and improvements for public facilities, as well
as the acquisition, construction, rehabilitation, alteration, expansion or improvement of such a facility.)
B1. Describe the entire public facility project, including the parts that you are not asking HAEIF to fund.
Attach any appropriate sketches.
The City of Pasco has owned and operated the Pasco Process Water Resource Facility (PWRF)
since 1995. The PWRF and associated farm properties are located in an area of irrigated agriculture
production fields on approximately 1,800 acres north of Pasco and east of Highway 395 in Franklin
County. The PWRF has a State Waste Discharge Permit (No. ST0005369) from the Washington
State Department of Ecology (Ecology) and discharges its treated water via center pivot irrigators
onto land leased by agricultural operators.
Pasco designed the PWRF to manage process wastewater from a variety of potential vegetable
processing facilities. It currently receives process wastewater from five food processors; no sanitary
wastewater is discharged into the industrial system. Four processors (Pasco Processing, Twin City
Foods, Reser’s Foods, and CRF Frozen Foods) combine their process wastewater at the Pasco
Processing Center that is located at Pasco Processing north of the city and along State Highway 395.
Pasco provides potable water to all of the discharge users. Currently, Pasco Processing is the only
food processor permitted by Ecology to discharge process waste streams to the PWRF. The other
four are permitted through the city via industrial wastewater discharge permits. Each user provides
pretreatment of its waste stream before discharge, in accordance with its discharge permit and the
Pasco’s pretreatment requirements.
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Page 4 of 16
The City of Pasco owns and is responsible for the operation of the PWRF. The center pivot irrigators
are operated by both the City and lease tenants, but land management and crop production are
handled only by the agricultural lease tenants.
Ecology issued an Administrative Order to the City delegating pretreatment permitting authority
effective on January 15, 2015. Ecology transitioned responsibility of the industrial discharge permits,
except Pasco Processing, to the City.
As mentioned above, the City is requesting funds to complete a comprehensive Capital Facilities Plan
and Engineering Report to address both immediate and future facility needs for the Process Water
Resource Facility (PWRF). Additionally, consistent growth in the food processing industry is
constraining the operations of the current facility. The proceeds of the loan will also be used to
complete immediate needs capital projects that will alleviate these constraints. The City is planning
for a phased approach for remainder of the projects, as funding becomes available.
B2. Identify the location of the public facility project. Attach a map of the area.
The site address is 957 East Foster Wells Rd, Pasco WA 99301.
Parcel Number: 113090085
Legal Description: S2NW4 4-9-30
B3. What is the potential private development associated with this public facility project?
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Page 5 of 16
The City of Pasco has owned and operated the Pasco Process Water Resource Facility (PWRF) since
1995. The operation and maintenance of the facility has been paid for by private funds and rates from
private businesses. However, dependent on the recommendations of the two plans, the City expects
additional development through expansion by existing partners and the addition of new partners.
B4. Describe how the public facility project will enhance or encourage other development in the immediate
area.
The Process Water Resource facility is undersized and is aging. The facility cannot accommodate
increasing demand for agricultural process water disposal and has some immediate operational
constraints due to aging equipment and capacity. Many key components within the current facility are
nearing or have already exceeded their original design capacity including winter storage lagoons,
secondary clarifiers, irrigation pump station, portions of the Foster Wells force main, irrigation pivots,
and solids handling facilities. Upgrading the existing infrastructure, and adding new infrastructure to
increase the capacity of the facility will attract new food processors to the region. Currently, the facility
is not just at capacity, but struggling to accommodate the rapid growth of the existing processors. The
enhancement of the facility will put the region on the map as an attractive location to do business for
food processors across the nation.
B5. List all permits required for the public sector project and give their current status (applied for, application
being prepared, permit issued, etc.). Provide a narrative discussion of the status of all environmental
permits and all environmental issues.
Permit
Issuer
Status
Anticipated
Completion Date
SEPA DNS City of Pasco To be
submitted
Fall 2017
Ecology NPDES Department of Ecology To be
submitted
Fall 2017
Air Quality Notice of
Construction Permit
Department of Ecology To be
submitted
Fall 2017
B6. Will this project upgrade an existing facility? YES NO Build a new one? YES No
What other services will the proposed facility provide to the community? For example, will it solve any
continuing physical problems in the area?
By upsizing the PWRF, it will accommodate increasing demand for agricultural process water disposal
and assist private business in the area that include, Reser’s, Twin City Foods, CRF Frozen Foods, and
Pasco Processing. This study will also address system requirements to support the expansion plans of
existing processors and the inclusion of future processors not currently connected to the operation.
B7. Provide a cost breakdown of the project components for the public facility project, including
miscellaneous costs:
PROJECTS AMOUNT
*Capital Facilities Plan and Engineering Report $818,000
*Irrigation Pump Station Design and Construction $1,989,000
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Page 6 of 16
Kahlotus-Pasco Regional PS & FM PS&E $620,000
Kahlotus-Pasco Regional PS & FM Construction $6,331,000
Total Cost $9,758,000
*These first two projects are critical to jumpstart the improvement and expansion of the facility. The Capital
Facilities Plan and Engineering Report will facilitate an educated and strategic path for immediate and long-
term plan for the facility. Construction of the Irrigation Pump Station will increase the facility’s capacity to
spray additional fields, in-turn, increasing the capacity of the facility as a whole.
(Amount should equal total on Page 1)
B8. List each funding source and amount, note whether the amount has been provided or is being
requested. Give the date that the funds were approved or the date that requested funds are expected
to be approved:
FUNDING SOURCE AMOUNT
Existing Processors (Unsecured) $531,000
Future Processors (Unsecured) $200,000
Department of Commerce Grant (Secured) $2,650,000
Economic Development Administration Grant (Under
Review) $2,575,000
HAEIF Loan (Unsecured) $1,500,000
Franklin County Economic Development Grant (Under
Review) $500,000
Other Grants/Revenue Bonds $1,802,000
Total Funding $9,758,000
B9. What is the projected annual operating cost of the proposed public facility project? $ 2,900,000
B10. Provide a detailed scope of work:
At this point in the project a detailed, a scope of work has been developed for the Capital Facilities
Planning effort and the Engineering Report and the plans and specifications. The scope of work for
construction of the pump stations, force mains, and the repair and expansion of the PWRF will be
developed with the engineering report and plans and specifications.
Capital Facilities Planning
Capital Facilities Planning will require coordination with Washington Department of Ecology to assure
compliance with the Industrial Waste Discharge Permit. The City’s Capital Facilities Plan will include a
regional planning-level document for the programmed expansion of the Process Water Resource
Facility (PWRF) to accommodate increasing demand for agricultural process water disposal and
address more immediate operational constraints due to aging equipment and capacity. The planning
horizon is intended to carry through 2036 (20 years) and will be intended to encourage continued growth
in the City’s food processing corridor on the north side of the City (FW Basin) and the Pasco Kahlotus
Industrial Basin (PK Basin).
Engineering Report and Plans and Specification
An engineering report will be consistent with WAC 173-240 and will evaluate the condition and capacity
of the Foster Wells Lift Station and force main; a regional lift station in the PK basin area; and address
more immediate improvements at the PWRF including the Industrial Pump Station. The regional lift
station plans and specification will coordinate with the PK Basin Force Main Routing Study currently in
progress. Also, this will include preparing plans and specifications for immediate needs defined in the
engineering report at the PWRF. At a minimum, this scope of work will include PS&E for the Industrial
Pump Station.
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Page 7 of 16
B11. Provide a detailed budget and timeline for the project:
See attached detailed schedule and budget for the Capital Facility Planning and Engineering Report.
A detailed schedule and budget will be provided for construction upon completion of the engineering
report.
C. Private Sector Involvement
The Pasco Water Resource Facility’s is a private/public partnership. The private sector will be involved
in this process. Our current partners are wholly supportive of this project, as well as, other processors
who have shown interest in partnering with the City. Once the facilities plans and engineering plans are
completed, we expect our current and future partners to invest in the implementation of the plan.
C1. The Municipal Loan Program is designed to assist communities in Benton and Franklin Counties
to provide public infrastructure that will enable the private sector to locate businesses in an area
zoned for commercial, light industrial, heavy industrial or commercial winery development zoning
code. The application should address the following issues:
a. Potential clients and approximate timing.
This project will accommodate increasing demand for agricultural process water disposal and
assist private business in the area, including, Reser’s, Twin City Foods, CRF Frozen Foods, and
Pasco Processing. These users/stakeholders will be involved throughout the process.
b. Estimated private capital that can be expected to occur.
Similar to the City’s utility enterprise funds; water and sanitary sewer, system users, current and
future will provide the majority of the funds necessary to upgrade and expand of the facility. To
properly allocate the cost to appropriate parties, the City will proportion cost of the plans to
current partners, known potential partners, and future partners. The debt service for this loan will
become part of the annual operating cost of the facility and billed proportionately to the users.
c. Projected private sector employment for the first five years.
It would take an estimated 3-5 years to compete planning, engineering, and construction of the
proposed PWRF improvements. Beyond rehabilitation and improvement to the PWRF, efforts
provide for additional capacity to support expansion of the current processing operations and new
customers. Improvements necessary to sustain the PWRF to support current users over the next
20 year horizon will support 1,200 existing jobs.
It is estimated that expansion of current users could be up to 25 employees per each user for a
total of 50 new jobs. A new processor would account for up to 200 employees. Thus, it could be
possible for an estimated 250-400 new jobs.
d. An explanation of the need for the public improvement.
Given the nature of this project as an expansion to an existing operation, public concern is
anticipated to be minimal. Regardless, this project will create a substantial positive impact on
industrial businesses in the Pasco region. Currently a total of six scope meetings are scheduled
with processors and farmers to serve the interest of the involved local private business sector.
C2. Describe the project and its fit within the overall Economic Development Plan of the community.
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Page 8 of 16
Existing users are not able to expand their services due to the limitations on the existing Process
Water Resource facility and have questioned the sustainability of the PWRF as it currently exists.
Expanding the facility and making the required improvements will allow for these users (Reser’s,
Twin City Foods, CRF Frozen Foods, and Pasco Processing) to grow and add economic benefit
to the community.
C3. In the case where a firm has already indicated to the community that it has a strong interest in
location within that community, describe the proposed private sector development or expansion
project.
Currently if a firm were to indicate a strong interest in location within the community, they would
be very disappointed to hear they would not be able to complete those plans because capacity is
not available. However, upon completion of the project, more capacity will be available and
potential for recruitment of other companies will be possible.
D. ECONOMIC IMPACT ON THE COMMUNITY
D1. Describe the current economic conditions of your community. Provide the most recent data available.
If specific data are not available or further description is needed, provide narrative information
describing the economic situation of the jurisdiction.
Data
Date of
Estimate
Total population 70,560 April 1, 2016
Total labor force 31,519 2011-2015
ACS Survey
Unemployment rate 7.4% 2011-2015
ACS Survey
Per capita income $19,824 2011-2015
ACS Survey
Household vacancy rate 3.8% 2011-2015
ACS Survey
Per capita project cost
Explanation: The data came from census.gov – American Community Survey 2011-1015 data.
D2. Population change is an important indicator of general economic growth or decline. How has the
population changed in your community?
Data
Date of
Estimate
Total population
59,781
2010
Total population
70,560
2016
Percent change
18% (3% Annually)
2010-2016
Explanation: OFM April 1st, 2016 estimates
D3. One of the goals of HAEIFC is to encourage diversification of the employment base in communities.
Describe the current employment profile of your community and indicate how this project will bring
about diversification:
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The current employment profile of the City of Pasco according to Census.gov is shown below. This
suggests that the current profile is already diverse in regards to jobs/occupations and industry.
This project will continue to solidify the diverse employment profile of Pasco by bringing in more
jobs that will be spread out over the manufacturing, construction, agriculture, transportation and
warehousing industries.
Occupations
Civilian employed population 16 years and over 31,519
Management, business, science, and arts occupations: 7,134 (22.6%)
Service occupations: 6,074 (19.3%)
Sales and office occupations: 5,839 (18.5%)
Natural resources, construction, and maintenance occupations: 6,447 (20.5%)
Production, transportation, and material moving occupations: 6,025 (19.1%)
Industry
Civilian employed population 16 years and over 31,519
Agriculture, forestry, fishing and hunting, and mining 4067 13%
Construction 2026 6%
Manufacturing 3920 12%
Wholesale trade 1225 4%
Retail trade 2975 9%
Transportation and warehousing, and utilities 2174 7%
Information 243 1%
Finance and insurance, and real estate and rental and leasing 886 3%
Professional, scientific, and management, and administrative 3265 10%
Educational services, and health care and social assistance 5592 18%
Arts, entertainment, and recreation, food and accommodation 2933 9%
Other services, except public administration 1047 3%
Public administration 1168 4%
D4. Describe any other direct or indirect economic benefits to the community that are anticipated
because of this project:
As a result of the PWRF’s increased treatment capacity, processors will be able to throughput
additional product. This additional capacity generates demand for greater crop production in the
farming sector, which will also stimulate the Ag production support industry currently established
heavily in the region.
Upon completion of this project, more jobs will be added to the community which brings in people
that spend money on goods and services and invest in the community. The retail, finance, real
estate, educational services, health care, social assistance, arts entertainment, recreation and food
services and accommodations will all see positive impact from additional employees brought in
from this enhanced PWRF.
D5. Provide evidence of local support for this project. Note: Examples of local support could include
letters from local city councils, county commissioners, chambers of commerce, etc. Statements
from the local city council and county commissioners are strongly encouraged. A statement from
TRIDEC is also encouraged.
Oregon Potato
Pasco Processing
Reser’s Fine Foods
Twin City Foods
E. FINANCIAL INFORMATION ON CITIES, TOWNS, AND COUNTIES
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(Port districts should complete Section F: Financial Information on Port Districts.) This section examines
the general financial status of cities, towns, and counties to determine ability to support project costs.
Questions 1-11 examine the current fiscal status of the jurisdiction. Questions 13-16 examine potential
revenue generated by the private sector project.
E1. For each fund indicated, provide total expenditures, revenues and ending fund balance for prior year.
Revenues
(Prior Yr.
Actual)
Expenditures
(Prior Yr.
Actual)
Total Ending
Fund Balance
General Fund
$ 42,970,348
$ 39,743,920
$ 14,633,214
Utility Fund
$ 23,603,020
$ 23,353,543
$ 156,460,417
Sewer
$
$
$
Water
$
$
$
Electricity
$
$
$
Other Enterprise Funds (List funds that apply to
HAEIFC project:
$
$
$
$
$
$
Special Revenue Funds:
Street Maintenance & Construction
$
$
$
Motor Vehicle Gas Tax Fund
$
$
$
List other funds that apply to HAEIFC project:
Economic Development Fund
$ 1,649,457
$ 1,162,832
$ 1,923,700
$
$
$
Identify funds that could repay a HAEIFC loan. If any of these funds cannot be used for the HAEIFC
project, please explain. (Explain future capital needs in the context of these funds and describe how
future needs are anticipated to affect fund balances.)
The City‘s Utility Fund, includes Water, Sewer, Storm water, Irrigation, and Process Water Resource
Facility services. Funds used for Resource Facility are not to be allocated from revenues received for
other services within the Utility Fund. The City charges each user monthly, based on loading to the
PWRF, for the cost to operate the plant. Similar to a water or sewer revenue bond, debt service for
this loan will become part of the PWRF operating budget and billed out to the users as part of the cost
of doing business.
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In general, is this prior years’ information on funds representative of the past five years’ experience?
Yes No – If not, please explain:
E2. In the context of the local government’s overall annual budget, including anticipated future capital
needs, evaluate the need for HAEIFC assistance:
Pasco Water Resource Facility, as a service within the City’s Utility Fund is required to be self-
sustaining. The facility will require additional investment to accommodate current needs, upgrades, and
long-term growth. The requested loan is an early and integral piece of the funding strategy necessary
to assure the operation if physical sustainable over the next two decades, and is capable of handling
future increases in loading generated by expansion or recruitment of new industry.
E3. Calculate your jurisdiction's debt capacity for each of the following type of bonds. (Refer to Revised
Code of Washington 39.36.020 for more detail.)
Non-voter-approved general obligation bonds:
$ 4,227,977,752 X .0075 = $ 31,709,833
Total Assessed
Valuation Debt Limit (.0075) Debt Capacity
Minus $ 10,430,000
Outstanding debt
Equals $ 21,279,833
Remaining debt capacity
Voter-approved general obligation bonds:
General purpose
$ 4,227,977,752 X .0025 = $ 10,569,944
Total Assessed
Valuation Debt Limit (.0025) Debt Capacity
Minus $ 0
Outstanding debt
Equals $ 10,569,944
Remaining debt capacity
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Voter-approved general obligation bonds:
Utility purposes, cities only
$ 4,227,977,752 X .0025 = $ 10,569,944
Total Assessed
Valuation Debt Limit (.0025) Debt Capacity
Minus $ 0
Outstanding debt
Equals $ 10,569,944
Remaining debt capacity
E4. Will the local government use general obligation bonds for the construction of this public facility
project? Yes No. If not, please explain. (e.g., future capital finance needs, limited debt
capacity, issuance costs, etc.)
Process Water Reuse Facility is supported by an enterprise fund and is statutorily required to be
supported by user contributions. General obligation bonds are not an allowable revenue source for
this type of activity.
E5. Has the use of revenue bonds been explored for this public facility project? Yes No. Explain the
outcome and describe why revenue bonds would or would not be applicable for this project.
Revenue bonds have been explored and issued for this facility in 2013. The revenue bonds are currently
not being explored for this facility at this stage of the project. We are currently looking for funds to
support Capital Facilities Planning effort, the Engineering Report, and the plans and specifications and
near term improvements. This report will create a roadmap for future. Revenue bonds will be a
significant resource for subsequent the significant capital investment required for future phases.
E6. Regular LOCAL taxing authority: (Indicate n/a if not applicable.)
What is your jurisdiction’s general property tax rate per $1,000 in assessed valuation?
1.88017885
Has the jurisdiction ever voted to increase the regular property tax rate over the 106% lid?
Yes No. If yes, when?
(See revised Code of Washington State 84.55 for provisions.)
What is the LOCAL sales tax rate? .021 %
What is the LOCAL Real Estate Excise Tax rate? 0.5 %
What is the LOCAL Business & Occupation Tax rate? 8.5 %
What is the LOCAL Utility Tax rate? 8.5 %
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E7. Revenue from local tax sources: Provide the amount of revenue from each local source for the prior
year.
(Indicate n/a if not applicable.)
Property Tax n/a $ 7,803,698
Sales Tax n/a $ 14,055,885
Real Estate Excise Tax n/a $ 1,722,389
B & O Tax n/a $ 2,690,824
Utility Tax n/a $ 5,274,457
In general, is this prior year’s information on taxes representative of the past five years’ experience?
Yes No
If not, please explain. Also, describe any anticipated future events that would change this pattern:
E8. Describe the community’s tax burden and the overall ability to repay a HAEIFC loan.
E9 Special Assessments:
Has jurisdiction used authority to form ULIDs, LIDs or RIDs to make special assessments for
capital projects? Yes No
Date of the last ULID, LID, or RID formed: 12/19/2011. Project cost: $ 261,504
Was a ULID, LID, or RID considered for this public facility project? Yes No
E10 A few of the other sources of funding for economic development projects are listed below. Indicate
whether your jurisdiction has made application to any of the funding sources for this public facility
project and what the outcome was:
Federal
Yes
No
Outcome
Economic Development Administration
Farmers Home Administration
The City has been invited to subm it a
full application for $2,575,000. EDA
has also funded $120,000 for
engineering study and construction of
lift stations improvements, force
mains, and other facility upgrades
Other
State
Yes
No
Outcome
Transportation Improvement Board
N/A
Department of Community Trade & Economic
Development
Community Development Block Grant
Development Loan Fund
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State
Yes
No
Outcome
HUD 108
Public Works Trust Fund
Department of Ecology
Other:
Washington State Department of Commerce
$ 2,650,000 was granted to the City
for design and construction of
improvements of lift stations, force
main, and other facility upgrades as
part of the 2015 capital budget.
Explain the outcome of the investigation of other funding sources:
The City is in the process of applying for $500,000 of funds from Franklin County Economic Development
program, as well as, partnering with existing and future processors to fund this project.
E13. Whenever the HAEIFC is considering awarding grants or loans for a county, city, or town to finance
public facilities, it shall consider whether the county, city, or town that is requesting the grant or
loan is a party to a county-wide planning policy relating to the type of public facility for which then
grant or loan is sought. Is your city, town or county a party to such a policy?
Yes No
Please explain and provide a letter or statement from the planning jurisdiction to that effect.
Please see attached, City of Pasco (Page 40) and Franklin County Comprehensive Growth Plan
(Page 10).
F. FINANCIAL INFORMATION ON PORT DISTRICTS
(Jurisdictions other than Port Districts should skip this section.)
This section examines the general financial status of the district to determine its ability to support project
costs. Questions 1-8 examine the current fiscal status of the district. Questions 9-12 examine the potential
revenue generated by the private sector project.
F1. Statement of Operations for Prior Year
Operating Revenues
$
Operating Expenses
$
Income from Operations
$
Other Income
$
Net Income
$
Reserves
$
Identify funds that could repay a HAEIFC loan. If any of these funds cannot be used for the HAEIFC
project, please explain. (Explain future capital needs in the context of these funds and describe how
future needs are anticipated to affect fund balances.)
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In general, is this prior year’s information on funds representative of the past five years’ experience?
Yes No – If not, please explain.
F2. In the context of the port’s overall annual budget, including anticipated future capital needs, evaluate
the need for HAEIFC assistance.
F3. Calculate the general obligation bond debt capacity for your district. (Refer to Revised Code of
Washington 39.36.020 and 53.36.030 for more detail)
Non-voter approved general obligation bonds
$
X
= $
total assessed valuation
debt limit
debt capacity
Minus outstanding debt
$
Remaining debt capacity
$
Voter-approved general obligation bonds
$
X
= $
total assessed valuation debt limit debt capacity
Minus outstanding debt
$
Remaining debt capacity
$
F4. Will the local government use general obligation bonds for the construction of this public facility project?
Yes No - If not please explain (e.g., future capital finance needs, limited debt capacity, issuance
costs, etc.)
F5. Has the use of revenue bonds been explored for this public facility project? Yes No
Explain the outcome and describe why revenue bonds would or would not be applicable for this project.
F6. Regular taxing authority.
What is the district’s current property tax rate per $1,000 in assessed valuation?
Has the district ever voted to increase its property tax rate over the 106% lid? Yes No
(See Revised Code of Washington 84.55 for provisions.) If yes, when?
F7. Indicate the amount of revenue your jurisdiction received for the following revenue sources for the prior
year. Include under property tax, in-lieu-of property tax revenues such as leasehold excise tax.
Property tax
$
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Property tax
$
Property tax designed for G.O. bond debt $
Operating revenues: rents and leases
$
Operating revenues: fees and charges
$
In general, is this prior year=s information on revenues representative of the past five years=
experience? Yes No – If not, please explain. Also, describe any anticipated future events that
would change this pattern.
F8. How will the HAEIFC project be maintained by the applicant? Please explain.
F9. Whenever the HAEIFC is considering awarding grants or loans to a special district (e.g., port district,
public utility district, etc.) To finance public facilities, it shall consider whether the county, city or
town in whose planning jurisdiction the proposed facility is located is party to a county-wide planning
policy relating to the type of public facility for which the grant or loan is sought. Is the city, town, or
county where the project is located party to such a policy? Yes No
Please explain and provide a letter or statement from the appropriate planning jurisdiction to that
effect.
HAEIF does not discriminate with regard to race, color, religion, national origin, sex, marital status, age (provided the applicant has capacity to
contract), receipt of income from public assistance programs, and good faith exercise of any rights under the Consumer Credit Protection Act.
Individuals with disabilities can be accommodated upon advance notice.
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