HomeMy WebLinkAboutCC 2026-05-26_11a FCFA Risk Assessment
Item 11.a.
MEMORANDUM
TO: City Council
FROM: Scott Hallett, Fire Chief
SUBJECT: Five Cities Fire Authority Community Risk Assessment / Standards of
Cover Presentation
DATE: May 26, 2026
RECOMMENDATION:
Receive a presentation from the Five Cities Fire Authority (FCFA) on the Community Risk
Assessment and Standards of Cover Deployment Analysis to assist in the development of an
FCFA strategic plan that will support the emergency response needs in the member agency
communities and provide input and direction to staff.
IMPACT ON FINANCIAL AND PERSONNEL RESOURCES:
There is no fiscal impact from receiving this presentation. Subsequent policy decisions by the
Board and the respective member agency Councils in the implementation of recommendations
would have identifiable fiscal impacts.
BACKGROUND:
As communities grow, it is imperative that fire service and community leaders define appropriate
service levels. Although many industry standards recommend specific service levels, each
community is unique and has different challenges and funding abilities. The community risks and
deployment of fire department resources require that each department conduct a self-assessment
to develop an all-hazards response system that will meet the needs of the community in a safe,
efficient, and effective manner.
In October 2022, the cities of Arroyo Grande and Grover Beach engaged an outside consultant
(Baker Tilly) to conduct an analysis of fire services provided by the FCFA. This analysis was
initiated in the wake of the Oceano Community Services District’s withdrawal from the FCFA to
identify near-term and longer-term service priorities for FCFA and determine budgetary
implications. One of the recommendations from this analysis was “Conduct a Community Risk
Assessment and Standards of Cover and adjust staffing to meet service area, community, and
call volume.” Following the adoption of a new FCFA Joint Powers Authority Memorandum of
Understanding by both cities in June 2023, subsequent increase in FCFA funding, along with the
hiring of a new Fire Chief in April 2024, funding for this Community Risk Assessment and
Standards of Cover was included in the FCFA FY 2024-25 budget.
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Item 11.a.
City Council
Five Cities Fire Authority Community Risk Assessment / Standards of Cover
Presentation
May 26, 2026
Page 2
On July 15, 2024, the FCFA Board approved the Request for Proposals for circulation to third-
party consulting firms for the Community Risk Assessment/Standards of Cover/Strategic Plan
process. On October 21, 2024, the FCFA Board authorized an agreement with AP Triton to
conduct this process and authorized the Fire Chief to execute the contract on behalf of the FCFA.
Standards of Cover (SOC) is a common assessment tool used by an emergency services agency
to provide a rational and systemic way of looking at the basic service levels provided. The purpose
of an SOC is to provide a system that will assist with:
Assessing community fire and non-fire risk
Defining baseline and benchmark emergency response performance standards
Assessing current and future station locations
Identify apparatus and staffing patterns
Evaluating workload and ideal unit utilization
Measuring service delivery performance
Supporting strategic planning and policy development related to resource allocation
The Community Risk Assessment and Standards of Cover process began in early 2025 with a
scope of evaluating FCFA's operational capabilities, financial health, service delivery
performance, and community risk profile. This process involved extensive review of documents
and reports from both FCFA and member agencies and relevant county and state agencies along
with interviews of internal and external stakeholders. These interviews aimed to better understand
issues, concerns, and options regarding the emergency service delivery system, opportunities for
shared services, and community members' expectations. In addition to this research, AP Triton
applied its extensive experience conducting this work in numerous jurisdictions to develop a report
that would provide a long-term roadmap for FCFA to meet evolving community needs.
The Community Risk Assessment and Standards of Cover Deployment Analysis report is shown
as Attachment 1. The report is comprehensive with extensive background information and
evaluation of current services. Overall, the analysis reveals a well-managed organization facing
increasing service demands driven by population growth and aging demographics. Medical
emergencies comprise most responses reflecting national trends, and there is strong inter-
jurisdictional cooperation through automatic and mutual aid agreements. Key challenges include
rising call volume, concurrent incident demands, performance gaps in meeting response tim e
benchmarks, and the transition to a contract-based model for Oceano service delivery. The report
indicates that strategic investments in staffing, equipment, facilities, and technology will be critical
to maintaining service quality and meeting community expectations for emergency response.
The report’s findings and recommendations begin on page 206. The 13 recommendations are
listed below as identified in the report with further detail and estimated costs shown in the report:
1. Incorporate an inflationary adjustment clause into the resolution adopting the fee
schedule, allowing the board to annually adjust fees through a subsequent resolution.
2. Establish a capital asset replacement fund and funding strategy.
3. Conduct an annual actuarial update of the respective share of FCFA’s pensionable
balance and develop a funding plan.
4. Develop a schedule to inspect all commercial occupancies.
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Item 11.a.
City Council
Five Cities Fire Authority Community Risk Assessment / Standards of Cover
Presentation
May 26, 2026
Page 3
5. Inspect and issue operational permits.
6. Hire a Fire Marshal.
7. Develop a quality improvement/quality assurance (QI/QA) plan.
8. Conduct a detailed feasibility assessment of converting to an ALS first responder service.
9. Maintain a minimum of 3 companies staffed with three responders.
10. Evaluate the best location to support the western and southern sections of the jurisdiction.
11. Work with regional partners to develop a regional training program.
12. Adopt and periodically report response service standards and goals.
13. Ensure automatic and mutual aid responses continue to support all agencies' response
requirements.
Staff would note that some of the recommendations are similar to the 2023 Baker Tilly study,
including hiring a full-time fire marshal and having 3-0 staffing for engine companies, along with
new items such as inspection of all commercial occupancies and evaluation of options for a future
additional station. Many of these recommendations have a significant fiscal impact, which FCFA
is not in a position to advance at this time given the current financial condition of the member
agencies, both of which are projecting relatively flat budgets in the near term. However, the
Community Risk Assessment and Standards of Cover provide an important roadmap for future
improvements for FCFA to address community needs as part of upcoming budget cycles.
The Community Risk Assessment and Standards of Cover Deployment Analysis was presented
to the FCFA Board on April 20, 2026. During the Board’s discussion, the Board requested that
similar presentations be made to the City Councils for both member agencies to ensure that all
Council Members are aware of the report and the recommendations and have an opportunity to
provide input and comments. Prior to tonight’s presentation, the Grover Beach City Council
received the presentation on May 11, 2026.
The Council’s input and comments on the report will assist in the development of a five-year
strategic plan, which is the next task to be completed by the consultants as part of this work effort.
A draft of this strategic plan will be presented at the July 20, 2026, FCFA Board meeting with a
final version submitted for approval to the FCFA Board in the fall. Staff would defer to the Council’s
representatives on the FCFA Board (Board Vice Chair Maraviglia and Board Member Ray
Russom) to share further information on the report and review process.
ALTERNATIVES:
1. Receive presentation on Community Risk Assessment and Standards of Cover
Development Analysis and provide input and direction to staff; or
2. Provide other direction to staff.
ENVIRONMENTAL REVIEW:
No environmental review is required for this item.
PUBLIC NOTIFICATION AND COMMENTS:
The Agenda was posted at City Hall and on the City’s website in accordance with
Government Code Section 54954.2.
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Item 11.a.
City Council
Five Cities Fire Authority Community Risk Assessment / Standards of Cover
Presentation
May 26, 2026
Page 4
ATTACHMENTS:
1. Five Cities Fire Authority Community Risk Assessment & Standards of Cover
Deployment Analysis
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Five Cities Fire Authority
Arroyo Grande, California
Community Risk Assessment &
Standards of Cover
Deployment Analysis
January 2026
ATTACHMENT 1
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Community Risk Assessment & Standards of Cover Deployment Analysis Five Cities Fire Authority
i
CONTENTS
Contents .......................................................................................................................................................... i
Acknowledgments ........................................................................................................................................ ii
Executive Summary ...................................................................................................................................... iii
SECTION I: EVALUATION OF CURRENT CONDITIONS ................................................................................... 1
Organization Overview .................................................................................................................................2
Financial Overview ........................................................................................................................................7
Description & Review of Services Provided ............................................................................................. 13
Staffing & Personnel .................................................................................................................................... 31
Capital Facilities & Equipment .................................................................................................................. 39
SECTION II: COMMUNITY RISK ASSESSMENT ................................................................................................ 48
Community Overview ................................................................................................................................ 49
All-Hazards Community Risk Assessment .................................................................................................. 61
Critical Infrastructure .................................................................................................................................. 76
Physical Assets Protected .......................................................................................................................... 89
Comparison of Fire Risks in Other Communities .................................................................................... 101
Risk Classification ...................................................................................................................................... 103
SECTION III: STANDARDS OF COVER .......................................................................................................... 113
Service Delivery & Performance ............................................................................................................. 114
Service Demand ....................................................................................................................................... 118
Performance Review ................................................................................................................................ 139
Population Growth & Service Demand Projections ............................................................................. 163
Effectiveness of Inter-jurisdictional Response ........................................................................................ 167
Performance Objectives & Measures .................................................................................................... 178
Overview of Compliance Methodology ............................................................................................... 192
SECTION IV: FINDINGS & RECOMMENDATIONS ........................................................................................ 206
Overall Findings & Observations ............................................................................................................. 207
Strategies & Recommendations ............................................................................................................. 212
SECTION V: APPENDICES ............................................................................................................................ 223
Appendix A: Stakeholder Interviews ...................................................................................................... 224
Appendix B: Risk Classification ................................................................................................................ 235
Appendix C: Table of Figures .................................................................................................................. 239
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ACKNOWLEDGMENTS
AP Triton, LLC would like to extend its sincere appreciation to each individual whose
contributions and assistance made this project possible.
Five Cities Fire Authority
Carren Ray Russom
Mayor
City of Arroyo Grande, CA
Kassi Dee
Mayor
City of Grover Beach, CA
Jamie Maraviglia
Council Member
City of Arroyo Grande, CA
Clint Weirick
Council Member
City of Grover Beach, CA
Matt Downing
Executive Manager
City of Arroyo Grande, CA
Matt Bronson
Executive Manager
City of Grover Beach, CA
Scott Hallett
Fire Chief
Tricia Meyers
Operations Manager
Craig Angello
Battalion Chief
Ryan Bird
Battalion Chief
Brian Salce
Battalion Chief
PJ Ferguson
Captain
Nicole Valentine
Director of Administrative Services
City of Arroyo Grande, CA
Steven Hensley
Firefighter
Brooke Johnson
Data Analyst
Cal Fire, SLO Unit ECC
Special Thanks To:
The Five Cities Fire Authority Professional Firefighters Association, IAFF Local 4403
&
The City Governments, Chief Officers, Captains, Firefighters, and support staff who
serve the district's citizens and visitors daily.
Our sincere appreciation is extended to each of you.
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Community Risk Assessment & Standards of Cover Deployment Analysis Five Cities Fire Authority
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EXECUTIVE SUMMARY
The Five Cities Fire Authority (FCFA) Community Risk Assessment and Standards of Cover
document provides a comprehensive analysis of fire protection and emergency medical
services for the cities of Arroyo Grande and Grover Beach, as well as the Oceano
Community Services District. Established in 2010 through a joint powers agreement, FCFA
serves approximately 37,000 residents across a 10-square-mile service area from two
strategically located fire stations.
This assessment evaluates FCFA's operational capabilities, financial health, service delivery
performance, and community risk profile. The analysis reveals a well-managed
organization facing increasing service demands driven by population growth and aging
demographics. Medical emergencies constitute nearly 60% of all responses, reflecting
national trends in emergency services. The authority demonstrates strong inter-jurisdictional
cooperation through automatic and mutual aid agreements with neighboring agencies.
Key challenges identified include rising call volumes (31% increase from 2019 to 2024),
concurrent incident demands that strain resources, performance gaps in meeting national
response-time benchmarks, and the recent transition of Oceano service delivery from a
direct partnership to a contract-based model. The report provides detailed risk
classifications across fire, EMS, technical rescue, hazardous materials, and wildland fire
scenarios, establishing a framework for resource deployment and staffing
recommendations.
Looking ahead, FCFA projects continued population growth and corresponding increases
in service demand through 2032. The organization must balance operational excellence
with fiscal sustainability while adapting to evolving community needs. Strategic investments
in staffing, equipment, facilities, and technology will be critical to maintaining service
quality and meeting community expectations for emergency response.
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Community Risk Assessment & Standards of Cover Deployment Analysis Five Cities Fire Authority
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SECTION I:
Evaluation of
Current Conditions
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Community Risk Assessment & Standards of Cover Deployment Analysis Five Cities Fire Authority
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ORGANIZATION OVERVIEW
General Description
Five Cities Fire Authority (FCFA, the Authority) provides essential fire protection and
emergency services to the cities of Arroyo Grande and Grover Beach, and the Oceano
Community Services District in California. Established in 2010 through the consolidation of
individual fire departments from these areas, FCFA is committed to mitigating threats to life,
property, and the environment, while also fostering community engagement and
preparedness. Operating out of two stations, it serves a 9.3-square-mile area with
approximately 38,000 residents, primarily characterized as suburban.
Figure 1: Study Area Map
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The Arroyo Grande city area is 5.45 square miles. The City's population is 17,876. The City of
Arroyo Grande is a general law city with a Council-Manager form of government. Under
this form of government, the City Council serves as the policy-making body, and the City
Manager is responsible for implementing the Council's policies and directives.
The Grover Beach city area is 2.31 square miles. The City's population is 13,459. The City of
Grover Beach is a general law city governed by a Council-Manager form of government.
The Oceano Community Services District (Oceano CSD, OCSD) area is 1.55 square miles of
land and 0.02 square miles of water. The OCSD is a multi-service special district that serves
approximately 7,600 residents and businesses in the unincorporated communities of
Oceano and Halcyon. The District is governed by a 5-member Board of Directors, who are
elected. The Board of Directors appoints a General Manager.
Pismo State Beach and Oceano Dunes State Recreation Area lie west of the City of Grover
Beach and Oceano CSD, which is overseen by the California Department of Parks and
Recreation. The area to the east and south of the OCSD consists of the Arroyo Grande
Creek flood plain. It is also referred to as the Cienega Valley. Oceano County Airport is a
public airport located one mile west of Oceano's central business district. The airport,
primarily used for general aviation, offers only non-commercial flights. The airport spans 58
acres and features a single runway and no control tower.
In 2004, the cities of Arroyo Grande and Grover Beach jointly entered into an agreement to
share one fire chief and training officer. Over the next several years, this agreement
expanded to include equipment sharing, consolidation of the reserve firefighter program,
and the introduction of "boundary drops," whereby the nearest fire resource would respond
to a 9-1-1 call regardless of community boundaries. In 2008, the Oceano Community
Services District joined this partnership. On July 9, 2010, a comprehensive consolidation
study of the fire department was conducted, resulting in the establishment of the Five Cities
Fire Authority. It was established under the joint powers authority, as outlined in California
Government Code Sections 6500 et seq., to enhance service levels for citizens and visitors,
ensure consistent and professional training standards, and improve operational
efficiencies.
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In both 2020 and 2022, voters in OCSD rejected a proposed flat parcel tax of $180 per year
to support FCFA emergency services in Oceano. As a result, on March 7, 2024, the OCSD
opted to withdraw from the joint powers agreement. On January 1, 2025, San Luis Obispo
County assumed responsibility for fire protection in the Oceano area. OCSD was required
to transfer property tax revenue, impact fees, rent revenue, and additional general fund
revenue to the County. The County opted to contract through an intergovernmental
transfer agreement with FCFA to provide fire protection and emergency services from the
Grover Beach and Arroyo Grande fire stations.
Governance & Lines of Authority
FCFA is governed by a four-member Fire Board of Directors. This board is made up of two
elected officials from each participating city's council. Each member represents their
respective city or community, and each has an equal vote regarding matters of the Board,
such as the budget, agreements, or other legal issues. The Board also provides direction to
the Executive Managers and Fire Chief regarding FCFA.
The Fire Chief serves as the Executive Officer for FCFA, reporting to the Board of Directors
through the Executive Team. The Administrative Services Director for the City of Arroyo
Grande serves as the FCFA Treasurer, and the Administrative Assistant for the Five Cities Fire
Authority serves as the Board's Secretary/Clerk.
The Fire Chief consults with the Executive Team, comprised of the city managers from
Arroyo Grande and Grover Beach, to discuss matters relevant to the communities and
FCFA. The managers may then make recommendations to their council/board members
based on the issues discussed.
FCFA's mission is to mitigate threats to life, property, and the environment, while also
fostering community engagement and preparedness. FCFA ensures efficient and
professional emergency services through the operation and staffing of two fire stations.
Station 1—140 Traffic Way, Arroyo Grande, CA 93420
Station 2—701 Rockaway Avenue, Grover Beach, CA 93433
Station 3—1655 Front Street, Oceano, CA 93445 [CLOSED 07/01/2023]
Station 1 houses the FCFA's administrative offices.
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Fire Department Organizational Structure
Figure 2: Organizational Chart
As shown in the preceding figure, the Fire Chief supervises the daily administration,
operations, and fire prevention branches of FCFA.
FCFA currently has 29 full-time positions and 2 part-time positions. Department personnel
include a fire chief, three battalion chiefs, nine captains, nine engineers, six full-time
firefighters, one full-time administrative secretary, and one part-time office assistant. A
reserve/volunteer captain provides radio programming services. At a minimum, three
personnel are on duty daily at each station in Arroyo Grande and Grover Beach, with an
additional two-person company typically assigned to Station 1. Due to the replacement of
the Traffic Way bridge over Arroyo Grande Creek, the two-person company was
temporarily relocated to Station 2. FCFA operates on a three-shift system, with a 48-hour
duty and 96-hour off-duty rotation.
Not depicted is the part-time radio communications technician
Board of Directors Legal Counsel
Executive Team
(City Mangers)
Fire Chief
Engineer (3)Engineer (3)
Captain (3)Captain (3)
A Shift B Shift
Battalion Chief Battalion Chief
Firefighter (2)Firefighter (2)
Office Assistant II (PT)Administrative Operations
Manager (Clerk of Board)
Captain (3)
Engineer (3)
Firefighter (2)
Administrative Services Director
(Treasurer)
C Shift
Battalion Chief
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FCFA is equipped to handle moderate-risk fires with the on-duty forces but relies on mutual
aid and automatic aid for additional staffing on significant fires or emergencies. Automatic
aid is provided to FCFA by the two City of Pismo Beach fire stations on Bello Street and Shell
Beach Road, and County Fire Station 72 on Highway 1. The next closest mutual aid fire
stations are CAL FIRE Station 70 in Nipomo and County Fire Station 62 in Avila Valley. Both
Nipomo and Avila Valley area stations have an approximate 15-minute drive time to
Oceano.
In 2021, FCFA was assigned a Public Protection Classification (PPC) grade of Class 2 by the
Insurance Services Office (ISO). Class 1 is the highest grade, and 10 is the lowest.
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FINANCIAL OVERVIEW
Five Cities Fire Authority was formally established on July 9, 2010, serving the cities of Arroyo
Grande and Grover Beach, as well as the OCSD. However, due to fiscal challenges and
failed attempts at revenue measures, OCSD voluntarily exited the FCFA agreement in June
2023, as it was unable to meet its contribution obligations. On June 13, 2023, a successor
agreement between the cities of Arroyo Grande and Grover Beach was approved.
The Authority prepares a biennial operating budget based on a fiscal year from July to
June. FCFA updates the revenue projections and changes to the financial plan for the
second year during the mid-cycle review.
FCFA employees are employed by the City of Arroyo Grande and assigned to the
Authority. They are covered under Arroyo Grande’s CalPERS contract, and each member
agency is responsible for its share of CalPERS liability upon its withdrawal from the Authority.
FCFA contracts with the City of Arroyo Grande to provide financial and information
technology services to the Authority. The Authority utilizes fire stations, facilities, and
equipment owned by its member agencies but does not assume ownership; these assets
remain the property of the respective member agency. The member agency is responsible
for maintaining, replacing, and improving the assets. Operating and capital improvement
costs are allocated among the member agencies in accordance with the cost-sharing
formula (net of any service reimbursement).
Financial Analysis
Given the Authority's size, FCFA's financial data is relatively straightforward. Approximately
93% of FCFA's revenues come from member agencies and the OCSD contract, based on
Proposed Budget for Fiscal Year 2025-26, Arroyo Grande accounts for 43% of the total
revenues, followed by Grover Beach's contribution of 31% and OCSD's contract of 19%.
Strike team reimbursements, inspections fees, and other miscellaneous revenues make up
the remaining 7%. The exit of OCSD from the FCFA, even with a proposed agreement for
the FCFA to provide fire and emergency services to Oceano, still creates some uncertainty
and challenges to the long-term financial sustainability of the Authority.
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On the expenditure side, FCFA's primary costs are employee salaries and benefits, which
account for approximately 77% of the budget. This is common for most public safety
agencies. The increase in wages and benefits reflects salary adjustments resulting from a
2023 compensation survey conducted in conjunction with an amended Memorandum of
Understanding (MOU). The survey revealed that all FCFA positions fell below the median
compared to those of neighboring agencies. FCFA implemented a one-time equity
adjustment of 10% for fire captains, 15% for fire engineers, and 20% for firefighters effective
October 2023, which resulted in a cost increase of approximately $527,600 for Fiscal Year
2023–24. The successor MOU also includes a 3% salary increase for fiscal years 2024–25,
2025–26, and 2026–27. Additionally, FCFA faces a significant increase in retirement costs,
with an over 44% rise from Fiscal Year 2023–24 compared to the Proposed Budget for Fiscal
Year 2025–26. This increase is a combination of salary and CalPERS rate increases.
Employees hired before January 1, 2013, are in the Classic Pension plan (3% at age 55),
while those hired after January 1, 2013, fall under the Public Employees' Pension Reform Act
of 2013 (PEPRA) pension plan (2.7% at age 57). Furthermore, vehicle maintenance costs
have more than doubled compared to Fiscal Year 2023–24, based on actuals from Fiscal
Year 2018-19, due to the aging of the apparatus and vehicles.
The Authority's fund balance started a downward trend in Fiscal Year 2023–24 because
revenues were insufficient to offset expenditures. The FCFA is projected to have an
operating deficit for the current fiscal year and the next two fiscal years. Fiscal Year 2026–
27 fund balance is projected at 9.35% of the budget, slightly below the Authority's goal of
10%.
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The following figure illustrates FCFA's funding sources, expenditures, and fund balances for
the most recent three fiscal years, as well as the proposed budget for the next two fiscal
years.
Figure 3: Revenues/Expenditures Summary1
Revenue/Expenditures FY 2023
Actual
FY 2024
Actual
FY 2025
Amend
Budget
FY 2026
Proposed
Budget
FY 2027
Proposed
Budget
Beginning Fund Balance $1,288,015 $1,461,591 $1,426,230 $1,052,595 $986,136
Revenues:
Arroyo Grande 3,468,356 3,796,000 3,978,000 4,109,274 4,232,552
Grover Beach 2,015,115 2,812,000 2,893,000 2,988,469 3,078,123
Oceano 1,138,148 1,150,000 853,000
San Luis Obispo County 853,000 1,762,298 1,815,167
Grants 20,439 19,111 20,000 15,000 15,000
Strike Team Reimb. 278,955 210,668 133,800 450,000 450,000
Unfunded Accrued Liability Reimb. 94,910 92,500 92,500
Other 223,767 239,554 252,525 139,000 139,000
TOTAL REVENUES $7,144,780 $8,322,243 $8,983,325 $9,556,541 $9,822,342
Expenditures:
Salaries & Benefits 5,543,471 6,494,304 7,158,900 7,434,600 7,583,000
Services & Supplies 1,224,028 1,374,849 1,818,267 1,724,400 1,775,973
Equipment Replacement 49,812 335,130 225,900 310,000 280,000
Debt Service 153,893 153,321 153,893 154,000 245,000
TOTAL EXPENDITURES $6,971,204 $8,357,604 $9,356,960 $9,623,000 $9,883,973
Net Funding from General Fund $173,576 ($35,361) ($373,635) ($66,459) ($61,631)
Ending Fund Balance $1,461,591 $1,426,230 $1,052,595 $986,136 $924,505
Fund Balance as % of Expenditures 20.97% 17.07% 11.25% 10.25% 9.35%
Fund Balance Equivalent to Cover
# of Months of Expenditures 2.5 2.0 1.3 1.2 1.1
The following figures illustrate FCFA's revenue sources and expenditures by category for
Fiscal Year 2025–26.
1 FCFA 2025–27 Proposed Budget.
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Figure 4: Revenue Sources
Figure 5: Expenditures by Category
Arroyo Grande
43%
Grover
Beach
31%
OCSD
19%
Other
7%
Salaries &
Benefits
77%
Services &
Supplies
18%
Equipment
Replacement
3%
Debt Service
2%
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Capital Replacement Plan
Apparatus, other vehicles, and firefighting and emergency medical equipment are the
essential capital resources for FCFA to carry out its mission. A vehicle replacement funding
program was previously discussed but never implemented due to the program not
receiving sufficient support from member agencies, as they had not established a funding
strategy within their cities' fund balance policies. The Authority has been utilizing financing
as a mechanism for the apparatus/vehicle replacement program, then incorporating the
annual depreciation cost into the operating budget and allocating it to the member
agencies. The FCFA fleet is aged, and several vehicles remain in service although their age
exceeds industry standards for service life. The industry standard for the useful life of a fire
engine is 15 years of frontline service, followed by an additional 5 years in reserve status. At
the end of 20 years, the apparatus should be sold as surplus. Several FCFA frontline
apparatus and vehicles have been identified as being in poor condition. In addition,
reserve truck and Type III engines are also in poor condition, and there is no reserve for
Urban Search and Rescue (US&R) in the event the apparatus is out of service for
maintenance or repair. A long-term capital asset replacement plan has not yet been
established, while equipment continues to age and maintenance costs rise.
Observations
As illustrated in the above Revenues/Expenditures Summary, personnel costs account for
approximately 77% of the Authority's expenditures. It is projected to increase by 34% over
the next four years (Proposed Budget for Fiscal Year 2025–26 compared to the actual Fiscal
Year 2022–23). There are a few reasons for this significant increase. Several vacant positions
remained unfilled due to retirements and OCSD’s withdrawal from the Authority in June
2023, continuing through Fiscal Year 2024–25. A portion of the vacancies were filled
through overtime, resulting in a 38% increase in overtime costs in Fiscal Year 2023–24.
Overtime costs are normalized by filling the long-standing vacancies. In addition, a
successor MOU was negotiated in Fiscal Year 2023–24, which includes a one-time equity
adjustment for IAFF Local 4403 members and an annual 3% salary increase for all
employees for Fiscal Years 2024–25, 2025–26, and 2026–27. Each salary adjustment also
impacts payroll-related expenses, such as retirement costs.
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The exit of OCSD from the Authority raises some uncertainty and challenges in staffing and
the financial structure of FCFA. The OCSD contract accounted for approximately 19% of
the FCFA funding sources. The County and FCFA are working together on a multi-year
agreement for FCFA to provide fire and emergency medical services to Oceano; however,
numerous issues related to Oceano's fire service, including cost, staffing levels, and service,
remain.
The use of Station 3, along with other factors, remains a challenge to FCFA's service
delivery and fiscal sustainability.
Fire inspection fees are not a significant revenue source for FCFA; however, it is crucial to
keep the fees aligned with the cost increases. The FCFA fee schedule has not been
updated regularly. The current fee schedule, effective January 1, 2019, does not account
for salary adjustments in Fiscal Year 2023–24; therefore, the fee does not fully offset the cost
of the inspection.
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DESCRIPTION & REVIEW OF SERVICES PROVIDED
Fire Prevention & Public Education
A primary component of any risk reduction program is providing a comprehensive fire and
life safety inspection and permitting process. The goal is to prevent or mitigate a fire or
injury before it occurs.
Building Plan Review
The review process provides insight into how the construction may impact FCFA’s access to
the building during an incident, evaluates the type of construction, identifies the need for
fire protection systems, and considers any changes in building use.
Plan reviews should begin when the initial concept is presented for permitting. The initial
review allows the fire department to provide suggestions and enforce existing requirements
before permitting. For example, the site plan should include fire apparatus access, the
location of the fire department connection if a sprinkler system is present, the size and
height of the building, hydrants, and other features that impact emergency responders.
Proper permit applications and processes are crucial for assisting contractors in submitting
plans for review and final approval. Reviewing construction plans enables fire service
representatives to ensure compliance with regulations concerning existing fire sprinkler and
alarm systems, emergency lighting, and other processes. Furthermore, a permitting system
allows the organization to mandate modifications to plans if they fail to meet code
requirements before construction commences.
All plan reviews are currently being conducted by JAS, which is a private contractor for
Arroyo Grande and Grover Beach. San Luis Obispo County does Oceano. The Fire Chief
meets weekly with representatives from both cities to discuss any new developments
occurring in those jurisdictions. They can review the site plans and provide guidance for fire
department access, locations for the fire department connections for the fire sprinkler
systems, and hydrant placements.
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Fire & Life Safety Inspections
FCFA plays a crucial role in protecting the community by inspecting commercial buildings
and properties. These inspections do more than find violations; they serve as proactive
measures for risk prevention by educating business owners and the public about how and
why certain conditions can create serious safety hazards. Fire and life safety inspections
cover three of the Five E’s of fire prevention: education, engineering, and enforcement.
Each of these elements helps reduce risk by either preventing hazardous conditions from
developing or minimizing their impact before they become emergencies.
California Health and Safety Code, Section 13146, details the authority and responsibility of
the local fire agency to inspect specific occupancies, namely:
• Multifamily Dwellings, Group R-1 and R-2 occupancies must be inspected annually
(13146.2).
• Residential Care Facilities, Groups R2.1 and R-4 must be inspected upon request of a
licensee for a pre-inspection and upon receipt of a licensing request [H&S 13146.2
and 17921(b)].
• High-rise structures more than 75 feet above the lowest floor level with building
access must be inspected annually, and the result must be sent to the State Fire
Marshal (SFM) within 30 days. If the fire authority does not conduct the inspection,
the SFM will conduct the inspection and assess a fee to the owner [H&S 13217(a)]. It
is noted that there are currently no buildings of this height in FCFA’s jurisdiction.
• Public and Private Schools, K-12, Group E-1 must be inspected annually (H&S
13146.3).
• Detention Facilities, Group I-3 must be inspected every two years by the SFM unless
the Fire Chief indicates in writing to the SFM that the Department will handle the
inspections. The Fire Chief must submit inspection reports to the SFM and Board of
Corrections within 30 days of inspection. If the SFM conducts the inspection, they
may assess a fee (H&S 13146.1).
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When buildings are not regularly inspected, life safety violations can go unnoticed. This lack
of oversight leaves both code enforcement officials and emergency responders unaware
of potential dangers, which can significantly increase the risk to occupants and the public.
A tragic example of this happened in 2016 with the Ghost Ship fire in Oakland, California.
The fire killed 36 people in a converted warehouse that had not been inspected for thirty
years and lacked proper permits. The building was not even listed in the fire department’s
record management system, emphasizing the devastating consequences of missing or
insufficient inspection protocols.2
NFPA 1730, Standard on Organization and Deployment of Fire Prevention Inspection and
Code Enforcement, Plan Review, Investigation, and Public Education Operations, provides
a recommended inspection frequency, as shown in the following figure.
Figure 6: NFPA 1730 Inspection Frequency
Occupancy Risk Classification Frequency
High Annually
Moderate Biennially
Low Triennially
Critical Infrastructure Per AHJ*
*Authority Having Jurisdiction
2 NFPA Journal, Ghost Effect, January February 2018.
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The following figure provides an example of the risk and type of occupancy to determine
the inspection frequency utilizing the NFPA 1730 recommendations.
Figure 7: Occupancy Risk Classifications Example
Risk California Building
Code Group Examples
High
A-1, A-2 Nightclubs, restaurants, theaters, airport/cruise ship
terminals
A-3, A-4, A-5 Arenas, museums, and religious
H-1, H-2, H-3, H-4, H-5 Hazardous materials sites (Tier II)
B All government & public buildings, other office
buildings over two stories
E Schools, daycare centers
I-1, I-2, I-3, I-4 Hospitals, assisted living centers, and correctional.
M Strip malls, closed-air shopping malls, big box stores
R-1, R-2, R-3 Hotels, motels, dormitories, apartments, board &
care facilities
Special Risk Railroads, interstate highways, and airports
(Target hazard) Any building with a life safety risk beyond the reach
of preconnected hose lines > 200 feet
Moderate
B Outpatient clinics, general business, offices <3 stories
F-1 Fabrication or manufacturing of combustible
materials
M Mercantile, free-standing
I-2, R-4 Foster group homes, assisted living homes.
S-1 Storage of combustible materials, car repair
facilities, hangars
Low
F-2 Fabrication or manufacturing of non-combustibles
R 1- and 2-family dwellings, foster homes
S-2 Storage of combustible materials
U Barns, silos, and other unclassified buildings
FCFA performs all state-mandated inspections in Arroyo Grande and Grover Beach under
their new agreement. The engine companies complete all multifamily inspections.
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Permitting and Fees
A permit system enables FCFA to conduct inspections, ensuring compliance with code
requirements. The fees associated with the permit or other types of inspections are
intended to recover costs for plan reviews and inspections. FCFA has established a fee
schedule for fire prevention activities, including fire alarm and sprinkler systems, new and
remodel construction, special events, suppression systems, fireworks, weed abatement,
and California Fire Code permits and inspections.
The California Fire Code Section 105.6 requires operational permits for occupancies such as
flammable and combustible liquids (storage and use), hazardous materials, high-piled
storage, mobile food preparation vehicles, places of assembly, repair garages, temporary
membrane structures and tents, and spraying or dipping operations. Currently, minimal
operational permits are being issued.
Fire and Life Safety Education
Fire and life safety education is crucial for the FCFA and its residents, as it plays a vital role
in safeguarding lives and property. Through outreach programs, the Department reaches
hundreds of thousands of residents each year, providing them with the knowledge to
prevent fires and respond effectively during emergencies. These educational initiatives
help foster a culture of preparedness, starting in schools and spreading into homes and
workplaces, where people learn to identify hazards, install smoke alarms, and practice
escape plans.
The Department also customizes its programs to address the needs of vulnerable groups,
including seniors, children, and non-English speakers, making sure safety information is
accessible and relevant to everyone. By encouraging families to participate in fire drills
and safety planning together, these programs strengthen community ties and enhance
collective preparedness. Additionally, fire and life safety education supports the
Department’s resources by empowering volunteers and educators to extend its reach,
allowing firefighters to focus on emergency response while still promoting public safety. This
comprehensive approach not only reduces risks but also helps create a safer, more resilient
community.
FCFA does not have a dedicated public educator or information officer. They have
developed a fire prevention guide for each grade or age group. Other topics include
calling 9-1-1, exiting from a home, general fire safety, and injury prevention. FCFA has a
prop for teaching fire extinguisher training on request. FCFA has implemented more
wildland interface education in the community, which includes a door-to-door campaign.
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Weed Abatement
FCFA conducts an annual weed abatement program designed to reduce wildfire risks in
the communities it serves, including Arroyo Grande, and Grover Beach. The Oceano
Community Services District is now under San Luis Obispo County’s weed abatement
ordinance, and FCFA does not know how it will be enforced. Property owners must clear
weeds and combustible vegetation from their land by early summer, usually by June 1st.
Residential properties should keep vegetation no taller than four inches and remove all
other fire hazards. Specific guidelines include creating a 50-foot-wide defensible space
around the property perimeter and roadways, maintaining a 10-foot clearance from
driveways, and ensuring a clearance of at least 100 feet around all structures. On steep
slopes, vegetation under 18 inches in height may be retained to prevent erosion.
Initial inspections take place in April, and properties that do not meet the standards
receive notices with a deadline, typically in late May, to complete the necessary cleanup.
If property owners fail to comply, FCFA will hire contractors to carry out the abatement and
charge the owners the actual costs plus a 100% administrative fee. These expenses may
become a lien on the property. The program is enforced under California Health and
Safety Code Section 14900.5, and property owners are expected to remain compliant
throughout the year. An on-shift Battalion Chief is responsible for ensuring compliance and
enforcement of weed abatement regulations.
Fire Investigations
The National Fire Incident Reporting System (NFIRS) requires the documentation of fire
ignition types, which is a critical step in conducting thorough fire investigations. Possible fire
causes may include intentional acts, unintentional actions, equipment failures, natural
events, incidents under investigation, or those classified as undetermined.
Identifying the origin and cause of a fire allows FCFA to create targeted prevention
programs aimed at reducing future incidents. These programs should be based on data,
utilizing fire cause analysis to identify trends and potential issues within the community.
Data such as name, age, and gender can help identify specific individuals or groups,
enabling focused prevention efforts like the Juvenile Firesetter Program.
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FCFA has two certified fire investigators who respond when requested. These investigators
are part of the San Luis Obispo Fire Investigation Strike Team, which is available throughout
the County. The investigators have an informal relationship with local law enforcement, but
partner with them when a fire involves a juvenile. The investigators take photos of the
scene, collect evidence as needed, and complete a report for each investigation, which is
entered into the Department’s records management system.
Emergency Medical Services
Emergency Medical Services (EMS) is an integrated emergency care system that has
evolved steadily over the past several decades. When an individual needs medical help,
the process typically begins with the dispatch center. The dispatch center coordinates with
first responders, who use pre-hospital medical techniques to stabilize and start treatment.
Finally, the patient is delivered to the emergency room, where doctors continue the
stabilization and treatments that began in the field and transfer them to definitive care.
Immediate pre-hospital care in a medical emergency can significantly impact a patient's
ability to lead a productive life. Lifesaving interventions, such as resuscitation, defibrillation,
and medications, must be applied rapidly to be successful. Additionally, understanding the
impact of disease and the most common incident types can help an agency determine
where to focus its limited resources. Good data collection and analysis are imperative.
The following figure lists the six leading causes of death in San Luis Obispo County for the
years 2020 through 2022.
Figure 8: Leading Causes of Death in SLO County (2020–2022)3
Condition 2022 2021 2020
1. Heart Disease 509 449 465
2. Cancer 449 546 528
3. Stroke 273 260 261
4. Alzheimer's Disease 155 163 179
5. COVID-19 122 244 115
6. Chronic Obstructive
Pulmonary Disease (COPD) 113 96 108
3 CA Department of Public Health. California Community Burden of Disease Engine. Accessed September 2025.
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The following figure depicts the Years of Life Lost (all) by Cause of Death in San Luis Obispo
County for 2023.
Figure 9: Years of Life Lost (All) in SLO County, 20234
FCFA provides emergency medical services (EMS) as part of its comprehensive public
safety program. All on-duty firefighters are certified as emergency medical technicians
(27). The Department provides first-response basic life support (BLS) level care for medical
emergencies. FCFA participates in an enhanced level of care for emergency medical
technicians, as permitted by the local EMS agency, including the ability to administer
epinephrine, provide continuous positive airway pressure (CPAP), administer Narcan, and
perform sugar tests.
Since 1980, the number of residential and commercial structure fires in the United States
has decreased by 54%.5 Conversely, nationwide demand for EMS has gradually increased.
FCFA’s data show that over 15,000 EMS calls occurred during the study period, which is
approximately 59% of emergency response calls in FCFA.
4 CA Department of Public Health. California Community Burden of Disease Engine. Accessed 2/26/2025.
5 https://www.nfpa.org/education-and-research/research/nfpa-research/fire-statistical-reports/fire-loss-in-the-
united-states.
1,281
575
370
365
298
0 200 400 600 800 1,0001,2001,400
Drug Overdose
Ischemic Heart Disease
Alcohol Related
Stroke
Hypertensive Heart Disease
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Emergency medical services in San Luis Obispo County are a critical component of the
healthcare infrastructure, providing rapid, lifesaving care to residents and visitors alike. The
County's emergency services are designed to respond swiftly to medical crises, ensuring
that those in need receive immediate attention. Arroyo Grande Community Hospital, Sierra
Vista Regional Medical Center in San Luis Obispo, French Hospital in San Luis Obispo, or
Marian Regional Medical Center in Santa Maria offer comprehensive emergency care.
They are equipped to handle a wide range of medical emergencies.
The FCFA EMS program is managed by an operational Battalion Chief who oversees two
personnel trained in advanced life support (ALS). They play a crucial role in maintaining the
EMS program, including training, supplies, and equipment. A registered nurse oversees
quality improvement/quality assurance. FCFA's EMS program aligns with industry standards
in providing immediate basic life support while adhering to protocols, quality assurance
measures, performance metrics, and transferring care to a private ambulance service for
transport.
FCFA personnel expressed growing interest in enhancing its emergency medical services
by transitioning to ALS or paramedic capabilities. This move would enable their personnel
to deliver a higher level of pre-hospital care, including administering medications,
performing advanced airway management, and utilizing cardiac monitoring equipment.
By becoming ALS-certified, the agency can reduce its reliance on private ALS ambulance
providers, improve ALS response times, and deliver more immediate critical care to
patients in its service area. This shift aligns with the FCFA's mission to "provide the highest
level of service possible by mitigating threats to life, property, and the environment." It also
reflects a broader trend among fire departments seeking to better meet the evolving
healthcare needs of their communities. Data collection and analysis are essential to
understanding system performance. Key questions include: What percentage of EMS
responses require Advanced Life Support (ALS)? How long does the FCFA retain patient
care before an ALS ambulance arrives? And are these trends increasing over time?
Medical Control & Oversight
FCFA provides oversight for its EMS system's medical services and personnel. At the same
time, the San Luis Obispo EMS Agency handles regional management and regulation. The
California Emergency Medical Services Authority provides state oversight and regulation of
emergency medical services. The State EMS Authority has determined that the San Luis
Obispo EMS Plan meets all EMS system components identified in Health and Safety Code
(HSC) § 1797.103 and approved it for implementation pursuant to HSC § 1797.105(b).
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FCFA, or its predecessor agencies, has been providing emergency medical services for
decades. However, it does not retain Health and Safety Code—HSC § 1797.201 — rights,
meaning that San Luis Obispo County, through the San Luis Obispo EMS Agency, has
created an exclusive operating area (EOA) and awarded the contract for the 911
ambulance provider. Moreover, San Luis Obispo EMS maintains administrative oversight
and guidance for pre-hospital EMS. In this case, it enters into a written exclusive operating
agreement with San Luis Ambulance to provide ambulance transport services throughout
the County of San Luis Obispo, except in the city of Cambria. San Luis Ambulance is staffed
with one Paramedic and one Basic Emergency Medical Technician. San Luis Ambulance
makes quarterly payments to FCFA for First Responder fees; the amount received in 2024
totaled $27,480.20.
FCFA estimates it has spent the following over the last three fiscal years on EMS supplies:
• 2024–2025 $21,855.00
• 2023–2024 $21,556.00
• 2022–2023 $20,600.00
This does not include other EMS-related costs, such as personnel, training, fuel, and
apparatus wear and tear.
The FCFA does not employ or contract with a Medical Director. This is consistent with most
basic life support (BLS) fire agencies, which typically operate without one. In contrast,
advanced life support (ALS) fire and rescue agencies are required to utilize a Medical
Director who serves as the prescribing physician and often provides localized medical
oversight. The FCFA relies on the San Luis Obispo County EMS Medical Director for system-
level medical direction and on an internal Registered Nurse for quality improvement and
quality assurance activities.
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Quality Management Mechanisms
A quality improvement/quality assurance (QI/QA) plan is a comprehensive approach to
improving and maintaining the quality of an organization's products, services, or processes.
FCFA does not have a written QI/QA plan. A QI/QA plan outlines the methods and
procedures for measuring, evaluating, and improving quality, ensuring consistent
adherence to quality standards. The QI/QA plan aims to enhance efficiency, customer
satisfaction, and overall performance while minimizing errors and reducing costs. It may
include performance metrics, data collection and analysis, process improvement
initiatives, employee training, and regular management review. The QI/QA plan is a crucial
component of a quality management system, enabling organizations to meet regulatory
requirements and industry standards.
A quality QI/QA plan should include the following elements:
• Clearly defined goals and objectives
• A clear definition of the areas and processes to be covered
• Performance measures
• Data collection
• Continuous improvement process
• Communication plan
• Training plan to support QI/QA
• Management review of the QI/QA plan to ensure its relevance remains
EMS System Integrity Regarding Required Credentialing
As a minimum job requirement, FCFA mandates that candidates possess a current, valid
California Driver's License, a high school diploma, EMT certification, and CPR certification.
Regardless of rank, every firefighter must hold and maintain at least an EMT license. The
Department employs 25 EMTs and 2 Paramedics; however, the Paramedics are not
accredited to practice in San Luis Obispo County, so they operate as EMTs.
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EMTs must earn a minimum of 24 hours of Continuing Education (CE) every two years,
specific to their skill set and established scope of practice, including the expanded scope
of practice allowable in each county. FCFA achieves this by offering in-house training
scheduled, facilitated, or taught by SMEs within the organization and through San Luis
Obispo (SLO) EMSA. FCFA manages and tracks required training hours using the online
Vector Solutions (formerly TargetSolutions suite. This allows an agency to set up a
"credentialing" system to track and manage needed training hours.
EMS training is a significant component, with initial onboarding EMT training conducted by
in-house staff. Continuous Medical Education (CME) is provided through a combination of
didactic teaching and hands-on skills training, taught by in-house staff and SLO EMSA.
FCFA offers additional EMS-related training via Vector Solutions Online Training CEs.
The EMS training methodology at FCFA emphasizes the importance of manipulative skills
through bi-annual exercises, including cardiopulmonary resuscitation, trauma assessment,
medical assessment, and more.
Adequacy of EMS Records Management System and Data Collection
FCFA utilizes ImageTrend, a NEMSIS, NFIRS, and HIPAA-compliant system that integrates with
their computer-aided dispatch (CAD) system. While data is necessary for compliance and
reporting, having accurate and comprehensive data enables fire departments to make
informed decisions about resource allocation, training needs, and operational
improvements. This leads to better preparedness and response strategies. Fire departments
and public health agencies can use detailed medical data to develop community health
programs, such as vaccination drives or health screenings, targeting areas with higher
medical needs. Overall, robust data collection ultimately leads to improved safety and
service for the community.
Correct documentation of events for the fire department is critical, especially for those
requesting them. In addition, a reliable and accurate performance analysis cannot occur
without quality control. The FCFA should monitor incident types, especially emergency
medical services, with more detail to correlate required changes or improvements.
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Hazardous Materials
Hazardous materials are found in every community, in homes and businesses. They are
transported by road, air, and sea. Responding to incidents involving actual or potentially
hazardous materials is one of the many tasks performed by FCFA. Although these types of
incidents are less common than others, hazardous materials released can harm people,
the environment, critical infrastructure, and property.
The FCFA, along with most other agencies in San Luis Obispo County, is equipped to
handle uncomplicated hazardous materials incidents at the first-responder or operations
levels, then relies on a regional network that includes mutual aid. Locally, the County Fire
Department/CAL FIRE hosts the regional hazardous materials response team, which
includes FCFA members. This approach to hazardous materials response in the FCFA and
San Luis Obispo County reflects a commitment to public safety and environmental
protection within budgetary constraints, ensuring that both the community and its natural
surroundings are safeguarded against the risks associated with hazardous materials. While
the team does not maintain a full-time hazmat unit, it can assemble and respond to the
FCFA area within 45-60 minutes, when needed.
Firefighters responding to hazardous chemical or material incidents must have adequate
training and proper personal protective equipment (PPE) to safely handle them. All FCFA
personnel are trained, at minimum, to the Hazardous Materials First Responder Operational
(FRO) level, certified by the State of California, and required under CFR 1910.120(q). This
ensures every firefighter possesses the fundamental skills necessary to recognize and safely
respond to hazardous materials incidents. In addition to FRO certification, FCFA has two
individuals certified at the Hazardous Materials Technician/Specialist level, two certified at
the Weapons of Mass Destruction (WMD) level, two certified as Haz-Mat Safety Officers,
and 16 members certified as Hazardous Materials Incident Commanders.
When responding to a hazardous materials incident, the primary responsibility of the first-
arriving engine company is to secure the scene, identify the substance (if possible), and
make proper notifications. This initial action ensures that the safety of the public and
emergency responders is the foremost priority.
Altogether, FCFA's hazardous materials response capability is characterized by a blend of
comprehensive baseline training, targeted advanced certifications, and a commitment to
teamwork both within the agency and across regional partners.
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Technical Rescue
FCFA is equipped to handle a variety of emergency situations with a comprehensive,
efficient technical rescue response. Technical rescue operations often involve complex,
high-risk scenarios, such as confined-space rescue, high-angle rescue, trench rescue, and
structural collapse. The Authority's firefighters and rescue personnel are trained to use
specialized equipment and techniques to safely navigate these dangerous situations.
FCFA maintains a Technical Rescue Program designed to support a wide range of
specialized emergency response needs. FCFA contributes three trained members to the
San Luis Obispo County Urban Search and Rescue (US&R) Team, an unstaffed regional
resource that operates on a call-back basis. Deployment of the SLO County US&R Team is
contingent on individual members' availability and is coordinated via paging.
Internally, FCFA does not have a formal Technical Rescue Team (TRT); however, the
Department sustains a cadre of personnel trained in technical rescue disciplines as part of
regular shift operations. All operational personnel meet the minimum rescue competencies
associated with their respective ranks:
• Firefighter: Low Angle Rope Rescue and Auto Extrication
• Engineer: All competencies of Firefighter plus Rope Rescue, Trench Rescue
Technician, and Confined Space Rescue Technician
• Captain: Structure All competencies of Firefighter and Engineer, plus Collapse
Technician
Personnel are encouraged to pursue additional rescue training with support provided
within the budget.
As of the most recent departmental audit, the percentage of personnel trained in specific
technical rescue disciplines is:
• Confined Space Rescue: 90%
• Rope Rescue (High/Low): 90%
• Trench Collapse: 90%
• Structural Collapse: 90%
• Vehicle/Machinery Rescue: 100%
• Swiftwater Rescue: 25%
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These high percentages demonstrate a commitment to training and operational readiness
that can deliver effective technical rescue services, both independently and in
cooperation with regional partners.
Training
Training requirements are set by the FCFA, the California State Fire Marshal's Office, and
SLO EMSA. Firefighters are required to have completed a California State Fire Marshal -
approved Firefighter 1 program and hold a current Emergency Medical Technician (EMT)
card to be eligible for employment. Once hired, the firefighter completes an in-house
academy before being assigned to a shift as a probationary firefighter.
Firefighters in the FCFA are required to undergo regular training sessions that include both
theoretical knowledge and practical skills. These sessions cover fire behavior, equipment
handling, rescue operations, and emergency medical services, ensuring that all personnel
are well-versed in the latest firefighting and lifesaving methods.
The following figure reflects general training competencies for FCFA.
Figure 10: General Training Competencies
Program Description FCFA Source
Incident Command System (ICS) Cal OES/CSTI/FEMA 100, 200, 300, 700, 800
Personnel Accountability NFPA 101(various), Lexipol Policies
Basic and Advanced Firefighting SFT Firefighter 1A and 2A Structural
Wildland Firefighting NWCG RT-130 (annually), CICCS ENGB, STL, SO,
Single Resource, Driver-Operator
Rescue (Basic) SFT, Local/County SOGs
Safety Procedures FCFA Policies/SOGs, IIPP
Emergency Medical Services (EMS) Local and State Protocols, FCFA Policies/SOGs
Hazardous Materials HazMat FRO (CSFM/CSTI)
Vehicle Extrication SFT
Driver-Operator SFT Driver-Operator-1A, 1B, & 1C
Radio Use, Dispatch Procedures FCFA & CAL FIRE SLU ECC
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Training refers to the specific programs, resources, and capabilities of a fire department's
personnel. A comprehensive training program tailored to the department's needs is
integral to day-to-day activities. Proper training ensures the safe and effective delivery of
emergency services to the community. It is crucial for all departments, regardless of their
size or staffing composition (whether career, volunteer, or a combination).
Although the number of incidents varies from jurisdiction to jurisdiction, the types of
incidents are often similar. Developing initial and ongoing training in fire, EMS, rescue, and
hazardous materials is critical to ensuring FCFA is effective and safe during incidents. A
well-designed and comprehensive training program fosters team dynamics and
cohesiveness, improves incident outcomes, and reduces liabilities for FCFA.
FCFA attempts to maintain a high standard of training and competency among its
personnel. They have comprehensive training programs for the Incident Command System
(ICS), personnel accountability, safety procedures, and the use of small tools and power
equipment. Formal Standard Operating Guidelines (SOGs) are in place to guide training
processes, ensuring all personnel are equipped with the necessary knowledge and skills.
FCFA provides annual training in vehicle extrication and defensive driving, facilitated by
state-certified instructors. Radio communications and dispatch protocols are also trained
to ensure efficient operations.
The following figure illustrates the types and frequencies of training drills for FCFA.
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Figure 11: Drill-type & Frequency
Drill-Type Frequency
Manipulative Skills Exercised Monthly
Inter-Station Drills 2-3 Monthly
Multi-Company Drills 5-6 Annually
Night Drills Annually
Disaster Drills Annually
Pre-Incident Planning Year-Round Activity for FCFA
Multi-Agency Drills Annually
The training methodology at FCFA emphasizes the importance of manipulative skills and
performance evaluations that are conducted regularly to ensure competency. The
Insurance Services Office (ISO) requires a minimum of 222 annual training hours, covering
company training, hazardous materials training, driver/operator training, and officer
training. Annual EMS training hours are also tracked by instructors and company officers in
the Vector Solutions online system.
FCFA's training operations prioritize safety with individual performance evaluations. Post-
incident analyses are conducted through after-action reviews (AARs) using standardized
templates from Lexipol. The training procedures manual, developed and utilized daily, is
also sourced from Lexipol.
The administration of training at FCFA is overseen by the Training Battalion Chief and the
EMS Coordinator/Registered Nurse. They set annual training goals and objectives, with
support from certified instructors who hold the appropriate licenses and certifications. FCFA
allocates $40,000 to training annually. The facilities for training administration, including
Station 1's training classroom, are in good condition, and the necessary office space,
equipment, and supplies are adequate. A yearly training report is not produced.
While FCFA does not have a training center, they have minimal space available at Station
2 for fire-related training props, including ventilation, entanglement props, confined space
crawl tubes, US&R heavy lifting concrete slabs, and a forcible entry door. In terms of
training facilities, FCFA lacks a drill tower, live-fire training facility, smoke building, and
adequate outside drill grounds.
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Record-keeping at FCFA includes individual training files that are maintained and
computerized. Daily and company training records are kept, with the Training Battalion
Chief responsible for their upkeep. Battalion Chiefs and Captains can enter training
records, which are accessible to all personnel. Fire, EMS, and other certifications are
tracked diligently.
In the latest full year, FCFA reported that it trained 24 personnel, delivering a total of 8,121
training hours, comprising 5,670 fire-related, 2,115 EMS-related, and 336 other training hours.
This comprehensive approach ensures that FCFA personnel remain well-prepared, highly
skilled, and ready to respond effectively to various emergency situations.
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STAFFING & PERSONNEL
Public safety, at its core, is a service industry. An organization's ability to meet its obligations
and fulfill its mission requires active recruitment, effective management, and the
maintenance of sufficient staffing. Appropriate operational, administrative, managerial,
and supervisory staffing levels, as well as effective allocation of resources, are imperative to
an agency's success.
Fire service staff functions fall into three distinct groups: administration, prevention, and
operations. These groups must have access to appropriate resources to complete their
tasks effectively, enabling an agency to operate efficiently. Allocating organizational
resources to balance each can be difficult, but adequate staffing is crucial.
An organization also needs proper rules for effective personnel management. Well-
defined, consistent, and documented policies and practices help employees understand
their responsibilities and benefits, as well as chart their path to success and professional
advancement.
The number of positions and personnel deployment depends on the organization's needs,
mission, and resources. Similarly, the organization's structure, size, and legal requirements
drive the administrative and managerial policies and practices. This section provides an
overview of FCFA's staffing structure and human resources practices.
Administrative Staffing
The administrative and support functions encompass a variety of tasks, which can be
numerous. Organizational planning, coordination, asset management, program
evaluation, and overall direction are typical administrative and support staff functions.
Some agencies within a larger organization share some support functions with a
municipality or other larger government agencies. FCFA was formed as a JPA, and it
receives administrative support from the City of Arroyo Grande.
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Three full-time equivalent (FTE) employees provide administrative services. The Fire Chief
reports to the FCFA JPA Board through the Executive Managers. The JPA Executive
Managers consist of the City Managers from the two member cities. The Administration
Operations Manager and three Battalion Chiefs report to the Fire Chief. There is no Fire
Marshal. The Fire Chief's span of control of four subordinates is within established best
practices; however, the Chief and subordinates each have a wide range of administrative
and operational duties. The Administrative Services Manager position is an Arroyo Grande
employee who does not report directly to the Fire Chief but supports the FCFA.
The following figure lists each FTE position and the staffing count for the administrative
functions.
Figure 12: Administrative Staff Full-Time Equivalent Count
Position FTE
Fire Chief 1
Administrative Services Director —
Executive Assistant 1
Administrative Assistant (PT) 0.45
TOTAL FTE: 2.45
PT = part-time
Administrative Support
FCFA operates with civilian administrative support from the City of Arroyo Grande. The City
assists in developing and managing the budget, as well as other departmental assets,
including human resources, records management, legal, and finance. While this study is
not focused on evaluating the City of Arroyo Grande, concerns were expressed regarding
the city's ability to adequately staff both the city and FCFA workloads. All the FCFA
employees are employed by the City of Arroyo Grande, which requires them to perform
most of the human resources functions. FCFA personnel are required to comply with the
FCFA's policies, processes, and systems, and in the absence of FCFA authority, with the City
of Arroyo Grande's policies.
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Fire Prevention Division
Traditionally, fire prevention bureaus are responsible for preventing loss and injury through
code enforcement, investigation, and education. Arroyo Grande, Grover Beach, and the
County retain responsibility through their own staff or contracted services for new
development plan checks and most state-mandated inspections (assembly, educational
institutions, hazardous facilities). FCFA engine companies inspect multi-family residential
properties as part of their pre-planning program, managed by the Administration
Operations Manager and a Battalion Chief. FCFA has two qualified fire investigators on
shift.
Figure 13: Fire Prevention Staff Full-Time Equivalent Count
Position FTE
Fire Marshal Contract
Plan Reviewer Contract
Investigators on shift assigned to Operations 2CS
TOTAL FTE: 0
CS = cross-staffed and counted in operations.
Operations Staffing
Operations personnel are assigned various duties consistent with fulfilling emergency
response objectives. They are also responsible for additional collateral duties to support the
response mission. The three Battalion Chiefs (one per shift) supervise the Captains,
Engineers, and Firefighters. The following figure lists the FTE position counts for the
Operations Division.
Figure 14: Operations Staff
Position FTE
Battalion Chiefs 3
Captains 9
Engineers 9
Firefighter/EMTs 6
TOTAL FTEs: 27
One part-time Radio Communication Technician is omitted.
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Firefighter Staff Distribution
The operations staff is evenly allocated across the three shifts. At a minimum, three
personnel are on duty daily at each station in Arroyo Grande and Grover Beach. FCFA
operates on a three-shift system, with a 48-hour duty and 96-hour off-duty rotation.
Additional units can be cross-staffed, depending on the type of incident and the
apparatus required. The minimum staffing levels for Engines 6691 and 6692 are a Captain,
an Engineer, and a Firefighter for each company; however, Engine 6693 has only a
Captain and an Engineer.
A Battalion Chief is on duty, operating a command vehicle from Station 1. Additionally, the
Fire Chief is fully qualified to provide additional incident support.
The following figure lists the primary and cross-staffed apparatus by station. Cross-staffing
means the personnel assigned to the primary fire engine must un-staff that unit and move
to another before responding.
Figure 15: Station Units & Staffing Levels
Fire Station Apparatus Minimum
On-Duty Staffing
Station 1
Engine 6691 3
Truck 6645 CS
Type III 6661 CS
Battalion 6611, 6612, & 6613 1
Station 2
Engine 6692 3
Engine 6693 2
Rescue 6652 CS
UTV CS
Station 3 Closed Closed
Totals: 9
During the study, Engine 6693 was located at Station 2 due to construction on the Traffic
Way bridge over Arroyo Grande Creek.
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Determining the appropriate staffing levels for an apparatus is challenging. Leaders must
evaluate the risks their crews are likely to encounter and the level of risk the community is
willing to accept. Several noteworthy publications help agencies determine adequate
staffing, including 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. This NFPA standard recommends staffing and
deployment of career organizations.
The National Institute of Standards and Technology field studies on fire-ground and EMS
incidents may also provide direction. Occupational health standards typically consider
crew entry into a hazardous environment unsafe without an equal number of personnel
equipped and capable of responding outside the hazard zone. Therefore, no one person
goes in alone. However, this rule may be suspended in the event of an emergency rescue.
Staff Scheduling Methodology
FCFA staffs two stations, 24 hours per day, every day of the year, with a minimum of a
Battalion Chief, 3 Captains, 3 Engineers, and 2 Firefighters. Each apparatus is equipped
and staffed to provide fundamental BLS medical care. In addition, FCFA has access to
several surrounding agencies for additional incident staffing. FCFA utilizes a three-shift
system, consisting of A-Shift, B-Shift, and C-Shift, which operate on a 48/96-hour schedule
within a 24-day FLSA cycle. The work shifts begin at 8:00 a.m. and end at 8:00 a.m. the
following day.
Policies, Rules, Regulations, & Guidelines
Complex organizations, such as fire agencies, operate under several rules. These rules can
result from both internal and external forces. Federal, state, and local laws are external
factors that influence the organization. Internal forces include operations and resource
management. If broken, documented internal requirements, such as written policies,
contracts, orders, memos, and guidelines, might have minor or severe legally defensible
consequences. FCFA utilizes Lexipol, which provides policy, training, and risk management
solutions.
Likewise, undocumented rules, practices, and behavioral patterns that evolve within an
agency or workforce have various outcomes if broken. Agencies must approach the
official enforcement of these unwritten rules cautiously, as labor laws generally favor
employees over the organization. Analyzing these unwritten rules is outside the scope of
this section. However, FCFA is still in the policy development phase as a relatively new fire
authority.
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Emergency services organizations must comply with government-mandated regulations.
City, county, state, and federal laws apply to the organization, its employees, and specific
functions of firefighters and medical personnel. Rules that apply directly to FCFA are
primarily dictated by state and federal law, although local ordinances and code adoption
play a role. An analysis of these laws is outside the scope of this report, and FCFA and the
cities within the FCFA should rely on periodic legal reviews to ensure compliance.
Some agencies are subject to civil service rules. Civil service rules are laws that govern the
employer-employee relationship at the local, state, or federal level. FCFA employs internal
operational guidelines, general orders, and its own personnel rules and regulations. When
internal personnel rules and regulations are outdated or no longer essential, FCFA relies on
the City of Arroyo Grande's personnel rules. This could create confusion or even conflict in
policies.
Human Resources
The fire service depends heavily on its people to accomplish its mission. Effective
management, support, and organization of human resources are essential to successful
service delivery and depend on the organization’s commitment to well-defined human
resources (HR) functions, policies, and programs.
Within the FCFA, the City of Arroyo Grande manages staff, systems, payroll, and
procedures specifically designed to accomplish and enhance the human resource
function, while the Fire Department’s administrative staff handles the day-to-day HR
activities necessary to support personnel operations. This structure ensures compliance with
city policies while maintaining operational oversight within the department.
Personnel Reports & Recordkeeping
The City of Arroyo Grande and FCFA maintain hard-copy documents of employee files
and information in their records management systems. Electronic records can be found in
various computer systems, including ImageTrend, CrewSense, PSTrax, and Lexipol. Hard
copy files are kept in a physically secure location and have limited unsupervised access.
Additionally, various electronic records management systems store other data, including
attendance, payroll, training, and miscellaneous daily information. These systems are
secured utilizing standard information technology processes.
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Compensation Systems
FCFA's compensation system is based primarily on position and seniority. Compensation
includes hourly and annual salaries, various paid and unpaid leave programs, health and
life insurance, retirement benefits, and recognized holidays. The memorandums of
understanding (MOUs) outline the compensation for members of IAFF Local 4403. IAFF 4403
represents captains, engineers, and firefighters. All other FCFA employees are
unrepresented.
Labor Contracts
The Joint Powers Authority (JPA) has entered into an MOU between the Fire Department
and the local firefighters’ union. The MOU functions as a legally binding agreement
authorized under California’s Meyers-Milias-Brown Act, which governs labor relations in
local government. The International Association of Fire Fighters (IAFF) Local 4403 represents
fire suppression personnel under this agreement.
Grievance & Disciplinary Process
FCFA has a documented grievance process. The MOU with IAFF Local 4403 defines this
process and references the procedural steps. FCFA outlines its progressive disciplinary
process within its official policies.
Counseling Services
FCFA provides mental health counseling to its employees through the City of Arroyo
Grande Employee Assistance Program, FCFA Peer Support Program, and SLO County
Team. Additionally, FCFA participates in the Mighty Oaks and At Ease programs, which
offer first responders and their family members access to professional, confidential, and
locally based trauma-informed counseling and therapy. Finally, FCFA has substance
abuse, drug, and alcohol testing policies in place for reasonable suspicion.
Recruitment, Application, & Testing Processes
FCFA's hiring process includes a qualification review, reference review, background check,
and interview. Firefighters are also required to undergo additional physical and written
testing through the Firefighter Candidate Testing Center (FCTC). FCFA conducts an annual
performance evaluation for operational personnel. The probationary period for both
original employment appointments and promotions is 12 months, as defined in the policy.
Once the recruitment application period is closed, the Department is responsible for most
of the remaining tasks, including scheduling interviews and fulfilling hiring responsibilities.
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Health & Wellness Programs
FCFA has a health and wellness program for its operational personnel. Every year,
operations personnel complete a medical examination based on the National Fire
Protection Association (NFPA) 1582: Standard on Comprehensive Occupational Medical
Program for Fire Departments. New hires complete an exam after the conditional job offer
but before starting work. The Safety Committee is managed by the City of Arroyo Grande.
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CAPITAL FACILITIES & EQUIPMENT
Apparatus and other vehicles, trained personnel, firefighting and emergency medical
equipment, and fire stations are the essential capital resources necessary for a fire
department to carry out its mission. No matter how competent or numerous the firefighters
are, if appropriate capital equipment is unavailable for operations personnel, it would be
impossible for FCFA to perform its responsibilities effectively. The essential capital assets for
emergency operations are facilities, emergency response apparatus, other response
vehicles, and capitalized emergency equipment. This section of the report assesses the
FCFA's capital assets.
Fire Station Features
Fire stations play an integral role in delivering emergency services for several reasons. A
station's location will largely dictate response times to emergencies. A poorly located
station can mean the difference between confining a fire to a single room and losing the
structure or surviving a sudden cardiac arrest. Fire stations must also be designed to
adequately house equipment and apparatus and meet the organization's and its
personnel's needs.
Fire station activities should be closely examined to ensure the structure is adequately sized
and functional. Examples of these functions can include the following:
• Kitchen facilities, appliances, and storage
• Residential living space and sleeping quarters for on-duty personnel (all genders)
• Bathrooms and showers (all genders)
• Training, classroom, and library areas
• Firefighter fitness area
• The housing and cleaning of apparatus and equipment, including decontamination
and disposal of biohazards
• Administrative and management offices, computer stations, and office facilities
• Public meeting space
In gathering information from FCFA, AP Triton requested that the Authority rate the
condition of its fire stations using the criteria outlined in the following figure. The results are
presented in the figures that follow the criteria’s description.
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Figure 16: Criteria Utilized to Determine Fire Station Condition
Excellent
Like new condition. No visible structural defects. The facility is clean and
well-maintained. The interior layout is conducive to function, with no
unnecessary impediments to the apparatus bays or offices. No
significant defect history. Building design and construction match the
building's purposes. Age is typically less than 10 years.
Good
The exterior has a good appearance with minor or no defects. Clean
lines, good workflow design, and only minor wear on the building
interior. Roof and apparatus apron are in good working order, absent
any significant full-thickness cracks or crumbling of apron surface or
visible roof patches or leaks. Building design and construction match the
building's purposes. Age is typically less than 20 years.
Fair
The building appears to be structurally sound with a weathered
appearance and minor to moderate non-structural defects. The interior
condition shows normal wear and tear but flows effectively to the
apparatus bay or offices. Mechanical systems are in working order.
Building design and construction may not align well with the building's
intended purposes. Showing increasing age-related maintenance, but
with no critical defects. The typical age is 30 years or older.
Poor
The building appears to be cosmetically weathered and worn, with
potentially structural defects. However, these are not imminently
dangerous or unsafe. Large, multiple full-thickness cracks and crumbling
of concrete on the apron may exist. The roof has evidence of leaking
and/or numerous repairs. The interior is poorly maintained and shows
signs of advanced deterioration, with moderate to significant non-
structural defects. Problematic age-related maintenance and/or major
defects are evident. It may not be well suited to its intended purpose.
Age is typically greater than 40 years.
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Fire Stations and Administrative Office
The following section lists the features of FCFA's three fire stations and administrative office.
Station Name/Number: Station 1 (City of Arroyo Grande Property)
Address/Physical Location: 140 Traffic Way, Arroyo Grande, CA 93420
General Description:
Fire Station 1 is also the Administrative Office for
FCFA. It houses administrative staff, a Battalion
Chief, an engine company (6691), and a truck
company that is cross-staffed.
Structure
Date of Original Construction May 1981 (Remodeled May 2004)
General Condition Fair
Seismic Protection Per Code at time of remodel
Auxiliary Power Generator
ADA Compliant No ADA access to the second floor
Number of Apparatus Bays Drive-Throughs 3 Back-Ins Total Bays: 3
Total Square Footage Station: 12,889 sq. ft.
Gym/Storage Building: 1,591 sq. ft.
Facilities Available
Sleeping Quarters Bedrooms 6 Beds Dorm Beds 11
Maximum Staffing Capability 11 (Total number of staff that can be housed at the station)
Bathroom/Shower Facilities
Gender Segregation (Y) Bathrooms 4 Showers 3 Bedrooms 6
Exercise/Workout Facilities Yes
Kitchen Facilities Yes
Individual Lockers Assigned Yes
Training/Meeting Rooms Yes
Washer/Dryer/Extractor Yes
Safety & Security
Station Sprinklered Yes
Smoke & CO Detection Yes
Decon & Biological Disposal Yes
Security System No
Apparatus Exhaust System Yes
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Station Name/Number: Station 2 (City of Grover Beach Property)
Address/Physical Location: 701 Rockaway Ave, Grover Beach, CA 93433
General Description:
Fire Station 2 houses two engine companies (6692
& 6693), Type 2 US&R, and a utility task vehicle.
Structure
Date of Original Construction June 1999
General Condition Fair
Seismic Protection Per Code at time of construction
Auxiliary Power Generator (Shared with City Hall and Police
Station)
ADA Compliant No ADA access to the second floor
Number of Apparatus Bays Drive-Throughs 3 Back-Ins 1 Total Bays: 4
Total Square Footage 6,022 sq. ft.
Facilities Available
Sleeping Quarters Bedrooms 3 Beds Dorm Beds 6
Maximum Staffing Capability 6 (Total number of staff that can be housed at the station)
Bathroom/Shower Facilities
Gender Segregation (Y) Bathrooms 3 Showers 3 Bedrooms 3
Exercise/Workout Facilities No
Kitchen Facilities Yes
Individual Lockers Assigned Yes
Training/Meeting Rooms No
Washer/Dryer/Extractor Yes
Safety & Security
Station Sprinklered Yes
Smoke & CO Detection Yes
Decon & Biological Disposal No
Security System No
Apparatus Exhaust System Yes
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Station Name/Number: Station 3 (Oceano CSD Property) CLOSED
Address/Physical Location: 1655 Front Street, Oceano, CA 93445
General Description:
The station is closed; however, the apparatus bay
is utilized for storage. The trailer used as a fire
station living quarters is scheduled for removal
soon.
Structure
Date of Original Construction
OCSD Office/App Bay: April 1985 (Retrofitted in
June 1999)
Modular Living Quarters: July 2003
General Condition Poor
Seismic Protection Per Code at time of construction
Auxiliary Power Generator (Shared with SLO County Sheriff’s
Substation)
ADA Compliant No
Number of Apparatus Bays Drive-Throughs 2 Back-Ins 1 Total Bays: 3
Total Square Footage OCSD Office/Apparatus Bay: 2,360 sq. ft.
Modular Living Quarters: 975 sq. ft.
Facilities Available
Sleeping Quarters Bedrooms 3 Beds 0 Dorm Beds 0
Maximum Staffing Capability 3 (Total number of staff that can be housed at the station)
Bathroom/Shower Facilities
Gender Segregation (NA) Bathrooms 2 Showers 1 Bedrooms 3
Exercise/Workout Facilities No
Kitchen Facilities Yes
Individual Lockers Assigned Yes
Training/Meeting Rooms No
Washer/Dryer/Extractor Residential Washer/Dryer in Modular
Safety & Security
Station Sprinklered OCSD Office/Apparatus Bay: No / Modular: No
Smoke & CO Detection Yes
Decon & Biological Disposal No
Security System No
Apparatus Exhaust System Yes
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Apparatus & Vehicles Fleet Inventory
Fire apparatus and other emergency response vehicles must be sufficiently reliable to
transport firefighters and equipment rapidly and safely to an incident scene. Additionally,
such vehicles must be adequately equipped and function properly to ensure that the
delivery of emergency services is not compromised.
As a part of this study, AP Triton requested that the FCFA provide a complete inventory of
its fleet (suppression apparatus, command units, support vehicles, specialty units, etc.). For
each vehicle listed, FCFA was asked to rate its condition using the criteria described in the
following figure.
Figure 17: Criteria Used to Determine Apparatus & Vehicle Condition
Evaluation Components Points Assignment Criteria
Age: One point for every year of chronological age, based on
in-service date.
Miles/Hours: One point for every 10,000 miles or 1,000 hours
Service:
1, 3, or 5 points are assigned based on the service type
received (e.g., a pumper would be given 5 points since it
is classified as severe duty service).
Condition:
This category considers body condition, interior condition,
accident history, anticipated repairs, and other relevant
factors. The better the condition, the fewer points are
assigned.
Reliability:
Points are assigned as 1, 3, or 5, depending on the
frequency a vehicle is in for repair (e.g., a 5 would be
assigned to a vehicle in the shop two or more times per
month on average; while a 1 would be assigned to a
vehicle in the shop on average of once every 3 months or
less.
Point Ranges Condition Rating Condition Description
Under 18 points Condition I Excellent
18–22 points Condition II Good
23–27 points Condition III Fair (consider replacement)
28 points or higher Condition IV Poor (immediate replacement)
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The following figure lists the inventory of FCFA's current response apparatus.
Figure 18: FCFA Fleet Inventory (2024)
Call
Sign
Apparatus
Type Manufacturer Year Condition Status Mileage Station Pump/Tank/Other2
6631 Utility Ford F250 2019 Excellent Frontline 37,635 2
6635 Utility Chevy 2500 2022 Excellent Frontline 15,632 1
6636 Utility Ford F350 2011 Poor Frontline 88,395 3
6637 Utility Chevy 3500 HD 2010 Poor Frontline 112,827 3
Escape SUV Ford Escape 2008 Fair Frontline 59,389 1
T6645 Truck Pierce/Arrow XT 2010 Fair Frontline 60,903 1 100' Platform, 1500
gpm/300 gal
T6647 Truck American
LaFrance/LTI 1999 Poor Reserve 135,641 3 100' Tiller
R6652 Type 2 US&R E-One/
International 1995 Poor Frontline 31,475 2 Bauer Compressor w/
SCBA Bottle Fill
E6661 Type 3
Engine
Pierce/
Freightliner 2022 Excellent Frontline 8,371 1 500 gpm/500 gal
E6662 Type 3
Engine
Hi-Tech/
International 2000 Poor Reserve 44,341 3 500 gpm/500 gal
E6691 Type 1
Engine Pierce/Arrow XT 2007 Poor Reserve 103,181 3 1500 gpm/500 gal
E6692 Type 1
Engine Pierce/Arrow XT 2017 Good Frontline 57,635 2 1500 gpm/500 gal
E6693 Type 1
Engine Pierce/Arrow XT 2018 Good Frontline 47,805 1 1500 gpm/500 gal
The DLA/DRMO Firefighter Property Program (FFP) is one of the Department of Defense's (DoD) special programs that
allows firefighters to obtain excess DoD property for use in firefighting and emergency services. Certain property obtained
from this program passes ownership after it has been in use for a specified period of time. This program is managed by the
Forest Service, in cooperation with state forestry agencies.
Fleet Maintenance
FCFA's fleet maintenance program employs a dual-partner strategy to effectively balance
certification standards with local responsiveness. South Coast Fire Equipment ReNewell
Fleet, based in Corona, CA, with a satellite facility in Paso Robles, CA, serves as the primary
EVT-certified provider. Despite their physical distance from the Central Coast, the company
leverages established relationships with multiple agencies in the region to deliver both
service and warranty repairs in full compliance with state safety and emissions regulations.
This regional coordination enables South Coast Fire Equipment ReNewell Fleet to plan
major maintenance proactively, batch EVT-certified tasks by geography, and maintain
consistent quality through standardized work orders and regular audits.
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Routine inspections and urgent repairs are predominantly managed by California Diesel
and RV in Oceano. Although not EVT-certified, Central Coast Diesel's close proximity
significantly reduces vehicle downtime and transportation costs. Their technicians conduct
preventative maintenance checks, DMV safety inspections, and provide emergency
roadside assistance. When maintenance needs exceed their certification, FCFA refers
service requests to South Coast ReNewell Fleet for EVT-level expertise.
This integrated system allows routine and compliance-related tasks to be completed
efficiently and locally. At the same time, specialized repairs are handled by EVT-certified
professionals.
The following figure lists the inventory of FCFA's current administrative, command, and
specialized vehicles.
Figure 19: FCFA Administrative, Command, and Specialized Vehicles Inventory (2024)
Call
Sign Assigned To Manufacturer Year Condition Status Mileage Station
C6600 Fire Chief Chevy Tahoe 2021 Excellent Frontline 35,070 1
Battalion On Duty BC Chevy 2500 HD 2024 Excellent Frontline 998 1
Battalion On Duty BC Ford F250 2018 Excellent Reserve 36,213 1
6620 Arson
Investigator Ford F150 2007 Poor Frontline 247,114 1
6634
Strike
Team/Task
Force Leader
Chevy 1500 2024 Excellent Frontline 15,632 1
UTV1 - Polaris Ranger
1000NA 2020 Excellent 75.3
hours 2
UTV2 - Kawasaki
KFF750N 2012 Poor 227
hours 3
UTV3 - Kawasaki
KFF750N 2012 Poor 468
hours 3
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Capital Medical Equipment
FCFA's operational readiness extends beyond facilities and fleet assets to include critical
medical devices. Semi-automatic defibrillators are essential for responding to cardiac
emergencies. The Authority maintains ten semi-automatic defibrillators. Defibrillators can
range in price from $1,500 for a basic automatic external defibrillator (AED) to $22,000 for
an ALS monitor defibrillator. Planned replacement in five to seven years ensures devices
remain technologically current and clinically reliable.
Most consumable medical items that require continuous replenishment are replaced on
the scene by San Luis Ambulance.
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SECTION II:
Community Risk Assessment
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COMMUNITY OVERVIEW
Risk factors influence the types of services a community provides. Identification of hazards
is the process of recognizing the natural and human-caused events that threaten a
community. Every community must prepare for and respond to various events, including
natural disasters such as earthquakes, pandemics, and wildfires. Additionally, the degree
to which a community exhibits certain social conditions, such as poverty levels, vehicle
access, or the number of individuals in a household, may impact the community’s ability to
prevent suffering and financial loss in the event of a disaster. These factors describe
community risk.
A community’s risk assessment is based on numerous factors, including socioeconomic
status, household composition, minority status and language, population density, housing
types, local land use and development, and the geography and natural hazards present
throughout the community. These factors influence the number and type of resources—
personnel and equipment—required to control or mitigate an emergency. The
community’s risk assessment provides relevant information to help public officials and
agencies better prepare their communities to respond to emergency events and facilitate
faster recovery.
Population & Demographics
According to data obtained from the Environmental Systems Research Institute, Inc. (ESRI),
the service area has experienced a decline in population since 2020. The data reveals that
the population within FCFA's response jurisdiction decreased slightly from 37,805 residents in
2010 to 37,712 residents in 2023.
The following figure illustrates this population trend in FCFA's service area from 2010 to 2023.
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Figure 20: FCFA Population Estimates
At-Risk Populations and Their Impact on Emergency Services
Specific demographic groups within communities require special consideration in
emergency planning due to their heightened vulnerability. According to the United States
Fire Administration's National Fire Data Center, certain populations face significantly higher
risks of fire-related injuries and fatalities. These at-risk populations experience higher rates of
emergency incidents and often require more resource-intensive responses, creating
additional service demands for emergency organizations.
Identified High-Risk Demographic Groups
The National Fire Data Center's comprehensive "Fire Risk in 2019" study identified several
demographic categories at substantially higher risk:
• Young Children (Under 5 Years): Limited mobility, inability to respond appropriately
to emergency situations, and dependence on caregivers place this group at
elevated risk. Young children may be unable to self-evacuate during fires and often
require specialized rescue techniques.
• Older Adults (Over 55 Years): Age-related factors, including reduced mobility, slower
reaction times, and a higher prevalence of medical conditions, contribute to
increased vulnerability. This demographic often requires more complex EMS
interventions and evacuation assistance.
37,805
38,042
38,400
37,712
37,200
37,400
37,600
37,800
38,000
38,200
38,400
38,600
2010 2015 2020 2023
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• Elderly Adults (Over 85 Years): This subset faces the highest fire mortality risk of any
age group, with fatality rates approximately four times the national average. Factors
include living alone, the effects of medication, cognitive impairments, and physical
limitations.
• Gender-Based Disparities: Statistical analysis reveals gender-specific risk patterns,
with males and females showing different vulnerability profiles across age groups
and incident types.
Local Demographic Analysis
The 2023 U.S. Census American Community Survey five-year estimates provide critical
insights into the prevalence of these high-risk groups within the service area. This
demographic data enables more precise resource allocation and targeted prevention
strategies to address the specific needs of vulnerable populations that require emergency
medical services and fire protection.
Age
Age significantly impacts fire safety risk, with both the very young and elderly facing
elevated dangers. Understanding these demographic vulnerabilities helps inform targeted
prevention strategies and resource allocation.
Elderly Population Risks
Adults over 65 face substantially higher fire-related mortality rates—2.6 times greater than
the national average. This elevated risk stems from multiple factors. Decreased mobility
often limits their ability to escape during emergencies. At the same time, a higher
prevalence of cognitive impairments can affect their emergency response. Elderly
individuals are also more likely to live alone, which increases their vulnerability in the event
of a fire. Their greater susceptibility to smoke inhalation injuries due to respiratory
vulnerabilities compounds the danger, as does their higher rates of medication usage that
may affect alertness or decision-making. These age-related vulnerabilities directly translate
to increased service demands for emergency responders, particularly for medical
interventions requiring specialized geriatric care protocols.
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Child Safety Considerations
Children under five represent another vulnerable demographic for several interconnected
reasons. Their developmental limitations in recognizing danger put them at significant risk,
as does their inability to self-evacuate without assistance. Young children typically have a
limited understanding of emergency procedures and often hide during frightening
situations rather than attempting to escape. Their greater vulnerability to smoke inhalation,
due to the development of their respiratory systems, further increases the dangers they
face during fire incidents.
Recent Progress in Child Safety
Encouragingly, the U.S. Fire Administration's 2018 data indicate a 30% reduction in fire-
related mortality risk for children under five over the preceding decade. This improvement
is attributed to several successful initiatives. Enhanced fire prevention education programs
targeting families with young children have been particularly effective, alongside
increased smoke alarm installation in homes with children. Implementing school-based fire
safety curricula has helped educate children about proper emergency responses.
Improved building codes and materials in residential structures have created safer living
environments. At the same time, more effective public awareness campaigns about
household fire hazards have increased preventative behaviors among caregivers. These
targeted approaches demonstrate that evidence-based prevention strategies can
significantly mitigate age-related fire risks despite inherent vulnerabilities.
The percentage of children under five in FCFA is 5%, which is similar to the state. Adults over
65 make up 24% of the population, which is less than the state average of 17%. Those aged
85 and older comprise 2.4%, which is lower than the state's rate of 1.9%. The following figure
shows the percentage of children under five years and 65 years and older.
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Figure 21: Age Risks
Gender Disparities
Demographic data reveal significant gender differences in fire-related casualties, despite
the relatively balanced distribution of the U.S. population. According to the U.S. Census
Bureau, females constitute approximately 51% of the population. Yet, fire incident statistics
from 2015-2019 demonstrate a disproportionate impact on males, who account for 57% of
fire deaths and 55% of fire injuries. This translates to males being 1.3 times more likely than
females to suffer fire-related casualties. Fire department reporting indicates alcohol
impairment was present in 12% of male fire victims compared to only 6% of female
victims—double the rate. This suggests that alcohol consumption may significantly
contribute to the higher male casualty rates by impairing judgment, reaction time, and
evacuation capabilities during fire emergencies.
Age-Specific Risk Patterns
Age intersects with gender to create specific risk profiles:
• Middle-aged males demonstrate higher mortality rates in intentionally set fires, which
may reflect behavioral patterns, occupational exposures, or other social factors.
• Elderly females (75 and older) are more susceptible to cooking-related fire injuries
than their male counterparts. This likely reflects gender-based differences in
household activity patterns and age-related physical limitations.
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Detailed age data reveal that the gender distribution of fire casualties varies significantly
across different age groups. These patterns underscore the importance of developing
targeted prevention strategies that focus on specific risk factors for distinct demographic
groups. This analysis highlights the importance of fire safety education and prevention
programs that are tailored to address gender-specific risks at all life stages.
Additional Demographics
The following demographic data provide additional information about people living in the
FCFA district. Although these individuals do not fall within the NFPA high-risk populations,
they can still affect the community's risk. The demographic information is drawn from data
provided by the American Community Survey (2019–2023), Esri (2025), and AGS (2024).
Disabilities
FCFA shows a higher prevalence of residents with disabilities, with 5,038 households, or 32%
compared to California's statewide average of 11.3%. This 20% difference represents a
significant portion of the community that requires specialized emergency response
considerations and accessible services.
The higher-than-average disability rate in FCFA may reflect several demographic factors,
including an aging population (as disability rates typically increase with age), the
community's role as a retirement destination, or local industries that could contribute to
higher rates of work-related disabilities. Individuals with disabilities face unique
vulnerabilities during emergencies that require specialized response approaches. Physical
disabilities may prevent or significantly slow self-evacuation from buildings during fires,
natural disasters, or other emergencies. Mobility impairments, as well as visual or hearing
impairments, and cognitive disabilities, each present distinct evacuation challenges that
require different assistance methods. Some residents may rely on elevators for mobility,
creating particular risks during fires when elevator use becomes dangerous.
Language Barriers
Approximately 7.4% of residents over the age of five in Arroyo Grande and 28.1% in Grover
Beach speak a language other than English at home, which is notably lower than
California's statewide average of 44.1%. Although the community's percentage is lower
than the state's, it still indicates that more than one in four residents may face language
barriers during emergencies. This significant population segment presents essential
considerations for emergency response and fire prevention efforts, as effective
communication can be the difference between life and death during critical incidents.
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During active fire incidents, first responders often struggle to quickly gather critical
information about trapped occupants, medical conditions, or hazardous materials. Clear
communication regarding evacuation routes, medical treatment procedures, or safety
instructions becomes significantly more difficult when language barriers are present.
Limited English proficiency (LEP) often correlates with a lack of familiarity with standard
American fire safety technologies and practices. Many LEP residents may come from
countries with different housing construction standards, fire safety technologies, or
emergency response systems.
While smoke alarm technology may seem straightforward, it encompasses several
concepts that may be unfamiliar, including the importance of regular battery
replacement, proper placement throughout the home, testing procedures, and
appropriate responses when alarms activate. LEP residents may not fully understand these
life-saving systems without clear communication in their primary language. Many LEP
residents may also be unfamiliar with American emergency services systems, including
when and how to call 911, what information to provide, or what to expect from responding
personnel.
Poverty & Income
Low wages and inadequate income create cascading challenges throughout
communities, significantly elevating the risks of fires and medical emergencies. When
individuals and families struggle to meet basic necessities like housing, food, and
healthcare, they often face impossible choices that compromise safety and health
outcomes. People living below the poverty level are considered at the highest risk,
especially when combined with other factors such as education levels, disabilities, or the
inability to work. Low incomes affect families with children, lead to lower educational
scores, and contribute to mental health issues. The COVID-19 pandemic has had a
profoundly adverse impact on these families due to school closures and the unavailability
of childcare. Low income can lead to more significant mental health challenges in the
community. A report from the World Economic Forum states that depression and anxiety
are nearly three times as likely in people with low incomes.
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These economic disparities directly lead to increased demand for emergency services, as
residents in poverty more often encounter preventable emergencies due to deferred
maintenance, unsafe living conditions, untreated medical issues, and the inability to afford
preventive care. Recognizing these economic vulnerabilities allows for more targeted
community risk reduction efforts. It helps emergency services anticipate higher call volumes
in economically disadvantaged neighborhoods.
In the FCFA, 10% of the population lives in poverty, which is lower than the state rate of
12%. The higher poverty levels correspond to lower incomes, and the community’s median
household income of $89,964 is lower than the state's median household income of
$96,334.
Persons without Health Insurance
Populations without adequate healthcare access create significant strain on emergency
medical services while experiencing elevated rates of preventable medical incidents. The
lack of health insurance disproportionately affects lower-income residents who cannot
afford routine medical visits, prescription medications, or preventive care services. When
treatable conditions go unaddressed due to cost barriers, they often escalate into acute
medical emergencies requiring expensive emergency interventions.
Figure 22: Population without Health Insurance
The FCFA has 5.9% of its residents lacking
health insurance, compared to
California's statewide average of 6.4%.
This represents uninsured residents who
may delay seeking medical care until
conditions become critical, directly
increasing demand on emergency
medical services and reducing the system's capacity to handle other emergencies
efficiently. The figure provides the percentage of people without health insurance by age
groups.
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Education Levels
While educational attainment may not be classified among primary at-risk populations, it
remains an essential factor in developing comprehensive fire and life safety education
programs. Educational levels directly correlate with economic outcomes, as U.S. Bureau of
Labor Statistics data indicates that individuals with only a high school diploma earned a
median weekly income of $899 in 2023, 40% less than those with bachelor's degrees, who
earned $1,493. This income disparity impacts residents' ability to invest in safety measures,
maintain safe housing conditions, and access resources that mitigate emergency risks.
FCFA’s district has mixed educational
achievement patterns, and 22% have
completed only high school (slightly
above the state average). However,
36% of residents hold bachelor's
degrees or higher, which is similar to
the state's rate of 36.5%. This
educational profile suggests that a portion of the community may benefit from tailored
safety education approaches that consider varying literacy levels and learning
preferences. The lower rate of higher education completion may correlate with the
economic challenges previously identified in the community's poverty and income
statistics.
Race and Ethnicity
Race and ethnicity are related yet distinct concepts used to categorize individuals based
on various aspects of identity. Race typically refers to a person's association with a broad
social group defined by physical traits, such as skin color, often shaped by societal
perceptions. Examples include classifications such as White, Black, African American, or
Asian. Ethnicity, on the other hand, is connected to cultural factors such as nationality,
language, religion, and traditions. It helps identify individuals within specific cultural or
ancestral backgrounds, such as Hispanic, Jewish, or Irish. While race is often viewed as a
more rigid classification, ethnicity tends to be more fluid, allowing people to identify with
multiple ethnic backgrounds and cultural influences.
Figure 23: Education
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The following figure illustrates the representation of race and ethnicity in FCFA compared
to the state.
Figure 24: Race and Ethnicity
Race and Ethnicity FCFA California
White alone 63.0% 70.4%
Black or African American alone 0.7% 6.5%
American Indian & Alaskan Native alone 0.1% 1.7%
Asian alone 2.6% 16.5%
Native Hawaiian & Other Pacific Islander alone 0.1% 0.5%
Two or more races 4.5% 4.3%
Hispanic or Latino (of any race) 28.6% 40.4%
* White alone, not Hispanic or Latino, are individuals who responded “No, not Spanish/Hispanic/Latino”
and who reported “White” as their only entry in the race question. Data for this table were sourced directly
from the U.S. Census QuickFacts page.
Housing Characteristics
Vacant housing units in a community, such as those in FCFA, can pose several challenges
related to safety and infrastructure. If not adequately secured, these structures may
become entry points for unauthorized individuals, increasing risks for both residents and
emergency responders. Insufficient maintenance can lead to structural deterioration,
making buildings more susceptible to fires or other emergencies. Vandalism and neglect
can further complicate situations for law enforcement and fire departments, creating
hazardous conditions that require additional resources.
Fire safety is a critical concern. Data from the NFPA shows that most (79%) fire-related
fatalities occur in one or two-family dwellings or apartments (multifamily dwellings), but
these account for only 24% of the fires.6 This highlights the importance of maintaining
housing structures in a safe, secure, and well-maintained condition to minimize risks to the
community.
6 NFPA Research, Fire Loss in the United States During 2023.
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Housing Ownership
Homeownership in Arroyo Grande is 62.3%, while in Grover Beach it is 55.4%, as compared
to the statewide average of 55.8%. This indicates a larger share of FCFA residents own their
homes compared to the rest of California. The housing market in the FCFA district remains
competitive, with homes receiving multiple offers and selling relatively quickly. The median
sale price of homes in the FCFA district reached $793,940, reflecting a slight decrease from
the previous year. Understanding these trends provides insights into housing affordability
and accessibility in the region.
Age of Housing
As buildings age, maintenance costs tend to rise due to wear and tear on structural
components. Homes built before 1980, which make up about 50% of the housing stock,
were constructed before the widespread enforcement of modern smoke alarm installation
requirements. Before 1989, single-station, battery-powered smoke alarms were generally
required in homes, but interconnected, hardwired alarms became mandatory in new
constructions starting that year.
Introducing these regulations has
greatly improved fire safety, as smoke
alarms provide early warnings that
reduce fire-related deaths. Current
building codes require smoke alarms
in every bedroom, hallway, and floor
of new residential buildings to ensure
better protection. Upgrading older
homes with modern smoke alarms is
crucial for maintaining safety standards and lowering fire risks.
Figure 25: Year Structures Built
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Housing Units
FCFA has a notably high percentage
of residents living in one- or two-
family dwellings, with approximately
70% of the population residing in
such housing, compared to the
statewide average of 67%. This
suggests a strong presence of
homeownership in the district. In
contrast, the percentage of buildings
with 20 or more units is significantly lower, at just 3%, compared to the state average of
13%. This indicates that the FCFA district has fewer large apartment complexes and a
housing landscape that favors single-family homes. Understanding these housing trends
can provide insight into the cities’ residential patterns and the availability of various
housing options.
Figure 26: Housing Units
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ALL-HAZARDS COMMUNITY RISK ASSESSMENT
Environmental Hazards
All communities face ongoing threats from various physical hazards that can strike at any
time during the year. These hazards include a broad spectrum of natural disasters and
environmental challenges, such as devastating wildfires that can quickly consume large
areas of vegetation and structures, powerful earthquakes that can cause severe structural
damage and ground instability, severe flooding resulting from heavy rainfall or storm
systems that can overwhelm drainage systems and flood residential and commercial
areas, and prolonged droughts that can lead to water shortages and increased fire
danger due to dried vegetation. To manage these complex threats, comprehensive
mitigation plans are essential, offering public safety officials and emergency responders
the vital information needed to understand the specific risks in their communities and
develop effective strategies to prepare for, respond to, and recover from these potentially
catastrophic events.
Weather Conditions
The climate patterns and weather systems impacting FCFA present year-round challenges
that can significantly affect emergency response capabilities and community safety.
Throughout all seasons, weather conditions create varying levels of operational complexity
for first responders, whether they are dealing with intense thunderstorms that bring heavy
rainfall, lightning strikes, and strong winds, or other meteorological events such as heat
waves, fog, or seasonal wind patterns. Regardless of the specific weather event or its
severity, the fire department remains committed to responding promptly and effectively
whenever the community needs emergency services. They adjust their response protocols
and equipment deployment strategies to suit the prevailing conditions, ensuring the safety
of both responders and the general public.
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Temperature
FCFA’s district experiences a classic Mediterranean climate, characterized by warm, dry
summers and mild, wet winters. Throughout the year, temperatures typically range from
lows around 42°F in winter to highs near 76°F in late summer. The hottest month is usually
September, with average highs reaching approximately 79.5°F. In contrast, December is
the coldest, averaging highs around 61°F and lows near 42°F.7
Rainfall is seasonal, with the majority of precipitation occurring between November and
April. February and March are the wettest months, each averaging around 3 inches of rain.
The summer months, especially July and August, are nearly rainless. Snow is virtually
nonexistent, and foggy mornings are common in winter due to the coastal influence.
Sunshine is abundant, with Arroyo Grande averaging about 286 sunny days per year. The
clearest skies are typically seen from May through October, making late spring to early fall
the most pleasant time for outdoor activities.
Figure 27: Average Temperatures
7 https://weatherspark.com/y/1273/Average-Weather-in-Arroyo-Grande-California-United-States-Year-Round.
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Heat Index
High temperatures can significantly impact fireground operations, especially when
combined with high humidity levels. The combination of heat and humidity raises the heat
index, making it feel much hotter than the actual air temperature. This increases the
physical strain on firefighters, who are already burdened by heavy protective gear and
demanding physical activity. As a result, the risk of heat-related illnesses—such as heat
exhaustion or heat stroke increases sharply. To reduce these risks, structured rehab
protocols are essential. These include rotating crews more often, ensuring proper hydration,
providing shaded or cooled rest areas, and monitoring vital signs. Without proper rehab,
firefighter performance, safety, and decision-making can be severely affected.
The following figure shows the National Weather Service's Heat Index chart.
Figure 28: National Weather Service Heat Index Chart
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Precipitation
A drought can have widespread effects on a community, especially regarding water
supply and fire danger. When rainfall is limited over an extended period, groundwater
levels can drop substantially, reducing the natural recharge of aquifers and impacting the
efficiency of aquifer filters. This is particularly concerning in areas where wells are the
primary source of drinking water, as prolonged drought conditions can lead to water
shortages, lower water quality, and increase the need for water conservation efforts.
Beyond water supply problems, droughts can cause serious secondary effects, especially
during wildfire season. As vegetation dries out due to a lack of moisture, it becomes highly
flammable, increasing the likelihood and intensity of wildfires. These dry conditions can turn
even small sparks into fast-moving, destructive fires that threaten homes, infrastructure, and
natural habitats. The longer extended droughts last, the greater these risks become,
making it harder for communities to recover and prepare for future fires. In this way,
droughts not only strain essential resources but also increase a region's overall vulnerability
to environmental hazards.
The following figure illustrates the average precipitation.
Figure 29: Average Precipitation
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A drought time series chart is essential because it visually tracks changes in drought
conditions over time, helping communities, emergency managers, and policymakers
understand long-term trends and patterns. By analyzing this data, decision-makers can
determine the onset, duration, and severity of droughts, which is vital for managing water
resources, planning for agricultural impacts, and preparing for increased wildfire risk. For fire
departments, such as those in drought-prone areas like FCFA, this information enables
proactive planning and resource allocation during periods of heightened fire danger. The
following figure shows the drought conditions in FCFA from January 2011 to July 2025.
Figure 30: Drought Conditions (2011 to 2025) 8
The following figure shows the current drought conditions in San Luis Obispo County and
California.
8 U.S. Drought Monitor.
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Figure 31: Drought Conditions – San Luis Obispo County and California
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Prevailing Winds
Understanding prevailing winds is crucial for firefighters in the FCFA region due to the
region's complex terrain and the frequency of wildfires. Winds significantly impact the
direction, speed, and intensity of wildfires, often determining how quickly a fire spreads and
which areas are most vulnerable. In FCFA, wind patterns can change rapidly, especially in
mountainous regions, leading to unpredictable fire behavior that makes suppression efforts
more difficult. The following figure shows the prevailing winds from the Oceano County
National Weather Service between July 2018 and April 2023.
Figure 32: Prevailing Winds9
9 https://mesonet.agron.iastate.edu/sites/windrose.phtml?station=L52&network=CA_ASOS.
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Wind
These environmental conditions increase operational risks and require ongoing monitoring
and adjustment. Firefighters must adjust their tactics based on real-time weather data, and
command staff must incorporate these factors into their risk management plans to protect
both public safety and the health of firefighters. The U.S. Fire Administration emphasizes that
incorporating weather awareness into operational planning is a crucial component of
effective risk management in the fire service.10
Winds significantly influence the climate and environment of FCFA due to its location along
the Central Coast. During the windier months, which span from late fall to early summer,
average wind speeds exceed 4.3 mph, contributing to cooler temperatures and increased
cloud cover. These coastal breezes, often coming from the Pacific Ocean, help moderate
the climate year-round, bringing in marine layers and fog that are common in the
mornings. This not only affects visibility but also plays a role in shaping the local ecosystem
by supporting hardy coastal vegetation and maintaining generally good air quality
through the dispersion of pollutants. In contrast, the late summer and early fall months tend
to be calmer, allowing for more stable weather conditions. Overall, wind is a key factor in
the area's Mediterranean climate, influencing everything from daily weather patterns to
long-term environmental characteristics.
The following figure shows the average monthly wind speeds.
Figure 33: Average Monthly Wind Speeds
10 https://www.usfa.fema.gov/downloads/pdf/publications/risk_management_practices.pdf.
4.3 4.8 4.9 4.7 4.9
4.1 3.7 3.2 3.0 3.0 3.4 3.8
0.0
1.0
2.0
3.0
4.0
5.0
6.0
Jan Feb Mar Apr May Jun Jul Aug Sep Oct Nov Dec
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Natural Hazards
Natural hazards are events or phenomena that occur naturally and can potentially cause
harm to people, property, and the environment. These hazards originate from Earth's
natural processes and can happen suddenly or gradually. Examples include earthquakes,
floods, wildfires, droughts, tsunamis, and landslides.
Natural hazards can vary in strength and duration, and their effects often depend on the
vulnerability and preparedness of the affected community. While they cannot be stopped,
understanding natural hazards and applying risk reduction methods—such as early
warning systems, land-use planning, and emergency preparedness—can significantly
lessen their impact.
Wildland Fires
As of 2024, California has updated its defensible space requirements to strengthen wildfire
protection around homes and structures, particularly in Very High Fire Hazard Severity Zones
(VHFHSZ). These requirements are enforced under Public Resources Code Section 4291 and
Government Code Section 51182, emphasizing a three-zone approach to managing
vegetation and combustible materials around buildings.11
• Zone 0 – The Ember-Resistant Zone includes the first 0 to 5 feet from any structure. This
zone must be kept entirely free of combustible materials, including mulch, dead
vegetation, wood piles, and flammable outdoor furniture. The goal is to prevent
embers—often the leading cause of home ignition—from finding fuel near the
structure.
• Zone 1 – Extends from 5 to 30 feet and must be kept “lean, clean, and green.” This
means removing dead plants, trimming trees, spacing vegetation to prevent fire
spread, and maintaining lawns and ground cover. Combustible materials, such as
wood fencing attached to the home, should be replaced with non-combustible
alternatives.
• Zone 2 – Extends from 30 to 100 feet (or to the property line) and emphasizes
reducing fuel loads by thinning vegetation, removing dead or dying plants, and
spacing trees and shrubs to prevent fire from spreading vertically and horizontally.
The level of fuel management becomes more intensive closer to home.
11 https://www.fire.ca.gov/dspace.
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These updated standards are part of California’s broader wildfire mitigation strategy. They
are enforced through defensible space inspections, especially in State Responsibility Areas
(SRAs). Local jurisdictions may adopt stricter rules; therefore, residents are encouraged to
check with their local fire department for any additional requirements.
The San Luis Obispo County Local Hazard Mitigation Plan (SLOLHMP) outlines wildfire
mitigation and prevention strategies for both Arroyo Grande and Grover Beach, with each
city tailoring its approach to its specific risks and resources.
In Arroyo Grande, wildfire risk is considered significant. The City is designated by CAL FIRE as
being at increased risk due to its geography and past fire events, such as the 1985 Los
Pilitas Fire and the 2025 Gifford Fire, which will be discussed further in the report. The new
CAL FIRE fire severity maps expanded the area designated as a moderate or high-severity
zone. Some of the properties in these areas exceed $3 million in valuation. Although no
critical facilities are located in these zones, the City has taken proactive steps. It has
conducted fuel reduction projects and is working with FCFA, the County, and the FireSafe
Council to develop a city-specific Community Wildfire Protection Plan (CWPP). The City
also enforces building codes that eliminate wood shake roofs and require fire sprinkler
systems in new structures. Additionally, it promotes defensible space around buildings in the
Wildland Urban Interface (WUI).
Grover Beach has implemented a comprehensive fire mitigation strategy focused on
education, enforcement, and vegetation management. The City encourages maintaining
a 100-foot defensible space around structures in the WUI. It continues to operate its weed
abatement program to reduce fire risk in open spaces and enforces building codes that
prohibit wood shake roofs and mandate the installation of fire sprinkler systems in all new
buildings.
The 1985 Las Pilitas Fire began near Santa Margarita Lake and burned about 75,000 acres,
causing major disruptions, including US 101 closures, significant financial losses for local
agencies, and environmental restoration costs, though it never reached Arroyo Grande
directly. In contrast, the 2025 Gifford Fire grew into a massive blaze exceeding 130,000
acres, threatening thousands of structures in San Luis Obispo County, prompting
evacuation warnings near Arroyo Grande, closing key roads, and blanketing the area in
smoke. While Las Pilitas primarily affected Arroyo Grande through economic and logistical
ripple effects, the Gifford Fire posed an immediate danger to residents and infrastructure,
requiring active community response and emergency measures.
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The following figure shows the location of the new State Responsibility Area and Local
Responsibility Area fire hazard severity zones.
Figure 34: Fire Hazard Severity Zones
Flooding
Flood risk in Grover Beach and Arroyo Grande is primarily linked to the potential failure of
the Lopez Dam, a high-hazard earthen dam situated upstream of both towns. If the dam
were to give way, floodwaters would flow down Arroyo Grande Creek, flooding large parts
of both communities. In Grover Beach, about 2,392 properties and 5,319 residents could be
affected, with estimated property damages exceeding $635 million. Arroyo Grande faces
an even greater threat, with 3,565 parcels and 8,273 residents at risk, and potential
property losses exceeding $1 billion.
The floodwaters would move through rural areas below the dam before reaching Arroyo
Grande, Grover Beach, and Oceano. The impact would be worse in Arroyo Grande
because it is located near the dam. At the same time, Grover Beach would experience
flooding in low-lying areas south of Grand Avenue and west of Highway 1. Critical
infrastructure is also at risk, including Highway 101, which could become impassable,
disrupting regional transportation and emergency response. In Grover Beach, the Train
Station and Front Street Sanitary Sewer Lift Station are among the facilities at risk.
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Beyond dam failure, Arroyo Grande is also vulnerable to flooding from 100-year and 500-
year storm events. The City has seen total flood-related damages exceeding $400,000, and
it has multiple properties with repeated and severe flood losses. Although no critical
facilities are within the 100-year floodplain, several that serve vulnerable populations lie
within the 500-year floodplain, which increases the potential impact of a significant flood.
Overall, the district faces significant geographic risk of flooding, with a low likelihood but
potentially devastating effects. The flood risk in Grover Beach and Arroyo Grande is rated
as medium due to the potential extent of damage and the number of people affected.
Climate change is likely to worsen flooding risks due to changes in rainfall patterns and
more severe storms. Development trends in residential areas may raise the danger if not
properly managed, especially in flood-prone zones. While FCFA’s energy infrastructure is
generally considered resilient to flooding, there is recognition that natural gas pipelines
crossing floodplains must comply with current standards to prevent failures.
Overall, flooding poses a significant and complex hazard for FCFA, affecting people,
infrastructure, the environment, and the economy.
There are areas in FCFA classified as regulated waterways by the Federal Emergency
Management Agency; the City has the following flood zones:
• An area classified as "A" zone is exposed to a 1-percent chance of a flood event.
Still, it does not have a "…detailed hydraulic analysis."
• The AE designation is considered "areas subject to inundation by the 1-percent-
annual-chance flood event determined by detailed methods”. It is further defined
as a 26% chance of a flood occurring in 30 years.
• Zone "X" is a "moderate risk area within the 0.2-percent annual chance floodplain.
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The following figure shows the areas in FCFA at risk of flooding.
Figure 35: FCFA Flood Zones
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Earthquakes
In Arroyo Grande, the City has experienced several earthquakes in the past, with
magnitudes ranging from 5.0 to 6.2. Two faults are mapped in the town: the potentially
active Wilmar Avenue fault and the inactive Pismo fault. The downtown business district is
particularly vulnerable to fault rupture due to the presence of many unreinforced masonry
buildings, which are known to be unstable and prone to collapse during seismic events.
Losing these buildings could cause significant economic damage and reduce tax
revenue. Arroyo Grande’s previous City Hall is one such unreinforced masonry building,
and a magnitude 6.5 earthquake or stronger could destroy it, forcing the City to relocate
operations. The City is also at risk of liquefaction, with a significant portion of its soil classified
as having a moderate risk. Twenty-two critical facilities are located in areas at risk of
liquefaction, which could further hinder emergency response and recovery efforts.
Grover Beach’s hazard mitigation plan focuses on earthquakes. The City aims to mitigate
damage and losses from seismic activity by developing a comprehensive risk reduction
strategy, reviewing the safety of all structures and facilities, and making them disaster-
resistant. A group of department heads will be assembled to set priorities and identify
funding options to renovate existing city buildings. Additionally, the City intends to establish
disaster preparedness caches of supplies, tools, and equipment for city employees to
sustain operations during major emergencies. Although the SLOLHMP does not specify fault
lines within Grover Beach, the City’s proactive planning demonstrates an understanding of
regional seismic risks and the need for preparedness.
Critical lifeline systems such as highways, bridges, pipelines, railroads, and utilities may
experience considerable damage. Liquefaction, particularly in areas with soft soils, can
further destabilize structures and lead to landslides. Older or poorly constructed facilities
face a higher risk of roof collapse, and fires can result from ruptured gas lines, leading to
cascading disasters that challenge emergency response efforts.
Liquefaction
In Arroyo Grande, much of the city has soils classified as having a moderate risk for
liquefaction. A GIS analysis conducted during the hazard mitigation planning process
identified twenty-two critical facilities located in areas susceptible to liquefaction. The
vulnerability assessment includes a detailed breakdown of property types at risk, showing
that residential properties, including multi-family and mobile homes, make up a significant
portion of the exposure. The total improved value of parcels at moderate liquefaction risk
in Arroyo Grande is estimated at over $917 million.
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Grover Beach also faces liquefaction hazards, especially in its residential neighborhoods.
The analysis indicates that 4,243 residential properties are at risk, including mobile and
manufactured homes, which are especially vulnerable. The combined value of these
residential properties is approximately $747 million. The City’s mitigation plan includes a
map that highlights specific risk areas, and the data show that residential properties are
more exposed to liquefaction than other types, such as commercial or industrial properties.
The following figure shows the locations of historic earthquake faults.
Figure 36: Historic Earthquake Faults
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CRITICAL INFRASTRUCTURE
Critical infrastructure and key resources (CIKR) refer to the elements that are crucial for a
community to function in a modern economy. Critical infrastructure is defined as a sector
“whose assets, systems, and networks, whether physical or virtual, are considered so vital to
the United States that their incapacitation or destruction would have a debilitating effect
on security, national economic security, national public health or safety, or any
combination thereof.” There are sixteen defined Critical Infrastructure Sectors (CIS):12
• Chemical Sector
• Commercial Facilities Sector
• Communications Sector
• Critical Manufacturing
Sector
• Dams Sector
• Defense Industrial Base
Sector
• Emergency Services Sector
• Energy Sector
• Financial Services Sector
• Food and Agriculture Sector
• Government Facilities Sector
• Healthcare and Public Health Sector
• Information Technology Sector
• Nuclear Reactors, Materials, and Waste Sector
• Transportation Systems Sector
• Water and Wastewater Systems Sector
Not all these sectors may be in the FCFA district; each community must determine critical
infrastructure locations and develop pre-incident plans for responding personnel.
Other buildings to consider as potential target hazards include occupancies with a high risk
of significant loss of life, such as places of public assembly, schools, childcare centers,
medical and residential care facilities, and multi-family dwellings. Other considerations
include buildings with substantial value to the community—economic loss, replacement
cost, or historical significance—that, if damaged or destroyed, would have a significant
negative impact.
12 Infrastructure Security, Department of Homeland Security.
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Target Hazards
A target hazard is a location or facility that poses a risk to the community. The CIKR
provides a list of sectors that are critical to a community. Target hazards also include high-
value buildings and historic or cultural sites. Identifying these locations enables a fire
department to prepare for potential emergencies and ensure it has the appropriate
resources and strategies to prevent, respond to, and mitigate risks.
Hazardous Materials
Events that occur without warning or that are unknown and suddenly appear are
considered technological hazards. Examples include industrial accidents or the release of
hazardous chemicals. Each community should develop contingency plans tailored to the
specific risks within its jurisdiction. This may consist of permitting, periodic fire and life safety
inspections, and pre-incident planning. These activities are designed to reduce risks and
provide on-site visits for fire department personnel.
Facilities that store or produce hazardous materials require special precautions during an
emergency to protect both responders and the surrounding community. Locations with
hazardous materials on-site for any time during the year exceeding the limits established by
the Environmental Protection Agency are required to file Tier II reports. These reports are
provided to local jurisdictions, local emergency planning committees, and the State’s
Emergency Response Commission as required by the Emergency Planning and Community
Right-to-Know Act of 1986, also known as SARA Title III. These thresholds require submission:
• Ten thousand pounds for hazardous chemicals
• The lesser of 500 pounds or the threshold planning quantity for extremely hazardous
chemicals
• California requires additional reporting quantities through a five-tier system that
authorizes the treatment and storage of hazardous waste.
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Highways & Roads
Emergency personnel need a transportation system to respond effectively to incidents.
Without an interconnected network of roads and streets, response times can be delayed.
Interconnectivity provides multiple access points to a location if one route is blocked.
In Arroyo Grande, the primary highways and major streets include U.S. Route 101, which
runs north-south and serves as the main regional connector. Another significant route is El
Camino Real, which parallels U.S. 101 and serves as a local arterial. East Grand Avenue is a
central east-west corridor that connects the downtown area to Grover Beach and other
nearby communities. Other notable streets include Brisco Road, James Way, Oak Park
Boulevard, and Huasna Road, which provide access to residential neighborhoods,
commercial zones, and rural areas.
In Grover Beach, West Grand Avenue is the main thoroughfare, running east-west and
connecting the beach area to U.S. Route 101. Oak Park Boulevard and South 4th Street are
also key north-south routes that facilitate movement through the city and into neighboring
areas. Farroll Road, Atlantic City Avenue, and Longbranch Avenue are important local
streets that support residential and commercial traffic. Additionally, Cabrillo Highway
(California State Route 1) runs along the coast. It intersects Grand Avenue near the beach,
serving as a scenic and functional route for both locals and visitors.
The following figure provides the traffic counts at various intersections in FCFA.
Figure 37: Traffic Count13
Location Average Annual Daily Traffic—Vehicles
Hwy 1 north of Truman Dr 10,800
Hwy 1 at S Halcyon Rd 11,000
U.S. Hwy 101 at Grand Ave 64,000
Hwy 1 at W Grand Ave 12,600
13 Caltrans GIS Data, Annual Average Daily Traffic.
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The following figures show the street and highway network in FCFA.
Figure 38: Streets and Highways in FCFA
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Water and Wastewater
In Grover Beach, water and wastewater services are provided directly by the City of
Grover Beach through its Public Works Department. The City owns and operates its water
distribution and wastewater collection systems. For water, the City manages supply,
treatment, and distribution. Wastewater services include sewer collection and
maintenance. In Grover Beach, the City obtains its potable water from two primary
sources: Lopez Lake, a surface water reservoir managed by San Luis Obispo County, and
local groundwater wells that draw from the Santa Maria Groundwater Basin. Grover Beach
is part of the Northern Cities Management Area, a regional group of agencies that monitor
and manage groundwater extraction from this basin.
In 2024, a coalition of environmental groups sued San Luis Obispo County under the
Endangered Species Act, alleging that Lopez Lake operations failed to protect steelhead
trout in Arroyo Grande Creek. A federal court initially ordered a 45% increase in water
releases, threatening municipal supplies in Arroyo Grande, Pismo Beach, and Grover
Beach. The County appealed, and in December 2025, the Ninth Circuit vacated the
injunction, restoring the prior release schedule and directing the lower court to reassess
impacts on multiple species and local water needs. The case remains active, but the
immediate risk of severe water shortages has been removed while long-term compliance
and habitat planning continue. Any reduction in available water will affect FCFA and the
cities it serves.
The City’s water system is overseen by the Public Works Department, which also maintains
infrastructure and monitors water quality through annual reports and compliance with
state and federal standards.14
In Arroyo Grande, water and sanitary sewer services are managed by the City’s Utilities
Division, which is part of the Public Works Department. This division is responsible for
operating and maintaining the City’s water and sewer mains, pump stations, lift stations,
reservoirs, and wells.15
14 https://www.grover.org/545/Water-System.
15 https://www.arroyogrande.org/165/Utilities-Division.
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In Arroyo Grande, water is similarly sourced from Lopez Reservoir and groundwater basins,
including the Santa Maria Groundwater Basin and the Pismo Formation. The City has
entitlements to specific volumes from each source, and recent data shows that Lopez
Reservoir is currently at full capacity, ensuring a reliable supply for the near future.
Groundwater levels have also improved due to recent rainfall, which has contributed to
the City’s overall water availability. Arroyo Grande actively monitors its water supply and
usage, implementing conservation programs and emergency measures during drought
conditions.16
Both cities are also part of the South San Luis Obispo County Sanitation District, which
handles regional wastewater treatment for Grover Beach, Arroyo Grande, and Oceano.
This district operates the treatment plant located in Oceano and ensures compliance with
environmental regulations.17
16 https://www.arroyogrande.org/148/Water-Conservation.
17 https://sslocsd.org/.
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The following figure shows the fire hydrant-protected areas in the FCFA district.
Figure 39: Fire Hydrant Protected Areas
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Electricity
Pacific Gas and Electric (PG&E) provides electricity to the FCFA district through its electric
distribution network, which includes lines, backbone, local transmission lines, and various
other facilities. Central Coast Community Energy (3CE) supplies the energy, while PG&E bills
for the service.
Although there are no high-voltage electrical transmission lines in the district, a 115-kilovolt
line terminates at an electrical substation located south of Los Berros Road and Valley
Road. An electrical substation reduces the voltage in the distribution system for residential
and commercial users. Emergency responders must exercise extreme caution in the event
of an incident at one of these sites. Entry by FCFA personnel into a substation will occur only
after PG&E representatives are present and have granted clearance.
PG&E may carry out Public Safety Power Shutoffs during red flag warnings. These warnings
occur when there are high winds (>25 mph or gusts above 45 mph), low humidity, or when
PG&E detects a problem that could spark a fire, such as power lines causing a spark, even
in areas considered low risk. These shutoffs are usually temporary. PG&E informs customers
before shutting off power, but customers need to sign up for text, phone, or email alerts.
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The following figure shows the electrical power distribution in FCFA.
Figure 40: Electrical Power Distribution
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Natural Gas
Natural gas is supplied to FCFA by Southern California Gas through its network of
distribution pipelines, local transmission pipelines, and various storage facilities. PG&E
delivers natural gas in the city via transmission and high-pressure distribution lines, serving
both commercial and residential areas. These lines traverse the region and the FCFA
district.
When a contractor accidentally damages a natural gas line—typically during excavation
or construction work—it can quickly escalate into a serious emergency that directly
involves FCFA. The most immediate issue is the uncontrolled release of natural gas, which is
highly flammable and can form explosive mixtures with air. If a gas leak occurs near
buildings, vehicles, or any other ignition source, there is a serious risk of fire or explosion that
could endanger both lives and property.
FCFA is usually among the first responders to such incidents. Their initial role is to secure the
area, evacuate nearby residents or workers, and establish a safe perimeter. They must also
assess the risk of ignition and monitor gas concentrations using specialized equipment.
Coordination with the utility company is crucial, as only trained gas technicians can shut
off the gas flow at the source, which may be located far from the actual leak.
Another complication is that natural gas is often odorized with mercaptan to aid in leak
detection. However, in open-air environments or windy conditions, the smell may dissipate
quickly, making detection more challenging. Firefighters must rely on gas detectors and
thermal imaging to locate the leak and assess its severity. If the gas ignites before crews
arrive, the situation becomes even more dangerous, requiring fire suppression tactics while
still managing the gas flow.
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The following figure shows the location of natural gas transmission and high-pressure
distribution lines.18
Figure 41: Natural Gas Transmission and High-Pressure Distribution Lines
Gasoline
Gasoline is the most widely used transportation fuel in the FCFA district, with the largest
percentage of gasoline consumption attributed to light-duty cars, pickup trucks, and sport
utility vehicles. The gasoline network includes many stations, tankers, and pipelines.
18 PG&E Gas Systems website.
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Railways
Grover Beach is served by Amtrak's Pacific Surfliner, the primary railway line passing
through the city. The Grover Beach Train Station, located at 180 W. Grand Avenue, is a stop
along this scenic coastal route that connects San Diego to San Luis Obispo, passing
through major cities such as Los Angeles and Santa Barbara. The station is part of a
multimodal transportation facility, offering connections to buses and other transit options.
The Pacific Surfliner makes two daily stops in each direction at Grover Beach, providing
access to both Southern California and the Central Coast. While the Coast Starlight—
another Amtrak route—occasionally passes through the area, it does not make regular
stops at Grover Beach.
This station is strategically located near Highway 1 and offers amenities like long-term
parking, bike racks, and accessibility features. It serves as a gateway to nearby attractions,
including Pismo Beach, Oceano Dunes, and the Monarch Butterfly Grove.19
19 https://www.pacificsurfliner.com/destinations/grover-beach/.
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The following figure shows the location of the railway and crossings in Grover Brach.
Figure 42: Railway Line and Crossings
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PHYSICAL ASSETS PROTECTED
Commercial occupancies or properties are considered target hazards in every community
due to the special or unique risks they pose to emergency responders and occupants
during an incident or event. Each of these occupancies should have up-to-date pre-
incident surveys completed annually. The surveys allow responders to become familiar with
the building, property, and special hazards.
During an incident, these occupancies and facilities should have a current pre-incident
plan for FCFA operations personnel. The pre-incident plan provides emergency responders
with information about potential hazards, enabling them to develop effective strategies
and tactics during an incident. The recommended interval for updating a fire department's
pre-incident plans is usually once a year, or more frequently if there are significant changes
to the building, occupancy, or hazards. This ensures the plans remain accurate and
effective for emergency response. However, the specific schedule may vary depending
on local policies, risk levels, and operational needs.
The Insurance Services Office (ISO) offers guidance on pre-incident planning through its Fire
Suppression Rating Schedule (FSRS). According to ISO, pre-incident plans are a vital part of
a fire department’s readiness. They are assessed during the community’s Public Protection
Classification (PPC) review. ISO stresses that fire departments should create and keep pre-
incident plans for all commercial, industrial, institutional, and other high-risk properties. ISO
assigns credit for pre-incident planning under Section 570 of the FSRS. To receive full credit,
fire departments must:
• Conduct and document pre-incident planning visits.
• Include detailed information such as building layout, fire protection systems,
hazardous materials, and access points.
• Update plans regularly to reflect changes in occupancy or structure.
The current pre-incident planning process is inadequate and unavailable to firefighters.
FCFA is expecting a switch to Tablet Command for mapping and on-scene management
in 2026. Once this is implemented, pre-incident plans will be accessible on the apparatus’
mobile computer. A new software system will provide a consistent procedure for
completing pre-incident plans, and a policy should be developed when a vendor has
been selected. All target hazards and, ultimately, all commercial buildings have up-to-
date pre-incident plans.
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Structural Risks
The level of risk to occupants and emergency responders varies depending on the type of
residential or commercial occupancy.
Educational and Childcare Facilities
Public and private schools, as well as childcare facilities, increase risks in any community
and require substantial assistance during significant events, such as mass casualty or fire
responses.
Grover Beach and Arroyo Grande are both served by the Lucia Mar Unified School District
(LMUSD), which is the largest school district in San Luis Obispo County. This unified district
covers grades Kindergarten through 12. It includes a mix of elementary, middle, and high
schools across several communities along the Central Coast.
As of the 2025–26 school year, Lucia Mar Unified operates 19 public schools, serving
approximately 9,619 students.20 The district includes eleven elementary schools, three
middle schools, three comprehensive high schools, one continuation high school, one
independent study school, and one adult education program.21 LMUSD is headquartered
in Arroyo Grande and is known for its partnerships with local colleges and universities, as
well as its commitment to educational improvement and community engagement.
20 https://www.publicschoolreview.com/california/lucia-mar-unified-school-district/623080-school-district.
21 https://www.luciamarschools.org/.
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The following figure provides the location of educational facilities in the FCFA district.
Figure 43: Educational Occupancies
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Assembly
Gathering large groups of people in a single location or building increases risks at places
like places of worship, entertainment venues, or restaurants. Outdoor special events, such
as street fairs or other large gatherings, may require a public safety plan in accordance
with the California Fire Code. This plan should include emergency vehicle access and
escape routes, fire protection measures, emergency medical services, public assembly
areas, directing vehicular traffic and attendees, vendor and food concessions, and the
need for law enforcement, fire, or EMS personnel, as well as weather monitoring. The figure
below shows the locations of assembly occupancies in the FCFA response area.
Figure 44: Assembly Occupancies
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Health Care Facilities
Health care facilities face unique challenges during emergencies because many
occupants may be unable to evacuate on their own due to physical, medical, or
cognitive limitations. These buildings often contain specialized systems, such as medical
gases like oxygen, which can increase fire risk and complicate firefighting efforts. Fire
departments need to develop and maintain current pre-incident plans that identify
hazards, access routes, and critical infrastructure within the facility. This preparation ensures
that emergency responders can respond quickly and safely in the event of a fire or other
crisis.
As the population ages, an increasing number of people rely on assisted living, skilled
nursing, or long-term care facilities for their healthcare needs. These residents may require
different levels of support to evacuate, especially those with mobility issues, dementia, or
Alzheimer’s disease. Facilities must have staff training and emergency evacuation plans in
place to ensure that residents can be moved quickly and safely if needed. Many of these
buildings are also equipped with advanced fire protection systems, such as sprinklers,
smoke detectors, and compartmentalized construction, similar to hospital standards.
Special locking mechanisms are permitted in secured areas for memory care units to
prevent residents from wandering. Still, these must meet fire code standards to allow quick
release during emergencies. Overall, the complexity and vulnerability of residents in these
facilities demand higher levels of planning, coordination, and fire safety infrastructure.
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The following figure provides the location of the medical centers and care centers in FCFA.
Figure 45: Medical and Care Centers
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Multi-family Occupancies
Multi-family housing—such as apartment complexes, condominiums, and townhomes—
typically experiences fewer fires related to electrical or heating system malfunctions
compared to single-family homes. However, they face a significantly higher risk of cooking-
related fires, which occur at nearly twice the rate of other types of residential building fires.
These types of fires are often the leading cause of injuries and property damage in multi-
unit dwellings due to the proximity of units and shared walls, which can allow fire and
smoke to spread more rapidly if not properly contained.22
To address these risks, modern building and fire codes now mandate the installation of key
fire protection systems in multi-family structures. These include residential fire sprinkler
systems, which are designed to activate quickly and control or extinguish a fire before it
can grow, and interconnected smoke alarms, which are required in all bedrooms,
hallways, and on every level of a unit. Interconnected alarms ensure that if one detects
smoke or fire, all alarms in the unit will sound simultaneously, providing earlier warning and
maximizing evacuation time for all occupants. Together, these systems play a crucial role in
reducing fatalities, injuries, and property loss, and they offer vital protection in settings
where large numbers of people may live in close quarters with limited means of egress.
Buildings Three or More Stories in Height
Structures that are three or more stories tall present unique operational challenges for fire
departments and typically require an aerial apparatus equipped with an elevated master
stream. These ladder trucks are essential for accessing upper floors and rooftops that
exceed the reach of standard ground ladders, which are generally limited to two or three
stories. In addition to facilitating rescues and ventilation operations at higher elevations,
aerial apparatuses provide elevated water streams that can be directed into upper-story
windows or onto rooftops to control and suppress large fires more effectively.
22 Topical Fire Report Series, Multifamily Residential Building Fires (2013–2015), June 2017.
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The Insurance Services Office (ISO), which assesses fire protection capabilities for
communities, considers aerial apparatus placement a key part of its rating system. ISO
recommends that all buildings three stories or taller—or over 35 feet high—be within a 2.5-
mile road distance of a ladder truck. This proximity helps ensure a prompt response for
critical fireground tasks, including victim rescue, high-angle ventilation, and elevated fire
attack. For departments aiming to improve their ISO rating and provide adequate life
safety and property protection, strategic placement and staffing of aerial apparatuses are
essential, especially in areas with increasing vertical development.
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The following figure provides the location of buildings three or more stories in height in the
FCFA response area.
Figure 46: Buildings Three or More Stories in Height
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Large Square Footage Buildings
Large square-footage buildings can present significant challenges for fire departments
because of their size, layout, and potential fire load. These structures—such as warehouses,
big-box retail stores, distribution centers, or manufacturing facilities—often feature large
open spaces that allow fire and smoke to spread quickly, complicating efforts to contain
incidents swiftly. The extensive interior volume also means fires may develop undetected in
remote areas before alarms sound or firefighters arrive, raising the risk of flashover or
structural failure.
From an operational standpoint, large buildings can exceed the reach of standard hose
lines and ground ladders, requiring longer hose stretches, additional equipment, and more
personnel to access points and establish a water supply. Navigation inside these buildings is
also more challenging, especially in low-visibility conditions caused by smoke, and
firefighters may face disorientation or fatigue from traveling long distances on foot while
wearing full protective gear. Additionally, complex layouts or heavy storage racks can
hinder movement and conceal the spread of fire.
The fire load—meaning the total potential heat energy from combustible materials—tends
to be high in large commercial or industrial buildings, requiring aggressive tactics and large
water flows to control. Ventilation can also be difficult in these structures, as they often lack
sufficient windows or roof access. As a result, large buildings in terms of square footage
require advanced pre-incident planning, coordinated multi-company operations, and
specialized equipment such as aerial ladders, thermal imaging cameras, and high-
capacity water delivery systems to ensure effective and safe firefighting.
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The following figure, based on data from ISO, shows the locations of buildings that are
50,000 square feet or larger.
Figure 47: Buildings Greater Than 50,000 Square Feet
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High Fire-Flow Occupancies
High fire-flow occupancies require more water, equipment, and personnel than what a
typical fire response can provide. These buildings are large, have high fuel loads, and allow
fire to spread quickly, which means the fire grows faster than resources can arrive on
scene. Supplying enough water often requires multiple hydrants, relay pumping, large-
diameter hose, and sustained operations, placing heavy demand on both the fire
department and the local water system. These incidents often require multiple alarms,
drawing down staffing and reducing coverage elsewhere in the community. In short, high
fire-flow structures strain command, logistics, and operational capabilities, making effective
pre-planning and resource coordination essential.
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COMPARISON OF FIRE RISKS IN OTHER COMMUNITIES
Fire Loss
Fire loss can vary significantly from year to year due to a mix of natural, human, and
economic factors. Weather and climate play a key role—years with droughts, heatwaves,
or strong winds tend to have more severe and widespread fires. Human actions also
contribute, whether through accidental or intentionally set fires, or increased development
in fire-prone areas, which raises the risk of damage. The success of fire prevention and
response efforts can fluctuate over time, depending on factors such as funding, policy
updates, or technological advancements. Economic factors, such as rising property values
or inflation, can magnify the financial impact of fires, even if the physical damage remains
the same. Finally, natural variation means that some years experience more fire activity
due to random environmental conditions.
In 2023, fire departments responded to nearly 1.4 million incidents in the United States,
which resulted in 3,670 civilian fire fatalities and over 13,350 civilian fire injuries. The property
damage was estimated at $23 billion. The following figure shows the property and contents
loss in the FCFA response area between 2020 and 2023.
Figure 48: FCFA Property & Contents Loss per 1,000 People (2020–2023)
Year FCFA Property Loss U.S. Property Loss23
2020 $33.30 $67.06
2021 $59.99 $48.22
2022 $73.44 $54.36
2023 $86.34 $69.20
23 Fire Loss in the United States, NFPA, 2021, 2022, 2023.
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The number of fires per 1,000 population in the FCFA response area is lower than the
national average, as shown in the following figure.
Figure 49: Fires per 1,000 Population (2020–2023)
Year FCFA Fires per 1,000
Population
U.S. Fires per 1,000
Population24
2020 2.5 4.3
2021 2.4 4.1
2022 2.6 4.5
2023 1.6 4.2
Intentionally Set Fires
Intentionally set fires, in many cases considered arson, is defined as “any willful or malicious
burning or attempt to burn, with or without intent to defraud, a dwelling house, public
building, motor vehicle or aircraft, personal property of another.25 The following figure lists
the number of intentionally set fires in the FCFA response area from 2020 to 2024.
Figure 50: Intentionally Set Fires (2021–2024)
Year Intentionally Set Fires
2020 1
2021 3
2022 5
2023 3
2024 3
24 Ibid.
25 Crime Data Explorer, Federal Bureau of Investigation.
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RISK CLASSIFICATION
Risk Assessment Methodology
Developing a risk score to identify risks in a community is essential for providing an
organization with a framework for creating response protocols for incidents. The Three-Axis
Heron model assigns a score between 2 and 10 to each category, evaluating probability,
consequence, and impact factors.
The use of the Three-Axis Heron Formula involves the following equation.
The risk is graphically illustrated through a three-axis model as follows:
▪ P = Probability (Y-Axis)
▪ C = Consequences (X-Axis)
▪ I = Impact (Z-Axis)
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The following figure summarizes the three-axis risk classification process and how a score is
developed.
Figure 51: Three-Axis Risk Classification Process
When developing the score, each of the three scoring components is based on FCFA
incident data.
A risk score that combines probability, community impact, and fire department impact
offers a comprehensive way to evaluate the significance of various emergency incident
types, including fire, EMS, technical rescue, hazardous materials, and wildland-urban
interface (WUI) incidents. This scoring typically falls into four categories: low, moderate,
high, and maximum risk. A low-risk incident is likely to occur, and if it does, it would have
minimal effects on the community and impose little demand on fire department resources.
A moderate risk typically indicates a lower chance of occurrence than a low risk, with
limited but noticeable consequences for the community, such as minor injuries or property
damage, and a manageable impact on the department's operations.
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A high-risk event is unlikely to occur and could result in serious outcomes, including
significant injuries, disruption of essential services, or considerable property damage, while
placing a substantial strain on department personnel and equipment.
While the likelihood of a maximum-risk scenario is low, it is extremely dangerous. It can
potentially cause widespread harm to the community, including mass casualties,
evacuations, or infrastructure failures. It would severely challenge or exceed the
department’s operational capacity. This scoring method enables agencies to prioritize
preparedness, allocate resources effectively, and tailor response plans to address the
specific hazards in their communities.
An example of a low-risk fire response scoring is based on the likelihood of such an incident
occurring. Most low-risk incident types are frequent (occurring multiple times each day).
Still, their consequences for the community and their impact on the city are minimal. The
likelihood of a low-risk fire incident in the city is rated as 10 (high), while the consequence is
low (2), and the impact is also low (2). These numbers are input into the formula above to
generate a score of 20.2. The score will increase significantly for a maximum risk, even
though the likelihood is low (2), because the consequence to the community is rated as 8.
The impact on FCFA is the highest at 10, resulting in a score of 59.4.
These scores are designed to inform FCFA about the level of service needed for the
community. The likelihood of an incident can impact response times if multiple events
happen simultaneously. Even if the risk is low, it will require an apparatus to be taken out of
service for the response. The higher the score, the greater the risk in the community.
Although the maximum risk score available is 122.5, the chance of such an event occurring
is low. The following presents a scoring system based on probability, consequence, and
impact.
Figure 52: Risk Scoring System
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Probability
Probability refers to the likelihood of an incident occurring in a community over time. This
axis reflects the probability of a particular type of incident occurring (contributing to the risk
level). Many factors are considered, including the time of day, location, hazard present,
season of the year, building construction and maintenance, demographic characteristics,
and more. It can range from a rare event to one that occurs often. The following figure
defines probability categories.
Figure 53: Probability or Likelihood of Occurrence
Score Category Probability or Likelihood
2 Minor Unlikely: < 0.02% of total call volume. Expected to occur very rarely.
4 Low Possible: 0.02%–0.07% of total call volume. Expected to occur
rarely.
6 Moderate Probable: 0.07%–0.3% of total call volume. Expected to occur
monthly.
8 High Likely: 0.3%–2% of total call volume. Expected to occur multiple
times per week.
10 Extreme Frequent: > 2% of total call volume. Expected to occur one or
more times per day.
Consequence
The consequences of an incident can vary from minor casualties to severe impacts that
may destroy historical or major facilities in the community, resulting in a significant loss of
employment or life. The following figure defines consequence categories.
Figure 54: Consequences to the Community
Score Category Consequences to the Community
2 Minor 1–2 people affected (injuries/deaths) < $10,000 loss.
4 Low < 5 people affected (injuries/deaths) < $500,000 loss.
6 Moderate 5–50 people affected (injuries/deaths) $500,000–$1,000,000 loss.
8 High 51–100 people affected (injuries/deaths) $1,000,000–$5,000,000 loss
10 Extreme > 100 people affected (injuries/deaths) > $5,000,000 loss.
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Impact
The third factor in determining the risk is the fire department’s impact and the critical tasks
needed to control or mitigate an incident. This includes the number of emergency
responders and apparatus available, whether sourced internally or from external agencies.
It assesses the department’s ability to respond to a given risk or incident while delivering
services to the other parts of the city. The following figure defines impact categories.
Figure 55: Impact on Operational Forces
Score Category Impact on Operational Forces
2 Minor ≥ 90% Remaining Apparatus/Crews
4 Low ≥ 75% Remaining Apparatus/Crews
6 Moderate ≥ 50% Remaining Apparatus/Crews
8 High ≥ 25% Remaining Apparatus/Crews
10 Extreme < 25% Remaining Apparatus/Crews
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Fire Response
FCFA is the primary provider for mitigating fire-related incidents. These range from low-risk
incidents, such as a vehicle fire, to a maximum-risk incident involving a school fire. Fire risks
associated with a vehicle fire are considered low compared to the maximum risk posed by
a school that houses students. This scoring is applied to four different categories of fire
incidents in FCFA’s response area to determine staffing needs for critical tasks on the fire
ground. The following figures provide the fire response risk assessment score and three-axis
risk classifications.
Figure 56: Fire Response Risk Assessment
Description Low Moderate High Maximum
Risk Score P C I P C I P C I P C I
10 2 2 10 4 4 2 6 8 2 8 10
Score Assigned 20.2 41.6 36.8 59.4
Figure 57: Fire Three-Axis Risk Classifications
0246810
Low
Risk
Impact Consequence
Probability
0246810
Moderate
Risk
Impact Consequence
Probability
0246810
High
Risk
Impact Consequence
Probability
0246810
Maximum
Risk
Impact Consequence
Probability
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Emergency Medical Services Response
FCFA provides basic life support and emergency medical care in the city. Low-risk incidents
range from a medical assist to a maximum-risk incident for a multi-victim event. The
following figures provide the EMS response risk assessment scoring and the three-axis risk
classifications.
Figure 58: EMS Response Risk Assessment
Description Low Moderate High Maximum
Risk Score P C I P C I P C I P C I
10 2 2 2 2 6 2 6 8 2 8 10
Score Assigned 20.2 12.3 36.8 59.4
Figure 59: EMS Three-Axis Risk Classifications
0246810
Low
Risk
Impact Consequence
Probability
0246810
Moderate
Risk
Impact Consequence
Probability
0246810
High
Risk
Impact Consequence
Probability
0246810
Maximum
Risk
Impact Consequence
Probability
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Technical Rescue Response
Rescue services can range from low-risk incidents, such as accessing a locked vehicle with
a child inside, to confined space incidents (maximum risk) that may require multiple
personnel to mitigate the situation. The following figures provide the technical rescue
response risk assessment scoring and the three-axis risk classifications.
Figure 60: Technical Rescue Response Risk Assessment
Description Low Moderate High Maximum
Risk Score P C I P C I P C I P C I
6 2 2 4 2 6 2 4 8 2 6 10
Score Assigned 12.3 19.8 25.9 45.5
Figure 61: Technical Rescue Three-Axis Risk Classifications
0246810
Low
Risk
Impact Consequence
Probability
0246810
Moderate
Risk
Impact Consequence
Probability
0246810 High
Risk
Impact Consequence
Probability
0246810
Maximum
Risk
Impact Consequence
Probability
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Hazardous Materials Response
Hazardous materials responses can range from low-risk odor investigations to the highest
risk, such as a fuel tanker fire in a highly populated area. Most of these incidents can be
managed by FCFA, but higher-risk situations may require assistance from outside resources.
The following figures provide the scoring of hazardous materials response risk assessment
and three-axis risk classifications.
Figure 62: Hazardous Materials Response Risk Assessment
Description Low Moderate High Maximum
Risk Score P C I P C I P C I P C I
10 2 2 6 4 8 2 6 10 2 8 10
Score Assigned 20.2 44.2 45.5 59.4
Figure 63: Hazardous Materials Three-Axis Risk Classifications
0246810
Low
Risk
Impact Consequence
Probability
0246810
Moderate
Risk
Impact Consequence
Probability
0246810
High
Risk
Impact Consequence
Probability
0246810
Maximum
Risk
Impact Consequence
Probability
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Wildland Fire Response
The types of wildland fire risk vary from small grass fires to large forest fires requiring many
internal and external resources. The following figures provide the risk score and
classifications assigned to each type of wildland fire risk in FCFA’s response area. The
wildland fire risk encompasses low, moderate, and high risks, as a maximum risk would
necessitate a state and federal response. The score assigned to the high-risk category
(48.0) is significant due to the maximum score of eight for the consequence and its impact
on the community. This type of incident will strain the community and emergency services.
The following figures provide the wildland fire response risk assessment and the three-axis
risk classification scoring.
Figure 64: Wildland Fires Response Risk Assessment
Description Low Moderate High
Risk Score P C I P C I P C I
6 2 2 2 4 6 2 8 8
Score Assigned 12.3 19.8 48.0
Figure 65: Wildland Fires 3-Axis Risk Classifications
0246810
Low
Risk
Impact Consequence
Probability
0246810
Moderate
Risk
Impact Consequence
Probability
0246810
High
Risk
Impact Consequence
Probability
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SECTION III:
Standards of Cover
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SERVICE DELIVERY & PERFORMANCE
This section will give FCFA a general understanding of relevant response information. It is
designed to help the Department assess its recent performance and establish a baseline
performance expectation. FCFA, city, and political leaders can then use this information to
understand how their decisions, policies, and outside pressures affect performance.
Research Information
The information within this section was developed from various sources provided by FCFA.
Detailed information for the period between January 1, 2019, and December 31, 2024, was
provided. Additionally, less comprehensive total incident volumes were provided from
January 1, 2011, through December 31, 2018, to identify long-term trends.
Statistics Discussion
Using mathematical and technological methodologies to evaluate something as complex
as an emergency incident response must be used judiciously. There are historical instances
of incorrect evaluations leading to severe consequences in deployment and operational
decisions. This analysis is designed to quantify and analyze available information, serving as
a starting point for the agency as it seeks to improve performance. However, leaders need
to understand the limitations of making decisions based solely on statistical studies and
utilize sound judgment in conjunction with proven analytics when making decisions.
Statistical Tools
Various statistical analytical tools were employed to create this section. The fundamental
tools were categorization, percentile, and regression analysis. This helps paint a picture of
historical performance, with some inferences that may help leaders identify positive and
negative performance trends.
90th percentile
The time performance measures for this report are done using the 90th percentile measure.
While discussing the mathematics behind this measure is outside the scope of this report, it
is helpful to understand why it is utilized.
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The primary reason for using this measure is that the industry has adopted it. If a fire agency
wishes to judge its performance against standards or other agencies, it must use the 90th
percentile. For example, the National Fire Protection Association (NFPA) utilizes the 90th
percentile measure in most of its standards. In addition, the Commission on Fire
Accreditation International (CFAI) requires reporting performance measures at the 90th
percentile.
The statistical reason for using this measure is that it more fully captures performance and
identifies trends in performance more quickly. As with most response data sets, the time
performance data used in this study has a skew, making other statistical measures less
sensitive and representative. The following figure is a general example of data skew.
Figure 66: Data Skew26
In a symmetric distribution, the mean (average), median (middle of the data), and mode
(the most frequent) are all equal. When the distribution is skewed, these three measures of
the middle shift either to the left or to the right. Using the average, or mean, in data that is
skewed to the left would underrepresent the bulk of the performance, while the opposite is
true when skewed to the right. In FCFA's case, most of the time-based performance data is
skewed right. In this case, using the average would over-represent the performance. The
following figure shows binned calculations of both total and travel time, illustrating the
agency's definitive right data skew.
26 This Photo by Unknown Author is licensed under CC BY-SA-NC, creativecommons.org/licenses/by-nc-sa/3.0/.
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Figure 67: FCFA Travel and Total Time Data Skew
Data Discussion
Detailed data was provided from FCFA's primary incident reporting software (RMS) and the
computer-aided dispatch (CAD) system. These different database tables were combined
using proven data engineering techniques into a single analytical dataset.
Data Engineering Findings
The number of incident records for the RMS and CAD systems was very similar. There was a
total of 25,443 incidents in the RMS and 25,655 in the CAD system. There were 35 RMS
incidents without an associated CAD record and 243 incidents in the FCFA response area
without an FCFA unit responding. Both CAD and RMS records were matched to create a
single incident record for both systems, resulting in a decrease of less than 0.1% in the data.
This drop is very minor and statistically acceptable, representing a loss between the two
systems.
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Unit records were combined between the RMS and CAD systems. While there were 7,186
more units in the CAD system, this is to be expected, as the RMS is designed to capture only
FCFA units. In contrast, CAD captures all units on all incidents in which FCFA participated.
All units were captured and utilized in their designated locations; however, only FCFA units
are evaluated for specific unit performance.
Combining the two systems was highly successful, resulting in 24,442 unique incidents and
30,554 FCFA unit records for evaluation.
Data Error Handling
The collection of data within the various datasets has the potential for significant errors.
Although there can be many reasons for incorrect information, these errors are typically a
combination of human input and collection errors. There are various methods to manage
these errors, including statistical exclusion, real-time exclusion, formula manipulation, and
logic testing.
For FCFA, the information in the data fields had minimal error-prone data; therefore, most
of the data did not require a statistical intervention. However, some data was excluded by
formula or logic tests. The time segment math utilized a logic tree to eliminate negative
and null sets. The turnout time was limited to a 10-minute maximum as it was a natural
break between the meaningful data and the extremes outside the maximum limit.
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SERVICE DEMAND
The first dimension of the analysis is the overall system call load. Since this is a simple count
of incidents by type and location, no data was excluded after engineering. The detailed
data from the previously discussed systems will be used for most aspects of this analysis,
except for the volume projection.
Volume Analysis
A simple volume analysis can indicate how frequently the department is called upon to
respond to incidents. The first look is at the overall call counts grouped by primary
categories as listed in the National Fire Incident Reporting System (NFIRS). Establishing the
incident jurisdiction required a match between the geocoded information and the
provided geographic boundaries. The following figure displays the total number of
responses recorded by the agency for the entire dataset, along with the percentage of
categorized responses.
Figure 68: Total Incident Count (2019–2024)
Incident (NIFRS Group) Incident Count Percentage of Total
Responses
FCFA Responses
Fire (100) 615 2.42%
Overpressure (200) 20 0.08%
Rescue-Medical (300) 15,128 59.46%
Hazardous condition (400) 559 2.20%
Service (500) 2,521 9.91%
Good Intent (600) 5,575 21.91%
False Alarm (700) 975 3.83%
Disaster (800) 34 0.13%
Special (900) 15 0.06%
Total FCFA 25,442 100%
Aid Given & Received
Auto and Mutual Aid Received 166 0.65%
Auto and Mutual Aid Given 1,271 5.00%
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As with many agencies, medical and rescue calls account for the largest percentage of
incidents. Good intent calls come in second, which is also very common in the industry. The
mutual aid received does not include the 243 incidents in the CAD record where no FCFA
apparatus went en route or arrived. This would indicate 409 total mutual and automatic
aid received incidents, still lower than those where aid was given. Ambulance units are not
included in this evaluation, as they respond under contract, not as an aid company. They
are dispatched through the sheriff's office, not the California Department of Forestry and
Fire Protection (CAL FIRE).
Geographic Analysis
A call density analysis is helpful when reviewing the best location for apparatus placement.
It is also useful when evaluating where the prevention programs may have the most
impact.
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The following figure illustrates the geographic distribution of incident density for the study
period.
Figure 69: Incident Density (2019–2024)
As indicated in the previous figure, incident density is the most concentrated in the heart of
the district. This area comprises almost all types of occupancies and risks encountered by
FCFA.
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EMS incidents comprise the majority of incidents for FCFA and occur throughout the entire
response area. The following figure is similar to the overall density but shows the EMS
incident concentration for the same period.
Figure 70: EMS Incident Relative Density (2019–2024)
This indicates a strong correlation between the EMS incidents and the total call volume. It
also suggests that only those areas without people do not have any EMS incident volume.
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While the previous figures show a general idea of where to focus medical prevention
efforts, they do not address the more hazardous incident types. Due to the limited number
of fire incidents, a density map would be misleading. Therefore, fire-type incidents are
evaluated on an individual basis. The following figure illustrates the locations of fires that
occurred during the study period.
Figure 71: Fire Incident Locations (2019–2024)
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The previous figure indicates that the fire problem is evident throughout the area. While
there does not appear to be a definitive pattern to the incidents, a more significant fire
problem seems to be present in the Grover Beach and Oceano areas, especially along
Pacific Boulevard. However, nothing definitive can be stated about the distribution of this
incident, except to say that a fire incident is as likely to occur anywhere in the jurisdiction.
Prevention efforts, therefore, should be holistic in nature.
One final area of evaluation is the repetition of addresses in the dataset. The following
figure shows the top ten addresses to which FCFA responded.
Figure 72: Top Ten Common Incident Addresses (2019–2024)
Location Location Type Incidents
1212 Farroll Avenue Care Center 508
222 South Elm Street Senior Living 428
241 North Courtland Street Senior Living 181
2400 Cienaga Street Mobile Home Park 198
1168 West Branch Street Retail 132
365 South Elm Street Senior Living 128
2700 Cienaga Street Mobile Home Park 125
295 Alder Street Assisted Living 115
351 South Elm Street Senior Living 103
1241 Farroll Avenue Mobile Home Park 92
Temporal Analysis
The annual incident count for FCFA has increased every year. While the total volume in the
jurisdiction has increased from 3,431 incidents in 2019 to 4,495 incidents in 2024, EMS
incidents are driving the incident volume. While most jurisdictions saw a significant
decrease in the volume of incidents during the COVID-19 pandemic shutdown in 2020,
FCFA did not follow that pattern.
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The following figure shows the annual incident counts grouped by EMS and all other
incident types.
Figure 73: Annual Incident Volume (2019–2024)
Analyzing incident volume by month, day of the week, and hour is valuable when
scheduling events or allocating staffing resources. Additionally, months may reveal
seasonality for the service needs. At the same time, days and hours may indicate the
population movement and activities throughout the day.
0
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1000
1500
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2500
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3500
2019 2020 2021 2022 2023 2024
EMS Others
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The following figure analyzes incident percentages by month for 2019 through 2024.
Figure 74: Incident Volume by Month (2019–2024)
There does not appear to be significant seasonality in the incidents within FCFA, and most
months have a proportionate share of incident volume. Months with 31 days should make
up 8.5% of the incidents, February 7.7%, and all other months at approximately 8.2%. The
FCFA incident volume by month remains between 7% and 9%, with October, December,
and January experiencing a slightly elevated incident volume.
Another dimension for evaluation is the percentage of incidents that occur on a specific
day of the week.
The following figure illustrates the percentage of incidents that occur on each weekday.
0.0%
1.0%
2.0%
3.0%
4.0%
5.0%
6.0%
7.0%
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Figure 75: Weekday Call Distribution (2019–2024)
As with the monthly evaluation, there does not appear to be a significant variation by
weekday.
It can be helpful to combine the month and day dimensions to identify potentially
significant combinations of the month and weekday. FCFA does not show a substantial
variation within this evaluation. Still, Saturday in October is one of the highest times, while
Sunday remains consistently the lowest throughout all months. The following figure illustrates
the monthly and weekday call volume density from 2019 to 2024.
Figure 76: Month & Day Distribution (2019–2024)
Month Mon Tue Wed Thu Fri Sat Sun Color Incidents
Jan 270–281
Feb 254–269
Mar 245–253
Apr 234–244
May 221–233
Jun 200–220
Jul 185–199
Aug
Sep
Oct
Nov
Dec
0.0%
2.0%
4.0%
6.0%
8.0%
10.0%
12.0%
14.0%
16.0%
Sun Mon Tue Wed Thu Fri Sat
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Another analytical dimension is to evaluate call volume throughout the day. Most systems
see fire and EMS incidents distributed unequally throughout the day. The daytime is
typically more active than the evening, night, and early morning. The driving force behind
this phenomenon is likely that people are awake and moving. The following figure
indicates that FCFA closely follows this daytime pattern, with approximately 72% of
incidents occurring between 8 AM and 8 PM.
Figure 77: Incident Distribution by Hour (2019–2024)
It is essential to understand the combination of the hour of the day and the day of the
week. By evaluating that density, some hot spot times can be identified. In FCFA's case, the
evaluation reveals a consistent and statistically significant pattern of daytime calls,
occurring on every day of the week, with a slight shift on Friday and Saturday nights. The
following figure indicates incident density by the hour of the day and day of the week.
0%
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0 1 2 3 4 5 6 7 8 9 10 11 12 13 14 15 16 17 18 19 20 21 22 23
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Figure 78: Day & Hour Distribution (2019–2024)
Hour Mon Tue Wed Thu Fri Sat Sun Color Incidents
0–1 226–246
1–2 196–225
2–3 177–195
3–4 150–176
4–5 121–149
5–6 94–120
6–7 78–93
7–8
8–9
9–10
10–11
11–12
12–13
13–14
14–15
15–16
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18–19
19–20
20–21
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22–23
23–24
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Resource Distribution
Several key performance metrics help identify the effectiveness of resource distribution. A
broad allocation of resources enables a more rapid initial response to any given area.
However, the first unit is only a portion of the deployment question. It is critical to have
enough units to respond to incidents of varying volumes, types, and severities. It is also
essential to attempt to equalize the unit responses.
Geographic Distribution Analysis
Units and stations should be strategically distributed to maximize the chance of reaching
an incident in its earliest stages. There are two primary sources for performance standards
that address this geographic distribution. The Insurance Services Office, Inc. (ISO) defines
distance, while the National Fire Protection Association (NFPA) utilizes time as a criterion.
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The ISO uses 5 miles from a fire station as its standard. The following figure shows the 5-mile
travel distance from a fire station.27
Figure 79: 5-Mile Travel Distance (In-Service Stations)
27 www.isomitigation.com/ppc/technical/criteria-for-deployment-analysis-of-companie.
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For full credit in an ISO Fire Suppression Rating Schedule (FSRS), any building within the
jurisdiction should be within 1.5 miles of an engine company and 2.5 miles of a truck
company. FCFA has two staffed engines, one located at Station 1 and the other at Station
2. Coverage is lacking in the southern portion of the city, which also has the highest
incident density. The following figure shows the 1.5-mile travel distance from each station,
as they house engine companies.
Figure 80: 1.5 Mile Travel Distance from Staffed Stations
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The ISO judges specialized equipment, such as that used by a truck company, separately
from that used by an engine company. While engine companies are typically located at
most fire stations, truck companies are usually found at specific locations. ISO requires
these truck companies to be within 2.5 miles of any building. Since FCFA operates one
truck company, usually, from Station 1, there is an extended travel distance for the south
and east portions of the service area. The following figure shows the 2.5-mile road travel
from Station 1.
Figure 81: 2.5 Mile Truck Travel Distance (From Station 1)
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Unit Workload Analysis
Unit workload should be balanced to maintain readiness, resiliency, and service
availability. While it is common for one unit to be busier than others, no crew should carry a
load that is too heavy, as this would make them less effective.
Incidents by Unit
FCFA had 16 unique units responding to all incidents within the incident records. Four of
those are the battalion and chief officers. Most of the incidents were addressed by one of
the three types of engines: the rescue, the truck, or the battalion chief. The remaining units
included the fire chief, specialty units, and other response vehicles. The following figure
shows the top responding units within FCFA for 2019 through 2024.
Figure 82: Incidents by Type Volume by Apparatus Type (2019–2024)
1
116
398
53
117
661
3
218
1,008
1,115
1,551
8,097
10
305
669
1,506
1,948
12,585
- 2,000 4,000 6,000 8,000 10,000 12,000 14,000
Support
Type 3
Engine
Command
Rescue
Truck
Type 1
Engine
(300) Rescue-Medical All Other Categories (100) Fire
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The workload is not evenly distributed across all the apparatus. Units average between one
and five responses per day. Engines 6692 and 6693 consistently run the most incidents. The
truck and brush run the fewest incidents. While Rescue 6652 and Engine 6692 respond with
the same crew, the engine responds with the rescue, so the engine total is the same as the
crew total. The following figure illustrates the response volume for each apparatus per year
during the study period.
Figure 83: Annual Incident Volume Primary Units (2019–2024)
Each incident requires a unit to remain on the scene to handle the situation. Therefore, a
general idea of how long a specific crew will stay on the incident can assist operational
planning. FCFA has five primary types of units that respond to emergencies. Engines
respond to the broadest range of incidents, while Type 3 engines, which respond to fire
incidents, take the most time on average. Most apparatus spend less than 30 minutes on
average at all but fire incidents, and fire incidents take about an hour on average.
-
200
400
600
800
1,000
1,200
1,400
1,600
1,800
2,000
2019 2020 2021 2022 2023 2024
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The following figure shows the average minutes each apparatus type was committed to a
given incident category for the entire study period.
Figure 84: Average Time on Incidents by Apparatus Type (2019–2024)
One final dimension of unit workload is the amount of time each unit is committed to
incidents throughout the year. The unit hour utilization (UHU) calculation determines the
proportion of time a crew is committed to an incident compared to the total time on duty
within a specified timeframe. The formula for this calculation is the total time dedicated to
an incident divided by the total time the unit is staffed.
𝑆𝐻𝑆= ∑𝑆𝑖𝑚𝑐 𝐶𝑚𝑚𝑚𝑖𝑟𝑐𝑐 𝑟𝑚 𝑎 𝑆𝑐𝑐𝑚𝑐
∑𝑆𝑖𝑚𝑐 𝑆𝑚𝑖𝑟 𝑖𝑟 𝑆𝑟𝑎𝑐𝑐𝑐𝑐 𝑎𝑚𝑐 𝐻𝑚 𝑆𝑐𝑟𝑣𝑖𝑐𝑐
The goal is for the primary unit at a station, typically an engine or quint company, to be
the most flexible response unit and have a utilization rate under 10% UHU. Maintaining a
10% UHU level should indicate that the area has 90% availability from unscheduled events.
Stations with multiple engines and quint companies should aggregate to less than 10% UHU
for all similar units.
0:00:00
0:10:00
0:20:00
0:30:00
0:40:00
0:50:00
1:00:00
1:10:00
1:20:00
Type 1 Engine Rescue Truck Command Type 3 Engine
(100) Fire (300) Rescue-Medical All Other Categories
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Understanding what is scheduled and what is in response allows for a more rational
expectation of service performance and availability. Public agencies should use a UHU
that addresses the community's needs and crew commitments. For example, a 24-hour unit
will have several tasks built into its daily schedule, such as rest, meals, equipment
maintenance, training, and physical fitness. Rest may account for 6-8 hours per 24-hour
period, while training, meals, and physical fitness can account for approximately 6 hours
per day. Fortunately, for the emergency service needs of a community, these activities can
be scheduled or rescheduled to accommodate response activities. However, when these
planned activities are accounted for and combined, they can take up nearly 58% of the
day. This leaves only 42% of the 24-hour shift available for response unless some of the
scheduled activities are curtailed.
FCFA does not have an overly busy system, but the incident workload is unevenly
distributed. The crew at Station 2 is the busiest, but their 7.4% average UHU is below the
cautionary volume. The staffing model changed in 2023; therefore, the UHU was evaluated
for 2023 and 2024 only.
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The following figure shows the UHU for each grouped FCFA unit.
Figure 85: Unit Hour Utilization (2023–2024)
Unit Average 2024 2023
Fire Chief* 4.4% 4.2% 4.6%
Battalion Chiefs** 1.2% 1.1% 1.3%
B6611 0.2% 0.2% 0.2%
B6612 0.2% 0.2% 0.2%
B6613 0.1% 0.0% 0.1%
E6691 4.0% 1.8% 6.2%
Truck Crew 3.1% 3.4% 2.8%
T6645 2.3% 2.8% 1.7%
BR6661 0.9% 0.6% 1.1%
Engine 92 Crew 7.4% 7.3% 7.5%
E6692 7.2% 7.3% 7.1%
BR6662 0.2% 0.0% 0.4%
R6652 1.3% 2.2% 0.4%
FIVUTV1 0.0% 0.1% 0.0%
E6693 4.6% 4.7% 4.4%
U6631 0.0% 0.0% 0.0%
* Calculated at 40 hours a week, in service.
** Calculated at 1/3 of the annual hours available.
It is important to reiterate that crew working time is not all evident in the incident utilization
data. Crews may be out of service for maintenance, training, or other reasons, which are
not reflected in this analysis. In general, approximately half of a crew's day is spent in
administrative, training, or recovery activities. For example, assuming the crews are allowed
8 hours of rest and recovery a day, 2 hours for meals, and 2 hours for station, equipment,
and vehicle maintenance, which totals 12 hours. Additional time is typically allocated for
physical fitness, training, and public education.
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Concurrency Analysis
Incidents that occur simultaneously can impact an agency's ability to respond effectively.
While FCFA maintains two crews on multiple cross staffed apparatus at Station 1 and one
crew with multiple cross-staffed apparatus at Station 2, there may be times when all crews
are engaged, leaving the jurisdiction reliant on outside aid. This may be the case with the
243 incidents within the jurisdiction where an FCFA unit did not respond.
Fortunately, it is not very common for FCFA to be running simultaneous incidents. The
maximum number of incidents within the response information was eight. However, 83.7%
of incidents occur and are resolved by the time a second incident arises. The following
figure illustrates the frequency of incidents within the jurisdiction or FCFA units that occur in
conjunction with another incident anywhere in the area.
Figure 86: FCFA Concurrent Incident Responses (2019–2024)
Incidents in
Progress
Percent of
Responses
Count of
Responses
1 83.5% 21,232
2 14.8% 3,757
3 1.5% 379
4 Or Mor 0.2% 48
Another factor in unit workload is the number of units assigned to a specific incident. The
majority of FCFA incidents, over 94 percent, are accomplished by either one or two
companies. The following figure illustrates the percentage of incidents for which the
specified number of response units was assigned.
Figure 87: Multiple Unit Responses (2019–2024)
Units
Responding
Percent of
Responses
Count of
Responses
1 88.0% 22,290
2 6.3% 1,601
3 4.0% 1,025
4 1.2% 307
5 0.4% 98
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PERFORMANCE REVIEW
When evaluating a system, it is helpful to have a set of objectives or standards against
which to judge performance. While national and state standards may be recommended,
in California, it is up to the authority having jurisdiction to adopt specific ones. In this
instance, the Cities of Arroyo Grande and Grover Beach, the Oceano Community Services
District, and the FCFA have not established formal performance requirements. FCFA does
have a turnout time goal of 60 seconds during the day and 90 seconds at night, but no
other stated goals. Additionally, the Emergency Communications Center has not
established standards. Therefore, as a reference, the National Fire Protection Association
(NFPA) standards will be utilized where appropriate. This will include the 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
(NFPA 1710). It will also include portions from NFPA 1225 Standard for Emergency Services
Communications (NFPA 1225).
Evaluating overall performance requires an understanding of the incident lifecycle. It
begins in a normal state and should conclude in a new normal state. Still, there are
numerous measurable time segments in between. Certain elements, such as call
processing time and turnout time, can be improved through tactical management
techniques, including training and policy adjustments. However, other time segment
performances, such as travel time, are typically managed by a strategic methodology,
such as station location.
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The following figure identifies each time segment in the incident lifecycle.
Figure 88: Incident Lifecycle
The incident data provided did not allow for analysis of all time segments listed above.
However, enough information was provided to evaluate call processing, turnout, travel,
and total response time. Since FCFA has not adopted response time standards the NFPA
standards will be used as a performance benchmark.
State of ormal y
Dis o ery of ent
Call nitiation -1-1 e g
Alarm Transfer Time
Alarm Ans ering Time
Alarm ro essing Time
Turnout Time
Tra el Time
Arri al Time nitiating A tions
Control and Mitigate ent
e o ery
State of ormal y
So
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17
1
0
Fire
Department
Impact one
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The following figure illustrates each key performance indicatory (KPI) time segment, the
referenced standards, and the most influential organizational actions.
Figure 89: Incident Segment KPIs
Incident Segment Primary Agency
Influence Standard Benchmark
Normalcy Prevention
Local
Codes &
Ordinances
Community Risk Assessment
Discovery Public Education TBD
Notification Public Education TBD
Call Answer1 Dispatch Staffing,
Systems, Policy, &
Training
NFPA 1225
15 Sec 99th Percentile
20 Sec 95th Percentile
Call Transfer 30 Sec 90th Percentile
Call Processing 60 Sec 90th Percentile (priority)2
Turnout Time Station Design,
Policy & Training
NFPA 1710
60 Sec 90th Percentile (EMS)
80 Sec 90th Percentile (Other)
Travel Time (1st Due)
Station Location,
Systems, & Training
4 Min 90th Percentile
Travel Time (2nd Due) 6 Min 90th Percentile
Travel Time
(Effective Response
Force)
8 Min 90th Percentile
(Low or Moderate Risk)
10 Min 10 Sec 90th percentile
(High Risk)
Action Initiation or
Patient Contact
Station Location,
Systems, Staffing,
& Training
TBD
Control/Mitigation TBD
Recovery Prevention &
Public Education
Updated
Codes &
Ordinances
Community Risk Assessment
New Normal Prevention
Local
Codes &
Ordinances
Community Risk Assessment
1 Applies to both PSAP and Secondary Answering (Agency) Dispatch Centers
2 Non-Priority Incidents are exempt from NFPA 1225. Agencies are expected to set standards.
The time segment performance standards are evaluated as a percentile. This will enable
FCFA to compare its performance with that of other agencies and the standard using a
similar statistical technique.
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Call Processing Analysis
There are several time measures of a dispatch center. The metrics identified in NFPA 1225
are ring time and call processing. Ring time measures the duration from when the phone in
dispatch begins to ring until someone answers. NFPA 1225 requires the ring time to be less
than 15 seconds, 99% of the time and less than 20 seconds, 95% of the time. Call processing
refers to the time elapsed from when a person answers the call for help until the first unit is
notified of an incident. Unfortunately, ring time is typically captured in a separate system
and was unavailable for this report. The primary public safety answering point (PSAP) is the
San Luis Obispo Sheriff's Office communications center, which declined to provide the
data; therefore, this information, as well as the PSAP to fire department dispatch
information, is not available for this report. The CAL FIRE emergency communications
center responsible for FCFA was unable to provide ring time, although it was able to
provide detailed information for all other performance time segments.
Call processing should start from when the phone is answered until the first, preferably
correct, unit has been notified that an incident is in progress. However, there is typically a
brief period, usually seconds, from when the phone is answered to when the incident is
started in the computer-aided dispatch system. For this analysis, it is assumed that this brief
period, while not captured, is inconsequential. NFPA 1225 indicates that a high priority
emergency event shall be completed within 60 seconds or faster, 90 percent of the time. It
goes on to identify those incidents needing highest prioritization for both medical events
and where property loss is likely or actively occurring. NFPA 1225 also indicates those types
of calls that are exempt from time requirements that include specific responses and
communication center challenges.
The data provided was evaluated for integrity and reliability. It was found that 0.4% of the
data were statistically unreliable. However, that did leave 25,422 incidents available for
evaluation. Overall, the San Luis Obispo CAL FIRE Unit Emergency Communications Center
(ECC) is processing calls at approximately 1 minute, 15 seconds or faster, 90 percent of the
time.
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The following figure displays the call processing time at the 90th percentile, based on the
NFIRS incident grouping for the years 2019–2024.
Figure 90: Call Processing by NFIRS Type (2019–2024)
Evaluating performance at this level of granularity can lead to inaccurate data. In this
case, both the 900 and 800 series incidents were excluded. Both categories had extended
call processing times, but only a total of 40 incidents were reported across five years of
data, making them unreliable for evaluation.
00:00 00:30 01:00 01:30 02:00 02:30 03:00 03:30 04:00
(700) False Alarm
(600) Good Intent
(500) Service
(400) Hazardous Condition
(300) Rescue-Medical
(200) Overpressure
(100) Fire
2024 2023 2022 2021 2020 2019
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Another dimension of the call processing time is how incident workload affects dispatch
center performance. Again, the ECC manages the workload effectively, and the call
processing time remains consistent throughout the day. The following figure displays the
call processing times for medical incidents and all other incidents by the hour of the day,
with the call load included as a reference.
Figure 91: Call Processing by Hour (2019–2024)
0%
1%
2%
3%
4%
5%
6%
7%
00:00
00:15
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Turnout Time Analysis
Turnout time is the difference between when the unit is notified of an incident and when
they start to respond. FCFA has a stated goal of 60 seconds during the day and 90 seconds
at night, this is not a requirement. NFPA 1710 indicates the performance measure for this
time segment is 60 seconds for medical incidents and 80 seconds for fire incidents. This
generally means that for this analysis, incidents will be grouped into two categories: EMS
incidents and all others.
The data were analyzed for statistical reliability, and over 29,000-unit records could be
measured. This represents over 95% of the recorded information, slightly better than the
typical reliability for this data point. In addition, to ensure the responding crew was facing
an urgent situation, only incidents in which the unit responded emergently were evaluated.
In the final analysis, after excessive times were removed and the focus was on FCFA front -
line apparatus only 60% of the unit records were assessed. This volume provided a
statistically acceptable and representative data set. Overall, FCFA staffed apparatuses
have a turnout time of 3 minutes, 21 seconds or faster, 90 percent of the time. The following
figure displays the turnout times by unit and time of day, as reported by the agency.
Figure 92: Turnout Time by Type and Day/Night (2019–2024)
It should be noted that the agency is making strides to improve its times.
02:53
03:17 03:01
02:18
03:55
04:20 04:01
04:36
00:00
01:00
02:00
03:00
04:00
05:00
Truck Rescue Type 1 Engine Type 3 Engine
Daytime Nighttime
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The following figure shows the annual 90th percentile turnout time grouped by EMS and
other incidents.
Figure 93: Turnout Time by Year & Grouping (2019–2024)
Each apparatus is staffed with three shifts, which may employ different turnout
methodologies.
03
:
2
0
03
:
5
1
03
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4
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03
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03
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00:00
01:00
02:00
03:00
04:00
05:00
EMS Others
2019 2020 2021 2022 2023 2024
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The following figure shows the 90th percentile turnout time for each staffed unit, grouped
by shift and general incident type.
Figure 94: Turnout Time by Unit & Shift (2019–2024)
00:00 01:00 02:00 03:00 04:00 05:00 06:00
E6691
BR6661
T6645
E6692
BR6662
R6652
E6694
E6693
A-Shift B-Shift C-Shift
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One final dimension of the turnout time analysis is the changes in the percentile by the hour
of the day. Since FCFA staff operate their units 24 hours a day, it is expected that crews
can try to sleep at night. However, personnel who are asleep can impact how quickly they
can reach the apparatus and begin to respond. The following figure shows the turnout
percentile by the hour of the day, with the workload by general incident type added for
reference.
Figure 95: Turnout Time by Hour (2019–2024)
It is interesting to note the inverse pattern of turnout times and workload. This phenomenon
is common in agencies with lower call volume at night. This can be explained as a
combination of crews resting and fewer incidents to analyze. A limited data set, such as
that found at night, is typically much more susceptible to higher times and more
pronounced data swings.
0%
1%
2%
3%
4%
5%
6%
7%
00:00
00:45
01:30
02:15
03:00
03:45
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05:15
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Turnout (90th Percentile) - All Daily Workload - All
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Travel Time Analysis
The NFPA 1710 Standard for the Organization and Deployment of Fire Suppression
Operations, Emergency Medical Operations, and Special Operations to the Public by
Career Departments lists several travel time requirements for apparatus. The first defined
travel time is the time it takes for the first unit, either an engine or a truck, to operate as an
engine is 4 minutes. The second-due engine should have a travel time of 6 minutes, and
the full initial alarm assignment to arrive within 8 minutes for a moderate-risk structure fire.28
NFPA historically defined advanced life support (ALS) travel time as 8 minutes; however, the
new standard leaves that up to the authority having jurisdiction.
Travel time is the difference between when the apparatus checks in en route and when it
arrives on scene.
28 National Fire Protection Association. Standard for the Organization and Deployment of Fire Suppression
Operations, Emergency Medical Operations, and Special Operations to the Public by Career
Departmentss.2020) [Appendix D].
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The following figure shows the theoretical travel times from the two FCFA in service stations.
Figure 96: FCFA 4-Minute Predicted Travel
In theory, the first unit’s 4-minute travel time is suitable for most parts of the two cities. Still,
the Oceano area would benefit from a closer station. The other part of NFPA 1710 is to
have a full ERF on scene within 8 minutes.
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The following figure shows the theoretical 8-minute travel time from the in-service stations.
Figure 97: FCFA 8-Minute Predicted Travel
Theoretical models are beneficial for evaluating potential outcomes; however, considering
the actual performance may give a better understanding of what the agency can
provide.
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First Due Apparatus
The first due performance for FCFA is 6 minutes, 42 seconds or faster, 90 percent of the
time, for all incidents within the city. The travel time analysis for the first due is limited to
incidents that were identified as emergent responses. Additionally, any response over 30
minutes was removed from jurisdictional responses as being unreasonable. This resulted in a
total of 14,996 incidents for analysis, accounting for 59% of all responses.
Breaking the incidents into more manageable groups makes it easier to identify trends or
potential issues. The following figure illustrates the first due travel time for emergent
responses within one of three categories, categorized by either jurisdiction or aid area.
Figure 98: First Due Travel by Type and Area (2019–2024)
06:56 06:20 06:52
18:26
09:50 09:56
00:00
04:00
08:00
12:00
16:00
20:00
(100) Fire (300) Rescue-Medical All Other Categories
FCFA Aid Area
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Travel times have remained consistent throughout the years. There were fewer than one
hundred fire responses each year for FCFA. This is important because the 90th percentile is
highly sensitive to smaller data sets, which helps explain the extended travel times in this
category. The EMS category, with several thousand priority response incidents over five
years, likely provides the most reliable indicator of overall system performance potential. It
is worth noting that travel times have gradually increased in duration each year. The
following figure shows the travel times by fire, EMS, and other incidents for each year.
Figure 99: Annual First Due Travel Times by Category (2019–2024)
The time of day can significantly impact travel times. Factors such as crew readiness, traffic
patterns, and incident volume can impact travel times. FCFA's travel times throughout the
day remain relatively consistent.
07
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1
11
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1
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2019 2020 2021 2022 2023 2024
(100) Fire (300) Rescue-Medical All Other Categories
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The following figure displays the first due travel times by the hour, along with the workload
percentage shown for reference.
Figure 100: Travel Time by Hour (2019–2024)
Effective Response Force
The second dimension of the travel time analysis is how effectively the effective response
force (ERF) required for a particular incident can be assembled. ERFs change with the
complexity and resources required of any given incident. They can range from a single unit
to multiple units, equipped with specialty equipment. Two commonly evaluated ERFs are
EMS incidents and moderate-risk structure fires. FCFA's ERF for an EMS incident includes an
ambulance and another front-line apparatus. In contrast, moderate-risk structure fires
include all FCFA units, such as the battalion chief, two mutual aid engines, one mutual aid
battalion chief, and an ambulance.
FCFA relies heavily on aid companies to fulfill the needed responder levels. Using the
staffing levels from the closest fire stations, those within an 8-minute travel time, the
following figure was developed.
0.0%
1.0%
2.0%
3.0%
4.0%
5.0%
6.0%
7.0%
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Figure 101: 8-Minute Response Force Model
In this system, it was not theoretically possible to assemble a force of greater than 14 within
8 minutes. However, with limited resources immediately available, FCFA maintains a
relatively consistent ERF travel throughout the jurisdiction.
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The following figure shows the travel time for emergent incidents of the first three units
arriving.
Figure 102: First Three Priority Units Travel (2019–2024)
Each unit is approximately two minutes away from the next unit. Again, this is primarily due
to the concentration, and the apparatus responds from only two locations. As a result,
there is a minor variation based on the two commonly evaluated incident types. It would
be best to consider the historical performance of ERF based on incident type and
moderate risk. However, there were not enough moderate risk incidents with a full ERF to
provide a reliable statistical measure.
6.70
8.63
11.37
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100%
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Percent of Incidents 90th Percentile Travel
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Agency Response Time Analysis
The first due unit measures the time from when the first unit is dispatched until it arrives on
the scene. This is a measure the agency can use to determine its effectiveness; however, it
is not a segment that any standard or accrediting organization reviews. Still, it is helpful to
understand. Since the FCFA coverage area encompasses two cities and a service district,
the remaining performance review will attempt to break out the performance for each
area.
The first measure is the agency response analysis, categorized by three incident grouping
types. The following figure shows agency response time for each category and political
jurisdiction.
Figure 103: Agency Response Time by Political Subdivision & Type (2019–2024)
The distance from a station in Oceano appears to be the primary factor contributing to the
longer response times. Adding a station may alleviate some of these delays.
Annually, the agency's response times have remained relatively static. With the improved
turnout time in 2024, there is some improvement in the first due agency performance.
08:26 08:19 09:03
07:54 07:28
08:36
10:45
09:12 10:03
00:00
02:00
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06:00
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12:00
(100) Fire (300) Rescue-Medical All Other Categories
City of Arroyo Grande City of Grover Beach Oceano CSD
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The following figure illustrates the annual agency performance at the 90th percentile,
categorized by three types of incidents.
Figure 104: Annual Agency Performance by Category (2019–2024)
09
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(100) Fire (300) Rescue-Medical All Other Categories
2019 2020 2021 2022 2023 2024
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The final evaluation is to see the overall effect of the time of day. Since travel time is
relatively stable throughout the day, the likely difference in agency performance by hour is
due to variations in arrival times. The following figure illustrates agency performance by
hour, with the percentage of incidents included for reference.
Figure 105: Agency Performance by Hour (2019–2024)
Total Response Time Analysis
The reason each time segment is analyzed is to get an understanding of where
performance can be measured and improved. However, the most essential performance
measurement is the total response time. The person in need sees this as the authorities'
actual performance. The primary difference between the agency response performance
and the total response time is the addition of the communication center element. The
customer perceives the response as starting when they call for assistance. Overall, the total
response time for FCFA is 9 minutes, 27 seconds or faster, 90 percent of the time.
0%
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00:00
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In District Agency Total (90th Percentile)Percent of Events
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The political and geographic subdivision applies equally well to the agency and total
response time analysis. The following figure illustrates the types of incidents and their
corresponding total response times by political subdivision.
Figure 106: Total Response Time by Political Subdivision & Type (2019–2024)
09:04 09:02 09:42
08:07 08:50
10:4111:12
09:35
10:50
00:00
02:00
04:00
06:00
08:00
10:00
12:00
14:00
(100) Fire (300) Rescue-Medical All Other Categories
City of Arroyo Grande City of Grover Beach Oceano CSD
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Similar to the agency response time, the location of a station may help provide faster
coverage. Similarly, the annual total response time is also comparable. In this case, the
improvement in 2024 is not as pronounced as in other time segments, but it is generally
better overall. The following figure is the annual total response time grouped into three
divisions.
Figure 107: Annual Total Response Performance by Category (2019–2024)
11
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(100) Fire (300) Rescue-Medical All Other Categories
2019 2020 2021 2022 2023 2024
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The final analysis is the total response time performance by hour. The following figure
displays the total response time by hour, along with the percentage of incidents for
reference.
Figure 108: Total Response Time Performance by Hour (2019–2024)
02:00
04:00
06:00
08:00
10:00
12:00
14:00
0 1 2 3 4 5 6 7 8 9 10 11 12 13 14 15 16 17 18 19 20 21 22 23
0%
1%
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In District Total Time (90th Percentile)Sum of Incidents
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POPULATION GROWTH & SERVICE DEMAND PROJECTIONS
Service demand is typically driven by population growth. Without people, there is little to
no need for emergency services. However, the relationship between the general
population, population density, population growth, and demographic distribution is poorly
understood. Therefore, this analysis provides leadership with information to determine the
appropriate resources and distribution.
Population Growth
The population in the FCFA response area includes the Cities of Arroyo Grande and Grover
Beach, as well as the Oceano Community Services District. This analysis was conducted
utilizing the U.S. Census Annual Community Survey (ACS) and ArcGIS Business Analyst. It
remains consistent with the information in the risk section.
According to the U.S. Census data, the population in the FCA service area increased from
37,694 in 2010 to 38,232 in 2020. Based on this data, the annual average growth rate was
close to zero, with a high of 0.9% and a decrease in population of -0.11%. Based on census
data and simple forecasting tools, the population in 2044 is expected to be between
36,179 and 39,133. The following figure shows the 20-year projection based on the previous
10 years of ACS data.
Figure 109: 20-Year Population Forecast with 95% Confidence Bands
37,694
2010
38,232
2020
37,488
2030
37,544
2044
37,656
0
10,000
20,000
30,000
40,000
50,000
60,000
70,000
Population Population Forecast
Lower (95% Confidence)Upper (95% Confidence)
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Growth estimates were confirmed by reviewing the 2060 Regional Growth Forecast for the
San Luis Obispo County Region, a report commissioned by the San Luis Obispo Council of
Governments.29 This report confirms moderate to no growth for the region. By 2060, this
report estimates that the entire county will grow to by 21,045, with the majority of that
growth occurring in Paso Robles and San Luis Obispo. Arroyo Grande and Grover Beach
combined would increase by a modest 1,341 people by 2060.
Population Distribution
The FCFA response area is mainly developed. Much of the housing consists of single-family
residential areas with small lots, multi-family units, and a few clusters of mobile home parks.
The central portion of the jurisdiction, centered around Highway 101 and Grand Avenue, is
primarily comprised of commercial properties. While the population in these census tracts is
lower, there is typically a large amount of transient traffic during commercial operational
hours. The west side of Highway 1 is largely undeveloped, with the area given over to
beaches and golf courses, except around the Oceano Regional Airport. However, there
are pockets of recreational vehicle parking and single-family residential areas throughout
the west side. Since the cities are almost fully developed, the population distribution is
unlikely to change significantly. However, with the addition of higher-density mixed-use
multi-family buildings being erected, the areas may become more densely populated.
29 www.slocog.org/programs/data-services/regional-growth-forecast.
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The following figure illustrates the current population distribution by census block.
Figure 110: 2020 Population Distribution
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Service Demand
Standard linear and polynomial projection models were applied to the 14 years of data
provided by FCFA. Each model was evaluated using the R2 methodology to determine the
best data fit. Because the slope of the data was generally consistent, almost all models
returned a similar value.
The R2 value measures how well the model fits the historical data. The closer the value is to
1, the better the fit with the historical data. In this case, all the models returned an R² value
of 0.84. Therefore, the least complex model, straight linear regression, was used. The
following figure shows the incident responses rose from 2,812 in 2011 to 4,791 in 2024 and
can reasonably be expected to reach between 6,290 and 7,630 in 2044 with a 95%
confidence.
Figure 111: Service Demand Projection to 2032
2011
2,812
2016
3,714
2024
4,791
2034
5,783
2044
6,959
-
1,000
2,000
3,000
4,000
5,000
6,000
7,000
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Incidents Incident Forcast
Lower (95% Confidence)Upper (95% Confidence)
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EFFECTIVENESS OF INTER-JURISDICTIONAL RESPONSE
To best serve the community, the FCFA and its state and local partners collaborate to
achieve shared goals. An integrated fire protection system that combines federal, state,
and local resources is the most effective way to protect lives, property, and natural
resources at risk. Automatic and mutual aid components should be evaluated regularly to
ensure the effectiveness of inter-jurisdictional responses meets the needs of FCFA and its
partner agencies.
Mutual Aid System in San Obispo County
San Luis Obispo County maintains a mutual aid system that unites local, state, and federal
fire agencies under pre-established agreements. Additionally, FCFA has a local automatic
and mutual aid agreement that ensures a rapid and coordinated response whenever an
incident exceeds the capacity of any single department. The system utilizes standardized
protocols, shared resources, and joint training to safeguard communities, infrastructure,
and natural resources across the County's diverse terrain.
Under the California Master Mutual Aid Agreement, all fire agencies in the state commit to
assisting one another whenever local resources are exhausted. Supplementing this, the
California Fire Assistance Agreement (CFAA) empowers the Governor's Office of
Emergency Services (Cal OES) to mobilize additional state, federal, and National Guard
assets for large-scale emergencies.
The County falls within Cal OES Mutual Aid Region I, which also includes Los Angeles,
Orange, Santa Barbara, and Ventura counties. The San Luis Obispo County Fire Chiefs'
Association coordinates local adoption of these agreements, refines operating
procedures, and facilitates policy updates through regular meetings and joint exercises.
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The following figure shows local resources for mutual aid (MA) and automatic aid (AA)
responses through the operational area or county.
Figure 112: Automatic and Mutual Aid Resources (Table)
Agency
St
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En
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SLO County Fire/CAL FIRE 64 990 Bello Street, Pismo
Beach 1 — 3 MA/AA
SLO County Fire/CAL FIRE 63 2555 Shell Beach Road,
Pismo Beach 1 — 3 MA/AA
SLO County Fire/CAL FIRE 62 1551 Sparrow Road, San
Luis Obispo 1 — 2 MA
SLO County Fire/CAL FIRE 72 2391 Willow Road, Arroyo
Grande 1 — 2 MA
SLO County Fire/CAL FIRE 70 450 Pioneer Avenue,
Nipomo 1 — 5 MA
City of San Luis Obispo Fire 1 2160 Santa Barbara Street,
San Luis Obispo 1 1 6 MA
Total Available 6 1 21
FCFA and the greater Central Coast may face challenges in obtaining resources promptly,
stemming from the County's steep terrain and narrow coastal roads, which can hinder
access during peak fire season.
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The following figure is a map with the local resources for mutual aid (MA) and automatic
aid (AA) responses.
Figure 113: Automatic and Mutual Aid Resources (Map)
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Inter-Jurisdictional Response Components
Evaluating the effectiveness and efficiency of inter-jurisdictional emergency services
provided by fire departments is a complex task. It focuses on partnerships with adjacent
partner agencies, involving an assessment of how well different fire departments and
emergency services collaborate across boundaries to deliver timely and high-quality
services.
Mutual Aid and Automatic Aid Agreements
Mutual aid and automatic aid agreements enable departments to receive help from
neighboring jurisdictions quickly when necessary. These agreements should clearly outline
when and how partner agencies assist each other, ensuring effective responses to large-
scale emergencies. Automatic aid agreements are typically more efficient than mutual
aid, as they automatically dispatch the nearest available unit, rather than waiting for a
formal request. Effective mutual aid agreements should also include standardized
reimbursement or resource replacement protocols.
FCFA has an automatic aid agreement, signed in March 2023, that outlines the areas and
responsibilities for the Pismo Beach Fire Department (operated by CAL FIRE), as well as the
areas covered by CAL FIRE and FCFA. The remaining responses from agencies responding
within the FCFA and FCFA units responding out of the jurisdiction. FCFA also participates in
other state and regional mutual aid programs.
Response Times
A primary indicator of the effectiveness of inter-jurisdictional emergency services is the
response time to incidents within the shared service areas. By pooling resources and
sharing responsibilities, fire departments can cover larger geographic areas and respond
faster to emergencies. This is especially true in the regions that might otherwise experience
slower response times due to distance or limited resources.
Evaluating historical response data is essential; however, to match the new auto-aid
agreements, incident data is limited to after June 2023. There was not enough data
available to conduct a reliable analysis. Instead, models were created for the different
travel time possibilities.
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The first figure shows the expected 4-minute travel time for the area, including all closest
CAL FIRE and FCFA units.
Figure 114: 4-Minute Travel from all Area Stations
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Within the 4-minute areas, the auto aid agreement works well for FCFA Station 2 and Pismo
Beach Station 64, as they double cover their areas in several locations. The remaining
areas will benefit from an auto aid unit based on a second unit responding. The 8-minute
travel distance evaluation shows excellent overall coverage of the region, lending
credibility to the usefulness of an auto aid agreement, especially where multiple units are
needed. The following figure shows the 8-minute travel coverage from all area stations.
Figure 115: 8-Minute Travel Area Stations
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Resource Sharing and Cost Efficiency
The sharing of apparatus, specialized equipment, and personnel between jurisdictions
enhances the capability to respond to large or complex emergencies that might
overwhelm a single department. Resource sharing is also effective when departments
specialize in different areas, such as hazardous materials (HazMat) and technical rescue.
This allows for comprehensive coverage across all types of incidents. From a cost
perspective, inter-jurisdictional partnerships can lead to cost savings through shared
equipment purchasing, reduced duplication of services, and joint training programs.
Efficient resource sharing can lower operational costs for each department without
sacrificing service quality.
In the automatic aid area, no cost recovery is authorized, with a few specific exceptions.
FCFA participates in the regional HazMat team, which should help defray the costs of using
that team if necessary. Other cost recovery agreements can be found in state aid and
county response plans, as well as in cost recovery definitions.
Communication and Coordination
The effectiveness of inter-jurisdictional emergency services hinges on robust
communication and coordination among departments. Efficient coordination enables
various departments to function as a cohesive unit, particularly during large-scale or multi-
agency incidents. Streamlined coordination is crucial to prevent duplicated efforts or
miscommunication, which can lead to delays or errors. Reliable communication systems
and protocols ensure that all responding agencies understand their roles and
responsibilities.
Communication between the CAL FIRE agencies and FCFA is easily accomplished as they
are on the same radio system. Other county assets may require radio patches to facilitate
communications.
Training and Joint Exercises
Regular joint training exercises enhance the effectiveness of inter-jurisdictional operations
by ensuring that all agencies are familiar with each other's equipment, procedures, and
personnel. This knowledge is crucial when multiple departments collaborate, particularly
during significant incidents such as natural disasters or major fires. Joint training also
promotes cost savings and efficiency, as departments can share resources for training
programs instead of operating separate, redundant ones. Except for members who
participate in special teams, there is no evidence of a comprehensive regional training
program in place.
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Partner Capabilities
The regional partners for FCFA all have similar apparatus and capabilities. The San Luis
Obispo City Fire Department apparatus maintains a minimum staffing level of three
personnel. CAL FIRE ranges from 3 in the Pismo Beach area to 2 and 3 in the surrounding
state response areas. FCFA maintains a minimum staff of 3 on each engine and 2 on the
truck. The apparatus capabilities across jurisdictions are similar and appropriate to the risks
associated with coastal cities in California.
Area Aid Assets
FCFA has access to several close-in aid companies and several companies within the
region. The following figure lists those agencies, their stations, apparatus, and minimum staff
at each fire station.
Figure 116: Automatic Aid Resources Available to FCFA
Apparatus FCFA Staffing
Close Aid
Company
Staffing
Extended Travel
Aid Company
Staffing
Fire Chief 1
BCs 6611, 6612 & 6613* 1
Engine 6691 3
Truck/Rescue/Brush 2
Engine 6692
(and additional cross-staffed apparatus) 3
CAL FIRE Station 64 3
CAL FIRE Station 63 3
CAL FIRE Station 62** 2
CAL FIRE Station 72 2
CAL FIRE Station 70** 5
SLOFD Station 1 Engine** 3
SLOFD Station 1 Truck** 3
San Luis Ambulances (SLA) 2 ***
Total Available to FCFA 10 8 (plus 2
EMS)
13 (plus
multiple EMS)
* One on duty each day.
** Extended travel times.
*** Multiple ambulances when they are available.
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Aid Volume
FCFA and the CAL FIRE regional units provide automatic aid to the area based on the
incident location. The category of incident determines the type of response from the
partner agency. This has resulted in 85 incidents post-June 1, 2023, within FCFA’s response
area that did not have an associated FCFA unit. Fifteen of these were in the Oceano CSD,
thirty in Grover, and the rest in Arroyo Granda CAD zones. During the same time period,
there were 257 incidents in which FCFA units responded to Pismo Beach or CAL FIRE-
identified auto-aid areas.
Other Emergency Services Resources in the Region
In addition to fire departments, several other agencies can assist the fire department with
emergency response. Local police departments are not listed individually here, but their
role in emergency response is not to be overlooked. A police presence is critical during
most responses.
Emergency Communications & Dispatch
The San Luis Obispo County Sheriff's Office is the primary public safety answering point for
911 calls in the FCFA service area. The CAL FIRE/San Luis Obispo County Fire Department's
Emergency Command Center (SLU ECC) is the secondary dispatch center that receives
and routes 911 calls to the appropriate emergency services (e.g., fire, & EMS). SLU ECC
provides FCFA with the closest unit dispatch, utilizing Automated Vehicle Location (AVL)
technology.
SLU ECC provides public safety and 911 dispatch services through a cooperative
agreement to nine fire departments in the county, including FCFA. SLU ECC measures its
performance based on NFPA 1225.
Emergency Medical Transportation & Response
The regional ambulance transport agency is the San Luis Ambulance Company. This
privately owned ambulance company operates under contract and license with the San
Luis Obispo Emergency Medical Services Agency. The company operates multiple
ambulances from various stations in eight cities.
Aerial transport is provided by one private partner, CALSTAR, a Global Medical Response
company. Additionally, the California Highway Patrol has an area helicopter, the H-70,
which is equipped and capable of medical transport.
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County Office of Emergency Services
The San Luis Obispo County Office of Emergency Services (OES) is responsible for
coordinating and conducting emergency planning, response, and recovery in
collaboration with local, state, and federal partners. OES is the primary local coordination
agency for emergencies and disasters affecting residents, public infrastructure, and
government operations in San Luis Obispo County.
In terms of community preparedness, ReadySLO.org serves as a comprehensive portal for
anyone living in or visiting San Luis Obispo County who wants to be ready for emergencies.
Managed by the County Office of Emergency Services in partnership with local public
safety agencies, the site consolidates all the information needed to know before, during,
and after a disaster into a single, easy-to-navigate resource.
Before an emergency occurs, the Prepare section provides guidance on creating a family
emergency plan, assembling essential supplies, and becoming familiar with the county’s
specific hazards. When a crisis unfolds, the Current Emergency Information page serves as
the primary source for real-time updates on ongoing incidents, evacuation procedures,
and operational details—ensuring residents remain informed about evolving warnings and
orders.
Once the danger has passed, the Recover section provides resources for navigating the
aftermath, including cleanup guidance, financial assistance options, and safe return
procedures. ReadySLO.org also includes an interactive evacuation zone lookup tool to
identify zones in advance, and real-time alerts are distributed through Wireless Emergency
Alerts and Reverse 911 to maintain critical communication when every minute counts.
By consolidating preparedness checklists, live incident updates, recovery resources, and
rapid-alert systems in one place, ReadySLO.org empowers the county community to plan
ahead, respond effectively, and rebuild safely after emergencies.
San Luis Obispo Fire Safe Council
Established in 1998, the San Luis Obispo Fire Safe Council is committed to creating fire-safe
environments throughout San Luis Obispo County. The mission of the Fire Safe Council is to
serve as a collaborative forum for promoting community fire-safe planning, education, and
coordination, linking fire-prevention programs, and supporting the local fire service. The
FCFA Fire Chief was appointed to serve on the Board of Directors by the 4th County
Supervisorial District.
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United States Coast Guard
The United States Coast Guard (USCG) operates Coast Guard Station Morro Bay. The USCG
maintains a 27-person National Security Base and Search and Rescue Station at Morro Bay
Harbor to provide Coast Guard services for the entire Central California Coast.
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PERFORMANCE OBJECTIVES & MEASURES
FCFA provides fire protection, first responder EMS, and other emergency services to a
response area of approximately 10.5 square miles. This is accomplished with a mix of
staffed apparatus. To address the risks associated with each response, sufficient personnel
and equipment must be dispatched to complete the specific critical tasks for each type of
incident and corresponding risk.
During a fire, the critical tasks that must be performed can be broken down into two key
components: life safety and fire flow. Life safety tasks are based on the number of building
occupants, their location, status, and ability to take self-preservation actions. Life safety-
related tasks involve searching, rescuing, and evacuating victims. The fire-flow component
involves delivering sufficient water to extinguish the fire and create an environment within
the building that allows firefighters to enter.
The number and types of tasks needing simultaneous action will dictate the minimum
number of firefighters required to combat various fires. Without adequate personnel to
perform concurrent action, the commanding officer must prioritize the tasks and complete
some in chronological order rather than concurrently. These tasks include the following:
• Incident command
• Scene safety
• Search and rescue
• Fire attack
• Water supply
• Pump operation
• Ventilation
• Backup/rapid intervention
Critical task analyses also apply to all agency program categories. Numerous simultaneous
tasks must be completed to effectively control an emergency. FCFA's ability to quickly
mobilize the necessary numbers of trained personnel is critical to achieving successful
incident outcomes.
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Throughout this document, risk levels for each response type have been identified.
Generally, they are broken into low, moderate, high, and maximum risks. These apply
across the six FCFA programs: fire response, EMS, technical rescue, hazardous materials
response, and aircraft rescue and firefighting efforts. Appendix B of this report shows the
breakdown of each risk classification by program.
FCFA completed a critical tasking overview as part of this study. Each hazard type was
identified, and the expected number of personnel was determined based on critical
tasking and operational procedures. The following figure summarizes the total personnel
required by incident type and risk category.
Figure 117: Staffing Recommendation Based on Risk
Incident Type Maximum
Risk High Risk Moderate
Risk Low Risk
Fire 42 27 18 3
Emergency Medical 17 13 9 4
Wildland/WUI N/A 56 16 6
Technical Rescue 24 15 11 3
Hazardous Materials 32 22 7 3
Establishing resource levels needed for various emergencies is a uniquely local decision.
Factors influencing local decisions for incident staffing include the type of equipment
operated, the training levels of responders, operating procedures, geography, traffic, and
the nature of the buildings and other risks being protected.
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Critical Tasking
FCFA has developed the following Critical Task Analysis using risk matrices for various
incident types. Critical tasks are those activities that must be conducted promptly by
firefighters during the early stages of emergency incidents. This intervention is essential to
control the situation, prevent further loss, and perform the necessary tasks required in a
medical emergency. FCFA is responsible for ensuring that responding companies can
perform all described tasks promptly, efficiently, and safely. The following figures represent
the minimum number of personnel required by FCFA, categorized by incident type, risk
severity, and function.
Figure 118: Fire Response Critical Tasking
Function Maximum
Risk High Risk Moderate
Risk Low Risk
Command/Support 2 1 1 1
Safety 1 1 1
Size up (360°) 1 1 1
Driver/Engine or Pump Operator 4 3 2 1
Water Supply 1 1
Standpipe/Sprinkler Control 1 1
Fire Attack 6 4 3 1
Fire Attack & Search and Rescue 3
Search & Rescue 6 4
Ventilation/Utilities 6 4 3
Backup Line 3 2 2
Rapid Intervention Team (Two Teams) 6 3
EMS Unit - ALS 2 2 2
Other 3
Total Effective Response Force 42 27 18 3
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Figure 119: Emergency Medical Services Critical Tasking
Function Maximum
Risk High Risk Moderate
Risk Low Risk
Command 1 1 1
Operations 1
Triage Group 1 1
Basic Life Support Treatment 3 3 3 2
Advanced Life Support Treatment 6 4 2 2
Extrication/Hazard Mitigation 3
Transport Group 1 1
Staging 1
Other 3 3
Total Effective Response Force 17 13 9 4
Figure 120: Wildland/WUI Fire Critical Tasking
Function High Risk Moderate Risk Low Risk
Command 1 1 1
Driver/Engine or Pump Operator 5 3 1
Flank Divisions 3 3
Fire Attack 4
Structure Protection 6 3
Other 15 6
Other 24
Other 2
Total Effective Response Force 56 16 6
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Figure 121: Technical Rescue Critical Tasking
Function Maximum
Risk High Risk Moderate
Risk Low Risk
Command/Support 1 1 1 1
Safety 1 1
Operations 1
Entry team leader and teams 6
Rescue Teams 8
Extrication/Hazard Mitigation 6 1
Rescue Support Group 1 1
Basic Life Support Treatment 2 2 2 1
Advanced Life Support Treatment 2 2 2
Other 10
Total Effective Response Force 24 15 11 3
Figure 122: Hazmat Critical Tasking
Function Maximum
Risk High Risk Moderate
Risk Low Risk
Command/Support 1 1 1 1
Safety 1 1 1
Pump Operations/Decon 1
Operations 1
Hazard Mitigation 4 2
Entry Team Officer and Team 6 4
Backup Entry Team 4 3
Hazmat Support Group 6 5
Decon Group 3 3
Medical Group 3 3
Staging 1
Other 6 2
Total Effective Response Force 32 22 7 3
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Figure 123: Airport Rescue/Firefighting
Function Maximum
Risk High Risk Moderate
Risk Low Risk
Command 1 1 1 1
Safety 1 1
Operations Section 1
Fire Attack Group/Standby 6 3 3 3
Rescue Group Standby 3 3 3
Triage/Medical Group 3 3
Basic Life Support 2
Advanced Life Support 2
Transport Group 3
Staging 3
Other 3 3
Total Effective Response Force 22 14 10 7
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Alarm Assignments
FCFA encounters certain complexities that are inherent in the all-hazards response system,
given the limited number of on-duty resources. However, the relationship between FCFA
and CAL FIRE allows for additional staffed apparatus to be deployed when available, as
part of an automatic or mutual aid agreement. The following figure shows the FCFA and
the immediately surrounding staffed apparatus, along with their respective unit levels.
Figure 124: Available Units
Apparatus FCFA Close Aid
Companies
Extended Travel
Aid
Fire Chief 1
BCs 6611, 6612 & 6613* 1
Engine 6691 3
Truck/Rescue/Brush 2
Engine 6692
(and additional cross-staffed apparatus) 3
CAL FIRE Station 64 3
CAL FIRE Station 63 3
CAL FIRE Station 62** 2
CAL FIRE Station 72 2
CAL FIRE Station 70** 5
SLOFD Station 1 Engine** 3
SLOFD Station 1 Truck** 3
San Luis Ambulances (SLA) 2 ***
Total Available to FCFA 10 8 (plus 2 EMS) 13 (plus multiple
EMS)
* One on duty each day.
** Extended travel times.
*** Multiple ambulances when they are available.
The preceding figure illustrates the challenge of completing a full alarm assignment for a
moderate-risk structure fire promptly. While 18 fire responders are available on paper, the
actual number available depends on unit availability and call volume in other areas.
However, it is possible, with some delays, to fill a complete structure response. Starting units
early will be key to the effective response force's arrival. Fortunately, the CAL FIRE units are
dispatched from the same communications center, and Stations 64 and 63 are
automatically sent in some instances.
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The following figure illustrates the dispatch plan for moderate and high-risk fire and EMS
responses.
Figure 125: Example of the FCFA Fire & EMS Dispatch Plan
Response Type Chiefs FCFA
Engines
FCFA Truck
or Rescue
Aid
Apparatus
Aid Chief
Officers SLA
Structure Fire
Moderate 1* 2 1 1 1 1
Structure Fire High 1* 2 1 7 2 1
EMS Moderate 1* 2 ** 1
EMS High 1* 5 ** 1
* The Fire Chief may be available and would increase the chief response to 2.
**The truck or rescue vehicle may take the place of an engine.
The intent is to build a dispatch model that fulfills the tasking requirement for the various
levels of risk. The following lists indicate what the agency reports as its dispatch
complement of units and personnel versus its identified staffing requirements for different
risk levels.
Figure 126: Emergency Medical Assignments by Risk
Dispatched Apparatus FCFA
Units
FCFA
Staff Aid Units Aid Staff Staffing
Low Risk (ERF staffing = 4)
EMS Units 1 2 2
Totals: Over/(Under) ERF 1 2 0 0 (1)
Moderate Risk (ERF staffing = 9)
EMS Units 1 2 2
Fire Units 3 6 6
Totals: Over/(Under) ERF 4 8 0 0 (1)
High Risk (ERF staffing = 13)
EMS Units 2 4 4
Fire Units 4 9 9
Totals: Over/(Under) ERF 6 13 0 0 0
Maximum Risk (ERF staffing = 17)
EMS Units 4 7 7
Fire Units 4 9 9
Totals: Over/(Under) ERF 8 16 0 0 (1)
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Figure 127: Fire Alarm Assignments by Risk
Dispatched Apparatus FCFA
Units
FCFA
Staff Aid Units Aid Staff Staffing
Low Risk (ERF staffing = 3)
Engine/Pumper 1 3 — — 3
Totals: Over/(Under) ERF 1 3 0 0 0
Moderate Risk (ERF staffing = 18)
Engine/Pumper 2 6 2 4 10
Ladder 1 2 — — 2
Battalion Chief 1 1 1 1 2
EMS — — 1 2 2
Totals: Over/(Under) ERF 4 9 4 7 (2)
High Risk (ERF staffing = 27)
Engine 2 6 6 12 18
Truck/Rescue 1 2 1 4 6
Battalion Chief 1 1 2 2 3
EMS — — 1 2 2
Totals: Over/(Under) ERF 4 9 10 20 2
Maximum Risk (ERF staffing = 42)
Engine 2 6 10 20 26
Truck 1 2 3 9 11
Battalion Chief 1 1 3 3 4
Totals: Over/(Under) ERF 4 9 16 32 (1)
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Figure 128: Wildland/WUI Assignments by Risk
Dispatched Apparatus FCFA
Units
FCFA
Staff Aid Units Aid Staff Staffing
Low Risk (ERF staffing = 6)
Fire Units 3 5 — — 5
Totals: Over/(Under) ERF 3 5 0 0 (1)
Moderate Risk (ERF staffing = 16)
Fire Units 4 8 2 3 11
Totals: Over/(Under) ERF 4 8 2 3 (5)
High Risk (ERF staffing = 56)
Fire Units 4 8 14 58 66
Totals: Over/(Under) ERF 4 8 14 58 10
Figure 129: Technical Rescue Assignments by Risk
Dispatched Apparatus FCFA
Units
FCFA
Staff Aid Units Aid Staff Staffing
Low Risk (ERF staffing = 3)
Fire Units 1 3 — — 3
Totals: Over/(Under) ERF 1 3 0 0 0
Moderate Risk (ERF staffing = 11)
Fire Units 4 8 — — 8
EMS Units 1 2 — — 2
Rescue Units 1 1 — — 1
Totals: Over/(Under) ERF 6 11 0 0 0
High Risk (ERF staffing = 15)
Fire Units 3 7 1 3 10
EMS Units 1 2 — — 2
Rescue Units 1 1 1 2 3
Totals: Over/(Under) ERF 5 10 2 5 0
Maximum Risk (ERF staffing = 24)
Fire Units 4 8 2 5 13
EMS Units 1 2 — — 2
Rescue Units 1 1 1 8 9
Totals: Over/(Under) ERF 6 11 3 13 0
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Figure 130: Hazardous Materials Assignments by Risk
Dispatched Apparatus FCFA
Units
FCFA
Staff Aid Units Aid Staff Staffing
Low Risk (ERF staffing = 3)
Fire Units 1 3 — — 3
Totals: Over/(Under) ERF 1 3 0 0 0
Moderate Risk (ERF staffing = 7)
Fire Units 3 7 — — 7
Totals: Over/(Under) ERF 3 7 0 0 0
High Risk (ERF staffing = 22)
Fire Units 4 8 2 4 12
HazMat Units — — 1 10 10
Totals: Over/(Under) ERF 4 8 3 14 0
Maximum Risk (ERF staffing = 32)
Fire Units 4 9 3 8 17
HazMat Units — — 1 10 10
Totals: Over/(Under) ERF 4 9 4 18 (5)
Figure 131: Aircraft Rescue/Firefighting by Risk
Dispatched Apparatus FCFA
Units
FCFA
Staff Aid Units Aid Staff Staffing
Low Risk (ERF staffing = 7)
Fire Units 3 6 — — 6
Totals: Over/(Under) ERF 3 6 0 0 (1)
Moderate Risk (ERF staffing = 10)
Fire Units 4 9 — — 9
Totals: Over/(Under) ERF 4 9 0 0 (1)
High Risk (ERF staffing = 14)
Fire Units 4 9 1 2 11
Totals: Over/(Under) ERF 4 9 1 2 (3)
Maximum Risk (ERF staffing = 22)
Fire Units 4 9 2 4 13
EMS Units 2 4 — — 4
Totals: Over/(Under) ERF 6 13 2 4 (5)
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One note in these dispatch plans is the extended travel time for any amount over 18
personnel. In some cases, any response with more than 31 required responders may be a
very lengthy response. However, in that case, these travel times may not have a significant
effect on the ultimate outcome of these maximum risk events, as they are already
enormous events to begin with.
Response Time Performance Objectives
There are two primary goals for establishing an effective response force, based on critical
staffing. The first step is to match the incident need with available resources, thereby
creating an efficient methodology for responding to incidents. As evident in the previous
section, aid agreements need to be carefully managed if FCFA is to maintain or improve its
deployment efficiency. The other goal is to determine if your deployment methodology
meets the needs of the incident types and to evaluate its performance.
There are several elements to a response standard. The CFAI recommends creating a
standard, or baseline, and a benchmark, or goal. Both the goal and standard should
include the total response time and major time segments for the first-arriving unit and the
effective response force. Additionally, a complete description of the abilities and
equipment of the first-arriving unit, as well as the makeup and capabilities of the effective
response force.
While NFPA 1710 applies to FCFA, most agencies find it very challenging to meet these
stringent standards, especially when political will and financial constraints are considered.
However, as a goal, the NFPA standards can serve as a practical guide. These standards
are described earlier in the report. To that end, FCFA should consider adopting standards
and associated goals for improvement. These standards should be advertised and
adopted by cities and service districts to ensure that all parties understand what the
standard is, how the agency is performing against it, and what citizens expect for
improvement. This helps guide the chief staff in determining strategic and capital goals to
comply with these standards.
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The following figure illustrates a series of standards that the agency can easily adopt—and
which historical performance shows can be attained — along with some potential goals.
Figure 132: Response Time Standards & Goal Examples
Time Segment Compliance City
Standard City Goal CSD
Standard CSD Goal
Turnout Time 90% 2:40
NFPA
1:00 EMS
1:20 Other
Same Same
Travel Time 90% 6:00 5:00 7:00 6:00
First Due Time 90% 8:20 6:20 9:30 7:20
The first due apparatus would be defined as the first to arrive with appropriate staffing and
equipment to begin addressing the issue. For example, a fire incident would require a fire
engine or truck capable of producing an uninterrupted fire stream of at least 200 GPM,
two firefighters equipped with full personal protective gear, and forcible entry tools. An EMS
incident would require a BLS-equipped vehicle with at least one properly trained provider
and a radio. This ensures that the first unit that counts is capable of initiating care. Allowing
a chief officer’s arrival to “stop the clock” on a fire incident—when that officer cannot
directly mitigate the hazard—creates a misleading picture of performance and does a
disservice to the community.
Using the political subdivision as the basis for measuring performance provides the contract
agency with a clear understanding of the level of service being purchased. If higher
performance is desired, it becomes the responsibility of the chief staff and FCFA leadership
to clearly define the additional resources required to achieve it. This approach also
enables comparison of alternative service proposals, allowing decision-makers to evaluate
effectiveness relative to cost. Unfortunately, there is no single standard that applies to a
system as dispersed, eclectic, and complex as FCFA. Therefore, it will be incumbent on
FCFA to explore appropriate and attainable measures. However, whatever method is
adopted, FCFA should consider establishing specific response performance zones.
Fire agencies throughout the United States establish risk zones based on risk and population
density. Risk or "demand" zones provide a more accurate picture of service delivery
performance. This may be especially relevant for an agency as diverse as FCFA. It will also
help the agency identify areas that may need capital investment to improve performance
in specific areas.
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The preceding response discussion is presented as examples, in the hope that it provides
FCFA with the necessary information to establish response standards and targets. Setting
response standards and performance goals should be viewed as a strategic planning tool
for community loss control. In the case of FCFA, it should help establish whether the current
contractor's performance is satisfactory and what is required to improve it if necessary.
FCFA is encouraged to initiate the process as soon as possible to support future planning
needs.
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OVERVIEW OF COMPLIANCE METHODOLOGY
This Community Risk Assessment: Standards of Cover presents a detailed picture of FCFA's
current performance. However, this is just a starting point for the agency to pursue
improved performance. FCFA will benefit from an ongoing data analysis system to make
the most of the information presented. The approach should be able to demonstrate
performance in a meaningful and actionable way to leadership. Additionally, it should
foster performance transparency for elected officials and citizens.
Designing an analysis system is a time-intensive process that requires significant capital and
talent. Leaders need to understand and engage in data analytics. It will also require FCFA
to identify and assign someone with a penchant for data analytics, statistics, databases,
and mathematics, regardless of the technology used. The Plan-Do-Check-Act framework
presents a conceptual design and implementation approach for an analytical system. This
is known as the Deming cycle of continuous improvement, illustrated in the following figure.
Figure 133: Deming Cycle30
30 www.getvetter.com/posts/129-define-continuous-improvement-8-experts-definitions.
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Plan—Research & Codify
Creating a durable analytic system requires a definition and understanding of what the
data should present, the impacts of the information, and what constitutes the data stream.
Once the descriptions are understood, they must be adopted as policies and acceptable
practices. The following areas are presented for FCFA to consider as they plan for
performance improvement.
Adopt Overall Performance Objectives
The first step for FCFA is to determine the key performance metrics it will monitor and
manage. FCFA does not currently create or publish periodic performance metrics.
Reporting performance, especially in relation to standards and goals, is the first step in the
entire improvement process.
The FCFA, cities, and service district leadership must agree on the performance metrics
they will manage. Again, this document should provide some direction and the foundation
for discussions. Additionally, the time components being managed should align with an
overall service objective or area of focus.
Establish Management Segments
As discussed earlier in the performance section, an emergency incident has several
identifiable segments. By adopting time objectives based on these segments, an agency
can begin to understand how its actions impact the total response time of an incident.
While much of the analytics available for the fire service is based on time, this is not the
only performance metric that can be measured. Each segment can help identify areas
where the performance objective may be other than time, such as quality or prevention.
However, the most widely available and used metrics center around time. Once the time
analysis is mastered, the agency should expand into the less traditional performance
evaluation methods.
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The following figure identifies the emergency incident segment, potential metrics,
applicable NFPA standards, and other comments.
Figure 134: Incident Segments
Segment Key Performance Metric Standard Comments
Normal State Community demographics
N/A
This base state
needs to be
defined. Prevention
mainly affects this.
Incident Initiation Incident Counts Incident Detection
Notification Action PSAP Answer NFPA 1225 Prevention and
Education PSAP Notification
PSAP Interrogation PSAP Transfer & Agency
Answer NFPA 1225 CAD to CAD
agreements Agency Notification
Agency Interrogation Call Processing
Total
Response
Time
NFPA 1225
& 1710 These segments
should be
evaluated at a
minimum. Each
segment should
have an adopted
performance
standard.
FD Notified
FD Unit Dispatched > Turnout Time
> Travel Time NFPA 1710 FD Unit Responding
FD 1st Unit Arrives
FD ERF Dispatched ERF Travel & Total Time NFPA 1710 FD ERF Arrives
EMS To Destination > Destination Travel
> Wall Time N/A Applicable to EMS
transport agencies. EMS At Destination
EMS Clear Destination
FD Units Clear Incident
From dispatch to clear,
total time, this translates
into unit utilization
N/A
Used to evaluate
unit workload and
availability.
Normal State
The outcome of the incident response is the gold standard for
service delivery analytics. However, this advanced study is
outside the scope of this report and requires unconventional
research and analytic methods.
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Continuing to expand on the medical incident example, the time segments for the first-
arriving unit in a medical call include call processing, turnout, travel, and total response
times. However, due to dispatch performance, the PSAP component, FCFA would benefit
from adding the call answer and PSAP transfer time segments as management
components in its formal performance evaluations. That will, of course, need to be
decided by the ECC, the Sheriff's office, and FCFA leadership. While some of the NFPA
standards are challenging to meet, many dispatch centers have met the NFPA 1225
standards. The best approach is to agree on the standards and report performance.
Meeting turnout time standards is a mix of station design, staffing, and crew performance.
FCFA's goal time of 1 minute during the day and 1 minute, 30 seconds at night is an
aggressive but attainable goal. A 2024 performance of 2 minutes, 38 seconds or faster, 90
percent of the time, is a good starting point.
The NFPA goal of achieving a first unit travel time of within 4 minutes, 90 percent of the
time, is an extremely aggressive target. The design and placement of stations play a
significant role in this. However, FCFA could adopt the travel times discussed above. Once
the bridge replacement is complete, it will be a good idea to reassess this segment. Also,
adding a staffed station closer to the Oceano area would be beneficial for that
community. It would add some flexibility for the rest of the jurisdiction.
The effective response force times are going to be a complex subject for FCFA. With a
small staff, they cannot rely on themselves for a full ERF on any incident of significant
complexity. Ensuring there are enough firefighters and equipment in the appropriate area,
whether FCFA or CAL FIRE units, is beneficial for all customers in both jurisdictions. It is
essential for the cities of Arroyo Grande, Grover Beach, and Pismo Beach, as well as the
communities of Oceano and, to a degree, Nipomo, to cooperate and deploy their forces
in a manner that allows for comprehensive coverage of the entire area. While taxation is
often viewed as a negative concept in today's political environment, public safety does
come at a cost.
Performance Specifics
The next step is to define the criteria that satisfy the performance requirements of the
analysis. For example, does the arrival of a chief officer stop the response clock, or is it an
apparatus designed and equipped to address the incident's specifics? Can an ambulance
stop the clock on a structure fire, or is it an apparatus that can begin to address the fire
hazard, like fire attack and water supply? There is no one answer to these questions, and
leadership must define them to meet the community's expectations of performance.
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The apparatus variable may be defined by type or a description of capabilities. If an
engine company's capabilities are well known, then stating a first due apparatus as the
engine company will suffice. However, the definition might be more descriptive if the
engine companies differ in their approach. For example, a complete description might
state, "the first arriving company, capable of providing a minimum of three firefighters,
officers, or engineers, and equipped with an AED and EMT-B firefighters." It will be up to the
agency to clarify this component. However, CFAI expectations are to clearly define the
capabilities of the first arriving and effective response forces. For FCFA medical incidents,
the leadership could adopt the first front-line vehicle, such as an engine, truck, or rescue
apparatus, as the clock-stopping vehicle. This is what will be used in the example.
Another variable that should be defined is geographic limitations. For example, an agency
may state that the travel time for a building within one road mile of the station would be
four minutes, while those more than two road miles away would be ten minutes. FCFA may
also be able to evaluate response areas by political subdivision. A more common
methodology is to assess the area's population density; however, the entirety of the FCFA is
situated in what the ECC describes as an urban environment.
FCFA may add or limit the number of qualifying statements for any incident type. However,
the result is the same: a performance chart based on incident type and perhaps severity,
which includes goals, standards, differences, and references. The following figure illustrates
a potential performance statement based on a single-unit response.
Figure 135: Performance Chart Example
Key Metric Baseline Benchmark Strategic
Improvement Reference
First-due engine or truck performance for first-due fire & EMS incidents in FCFA.
Call Processing 1:15 1:00 ECC and Sheriff's
Dept.
Dispatch
agreement
Turnout Time 2:40 1:00 Day
1:30 Night
Management
initiatives Meets Agency Goal
Travel Time
6:00 (Cities)
7:00 (CSD)
(2024 90th)
5:00 (Cities)
6:00 (CSD)
Routing and
training,
improved roads,
staff station
(CSD)
Reasonable
expectation for the
area
Total Time 9:30 8:00 Turnout time
focus
This is a reasonable
expectation.
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The preceding figure is an example and does not necessarily meet or even follow the
overall performance review standards accepted by FCFA. It does, however, illustrate the
process. This process would be repeated for all the service areas or programs FCFA wishes
to manage with data. For example, as in this risk assessment document, FCFA could
continue to group fire, medical, and other incidents.
One concept to remember is that total response times are not an aggregate of call
processing, turnout, and travel times. Because the evaluation in this case utilizes the 90th
percentile, the baseline incident time segments do not stack vertically, and the total time is
analyzed statistically. In other words, adding call processing, turnout time, and travel time
for all incidents does not necessarily equate to the 90th percentile total response time.
Develop Evaluation Methodology
Now that the performance charts are defined for each incident segment and type, a
methodology should be developed for analyzing the performance. During this step, the
agency should evaluate who can perform the analysis and determine the necessary tools
to complete their tasks. The reporting periods and management expectations from the
reports should also be defined.
It is common for leaders to receive a technical report, such as a statistical evaluation of
performance, and take little action as a result. The primary purpose of these statistical
evaluations is to help leaders determine what to change, add, or leave unchanged to
provide the best service to the community. Unfortunately, technical reports that are not
understood or report irrelevant information are typically useless. Reports are received,
dutifully read, and filed away in a corner or trash can without being connected to the
statistics.
Statistics is not a magic solution. Statistics were developed to provide a reference for
complex issues, making them easier to comprehend. However, inaccurate or misleading
evaluations can cause damage and other problems. For an excellent example of
mathematical systems being inappropriately applied and corrupted by leaders, see the
book "The Fires" by Joe Flood. Statistical measures need to be valid, representative, and
consistently applied.
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At its heart, statistics in emergency services should be designed to add understanding of
historical performance, reported in a way that is consistent and comparable to other
similar agencies. To make this work for FCFA, the leaders must discuss the statistical
measures they will use. For example, they may use the mean or median measures for good
reasons. However, the NFPA and CFAI have adopted a percentile-based approach for
performance analysis, typically using the 90th percentile measure. Therefore, it is up to
FCFA to decide which statistics they use. Since FCFA will likely evaluate itself against
industry standards or other agencies, it should consider continuing with the 90th percentile
measures presented in this document.
When building an evaluation methodology, a key concept is determining what data will
be included in the analysis. There is significant debate within the fire service regarding what
constitutes flawed data or an outlier. Again, the decision on what to include and
potentially exclude is at the discretion of the FCFA leadership. For credibility, these
decisions should be well-documented.
People typically create the errors encountered in the records system. For example,
information in a record may be added incorrectly or left blank. These errors apply to time
fields, code application, narration, and incident specifics that an analyst uses to slice the
data. Since these errors are typically created during the incident record creation process,
incorporating a robust quality assurance and training program is the most effective
solution.
A quality assurance program looks at each incident for errors and unacceptable
performance. Once the incident report is complete, it is placed in a quality check queue.
Someone with knowledge of the call, but not necessarily at the incident, will then review
the report and evaluate it for accuracy. The following list is an example of a minimum
quality assurance review.
• Well-written narratives that are legally defendable.
• All dispatched units added the correct information.
• Incident type matches the incident findings in the narrative or what the quality
evaluator knows to be true about the incident.
• Incorrect date and time-stamped information is corrected through a verification
process.
• Unexpected date and time-stamped information is captured and explained.
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Once the records are accurate, there may still be some data that skews the results
because it contains abnormalities. In this case, an agency may want to disregard these
anomalies in its performance analytics. Suppose the agency defines what records it will
disallow. In that case, those records identified as unexpected can be removed from the
analysis. This outlier policy should be well-documented and not designed to undermine the
agency's credibility. A custom or trigger field can identify the disqualified incident record as
an exception and exclude it from the analysis.
Caution should be taken when removing any record that accurately shows performance.
For example, it seems unlikely that any unit would be able to turn out in zero seconds, so
often that zero data is removed. However, if a crew is contacted directly and initiates the
response, the turnout time would be zero. Therefore, in this case, a zero response indicates
the deployment of units for this incident was very effective. Another example is a long drive
along a road under bad road conditions. While the time may be extensive, it is actual
performance. Therefore, it should be evaluated for what it is: a problematic response.
Considering all the potential anomalies and defining them before any analytics are
completed helps make the analysis more transparent and adds a level of trust.
A secondary method for removing incorrect data is to identify statistical outliers. The
methodology for these changes is based on the shape and variability of the data. For
example, taking 1.5 multiples of the standard deviation may identify those statistical outliers
for data points evenly distributed along a typical distribution curve. On the other hand,
data points with a strong left or right tendency have a different shape. For left or right
tendency data, it may be more appropriate to evaluate those data points that are 1.5
multiples of the inner quartile range as a statistical outlier. Either statistical methodology
can incorrectly remove accurate anomalous information. However, these methods have a
good chance of finding and eliminating incorrect data. The approach chosen becomes a
compromise between absolute accuracy and the time investment required. FCFA may
wish to consult with CAL Fire or other regional fire departments to find a student or a
teacher in the math and statistics courses to help determine these approaches and
methodologies.
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Research and Adopt a Technology for Analysis
One or a few employees typically accomplish initial analysis and development of goals,
identification of capabilities and standards, and general service understanding. These
individuals analyze large datasets, identifying patterns and rules, and answering other
related questions. This can be an enjoyable experience for the right temperament and can
lead to hours of discovery. However, after this initial research, the ongoing reporting and
analysis are dull and repetitive. Therefore, it will be to the agency's advantage to start
researching technological solutions early in the planning stage.
In the age of Microsoft Excel, it is easy to believe that the spreadsheet program is the
ultimate tool for analysis. It is a powerful tool, but the agency should research and adopt
other methods. Typically, this is a homegrown analytics solution using standard business
analytics software or records management analytical systems. Other options include
seeking a third-party fire-service-specific service or hiring external consultants to conduct
the analysis. Consulting reports can be reliable and are often performed by professionals.
However, these reports do not always enable agencies to manage their ongoing
operations promptly.
FCFA should investigate the other technological solutions available to them. Whatever
system FCFA chooses, it should have three primary attributes. First, the system should be
easy to master. Next, any analytic system should provide consistent results from data sets
directly attached to the source. Finally, the system should be highly customizable for the
current service FCFA and what it might provide in the future.
One possibility is to utilize a third-party analytic vendor. This report will not provide vendor
recommendations for third service analytics, as the field is highly competitive and changes
consistently. Many vendors offer similar services but specialize in specific areas, producing
reports and analyses based on their respective areas of expertise. Some of their products
are truly exceptional and create complex calculations. The data they use is typically
directly tied to the CAD data and may miss some of the subtleties of the NFIRS system.
However, suppose FCFA knows how to adopt performance objectives from CAD data. In
that case, the agency may be able to write and manage its performance objectives
appropriately. One warning is that if these vendors go out of business or close their
operations, the codes and mathematical assumptions will also be lost. Additionally, what
they produce is not typically owned by the fire agency. Another common concern is the
high initial and ongoing costs associated with these systems.
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Another possibility is to utilize off-the-shelf analytic systems to create an automated,
researchable, verifiable, and valuable reporting environment for management. Many
vendors offer analytical software solutions, each with its own pros and cons. The current
Gartner Magic Quadrant31 for business analytics software indicates that Microsoft's Power
BI and Salesforce's Tableau are the continuing front-runners in this field. However, many
options exist depending on the agency's operating system environment, budget
requirements, and other available systems. In addition, ArcGIS software, an industry leader
in geospatial analysis, is generally open to fire departments and districts associated with a
city. If one of the participating cities owns a license, ESRI will usually provide a seat license
to all departments. One concern for the homegrown approach is the need for
technologically skilled personnel to create, maintain, and present these reports.
One final option would be to utilize the analytics that are intrinsic or available within the
agency's records management system (RMS). FCFA uses the ImageTrend RMS system for
incident reporting. This company has recently added an analytics package to the Elite
level of service, which appears promising. The system allows for the adoption of specific
rules at a level of detail not readily available in other RMS systems. The concerns would be
cost, the agency's understanding of the mathematics and models, and ImageTrend's
ability to deliver on its intended promises.
Adopt Policies, Procedures, and Systems for Analytics (Standardize)
Once all the above processes, definitions, and systems are evaluated and recommended,
they must be officially adopted. This means capturing policies and procedures in writing. All
analyses created will be considered in accordance with the written rules to ensure
consistency during the analysis period. These documents can be changed as the
improvement process continues. However, the change process also needs to be defined.
In addition, changes should only be made if they can be reconciled with the previous
analytics.
31 www.gartner.com/en/research/magic-quadrant.
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Do—Implement the Plan
Initial implementation of new plans can create dramatic organizational changes with
minimal effort. This is typical because the changes are primarily policy and procedural,
rather than operational. However, as the continuous improvement cycle continues,
implementing and evaluating changes requires more effort and has a less pronounced
impact. However, the most profound changes are usually encountered during these more
difficult cycles.
Implementing the planned analysis systems requires communication and training
throughout the organization. Most fire service organizations have a training system in place
that can be tasked to meet this requirement. However, without adoption by those who
create the reports and those who supervise and quality check the information, the system
will not produce accurate results. Engaging these individuals early and clearly
communicating the expectations and outcomes will yield the best results.
Effective communication means setting clear expectations for those impacted, outlining
both their responsibilities and the outcomes the effort aims to achieve. Explain the
methodologies to be used and create an open environment to help. People who do not
understand the overall strategy of statistical analysis for improvement may not feel
comfortable admitting this. Additionally, those whose actions are being evaluated may
feel insecure and become defensive, which can lead them to attack the process. This
emotional reaction should be anticipated, and steps should be taken to mitigate it,
including the establishment of an open feedback forum.
Personnel may also need ongoing education and training to complete accurate and
representative reports. Additionally, training on new business processes, systems, and
technical infrastructure may be necessary. Efforts should be made to coach people
through the changes and identify those who currently need training, as well as the
positions or individuals that may transition into this process.
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Check—Perform the Analytics
Now that the agency has defined the metrics, established the collection system, and
adopted the analytic methodology, it should begin working on reporting. There are several
levels and types of reports that need to be completed. Additionally, there are different
audiences for every kind of report. Some may go to FCFA’s leadership, some to all FCFA
personnel, and others to the JPA leadership and city councils. The following list is an
example of the reports that will be produced. It will be up to FCFA and the JPA leadership
to approve the content, distribution, and timing.
• Quality assurance information and exceptions,
• Overall time segments analysis by incident type and severity,
• Unit time segment reports by shift, station, and apparatus,
• First due and ERF travel time by geographic area,
• Trend analysis by geographic location, unit, and overall.
The content and timing of the reports will be dictated by the intent of the information. For
example, a daily report would be designed to identify data that may be incorrect and
should be evaluated and potentially corrected. A monthly statement to crews and
leadership may indicate unit performance with trends to improve crew activity. A quarterly
report can be designed and used to track progress toward improvement goals and
initiatives. Finally, annual reports would inform the public and the JPA leadership about the
Department's overall performance, improvements, gaps in service delivery, and potential
needs.
Act—Improve Operations Based on the Analysis
The agency should undergo this evaluation to understand service delivery and evaluate
ways to enhance performance. The first step is to identify areas that could be improved,
whether in a specific geographic location or within a particular unit at a station. Next,
leaders and staff should evaluate which initiatives can be attempted and what the
expected outcomes are. Finally, after the proposal is implemented and a reasonable
amount of time has passed, the analysis is reviewed against expectations. This
comparative analysis enables management to determine if the initiative has achieved the
expected improvements.
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These improvements may require a simple policy change. Conversely, the enhancements
may be as financially prohibitive as hiring new staff or building new stations, and they may
take years to implement. Regardless of the improvement initiative, having solid analytic
proof and definitive performance enhancement goals will improve the overall positioning
and service of FCFA.
Continuous Improvement
This process must be frequently repeated, ensuring that the process and analytics remain
relevant. The intervals will be determined based on findings, initiatives, and systems. Initially,
the method may need to be evaluated monthly or quarterly to ensure the information is
pertinent and valid. However, after the initial build, the entire process will need to undergo
formal evaluation at a less frequent but more defined interval. Utilizing some of the
performance indicators described in the Commission on Fire Accreditation International's
(CFAI) 10th edition of its self-assessment manual may help create a formal review process.
The following list shows a review process based on the CFAI documents.
• Annually, policies and procedures must be reviewed and updated to ensure they
remain current and effective. Therefore, this is an excellent time to ensure the
analytic policies and practices are up to date with the minor changes made within
the year.
• Strategic plans should be produced every 3 years. The strategic plan should
incorporate performance improvement initiatives to enhance overall effectiveness.
At this time, the types and levels of analysis may need to be redefined and
adjusted.
• This Community Risk Assessment: Standards of Cover must be reviewed and
updated every 5 years. The build-up to publishing this document is an excellent
opportunity to determine if the analytics still meet the agency's needs.
Because this process is heavily reliant on policy and documentation, a built-in
standardization step is implemented each time the cycle restarts. There is a reason the
Deming cycle is typically depicted as going up a ramp. Without constant effort, the
process will fall backward, and the organization will be back at the beginning.
Standardization, including the implementation and training of organization members, acts
as a wheel chock. It may not be able to stop backward motion. Still, attention to the
organization and standardization will help keep the ball rolling forward.
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It does not matter what approach the organization chooses to take to continually
evaluate its operations and data. However, the critical concept is that they adopt a formal
method that allows a deep understanding of improvement and guidance. The following
figure is a review of the plan overview presented above.
Figure 136: Methodology Overview
•
•Analyze
•Report
•Review
•Compare
•Review
•Initiatives
•Train
•Implement
•Supervise
•Research
•Adopt
Objectives
•Standardize
Plan Do
CheckAct
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SECTION IV:
Findings & Recommendations
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OVERALL FINDINGS & OBSERVATIONS
This section presents the key findings and recommendations from the Five Cities Fire
Authority (FCFA) Community Risk Assessment and Standards of Cover study. The analysis is
organized into three parts:
1. Observations: Factual details and data points identified during the assessment that
characterize FCFA's current operations, resources, and service environment.
2. Findings: Significant issues or gaps that represent opportunities for organizational
improvement. Each finding is supported by study data and linked to specific
recommendations.
3. Priority Recommendations: Actionable strategies to address identified findings,
ranked by urgency and organized by implementation timeframe. Each
recommendation includes a description, expected outcomes, and estimated costs.
The information is presented in the order it is found throughout the document. The order of
priority is up to the agency, as it must determine whether the recommendation fits its
overall improvement strategy and when, or if, it can be accomplished. Together, these
elements provide a roadmap for enhancing FCFA's operational effectiveness, improving
service delivery, and ensuring long-term organizational sustainability.
Observations
Observations are listed in the order they appear in the document.
• FCFA operates from 2 stations and serves approximately 10 square miles with 38,000
residents across 2 member cities (Arroyo Grande and Grover Beach) and 1 contract
community services district (Oceano CSD, served via San Luis Obispo County
contract as of January 1, 2025).
• FCFA relies heavily on automatic and mutual aid for more complex incidents.
• Personnel costs account for approximately 77% of the FCFA expenditures.
• Member Agencies account for approximately 93% of the FCFA operating
expenditures.
• The City of Arroyo Grande contributes 43%, the City of Grover Beach contributes
31%, and the Oceano Community Service District (OCSD) contract makes up 19% of
member funding. This aligns closely with population distribution.
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• The exit of OCSD from the FCFA raises some uncertainty and challenges for staffing
and the FCFA's financial structure.
• Some FCFA responders serve on regional hazardous materials and urban search-
and-rescue teams, adding specialty training and experience to the community.
• FCFA has a slightly higher percentage of persons aged 65 or older than the state.
• FCFA has a notably high percentage of residents living in one- or two-family
dwellings.
• Wildfire risk in Arroyo Grande is considered significant.
• Flood risk for the member cities of the FCFA is dominated by the Lopez Dam and
100- and 500-year flood events.
• The FCFA has a high earthquake potential.
• FCFA responds to 72% of its incidents between 8 AM and 8 PM.
• The FCFA response area had 4,020 incidents that were not listed as cancelled in
2024:
• This averaged slightly more than 10 incident responses per day, primarily medical
responses.
• The highest number of responses was 29 (on 2/4/2024). Ninety percent of the days
there were 16 or fewer.
• The fewest responses were 1 (occurring 3/10/2024). Ten percent of the days had 6 or
fewer responses.
• The most common number of responses per day (the mode) was 10, with half of the
days having between 8 and 12 responses.
• The Engine 92 crew was the busiest with 1,649 responses in 2024. This is an annual
average unit usage of 7.4%. The apparatus had 70 days, or 20% of days, without any
responses. The maximum number of responses was 16 per day, with the most likely
(mode) value, after zero days removed, being 4.
• FCFA has a 16% chance of running multiple incidents at the same time.
• For the period of 2019 through 2024, FCFA response time components include a
turnout time of 3 minutes, 21 seconds, a first due travel time of 6 minutes, 42
seconds, and a total response time of 9 minutes, 27 seconds or faster, 90 percent of
the time.
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• Even though incident demand is expected to continue increasing, population
growth is unlikely to be noticeable.
• Mutual and automatic aid programs are well established and defined.
• Most incident unit assignments meet the risk level and the assumed responder
needs.
Findings
Findings are separated by each specialty function, and the associated recommendation is
referenced.
Finance
• Maintaining a balanced budget is critical, but reimbursable revenues and
contributions from FCFA member agencies are projected to result in an operating
deficit for Fiscal Years 2024–25, 2025–26, and 2026–27. (Recommendation 1)
• FCFA’s fund balance goal is 10%. Projected operating deficits will bring the
Authority’s fund balance below the goal in Fiscal Year 2026–27. (Recommendation
1)
• Some frontline apparatus and vehicles are identified as being in poor condition. For
that reason, vehicle maintenance costs have increased from $167,000 in Fiscal Year
2022-23 to a projected $275,000 in Fiscal Year 2025–26, an increase of 69%.
(Recommendation 2)
• FCFA uses the City of Arroyo Grande’s CalPERS contract for Authority employees;
upon withdrawal from the Authority, the Member Agencies are liable for their
respective shares of CalPERS liability. (Recommendation 3)
Services Provided
• There is no schedule to inspect all commercial properties. (Recommendation 4)
• Operational fire code permits are not being issued. (Recommendation 5)
• There is no fire and life safety educator to provide risk reduction for the community.
(Recommendation 6)
• Plan review is contracted to a private company. (Recommendation 6)
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• While the FCFA contracts for fire marshal services, it does not have a staff fire
marshal. However, both the cities of Arroyo Grande and Grover Beach name the
Fire Chief as the fire code official, adding to the Fire Chief’s workload and
management responsibilities.32 (Recommendation 6)
• Fire and life safety code inspections are completed by the Engine Companies and
by contract. The engine companies conduct the required multi-family inspections. In
contrast, the contracted inspection services conduct new construction and tenant
improvement inspections and provide technical expertise on fire code standards for
development. (Recommendation 6)
• FCFA does not appear to have a fully vetted or written QI/QA plan.
(Recommendation 7)
• FCFA provides BLS medical services only. (Recommendation 8)
• Approximately 59% of the service demand is for emergency medical incidents, and
FCFA relies on a private company to provide ALS services. (Recommendation 8)
Community Risk Assessment
• Responsibility for the enforcement of the San Luis Obispo County’s weed abatement
ordinance for the OCSD area is not yet addressed. (Recommendation 7)
Standard of Cover
• The station closure in the OCSD area limits the effectiveness of any fire agency in the
area. (Recommendation 9 & Recommendation 10)
• Of the area agencies, FCFA provides the closest coverage for the OCSD area.
(Recommendation 10, Recommendation 12)
• Most of the area cannot be reached by more than 12 personnel, even with mutual
aid companies. This means that most incidents of moderate or high complexity
cannot assemble an effective response force within a reasonable time.
(Recommendation 9, Recommendation 12)
• The closest mutual aid agencies are all part of the Call Fire system, including those in
Pismo Beach and the Nipomo area. (Recommendation 11)
• There is no evidence of a comprehensive regional training program in place.
(Recommendation 11)
32 Arroyo Grande, California Municipal Code, (part 8.04.024) & City of Grover Beach, California
Code of Ordaninces (part 150.041).
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• The agency has not adopted official response performance standards nor identified
any areas of improvement. (Recommendation 12)
• With the current auto aid agreements in place, FCFA would likely be responsible for
the response to OCSD unless another agency opens a station closer to the area.
(Recommendation 13)
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STRATEGIES & RECOMMENDATIONS
Recommendation 1: Incorporate an inflationary adjustment clause into the
resolution adopting the fee schedule, allowing the board to annually adjust fees
through a subsequent resolution.
Description: To ensure that the fee schedule remains aligned with actual costs, the
resolution should include a provision for inflationary adjustments. An annual internal review
process will evaluate whether fees require adjustment based on inflation, service delivery
costs, or other economic factors.
Outcomes: Regular inflationary adjustments will ensure fees keep pace with rising costs,
preventing budgetary shortfalls.
Estimated Financial Cost: None if integrated into the annual budget process.
Recommendation 2: Establish a capital asset replacement fund and funding
strategy.
Description: FCFA attempted to establish a vehicle replacement schedule. However, it
lacks a capital asset replacement fund due to insufficient support from Member Agencies.
Develop a proactive capital asset replacement and funding plan by setting aside funds for
future replacements, rather than seeking financing when capital assets are due for
replacement.
Outcomes: Capital replacement plans allow FCFA to budget for significant expenses in
advance, avoiding budget overruns and potential financial strain. Replacing assets before
they fail can reduce emergency repair costs. Newer, well-maintained assets require less
maintenance, leading to long-term cost savings, improved operating efficiency, and
compliance with safety standards.
Estimated Financial Cost: Cost savings in financing costs, emergency repairs, and
maintenance.
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Recommendation 3: Conduct an annual actuarial update of the respective share of
FCFA’s pensionable balance and develop a funding plan.
Description: An annual actuary update of each member agency’s allocated share of UAL
will provide further transparency and accountability. An annual actuary update provides
transparency and ensures accountability for each member agency’s share of the
Authority’s portion of the pension UAL. Because the Authority does not have its own
contract with CalPERS, its employees are part of the City of Arroyo Grande’s pension plan,
which includes City police and miscellaneous employees.
Outcomes: The actuary's report for the FCFA portion of the pension UAL will provide a clear
picture of the Authority's funding status and each member’s FCFA obligation, enabling the
Authority and each member to develop a funding strategy to ensure the plan’s financial
health and long-term sustainability. In addition, the annual update will provide an
accurate calculation and accounting of each member agency’s assets and liabilities
based on its contributions to the plan.
Estimated Financial Cost: To be determined, the cost depends on the level of analysis
performed by Foster and Foster to memorialize the Oceano Community Services District’s
ongoing share of unfunded CalPERS Liabilities. Since the study's framework has been
established, FCFA will need to expand the scope for the annual update.
Recommendation 4: Develop a schedule to inspect all commercial occupancies.
Description: Currently, the FCFA does not have a formal schedule in place for inspecting all
commercial occupancies, which presents a gap in fire prevention efforts. Without a
structured inspection program, some properties may go unchecked for extended periods,
increasing the likelihood that fire code violations—such as blocked exits, faulty electrical
systems, or inadequate fire suppression equipment—could go unnoticed. These violations
pose serious risks to the safety of building occupants, employees, and first responders.
With available personnel primarily focused on mandated inspections—such as those
required for schools, healthcare facilities, and high-risk occupancies—there are insufficient
resources to conduct regular inspections of lower-priority or non-mandated commercial
properties. As a result, many businesses may not receive the oversight needed to ensure
compliance with fire safety standards.
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Establishing a consistent inspection schedule, supported by adequate staffing and
resources, would help identify and correct hazards before they lead to emergencies. It
would also promote a culture of fire safety within the business community, improve code
compliance, and enhance the overall safety and resilience of FCFA commercial
infrastructure.
Outcome: Developing a risk-based inspection schedule for commercial properties in the
FCFA response area would significantly enhance fire and life safety for both building
occupants and FCFA personnel. By prioritizing inspections based on factors such as
building occupancy type, prior code violations, fire protection systems, and potential
hazards, the department can allocate its limited resources more effectively and focus on
properties that pose the most significant risk to public safety. This targeted approach not
only helps identify and address fire code violations before emergencies occur but also
ensures that high-risk buildings receive the attention they need to remain compliant and
safe. It increases situational awareness for responding crews, who gain up-to-date
knowledge of building layouts, hazards, and fire protection features—ultimately reducing
the risk of injury during emergency operations.
A structured, risk-based schedule enhances consistency and transparency in the
inspection process, thereby building trust with business owners and the wider community. It
promotes proactive compliance, reduces the risk of fire-related incidents, and supports the
department’s broader mission of protecting lives, property, and the environment. Over
time, this approach helps develop a safer, more resilient community while efficiently
utilizing available staffing and resources.
Estimated Cost: The initial costs are for staff time spent identifying all commercial properties
within the service area. Additional expenses will be incurred if current staffing levels are
insufficient to schedule inspections for all commercial occupancies.
Recommendation 5: Inspect and issue operational permits.
Description: Section 105.6 of the California Fire Code outlines the requirement for
operational permits for specific activities and conditions that pose potential fire or life
safety risks. For the Five Cities Fire Authority, this section serves as a regulatory framework to
ensure that businesses and facilities conducting certain operations maintain compliance
with fire safety standards. Permit holders are responsible for maintaining compliance
throughout the year, including proper storage and handling of hazardous materials,
ensuring that fire protection systems are functional, and keeping safety documentation,
such as Material Safety Data Sheets, readily available.
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Outcomes: These permits aim to reduce hazards that could threaten the public or
emergency responders. Issuing an operational permit yields key outcomes that enhance
public safety, ensure regulatory compliance, and facilitate a swift emergency response. It
ensures that the permitted activity complies with the fire prevention code, reducing the
likelihood of fire incidents and protecting occupants and property. Additionally, it creates
a formal oversight system. Requiring permits allows the fire authority to conduct regular
inspections, confirm safety measures, and enforce necessary corrective actions. This
proactive strategy helps identify and mitigate risks before they escalate into emergencies.
Operational permits also serve as legal and administrative tools. They provide proof that a
business or facility is authorized to carry out specific activities, which can be crucial during
audits, insurance assessments, or legal cases. Additionally, they help improve
communication between the fire department and the permit holder, encouraging
collaboration on safety education and emergency readiness.
Recommendation 6: Hire a Fire Marshal.
Description: Hiring a fire marshal for FCFA is a strategic and essential decision that directly
enhances public safety, operational efficiency, and regulatory compliance across the
communities it serves. A fire marshal brings specialized expertise in fire prevention, code
enforcement, and fire investigation, functions critical to reducing the risk of fire-related
incidents and ensuring that buildings and operations meet stringent safety standards.
The fire marshal serves as the Authority’s lead figure in interpreting and applying the
California Fire Code, conducting inspections of commercial, industrial, and residential
properties, and identifying hazards before they become emergencies. This proactive
oversight not only protects lives and property but also reduces the Authority's and its
member cities' liability. In addition to inspections, the fire marshal plays a vital role in
reviewing building plans and permits, ensuring that new developments and renovations
incorporate fire-safe design and systems from the outset. Currently, the fire chief serves as
the primary lead for fire code enforcement, which prevents them from functioning
effectively as the organization's chief.
Outcomes: A fire marshal yields a range of impactful outcomes that strengthen the safety,
efficiency, and resilience of the communities served. An immediate benefit is enhanced
fire prevention efforts. A fire marshal leads the charge in enforcing fire codes, conducting
inspections, and ensuring that buildings and operations comply with safety regulations,
including the state-mandated inspections. This proactive oversight significantly reduces the
likelihood of fire incidents, protecting lives, property, and the environment.
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Operationally, the presence of a fire marshal streamlines permitting processes, such as
those required under Section 105.6 of the California Fire Code. Their expertise ensures that
permits are issued with a clear understanding of associated risks and compliance
requirements, thereby improving administrative efficiency and accountability.
Estimated Cost: The salary and benefits for this position range from $175,000 to $250,000,
depending on the employee's rank.
Recommendation 7: Develop a quality improvement/quality assurance (QI/QA)
plan.
Description: Medical incidents make up almost 60% of FCFA’s responses, and as such, a
QI/QA plan and process are essential to response success. The plan outlines the methods
and procedures for measuring, evaluating, and improving quality and meeting quality
standards. While many of the elements of this plan are in place, there is no formal
documentation. This type of evaluation is critical for an agency that wishes to expand its
service scope to meet community needs.
Outcomes: A documented improvement plan that will help FCFA meet regulatory
requirements.
Estimated Cost: Staff time. It may be rolled into other plans, such as an ALS implementation
feasibility plan.
Recommendation 8: Conduct a detailed feasibility assessment of converting to an
ALS first responder service.
Description: FCFA currently provides emergency medical first response services with basic
life support (BLS) emergency medical technicians. Advanced life support (ALS) services are
provided by a contracted private ambulance service. This can delay the deployment of
needed ALS skills. Enhancing medical service levels at FCFA may speed the delivery of
these necessary services. In addition, adding ALS first responders may have a positive
financial impact, allowing FCFA to collect higher response fees for services provided.
However, it is outside the scope of this report to determine whether the increased
responder fees would offset the higher costs of providing this service.
Outcome: Improve response time and resource allocation for critical care patients
requiring ALS-level care.
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Estimated Cost: Several costs are associated with adding ALS to the response capabilities,
including equipment, training, and pay for certified firefighters. There may be additional
revenue available for providing this service. A detailed feasibility assessment and the
development of a program will require staff time, assistance from the San Luis Obispo
Public Health Department, and input from other medical and financial professionals. In
2025, utilizing a consultant to conduct a feasibility study with an implementation plan was
less than $30,000.
Recommendation 9: Maintain a minimum of 3 companies staffed with three
responders.
Description: Due to the limited resources, the size of the Authority, the risks, and the area
aid obligations, it is critical to have an initial attack of sufficient force and size to mitigate
hazards. It is also essential to assemble an effective response force (ERF) in a reasonable
time. The ERF studies in this report assumed a minimum staff of three on two engines, two
on the truck, and one command officer. Even with this staffing, only in Grover Beach from
6th Street west, to the coast can expect a timely ERF for a moderate-risk structure fire. That
also assumes that all other companies are available throughout the automatic and mutual
aid companies.
Additionally, a crew of two cannot safely begin a response where water and entry are
needed to mitigate the hazard. For safety, an apparatus operator must remain outside
with the engine pumping water or operate a truck during arial operations, further placing
demands and reducing high-hazard operational usefulness of a two-person crew. This
indicates that the prudent course for the fire department is to maintain at least three
effective units, each of which can initiate firefighting operations.
Outcome: To satisfy response requirements, additional staffing is needed to ensure at least
three capable first-due units are available throughout the system at all times.
Estimated Cost: Staffing one additional position for three apparatus, with a minimum staff
of 3, would add the annual burdened salary for a firefighter, including overtime, to
maintain the minimum staffing. This estimates approximately $170,000 per position,
burdened, and includes average overtime filled by the same pay-level employee, as the
average operations employee is absent approximately 20% of the time. Total costs in 2026
are estimated at an additional $500,000, fully burdened, and positions are filled with
overtime due to an absence for the 1 additional firefighter per shift.
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Recommendation 10: Evaluate the best location to support the western and
southern sections of the jurisdiction.
Description: The current station locations are decent for a two-station system. One on each
side of the highway, which can serve as a natural barrier and be far enough apart to
cover a large area while remaining close enough to offer mutual coverage. However, the
southwester portion of Arroyo Grande, north of The Pike, is not in an optimal service area.
There appear to be two options and two immediate future states to discuss. The first option
for FCFA is to either add a station to cover the area or to move the Grover Beach station
further east on East Grand Avenue. Optimal coverage appears to be in the area along
East Grand Avenue, between South Oak Park Boulevard and Elm Street. As long as FCFA
remains an authority rather than merging the two city departments into a Fire Protection
District, the Grover Beach community will likely not favor moving a station out of the city,
which limits a station move to East Grand Avenue or west of South Oak Park Boulevard. This
is also an opportunity for the City of Grover Beach to determine whether additional city
space is needed or whether consolidating city facilities would be a better option for
citizens. In this case, a combined city building, such as police, or city hall, and a fire station
would share some of the costs of a new station.
Another consideration, although less critical to the Authority, would be OCSD's contractual
requirements. If the expectation is that FCFA maintains the required service coverage, an
additional station, optimally near The Pike and Elm Street, would add the needed
coverage for the cities and improve coverage to the south.
Outcome: Create capital facilities that improve coverage for both cities within the FCFA
and enhance coverage in the OCSD area.
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Estimated Cost: Because the cost of a fire station project is subject to many different
influencing factors, the estimate provided here is based on generic costing found in an
internet search and is as of December 15, 2025. The items listed in the standard cost guide
include site acquisition (from 11% to 21% of total cost), construction from 800 to 12,000
square feet (from 50% to 56% of total cost), additional equipment and apparatus
(approximately 18%), permits and fees (approximately 2%), design and engineering
(approximately 7%), and allowing for a contingency (approximately 5%).33 From this list,
FCFA should expect to spend between $14,755,000 for a moderately sized station with land
and $57,780,000 for a larger, well-equipped station with land. These final cost estimates
include an additional 130% to 180% increase due to California area cost premiums.34
Recommendation 11: Work with regional partners to develop a regional training
program.
Description: FCFA and the surrounding agencies rely heavily on automatic and mutual aid
to provide enough responders and equipment to mitigate more complex incident types.
These are high-risk, low-frequency events that can be dangerous and lead to significant
losses. To efficiently capture and utilize these responders, it is vital to plan, educate, and
exercise these events before they are needed. This requires an aggressively managed
planning and training program for commanders, communicators, and responders. It is so
critically important that it is mentioned in section I, paragraph C, of the automatic aid
agreement between FCFA and the Cal Fire fire departments in the area. The first step is to
develop a regional plan, a training program, and a calendar.
Outcome: Continuously improved inter-agency emergency response.
Estimated Cost: This will require staff time and attention, but no additional costs. Overtime
costs may be incurred if off-duty training or backfill for training companies is approved.
33 latestcost.com/fire-station-construction-cost/
34 bidsanalytics.com/construction-cost-variations-by-region-why-your-project-costs-more-in-some-
states/
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Recommendation 12: Adopt and periodically report response service standards
and goals.
Description: Response standards are an agreement between the fire authority, the fire
service providers, and the citizens that clarify expectations. These standards are the
minimum an agency must meet to provide an effective service. Currently, FCFA has no
adopted response-time standards to provide management with guidance on resource
deployment. Knowing what the agency can accomplish will enable it to publish standards
and performance metrics for transparency and accountability. This also allows
management and elected leaders to judge where scarce assets and capital resources
should be focused to meet community expectations. For FCFA, the recommendation is to
adopt first due apparatus type and arrival time standards, and to show the incident time
segment parts. This standard is the current baseline minimum performance, based on the
2023 and 2024 performance. Breaking incidents into specific segments enables goal-based
management.
Setting goals helps management and authority leadership determine where capital and
assets can be utilized to improve service to the community. Using a time-based goal helps
citizens understand what is hoped to be gained from additional investment in time and
resources. A proven approach is to establish achievable goals utilizing the SMART
methodology (specific, measurable, attainable, relevant, and time-bound). Setting initial
goals based on standards, such as NFPA 1710, is defensible but perhaps not feasible.
Therefore, the agency should adopt attainable goals. The following indicates realistic
response standards based on 2023 and 2024 performance, and suggested goals based on
what appears achievable.
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Figure 137: Performance Statements
FCFA Incident Response Performance Statements
Fi
r
e
,
H
a
z
M
a
t
,
Te
c
h
n
i
c
a
l
R
e
s
c
u
e
For emergency Fire, HazMat, and Technical Rescue incidents, FCFA will
respond within 9 minutes and 45 seconds or faster, 90 percent of the time.
The first due response will have a minimum of three responders, capable and
equipped to enter a hazardous environment with positive-pressure airway
protection and a minimum of level C protective garments. For incidents
involving fire or hazardous materials, the apparatus will carry a minimum of
300 gallons of water and be capable of pumping 1,000 gallons per minute at
a minimum of 150 PSI. Responders will maintain two-way radio
communications at all times.
Wi
l
d
l
a
n
d
For emergency Wildland Interface and Vegetation incidents, FCFA will
respond within 9 minutes and 45 seconds, 90 percent of the time. The first
due response will have at least two responders, capable and equipped to
safely start, at a minimum, an indirect attack. The apparatus will carry a
minimum of 400 gallons of water and be capable of pumping 50 gallons per
minute at 100 PSI. Responders will be able to set up a command structure
and maintain two-way radio communications at all times.
Me
d
i
c
a
l
For emergency Medical incidents, FCFA will respond within 9 minutes and 15
seconds or faster, 90 percent of the time. The first due response will include at
least two responders, capable and equipped to provide basic life support.
Responders will maintain two-way radio communications at all times.
For all non-emergency incidents, FCFA will respond within 11 minutes and 30
seconds or faster 90 percent of the time. The first arriving unit will have at least one
responder able to maintain two-way radio communications.
FCFA Performance Reporting
Frequency: Annual Due By: End of 1st Quarter
Deliver To: Public Report through the Fire Authority Board
Minimum Components
Incident Volume In District Out of District Type
Time Components Standard Goal Notes
Call Processing 106 seconds;
90th Percentile
106 seconds;
90th Percentile
By contract with
ECC. Based on
NFPA 1225.
Turnout Time
(Emergency, in
District)
2 Mins & 44 Secs
90th Percentile 2 Minutes
Improvement
through crew
awareness, policy,
and supervision.
Travel Time
(Emergency in
District, First Due)
Member Cities: 6 Mins & 35 Secs
Contract Areas: 8 min & 13 Secs
90th Percentile
Improvements are
strategic, including
where stations are
located.
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Outcome: By adopting and reporting on performance, residents will know what they can
expect, and managers will know when the system is stressed and not working to its full
potential.
Estimated Cost: Primarily staff time and costs associated with training a staff member in
analytics and reporting. Potentially additional software, additional features, or functionality
from the Image Trend records management system.
Recommendation 13: Ensure automatic and mutual aid responses continue to
support all agencies' response requirements.
Description: While extremely valuable for the regional fire and emergency services
protection in the area, the automatic aid agreement has had the effect of shifting some of
Cal Fire’s responses to FCFA. In 2024, FCFA, as discussed, the future of the OCSD contract is
in question, and while working under a contract, it will remain so. For FCFA, what must be
taken into account is the continued automatic aid agreements, especially if Cal Fire takes
over the OCSD contract. Historically, FCFA has provided more aid than it has received. In
2024, FCFA responded to 210 Auto Aid assignments, 43% in Pismo Beach and 32% in the
area between FCFA and the Cal Fire Mesa Station.
If Cal Fire takes over the contract from OCSD, FCFA stands to lose significant financial
benefits. At the same time, the auto aid agreements bind them to respond to the same
number of incidents. It may become a burden on FCFA to cover not only its own area of
responsibility but also a large proportion of those in OCSD and the auto aid areas directly
to the south, when the reduced financial position may endanger the number of staff
available to respond from FCFA.
The current situation is not beyond FCFA's ability to support, and the resources Cal Fire can
bring to an emergency event are more than likely to outweigh the current lopsided aid-
given-versus-aid-received ratio. Maintaining this level of support, especially with FCFA
retaining the financial benefit of the OCSD, is the most beneficial scenario. If the financial
benefit of the contract were to change, it would alter the balance and mutual support
capacities of FCFA. This is, of course, alleviated if Cal Fire opens a station in or near the
OCSD.
Outcome: Maintaining an automatic and mutual aid program that benefits the residents of
both the county fire department and FCFA without overly burdening either agency with
emergency responses as identified in the auto aid agreement.
Estimated Cost: No costs if current agreements are maintained.
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SECTION V:
Appendices
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APPENDIX A: STAKEHOLDER INTERVIEWS
Introduction to the Stakeholder Interviews
Triton interviewed various internal and external stakeholders of the Five City Fire Authority
(FCFA). These interviews aimed to better understand issues, concerns, and options
regarding the emergency service delivery system, opportunities for shared services, and
community members' expectations.
It is important to note that the information solicited and provided during this process was in
the form of "people inputs" (stakeholders individually responding to our questions), including
perceptions reported by stakeholders. All information was accepted at face value without
an in-depth investigation of its origin or reliability. The project team reviewed the
information for consistency and frequency of comments to identify specific patterns
and/or trends. Multiple sources enhanced the credibility of the observations, and the
information provided was sufficient to be included in this report.
Stakeholders were identified within the following groups: Elected Officials, County
Management, Department Heads, Chief Officers, Labor Leaders, Volunteer and Career
Rank & File, Businesses, Community Groups, Community Members, and Other Volunteers.
The following summarizes the answers to the questions. In addition, specific concerns that
appeared to be a common theme are identified.
Feedback Review by Question
Question 1: What strengths contribute to the success of the Fire Authority? (What does the
Five Cities Fire Authority do well?)
Key Themes:
▪ Adaptability and organizational evolution from three separate communities into
one unified authority
▪ Strong personnel engagement, motivation, and community connections
▪ Quality of emergency response services and efficient use of limited resources
▪ Improved leadership and labor-management relationships
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Summary Narrative:
Respondents consistently identified the organization's ability to adapt and evolve as a
fundamental strength. Multiple interviewees noted the successful transition from three
separate communities into one unified authority, with the organization demonstrating
flexibility through various staffing models and operational changes since 2010. The
personnel were described as engaged, motivated, and progressive, with several
respondents characterizing the workforce as the "heart and soul" of the organization.
The quality of service delivery was frequently mentioned as a strength. Respondents noted
good response times, high-quality EMS service, and effective fire suppression capabilities.
The organization's ability to accomplish substantial work with limited resources was
emphasized by multiple stakeholders, with comments about efficiency and budgetary
constraints. Community connections were highlighted as particularly strong, with personnel
having deep ties to the communities they serve and actively participating in community
events.
Several respondents noted leadership improvements. The current leadership was
characterized as bringing operational knowledge, local understanding, and a clear vision
for the organization. Interviewees mentioned improved labor-management relations,
greater cooperation among agencies within the joint powers authority, and increased
transparency. Several respondents noted that the Fire Chief's engagement with city
leadership and attendance at city staff meetings has strengthened organizational
relationships. The transition in leadership from a more politically-focused to an
operationally-focused approach was viewed as beneficial for internal cohesion and
service delivery.
Question 2: What are some areas in which you think the Fire Authority could make
improvements?
Key Themes:
▪ Staffing levels and resource allocation
▪ Policy and procedure development, consistency, and implementation
▪ Training program consistency and coordination
▪ Organizational culture and communication
▪ Fire prevention services and programming
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Summary Narrative:
Staffing emerged as the most frequently mentioned area for improvement. Respondents
expressed concerns about minimum staffing levels, the impact of cross-staffing on risk, and
challenges created by multiple work assignments without adequate support personnel.
Several interviewees discussed the need for competitive wages and aggressive
recruitment to maintain sufficient staffing levels. The workload distribution and perceived
lack of promised workload reduction following the addition of battalion chiefs were also
noted.
Policy and procedure development was identified as a significant improvement area by
multiple respondents. Interviewees mentioned the need for consistency in policies, more
straightforward operational guidelines, and improved follow-through in implementation.
The transition from informal guidelines to formally adopted policies was discussed, with
specific mention of using platforms such as Lexipol. Training consistency was linked to
policy concerns, with respondents noting the need for more coordinated training across
shifts and for standardized practices, such as hose-loading procedures.
Organizational culture and communication presented opportunities for improvement,
according to several stakeholders. Respondents noted that three distinct cultures from the
original agencies remain present, with newer employees absorbing culture from older
generations. Messaging consistency between shifts and improved communication
between the authority and the two cities were mentioned as areas needing attention.
Several interviewees discussed the need for better public engagement, community
outreach, and education about the fire authority's role and costs.
Fire prevention was explicitly identified as an unresolved issue requiring attention.
Respondents noted a disconnect between city-contracted prevention services and actual
needs. They suggested establishing an in-house fire prevention position or bureau.
Additional improvement areas mentioned included the need for strategic planning
documents, such as a master plan or an updated strategic plan; better project
management and higher completion rates; improved funding consistency and
mechanisms; and enhanced branding and public perception of the organization.
Question 3: What opportunities, in your view, are available to improve the service and
capabilities of the Fire Authority?
Key Themes:
▪ Advanced Life Support (ALS) service expansion
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▪ Fire prevention bureau establishment and fee-based services
▪ Staffing model changes and station location optimization
▪ Grant funding opportunities
▪ Enhanced training and partnerships
Summary Narrative:
Advanced Life Support capability was the most frequently mentioned service
improvement opportunity. Multiple respondents discussed the potential for ALS engines or
first-due ALS response, with several noting that the authority is surrounded by ALS providers
and that growth in this service area would be beneficial. Some interviewees connected
ALS expansion to better resource triage and more appropriate use of the firefighter brand
in emergency medical responses.
Establishing a fire prevention bureau and capturing fee-based inspection revenue were
identified by several stakeholders as both service improvements and revenue
opportunities. Respondents mentioned the State Fire Marshal program, in-house prevention
positions, and fee-based inspections as specific possibilities. The authority's role in creating
fire-resilient communities through prevention messaging and mitigation efforts was also
discussed.
Staffing and operational model improvements were frequently mentioned. Opportunities
identified included addressing overall staffing levels, reducing or eliminating cross-staffing,
optimizing station locations, and developing consistent first alarm assignments. Several
respondents discussed grant opportunities, particularly SAFER grants for staffing and wildfire
prevention funding.
Training enhancements and partnership development were also identified as opportunities.
Respondents mentioned interagency training opportunities, continuous training to keep
personnel engaged and excited, and specific wildland-urban interface response training.
Partnership opportunities included working with Cal Poly, Hancock Fire, service
organizations, and educational institutions for recruitment and community messaging. The
use of a community academy or similar public engagement programs was suggested to
improve understanding of firefighter roles and support recruitment efforts.
Question 4: What do you see as the top three critical issues faced by the Fire Authority
today?
Key Themes:
▪ Staffing levels and sustainability
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▪ Funding stability and mechanisms
▪ Geographic coverage and response times
▪ Training consistency and safety procedures
▪ Organizational culture and communication
Summary Narrative:
Staffing was identified as a critical issue by the majority of respondents. Concerns included
overall staffing levels, minimum daily staffing (9 personnel), administrative and operational
staffing adequacy, impacts on call volume, and the absence of a prevention department.
Several interviewees connected staffing challenges to overtime usage, deployment to
outside incidents, and concerns about personnel exhaustion and local coverage during
wildfire season.
Funding emerged as the second-most-common critical issue. Respondents discussed
funding stability, consistency of funding mechanisms, and the complexities of the joint
powers authority's financial structure. The unequal financial health between the two cities
and challenges with governmental support from city councils were mentioned. Some
stakeholders noted concerns about long-term financial sustainability and the need for fund
balance policies.
Geographic coverage and response capability were frequently identified as critical issues.
Station locations, particularly the closure of Station 3 in Oceano, were discussed as
affecting service coverage for multiple communities. Response times, first-due area
boundaries, and the impact of the Oceano bridge closure on operational effectiveness
were mentioned. The East boundary between city and county jurisdictions was noted as
sometimes unclear, even to emergency services personnel.
Training consistency, safety procedures, and policy development were identified by
several respondents as critical issues. Concerns included clear expectations and processes,
policy versus guideline implementation, and overall safety consistency. Organizational
culture was mentioned by multiple interviewees as a vital issue, with references to the
mindset, the cultural integration of the three original agencies, and internal
communication challenges.
Additional critical issues identified included fire prevention service gaps, contractual
complexities, particularly involving Oceano and Cal Fire, community awareness and
outreach, Advanced Life Support capability, mutual aid philosophy, and over-
commitment to outside deployments, and jurisdictional coordination challenges.
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Question 5: If you could change one thing in the Fire Authority, what would it be??
Key Themes:
▪ Reopening and staffing Station 3 in Oceano
▪ Advanced Life Support capability implementation
▪ Fire prevention bureau establishment
▪ Policy and procedure formalization
▪ Staffing increases and compensation improvements
Summary Narrative:
Station 3 reopening was mentioned by multiple respondents as the single change they
would prioritize. The station is currently closed due to infrastructure concerns. Still, its
reopening would significantly enhance service coverage for Oceano, Grover Beach, and
Arroyo Grande. The recent closure of the Oceano bridge was noted as presenting
additional operational impacts. However, staff had been temporarily redeployed to
maintain coverage.
Several respondents identified Advanced Life Support capability as their priority change.
This was connected to improved patient outcomes, better service to the community, and
addressing what one interviewee characterized as a "huge disservice" to residents without
ALS availability.
The transition from informal guidelines to formally adopted policies was identified as a
critical change. Respondents discussed the use of informational bulletins as interim
communication tools. They noted that the organization previously relied on Arroyo
Grande's host city policy, which was punitive and not tailored to the fire service or state
law. The development of agency-specific policies was identified as essential, and current
leadership was credited with catalyzing this transition.
Fire prevention services and establishing a prevention bureau were identified by some
stakeholders as their single priority change. Additional items mentioned included
compensation and recruitment improvements to address affordable housing challenges
and staff living outside the jurisdiction; reductions in administrative burden on minimal staff,
particularly during peak workload seasons; and improved clerical support to enhance
operational efficiency.
Question 6: On a scale of 1-10, 10 being excellent, how would you rate the relationship
between the citizens and the Fire Authority?
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Key Themes:
▪ Limited public awareness and understanding of FCFA's role
▪ Positive response satisfaction, but disconnected from resource constraints
▪ Need for improved outreach and public education
▪ Community appreciation is present but not widespread
Summary Narrative:
Ratings for citizen relationships ranged from 4 to 10, with most responses falling between 7
and 9. The lower ratings (4) were attributed primarily to poor public outreach and
insufficient public understanding of the authority's structure, role, and funding. Multiple
respondents noted ongoing confusion about the agency's name and organizational
structure, and inadequate historical city support has contributed to limited public
awareness.
Mid-range ratings (7-8) were explained by respondents as reflecting a disconnect between
public satisfaction with emergency response and lack of awareness regarding resource
and staffing constraints. Several interviewees noted that participation in public events
generates positive community appreciation. Still, the broader public remains disconnected
unless they directly need services. The community was characterized as satisfied with the
response but unaware of operational challenges.
Higher ratings (9-10) came from respondents who focused on direct service interactions
and noted no major complaints from the public. These respondents acknowledged
community appreciation and characterized the relationship positively based on service
delivery quality. However, even those providing higher ratings acknowledged room for
improvement in public outreach and community engagement.
Question 7: On a scale of 1-10, 10 being excellent, how would you rate the relationship
between management and labor within the Fire Authority?
Key Themes:
▪ Significant improvement from previous leadership
▪ Good mutual respect and family-like atmosphere
▪ Positive impact of the battalion chief and the chief's changes
▪ Strong but continuing to improve
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Summary Narrative:
Ratings for management-labor relationships ranged from 7 to 10, with most responses at 8
or higher. All respondents who provided specific ratings characterized the relationship as
good or better, with notable improvement trends mentioned.
Multiple interviewees specifically referenced improvements since leadership changes,
notably the addition of new battalion chiefs and the current Fire Chief. The relationship was
characterized by mutual respect, with one respondent comparing it favorably to previous
agencies and describing it as "like a family." Several stakeholders noted that while the
relationship is strong, it continues to improve and has room for further development.
The rating of 7 was described as "fair," but with notable improvements from previous
leadership recognized. Higher ratings (8-9) reflected strong relationships with
acknowledgment that progress continues. The single rating of 10 highlighted the positive
change from previous organizational structures and the family-like atmosphere currently in
place.
Question 8: On a scale of 1-10, 10 being excellent, how would you rate the relationship
between the city governments (Arroyo Grande & Grover Beach) and the Fire Authority?
Key Themes:
▪ Marked improvement in recent relationships
▪ Variable based on budgetary and political factors
▪ Differing perspectives between leadership and line staff
▪ Fire services are viewed as a necessary expense
Summary Narrative:
Ratings for relationships with city governments ranged from 5 to 9, with greater variability
than for other relationship questions. The most common ratings fell in the 6-9-point range,
indicating diverse perspectives among stakeholders.
Lower ratings (5-6) were attributed to city boards viewing fire services as a "necessary evil"
expense, and relationships sometimes being driven by convenience for the cities.
Engagement was described as improving, but with historical challenges. Line staff
perspectives differed from leadership perspectives: staff noted limitations due to city
politics and unequal financial health between the two cities, while leadership rated the
relationship higher due to budgetary factors.
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Higher ratings (9) reflected marked improvement and recent budget cooperation. One
respondent noted that previously, external fundraising was needed for basic training
materials, but current relationships have improved significantly. Multiple interviewees giving
ratings of 9 acknowledged some "back and forth" but characterized the overall
relationship as positive and improving.
Question 9: On a scale of 1-10, 10 being excellent, how would you rate the relationship
between the Fire Authority and CAL Fire?
Key Themes:
▪ Strong operational/floor-level relationships
▪ Strained management and contractual relationships
▪ Oceano contract creating tensions
▪ Recent decline in administrative-level cooperation
Summary Narrative:
Ratings for CAL Fire relationships showed the widest variation of any question, ranging from
5 to 8, with most responses at 5 or 8, depending on whether respondents focused on
operational or administrative relationships.
Multiple respondents distinguished between operational and administrative levels of the
relationship. Floor-level and boots-on-the-ground relationships were consistently described
as strong, with ratings of 8 or higher. Good working relationships between operational staff
were noted, with frontline firefighter cooperation characterized positively.
Management and political relationships were rated significantly lower (5) by multiple
respondents. Administrative-level interaction was described as limited, with tensions
particularly around contracts and staffing models. The Oceano situation was explicitly
mentioned by several interviewees as a source of strain. One respondent noted that the
relationship at higher levels had recently declined from "amazing" 6 months before, 5, while
floor-level cooperation remained high at 8.
Remnants of old rivalries between agencies were reported to still be present among some
personnel. However, they do not affect operational cooperation. Several respondents
noted that contractual arrangements and county service district issues continue to create
management-level challenges even as operational relationships remain productive.
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Question 10: On a scale of 1-10, 10 being excellent, how would you rate the level of
emergency services provided by the Fire Authority?
Key Themes:
▪ High quality given resource limitations
▪ BLS-only status is viewed as a significant service gap
▪ Staffing constraints affecting response capability
▪ Professional, well-trained, responsive personnel
Summary Narrative:
Ratings for emergency service level ranged from 3 to 9, with most responses between 7
and 9. The variation reflected different priorities and perspectives on service adequacy.
The lowest rating (3) was based on staffing and response times falling short of standards,
and on the absence of Advanced Life Support capability, which was characterized as a
"huge disservice." This respondent provided specific examples of recent critical incidents in
which delays in backup or ambulance arrival during concurrent calls resulted in patient
deaths, with ambulance arrival times extending to 15 minutes.
Mid-range ratings (7-8) reflected high quality given current limitations. Respondents who
provided these ratings acknowledged that personnel quality, training, and professionalism
were strong but expressed dissatisfaction with the BLS-only status and understaffing.
Captains in particular noted frustration with service limitations despite high-quality
personnel.
Higher ratings (9) focused on the responsiveness, training quality, and professionalism of
staff. These respondents characterized the service as well-delivered within current
parameters. One interviewee specifically noted that broader emergency communication
issues, such as a recent water contamination event, were county-level problems rather
than failures of the fire department. Several respondents pointed out that fire prevention
services would rate lower than operational emergency response if assessed separately.
Additional Context: Specific Issues and Concerns
Station 3 (Oceano)
Multiple respondents noted that Station 3 is currently closed for operational reasons and is
unfit for service delivery. Reopening this station was identified as significantly enhancing
service coverage for Oceano, Grover Beach, and Arroyo Grande. The recent closure of
the Oceano bridge was noted to have operational impacts. However, it is too recent to
affect current data sets.
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Wildfire Risk
Ongoing wildfire concerns were mentioned by several stakeholders, particularly from an
insurance standpoint. While respondents noted the area is not in a "super high" wildfire
zone, they expressed a desire for more robust mitigation efforts and community
involvement in wildfire preparation.
Overtime and Deployment
Interest was expressed in analyzing overtime usage versus full staffing, with concerns about
cost-effectiveness and personnel exhaustion. Specific concerns were noted about the
wildfire season, when many staff may be deployed elsewhere, potentially compromising
local coverage and community protection.
Jurisdictional Complexities
East boundaries between city and county jurisdictions were noted as sometimes unclear,
even to emergency services. Contractual tensions, particularly involving Oceano and Cal
Fire, were described as affecting resource allocation and financial management.
Mutual Aid Philosophy
Some respondents criticized overcommitment to outside firefighting deployments and
statewide wildfire assignments when such commitments leave the local community
inadequately protected. A community-first philosophy for mutual aid decisions was
advocated.
Policy Development Process
The transition from informal guidelines to formally adopted policies was discussed by
multiple respondents. The use of informational bulletins as interim communication tools was
noted. Previous reliance on the host city (Arroyo Grande) policy was described as punitive
and not tailored to the fire service or state law, and new agency-specific policies have
been developed. Current leadership was credited as a catalyst in this policy development
transition.
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APPENDIX B: RISK CLASSIFICATION
The following are the risk classifications determined by incident type.
Fire
Low-Risk Incidents
These incidents are considered low risk and are minor in scope and intensity. It takes only
one fire apparatus and crew to handle fires involving passenger vehicles, fences, trash or
dumpsters, downed power lines, residential or commercial alarm investigations, or an odor
investigation.
Moderate-Risk Incidents
These incidents are the initial alarm responses needed to handle a moderate-risk fire
incident. They include smoke inside a building, small outdoor fires, commercial vehicle fires,
a single-family home, lightning strikes on a building, automatic fire alarms at high-risk
occupancies, or a hazardous materials pipeline fire.
High-Risk Incidents
These incidents require a second alarm response to handle a high-risk fire. They include
smoke in high-life-hazard buildings (such as schools or skilled nursing facilities), residences
with injured or trapped victims, multi-family apartments, or moderate-sized commercial or
industrial sites.
Maximum-Risk Incidents
A third alarm response is required for managing a maximum-risk fire incident. These
incidents include a hospital, assisted living facility, fire in an apartment building, high-rise
building fire, large commercial or industrial occupancy, hazardous materials railcar, or
storage occupancy. Incident assignments will involve additional command personnel,
rotating off-duty staff, and mutual aid assistance for other critical tasks.
EMS Risks
Low-Risk Incidents
A single EMS unit can handle a low-risk EMS incident such as assessing one patient with a
critical injury or illness, a non-life-threatening medical call, a lift assist, or standby.
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Moderate-Risk Incidents
A two-unit response is necessary to control or mitigate a moderate-risk EMS incident. It
involves assessing and treating 1–2 patients with critical injuries or illnesses, or responding to
a motor vehicle crash with 1–2 patients.
High-Risk Incidents
A multiple-unit response is necessary to manage or reduce a high-risk EMS incident. It
involves 3–8 patients with injuries that vary from minor to critical. Patient care includes
triage, BLS/ALS treatment, and coordinated patient transport.
Maximum-Risk Incidents
A multi-unit response is necessary to manage or reduce the risk of a maximum-risk EMS
incident. It involves more than nine patients with injuries ranging from minor to critical.
Patient care will include triage, BLS/ALS treatment, and coordinated patient transport. If
this is an active shooter incident, a casualty collection area unit might be needed to treat
patients outside the hot zone.
Technical Rescue
Low-Risk Incidents
A single fire unit can handle a low-risk technical rescue incident involving minor rescues
such as a child locked in a vehicle, an elevator entrapment, or a small mechanical after-
hours rescue.
Moderate-Risk Incidents
A two-unit response is necessary to manage or reduce a moderate-risk technical rescue
incident. Support from a technical rescue team is typically not needed. This type of
incident involves a motor vehicle crash requiring patient extrication, the removal of a
patient tangled in machinery or other equipment, or a person trapped by fallen power
lines.
High-Risk Incidents
A multiple-unit response is needed to manage or reduce a high-risk technical rescue
incident. Such incidents may involve comprehensive technical rescue efforts, including
structural collapses or swift-water rescues. They might also involve multiple motor vehicles
that need extrication, commercial passenger buses, or a vehicle colliding with a building.
Support typically comes from a technical rescue team. These incidents may require
multiple alarms.
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Maximum-Risk Incidents
A multi-unit response is needed to manage or reduce a maximum-risk technical rescue
incident. Support from a specialized technical rescue team is essential, and the incident
may involve multiple operational locations. This type of incident includes full-scale
technical rescue efforts, such as victims trapped or endangered by structural collapses,
swift water, or earth cave-ins. It will require multiple alarms and could extend beyond the
initial critical tasks. During a disaster or when additional alarms and command personnel
are necessary, off-duty personnel may be recalled, or assistance from automatic or mutual
aid may be requested.
Hazardous Materials
Low-Risk Incidents
A single fire unit can handle a low-risk hazardous materials incident involving carbon
monoxide alarms and other unknown hazmat investigations without symptomatic victims.
This includes incidents involving less than 20 gallons of fuel, a natural gas meter incident,
downed power lines, equipment issues, electrical problems, or attempted burning.
Automatic alarms that may originate from a hazardous materials incident.
Moderate-Risk Incidents
A two-unit response is needed to control or mitigate a moderate-risk hazardous materials
incident. Usually, direct support from a hazardous materials team is not necessary. This type
of incident includes a carbon monoxide alarm with symptomatic patients, a fuel spill of 20–
55 gallons, or a gas or petroleum product pipeline break that does not threaten any
exposures.
High-Risk Incidents
A multi-unit response with a hazmat team is necessary to control or mitigate a high-risk
hazardous materials incident. Support is required for a Level 2 hazmat event that involves
setting up operational zones (hot, warm, cold) and assigning multiple support divisions and
groups. This response covers a hazardous materials release with 3–8 victims, gas leaks in a
building, hazmat alarm alerts with victims, flammable gas or liquid pipeline ruptures with
exposures, fuel spills over 55 gallons, fuel spills in underground drainage or sewer systems,
transportation or industrial chemical leaks, or radiological incidents. Additional help may
be needed to extend operations beyond the critical tasks identified.
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Maximum-Risk Incidents
A multi-unit response is necessary to manage or contain a maximum-risk hazardous
materials incident. Support from an on-duty hazmat team and their specialized equipment
is required. This type of incident involves setting up operational zones (hot/warm/cold) and
deploying multiple support divisions and groups. Examples include nine or more
contaminated or exposed victims, a large storage tank failure, a hazmat railcar failure, or a
weapons of mass destruction incident. The response will likely involve multiple alarms and
could extend beyond the initial critical tasks. Recall of off-duty personnel or assistance from
automatic or mutual aid may be needed during a disaster or when additional alarms and
command staff are required.
Wildland Urban Interface
Low-Risk Incidents
A single fire unit can handle a low-risk wildland firefighting incident that is minor in scope,
with no threat to structures and no red-flag conditions. This includes low-risk wildland or
grass fires, such as outdoor smoke investigations, illegal or controlled burns, or small
vegetation fires.
Moderate-Risk Incidents
Multiple units are required to handle a moderate-risk wildland firefighting incident involving
a significant fire in the brush, brush pile at a chipping site, grass, or cultivated vegetation.
Red-flag conditions are not present, and structures may or may not be at risk.
High-Risk Incidents
Multiple units or alarms are necessary to handle a high-risk wildland firefighting incident.
The level correlates with red-flag warnings and involves structures that may or may not be
threatened. This fire includes a significant wildfire in brush, grasses, or cultivated vegetation,
as well as woodland areas. Additional alarm assignments, command staff, recall of off-duty
personnel, and mutual or automatic aid assistance may require extending operations
beyond the initial critical tasks.
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APPENDIX C: TABLE OF FIGURES
Figure 1: Study Area Map ................................................................................................................ 2
Figure 2: Organizational Chart ........................................................................................................ 5
Figure 3: Revenues/Expenditures Summary ................................................................................... 9
Figure 4: Revenue Sources ............................................................................................................ 10
Figure 5: Expenditures by Category ............................................................................................. 10
Figure 6: NFPA 1730 Inspection Frequency .................................................................................. 15
Figure 7: Occupancy Risk Classifications Example ..................................................................... 16
Figure 8: Leading Causes of Death in SLO County (2020–2022) ................................................ 19
Figure 9: Years of Life Lost (All) in SLO County, 2023 ................................................................... 20
Figure 10: General Training Competencies ................................................................................. 27
Figure 11: Drill-type & Frequency .................................................................................................. 29
Figure 12: Administrative Staff Full-Time Equivalent Count ......................................................... 32
Figure 13: Fire Prevention Staff Full-Time Equivalent Count ........................................................ 33
Figure 14: Operations Staff ............................................................................................................ 33
Figure 15: Station Units & Staffing Levels....................................................................................... 34
Figure 16: Criteria Utilized to Determine Fire Station Condition ................................................. 40
Figure 17: Criteria Used to Determine Apparatus & Vehicle Condition ................................... 44
Figure 18: FCFA Fleet Inventory (2024) ......................................................................................... 45
Figure 19: FCFA Administrative, Command, and Specialized Vehicles Inventory (2024) ....... 46
Figure 20: FCFA Population Estimates ........................................................................................... 50
Figure 21: Age Risks ......................................................................................................................... 53
Figure 22: Population without Health Insurance.......................................................................... 56
Figure 23: Education ....................................................................................................................... 57
Figure 24: Race and Ethnicity ........................................................................................................ 58
Figure 25: Year Structures Built ....................................................................................................... 59
Figure 26: Housing Units .................................................................................................................. 60
Figure 27: Average Temperatures ................................................................................................ 62
Figure 28: National Weather Service Heat Index Chart ............................................................. 63
Figure 29: Average Precipitation .................................................................................................. 64
Figure 30: Drought Conditions (2011 to 2025) .............................................................................. 65
Figure 31: Drought Conditions – San Luis Obispo County and California ................................. 66
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Figure 32: Prevailing Winds ............................................................................................................. 67
Figure 33: Average Monthly Wind Speeds ................................................................................... 68
Figure 34: Fire Hazard Severity Zones ............................................................................................ 71
Figure 35: FCFA Flood Zones .......................................................................................................... 73
Figure 36: Historic Earthquake Faults ............................................................................................ 75
Figure 37: Traffic Count .................................................................................................................. 78
Figure 38: Streets and Highways in FCFA ...................................................................................... 79
Figure 39: Fire Hydrant Protected Areas ...................................................................................... 82
Figure 40: Electrical Power Distribution ......................................................................................... 84
Figure 41: Natural Gas Transmission and High-Pressure Distribution Lines ................................. 86
Figure 42: Railway Line and Crossings .......................................................................................... 88
Figure 43: Educational Occupancies ........................................................................................... 91
Figure 44: Assembly Occupancies ............................................................................................... 92
Figure 45: Medical and Care Centers .......................................................................................... 94
Figure 46: Buildings Three or More Stories in Height ..................................................................... 97
Figure 47: Buildings Greater Than 50,000 Square Feet ................................................................ 99
Figure 48: FCFA Property & Contents Loss per 1,000 People (2020–2023) .............................. 101
Figure 49: Fires per 1,000 Population (2020–2023) ..................................................................... 102
Figure 50: Intentionally Set Fires (2021–2024) ............................................................................. 102
Figure 51: Three-Axis Risk Classification Process ......................................................................... 104
Figure 52: Risk Scoring System ...................................................................................................... 105
Figure 53: Probability or Likelihood of Occurrence ................................................................... 106
Figure 54: Consequences to the Community ............................................................................ 106
Figure 55: Impact on Operational Forces .................................................................................. 107
Figure 56: Fire Response Risk Assessment ................................................................................... 108
Figure 57: Fire Three-Axis Risk Classifications .............................................................................. 108
Figure 58: EMS Response Risk Assessment .................................................................................. 109
Figure 59: EMS Three-Axis Risk Classifications ............................................................................. 109
Figure 60: Technical Rescue Response Risk Assessment ........................................................... 110
Figure 61: Technical Rescue Three-Axis Risk Classifications ...................................................... 110
Figure 62: Hazardous Materials Response Risk Assessment ...................................................... 111
Figure 63: Hazardous Materials Three-Axis Risk Classifications ................................................. 111
Figure 64: Wildland Fires Response Risk Assessment .................................................................. 112
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Figure 65: Wildland Fires 3-Axis Risk Classifications .................................................................... 112
Figure 66: Data Skew .................................................................................................................... 115
Figure 67: FCFA Travel and Total Time Data Skew .................................................................... 116
Figure 68: Total Incident Count (2019–2024) .............................................................................. 118
Figure 69: Incident Density (2019–2024) ..................................................................................... 120
Figure 70: EMS Incident Relative Density (2019–2024) .............................................................. 121
Figure 71: Fire Incident Locations (2019–2024) .......................................................................... 122
Figure 72: Top Ten Common Incident Addresses (2019–2024) ................................................ 123
Figure 73: Annual Incident Volume (2019–2024) ....................................................................... 124
Figure 74: Incident Volume by Month (2019–2024) ................................................................... 125
Figure 75: Weekday Call Distribution (2019–2024) ..................................................................... 126
Figure 76: Month & Day Distribution (2019–2024) ...................................................................... 126
Figure 77: Incident Distribution by Hour (2019–2024)................................................................. 127
Figure 78: Day & Hour Distribution (2019–2024) ......................................................................... 128
Figure 79: 5-Mile Travel Distance (In-Service Stations) .............................................................. 130
Figure 80: 1.5 Mile Travel Distance from Staffed Stations ......................................................... 131
Figure 81: 2.5 Mile Truck Travel Distance (From Station 1) ........................................................ 132
Figure 82: Incidents by Type Volume by Apparatus Type (2019–2024) .................................. 133
Figure 83: Annual Incident Volume Primary Units (2019–2024) ................................................ 134
Figure 84: Average Time on Incidents by Apparatus Type (2019–2024) ................................. 135
Figure 85: Unit Hour Utilization (2023–2024) ................................................................................ 137
Figure 86: FCFA Concurrent Incident Responses (2019–2024) ................................................. 138
Figure 87: Multiple Unit Responses (2019–2024) ......................................................................... 138
Figure 88: Incident Lifecycle ........................................................................................................ 140
Figure 89: Incident Segment KPIs ................................................................................................ 141
Figure 90: Call Processing by NFIRS Type (2019–2024) .............................................................. 143
Figure 91: Call Processing by Hour (2019–2024) ......................................................................... 144
Figure 92: Turnout Time by Type and Day/Night (2019–2024) .................................................. 145
Figure 93: Turnout Time by Year & Grouping (2019–2024) ........................................................ 146
Figure 94: Turnout Time by Unit & Shift (2019–2024) ................................................................... 147
Figure 95: Turnout Time by Hour (2019–2024) ............................................................................. 148
Figure 96: FCFA 4-Minute Predicted Travel ................................................................................ 150
Figure 97: FCFA 8-Minute Predicted Travel ................................................................................ 151
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Figure 98: First Due Travel by Type and Area (2019–2024) ....................................................... 152
Figure 99: Annual First Due Travel Times by Category (2019–2024) ......................................... 153
Figure 100: Travel Time by Hour (2019–2024) .............................................................................. 154
Figure 101: 8-Minute Response Force Model ............................................................................. 155
Figure 102: First Three Priority Units Travel (2019–2024) .............................................................. 156
Figure 103: Agency Response Time by Political Subdivision & Type (2019–2024) .................. 157
Figure 104: Annual Agency Performance by Category (2019–2024) ..................................... 158
Figure 105: Agency Performance by Hour (2019–2024) ........................................................... 159
Figure 106: Total Response Time by Political Subdivision & Type (2019–2024) ........................ 160
Figure 107: Annual Total Response Performance by Category (2019–2024) ......................... 161
Figure 108: Total Response Time Performance by Hour (2019–2024) ...................................... 162
Figure 109: 20-Year Population Forecast with 95% Confidence Bands .................................. 163
Figure 110: 2020 Population Distribution ..................................................................................... 165
Figure 111: Service Demand Projection to 2032 ....................................................................... 166
Figure 112: Automatic and Mutual Aid Resources (Table) ...................................................... 168
Figure 113: Automatic and Mutual Aid Resources (Map) ........................................................ 169
Figure 114: 4-Minute Travel from all Area Stations ..................................................................... 171
Figure 115: 8-Minute Travel Area Stations .................................................................................. 172
Figure 116: Automatic Aid Resources Available to FCFA ........................................................ 174
Figure 117: Staffing Recommendation Based on Risk .............................................................. 179
Figure 118: Fire Response Critical Tasking .................................................................................. 180
Figure 119: Emergency Medical Services Critical Tasking ........................................................ 181
Figure 120: Wildland/WUI Fire Critical Tasking ............................................................................ 181
Figure 121: Technical Rescue Critical Tasking ........................................................................... 182
Figure 122: Hazmat Critical Tasking ............................................................................................ 182
Figure 123: Airport Rescue/Firefighting ....................................................................................... 183
Figure 124: Available Units ........................................................................................................... 184
Figure 125: Example of the FCFA Fire & EMS Dispatch Plan ..................................................... 185
Figure 126: Emergency Medical Assignments by Risk ............................................................... 185
Figure 127: Fire Alarm Assignments by Risk ................................................................................. 186
Figure 128: Wildland/WUI Assignments by Risk .......................................................................... 187
Figure 129: Technical Rescue Assignments by Risk ................................................................... 187
Figure 130: Hazardous Materials Assignments by Risk ............................................................... 188
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Figure 131: Aircraft Rescue/Firefighting by Risk ......................................................................... 188
Figure 132: Response Time Standards & Goal Examples .......................................................... 190
Figure 133: Deming Cycle ............................................................................................................ 192
Figure 134: Incident Segments .................................................................................................... 194
Figure 135: Performance Chart Example ................................................................................... 196
Figure 136: Methodology Overview ........................................................................................... 205
Figure 137: Performance Statements ......................................................................................... 221
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