2011 Grand Jury Report - Part II

Recommendations 13

• R1
  The Grand Jury finds that Tuolumne County should consolidate all existing fire districts and departments under a single management system to provide structural fire protection on a year-around basis. (a) A single Fire Chief providing leadership to all responding districts should be considered. The districts would employ Fire Captains and Lieutenants as needed. By whatever method, it is critical that fire command structure is centralized for all responders County-wide. This might be accomplished under the “Single County-wide Fire System - Joint Powers Agreement Option” discussed in the Tuolumne County Fire and First Responder Study. Use of part-time firefighters should be explored to meet staffing demand in all districts/departments. This usually results in cost savings by reducing benefit packages. (b) Training should be standardized and every effort should be made to make it accessible to volunteers. Anyone from outside Tuolumne County that benefits from the consolidated Training Bureau’s courses should pay a reasonable fee for that training. (c) An inventory of resources should be completed that includes what/who belongs to, or is provided by, CAL Fire and must include: • services and equipment Tuolumne County is enjoying without cost through its contract with CAL Fire • what/who does Tuolumne County Fire Department own and supply • what/who does each district/department own and could possibly supply to a coordinated County-wide system This comprehensive and accurate list of assets, including personnel, is crucial in determining how to save money. (The Commission on Fire Accreditation International recommends a system approach known as “Standards of Response Coverage” for use in self-assessment of a fire agency. [ City-gate Assoc. Fire Department Evaluation for the Groveland Community Services District] This approach might be useful for the current evaluation of Tuolumne County fire and emergency response services.) (d) Set aside parochial attitudes and address economic reality by: • using available dollars wisely through coordinated purchasing of supplies and equipment • sharing maintenance of, and training personnel to use, all available equipment 86 • avoid unnecessary duplication of resources • standardize and coordinate training of volunteers • encourage volunteers to be County-wide responders • share educational and public relations efforts (e) While negotiating a new CAL Fire contract, include language that allows phasing out the broader services CAL Fire provides and provides flexibility to address those changes. Maintain the Amador Plan type of winter support for a defined term. Every effort should be made to reduce costs subject to the Administration fee.
• R2
  Some communities in California are recovering at least part of response costs through various means including charging expenses to auto and homeowner’s insurance coverage, medical insurance coverage, etc. Some are establishing “response fees” both for nonresidents and residents. Consultants are available that specialize in recovery, usually charging a set fee based on a percentage of recovered dollars. Models for in-house recovery systems are available from other local agencies. Success rates vary for both recovery systems. It should be noted, there is currently proposed State legislation to prohibit local agencies from adopting such fees and that some locales that had adopted fees have since dropped them for various reasons. Researching these possible funding sources should be part of the working- group’s effort.
• R3
  Adding medically qualified personnel to dispatch would result in sending the appropriate level of staff and equipment to a call. It should be determined if such a change would result in the costs to provide skilled staff being recouped by efficiency in response. Establishing a central, well equipped, dispatch center staffed with medically trained personnel serving the entire County must be considered. The possibility of combining County-wide dispatching services with the proposed new CAL Fire Command Center project should be investigated. That investigation should be open to the idea of a single dispatch for all emergency responders. Planning to accommodate change in how 911 calls from cellular phones are currently handled should be included in any new dispatch program.
• R4
  The cooperative effort demonstrated by participation in the Tuolumne County Fire and First Responder Study is a good foundation for organizing and launching an educational public outreach program. The purpose of this program would be to explain what fire departments are expected to do today, how those demands have affected costs, the viability of volunteer-only stations, and the ongoing need for volunteers. Most importantly, the program should explain why change is necessary. That explanation would benefit from a clear presentation of how demand-for-service expectations relate to what the community can afford to provide. Once people understand that the level of service they expect cannot be provided with existing dollars, they will be more likely to support change. 87
• R5
  (a) Required training of volunteers should be made as accessible, affordable and flexible as possible. Volunteers should be encouraged to serve County- wide whenever possible. Opportunity to engage in actual fire fighting should be expanded. Any professional firefighter that in any way discourages or disparages the contribution of volunteers should be disciplined. Leadership at all levels should reaffirm the importance of volunteers to the success of fire departments. (b) Local businesses and organizations should be approached to sponsor volunteers with stipends or “scholarships” to help fund training, equipment and perhaps even child care during training sessions. At the very least, employers should be educated on why their cooperation is critical to volunteers they employ. (c) Centralization of volunteer programs under a single leader would improve the potential of gaining new recruits, make training consistent, provide expanded opportunity to participate in responses, and insure better retention of recruits. The program should make use of every good idea available from successful efforts throughout the County and elsewhere. In addition, this program might serve as a public-relations and education coordinator.
• R6
  All Tuolumne County responders should cooperate in a strategy to improve ISO ratings. Maintaining the existing ratings must be a priority. Water service suppliers are a vital part of this effort, their participation should be requested. Volunteer stations should be re-opened as soon as possible.
• R7
  Groveland Community Service District has a successful responder program. Elements of its staffing, training, volunteer recruitment and community appreciation programs would be useful models to review for initial centralized management policy.
• R8
  Studies of the economic issues relative to any consolidation should forecast costs and savings forward at least five years. It is likely consolidation will be costly in its first few years but changes might be very beneficial further out. Projections of this manner are difficult and subject to many influences over which the local agency has no control. All districts/departments in the County should support the Working-Group study of how best to utilize existing resources and demonstrate a willingness to change business models. Remarks Tuolumne County Administrator Craig Pedro provided exceptional cooperation. He and his staff are appreciated for giving up-to-date information as soon as it became available. Assistant County Fire Warden Paul Speer, Groveland CSD Fire Chief Shane Warner, County Fire Warden Mike Noonan and Dennis Townsend were very helpful and informative sources for the Jury. 88
• R9
  Communities served by several special districts should explore the potential advantages of creating a Community Services District. Tuolumne City and Jamestown have a variety of special districts serving their communities and may find establishing a Community Service District useful.
• R10
  Same as Recommendation 9. Remarks It appears to the Jury not all special districts follow the applicable local, State and Federal laws and regulations. While recognizing it can be difficult to track and adhere to so many rules, more effort should be made in this regard. Carter Cemetery District appears to be fiscally well managed and benefits from the services of a dedicated Sexton. Both the Twain Harte CSD and Tuolumne Utilities District (TUD) have excellent new member orientation programs. The Tuolumne City Parks and Recreation District and TUD use exceptional policy and administration manuals. TUD is an example of a special district doing many things well. The size of this district is a factor by providing resources not available to smaller districts. An energetic and dedicated General Manager contributes much to this district’s success. Groveland and Twain Harte Community Services Districts maintain informative websites.
• R11
  TCSD should follow the Personnel Policy and Procedure Manual updated and adopted in April of 2010. TCSD should review that manual annually for compliance with applicable laws and update the manual as required. Special effort should be made by board members to avoid even the appearance of a conflict-of-interest when dealing with personnel. A well-qualified general manager is helpful in dealing with personnel issues.
• R12
  TCSD should have all documents relative to offering contracts for services reviewed by well-qualified individuals employed by the district. The district should have those reviews presented in writing to the board prior to any action on the contract. The reviews should be kept as part of the Record. The TCSD should follow all public contracting laws and guidelines.
• R13
  TCSD should participate in a proposal to create a Community Services District combining special districts serving Tuolumne City. Remarks Brenda Bonillo, TCSD Secretary, has been exceptionally helpful. She provided requested documents (at no cost) promptly and with a positive attitude. Evan Royce and John Feriani were very informative and remain committed to the success of TCSD. All TCSD staff contacted by the Jury were helpful, friendly and informative. TEDA staff was extremely cooperative and informative. They provided many documents for the Jury's review and at no cost. Pete Kampa, TUD General Manger, and other TUD staff helped address questions about sewage treatment and the consolidation study. TCSD’s past District Engineer made his personal records available and promptly addressed all questions from the Jury. In an unusual move, TCSD made their past Attorney available to answer questions. 142