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2. Fire Department9225 T: Mayor Pamela B. Kennedy and Kalispell City Council FROM: Randy Brodehl, Fire Chief James H. Patrick, k, City Manager SUBJECT: Hazardous Materials Response MEETING DATE: October 3, 2005 BACKGROUND: The state of Montana Disaster and Emergency Services(DES) Department has partnered with the fire departments in Billings, Missoula, Great Falls, Bozeman, and Helena to provide response teams to hazardous materials threats or releases in the stater In addition, the DES has partnered with Flathead County Office of Emergency services to provide a team. All but the Flathead County team respond to larger incidents where local jurisdictions are not able to provide a complete response. They respond as a resource to the jurisdiction and function as a branch of the local incident command system. Each state team responds, n average, less than three times per year. Their average on scene time for each of these responses is four hours. The teams are made up of members that are certified to the tzars materials technician level, and are supported by local jurisdictions that are trained to either the hazardous materials awareness or operations levels. Funding and equipment for the teams is provided through a combination of state and federal grants, response billing, and state general tax revenue funds. The Flathead County Task Force One Hazardous Materials Tear, under the leadership of Flathead County Office of Emergency services OEs, has traditionally responded as a primary response tear. This means that they often respond before or in place of local jurisdictions, and assume command of the scene. Due to this typo of response, the team responds several tires per month. The Flathead County Commissioners have been working with Montana DES to determine if the current procedure used by Flathead County is within the scope outlined in the Montana Code Annotated 2005. There is concern that the response procedures may well be outside of the intent r t f the law and could put the county at a higher liability risk. The Commissioners are also considering a major shift in the makeup of the team, and the method of response currently used. Commissioner Joe Brenneman is heading this review and has been working with Montana DES to review the current program as compared to the state of Montana F a ar o s Materials Response Plan (The first three sections of the plan are shown in Appendix A). He has requested an independent review of the tear qualifications and training. This review will be completed in October. Commissioner Brenneman has also contacted the Kalispell Fire Department for assistance in understanding what we would have available, should the team be revised to look like the other five teams across the state, with the team being based in the Kalispell Fire Department. The Kalispell Fire Department has hazardous materials technicians and all personnel are trained to the operations level, but the department has not been allowed by OES to be part of the team. RECOMMENDATION: The City of Kalispell continues to assist Flathead County in reviewing the current situation. The City is willing to review the possibility o Kalispell Fire Department members being included in the team o Housing of equipment and apparatus in the fire station o Team leadership o Team training The City should also review: o Liability o Time commitment o Funding (Appendix ) o Frigate/public partnerships for personnel and equipment When this information has been reviewed n n assessment made, the Are Chief should present the City Council with the information and a recommendation for future involvement. Rsffy smft, 'If 66' r Chief James H . Patrick, City Manager INTRODUCTION Appendix Montana Hazardous Maten*als Response Plan. Purpose The primary pose of this plan is to Provide effective coordinated emergency response support to local go e.nunent by state, federal, and private agencies for 'Incidents involving the .release o potential release of hazardous matefials in the State of Mona. For the purposes of this plan, "hazardous material" means a hazardous substance, a hazardous or deleterious substance as defmed in 75-1 o- o , MCA, radioactive mate .al or a combination of a hazardous substance, a hazardous or deleterious substance, and radioactive material. Other poses of this plan are to provide guidance to State personnel who may encounter an incident involving hazardous materials and to define the support role of specific state agencies. This state plan can be initiated at the request of local goenunents. This plan allows for coordination with local hazardous materials response plans developed by cities, counties, and Local Emergency planning Committees, hereafter referred to as '` E C'', pursuant to Title III of the Federal S .perfund Amendments and Reauthorization .act hereafter referred to as "-SARA Title . 1"". Coordination could include out of state entities. This plan provides for response and support of the capabilities of local response personnel when the incident involves hazardous materials as defined in 0-3 -1203 Montana Codes .annotated (MCA). The State of Montana recognizes the Wide variation local hazardous materials response capabilities throughout the state and adjacent states. It is impost, therefore, to emphasize that the s a e's intent is to SUPPLEMENT local canabilities, not to supplantit. The Montana Hazardous Materials Response plan shall lie'Implemented at the request of local o er=entw Scope This plan outlines the circumstances under which state support will he I'LM'tiated . The plan is for the use of state personnel and local jurisdictions that are involved with hazardous material emergency response within the state. The plan covers the procedures, commun.leat ons, and responsibilities o participating agencies and provides for the follow-up to hazardous material spills or release incidents. The capabilities and responsibilities of the various agencies involved are outlined.. This plan addresses transportation and fixed site spills, releases, or threat of release of hazardous materials, and 'Incidents involving orphaned hazardous materials, which may pose a threat to human health or the environment. n accordance with Montana law l o-3 -1 o5 MCA, the State may consult and cooperate with agencies in the federal govemment, other States, and Canadian federal or provincial governments. Authority A tl o ty for implementation of this plan 's derived from 1 o-3 - l 20 2 through 5 MCA. The Montana Hazardous Materials Response Plan requires the coordinated efforts of all signatory agencies. Assumptions The response activities in this plan are based on the National Incident Management S item LNIMti), Nuns is a management err ent tool that provides a structure for response to emergency situations, in this ease, hazardous materials incidents. It provides a system for federal, state, and private entities to be integrated under local command. SARA Title 111, Occupational Safety and Health Administration. (OSHA), and the Environmental nme to Protection agency EPA rules require use of a Incident Management System for hazardous materials incidents. It is the policy of the Montana State Emergency .Response Commission hereafter referred to as t .e "SERC", that N MS will be used when responding to hazardous materials incidents, in conjunction with the Mate Emergency Coordination Plan hereafter refeffed to as the "-SEC '". NfMS when implemented by local goverment ding initial response, will allow state resources to become part of the response network without disrupting local effort. Incident Command and Control The State Hazardous Materials Incident Response Tearn hereafter referred to as "SHMIR " is designed as a support unit to provide 2 -hour coverage seven days a week} The SHMIRT operates under the direction of a team leader. When multiple regional components are operating as the state team at the satne incident the first tearn deployed will have the team leader mess the SHMR ` at a later time agrees to assign that responsibility to another team member. As a support Wit, the team operates under the direct authority of the 1C. If requested, tht team may provide technical guidance to an IC -scene or by phone. Use of the team does not release the local response agencies from their duty to provide nrnal response meets. Implementation The Disaster and Emergency Services Division hereafter referred to, as "MT -DES" is the statutorily assigned agency for notification of reportable hazardous materials incidents as established by 10-3- 1211 MCA and Title III of the SARA. This enables MT -DES, to maintain a database of incidents. Reporting hazardous materials incidents to MT -DES also fulfills state reporting requirements as established by 10-3-1211 MCA and Title III of the SARA. The decision t initiate the request for assistance provided in this plan shall be made by the local Incident Commander according to procedures outlined in their local emergency operations plan, when it 's detenrnined that a hazardous material is 'Involved in quantities or conditions exist that may pose an immediate hated to public health and/or the environment, r when the IC is seeking technical advice or assistance* The plan is im'tiated by calling MT -DES, at - 1-3 l l . MT -DES will notify the appropriate response and support agencies, when requested to do so by the 1C. Summary Implementation of the Montana Hazardous .materials Response Pfau includes creation of a single specially trained and equipped team for hazardous material incident response. The state-wide response SHMIR ` is a cooperative effort of regionally located response teams, designated officials of state agencies, and. the SERC. The SHM RT members are strategically located around the state, Each of these regional teams Will consist of hazardous materials emergency response personnel with specialized equipment specific to hazardous materials response. The regional teams, when activated, will operate under the direction of the team leader and within NMS. The teats are intended to respond to the most acute and critical hazardous chemical emergencies in the state. Their primary objective is to protect human life, the environment, and property ding the early stages or an emergency. Wile there s are expectation from the State Emergency Response Commission SERC and the MT -DES State Emergency Coordination Center SECC that the regional teams comprising the SHMIRT will respond when requested, there is also are understanding that there may be local circumstances that may prevail and prevent them from responding r subject for recall to their home station. I order to accomplish this, the regional teams must remain under local administrative control and not as a state resource. IR State Hazardous Materials Incident .response Teams Mission Statement To create and establish strategically located, specialty trained and equipped regional .hazardous materials incident response teams (regional teams) using the combined resources of the state of Montana, local governments, and private industry. The state response teams" mission is to protect Montana's citizens,, environment, natural resources, and property from the effect of hazardous material releases or the threat of release of hazardous materials. Goals Goal l Jo provide emergency responders with timely, up-to-date information., 'in a readily access le ��er, which may e used as as s foremergency operations s sec sins. Goal 2: To assist local governments in responding to and mitigating the effects of hazardous materials incidents. Goal 3 :To provide emergency responders with appropriate hazardous materials training to meet operational and regulatory requirements. Goal 4 :To provide regional teams with appropriate equipment and training to support other emergency responders at hazardous materials incidents. Policies The State of Montana recognizes that local govemments have primary responsibility for the mitigation of hazardous materials emergencies. For those incidents where the local officials ash. the Mate for assistance, the State Hazardous Materials Incident Response Team SHMIR will provide emergency hazardous materials 'incident response coverage. The regional hazardous materials incident response teams, as components f the SHMIR , will be strategically located in existing at tl e l fire departments agencies identified and accredited by the SERC: 'rained HAZMAT personnel from host fire departments aeucies will staff the regional teams. Those agencies at their sole discretion may include members on their team who are not regular members oftheir organization.. The regional teams will use NMS and will not respond to an incident until the IC has been established at the incident. The team will work under the direct supervision of a Team Leader. Administrative and legal operations of the regional response team components and the SHMIRT are to be consistent with administrative n.es adopted by the state. Such rules must meet statutory guidelines and operational needs. The Montana Hazardous Materials Response, lan in addition to C R 1910.120 and. NFPA 472 and other applicable stands addressing will guide response team operations including; Personnel 0 Regulatory compliance Equipment standards Insurance requirements Training requirements 0 Certification requirements 0 Records and reporting Medical surveillance Billing/cost recovery program Decontamination Procedures Coordination with other Government Agencies The State of Montana and its State Hazardous Mate a s Incident Response Team is committed to the principles of integrated emergency management. Command and control fictions will use NIMS, SHMIRT Agencies The SERC will determine what agencies will .have SHMIRT Teams and only those agencies will be authorized by the SERA. Training and performance The State of Montana will provide specialized training to response team personnel through -the SERC, State regional response tee training programs will address the federal training levels a outlined in the "Training Specifications" section of this plan. Criteria for certification the authorization of teams will be defined in the accreditation autoation process section of this plan and audited by a committee of the SERC. The teams will be trained In and operate under N MS. SHMIRT will be evaluated using the performance crite a established y 29 C R 1910.120 q) and National Fire Protection Association (NFPA) Standard 1. and 472. ACCREDITATION AUTHORIZATION PROCESS FOR PET.SONNELWITH ADVANCE HAZMAT CAPABILITIES .The following outlines the steps for a persormel with advanced ha mat capabilities to become accredited authofized by the SERC: 1. The chief executive of the agency requesting accreditation authorization shall submit to the SERC annually, a letter of certification, listing the members of the team, outlining the training provided to the members of the team, tt .e quall-fications of the personnel, the number of personneltrained and to which level of training, and also certification of the minimum required hazardous materials equipment as required by this plan. 2. Once the accreditation authorization process has been completed by the SERC, a letter s. a l be sent to MT -DES validating the agency's team accreditation. 3. Each authon*zed team will participate, with other regional teams in, at least, one multi -agency hazardous materials exercise a year. . The accredited authorized agency will enter into a Memorandum o 'Understanding with the SERC. 5. If team members change or additional members are added, the chief executive for the accrediting agency iArill submit the changes along with training documentation to the SERC prior t deployment as a team member. Financial Management The SHMIRT operates under the administration of the SERC, All fiscal accounting, 1anm*, budgeting, recording, and reporting programs of the team will be the function of the SERC and. outlined In contracts memorandums of understanding between the SERC and the response teams. State Hazardous Materials Incident Response Team Components A regional SHMIRT consists of a minlmurn of six members competent in. the use of, level "A" personal protective equipment, containment,, monitoring and decontamination equipment. miscellaneous tools and reference materials at the technician level. Regional teams can be staffed by members of a ste le department agency or may be comprised of personnel from various agencies. Representative Hazardous materials qualified(OSHA 1910.120) positions that may/or are required to be staffed at an incident to which the SHMIRT responds include: Incident Commander - local agency Herat Team Leader . Ha mat Safety Officer - SHMIRT Member . Entry Team - SHMIRT Back-up Team - SHMIRT . Research - SHMIRT r DECON - local. agency or S14MIR . ALS as defined by state EMT licensing rWes - local agency or SHMIRT Depending on the complexity of the incident other positions may be required to provide effective and safe ma.aem.t of the incident. Minimum Requirements (See Training Requirements — Section V11) The minimum requirements for regional teams to be considered a component of the SHMIRT include: l . The Fire Chief chef executive for each regional team Will certify training and equipment standards are met for their respective team members. 2. Annual . approval as a team by the SERC. Availablewithin 5 minutes 2 hrsay, days/week for technical assistance y hone. 4. Avw*lable to supply 3 team memberson-site 24 hrs/day, 7 days/week for initial and. extendedresponse for a period not to exceed 10 days. Teams should respond to MT -DES within 30 minutes of the request for a response and advise MT -DES whether they are able/notable to respond. Appendix • Montana Code Ante 1.0-3-1214. Right to reimbursement. State hazardous material incident response team members may submit claims to the commission for reimbursement o documented costs incurred as a result of the a ss response to an incident. Reimbursement for the costs may not exceed the duration of response, (2) A party who is not a past of the state hazardous material incident response team and is not liable under federal or state law may submit a claim to the commission for costs if the claim is associated with a request by the state hazardous material incident response team or the commission, (3) Claims for reimbursement must be submitted to the commission within days after termination of the response to the 'Incident for the state's determination o payment, if any. (4) Reimbursement may be made only after the comet-Issio finds that the actions by the applicant were taken in response to an incident as defined in this part and only if adequate ids are available. 9225 T: Mayor Pamela B. Kennedy and Kalispell City Council FROM: Randy Brodehl, Fire Chief James H. Patrick, City Manager SUBJECT,. Insurance Services Offices response criteria versus National Fire Protection Association Standard 1710. MEETING DATA; October 3, 25 BACKGROUND: Fire departments across the ration have traditionally located fire stations according to a set of values provided by the Insurance services Offices (ISO). By ISO values, fire stations should be 1.5 miles apart to effectively place enough personnel on scene for initial fire attack during the incipient stages of a fire, It also establishes that a ladder truck response should be 2.5 miles or less. (Appendix A ISO Station Response Areas) This is a simple way of determining station locations, allowing fire chiefs to use a cheat sheet for future station location planning. Basically, the more fire stations that can be located at that distance, the greater number of points are assigned_ These points are part of a larger formula that is used to establish community fire classifications. These classifir,ations in turn can be used by fire insurance companies to project fire losses and t establish insurance rates. However, fire insurance companies are less and less dependent n ISO classifications and are becoming more dependent on actual loss data for establishing insurance rates. In 1995, the National Fire Protection Association NF A , the rationally recognized organization that develops fire related standards., began developing a standard criterion for fire department responses. This standard became know as NFPA Standard f Standard for the t a at and Deofovment of Fire Suwressl'on ODerations. Emerclenci Medical Operations, and Special Operations to the Public by Career Fire Departments. A similar standard, standard 1720,vas developed for combination and volunteer fire departments. Many NFPA standards have been adopted into federal, state, and local laws and ordinances. Other standards are used when an adopted law refers decisions to nationally recognized standard practices NF A 1710 covers apparatus staffing and response times for fire, emergency medical system (EMS) responses, and other emergency responses for fire departments. For this discussion, we wj]J be looking at response times for fire and EMS in the City of Kalispell- (Appendix 13, NF A 1710 Station Response Areas) Instead of using distances such as ISO does, NF A 1710 uses travel times. These travel times are based on the Fire Pro a air Gorge (Appendix C �r and information rn several medical response studies. The Fire 'rp. ah` Curve uses scientific studies which confirm that fire attack within the first five minutes of a fire will usually contain the fire in the incendiary stage (when a fire is small and can be controlled by initial offensive action using a fire extinguisher or fire l a roes). The American Heart Association provides the EMS response data that says CPR within the first five minutes of a cardiac arrest allows a 50 survival rate. (Appendix D) NFPA 1710, whea boiled down, says that fire department response can include up to minute for turnout t me(the time it takes to leave the station when a gall is received), and up to four minutes to respond to the scene. This is a total response time of 5 minutes from the receipt of the call. For fire responses within the cfty limits, that would include the first due fire engine, On EMS responses, it includes the first due advanced ce life support engine or ambulance. Also identified n NFPA 1710 is the response times for the first due ladder truck. This includes one minute turn out time, and eight minutes of response time, for a total of nine minutes from receipt of call. NFPA also recognizes that % compliance with this requirement would be impossible for any fire department, so the standard is for meeting the time requirements 9 of the time. Outside of the city, the response requirements are the responsibility of the agency having jurisdiction, so are not within the scope of this report. While response time is the critical factor, there is no standardized cheat sheet for fire station planning using NFPA 1710. This is because apparatus travel at different speeds based on traffic flow, time of clay, and types of roadways. Kalispell Fire Department is not able to track specific response tires with any accuracy at this time due to the lack of details available from the Dispatch Center. However, in Kalispell, we can generalize some of that information by making two assumptions: Apparatus travel speed averages 25 miles per hour, except on high speed corridors (roadways with a speed limit of 45 miles per hour or higher); 2 Apparatus travel speed averages 55 miles per hour on high speed corridors. These speeds may vary up or down, depending on traffic conditions, but in the absence of additional time study information, we will use the above speeds for calculating response distances. The City of Kalispell has multiple high speed corridors; At least parts of Highways 2 and 93, Three Mile and Four Mlle Drives, and Foyes Lake Road are high speed corridors. The corning Hwy 93 Bypass will also be high speed. Calculations using N F PA 1710 allow greater response distances while still maintaining a 90% travel time of four minutes or less for engines and are eight minute travel time for ladder trucks. When reviewing the differences between ISO and NFPA 1710, the critical response lines i Kalispell are very simi ar, except where there are high speed corridors. `his is because at 25 miles per hour} apparatus travels about 1.7 miles, which is only slightly more than the 1.5 riles identified by ISO. However, on a high speed corridor, apparatus travel 4.6 miles in fireminutes. Comparison: ISO -Easy to use,, may have a significant fiscal affect on the commercial business insurance rates, and is nationally recognized as a functional fire station location planning tool. Stations may be closer together than is needed for an effective response, creating a higher cost to the taxpayer. The number of ladder trucks may be higher than needed if the city has at least one high speed corridor. The greater the number of fire stations* the greater the number of firefighters required, increasing the cost to the taxpayer. W A -Measurable and based on a scientifically documented fire behavior pattern and medically sound response principles. Typically requires fewer dire stations, less firefighters., less fire engines, and less ladder trucks. This equates to a significant cost reduction for taxpayers. It is difficult but not impossible to calculate. It is not currently being used to calculate insurance rates. Kalispell growth patterns indicate that the city will require addition staffed fire stations in the near future. The Kalispell Fire Department has developed two plans which look at where these stations should be located as the city grows. Each plan will provide significant capabilities for fire suppression and EMS response. Each plan corner at a cost, and careful consideration eratio should be given to which plan the city should use. n 2 , the Ka is pel I Fire De a rtment developed goals and objectives using N F PA 1710 response standards for planning fire and EMS response. This, because the city at that time contained almost no high speed corridors, was the same as if ISO criteria were being used and the terminology could be used interchangeably. Now, the city is laced with high speed corridors, with more coming in the future, and greater use of high speed corridors by emergency response apparatus. RECOMMENDATION: The Kalispell Fire Department recommends using NA 1710 as the primary fire station location planning tool, and using ISO as a reference to make minor adjustments to station locations whe n reasonable. Because N F PA 1710 takes into account fire and EMS response, and because it is based on actual response data rather than mileage, it more accurately reflects the response needs of the community. Council has the authority to change or modify this recommendation. The fire chief will continue to plan using NA 1710 as the primary planning tool, unless directed by Council to use a different tool. Respectfully submitted, kan god -f ire Chief James H, Patrick., City Manager A Did You Know..... w MINUTES WITHOUT DEFIBRILLATION Fire doubles in size every thirty seconds 0 three minutes, until it reaches Flashover, fire growth is unrestrained. National Fire Protection Association rt,nsi-i<>vt,R OCCURS CRI."I"ICAL., TIMF 111111111 to then FPA STANDARD 1710 - STAT ON RESPONSE AREAS KALISPELL FIRE DEPARTMENT ISO STATION RESPONSE AREAS 51 25 TO: Mayor Pamela B. Kennedy and Kalispell City Council FROM: Randy Brodehl, Fire Chief James H . Pat, City Manager SUBJECT: Fire engine response with the ambulance MEETING DATE: October 3, 2005 AGROUND Kalispell Fire Department provides basic and advanced medical life support response to most of the population in Flathead County. This is approximately 3,500 calls per year, with about half of those being inside the city limits and the others being outside the city limits_ Outside the city limits, the Kalispell it Fire Department ambulance is assisted by fire or quick response units, who initiate treatment and assist with patient packaging and moving, and may also assist during transport as the need dictates. These agencies provide tour or more personnel for assisting during the transport to the nearest medical facility. Wfthin the city limits, this same assistance is provided by responding a fire engine with the ambulance on emergency responses. The engine is staffed with paramedics and a full complement of advanced life support equipment. Medical treatment on scene has changed dramatically over the past twenty years. During that time, we have gone from the need to get patients to the hospital so they can be stabilized and treated., to stabilizing and treating the patient before transporting. This change has made a dramatic increase in patient survival rates, and quality of life following recovery. With this has come the need for more training, invasive treatment in the field, specialized equipment, and additional personnel during stabilization and transport. As an example, a patient who has had a cardiac evert may need} airway management including mechanical means, cardiac management including defibrillation and CPR, drugs administered in sequence, vital signs monitodn , scene management, and patient packaging. All of this happens before the patient is moved to the transport ambulance. The patient and attached equipment must be moved to the ambulance and loaded Patient management must continue during the trip to the medical facility, while one person drives. Should the patient be up or downstairs from the ambulance, ce, additional personnel are needed to manage the move to the ambulance, reducing the risk of injury to firefighters. So, the need for additional personnel on scene is evident it we grant to have the medical success rate that we currently d. Questions are often poised as to why a fire engine. Why not a small chase vehicle such as a pickup with equipment with one person? This becomes a logistics management issue of splitting the operations crew into three groups instead of two, It is much more difficult to function as three groups than it is two. While an engine can be restaffed as soon as the patient is stable when it responds to the scene, it .c.1an not be restaffed until the chase vehicle returns to the station if the engine does not respond. As is obvious, many of the calls we respond to do not require all the personnel on the engine. However, typically we do not know that until the patient has been assessed we gait until the patient assessment is complete before we request additional personnel, it may be too late to save a life. Keeping an engine company together as much as possible, allows that engine to be freed up for additional responses sooner, with a complete crew. Another consideration is what d o you d o if one person i n the chase vehicle isn't enough? This means that the engine has to respond anyway and negates the advantage of a small chase vehicle. RECOMMENDATION: Council watches the patient management vignette demonstrated by the firefighters, listens to the input of the attending physician, and asks questions as needed. Rsffy submitted R�Y -er� James H. Patrick City Manager